In July 2003, Australian and Pacific Islands police and troops arrived in Solomon Islands under the auspices of the Australian-led Regional Assistance Mission to Solomon Islands (RAMSI). A sizeable international security contingent of 2,200 police and troops, led by Australia and New Zealand, and with representatives from about 15 other Pacific nations, began arriving the next month under Operation Helpem Fren. The situation improved dramatically, with violence ending and Harold Keke surrendering to the force. Some 200 people had been killed in the conflict. Since this time some commentators have considered the country a failed state, with the nation having failed to build an inclusive national identity capable of overriding local island and ethnic loyalties. However, other academics argue that rather than being a 'failed state', it is an unformed state: a state that never consolidated even after decades of independence. Furthermore, some scholars, such Kabutaulaka (2001) and Dinnen (2002) argue that the 'ethnic conflict' label is an oversimplification.