Concept of Operations for the Harmonized Plan for Neutralization of the FDLR and Disengagement of Forces/Lifting of Defensive Measures of Rwanda

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Country/entity: Democratic Republic of Congo
Rwanda
Region: Africa (excl MENA)
Agreement name: Concept of Operations for the Harmonized Plan for Neutralization of the FDLR and Disengagement of Forces/Lifting of Defensive Measures of Rwanda
Date: 12 Oct 2024
Agreement status: Multiparty signed/agreed
Interim arrangement: Yes
Agreement/conflict level: Interstate/intrastate conflict(s)
Congo Civil Wars (1996 - )
The overthrow of the long-term dictator Mobutu Sese Seko by a rebel Tutsi army backed by Uganda and Rwanda in 1997 acted as a catalyst for a war with regional dimensions, mainly fought in the eastern Kivu provinces. The conflict escalated in 1998, when President Laurent Kabila, then backed by Zimbabwean and Angolan troops, ordered Rwanda and Uganda to leave. After Kabila’s assassination in 2001, his son Joseph took over the presidency and won in the 2006 democratic elections.

In the eastern provinces, Tutsi-led militias, mainly organised in the National Congress for the Defense of the People (CNDP), fought the remnants of the Rwandan Hutu force FDLR, with further involvement of Rwandan and Ugandan troops. Other regionally operating militia groups, like the Lord’s Resistance Army from Northern Uganda, the so-called Mai Mai groups or guerrilla outfits like the March 23 Movement (M23) further contributed, and still contribute, to the complexity of the situation in eastern DRC.

Following Joseph Kabila's departure in 2019, his successor Félix Tshisekedi faced renewed instability as the M23 rebel group, dormant since 2013, resumed operations in late 2021 with substantial Rwandan support. In January 2025, M23 forces backed by Rwandan troops captured the regional capital Goma in the most serious escalation since the Second Congo War. This prompted U.S. mediation under President Trump, leading to talks in Qatar in March 2025 and a preliminary peace agreement signed in Washington on June 27, 2025. The Washington Accords were formally signed by Presidents Tshisekedi and Kagame on December 4, 2025, committing Rwanda to withdraw troops and cease M23 support while the DRC pledged to neutralize the FDLR and establish regional economic integration with significant U.S. commercial involvement. However, fighting continues as of late 2025, with both sides accused of violating commitments.
Stage: Implementation/renegotiation
Conflict nature: Government/territory
Peace process: DRC: the Doha Track for Eastern DRC
Parties: FOR THE GOVERNMENT OF THE DEMOCRATIC REPUBLIC OF THE CONGO
Thérèse Kayikwamba Wagner

FOR THE GOVERNMENT OF THE REPUBLIC OF RWANDA
Olivier Nduhungirehe
Third parties: Witnessed by:

THE GOVERNMENT OF THE UNITED STATES OF AMERICA

Marco Rubio
Description: The Peace Agreement Between the Democratic Republic of the Congo and the Republic of Rwanda (June 27, 2025) is a bilateral peace accord addressing territorial integrity, armed group neutralization, security cooperation, refugee return, economic integration, and implementation mechanisms between the two states. Appendix A incorporates the Concept of Operations (CONOPS) for the Harmonized Plan for Neutralization of the FDLR and Disengagement of Forces/Lifting of Defensive Measures by Rwanda, which was originally developed on October 31, 2024, through the Luanda Process facilitated by Angola Thus appendix predates the main peace agreement by eight months. While the CONOPS contains detailed military operational plans (phases, timelines, logistics) that function as implementation modalities, it also includes substantive peace commitments on security guarantees, force withdrawal, refugee return, reconciliation measures, anti-discrimination guarantees, and others that are coded as peace agreement provisions within the PA-X framework. The signatories for this agreement are the same as for the main agreement from these talks.

Agreement document: CD_241012_Concept of Operations (opens in new tab) | Download PDF
Source of document: https://www.state.gov/peace-agreement-between-the-democratic-republic-of-the-congo-and-the-republic-of-rwanda/

Groups

Children/youth: No specific mention.
Disabled persons: No specific mention.
Elderly/age: No specific mention.
Migrant workers: No specific mention.
Racial/ethnic/national group: No specific mention.
Religious groups: No specific mention.
Indigenous people: No specific mention.
Other groups: No specific mention.
Refugees/displaced persons: Groups→Refugees/displaced persons→Rhetorical
Strategic Objectives
...
— Ensure the return of displaced people to their places of origin;
...
Mission
The DRC:
...
— Protect the population and ensure the return of displaced persons to their places of origin;
Groups→Refugees/displaced persons→Substantive
Desired Final End State
...
— Congolese refugees are repatriated and resettled in the DRC, and Rwandan refugees are repatriated and resettled in Rwanda;
Social class: No specific mention.

Gender

Women, girls and gender: No specific mention.
Men and boys: No specific mention.
LGBTI: No specific mention.
Family: No specific mention.

State definition

Nature of state (general): No specific mention.
State configuration: No specific mention.
Self determination: No specific mention.
Referendum: No specific mention.
State symbols: No specific mention.
Independence/secession: No specific mention.
Accession/unification: No specific mention.
Border delimitation: No specific mention.
Cross-border provision: No specific mention.

Governance

Political institutions (new or reformed): No specific mention.
Elections: No specific mention.
Electoral commission: No specific mention.
Political parties reform: No specific mention.
Civil society: No specific mention.
Traditional/religious leaders: No specific mention.
Public administration: No specific mention.
Constitution: No specific mention.

Power sharing

Political power sharing: No specific mention.
Territorial power sharing: No specific mention.
Economic power sharing: No specific mention.
Military power sharing: No specific mention.

Human rights and equality

Human rights/RoL general: Political Objectives
...
2.3. Ensure lasting peace and stability in the region as well as respect for human rights;
Bill of rights/similar: No specific mention.
Treaty incorporation: No specific mention.
Civil and political rights: No specific mention.
Socio-economic rights: No specific mention.

Rights related issues

Citizenship: No specific mention.
Democracy: No specific mention.
Detention procedures: No specific mention.
Media and communication: Rights related issues→Media and communication→Other
Political Objectives
...
2.5. End hate speech and verbal attacks;
Mobility/access: No specific mention.
Protection measures: Rights related issues→Protection measures→Protection of civilians
IMPLEMENTATION OF CONOPS
...
The countries will be responsible for providing logistical support, including:
...
Stigmatization of certain communities (mitigation measures: campaign to promote national cohesion, zero tolerance for all stigmatization);
Other: No specific mention.

Rights institutions

NHRI: No specific mention.
Regional or international human rights institutions: No specific mention.

Justice sector reform

Criminal justice and emergency law: No specific mention.
State of emergency provisions: No specific mention.
Judiciary and courts: No specific mention.
Prisons and detention: No specific mention.
Traditional Laws: No specific mention.

Socio-economic reconstruction

Development or socio-economic reconstruction: Socio-economic reconstruction→Development or socio-economic reconstruction→Socio-economic development
Political Objectives
...
2.2. Create a safe and secure environment that promotes the renewal of socioeconomic activities;
National economic plan: No specific mention.
Natural resources: No specific mention.
International funds: No specific mention.
Business: No specific mention.
Taxation: No specific mention.
Banks: No specific mention.

Land, property and environment

Land reform/rights: No specific mention.
Pastoralist/nomadism rights: No specific mention.
Cultural heritage: No specific mention.
Environment: No specific mention.
Water or riparian rights or access: No specific mention.

Security sector

Security Guarantees: Political Objectives
2.1. Re-establish a climate of trust between the DRC and Rwanda through the neutralization of the FDLR by the DRC and the disengagement of forces/removal of defensive measures by Rwanda;
2.2. Create a safe and secure environment that promotes the renewal of socioeconomic activities;
...
2.4. Ensure protection of all citizens in both countries;
...
Strategic Objectives
...
— Protect the local population and infrastructures;
...
Desired Final End State
...
— Trust between the DRC and Rwanda is reestablished;
...
Mission
The DRC:
...
— Guarantee the conditions for lasting peace and stability in the Great Lakes subregion;
— Protect the population and ensure the return of displaced persons to their places of origin;
...
IMPLEMENTATION OF CONOPS
Concept of Operations (CONOPS):
...
(g) Cessation of sporadic cross-border operations by Rwanda
...
(b) Lifting of Rwanda's defensive measures and halting sporadic cross-border operations;
(c) Jointly evaluating implementation of the plan for disengagement and the lifting of Rwanda's defensive measures;
...
(b) Strengthening trust and a peaceful environment between the DRC and Rwanda;
Ceasefire: No specific mention.
Police: No specific mention.
Armed forces: No specific mention.
DDR: Security sector→DDR→DDR programmes
Mission
...
Rwanda:
...
— Ensure the social reintegration of demobilized FDLR ex-combatants repatriated to Rwanda;
IMPLEMENTATION OF CONOPS
Concept of Operations (CONOPS):
...
(a) Demobilization, repatriation, and reintegration of FDLR ex-combatants;
Intelligence services: No specific mention.
Parastatal/rebel and opposition group forces: Political Objectives
2.1. Re-establish a climate of trust between the DRC and Rwanda through the neutralization of the FDLR by the DRC and the disengagement of forces/removal of defensive measures by Rwanda;
Withdrawal of foreign forces: Political Objectives
2.1. Re-establish a climate of trust between the DRC and Rwanda through the neutralization of the FDLR by the DRC and the disengagement of forces/removal of defensive measures by Rwanda;
...
Desired Final End State
...
— Rwanda's defense measures are lifted;
...
IMPLEMENTATION OF CONOPS
Concept of Operations (CONOPS):
...
(c) Jointly evaluating implementation of the plan for disengagement and the lifting of Rwanda's defensive measures;
...
(b) Joint evaluation by the DRC and Rwanda of activities related to lifting the defensive measures taken by Rwanda;
Corruption: No specific mention.
Crime/organised crime: No specific mention.
Drugs: No specific mention.
Terrorism: No specific mention.

Transitional justice

Transitional justice general: No specific mention.
Amnesty/pardon: No specific mention.
Courts: No specific mention.
Mechanism: No specific mention.
Prisoner release: No specific mention.
Vetting: No specific mention.
Victims: No specific mention.
Missing persons: No specific mention.
Reparations: No specific mention.
Reconciliation: No specific mention.

Implementation

UN signatory: No specific mention.
Other international signatory: Appendix A
Referendum for agreement: No specific mention.
International mission/force/similar: No specific mention.
Enforcement mechanism: IMPLEMENTATION OF CONOPS
...
Operations carried out in several phases as follows:
...
The Ad Hoc Verification Mechanism will ensure the above activities are monitored.

Appendix A

CONCEPT OF OPERATIONS

FOR THE HARMONIZED PLAN FOR NEUTRALIZATION OF THE FDLR AND

DISENGAGEMENT OF FORCES/LIFTING OF

DEFENSIVE MEASURES OF RWANDA

Reference:

Ministerial Meeting held in Luanda on October 12, 2024

Activities and responsibilities defined at the meetings of experts in Luanda on August 7-8, in Goma on August 19, and in Rubavu on August 29-30.

Context

1.1. Relations have been strained between the DRC and Rwanda for nearly three decades, leading to mutual accusations following the actions taken by armed groups in eastern DRC.

1.2. The African Union appointed the President of the Republic of Angola, His Excellency João Manuel Gonçalves Lourenço, the AU Champion for Peace and Reconciliation in Africa, to facilitate dialogue between the DRC and Rwanda and play an important role in deescalating tensions in eastern DRC.

1.3. A series of ministerial meetings was held between the foreign ministers of the DRC and Rwanda in Luanda beginning on March 21, 2024, and were facilitated by their Angolan counterpart.

The fifth and final meeting was held on October 12, 2024, to examine the harmonized plan for the neutralization of the FDLR and the disengagement of forces, and the review of Rwanda's defensive measures adopted by the three countries intelligence experts in Rubavu on August 29 and 30, 2024.

1.4. On October 12, 2024, the fifth ministerial meeting on security and peace in eastern DRC was held in Luanda, Angola and addressed the following:

— Respect for the ceasefire of August 4, 2024;

— The harmonized plan for the neutralization of FDLR and the disengagement of forces, and the review of Rwanda's defensive measures (Harmonized Plan);

1.5. The meeting held on October 12, 2024 tasked the facilitators with preparing a Concept of Operations (CONOPS) for neutralization of the FDLR and a review of Rwanda's defensive measures, while taking into account concerns raised by all parties.

Intelligence experts were to examine the CONOPS at their meeting on October 30-31, 2024, prior to a further Ministerial Meeting to consider the experts' report on the CONOPS.

1.6. The proposed plan describes a sequence of activities to be undertaken, respectively, by the FARDC and the RDF, for the neutralization of the FDLR and the review of Rwanda's defensive measures.

It emphasizes close coordination between the FARDC and the RDF, with support from the Angola-led Ad Hoc Verification Mechanism, to complete the mission.

Political Objectives

2.1. Re-establish a climate of trust between the DRC and Rwanda through the neutralization of the FDLR by the DRC and the disengagement of forces/removal of defensive measures by Rwanda;

2.2. Create a safe and secure environment that promotes the renewal of socioeconomic activities;

2.3. Ensure lasting peace and stability in the region as well as respect for human rights;

2.4. Ensure protection of all citizens in both countries;

2.5. End hate speech and verbal attacks;

Strategic Objectives

— Defeat the FDLR armed group and its supporters;

— Protect the local population and infrastructures;

— Ensure the return of displaced people to their places of origin;

— Maintain control of natural-resource use sites;

Desired Strategic Military Outcomes

— De-escalation of armed conflicts in eastern DRC;

— Safe areas and population centers;

— Safe populations;

— Free circulation of people and goods;

— Lowered tension between the DRC and Rwanda;

Desired Final End State

— The threat of the FDLR in the DRC is eradicated;

— Rwanda's defense measures are lifted;

— The State's authority is reestablished;

— Trust between the DRC and Rwanda is reestablished;

— Congolese refugees are repatriated and resettled in the DRC, and Rwandan refugees are repatriated and resettled in Rwanda;

— Peace, stability, and development are reestablished in eastern DRC, and the two countries become good neighbors again;

Preconditions for Success

— Intelligence management;

— Improved coordination between the different forces in the Ops theater;

— Close collaboration between different stakeholders in the Ops theater;

— Support from the regional and international communities;

— Effective influence operations;

— Raising awareness among the population about disassociating from the FDLR;

Mission

The DRC:

— Neutralize the FDLR;

— Promote the repatriation of FDLR members to Rwanda;

— Guarantee the conditions for lasting peace and stability in the Great Lakes subregion;

— Protect the population and ensure the return of displaced persons to their places of origin;

Rwanda:

— Disengage forces/ lift the defense measures put in place by Rwanda;

— Ensure the social reintegration of demobilized FDLR ex-combatants repatriated to Rwanda;

IMPLEMENTATION OF CONOPS

Concept of Operations (CONOPS):

a. Intention:

Neutralize the FDLR and lift Rwanda's defensive measures.

b. Operating Plan:

The FARDC must neutralize the FDLR while the RDF disengages forces/ lifts Rwanda's defensive measures in four phases:

(1) Phase 1:

Preparation

(a) Analysis of the level of threat posed by the FDLR;

(b) Briefing on the progress of activities;

(d) Raising awareness in local communities;

(e) Locating and sharing information about the FDLR and its splinter groups;

(f) Sharing information on defense measures put in place by Rwanda.

(g) Cessation of sporadic cross-border operations by Rwanda

(2) Phase 2:

Conduct of operations

(a) Neutralization of the FDLR and its splinter groups:

Taking targeted actions against the FDLR and jointly evaluating implementation of the plan to neutralize the FDLR;

(b) Lifting of Rwanda's defensive measures and halting sporadic cross-border operations;

(3) Phase 3:

Evaluation

(a) Joint evaluation by the DRC and Rwanda of the plan for having the RCD and its partners neutralize the FDLR;

(b) Joint evaluation by the DRC and Rwanda of activities related to lifting the defensive measures taken by Rwanda;

(4) Stabilization

(a) Demobilization, repatriation, and reintegration of FDLR ex-combatants;

(b) Strengthening trust and a peaceful environment between the DRC and Rwanda;

Timeline:

Operations carried out in several phases as follows:

a. Phase 1:

Preparation of activities (awareness-raising, planning, coordination, and exchange of information with different partners): D+7 to D+15;

b. Phase 2:

Conduct of operations (efforts to neutralize the FDLR and lift Rwanda's defensive measures): D+20 to D+30;

c. Phase 3:

Evaluation of Rwanda's and the DRC's activities on D+90

d. Phase 4:

Stabilization/Harmonization on D+120

The neutralization of the FDLR and the lifting of Rwanda's defensive measures must be completed within three months to comply with the harmonized plan for the neutralization of the FDLR and disengagement of forces/lifting of defensive measures of Rwanda adopted by military and intelligence experts in Rubavu on August 30, 2024.

The Ad Hoc Verification Mechanism will ensure the above activities are monitored.

Key deadlines are as follows:

12.1.1.1.

Completion of neutralization of the FDLR and lifting of Rwanda's defensive measures:

NO LATER THAN D+90

12.1.1.2.

Duration of activities:

3 months

LOGISTICAL SUPPORT

The countries will be responsible for providing logistical support, including:

a. Financing:

(1) Each country finances it owns activities;

(2) Sustainable funding must be ensured internally.

b. Medical:

Each country is individually responsible.

Risks and Constraints

Stigmatization of certain communities (mitigation measures: campaign to promote national cohesion, zero tolerance for all stigmatization);

Regionalization of the conflict (mitigation measure: active diplomatic efforts);

FDLR retaliation against the population (mitigation measure:

organize popular resistance among the population);

Lack of mutual political will and trust between Rwanda and the DRC.