[Congressional Bills 116th Congress]
[From the U.S. Government Publishing Office]
[S. 727 Reported in Senate (RS)]
<DOC>
Calendar No. 155
116th CONGRESS
1st Session
S. 727
To combat international extremism by addressing global fragility and
violence and stabilizing conflict-affected areas, and for other
purposes.
_______________________________________________________________________
IN THE SENATE OF THE UNITED STATES
March 7, 2019
Mr. Coons (for himself, Mr. Graham, Mr. Merkley, Mr. Rubio, Mr. Young,
Ms. Baldwin, Mr. Boozman, Mr. Markey, Mr. Cardin, Mr. Gardner, Mr.
Casey, Mr. Durbin, Ms. Collins, Mr. Kaine, Mr. Peters, Ms. Cantwell,
Mr. Blumenthal, Mrs. Shaheen, Mr. Isakson, and Mr. Van Hollen)
introduced the following bill; which was read twice and referred to the
Committee on Foreign Relations
July 18, 2019
Reported by Mr. Risch, with an amendment
[Strike out all after the enacting clause and insert the part printed
in italic]
_______________________________________________________________________
A BILL
To combat international extremism by addressing global fragility and
violence and stabilizing conflict-affected areas, and for other
purposes.
Be it enacted by the Senate and House of Representatives of the
United States of America in Congress assembled,
<DELETED>SECTION 1. SHORT TITLE.</DELETED>
<DELETED> This Act may be cited as the ``Global Fragility Act of
2019''.</DELETED>
<DELETED>SEC. 2. APPROPRIATE CONGRESSIONAL COMMITTEES
DEFINED.</DELETED>
<DELETED> In this Act, the term ``appropriate congressional
committees'' means--</DELETED>
<DELETED> (1) the Committee on Foreign Relations and the
Committee on Appropriations of the Senate; and</DELETED>
<DELETED> (2) the Committee on Foreign Affairs and the
Committee on Appropriations of the House of
Representatives.</DELETED>
<DELETED>TITLE I--DEVELOPMENT OF A COMPREHENSIVE, TEN-YEAR, GLOBAL
FRAGILITY STRATEGY, AND SELECTION OF PRIORITY COUNTRIES</DELETED>
<DELETED>SEC. 101. GLOBAL FRAGILITY STRATEGY.</DELETED>
<DELETED> (a) Strategy.--The President, in coordination with the
Secretary of State, the Administrator of the United States Agency for
International Development (USAID), the Secretary of Defense, and the
heads of other relevant Federal agencies, shall establish a
comprehensive, integrated, ten-year strategy, to be referred to as the
``Global Fragility Strategy'', to contribute to the stabilization of
conflict-affected areas, address global fragility, and strengthen the
capacity of the United States to be an effective leader of
international efforts to prevent extremism and violent conflict. The
strategy shall focus on addressing long-term causes of fragility and
violence, and shall--</DELETED>
<DELETED> (1) consider the causes of fragility and violence
at both the local and national levels, the external actors that
reinforce and exploit such conditions, and successful
prevention strategies and their key features;</DELETED>
<DELETED> (2) include specific objectives and multisectoral
approaches to reduce fragility and the causes of violence,
including those that strengthen state-society relations, curb
extremist ideology, and make society less vulnerable to the
spread of extremism and violence;</DELETED>
<DELETED> (3) encourage and empower local and national
actors to address the concerns of their citizens, including in
vulnerable communities, and build community resilience against
violence and extremism;</DELETED>
<DELETED> (4) address the long-term underlying causes of
fragility and violence through participatory, locally led
programs, empowering marginalized groups such as youth and
women, inclusive dialogues and conflict resolutions processes,
justice sector reform, good governance across all sectors,
community policing and civilian security, and accountable and
fair service delivery;</DELETED>
<DELETED> (5) describe approaches that ensure national
leadership where appropriate and participatory engagement by
civil society and local partners in the design implementation
and monitoring of programs;</DELETED>
<DELETED> (6) assign roles for relevant Federal agencies to
avoid duplication of efforts, while ensuring that--</DELETED>
<DELETED> (A) the Department of State is responsible
for leading the strategy, establishing United States
foreign policy, advancing diplomatic and political
efforts, and guiding security assistance and related
civilian security efforts;</DELETED>
<DELETED> (B) USAID is responsible for overseeing
prevention programs, and is the lead implementing
agency for development, humanitarian, and related non-
security program policy;</DELETED>
<DELETED> (C) activities undertaken or supported by
the Department of Defense in relation to the Global
Fragility Strategy are established through joint
formulation and with the concurrence of the Secretary
of State; and</DELETED>
<DELETED> (D) other Federal agencies support the
activities of the Department of State and USAID as
appropriate, with the concurrence of the Secretary of
State and the Administrator of the United States Agency
for International Development;</DELETED>
<DELETED> (7) describe programs that agencies will undertake
to achieve the stated objectives, including descriptions of
existing programs and funding by fiscal year and
account;</DELETED>
<DELETED> (8) identify mechanisms to improve coordination
between the United States, foreign governments, and
international organizations, including the World Bank, the
United Nations, regional organizations, and private sector
organizations;</DELETED>
<DELETED> (9) address efforts to expand public-private
partnerships and leverage private sector resources;</DELETED>
<DELETED> (10) describe the criteria, metrics, and
mechanisms for monitoring and evaluation of programs and
objectives in the strategy;</DELETED>
<DELETED> (11) describe how the strategy will ensure that
programs are country-led and context-specific; and</DELETED>
<DELETED> (12) identify mechanisms or activities to reduce
the risk that the programs, policies, or resources of the
United States and its partners will facilitate corruption,
empower or abet repressive local actors, or be exploited by
extremists to gain support for their cause.</DELETED>
<DELETED> (b) Report.--</DELETED>
<DELETED> (1) In general.--Not later than 270 days after the
date of the enactment of this Act, the President shall submit
to the appropriate congressional committees a report setting
forth the strategy described in subsection (a), which shall be
submitted in unclassified form, but may include a classified
annex if necessary.</DELETED>
<DELETED> (2) Report contents.--The report required under
paragraph (1) shall include the elements described in paragraph
(3), and may include additional elements relevant to the
strategy described in subsection (a).</DELETED>
<DELETED> (3) Report elements.--The elements referred to in
paragraph (2) are as follows:</DELETED>
<DELETED> (A) The objectives, general and specific,
of the strategy.</DELETED>
<DELETED> (B) An identification of the relevant
Federal agencies that will be involved and the
assignment of priorities to such agencies.</DELETED>
<DELETED> (C) A description of the compact-based
partnerships that will be established to ensure local
leadership of strategies, policy, and programs, as well
as mutual accountability for results and resources
needed to support such partnerships.</DELETED>
<DELETED> (D) Identification of the authorities,
staffing, and other requirements needed to effectively
implement the Global Fragility Strategy.</DELETED>
<DELETED> (E) A description of the ways in which
United States leadership will be used to enhance
overall international prevention efforts, including
through increasing the engagement of the member states
of the Group of Eight and Group of Twenty.</DELETED>
<DELETED> (F) Identification of which officials of
the Department of State, USAID, and the Department of
Defense, with a rank not lower than Assistant Secretary
or Assistant Administrator, will be responsible for
overseeing and leading the strategy.</DELETED>
<DELETED> (G) A list of priority countries selected
pursuant to section 102, including descriptions of the
rationale for such selections.</DELETED>
<DELETED> (c) Stakeholder Consultation.--The Global Fragility
Strategy required under this section shall be developed in consultation
with representatives of civil society and national and local governance
entities in countries described in section 103, as well as relevant
international development organizations with experience implementing
programs in fragile countries, multilateral organizations and donors,
relevant private, academic, and philanthropic entities, and the
appropriate congressional committees.</DELETED>
<DELETED>SEC. 102. SELECTION OF PRIORITY COUNTRIES.</DELETED>
<DELETED> The President, in coordination with the Secretary of
State, the Administrator of the United States Agency for International
Development, and the Secretary of Defense, and in consultation with the
appropriate congressional committees, shall select certain countries as
``priority countries'' for the purpose of implementing the strategy
required under section 101(a)--</DELETED>
<DELETED> (1) on the basis of--</DELETED>
<DELETED> (A) the national security interest of the
United States;</DELETED>
<DELETED> (B) clearly defined indicators of the
levels of violence or fragility in such, such as the
country's--</DELETED>
<DELETED> (i) ranking on recognized global
fragility lists;</DELETED>
<DELETED> (ii) ranking on select United
States Government conflict and atrocity early
warning watch lists; and</DELETED>
<DELETED> (iii) levels of violence,
including violence committed by armed groups,
state actors, and violent extremist
organizations, gender-based violence, and
violence against children and youth;
and</DELETED>
<DELETED> (C) an assessment of the commitment and
capacity of national and sub-national government
entities and civil society partners in such country to
work with Federal departments and agencies on the
Global Fragility Strategy, including by demonstrating
commitment to--</DELETED>
<DELETED> (i) improving inclusive,
transparent, and accountable power structures,
including effective, legitimate, and resilient
national and sub-national institutions;
and</DELETED>
<DELETED> (ii) ensuring strong foundations
for human rights, rule of law, and equal access
to justice; and</DELETED>
<DELETED> (2) in a manner that ensures that not fewer than
five countries are selected, and such countries are in the
areas of responsibility of at least three geographic bureaus of
the Department of State.</DELETED>
<DELETED>SEC. 103. PRIORITY COUNTRY PLANS.</DELETED>
<DELETED> Not later than one year after the date of the enactment of
this Act, the President, in coordination with the Secretary of State,
the Administrator of the United States Agency for International
Development, the Secretary of Defense, and the heads of other relevant
Federal departments and agencies, shall submit to the appropriate
congressional committees ten-year plans to align and integrate under
the Global Fragility Strategy established pursuant to section 101 all
diplomatic, development, security assistance and cooperation, and other
relevant activities of the United States Government with respect to
each of the countries selected pursuant to section 102. Each such
country plan shall include the following elements:</DELETED>
<DELETED> (1) Specific multi-year interagency plans for
coordination and implementation under each such plan.</DELETED>
<DELETED> (2) An up-to-date baseline analysis for each such
country, including an analysis of power dynamics, impacts of
violence, and conditions that contribute to violence and
fragility.</DELETED>
<DELETED> (3) Prioritized descriptions of the goals and
objectives for stabilizing conflict-affected areas, reducing
fragility, and preventing the spread of extremism and violence
in each such country.</DELETED>
<DELETED> (4) Descriptions of how and when the relevant
goals, objectives, plans, and benchmarks for each such country
will be incorporated into relevant United States country plans
and strategies.</DELETED>
<DELETED> (5) Interagency plans to ensure that appropriate
local actors, including government and civil society entities,
have an appropriate ownership stake in relevant activities
under each such plan.</DELETED>
<DELETED> (6) Interagency plans to integrate existing and
planned security assistance and cooperation programs in each
such country with the strategy, and to mitigate risks
associated with such programs, including risks related to
corruption, governance, and human rights.</DELETED>
<DELETED> (7) Assessment, monitoring, and evaluation
frameworks for diplomatic, development, and security
activities, which shall be informed by consultations with the
stakeholders specified in section 101(c), with clear, date-
certain metrics for each such country.</DELETED>
<DELETED> (8) Descriptions of available policy tools and how
such tools will be used to reduce fragility, prevent the spread
of extremism and violence, and stabilize conflict-affected
areas in each such country.</DELETED>
<DELETED> (9) A description of how planning and
implementation for each such country will be coordinated to
ensure such planning and implementation are conducted in
partnership between the United States Government and--
</DELETED>
<DELETED> (A) governments of such
countries;</DELETED>
<DELETED> (B) international development
organizations;</DELETED>
<DELETED> (C) relevant international
donors;</DELETED>
<DELETED> (D) multilateral organizations;
and</DELETED>
<DELETED> (E) the private sector.</DELETED>
<DELETED> (10) A regional component outlining plans to
address relevant transnational issues and how such country is
affected by or at risk of regional fragility or
violence.</DELETED>
<DELETED>SEC. 104. IMPLEMENTATION.</DELETED>
<DELETED> The President, in coordination with the Secretary of
State, the Administrator of the United States Agency for International
Development, the Secretary of Defense, the heads of other relevant
Federal agencies, relevant United States ambassadors, USAID mission
directors, geographic combatant commanders, and other relevant
individuals with responsibility over activities in each priority
country selected pursuant to section 102, shall ensure that--</DELETED>
<DELETED> (1) the Global Fragility Strategy required under
section 101, including each of the country plans developed
under section 103, is implemented, updated, and coordinated on
a regular and iterative basis; and</DELETED>
<DELETED> (2) the strategy is used to guide United States
Government policy and incorporated into relevant strategies and
plans across the United States Government such that the
activities of all Federal agencies are consistent with the
strategy.</DELETED>
<DELETED>SEC. 105. BIENNIAL REPORTS AND CONGRESSIONAL
CONSULTATION.</DELETED>
<DELETED> (a) Biennial Reports.--Not later than two years after the
date of the enactment of this Act, and every two years thereafter until
the date that is ten years after such date of enactment, the President,
the Secretary of State, the Administrator of the United States Agency
for International Development, the Secretary of Defense, and the heads
of other relevant Federal departments and agencies shall jointly submit
to the appropriate congressional committees an unclassified report,
which may include a classified annex, on progress made and lessons
learned with respect to the implementation of the Global Fragility
Strategy established pursuant to section 101. The report shall include
the following elements:</DELETED>
<DELETED> (1) Descriptions of steps taken to incorporate the
strategy into any relevant, existing country and regional plans
or strategies.</DELETED>
<DELETED> (2) Accountings of all funding received and
obligated to implement each such country and regional plan
during the previous two years, as well as funding requested,
planned, and projected for the following two years.</DELETED>
<DELETED> (3) Descriptions of progress made towards
achieving specific targets, metrics, and indicators for each
priority country.</DELETED>
<DELETED> (4) Descriptions of any changes made to programs
based on the results of assessment, monitoring, and evaluation
for each priority country.</DELETED>
<DELETED>SEC. 106. GAO REVIEW.</DELETED>
<DELETED> (a) In General.--Not later than two years after the date
of the enactment of this Act, the Comptroller General of the United
States shall consult with the appropriate congressional committees
regarding opportunities for independent review of the activities
implemented under the Global Fragility Strategy established pursuant to
section 101.</DELETED>
<DELETED> (b) Availability of Information.--The heads of relevant
Federal departments and agencies shall ensure that all relevant data,
documents, and other information is made available to the Comptroller
General of the United States for purposes of conducting independent
reviews pursuant to this section.</DELETED>
<DELETED>TITLE II--AUTHORIZATION OF APPROPRIATIONS</DELETED>
<DELETED>SEC. 201. STABILIZATION AND PREVENTION FUND.</DELETED>
<DELETED> (a) Establishment.--There is authorized a fund to be known
as the ``Prevention and Stabilization Fund'' (in this section referred
to as ``The Fund''), which shall replace the Relief and Recovery
Fund.</DELETED>
<DELETED> (b) Authorization of Appropriations.--There is authorized
to be appropriated such sums as may be necessary for the Prevention and
Stabilization Fund to support stabilization of conflict-affected areas
and mitigate fragility, including through the Global Fragility
Strategy.</DELETED>
<DELETED> (c) Purposes of the Fund.--</DELETED>
<DELETED> (1) In general.--Amounts authorized to be
appropriated to the Fund shall be used--</DELETED>
<DELETED> (A) to support stabilization of conflict-
affected areas and prevent global fragility, including
through the Global Fragility Strategy established
pursuant to section 101; and</DELETED>
<DELETED> (B) to provide assistance to areas
liberated or at risk from, or under the control of, the
Islamic State of Iraq and Syria, other terrorist
organizations, or violent extremist organizations,
including for stabilization assistance for vulnerable
ethnic and religious minority communities affected by
conflict.</DELETED>
<DELETED> (2) Amounts in addition.--Amounts authorized to be
appropriated to the Fund under this section are in addition to
any funds otherwise made available for the purposes described
in paragraph (1).</DELETED>
<DELETED>SEC. 202. COMPLEX CRISES FUND.</DELETED>
<DELETED> (a) Establishment.--There is authorized a fund, which
shall be known as the ``Complex Crises Fund'' (in this subsection
referred to as the ``Fund''), to be administered by the United States
Agency for International Development, to support programs and
activities to prevent or respond to emerging or unforeseen events
overseas.</DELETED>
<DELETED> (b) Authorization of Appropriations.--There is authorized
to be appropriated such sums as may be necessary for the Fund,
including to support the Global Fragility Strategy, which shall remain
available remain available until expended.</DELETED>
<DELETED> (c) Purposes of Assistance.--Notwithstanding any other
provision of law, except section 620M of the Foreign Assistance Act of
1961 (22 U.S.C. 2378d), amounts in the Fund may be used to carry out
the provisions of the Foreign Assistance Act of 1961 (22 U.S.C. 2151 et
seq.) to support programs and activities to prevent or respond to
emerging or unforeseen events overseas, including through support to
the Global Fragility Strategy.</DELETED>
<DELETED> (d) Limitations.--</DELETED>
<DELETED> (1) In general.--Amounts in the Fund may not be
expended for lethal assistance or to respond to natural
disasters.</DELETED>
<DELETED> (2) Administrative expenses.--Not more than five
percent of the amounts in the Fund may be used for
administrative expenses.</DELETED>
<DELETED> (e) Congressional Notification.--Not later than five days
before amounts from the Fund are obligated, the Administrator of the
United States Agency for International Development shall submit
notification of such obligation to the appropriate congressional
committees.</DELETED>
<DELETED> (f) Waiver.--The notification requirement under subsection
(e) be may be waived if--</DELETED>
<DELETED> (1) notification by the deadline specified in such
paragraph would pose a substantial risk to human health or
welfare; and</DELETED>
<DELETED> (2) the appropriate congressional committees--
</DELETED>
<DELETED> (A) are notified not later than three days
after an obligation of amounts from the Fund;
and</DELETED>
<DELETED> (B) are provided with an explanation of
the emergency circumstances that necessitated such
waiver.</DELETED>
<DELETED>TITLE III--PARTNERSHIP DEVELOPMENT FUND</DELETED>
<DELETED>SEC. 301. ESTABLISHMENT OF FUND.</DELETED>
<DELETED> (a) Negotiations for Establishment of Fund.--The Secretary
of State, in consultation with the Administrator of the United States
Agency for International Development and the heads of other relevant
Federal agencies, shall seek to enter into negotiations with key
bilateral and multilateral donors, including the World Bank, and with
developing countries where fragility threatens to exacerbate violent
extremism and undermine development, including members of the g7+,
toward the establishment, in accordance with the provisions of this
title, of the Partnership Development Fund.</DELETED>
<DELETED> (b) Purposes.--The purposes of the Partnership Development
Fund shall be to use contributed funds--</DELETED>
<DELETED> (1) to assist in addressing the sources of
fragility in priority countries selected pursuant to section
102 of this Act or otherwise determined by the Partnership
Development Fund; and</DELETED>
<DELETED> (2) to strengthen national and local good
governance and conflict resolution capacity over the long-term,
moving beyond uncoordinated, short-term investments by
improving international coordination and enabling support for
comprehensive, compact-based agreements that support country-
led strategies.</DELETED>
<DELETED>SEC. 302. CONSULTATIONS AND PROGRAMS.</DELETED>
<DELETED> (a) Establishment of Partnership Development Fund.--Not
later than 90 days after the date of the enactment of this Act, the
Secretary of State shall consult with the appropriate congressional
committees on plans for the establishment of the Partnership
Development Fund, including the mechanism though which donor funds will
be received and distributed, the makeup and composition of a Board of
Directors, qualifications of such Board members, composition of a
secretariat, and mechanisms for oversight and accountability. The Board
shall consist of representatives of participating donor countries,
fragility- and conflict-affected countries, civil society, and
multilateral and nongovernmental organizations. The President shall,
with the advice and consent of the Senate, appoint a United States
Board member and an alternate member for a four-year term.</DELETED>
<DELETED> (b) Partnership Development Fund Grants.--The Partnership
Development Fund shall provide grants to support policies and programs
that assist recipient countries in achieving lasting stability,
resilience to violent extremism, and development, including by building
capacity in national and local government, civil society, and the
private sector. The Fund shall include criteria for candidate
governments and nongovernmental entities to receive grants through
multi-year, compact-based agreements, established through inclusive and
open processes and that are linked to a national development plan and
based on joint analysis and strategic planning.</DELETED>
<DELETED>SEC. 303. CONGRESSIONAL REPORTS AND DISCLOSURE ON THE
PARTNERSHIP DEVELOPMENT FUND.</DELETED>
<DELETED> (a) Reports to Congress.--</DELETED>
<DELETED> (1) Annual reports by the fund.--</DELETED>
<DELETED> (A) In general.--Not later than one year
after the date of the enactment of this Act, and
annually thereafter for the duration of the Fund, the
United States representative to the Fund shall provide
to the appropriate congressional committees a report on
the Fund.</DELETED>
<DELETED> (B) Report elements.--The report required
under subparagraph (A) shall include a description of--
</DELETED>
<DELETED> (i) the goals of the
Fund;</DELETED>
<DELETED> (ii) the programs, projects, and
activities, including approaches to scaling
programs, supported by the Fund;</DELETED>
<DELETED> (iii) private and governmental
contributions to the Fund;</DELETED>
<DELETED> (iv) the criteria for determining
the programs and activities that should be
assisted by the Fund, and the metrics for the
monitoring and evaluation of such programs and
activities; and</DELETED>
<DELETED> (v) the country-level processes
established to support compact-based agreements
and promote international
coordination.</DELETED>
<DELETED> (2) GAO report on fund effectiveness.--Not later
than three years after the date of the enactment of this Act,
the Comptroller General of the United States shall submit to
the appropriate congressional committees a report evaluating
the effectiveness of the Fund, including--</DELETED>
<DELETED> (A) the effectiveness of the programs,
projects, and activities described in paragraph
(1)(B)(ii) in violence reduction and mitigating
fragility as a root cause; and</DELETED>
<DELETED> (B) an assessment of the merits of
continued United States financial contributions to the
Fund.</DELETED>
<DELETED> (b) Public Disclosure of Activities.--Not later than 90
days after the end of each fiscal quarter, the Fund should make
available to the public the following information with respect to
awarded grants:</DELETED>
<DELETED> (1) The name of each entity to which assistance is
provided.</DELETED>
<DELETED> (2) The amount of assistance provided to the
entity.</DELETED>
<DELETED> (3) A description of the compact-based agreement,
including a detailed description of the objectives and measures
for results of the program or project, which should continue to
be monitored in the years following the end of the grant period
to determine the enduring impact of the grant.</DELETED>
<DELETED>SEC. 304. AUTHORIZATION OF APPROPRIATIONS.</DELETED>
<DELETED> In addition to any other funds authorized to be
appropriated for multilateral or bilateral programs related to conflict
prevention, countering violent extremism, stabilization, or economic
development, there is authorized to be appropriated to the Department
of State such sums as may be necessary for each of fiscal years 2020
through 2022 for contributions to the Partnership.</DELETED>
SECTION 1. SHORT TITLE.
This Act may be cited as the ``Global Fragility Act of 2019''.
SEC. 2. APPROPRIATE CONGRESSIONAL COMMITTEES DEFINED.
In this Act:
(1) Appropriate congressional committees.--The term
``appropriate congressional committees'' means--
(A) the Committee on Foreign Relations and the
Committee on Appropriations of the Senate; and
(B) the Committee on Foreign Affairs and the
Committee on Appropriations of the House of
Representatives.
(2) Relevant federal department or agency.--The term
``relevant Federal department or agency'' means the Department
of State, the United States Agency for International
Development, the Department of Defense, the Department of
Treasury, and any other Federal department or agency the
President determines is relevant to carry out the purposes of
this Act.
SEC. 3. STATEMENT OF POLICY.
It is the policy of the United States to--
(1) ensure that all relevant Federal departments and
agencies coordinate to achieve coherent, long-term goals for
programs designed to stabilize conflict-affected areas and
prevent violence and fragility globally, including when
implementing the Global Fragility Strategy established pursuant
to section 4;
(2) seek to improve global, regional, and local
coordination of relevant international and multilateral
development and donor organizations regarding efforts to
stabilize conflict-affected areas and prevent violence and
fragility globally, and, where practicable and appropriate,
align such efforts with multilateral goals and indicators;
(3) expand and enhance the effectiveness of United States
foreign assistance programs and activities to stabilize
conflict-affected areas and prevent violence and fragility
globally;
(4) support the research and development of effective
approaches to stabilize conflict-affected areas and prevent
violence and fragility globally, and data collection efforts
relevant to such approaches; and
(5) improve the tools and authorities for assessment,
monitoring, and evaluation needed to enable learning and
adaptation by such relevant Federal departments and agencies
working to stabilize conflict-affected areas and prevent
violence and fragility globally, as necessary and appropriate.
SEC. 4. GLOBAL FRAGILITY STRATEGY.
(a) Strategy.--The President, in coordination with the Secretary of
State, the Administrator of the United States Agency for International
Development (``USAID''), the Secretary of Defense, and the heads of
other relevant Federal departments and agencies, shall establish a
comprehensive, integrated, ten-year strategy, to be referred to as the
``Global Fragility Strategy'', to contribute to the stabilization of
conflict-affected areas, address global fragility, and strengthen the
capacity of the United States to be an effective leader of
international efforts to prevent extremism and violent conflict. The
strategy shall focus on addressing long-term causes of fragility and
violence, and shall--
(1) consider the causes of fragility and violence at both
the local and national levels, the external actors that
reinforce and exploit such conditions, and successful
prevention strategies and their key features;
(2) include specific objectives and multisectoral
approaches to reduce fragility and the causes of violence,
including those that strengthen state-society relations, curb
extremist ideology, and make society less vulnerable to the
spread of extremism and violence;
(3) encourage and empower local and national actors to
address the concerns of their citizens, including those in
vulnerable communities, and build community resilience against
violence and extremism;
(4) address the long-term underlying causes of fragility
and violence through participatory, locally led programs,
empowering marginalized groups such as youth and women,
inclusive dialogues and conflict resolutions processes, justice
sector reform, good governance across all sectors, community
policing and civilian security, and inclusive and accountable
service delivery;
(5) describe approaches that ensure national leadership
where appropriate and participatory engagement by civil society
and local partners in the design, implementation, and
monitoring of programs;
(6) assign roles for relevant Federal departments and
agencies to avoid duplication of efforts, while ensuring that--
(A) the Department of State is responsible for
leading the strategy, establishing United States
foreign policy, advancing diplomatic and political
efforts, and guiding security assistance and related
civilian security efforts;
(B) USAID is responsible for overseeing prevention
programs, and is the lead implementing agency for
development, humanitarian, and related non-security
program policy;
(C) activities undertaken or supported by the
Department of Defense in relation to the Global
Fragility Strategy are established through joint
formulation and with the concurrence of the Secretary
of State; and
(D) other relevant Federal departments and agencies
support the activities of the Department of State and
USAID as appropriate, with the concurrence of the
Secretary of State and the Administrator of the United
States Agency for International Development;
(7) describe programs that relevant Federal departments and
agencies will undertake to achieve the stated objectives,
including descriptions of existing programs and funding by
fiscal year and account;
(8) identify mechanisms to improve coordination between the
United States, foreign governments, and international
organizations, including the World Bank, the United Nations,
regional organizations, and private sector organizations;
(9) address efforts to expand public-private partnerships
and leverage private sector resources;
(10) describe the criteria, metrics, and mechanisms for
monitoring and evaluation of programs and objectives in the
strategy;
(11) describe how the strategy will ensure that programs
are country-led and context-specific; and
(12) identify mechanisms or activities to reduce the risk
that the programs, policies, or resources of the United States
and its partners will facilitate corruption, empower or abet
repressive local actors, or be exploited by extremists to gain
support for their cause.
(b) Stakeholder Consultation.--The Global Fragility Strategy
required under this section shall be developed in consultation with
representatives of civil society and national and local governance
entities in countries and regions described in section 5, as well as
relevant international development organizations with experience
implementing programs in fragile states, multilateral organizations and
donors, relevant private, academic, and philanthropic entities, and the
appropriate congressional committees.
(c) Report.--Not later than 270 days after the date of the
enactment of this Act, the President shall submit to the appropriate
congressional committees a report setting forth the strategy described
in subsection (a), which shall be submitted in unclassified form, but
may include a classified annex if necessary, and shall include, at a
minimum, the following elements:
(1) The objectives, general and specific, of the strategy.
(2) An identification of the relevant Federal departments
and agencies that will be involved and the assignment of
priorities to such departments and agencies.
(3) A description of the compact-based partnerships that
will be established to ensure local leadership of strategies,
policy, and programs, as well as mutual accountability for
results and resources needed to support such partnerships.
(4) An identification of the authorities, staffing, and
other requirements, as necessary and appropriate, needed to
effectively implement the Global Fragility Strategy.
(5) A description of the ways in which United States
leadership will be used to enhance overall international
prevention efforts, including through increasing the engagement
of the member states of the Group of Eight and Group of Twenty.
(6) An identification of which officials of the Department
of State, USAID, and the Department of Defense, with a rank not
lower than Assistant Secretary or Assistant Administrator, will
be responsible for leading and overseeing the strategy.
(7) A list of priority countries and regions selected
pursuant to section 5, including descriptions of the rationale
for such selections.
SEC. 5. SELECTION OF PRIORITY COUNTRIES AND REGIONS.
(a) In General.--The President, in coordination with the Secretary
of State, the Administrator of the United States Agency for
International Development, and the Secretary of Defense, and in
consultation with the appropriate congressional committees specified in
subsection (b), shall select certain countries as ``priority
countries'' and certain regions as ``priority regions'' for the purpose
of implementing the Global Fragility Strategy required under section
4--
(1) on the basis of--
(A) the national security interests of the United
States;
(B) clearly defined indicators of the levels of
violence or fragility in such country or region, such
as the country's or region's--
(i) ranking on recognized global fragility
lists, such as the Organization for Economic
Co-operation and Development States of
Fragility report, the Fund for Peace Fragile
States Index, the World Bank Harmonized List of
Fragile Situations, the Institute for Economics
and Peace Global Peace Index, and the Holocaust
Museum Early Warning Project Risk Assessment;
(ii) ranking on select United States
Government conflict and atrocity early warning
watch lists; and
(iii) levels of violence, including
violence committed by armed groups, state
actors, and violent extremist organizations,
gender-based violence, and violence against
children and youth; and
(C) an assessment of--
(i) the commitment and capacity of national
and sub-national government entities and civil
society partners in such country or region to
work with relevant Federal departments and
agencies on the Global Fragility Strategy,
including by demonstrating commitment to--
(I) improving inclusive,
transparent, and accountable power
structures, including effective,
legitimate, and resilient national and
sub-national institutions; and
(II) ensuring strong foundations
for human rights, rule of law, and
equal access to justice; and
(ii) the likelihood that United States
assistance under the Global Fragility Strategy
would measurably help to reduce fragility,
prevent the spread of extremism and violence,
and stabilize conflict-affected areas in each
such country or region; and
(2) in a manner that ensures that not fewer than five
countries or regions are selected, and such countries or
regions are in the areas of responsibility of at least three
geographic bureaus of the Department of State.
(b) Consultation With Congress.--Prior to finalization of the
selection of priority countries and regions under subsection (a),
representatives from the Department of State, USAID, the Department of
Defense, and other relevant Federal departments and agencies, as
necessary and appropriate, shall brief the appropriate congressional
committees on the countries and regions being considered and shall
consider congressional input on such prioritization.
SEC. 6. PRIORITY COUNTRY AND REGIONAL PLANS.
Not later than one year after the date of the enactment of this
Act, the President, in coordination with the Secretary of State, the
Administrator of the United States Agency for International
Development, the Secretary of Defense, and the heads of other relevant
Federal departments and agencies, shall submit to the appropriate
congressional committees ten-year plans to align and integrate under
the Global Fragility Strategy established pursuant to section 4 all
relevant diplomatic, development, and security assistance and
activities of the United States Government with respect to each of the
countries and regions selected pursuant to section 5. Each such country
and regional plan shall include the following elements:
(1) Specific multi-year interagency plans for coordination
and implementation under each such plan.
(2) An up-to-date baseline analysis for each such country
or region, including an analysis of power dynamics, impacts of
violence, and conditions that contribute to violence and
fragility.
(3) Prioritized descriptions of the goals and objectives
for stabilizing conflict-affected areas, reducing fragility,
and preventing the spread of extremism and violence in each
such country.
(4) Descriptions of how and when the relevant goals,
objectives, plans, and benchmarks for each such country or
region will be incorporated into relevant United States country
or regional plans and strategies, including the National
Security Strategy of the United States, the Security Assistance
Review, Department of State Integrated Country Strategies,
USAID Country Development Cooperation Strategies, and
Department of Defense Campaign Plans, Operational Plans, and
Regional Strategies, as well as any equivalent or successor
plans or strategies.
(5) Interagency plans to ensure that appropriate local
actors, including government and civil society entities, have
an appropriate ownership stake in developing, implementing,
monitoring, and evaluating relevant activities under each such
plan.
(6) Interagency plans to integrate existing and planned
security assistance and cooperation programs in each such
country or region with the strategy, and to mitigate risks
associated with such programs, including risks related to
corruption, governance, and human rights.
(7) Assessment, monitoring, and evaluation frameworks for
diplomatic, development, and security assistance and
activities, which shall be informed by consultations with the
stakeholders specified in section 4(b), with clear, date-
certain metrics for each such country or region.
(8) Descriptions of available policy tools and how such
tools will be used to reduce fragility, prevent the spread of
extremism and violence, and stabilize conflict-affected areas
in each such country or region.
(9) A description of how planning and implementation of
assistance under the Global Fragility Strategy for each such
country or region will be coordinated in a manner that
strengthens partnerships and leverages the unique expertise and
resources of the United States Government and--
(A) governments of such countries;
(B) international development organizations;
(C) relevant international donors;
(D) multilateral organizations; and
(E) the private sector.
(10) A regional component outlining plans to address
relevant transnational issues and how each such country is
affected by or at risk of regional fragility or violence.
SEC. 7. IMPLEMENTATION.
The President, in coordination with the Secretary of State, the
Administrator of the United States Agency for International
Development, the Secretary of Defense, the heads of other relevant
Federal departments and agencies, relevant United States ambassadors,
USAID mission directors, geographic combatant commanders, and other
relevant individuals with responsibility over activities in each
priority country or region selected pursuant to section 5, shall ensure
that--
(1) the Global Fragility Strategy required under section 4,
including each of the country plans developed under section 6,
is implemented, updated, and coordinated on a regular and
iterative basis; and
(2) the strategy is used to guide United States Government
policy at a senior level and incorporated into relevant
strategies and plans across the United States Government such
that the activities of all relevant Federal departments and
agencies are consistent with the strategy.
SEC. 8. BIENNIAL REPORTS AND CONGRESSIONAL CONSULTATION.
(a) Biennial Reports.--Not later than two years after the date of
the enactment of this Act, and every two years thereafter until the
date that is ten years after such date of enactment, the President, the
Secretary of State, the Administrator of the United States Agency for
International Development, the Secretary of Defense, and the heads of
other relevant Federal departments and agencies shall jointly submit to
the appropriate congressional committees an unclassified report, which
may include a classified annex, on progress made and lessons learned
with respect to implementation of the Global Fragility Strategy
established pursuant to section 4. The report shall include the
following elements:
(1) Descriptions of steps taken to incorporate the strategy
into any relevant, existing country and regional plans or
strategies.
(2) Accountings of all funding received and obligated to
implement each such country and regional plan during the
previous two years, and, to the extent feasible, projections of
funding to be requested, planned, and implemented for the
following two years.
(3) Descriptions of progress made towards achieving
specific targets, metrics, and indicators for each priority
country and region.
(4) Descriptions of any changes made to programs based on
the results of assessment, monitoring, and evaluation for each
priority country and region.
(b) Congressional Consultation.--The Secretary of State, the
Administrator of the United States Agency for International
Development, and the Secretary of Defense shall provide to any
appropriate congressional committee regular briefings on the
implementation of this Act upon the request of any such committee.
SEC. 9. GAO REVIEW.
(a) In General.--Not later than two years after the date of the
enactment of this Act, the Comptroller General of the United States
shall consult with the appropriate congressional committees regarding
opportunities for independent review of the activities implemented
under the Global Fragility Strategy established pursuant to section 4.
(b) Availability of Information.--The heads of relevant Federal
departments and agencies shall ensure that all relevant data,
documents, and other information is made available to the Comptroller
General of the United States for purposes of conducting independent
reviews pursuant to this section.
SEC. 10. AUTHORIZATION OF APPROPRIATIONS.
(a) Prevention and Stabilization Fund.--
(1) Establishment.--There is established in the Treasury of
the United States a fund, which shall be known as the
``Prevention and Stabilization Fund'' (in this subsection
referred to as ``The Fund''), to be administered by the
Department of State and USAID, as appropriate, to support
stabilization of conflict-affected areas and to mitigate
fragility, including through the Global Fragility Strategy
established pursuant to section 4, which shall replace the
Relief and Recovery Fund.
(2) Authorization of appropriations.--There is authorized
to be appropriated to the Fund $200,000,000 for each of the
fiscal years 2020 through 2024, which shall remain available
until expended.
(3) Purposes of the fund.--
(A) In general.--Amounts authorized to be
appropriated to the Fund shall be used--
(i) to support stabilization of conflict-
affected areas and prevent global fragility,
including through the Global Fragility Strategy
established pursuant to section 4; and
(ii) to provide assistance to areas
liberated or at risk from, or under the control
of, the Islamic State of Iraq and Syria, other
terrorist organizations, or violent extremist
organizations, including for stabilization
assistance for vulnerable ethnic and religious
minority communities affected by conflict.
(B) Amounts in addition.--Amounts authorized to be
appropriated to the Fund under this section are in
addition to any funds otherwise made available for the
purposes described in paragraph (1).
(4) Congressional notification.--Funds may not be obligated
under this section unless the congressional committees
specified in section 634A of the Foreign Assistance Act of 1961
(22 U.S.C. 2394-1) are notified of the amount and nature of
such proposed obligation at least 15 days in advance of such
proposed obligation, in accordance with the procedures
applicable to notifications regarding reprogrammings pursuant
to such section.
(b) Complex Crisis Fund.--
(1) Establishment.--There is established in the Treasury of
the United States a fund, which shall be known as the ``Complex
Crises Fund'' (in this subsection referred to as the ``Fund''),
to be administered by USAID, to support programs and activities
to prevent or respond to emerging or unforeseen events
overseas, including to support the Global Fragility Strategy
established pursuant to section 4.
(2) Authorization of appropriations.--There is authorized
to be appropriated to the Fund $30,000,000 for each of the
fiscal years 2020 through 2024, which shall remain available
until expended.
(3) Purposes of the fund.--
(A) In general.--Notwithstanding any other
provision of law, except section 620M of the Foreign
Assistance Act of 1961 (22 U.S.C. 2378d), amounts in
the Fund may be used to carry out the provisions of the
Foreign Assistance Act of 1961 (22 U.S.C. 2151 et seq.)
to support programs and activities to prevent or
respond to emerging or unforeseen foreign challenges
and complex crises overseas, including through the
Global Fragility Strategy established pursuant to
section 4.
(B) Amounts in addition.--Amounts authorized to be
appropriated to the Fund are in addition to any amounts
otherwise made available for the purposes described in
subparagraph (A).
(4) Limitations.--
(A) In general.--Amounts in the Fund may not be
expended for lethal assistance or to respond to natural
disasters.
(B) Administrative expenses.--Not more than five
percent of the amounts in the Fund may be used for
administrative expenses.
(5) Congressional notification.--Not later than five days
before amounts from the Fund are obligated, the Administrator
of the United States Agency for International Development shall
submit notification of such obligation to the appropriate
congressional committees.
(6) Waiver.--The notification requirement under paragraph
(5) may be waived if--
(A) notification by the deadline specified in such
paragraph would pose a substantial risk to human health
or welfare; and
(B) the appropriate congressional committees--
(i) are notified not later than three days
after an obligation of amounts from the Fund;
and
(ii) are provided with an explanation of
the emergency circumstances that necessitated
such waiver.
SEC. 11. IMPROVING AND LEVERAGING ASSISTANCE FOR THE GLOBAL FRAGILITY
STRATEGY.
(a) Sense of Congress.--It is the sense of Congress that the
President, the Secretary of State, the Administrator of the United
States Agency for International Development, the Secretary of Defense,
and the heads of other relevant Federal departments and agencies should
work with the appropriate congressional committees to provide
sufficient types and levels of funding to--
(1) allow for more adaptive and responsive policy and
program planning, implementation, and scaling under the Global
Fragility Strategy established pursuant to section 4, including
through more flexible funding mechanisms and exemptions from
specific and minimum funding levels when such exemptions would
make such programs better able to respond to local needs, the
results of monitoring and evaluation, or changed circumstances
in relevant countries;
(2) better integrate the strategy and other conflict and
violence reduction objectives and activities into other policy
and program areas, where appropriate; and
(3) support transparent and accountable multilateral funds,
initiatives, and strategies to enhance and better coordinate
private and public efforts to stabilize conflict-affected areas
and prevent violence and fragility globally.
(b) Other Funding and Cost Matching.--The Global Fragility Strategy
established pursuant to section 4--
(1) may be supported by funds other than funds authorized
to be appropriated pursuant to section 10; and
(2) shall seek to leverage funds from sources other than
the United States Government in order to promote coordination
and cost-matching to the maximum extent practicable.
(c) Multi-donor Global Fragility Fund.--
(1) Authority.--Pursuant to sections 607 and 632 of the
Foreign Assistance Act of 1961 (22 U.S.C. 2357 and 2392), and
consistent with subsection (b), the Secretary of State is
authorized to establish funding mechanisms, to include the
establishment of a Global Fragility Fund, to leverage, receive,
coordinate, and program funds provided by other donors and
private sector partners to carry out the purposes of this Act.
(2) Purposes.--A funding mechanism established pursuant to
paragraph (1) should--
(A) include input from and participation by key
bilateral and multilateral donors, including the World
Bank, representatives of civil society, relevant
nongovernmental organizations and private sector
entities, and developing countries where fragility
threatens to exacerbate violent extremism and undermine
development;
(B) enhance donor coordination and cooperation;
(C) advance clearly defined goals, objectives, and
metrics for monitoring, evaluating, and measuring
progress; and
(D) focus on strengthening national and local good
governance and conflict resolution capacity in fragile
and conflict-affected areas over the long-term through
comprehensive, compact-based agreements that support
country-led strategies.
SEC. 12. SENSE OF CONGRESS ON TRANSFERS OF DEFENSE ARTICLES AND
SERVICES TO PRIORITY COUNTRIES AND REGIONS.
It is the sense of Congress that the United States Government
should work to ensure that defense articles and services provided to
priority countries and regions pursuant to the Arms Export Control Act
(22 U.S.C. 2751 et seq.) and the Foreign Assistance Act of 1961 (22
U.S.C. 2151 et seq.) are not used by non-state actors for the
commission of war crimes or other gross violations of internationally
recognized human rights in those countries or regions.
Calendar No. 155
116th CONGRESS
1st Session
S. 727
_______________________________________________________________________
A BILL
To combat international extremism by addressing global fragility and
violence and stabilizing conflict-affected areas, and for other
purposes.
_______________________________________________________________________
July 18, 2019
Reported with an amendment
Global Fragility Act of 2019
#727 | S Congress #116
Policy Area: International Affairs
Subjects: Conflicts and warsCongressional oversightCrimes against childrenDiplomacy, foreign officials, Americans abroadForeign aid and international reliefGovernment ethics and transparency, public corruptionGovernment studies and investigationsHuman rightsInternational organizations and cooperationJudicial procedure and administrationMiddle EastMilitary assistance, sales, and agreementsMultilateral development programsPolitical movements and philosophiesPublic-private cooperationRacial and ethnic relationsReconstruction and stabilizationReligionRule of law and government transparency
Last Action: Placed on Senate Legislative Calendar under General Orders. Calendar No. 155. (7/18/2019)
Bill Text Source: Congress.gov
Summary and Impacts
Original Text