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[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
```