Established in 1948 following the Arab–Israeli War, the United Nations Truce Supervision Organization (UNTSO) was created to supervise the end of hostilities in Palestine. It was the first-ever peacekeeping operation established by the United Nations (UN) and is ongoing. UNTSO military observers remain in the Middle East to oversee ceasefire and armistice agreements and to reduce tensions. UNTSO operates across 5 countries: Egypt, Israel, Jordan, Lebanon and Syria. UNTSO personnel also support other UN operations in the Middle East. Australia has contributed peacekeepers to UNTSO since 1956. It’s Australia's longest single peacekeeping commitment. We recognise and remember some 700 Australians to date who have served as peacekeepers in the Middle East with UNSTO.
A long history of conflict
Throughout history, Palestine has been ruled by a succession of foreign powers. Palestine was part of the Ottoman Empire from about 1517 to 1917, and some parts of the country were not taken by the British until 1918.
After World War I, the League of Nations approved the United Kingdom (UK) to administer Palestine. The British Mandate was in place from 1920 to 1948.
During this time, a large number of Jewish people moved to the region. Many of them were fleeing persecution in Europe. The mandate supported this migration, although many Jewish people found it difficult to get an immigration certificate because the British placed limits on Jewish people purchasing land.
The Palestinians, the Arab inhabitants of Mandatory Palestine, rebelled against British rule from 1936 to 1939, but the British suppressed their efforts.
First Arab–Israeli War
In 1947, after World War II, the UN proposed to partition Palestine, creating an Arab state and a Jewish state.
Palestinian Arabs and the surrounding Arab states rejected the plan. They were unwilling to accept any form of territorial division because it violated the principles of national self-determination in the UN Charter.
A civil war between the Arab and Jewish communities of Palestine began to escalate. On 14 May 1948, the British Mandate expired, and the UK relinquished control of Palestine. On the same day, the state of Israel was proclaimed.
Palestinian Arabs and a military coalition of Arab states opened hostilities against Israel the next day – 15 May 1948. The escalated conflict became the first Arab–Israeli War.
Supporting stability in the Middle East
Fighting continued for months before a ceasefire was established. Israel captured territory that was proposed for the Palestinian state. Over 700,000 Palestinian Arabs either fled or were evicted from their homeland.
The 4-week ceasefire was overseen by a UN mediator. Military observers were drawn from Belgium, France, the United States (US) and Sweden. The UN mediated a series of general armistice agreements between Israel and Egypt, Jordan, Lebanon and Syria.
This United Nations flag was collected by Major Dean Herbert of the Australian Army, while serving with the United Nations Truce Supervision Organization (UNTSO) in 1997. It flew over Observation Post 71 and was withdrawn from use after it was worn out by the extremes of climate in the region. AWM REL31738
United Nations Truce Supervision Organization
In mid-August 1949, the UN military observers became an independent mission known as the United Nations Truce Supervision Organization (UNTSO). They remained in Palestine to supervise the armistice agreements between Israel and its Arab neighbours. These temporary agreements were the basis of a fragile truce in the area for many years.
UNTSO operates across 5 countries: Egypt, Israel, Jordan, Lebanon and Syria. The UNTSO headquarters is in Jerusalem, Israel.
Military observers with UNSTO are unarmed. They observe and report ceasefire violations and other issues relevant to their areas of operation. All military observers are officers holding the equivalent ranks of captain or major, coming from all branches of the armed forces.
UNTSO is also staffed by a skilled team of local and international civilians. These employees work in headquarters, mission support and security. Some are language assistants who go out on patrol with peacekeepers.
At Operation One on the Golan Heights in Israeli Occupied Syria in 1968. Operation One was part of the United Nations Truce Supervision Organization (UNTSO). From left to right: Lieutenant Colonel Keith D Howard (Australia) – Officer in Charge of UN Control Centre in this area; Captain WJ Skinner (Canada), UN Military Observer; Major N Suonsen (Denmark) UN Military Observer; Captain Benny Barak (Israeli Army), Liaison Staff; Major WJ Hall (Canada), Operations Officer at UN Control Centre in the area. AWM P12750.006
Operation Paladin
As tensions flared between Israel and Egypt, UNTSO needed to recruit more military observers. By 1956, Denmark, Canada and New Zealand had already joined the mission. Australia, recently re-elected to the UN Security Council, decided to join them.
Australia sent 4 observers in early July 1956. The operation was codenamed Operation Paladin. Australians have been part of UNTSO ever since.
Major General Ian Gordon, Head of Mission, United Nations Truce Supervision Organization (UNTSO), with Lieutenant Colonel Andrew Meadham, Commanding UNTSO's Observer Group Lebanon. Gordon was inspecting the memorial to the 4 UN military observers killed at Patrol Base Khiam during the conflict in 2006 between Israel and Lebanese forces in southern Lebanon. AWM P11633.004
The first 4 Australian observers appointed to UNTSO were all veterans of World War II. They also had been, or still were, officers with the Citizen Military Forces after the war.
Major Archibald Cameron Carter DSO served with the 2/12th Field Regiment in World War II. He was made a Companion of the Distinguished Service Order (DSO) for his action at El Alamein, where he was injured. Carter was working as an observer with the first United Nations Emergency Force (UNEF I) in Sinai. He transferred to UNSTO and served there for nearly 2 years.
Major John Connell was doing liaison work for UNEF I in Cyprus. He transferred to UNSTO for more than 3 years.
Captain Basil Lott transferred to UNSTO for more than 3 years. He was part of a team of UNTSO observers trying to broker a local ceasefire on Mt Scopus in Jerusalem in 1958. When fighting broke out, Canadian Lieutenant Colonel George Flint was injured. Lott crawled to within 20 m of Flint but was unable to save him due to sniper fire.
Captain Harold Simmonds had previous experience as a military observer in Kashmir with the United Nations Military Observer Group in India and Pakistan (UNMOGIP). He was doing liaison work for UNEF I in Jerusalem when he transferred to UNSTO for more than 4 years.
Since that first deployment in 1956, the ADF has continued to support UNSTO through Operation Paladin.
The usual period of service for ADF officers with UNTSO is 12 months. On location, they spend several days at a time on an observation post or patrol base. They observe and patrol with an observer from another contributing country.
To date, 3 Australians have commanded UNTSO as Chief of Staff:
- Lieutenant Colonel Keith Howard acted in the role in 1975
- Major General Tim Ford from 1998 to 2000
- Major General Ian Gordon from 2006 to 2008.
Formal portrait of Lieutenant Colonel Keith Howard. AWM P12750.008
Lieutenant Colonel Howard, who spent about 10 years in the Middle East with his wife, Joan, reflected on his military service:
I've, I think, achieved something, I've contributed to the wellbeing of various groups of people, I've been able to do this with the wonderful support of my wife and my family who have to some degree participated in the pleasures and the dangers and the excitements – so it's been a wonderful family life.
[Lieutenant Colonel Keith Howard quoted in Control: Stories of Australian peacekeeping and humanitarian operations, Department of Veterans' Affairs, 2019.]
Decades of conflict
Since 1948, further conflict in the region has changed UNTSO’s structure and role. Military observers still work to prevent major conflicts from arising.
Suez Crisis (second Arab–Israeli War)
On 26 July 1956, Egypt nationalised the internationally owned Suez Canal Company. It also closed the canal to Israeli shipping. In response, Israel invaded Egypt on 29 October and took control of the Sinai Peninsula, which borders the Suez Canal. A few days later, British and French troops landed in the Suez Canal Zone in support of Israel.
UNTSO's Chief of Staff, Canadian Major General Edson Burns, called for a ceasefire and the withdrawal of Israeli forces. However, Britain and France voted against a UN General Assembly resolution calling for Israel's withdrawal. Australia also voted against the resolution, in support of Britain.
On 4 November 1956, the UN General Assembly voted to set up what became the UNEF. The peacekeeping force was established to secure and supervise the cessation of hostilities. It was armed for self-defence.
Major General Burns was appointed as UNEF's Chief of the Command. A selected group of UNTSO observers, including Australians, began planning the organisation of the new force.
British and French forces left the Suez Canal Zone by 22 December 1956. Israeli forces withdrew by 8 March 1957.
Six-Day War (third Arab–Israeli War)
In 1967, tension in the region was rising.
Egypt closed the Straits of Tiran to Israel and ordered all UN forces to withdraw from the Sinai. Egyptian military mobilised along the border with Israel.
On 5 June 1967, Israel launched an air strike against Egypt. It destroyed almost the entire Egyptian Air Force. Israel invaded and took control of the Sinai Peninsula. Israel also seized the Golan Heights from Syria and the West Bank from Jordan.
On 11 June 1967, Israel signed a ceasefire with Egypt, Jordan and Syria.
The United Nations Truce Supervision Organization (UNTSO) has its headquarters in Jerusalem, Israel. This was the view from the top floor of UNTSO's Jordan–Israel Mixed Armistice Commission (HJK-I-MAC) headquarters as Israeli forces firebombed the Augusta-Victoria ridge with napalm on the third day of the Six-Day War. Photographed by Roy Skinner on 7 June 1967. AWM P06184.004
The Six-Day War forced UNTSO out of its headquarters in Jerusalem and many of its observation posts were evacuated.
During the conflict, an Irish UNTSO observer was killed and flying debris injured an Australian on his first day with UNTSO, Major Keith Howard. Howard had voluntarily taken a reduction in rank (from colonel to major) to serve with UNTSO.
The scene of destruction which met our eyes was appalling – cars, trucks ablaze and shattered by gunfire – the walls of G.H. splintered and holed, outbuildings wrecked, and the gardens a shambles.
[Major Keith Howard, quoted in Bryce Abraham, 'Something of a nightmare': Observing the Six Day War, Australian War Memorial, 6 October 2021.]
Three Jordanian Army vehicles destroyed on the first day of the Six-Day War in the grounds of the United Nations Truce Supervision Organization (UNTSO) headquarters in Jerusalem. Photographed by Roy Skinner on 15 June 1967. The headquarters is located between the 2 Armistice Demarcation Lines. AWM P06184.008.
After the war, UNTSO faced immense challenges. The boundary lines the observers monitored had changed. Israel no longer recognised the 4 general armistice agreements signed in 1948. For the previous 19 years, these agreements had been at the centre of UTNSO’s operations.
Despite the changes, UNTSO remained to observe and maintain the ceasefire. UNTSO’s main task for the next 6 years was to observe the lines where Israel faced off with Syria (in the Golan Heights) and Egypt (across the Suez Canal).
By 1972, UNTSO had 36 new observation posts along the Suez Canal, in the Golan Heights and in southern Lebanon.
The El Nakhl Outpost in 1984, one of the compounds occupied by military observers serving with Observer Group Egypt, part of United Nations Truce Supervision Organization (UNTSO). The observers were charged with the task of ensuring that Egyptian and Israeli forces in the area kept apart and did not shoot at each other. UNTSO observers lived and worked in the building. AWM P01779.005
An Australian, Major Roy Edwin Skinner, played a key role along the Suez Canal. While commanding the Kantara Control Centre, Skinner was responsible for setting up a string of observation posts along the east bank of the canal. He was also tasked with establishing operating procedures for the area. Fighting was still going on when he arrived in Egypt. He was regularly involved in negotiating ceasefires as fighting repeatedly broke out up and down the canal.
Australia’s involvement in UNTSO increased after the Six-Day War. From 1960 to 1966, 8 Australian officers served in UNTSO. Then from 1967 to 1973, 14 Australian officers served in UNTSO.
Major Roy Skinner (left) talks with the Israeli Defence Minister, General Moshe Dayan (centre), about the United Nations imposed ceasefire between Egyptian and Israeli forces at the Kantara (Qantara) Control Centre. Photographed by David Rubinger on 1 July 1967. Skinner was seconded to the United Nations Truce Supervision Organization (UNTSO) in Palestine from 1967 to 1969. AWM P06184.053
Yom Kippur War (fourth Arab–Israeli War)
On 6 October 1973, Egyptian and Syrian forces launched a surprise attack against Israel. On the Jewish holy day of Yom Kippur, they crossed their respective ceasefire lines in the Sinai Peninsula and Golan Heights. Troops from Iraq, Jordan and Saudi Arabia, and Palestinian guerrillas from Lebanon, also joined the fighting.
Egyptian and Syrian forces had early successes in the war, but then met strong Israeli resistance.
At observational posts in the Golan Heights, the Syrian attack caught UNTSO observers by surprise. Some, including Australians, remained trapped at their posts for the whole war.
In a letter to a friend, Keith Howard described the action at one observational post.
As the attack began, all hell descended on the Israeli line, including, of course, our OPs [observation posts]. OP1 received some of the first salvo, and the porta-camp [sic] and observation trailer went up in a flaming inferno immediately, almost incinerating the UNMOs [United Nations Military Observers] … who had rushed into the shelter in their swimming trunks. Without any other clothing, no bedding and on C rations only, these two fellows repaired the completely destroyed antenna system, got the damaged battery charger back into operation – and regained a weak radio contact which they maintained day and night – under bitter weather conditions – with a continuous flow of significant reports for 7 days, while under heavy fire, tank battles all around them and Syrian soldiers back and forth outside their walls. A meritorious performance.
[Londey, Peter; Crawley, Rhys; Horner, David (2020). The Long Search for Peace: Volume 1, The Official History of Australian Peacekeeping, Humanitarian and Post-Cold War Operations. Cambridge University Press. Kindle Edition.]
A UN-imposed ceasefire took hold on 22 October 1973.
In the Sinai, the UN Security Council moved to establish a new United Nations Emergency Force (UNEF II).
Tensions quickly eased. In the Golan, UNTSO observers returned to their observation posts where possible.
After an initial period of calm, daily exchanges of artillery fire and air attacks resumed. Travel around the area became dangerous for observers and observational posts were again damaged.
Following negotiations with Israel and Syria, the UN Disengagement Observer Force (UNDOF) was established. Like UNEF II, the force would be armed for self-defence.
UNTSO personnel were reorganised into observer groups attached to UNEF II and UNDOF.
Captain John Robbs, Royal Australian Infantry, looking out from the observation platform of Observation Post No 31 in Golan Heights, Syria, in January 1984. He is using a powerful binocular telescope. Robbs was serving as a military observer with United Nations Truce Supervision Organization (UNTSO), which was charged with the task of ensuring that Israeli and Syrian forces kept apart and did not shoot at each other. AWM P01779.003
Continued instability and change
By the end of the 1980s, UNTSO and Australian observers had a well-established routine of observation and patrols.
Throughout the 1990s and 2000s, regional stability was threatened by a series of conflicts, including:
- the Gulf War from 1990 to 1991
- the Second Intifada from 2000 to 2005, a major Palestinian uprising against Israel
- ongoing fighting in southern Lebanon along the Israeli border
- the 2001 September 11 attacks in the US
- the Iraq War from 2003 to 2011
- the Lebanon War of 2006.
These threats affected UNTSO and Australian observers. Despite initially being a peacetime operation, continued instability presented potential danger. The families of observers were, at times evacuated. In 2002, the conditions of service in Operation Paladin were changed from 'peacetime operation' to 'non-warlike service'.
Female observers
The types of people allowed to serve in UNTSO also changed. For many years, Australian military leaders disagreed about whether women should be deployed to UNTSO. In January 2000, Major Kath Stewart became the first Australian woman to serve with UNTSO. She was soon joined by Captain Natasha Fox. They served together in the Observer Group Lebanon as an all-female patrol.
Observer groups
UNTSO provides military observers to 3 different UN missions in the Middle East:
- Observer Group Lebanon (OGL) – supporting the United Nations Interim Force in Lebanon (UNIFIL) in southern Lebanon
- Observer Group Golan (OGG) – supporting UNDOF in the Golan Heights
- Observer Group Egypt (OGE) in the Sinai Peninsula.
UNTSO observers assure those in the region that the international community is watching and is there to help end fighting when it does break out.
A United Nations vehicle parked in front of Headquarters of Observer Group Golan in Tiberius, Israel, photographed on 11 August 1985. Observer Group Golan was part of the United Nations Truce Supervision Organization (UNTSO). AWM P01755.004.
Other missions in the region
UNTSO personnel have been called on to support UN operations in other areas of the Middle East. Their ability to quickly deploy to a new operation has helped these missions succeed.
Australian UNTSO personnel have been or can be called on to serve with other missions in the region.
UN Observer Group in Lebanon (UNOGIL)
UNOGIL was formed in 1958 amid a civil war in Lebanon. Its role was to ensure that there was no illegal infiltration of personnel or supply of arms or other material across the Lebanese borders. After the conflict was settled, tensions eased, and UNOGIL was withdrawn.
Australian members of UNTSO were seconded to serve in UNOGIL and were unarmed.
UN Yemen Observation Mission (UNYOM)
In July 1963, UNYOM was established in response to a civil war in Yemen. After initially supporting the war, Saudi Arabia and the United Arab Republic (now Egypt) agreed to disengage. UNYOM’s role was to observe compliance with the agreement.
UNYOM peacekeepers were deployed to Jizan and Najran in Saudi Arabia and Sa'dah and Al Hudaydah in Yemen. Two Australians, Major Norman James and Major George Doughty, were drawn from UNSTO to serve with UNYOM from July to November 1963.
United Nations Disengagement Observer Force (UNDOF)
UNDOF was formed in 1974 following the Yom Kippur War. Its role was to monitor the ceasefire and disengagement of Israeli and Syrian forces in the Golan Heights.
Six countries have contributed forces to UNDOF, which is still operating. Australia is not a troop-contributing country, but Australian UNTSO observers may be allotted to UNDOF.
Captain John Robbs, Royal Australian Infantry, a military observer serving with United Nations Truce Supervision Organization (UNTSO), standing on the wall of the observation platform of Observation Post No 71 in Golan Heights, south-western Syria, in January 1984. Peacekeeping observers with UNTSO were charged with the task of ensuring that Israeli and Syrian forces kept apart and did not shoot at each other. AWM P01779.004.
United Nations Interim Force in Lebanon (UNIFIL)
UNIFIL was set up in 1978 following Israel’s invasion of Lebanon. Its role was to confirm Israel's withdrawal from Lebanon, restore international peace and security and assist the Lebanese government in restoring its effective authority in the area.
Australia is not a troop-contributing country, but it did supply the arms and ammunition for the Fijian contingent. Australian UNTSO observers may be allotted to UNIFIL.
Lieutenant Colonel Paul Symon, the senior Australian observer with United Nations Truce Supervision Organization (UNTSO), trying to identify the target of some distant shelling. Photographed by Peter Londey on 20 October 1997. Symon is standing at a spot overlooking the Litani River near the village of Deir Mimess in the Israeli Controlled Area of southern Lebanon. At the time, he was attached to the Observer Group Lebanon (OGL), part of UNTSO. AWM P03530.004
Commemoration
One Australian has died serving with UNTSO.
On 12 January 1988, Captain Peter McCarthy was on patrol with a Canadian observer in southern Lebanon. Their jeep hit a landmine while driving down a hill overlooking the Mediterranean Sea. McCarthy was killed and the Canadian soldier was seriously injured. McCarthy was posthumously awarded the Returned and Services League of Australia Anzac Peace Medal.
Captain Peter McCarthy at a briefing in Lebanon in about 1986. McCarthy is looking at an Observer Group map of Lebanon. As an observer with the United Nations Truce Supervision Organization (UNTSO), McCarthy was attached to the Observer Group Lebanon (OGL). AWM P03512.001
National Peacekeepers' Day
On 14 September each year, we observe National Peacekeepers' Day. It's the anniversary of the day Australia became the world's first peacekeepers to deploy into the field, in the Netherlands East Indies (now Indonesia) in 1947. It’s a day to recognise the important work of those who have served, and continue to serve, in the name of global peace.
Learn more about Australia's peacekeeping missions since 1947.
International Day of UN Peacekeepers
29 May is a day of commemoration and acknowledgement of all military, police and civilian personnel who have served as peacekeepers with the UN. Since UN peacekeeping began, more than 4,000 peacekeepers from many countries have lost their lives while performing their duties under the UN flag.
Transcript
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Glossary
- ceasefire
- mandate
- military observer
- peacekeeper
- truce