Somalia Confedential document -Vision 2016: Framework for Action !

                                                 
     In parallel with the formation of Federal Member States, FGS will take the lead in putting in place inter-regional mechanisms that promote political unity, harmonised legislation, unified standards and coordinated policies and programmes. These include the formation of an Inter-Regional Consultative Forum, pending establishment of the full Inter-State Commission established by the Provisional Constitution, in order to initiate nationwide dialogue on issues such as the distribution of powers and authorities, management of natural resources, and revenue sharing.

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VISION 2016: FRAMEWORK FOR ACTION

Mogadishu, Somalia

February 2014

Vision 2016: Framework for Action2

Overview2

Principles2

Priorities2

Review and Implementation of the Provisional Constitution2

Federalism, Boundaries and Resource Sharing2

Democratization, the Electoral Process and Party Politics3

General Framework for Action3

Vision 2016:  Draft Roadmap – Key Activities & Outputs6

Calendar of Activities and Outcomes:  March 2014 – Dec 201519

Diagram 1:  Articulation of Three Goals of Vision 201628

Diagram 2:  Constitutional Review Process29

Diagram 3:  Formation of Federal Member States30

Vision 2016: Framework for Action

Overview

With over one year into its term of office, having made key adjustments in its structure and laid the foundations upon which the restoration of government and administration can proceed, the Federal Government of Somalia (FGS) is assigning greater emphasis to its next major priority: a successful transition to democracy by the completion of its term of office in 2016. 

The Provisional Constitution provides overall direction toward fulfilment of these objectives. However, in view of time constraints, the government intends to prioritize those tasks that are most critical to the establishment of national institutions grounded in democratic legitimacy.

The three foundational elements of the government’s strategy are:

• Constitutional review and implementation
• Completion of the federal system
• Democratization

Although these tasks are entrusted to Parliament, based on the recommendations of the relevant independent national commissions established by the Provisional Constitution, the government must exercise leadership in creating an enabling environment for parliament to complete its duties successfully, that it possesses the requisite human and financial resources, and to ensure that it does so in a timely manner.   The government believes that successfully achieving the goals of Vision 2016 will require full alignment with the principle of political inclusion clearly articulated in PSG 1 of the "New Deal.”

Principles

The Vision 2016 strategy will be infused by a sense of urgency and guided by the following core principles: 

• All aspects of the process shall be Somali-owned, inclusive, transparent and consistent with the Provisional Constitution;
• The Government shall promote and protect the independence, integrity, and credibility of the constitutionally mandated Commissions;
• The implementation of Vision 2016 shall be situated in the context of a comprehensive reconciliation process that promotes national cohesion and integration;
• Management of the process shall be anchored in the principles and practices of integrity and good governance.

Priorities

Review and Implementation of the Provisional Constitution

It is the duty of Somalia’s Government and Parliament to complete the national Constitution, through amendment of certain articles and enactment of legislation identified in Schedule One of the Provisional Constitution. 

It is essential that these actions, which are entrusted to the Parliamentary Oversight Committee and the Review and Implementation Commission, be as inclusive as possible, and informed by nationwide consultations. In addition to the representation of existing Federal Member States on the Commission, the views of Interim Regional Authorities, community leaders and civil society should all be heard and taken into account.

Federalism, Boundaries and Resource Sharing

Establishment of a federal system should serve a dual purpose: bringing government closer to the people, while safeguarding Somali unity.

In line with the Provisional Constitution, the establishment and delimitation of Federal Member States shall be a voluntary process based upon considerations of political and economic viability, demographic composition and, as far as possible, respect for existing regional boundaries. This process must be approached with great sensitivity and every effort taken to ensure that it does not engender renewed conflict. The Government therefore intends to ensure that the completion of the federal system is achieved through dialogue and the pursuit of reasonable consensus – not by imposition or coercion.

In parallel with the formation of Federal Member States, FGS will take the lead in putting in place inter-regional mechanisms that promote political unity, harmonised legislation, unified standards and coordinated policies and programmes. These include the formation of an Inter-Regional Consultative Forum, pending establishment of the full Inter-State Commission established by the Provisional Constitution, in order to initiate nationwide dialogue on issues such as the distribution of powers and authorities, management of natural resources, and revenue sharing.

Democratization, the Electoral Process and Party Politics

The establishment of a functional democracy is a complex proposition: the rules and legislation governing the formation of political parties and organisation of elections will require deep consideration, extensive consultation and public awareness. The Government believes that these challenges must be approached in a way that promotes national cohesion, not division; political choices based on issues, rather than identity; and the accountability of leadership to the electorate.

The Provisional Constitution mandates the current parliament to conduct these tasks only at the federal level. It is therefore highly unlikely that the procedures for state and local elections, which must await the formation of Federal Member States and their legislatures, can be completed by 2016. The administration nevertheless fully intends to lay the political and legal foundations for the completion of these tasks under the auspices of the next Somali Federal Government.

The Government also intends to propose contingency measures that would provide for representation from any part of the country that remains to unstable or insecure to participate in national elections in 2016.

General Framework for Action

The fulfilment of Vision 2016 requires dedicated, determined and closely coordinated action on the part of various entities: the Federal Government (specifically the Ministry of Interior & Federalism and the Ministry of Justice and Constitutional Affairs, Parliament, Independent National Commissions, Federal Member States and Interim Regional Authorities, as well – in some cases – other relevant ministries or government agencies. The Government therefore intends to establish an Inter-Institutional Coordination Unit (IICU) to oversee the implementation of Vision 2016. Responsible to both the Executive and the President, the IICU will have the mandate to energize, coordinate and support the Vision 2016 process.

March 2014	Approval of the Vision 2016 program and structure The IICU’s primary function will be to coordinate and support the actions of the executive, legislature, Independent National Commissions and other relevant actors in order to meet  agreed objectives under the three main components of the government’s strategy: Constitutional review and implementation Completion of the federal system Democratization
May 2014	Establishment of Independent National Commissions The Provisional Constitution requires the establishment of nine (9) independent national commissions, of which four are directly related to the Vision 2016 strategy: Constitutional Review and Implementation Commission (May 2014) Boundaries and Federation Commission  (June 2014) National Independent Electoral Commission (Oct 2014 ??) Inter-State Commission (addressed below) The independence, integrity and credibility of these Commissions is paramount if they are to succeed in their tasks. The government aims to have the first three (3) of these established by the end of May 2014. This will require, inter alia: Drafting and passage of robust, well-crafted legislation; Appointment of Commissioners who possess the required skills, experience and the integrity, while reflecting the diversity of the nation’s regional and political perspectives, including gender balance; Although the Commissions must be independent of Government or political control, Federal Member States and Interim Authorities will be consulted with respect to suitable candidates;
Aug 2014	Formation of the Inter-Regional Consultative Forum The Inter-State Commission (ISC) will serve as a principal venue for dialogue and negotiation between the Federal Government and Member States, and is mandated to resolve any administrative, political or jurisdictional disputes. However, since the ISC will only be established once the Federal Member States have been formed and approved by parliament, the Government, under the leadership of the Ministry of Interior and Federalism, proposes to convene, ad interim, an Inter-Regional Consultative Forum (IRCF), comprising representatives of Member States and Interim Regional Authorities, to initiate national dialogue on key aspects of federalism, including the transparent, effective and equitable management of natural resources and revenues.
April 2014 –Sept 2016	Harmonisation of policies, programmes and institutions In parallel with the consultations envisaged under the IRCF, the Government will engage in proactive dialogue with FMS and IRAs in order to begin the process of harmonising policies, programmes (e.g. social services) and institutions (e.g. accounting procedures, civil service standards etc.).
May 2014 - Dec 2015	State formation, boundary delimitation and the Inter-State Commission Given the existence of Puntland and the establishment of the Jubba Interim Administration, which aspires to become an FMS, there remain 7 regions (including south Mudug) yet to conduct mergers. This implies the establishment of 2-3 more FMS. It is the intention of the Government that Interim Regional Authorities be established for these regions by December 2014, in order to allow the Boundaries and Federation Commission another 6 months (until June 2015) to assess and make recommendations on any areas of contention.
Dec 2015	Establishment of the Upper House of Parliament Following the official establishment of the FMS, the Government proposes to invite the FMS to nominate representatives to the Upper House of Parliament, pending approval of the electoral law.
June 2015 – March 2016	Review and adoption of the Constitution and Electoral Law The Parliament tentatively envisages the adoption of the new Constitution by March 2016, which would require a draft text to be ready for public and parliamentary review by June 2015. Politically, it would be unwise to pass the Electoral Law without the endorsement by the FMS, since they may obstruct or interfere with any subsequent electoral process of which they disapprove. The Government therefore proposes to initiate consultations prior to that date in the context of the IRCF, so that the Law may be passed as soon as possible after the formation of the remaining FMS.
March 2016 – Sept 2016	Referendum and conduct of the electoral process To take place between these dates.

Vision 2016:  Draft Roadmap – Key Activities & Outputs

V 2016 Strategic Goal 1 Creation and launch of V16 & Inter-Institutional Coordination Unit (IICU)
Key Activities & Outputs	Responsibility	Completion Date	Observations
Development of Vision 2016 Roadmap that integrates the work plans of the Ministry of Justice and Constitutional Affairs, the Ministry of Justice & Federalism, and the Speaker of Parliament into one coherent plan for achieving the transitional tasks identified in V2016.  Plans drafted within Ministry of Justice & Constitutional Affairs and Ministry of Interior and Federalism Meeting between both Ministries and Speaker to ensure close alignment of expectations, roles and timelines Development of structure and terms of reference for V16 Inter-Institutional Coordination Unit (IICU-V16) and mobilize Completion Date Draft structure of Inter-Institutional Coordination Unit (IICU) that describe roles, responsibilities, and mechanisms and clear ToRs for each member of the IICU team.  Appointment by both Ministries of key individual responsible for implementation and liaising across other relevant institutions (member of IICU) Appointment by President of V2016 Coordinator of IICU Design of Vision 2016 Monitoring Mechanism (MM) – promotion of principles of transparency and accountability Mobilize Completion Date Formal Launch of V 2016 Plan and Structure Review and validation of the V2016 Roadmap and IICU structure by President, Prime Minister, Speaker  V16 Launch workshop with V16 IICU, relevant Ministries and Authorities (Parliament Technical Committee, Regional representatives) - Purpose to build alignment and promote ownership of V16 vision and process Political outreach to existing/emerging FMS and invitation to V16 launch (principle of inclusion, ownership and legitimacy) Full day workshop (prior to press release) Joint press statement from President, Prime Minister and Speaker that launches V16 Roadmap, IICU and Monitoring Mechanism Development of capacity within all relevant technical/political teams associated with V16 in the design and implementation effective approaches to civic engagement, democratic dialogue and public deliberation Design of capacity development program consisting of training/facilitated working retreats, case clinics and coaching/accompaniment mechanisms Identification of relevant actors Implementation of process	Minister of Justice & Constitutional Affairs and Minister of Interior & Federalism (V16 Ministers) President - with Prime Minister V16 Ministers President President President/Prime Minister/Speaker IICU with support from IP Participation from both Ministries and other relevant offices	March 2014 March 2014 April 2014 May 2014 April 2014 May-Aug 2014	IICU – includes liaison from both Ministries, Speaker’s Office (and possibly Parliamentary Technical Committee), Coordinator from Presidency, Technical staff) Need for periodic consultations with international community (UNSOM, EC, US, UK etc.) to obtain buy-in.  PSG 1 might be appropriate mechanism for taking on the role of Champion and Monitor of V16

Constitutional Review - Strategic Goal 1 Creation and Launch of Independent Constitution Review & Implementation Commission  ICRIC & coordination mechanisms with existing Parliamentary Technical Committee
Key Activities & Outputs	Responsibility	Completion Date	Observations
Agreement between Ministry of Justice and Constitutional Affairs and Speaker to adopt V16 branch on Constitutional Review (implied above in joint agreement and press release on V16 and launch of V16 IICU) Half day working session with Parliamentary Constitutional Review Technical Committee (PTC) with expert input to 1) present V16 structure; 2) exchange information on structure, process, and progress of revisions; 3) agree on timeline and identify potential challenges that may occur and strategies for addressing them.  Establish Independent Constitution Review & Implementation Commission (ICRIC) Draft structure, process proposal and Terms of Reference (ToRs) for consideration of ICRIC Pass ICRIC legislation Name candidates for ICRIC Parliament approval of ICRIC members ICRIC orientation workshop to 1) present V16, 2) receive brief from PTC on progress made and proposed structure of revisions, 3) build alignment around principles, timelines and engagement strategies. (representatives from PTC participate)	Minister of Justice and Constitutional Affairs with Speaker Jointly convened by Minister and Speaker, (with facilitation)  Minister Speaker Minister – P/PM Speaker Convened by IICU-Speaker/Minister (with facilitation)	March 2014 April 2014 May 2014 May 2014	Possible strategy: Name four non-Darod MPs and one Darod Commissioner from Puntland through careful outreach and consultation with Puntland Authorities

Constitutional Review - Strategic Goal 2 Draft set of revisions completed
Key Activities & Outputs	Responsibility