Operation Plan Sovereign Iraq
Executive Summary
In January 2004, the Secretaries of State and Defense established an Interagency Transition
Planning Team (ITPT), led by Ambassador Frank Ricciardone and Lieutenant General (Retired)
Mick Kicklighter, to develop a joint transition plan to dissolve the Coalition Provisional
Authority (CPA) and establish a US Mission within a sovereign Iraq while ensuring a close and
mutual partnership between the Chief of Mission (COM) and the Commander, Multinational
Force Iraq (MNF-1). For the past three months, DOS and DOD have collaborated in an
unprecedented manner to facilitate this critical transition. The results of the interagency
transition planning are documented in Operation Plan (OPLAN) Sovereign Iraq. This
documentation and coordination constitute the basis for the Combatant Commander, the US
Ambassador, and other agencies to collectively transition to a US Mission. The ITPT, which
includes representatives of DOS, DOD, the CPA (forward and rear), and other US Government
agencies, has developed and will continue to develop comprehensive and detailed plans related
to US Government activities in Iraq. Furthermore, the team will continue the spirit of
"jointness" as it supports implementation ofthe plan within the DOS and DOD.
Version 3.0 ofOPLAN Sovereign Iraq, which was distributed throughout the Department of
Defense on June 14, 2004, was drafted by the ITPT utilizing an iterative process of review and
coordination activities between stakeholder organizations, including the State Department, US
Central Command (CENTCOM), the Services, and the Joint Staff. It also incorporates three
stand~alone Memoranda of Agreement as annexes: two between the Department of State and the
Defense Department and one between the Chief of Mission and the Commander USCENTCOM.
These MOA, which are consistent with planning guidance included in the OPLAN, formalize the
key support, security services and security responsibilities during the transition process.
Department of Defense agencies and USCENTCOM are authorized to begin local planning and
implementation in accordanye with OPLAN Sovereign Iraq. The ITPT will periodically revise
portions of the document in accordance with Chief of Mission and Commander, USCENTCOM
modifications.
OPLAN Sovereign Iraq uses standard Joint Service planning guidelines and formats to outline
the key actions and coordinating effort that must take place both before and after the transition
on June 30, 2004. It contains a 25-page primary planning document and 20 annexes, including
the Security and Support memoranda of agreement that address specific specialty or functional
issues in great detail, several of which align with DOS "sectors" used in planning for the
establishment ofthe new embassy. The OPLAN is written from the perspective ofthe US
Government and generally lists tasks and planning milestones at the agency level. Within DOD,
however, the OPLAN also tasks down to the level of the Commander, US Central Command and
Commander, Multinational Force- Iraq.
Base Plan. The primary planning document, called the "base plan" uses the military five-
paragraph operations order format as its framework. The topic and a summary of each paragraph
follows:

1. Situation. The situation paragraph provides important current information about friendly
forces, including recent changes occurring in the Iraqi Interim Government, a summary of
UNSCR 1546, MNF-I, and the Coalition Provisional Authority.
2. Mission. This is a brief statement ofthe Who, What, When, Where, and Why ofOPLAN
Sovereign Iraq: "On 30 June 2004, the Iraqi Interim Government assumes authority and the
CPA is dissolved; the US Government establishes a US Mission Iraq to ensure that the
responsibilities and interests of the US Government are preserved and discharged effectively;
and in concert with the Multinational Force-Iraq, the Iraqi Government and our Coalition
partners and international organizations, continue uninterrupted relief, reconstruction and
stabilization efforts."
3. Execution. This paragraph describes in detail the actions that must take place for the
successful establishment of a US Mission Iraq. It includes a Concept of Operations that
describes the key milestones and operational phasing from the beginning of the planning effort in
March 2004 through the period of Post-Election Normalization sometime after December 2005,
when US military and diplomatic operations begin to normalize in an environment approaching
regional norms. It also includes the list oftasks for DOS, DOD, CPA, other agencies, and
CENTCOM I MNF-1. The plan is being executed in five phases. Phase I (Establishing US
Mission Advance Team) focuses on the initial planning to establish the US Mission. Phase II
(Transition to US Mission) is concerned with the reorganization effort in Iraq required to stand
up the Mission and prepare to disestablish the CPA. These actions will occur simultaneously
with a shift in primary authority for prioritization of non-security related efforts from DOD to
DOS. Phase III (Post-Transition Execution/Fiscal Year Close-out) addresses those actions of the
new US Mission Iraq through the end of the fiscal year in support of the Interim Government.
Phase IV (Constitution /Election Support) is concerned with support to the Transitional
Government. Phase V (Post Election Normalization) is a less well-defined phase that focuses on
efforts to reduce the US presence as the security situation improves and Iraq Relief and
Reconstruction Fund projects are completed. Through these five phases, the US Government
will effectively transition governance responsibilities to the Iraqi Government while maintaining
ongoing relief, reconstruction, and stabilization efforts throughout Iraq.
4. Administration and Logistics. This section briefly addresses the mechanisms through which
administrative and logistical requirements, including facilities, personnel, contract support,
reimbursement, and medical services, for the transition and for support of the US Mission will be
met. These functions are addressed in greater detail in various annexes to the base plan.
5. Command and Control. This section discusses the chains of command of the Chief of
Mission and the Commander, MNF-1. It also summarizes the status of US Government
employees in Iraq, either falling under the authority of the COM or the Commander, MNF-1.
Annexes. There are 20 annexes, the majority of which contain one or more appendices, with
each of the annexes expanding on the information and taskings in the base plan. Those annexes
that align with an embassy planning sector contain as their first appendix a joint DOD-DOS list
of milestones to be accomplished in that sector. A description of each annex follows:

Annex A, Command and Control, attempts to define and explain the complex US military and
civilian command structures, how they interact with each other and with coalition partners,
international organizations, and the Iraqi Government. This annex does not have a DOS sector
counterpart. It contains an appendix describing base operations support to the US Mission
through Area Support Group Central and other BASOPS organizations, and contains an
additional appendix providing initial guidance and information on the Mission Operations Center
concept, which continues to undergo refinement.
Annex B, Intelligence, provides a very rudimentary, unclassified intelligence summary, with a
focus on the key local factors impacting stability in Iraq.
Annex C, Iraq Reconstruction Inspector General (IR-IG), provides the most recent information
on the functions and future role ofthe IR-IG.
Annex D, Chief of Mission, focuses on the staff and organizations internal to the US Embassy in
Baghdad. The Legal Appendix to Annex D provides guidance on legal issues governing US
activities, employees and citizens in Iraq.
Annex E, Manpower and Personnel Administration, outlines the plans and procedures the US
Government will employ in staffing US Government offices and managing personnel in Iraq.
Annex F (Facilities and Real Property) and Appendix 2 to Annex F (Facilities) both provide
coordinated guidance for the establishment of facilities and real property to the US Mission Iraq.
This guidance includes the operational standards that will be achieved through this support, as
well as maintenance and facilities management requirements.
Annex G, Contracts and Acquisitions, describes the contract support provided by the Head of
Contract Authority (HCA) and the Program Management Office (PMO) in their collective
management of Iraq Relief and Reconstruction Funds.
Annex H, Information Technology and Communication, consists of a coordinated plan for how
the US Government will both maintain existing and establish new information and
communications technology (ICT) systems for US Government employees and designated other
users. Central to this guidance is a plan for a seamless transition ofiCT services between DOD
and DOS. Appendix 1 to this annex, Military Postal Support, details the US Government plan
for providing postal services to authorized users in Iraq.
Annex I, Logistics, identifies the plans and procedures for providing specified logistics and
administrative services to US Government agencies in Iraq. Appendix 2 to Annex I, Military Air
Support Operation in Support of the US Mission, defines the military air support that will be
provided to the COM by the Commander, MNF-1.
Annex J, Consular, provides a brief overview of consular services planned for the new Mission.

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Annex K, Security, identifies the key security roles and responsibilities throughout the five
phases of transition, with an emphasis on resolving ambiguous lines of control, anticipating
unique missions, and detailing anticipated resource requirements.
Annex L, Finance, provides guidance related to key financial management issues related to US
Government activities in Iraq.
Annex M was not used.
Annex N, Contractor Security, is still being drafted, and will be issued as a follow-on annex.
This critical part of planning will address contractor security from both the physical perspective
as well as with regard to privileges and immunities agreed to by the Iraqi Government and
essential to mitigate risks for contractors.
Annex 0, Regional Teams, describes the configuration, composition, mission, support and lines
of control associated with the regional teams at Mosul, Kirkuk, AI Hillah, and Basrah. It also
discusses teams led by foreign service officers embedded with US military major subordinate
commands.
Annex P, Justice, describes the US Government's relation to and support oflraqi ministries,
tribunals and commissions in its effort to develop effective, efficient bodies within Iraq that have
the capacity to administer justice, enforce the laws, and institute a national strategic anti-
corruption campaign.
Annex Q, Health Service Support, outlines the specific roles and responsibilities for US
Government agencies in providing health service support to eligible US citizens.
Annex R provides an overview of the public affairs and strategic communication responsibilities
of US Government personnel in Iraq.
Annex S and Annex T, the Security and Support Memoranda, are detailed agreements signed at
the Deputy Secretary-level at the Departments of State and Defense, and which define specific
roles, responsibilities and procedures governing DOD and DOS organizations during the phases
of transition. The guidance provided in these MOA will help to ensure a seamless transition of
services and resources during these phases, and reflects the planning included in OPLAN
Sovereign Iraq.