Multinational Force and Its Mandate

Multinational Force and Its Mandate for Peacekeeping

Reasons for creation of MFO

The origin of Multinational Force and Observers -- MFO is traced back to the Annex I to the Treaty of Peace captioned 'Protocol Concerning Israeli Withdrawal and Security Arrangements'. (History: Multinational Force and Observers) The geographical area demarcated under Annex I is split into four zones. The Zones A, B, and C. lie in the Sinai Peninsula in Egypt and Zone D. In Israel. C and D. Zones are coterminous with the International border. This Annex also involves the post-withdrawal levels of military personnel and equipment permitted in each Zone and in Article VI it is envisaged that both Parties would request the United Nations to entail a force and observers to coordinate the implementation of these provisions. At the time when the Treaty of Peace was signed it was realized by all concerned that it might prove difficult to attain the sanction of Security Council for basing a United Nations peacekeeping force in the Sinai. (History: Multinational Force and Observers)

Taking into consideration such facts on March 26, 1979, the very day on which the Treaty of Peace was concluded, President Carter intimated President Sadat and Prime Minister Begin about several specified U.S. commitments with regard to the Treaty of Peace. Such commitments involved a promise by President Carter that the U.S. would take essential measures for establishing and maintaining of an alternative multinational force in case the United Nations fails to fulfill this responsibility. In July 1979, the mandate of United Nations Emergency Force II or UNEF II terminated. A new mandate for the Sinai Peacekeeping was not considered by the United Nations. Since the Treaty of Peace entailed for a responsibility of United Nations forces in the process of phased retreat, it became essential to provide for an immediate alternative. (History: Multinational Force and Observers)

The Government of United States consented for the prevailing U.S. Sinai Field Mission -- SFM to take on a new mission performing several verification functions entailed in the Treaty of Peace. During the subsequent two years efforts were made to attain the United Nations Force and Observers agreed by the Treaty of Peace. However, on May 18, 1981, the President of the Security Council revealed the impossibility of providing such a peace keeping force. Taking assistance from United States, Egypt and Israel opened up negotiations in anticipations of arriving at an agreement that would lay the foundations for generating a peacekeeping organization which was outside the United Nations framework. (History: Multinational Force and Observers)

Thus, the formal Treaty of Peace between the Arab Republic of Egypt and the State of Israel, concluded on March 26, 1979 is considered as one of the significant breakthrough in the still evolving Middle East peace process that is hopeful of a stable agreement through means of negotiation and confidence building measures over the last 15 years. Israel and Egypt have adhered to this Peace Agreement since the military and security arrangements and their verification regime have represented to be sufficient. It is true that the verification experience attained through Sinai II entailed a basis for the Egypt-Israel Peace Agreement. As per the military annex of the Egypt-Israel Peace Agreement, the Sinai was split into four zones each having a limitation on both personnel and weapon number and type. (Sensors in the Sinai: A Precedent for Regional Cooperative Monitoring)

In Zone A Egypt was allowed to station a strengthened mechanized infantry division in permanent facilities. In Zone -- A Egypt was allowed to station "22,000 troops, 230 tanks, 540 armored personnel carriers, 126 medium artillery pieces, 126 antiaircraft guns, and ground to air missiles." (Sensors in the Sinai: A Precedent for Regional Cooperative Monitoring) In Zone-B Egypt was confined to stationing of four battalions of light infantry 4000 troops with wheeled vehicles and light weapons. In Zone-C Egypt was allowed to station only civilian Police units. In Zone-D Israel was restricted to four infantry battalions consisting of 4000 men and around 200 armored personnel carriers. The artillery and antiaircraft missiles, other than man-portable version, in this zone were restricted. Such activities were to be monitored by a co-ordination of National Technical Means -- NTM and UN Peacekeeping grouped with Egypt and Israel. The UN made functional several checkpoints and observation posts and caused patrols along the border and lines of Zone-B and Zone-C. (Sensors in the Sinai: A Precedent for Regional Cooperative Monitoring)

It also made mandatory to conduct bimonthly on-site inspections also within zones. It has also made provisions for challenge inspections within the 48 hours of request on either side of the restricted zones. However, the monitoring system for the Egypt-Israel Peace Agreement broke down when the Soviet Union vetoed an expansion of the UNEF mandate in July of the year 1979. Such a veto led Egypt and Israel to approach United States for continuance of the Sinai Field Mission -- SFM and particularly its monitoring responsibility to replace the presently defunct UNEF. The responsibility of SFM extended to perform on-site inspection and low altitude aerial surveys. Both the nations monitored an interim buffer zone. Israel maintained four signal collection stations along ridges in the central Sinai. On the other hand Israel and Egypt was engaged in performance of reconnaissance flights till the midpoint of the buffer zone. The SFM, with about the same number of personnel, performed bimonthly inspections. There existed four inspection teams consisting of three inspectors. (Sensors in the Sinai: A Precedent for Regional Cooperative Monitoring) couple of days were required to supervise the facilities in Zone-A, and one day each for Zones B. And C. The SFM involved light aircraft and hand held cameras and viewing devices during such inspection. The Israeli withdrawal became possible very smoothly with only 29 minor infringements. The completion of the withdrawal process of Israeli in April 1982, led Israel, Egypt and the United States to agree for substitution of the SFM with a multinational force to become responsible for the purpose of implementing the assessing regime of the Egypt-Israel Peace Agreement. As a result of this the Multinational Force and Observers --MFO was instituted. The MFO still monitors the Sinai for the Egypt-Israel Peace Agreement. Such organization is independent of the UN and is funded by the parties to the Egypt-Israel Peace Agreement. Initially, the United States made available an infantry battalion and a logistic unit for the organization and with its persuasion, Israel, Egypt and ten other nations also made available some units to the MFO so as to make the total strength to 2500. The administrative headquarters of the MFO is presently instituted in Rome. (Sensors in the Sinai: A Precedent for Regional Cooperative Monitoring)

2. MFO mandate and agreement between both parties of Egypt and Israel

The Mandate of MFO was to "OBSERVE, VERIFY AND REPORT." (Multinational Force and Observers) Normally, four essential tasks have been conferred upon MFO. Firstly MFO is to fulfill the checkpoints, reconnaissance patrols and observation posts along the international boundary lines of B. Zone and within the area of the Zone C. Secondly it is the responsibility of the MFO to periodically verify the implementation of the provisions of the Annex to the Treaty of Peace, to be performed not less than twice a month unless otherwise, agreed to by the parities. MFO is to further very within 48 hours of after receipt of the request from either party. Fourthly, The MFO is to ensure freedom of navigation via the Strait of Tiran. (Multinational Force and Observers)

The United Nations concluded not to continue with a peace keeping mandate on the Sinai Peninsula with conclusion of the Israel-Egypt Peace Treaty during 1979. The provisions of the Treaty envisaged set up of international peacekeepers so as to make it certain that both Israel and Egypt adhere to the provisions of the military build up along the border. The negotiations by Egypt, Israel and the United States gave rise to the establishment of MFO as a peacekeeping organization outside the structure of United Nations with signature of the Protocol to the Treaty of Peace on August 3rd 1981. The MFO assumed its mandate on April 25th 1982, the very day on which Israel conferred the sovereignty of the Sinai Peninsula to Egypt. The main headquarters of the Multinational Force and Observers is located in Rome, and is led by the Director General. (Multinational Force and Observers: Wikipedia Encyclopedia)

Two regional offices of this also are located at Tel Aviv and Cairo and Force itself is based in the Zone C. On the Sinai Peninsula under the command of the force Commander. The Force Commander has been assigned the responsibility for the military elements of the MFO that consists of the "Headquarters, Three infantry battalions, Coastal Patrol Unit, Fixed Wing Aviation Unit, Transport Unit, Engineers Unit, Military Police Unit, Fight Following Air Traffic Control Unit. The Military personnel for the purpose are contributed by eleven countries. Australian contributed 25 personnel based at Force Headquarters. Canada contributed about 29 personnel based at Force HQ and Flight Follwing Unit. Colombia contributed an infantry battalion consisting of 265 personnel." (Multinational Force and Observers: Wikipedia Encyclopedia)

Fiji sent an infantry battalion of 329 personnel. France provided 15 personnel to be stationed a Force Headquarters and with fixed wing unit. Hungary provided a Military Police Unit consisting of 41 personnel. Italy contributed the Coastal patrol unit consisting of 75 personnel and 3 ships. New Zealand contributed 27 personnel divided between support battalion and Training and Advisory Team. Norway sent 3 personnel to be based at Force Headquarters. Uruguay took the responsibility of 87 personnel with Transport and Engineering Unit. Finally, the United States is assigned with the responsibility of maintaining three contingents: 27 personnel in the Force Headquarters, 235 personnel in the support battalion and 425 personnel in the Infantry battalion. (Multinational Force and Observers: Wikipedia Encyclopedia)

The letter from President Sadat and Prime Minister Begin to President Carter wrote in March 26, 1979 clearly spelled out the agreement of Israel and Egypt in this regard. The letter recalled the conclusion of Camp David accord, signed at White House on September 17, 1978, the documents, 'A Framework for Peace in the Middle East agreed at Camp David' and 'Framework for the Conclusion of a Peace Treaty between Israel and Egypt.' With a view to attaining an effective peace settlement in consonance with such Frameworks the Israel and Egypt strived to go ahead with the implementation of those provisions in relation to the West Bank and the Gaza strip. They consented to start negotiations within a month after the exchange of the instruments of ratification of Peace Treaty. In consonance with the 'Framework for Peace in the Middle East' the Hashemite Kingdom of Jordan was also invited to participate in the negotiations. The Delegations of Egypt and Jordan was also to involve the Palestinians as mutually agreed upon. The motive of the negotiations was to agree before the elections on the modalities for establishment of elected self-governing authority, clearly spelling out its powers and responsibilities, and also to agree upon the related concerns. (Peace Treaty between Israel and Egypt -Attached Letters)

It has also been agreed upon that in case Jordan decides not to participate in the negotiations, the negotiations would be made by Israel and Egypt. The two governments unanimously agreed to persistently negotiate and in good faith to conclude such negotiations as soon as possible. The agreement was also made that the goal of the negotiations are the establishment of the self-governing authority in the West Bank and Gaza so as to promote complete autonomy or power to the inhabitants. The Israel and Egypt had fixed the goal of completion of the negotiations within a period of one year so as to make possible the conducing of elections as expeditiously as possible after the agreement between the parties. The self-governing authority was to be established within one month after conducting of elections that will initiate the transitional period of five years. It was agreed upon for a withdrawal of Israeli armed forces and there would be redeployment of the balance Israeli forces into particularly specified security locations. (Peace Treaty between Israel and Egypt -Attached Letters)

Recently, United States invited the representatives of the government of Israel and Egypt and with the involvement of the director general of the MFO to arrange trilateral consultations with regard to the organization, compositions and responsibility of the MFO. The delegations were led by Undersecretary to Defense Douglas J. Feith, Maj. Gen. Abou Bakr of Egypt and retired Maj. Gen. Amos Yaron of Israel. In the tripartite discussions the three sides unanimously agreed upon the historic and crucial role played by the MFO ever since the establishment of peace between Egypt and Israel and articulated appreciation for the contributions made by all participants in the MFO, particularly the U.S. Army. (Joint Statement on Multinational Force and Observers)

The United States assured, which has been recognized by Egypt and Israel, of its commitments to persistent support for Egyptian-Israeli peace and for the MFO as a force contributing to the wide goals of increasing the sustaining regional security and stability. All sides unanimously agreed upon the necessity of assuring the MFO to continue its mission in the most possible effective way. In this connection the parties consented to further make possible for expert level discussions to indicate as to how best to maintain the effectiveness of the MFO at the same time ensuring the involvement of the United States forces. Both the parties, Egypt and Israel revealed their comprehension about the competing requirements confronted by United States forces around the globe particularly in view of the war on terror. The governments of Egypt and Israel also agreed upon their appreciations to the Untied States for facilitating performance of such highly constructive consultations. (Joint Statement on Multinational Force and Observers)

3. What are the benefits that are being enjoyed by Egypt and Israel because of the MFO. Why has the MFO worked?

During 1981 MFO was created by Egypt and Israel with the support of United States as an independent, international organization with a view to supervising the security provisions of their 1979 peace treaty and eliminate violations. Both of them were quite aware of the magnitude of their mutual bitterness and hostility. They required a dependable mechanism to assist maintenance of peace and they realized that they could not attain the objective by themselves. The authorities of the director general instituted by the MFO protocol entailed legal protection to the MFO members. A robust mandate has been accorded to MFO by Egypt and Israel since they understood that a strong and independent third party was required to verify, clarify and more significantly to generate confidence between them. About 1700 soldiers from 11 nations presently supervise the checkpoints and regulate centers in Sinai and verify the treaty's demilitarization and regulated armaments regime. (Bring in the peacekeepers, post-pullout)

It envisages that a 15 member Civilian Observer Unit performing intrusive verification monitoring in Sinai and Israel along the border. It also envisaged a Coastal Patrol Unit consisting of three vessels in order to provide freedom of navigation via the Strait of Tiran. A special liason system assisted in eliminating crises that could stem out from the errors or misrepresentations. Both the parties could benefit from the key element that the MFO model ensured independence of its Director General who alone is empowered to indicate about the violations. He is deployed by the parties but is a non-aligned civilian American citizen recommended by United States. The Director General also ensures all implementation concerns, along with any violations and are handled by Israel and Egypt- never by a third party and never publicly. This concentrates on facts and analysis and eliminates public wrangling and posturing under pressure. (Bring in the peacekeepers, post-pullout)

The MFO has become a dynamic partner with Egypt and Israel in implementation of the treaty and related matters. The role of MFO in confirming the implementation of treaty is visualized to be effective. The confidence that it generated between the two nations sets illustration for implementation in other such international concerns. The MFO has also emphasized the ways that an effective peacekeeping operation can be a beneficial policy tool for the United States. The United States is also quite beneficial of the geopolitical advantages from the Egypt-Israel treaty. It has proved that there would have been no treaty in absence of credible peacekeeping operation and also confirms that there can be no peace keeping operations in absence of U.S. sponsorship and encouragement. (Bring in the peacekeepers, post-pullout)

Thus MFO originated in 1981, is functioning as a non-UN multinational peacekeeping force that has been quite detrimental in maintaining stability and peace between the two neighboring nations Egypt and Israel. Both the parties are benefiting from gaining the subsidies from United States in view of the concessions made by the parties during the negotiation. (A Half Century of U. S Peacekeeping efforts in the Middle East) The GAO report of 1995 revealed that the parties to the treaty and the U.S. government visualized the MFO as a comprehensive policy in assisting maintain peace and in reducing certain costs. However, it is seen that the State is essentially required to entail greater oversight as a result of lack of assurance in respect of sufficiency of internal controls. The report indicated that the MFO, unlike other international organizations does not have a formal board of directors or independent audit committee to supervise the audits. (GAO report number GAO-04-883 -entitled Peacekeeper: Multinational Force and Observers Maintaining)

The recommendations in 1995 involved the state to take steps to enhance its oversight by analyzing the annual financial statements for discrepancies and from the periodical performance of a separate audit of MFO internal regulations that State was to review. The States have been visualized to follow the recommendations however, except the analysis of the MFO's financial statements for discrepancies. State however, alleged to have been developed but not completely adhered to the operational and financial oversight responsibilities narrated in its guidelines for overseeing the MFO. Such oversight responsibilities incorporated evaluation of MFO financial practices performing oversight visits of MFO operations, deployment of staff for the civilian observers' unit. (GAO report number GAO-04-883 -entitled Peacekeeper: Multinational Force and Observers Maintaining)

4. MFO is worth repeating, it could be applied to an agreement between Israel and Palestinians

The phased withdrawal of Israel from Gaza during the revival of violence by Palestinian radicals is prone to fuel the debate on security arrangements. Israel is frightened for Gaza strip under Palestinian authority will act as a base of operation for terrorism against Israeli civilians. The Palestinians are threatened apprehending Gaza to become a prison, secluded from the West Bank and the needed Israeli market and jobs. They are also much bothered about the revengeful attacks by the Jewish settlers those were ousted forcible from the region. The roadmap for peace of President Bush in the Middle East advances with the pullout. However, it has become a matter of great concern to select a suitable security arrangement that can cater to the issues of both the sides. Israel is seen to have long defied accepting the third party involvement in its concern of security. (Bring in the peacekeepers, post-pullout)

On the other hand the Palestinians have long been coveted for UN or foreign peacekeepers. In 1997, international peace monitors were accepted by Israel unwillingly in Hebron and complained about several UN operations in Palestinian territories. This is considered the appropriate time to think of the existence of outside peacekeepers to maintain peace and generate confidence in such process. The Multinational Force and Observers --MFO are considered to be an effective success story worth repeating in such context. In view of the lessons from Israel, the U.S. administration is not in favor of active participation in any peacekeeping process for Israel and Palestine. Moreover, they are much concerned about the force availability and American troops once again being put into trouble. (Bring in the peacekeepers, post-pullout)

However, the peacekeeping in lines with the MFO model could dispel the concerns of U.S. when Israel and even a proto-Palestine find it mutually advantageous. United States is the essential and prime ingredient of the MFO. And strengthened American participation would be essential for any Israeli-Palestinian peacekeeping agreement, and Israel would not have it any other way. The MFO also emphasizes an effective peacekeeping operation that can be an essential policy tool for the United States. The confidence it generated between the two parties makes the MFO model an illustration worth considering for the Israeli-Palestinian agreement. However, it should be noted that the MFO has to fulfill the role of one a peacekeeper and not a peace maker. The responsibility of maintaining still rests with Israel and Palestinian. (Bring in the peacekeepers, post-pullout)

5. MFO style peace enforcement could keep the peace between the two parties, the Palestinians and Israelis

The first phases of the belligerent Israeli-Palestinian conflict that broke out in September 2000, the Israeli defense establishment confirmed that the violence was a planned move by the Palestinian leadership with the objective of compelling the Israel to surrender. It has been observed that even though the Palestinians are considered weaker in comparison to the Israel from the military point-of-view, they have two important objectives in using violence to manipulate the course of events to their advantage. The first is their view of Israel's softness that is on the Israeli public's inability to resist considerable losses. The second one is to force the internationalization of the conflict that will attract the international community to interfere and devise a solution. The failure of both the objectives coupled with a heavy cost incurred by Palestinians led the Palestinian diplomats to think of the halting of the violence and it turn to resume the political process. (International Forces in an Israeli-Palestinian Agreement)

The MFO style enforcement as a strategy of jobs for peace is beginning in Gaza that is foreseen to maintain the peace between the two parties, the Palestinians and Israelis. Port Mefta, the acronym for Middle East Free Trade Area, is considered to be a free trade zone for tourist and gambling instituted during the current year between Deir El Balah and Gush Katif embodying Kafar Darom under the administration and policing of the U.S. -led Multinational Force and Observers that keeps a watch in the Sinai. The Israel Government is most interested in Port Mefta that is followed by a non-militarized democratic Palestine in 80% of the peaceful Gaza Strip when voted for by the Palestinian Legislative Council. An MFO administered Gaza Mefta is expected to be instituted in 2007 consisting of Port Mefta, Gush Katif, the Philadelphi Route and Dhaniya airport after the termination of Israeli occupation and regulation of the entire Gaza strip, ensuring full employment for Gazans and the re-establishments of Gaza refugees. (Middle East Free Trade Area (Mefta) Business Peace Plans)