II 

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, and Mr. 

YOUNG) introduced the following bill; which was read twice and referred 

to the Committee on Foreign Relations 

A BILL 

To combat international extremism by addressing global fragility and violence and stabilizing conflict-affected areas, 

and for other purposes. 

1 Be it enacted by the Senate and House of Representa2 tives of the United States of America in Congress assembled, 

3 SECTION 1. SHORT TITLE. 

4 This Act may be cited as the ‘‘Global Fragility Act 

5 of 2019’’. 

6 SEC. 2. APPROPRIATE CONGRESSIONAL COMMITTEES DE7 FINED. 

8 In this Act, the term ‘‘appropriate congressional com9 mittees’’ means— 


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1 (1) the Committee on Foreign Relations and 

2 the Committee on Appropriations of the Senate; and 

3 (2) the Committee on Foreign Affairs and the 

4 Committee on Appropriations of the House of Rep5 resentatives. 

6 TITLE I—DEVELOPMENT OF A 

7 COMPREHENSIVE, TEN-YEAR, 

8 GLOBAL FRAGILITY STRAT9 EGY, AND SELECTION OF PRI10 ORITY COUNTRIES 

11 SEC. 101. GLOBAL FRAGILITY STRATEGY. 

12 (a) STRATEGY.—The President, in coordination with 

13 the Secretary of State, the Administrator of the United 

14 States Agency for International Development (USAID), 

15 the Secretary of Defense, and the heads of other relevant 

16 Federal agencies, shall establish a comprehensive, inte17 grated, ten-year strategy, to be referred to as the ‘‘Global 

18 Fragility Strategy’’, to contribute to the stabilization of 

19 conflict-affected areas, address global fragility, and 

20 strengthen the capacity of the United States to be an ef21 fective leader of international efforts to prevent extremism 

22 and violent conflict. The strategy shall focus on addressing 

23 long-term causes of fragility and violence, and shall— 

24 (1) consider the causes of fragility and violence 

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1 tors that reinforce and exploit such conditions, and 

2 successful prevention strategies and their key fea3 tures; 

4 (2) include specific objectives and multisectoral 

5 approaches to reduce fragility and the causes of vio6 lence, including those that strengthen state-society 

7 relations, curb extremist ideology, and make society 

8 less vulnerable to the spread of extremism and vio9 lence; 

10 (3) encourage and empower local and national 

11 actors to address the concerns of their citizens, in12 cluding in vulnerable communities, and build com13 munity resilience against violence and extremism; 

14 (4) address the long-term underlying causes of 

15 fragility and violence through participatory, locally 

16 led programs, empowering marginalized groups such 

17 as youth and women, inclusive dialogues and conflict 

18 resolutions processes, justice sector reform, good 

19 governance across all sectors, community policing 

20 and civilian security, and accountable and fair serv21 ice delivery; 

22 (5) describe approaches that ensure national 

23 leadership where appropriate and participatory en24 gagement by civil society and local partners in the 

25 design implementation and monitoring of programs; 


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1 (6) assign roles for relevant Federal agencies to 

2 avoid duplication of efforts, while ensuring that— 

3 (A) the Department of State is responsible 

4 for leading the strategy, establishing United 

5 States foreign policy, advancing diplomatic and 

6 political efforts, and guiding security assistance 

7 and related civilian security efforts; 

8 (B) USAID is responsible for overseeing 

9 prevention programs, and is the lead imple10 menting agency for development, humanitarian, 

11 and related non-security program policy; 

12 (C) activities undertaken or supported by 

13 the Department of Defense in relation to the 

14 Global Fragility Strategy are established 

15 through joint formulation and with the concur16 rence of the Secretary of State; and 

17 (D) other Federal agencies support the ac18 tivities of the Department of State and USAID 

19 as appropriate, with the concurrence of the Sec20 retary of State and the Administrator of the 

21 United States Agency for International Devel22 opment; 

23 (7) describe programs that agencies will under24 take to achieve the stated objectives, including deVerDate Sep 11 2014 22:05 Mar 18, 2019 Jkt 089200 PO 00000 Frm 00004 Fmt 6652 Sfmt 6201 E:\BILLS\S727.IS S727

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1 scriptions of existing programs and funding by fiscal 

2 year and account; 

3 (8) identify mechanisms to improve coordina4 tion between the United States, foreign govern5 ments, and international organizations, including the 

6 World Bank, the United Nations, regional organiza7 tions, and private sector organizations; 

8 (9) address efforts to expand public-private 

9 partnerships and leverage private sector resources; 

10 (10) describe the criteria, metrics, and mecha11 nisms for monitoring and evaluation of programs 

12 and objectives in the strategy; 

13 (11) describe how the strategy will ensure that 

14 programs are country-led and context-specific; and 

15 (12) identify mechanisms or activities to reduce 

16 the risk that the programs, policies, or resources of 

17 the United States and its partners will facilitate cor18 ruption, empower or abet repressive local actors, or 

19 be exploited by extremists to gain support for their 

20 cause. 

21 (b) REPORT.— 

22 (1) IN GENERAL.—Not later than 270 days 

23 after the date of the enactment of this Act, the 

24 President shall submit to the appropriate congres25 sional committees a report setting forth the strategy 


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1 described in subsection (a), which shall be submitted 

2 in unclassified form, but may include a classified 

3 annex if necessary. 

4 (2) REPORT CONTENTS.—The report required 

5 under paragraph (1) shall include the elements de6 scribed in paragraph (3), and may include additional 

7 elements relevant to the strategy described in sub8 section (a). 

9 (3) REPORT ELEMENTS.—The elements re10 ferred to in paragraph (2) are as follows: 

11 (A) The objectives, general and specific, of 

12 the strategy. 

13 (B) An identification of the relevant Fed14 eral agencies that will be involved and the as15 signment of priorities to such agencies. 

16 (C) A description of the compact-based 

17 partnerships that will be established to ensure 

18 local leadership of strategies, policy, and pro19 grams, as well as mutual accountability for re20 sults and resources needed to support such 

21 partnerships. 

22 (D) Identification of the authorities, staff23 ing, and other requirements needed to effec24 tively implement the Global Fragility Strategy. 


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1 (E) A description of the ways in which 

2 United States leadership will be used to en3 hance overall international prevention efforts, 

4 including through increasing the engagement of 

5 the member states of the Group of Eight and 

6 Group of Twenty. 

7 (F) Identification of which officials of the 

8 Department of State, USAID, and the Depart9 ment of Defense, with a rank not lower than 

10 Assistant Secretary or Assistant Administrator, 

11 will be responsible for overseeing and leading 

12 the strategy. 

13 (G) A list of priority countries selected 

14 pursuant to section 102, including descriptions 

15 of the rationale for such selections. 

16 (c) STAKEHOLDER CONSULTATION.—The Global 

17 Fragility Strategy required under this section shall be de18 veloped in consultation with representatives of civil society 

19 and national and local governance entities in countries de20 scribed in section 103, as well as relevant international 

21 development organizations with experience implementing 

22 programs in fragile countries, multilateral organizations 

23 and donors, relevant private, academic, and philanthropic 

24 entities, and the appropriate congressional committees. 


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1 SEC. 102. SELECTION OF PRIORITY COUNTRIES. 

2 The President, in coordination with the Secretary of 

3 State, the Administrator of the United States Agency for 

4 International Development, and the Secretary of Defense, 

5 and in consultation with the appropriate congressional 

6 committees, shall select certain countries as ‘‘priority 

7 countries’’ for the purpose of implementing the strategy 

8 required under section 101(a)— 

9 (1) on the basis of— 

10 (A) the national security interest of the 

11 United States; 

12 (B) clearly defined indicators of the levels 

13 of violence or fragility in such, such as the 

14 country’s— 

15 (i) ranking on recognized global fra16 gility lists; 

17 (ii) ranking on select United States 

18 Government conflict and atrocity early 

19 warning watch lists; and 

20 (iii) levels of violence, including vio21 lence committed by armed groups, state 

22 actors, and violent extremist organizations, 

23 gender-based violence, and violence against 

24 children and youth; and 

25 (C) an assessment of the commitment and 

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1 ment entities and civil society partners in such 

2 country to work with Federal departments and 

3 agencies on the Global Fragility Strategy, in4 cluding by demonstrating commitment to— 

5 (i) improving inclusive, transparent, 

6 and accountable power structures, includ7 ing effective, legitimate, and resilient na8 tional and sub-national institutions; and 

9 (ii) ensuring strong foundations for 

10 human rights, rule of law, and equal access 

11 to justice; and 

12 (2) in a manner that ensures that not fewer 

13 than five countries are selected, and such countries 

14 are in the areas of responsibility of at least three ge15 ographic bureaus of the Department of State. 

16 SEC. 103. PRIORITY COUNTRY PLANS. 

17 Not later than one year after the date of the enact18 ment of this Act, the President, in coordination with the 

19 Secretary of State, the Administrator of the United States 

20 Agency for International Development, the Secretary of 

21 Defense, and the heads of other relevant Federal depart22 ments and agencies, shall submit to the appropriate con23 gressional committees ten-year plans to align and inte24 grate under the Global Fragility Strategy established pur25 suant to section 101 all diplomatic, development, security 


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1 assistance and cooperation, and other relevant activities 

2 of the United States Government with respect to each of 

3 the countries selected pursuant to section 102. Each such 

4 country plan shall include the following elements: 

5 (1) Specific multi-year interagency plans for co6 ordination and implementation under each such 

7 plan. 

8 (2) An up-to-date baseline analysis for each 

9 such country, including an analysis of power dynam10 ics, impacts of violence, and conditions that con11 tribute to violence and fragility. 

12 (3) Prioritized descriptions of the goals and ob13 jectives for stabilizing conflict-affected areas, reduc14 ing fragility, and preventing the spread of extremism 

15 and violence in each such country. 

16 (4) Descriptions of how and when the relevant 

17 goals, objectives, plans, and benchmarks for each 

18 such country will be incorporated into relevant 

19 United States country plans and strategies. 

20 (5) Interagency plans to ensure that appro21 priate local actors, including government and civil 

22 society entities, have an appropriate ownership stake 

23 in relevant activities under each such plan. 

24 (6) Interagency plans to integrate existing and 

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1 grams in each such country with the strategy, and 

2 to mitigate risks associated with such programs, in3 cluding risks related to corruption, governance, and 

4 human rights. 

5 (7) Assessment, monitoring, and evaluation 

6 frameworks for diplomatic, development, and secu7 rity activities, which shall be informed by consulta8 tions with the stakeholders specified in section 

9 101(c), with clear, date-certain metrics for each such 

10 country. 

11 (8) Descriptions of available policy tools and 

12 how such tools will be used to reduce fragility, pre13 vent the spread of extremism and violence, and sta14 bilize conflict-affected areas in each such country. 

15 (9) A description of how planning and imple16 mentation for each such country will be coordinated 

17 to ensure such planning and implementation are 

18 conducted in partnership between the United States 

19 Government and— 

20 (A) governments of such countries; 

21 (B) international development organiza22 tions; 

23 (C) relevant international donors; 

24 (D) multilateral organizations; and 

25 (E) the private sector. 


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1 (10) A regional component outlining plans to 

2 address relevant transnational issues and how such 

3 country is affected by or at risk of regional fragility 

4 or violence. 

5 SEC. 104. IMPLEMENTATION. 

6 The President, in coordination with the Secretary of 

7 State, the Administrator of the United States Agency for 

8 International Development, the Secretary of Defense, the 

9 heads of other relevant Federal agencies, relevant United 

10 States ambassadors, USAID mission directors, geographic 

11 combatant commanders, and other relevant individuals 

12 with responsibility over activities in each priority country 

13 selected pursuant to section 102, shall ensure that— 

14 (1) the Global Fragility Strategy required 

15 under section 101, including each of the country 

16 plans developed under section 103, is implemented, 

17 updated, and coordinated on a regular and iterative 

18 basis; and 

19 (2) the strategy is used to guide United States 

20 Government policy and incorporated into relevant 

21 strategies and plans across the United States Gov22 ernment such that the activities of all Federal agen23 cies are consistent with the strategy. 


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1 SEC. 105. BIENNIAL REPORTS AND CONGRESSIONAL CON2 SULTATION. 

3 (a) BIENNIAL REPORTS.—Not later than two years 

4 after the date of the enactment of this Act, and every two 

5 years thereafter until the date that is ten years after such 

6 date of enactment, the President, the Secretary of State, 

7 the Administrator of the United States Agency for Inter8 national Development, the Secretary of Defense, and the 

9 heads of other relevant Federal departments and agencies 

10 shall jointly submit to the appropriate congressional com11 mittees an unclassified report, which may include a classi12 fied annex, on progress made and lessons learned with re13 spect to the implementation of the Global Fragility Strat14 egy established pursuant to section 101. The report shall 

15 include the following elements: 

16 (1) Descriptions of steps taken to incorporate 

17 the strategy into any relevant, existing country and 

18 regional plans or strategies. 

19 (2) Accountings of all funding received and ob20 ligated to implement each such country and regional 

21 plan during the previous two years, as well as fund22 ing requested, planned, and projected for the fol23 lowing two years. 

24 (3) Descriptions of progress made towards 

25 achieving specific targets, metrics, and indicators for 

26 each priority country. 


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1 (4) Descriptions of any changes made to pro2 grams based on the results of assessment, moni3 toring, and evaluation for each priority country. 

4 SEC. 106. GAO REVIEW. 

5 (a) IN GENERAL.—Not later than two years after the 

6 date of the enactment of this Act, the Comptroller General 

7 of the United States shall consult with the appropriate 

8 congressional committees regarding opportunities for inde9 pendent review of the activities implemented under the 

10 Global Fragility Strategy established pursuant to section 

11 101. 

12 (b) AVAILABILITY OF INFORMATION.—The heads of 

13 relevant Federal departments and agencies shall ensure 

14 that all relevant data, documents, and other information 

15 is made available to the Comptroller General of the United 

16 States for purposes of conducting independent reviews 

17 pursuant to this section. 

18 TITLE II—AUTHORIZATION OF 

19 APPROPRIATIONS 

20 SEC. 201. STABILIZATION AND PREVENTION FUND. 

21 (a) ESTABLISHMENT.—There is authorized a fund to 

22 be known as the ‘‘Prevention and Stabilization Fund’’ (in 

23 this section referred to as ‘‘The Fund’’), which shall re24 place the Relief and Recovery Fund. 


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1 (b) AUTHORIZATION OF APPROPRIATIONS.—There is 

2 authorized to be appropriated such sums as may be nec3 essary for the Prevention and Stabilization Fund to sup4 port stabilization of conflict-affected areas and mitigate 

5 fragility, including through the Global Fragility Strategy. 

6 (c) PURPOSES OF THE FUND.— 

7 (1) IN GENERAL.—Amounts authorized to be 

8 appropriated to the Fund shall be used— 

9 (A) to support stabilization of conflict-af10 fected areas and prevent global fragility, includ11 ing through the Global Fragility Strategy estab12 lished pursuant to section 101; and 

13 (B) to provide assistance to areas liberated 

14 or at risk from, or under the control of, the Is15 lamic State of Iraq and Syria, other terrorist 

16 organizations, or violent extremist organiza17 tions, including for stabilization assistance for 

18 vulnerable ethnic and religious minority commu19 nities affected by conflict. 

20 (2) AMOUNTS IN ADDITION.—Amounts author21 ized to be appropriated to the Fund under this sec22 tion are in addition to any funds otherwise made 

23 available for the purposes described in paragraph 

24 (1). 


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1 SEC. 202. COMPLEX CRISES FUND. 

2 (a) ESTABLISHMENT.—There is authorized a fund, 

3 which shall be known as the ‘‘Complex Crises Fund’’ (in 

4 this subsection referred to as the ‘‘Fund’’), to be adminis5 tered by the United States Agency for International Devel6 opment, to support programs and activities to prevent or 

7 respond to emerging or unforeseen events overseas. 

8 (b) AUTHORIZATION OF APPROPRIATIONS.—There is 

9 authorized to be appropriated such sums as may be nec10 essary for the Fund, including to support the Global Fra11 gility Strategy, which shall remain available remain avail12 able until expended. 

13 (c) PURPOSES OF ASSISTANCE.—Notwithstanding 

14 any other provision of law, except section 620M of the 

15 Foreign Assistance Act of 1961 (22 U.S.C. 2378d), 

16 amounts in the Fund may be used to carry out the provi17 sions of the Foreign Assistance Act of 1961 (22 U.S.C. 

18 2151 et seq.) to support programs and activities to pre19 vent or respond to emerging or unforeseen events overseas, 

20 including through support to the Global Fragility Strat21 egy. 

22 (d) LIMITATIONS.— 

23 (1) IN GENERAL.—Amounts in the Fund may 

24 not be expended for lethal assistance or to respond 

25 to natural disasters. 


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1 (2) ADMINISTRATIVE EXPENSES.—Not more 

2 than five percent of the amounts in the Fund may 

3 be used for administrative expenses. 

4 (e) CONGRESSIONAL NOTIFICATION.—Not later than 

5 five days before amounts from the Fund are obligated, the 

6 Administrator of the United States Agency for Inter7 national Development shall submit notification of such ob8 ligation to the appropriate congressional committees. 

9 (f) WAIVER.—The notification requirement under 

10 subsection (e) be may be waived if— 

11 (1) notification by the deadline specified in such 

12 paragraph would pose a substantial risk to human 

13 health or welfare; and 

14 (2) the appropriate congressional committees— 

15 (A) are notified not later than three days 

16 after an obligation of amounts from the Fund; 

17 and 

18 (B) are provided with an explanation of 

19 the emergency circumstances that necessitated 

20 such waiver. 

21 TITLE III—PARTNERSHIP 

22 DEVELOPMENT FUND 

23 SEC. 301. ESTABLISHMENT OF FUND. 

24 (a) NEGOTIATIONS FOR ESTABLISHMENT OF

25 FUND.—The Secretary of State, in consultation with the 


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1 Administrator of the United States Agency for Inter2 national Development and the heads of other relevant 

3 Federal agencies, shall seek to enter into negotiations with 

4 key bilateral and multilateral donors, including the World 

5 Bank, and with developing countries where fragility 

6 threatens to exacerbate violent extremism and undermine 

7 development, including members of the g7+, toward the 

8 establishment, in accordance with the provisions of this 

9 title, of the Partnership Development Fund. 

10 (b) PURPOSES.—The purposes of the Partnership 

11 Development Fund shall be to use contributed funds— 

12 (1) to assist in addressing the sources of fra13 gility in priority countries selected pursuant to sec14 tion 102 of this Act or otherwise determined by the 

15 Partnership Development Fund; and 

16 (2) to strengthen national and local good gov17 ernance and conflict resolution capacity over the 

18 long-term, moving beyond uncoordinated, short-term 

19 investments by improving international coordination 

20 and enabling support for comprehensive, compact21 based agreements that support country-led strate22 gies. 

23 SEC. 302. CONSULTATIONS AND PROGRAMS. 

24 (a) ESTABLISHMENT OF PARTNERSHIP DEVELOP25 MENT FUND.—Not later than 90 days after the date of 


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1 the enactment of this Act, the Secretary of State shall con2 sult with the appropriate congressional committees on 

3 plans for the establishment of the Partnership Develop4 ment Fund, including the mechanism though which donor 

5 funds will be received and distributed, the makeup and 

6 composition of a Board of Directors, qualifications of such 

7 Board members, composition of a secretariat, and mecha8 nisms for oversight and accountability. The Board shall 

9 consist of representatives of participating donor countries, 

10 fragility- and conflict-affected countries, civil society, and 

11 multilateral and nongovernmental organizations. The 

12 President shall, with the advice and consent of the Senate, 

13 appoint a United States Board member and an alternate 

14 member for a four-year term. 

15 (b) PARTNERSHIP DEVELOPMENT FUND GRANTS.— 

16 The Partnership Development Fund shall provide grants 

17 to support policies and programs that assist recipient 

18 countries in achieving lasting stability, resilience to violent 

19 extremism, and development, including by building capac20 ity in national and local government, civil society, and the 

21 private sector. The Fund shall include criteria for can22 didate governments and nongovernmental entities to re23 ceive grants through multi-year, compact-based agree24 ments, established through inclusive and open processes 


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1 and that are linked to a national development plan and 

2 based on joint analysis and strategic planning. 

3 SEC. 303. CONGRESSIONAL REPORTS AND DISCLOSURE ON 

4 THE PARTNERSHIP DEVELOPMENT FUND. 

5 (a) REPORTS TO CONGRESS.— 

6 (1) ANNUAL REPORTS BY THE FUND.— 

7 (A) IN GENERAL.—Not later than one year 

8 after the date of the enactment of this Act, and 

9 annually thereafter for the duration of the 

10 Fund, the United States representative to the 

11 Fund shall provide to the appropriate congres12 sional committees a report on the Fund. 

13 (B) REPORT ELEMENTS.—The report re14 quired under subparagraph (A) shall include a 

15 description of— 

16 (i) the goals of the Fund; 

17 (ii) the programs, projects, and activi18 ties, including approaches to scaling pro19 grams, supported by the Fund; 

20 (iii) private and governmental con21 tributions to the Fund; 

22 (iv) the criteria for determining the 

23 programs and activities that should be as24 sisted by the Fund, and the metrics for the 


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1 monitoring and evaluation of such pro2 grams and activities; and 

3 (v) the country-level processes estab4 lished to support compact-based agree5 ments and promote international coordina6 tion. 

7 (2) GAO REPORT ON FUND EFFECTIVENESS.— 

8 Not later than three years after the date of the en9 actment of this Act, the Comptroller General of the 

10 United States shall submit to the appropriate con11 gressional committees a report evaluating the effec12 tiveness of the Fund, including— 

13 (A) the effectiveness of the programs, 

14 projects, and activities described in paragraph 

15 (1)(B)(ii) in violence reduction and mitigating 

16 fragility as a root cause; and 

17 (B) an assessment of the merits of contin18 ued United States financial contributions to the 

19 Fund. 

20 (b) PUBLIC DISCLOSURE OF ACTIVITIES.—Not later 

21 than 90 days after the end of each fiscal quarter, the Fund 

22 should make available to the public the following informa23 tion with respect to awarded grants: 

24 (1) The name of each entity to which assistance 

25 is provided. 


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1 (2) The amount of assistance provided to the 

2 entity. 

3 (3) A description of the compact-based agree4 ment, including a detailed description of the objec5 tives and measures for results of the program or 

6 project, which should continue to be monitored in 

7 the years following the end of the grant period to de8 termine the enduring impact of the grant. 

9 SEC. 304. AUTHORIZATION OF APPROPRIATIONS. 

10 In addition to any other funds authorized to be ap11 propriated for multilateral or bilateral programs related 

12 to conflict prevention, countering violent extremism, sta13 bilization, or economic development, there is authorized to 

14 be appropriated to the Department of State such sums 

15 as may be necessary for each of fiscal years 2020 through 

16 2022 for contributions to the Partnership. 

Æ 


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