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Leading through
Civilian Power2010 Quadrennial Diplomacy& Development Review
1
QDDRQuadrennial Diplomacy
& Development Review
Overview
Consultation Draft
2010 2014 2018 2022
November 2010
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To lead in this new century, we must
often lead in new ways.
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To advance American interests and values and to lead other
nations in solving shared problems in the 21st century, we
must rely on our diplomats and development experts as thefirst face of American power.
We must lead through civilian power.
Secretary of State Hillary Rodham Clinton
September 8, 2010
CONSULTATION DRAFT/NODIS
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Secretary Clinton launched the Quadrennial Diplomacy andDevelopment Review (QDDR) to improve the efficiency andeffectiveness of State and USAID in delivering results for theAmerican taxpayer, by modernizing their capabilities andaligning their efforts as core pillars of Americas civilian power
The QDDR began fourteen months ago. Many recommendedchanges are already underway; others will be implementedover the coming years
The QDDR is an ongoing commitment to review, right-size andinstitutionalize reform. The Report commits to the QDDR as aquadrennial exercise at State and USAID
What is the QDDR?
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Emergence of new centers of influence
Diffusion of economic power
A New Geopolitical andGeoeconomic Landscape
As new partners
As new threats
Diffusion of Power to Non-State Actors
36 active conflicts, 55 fragile states
Acute natural disasters and humanitarian emergencies
Military and civilian missions increasingly overlap
Growing Costs of ConflictCrisis, and State Weakness
Technological innovation
New connectivity
Evolving role of public opinion
The Pace of Global Events Has
Accelerated
Increasingly states domestic government agencies are increasinglyworking abroad to fulfill mandate
The Line Between Domesticand International Politics has
Blurred
Trends Reshaping the Global Landscape
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Diplomacy and development must be mutually reinforcingEffective Civilian Power
Responding to global challenges requires civilians to move beyondthe Embassy and into the field, carrying out programs, and engagingwith diverse sectors of the population on the ground
Global Civilian Operations
Embracing and leveraging the contributions of all U.S. agenciesoperating overseas and coordinating their efforts in-country
A New Approach toInteragency Collaboration
Anticipating, preventing and responding with flexible, rapid and
integrated capabilities
Adapt and Thrive in a Rapidly
Changing World
Consolidating, streamlining and identifying efficiencies in currentoperations
Measuring success of outcomes, not inputs
Aligning personnel and procurement with strategic objectives
Focus on Cost-Effectivenessand Results
QDDR Driving Ideas
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Adapting Diplomacy to Meet 21st CenturyChallenges
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Challenge
The current international order was created for the world of 1945
Diplomacy, today, has become more complicated:
Ideological blocs have dissolved requiring greater engagement ofindividual states
Emerging powers influence global affairs
Regional organizations are on the rise
International organizations have proliferated: new institutionsneed clear direction; existing institutions need updating andreform
Virtually every nation has the technological and political meansto make its voice heard and its power felt
QDDR Response
Lead and institutionalize Strategic Dialogues withemerging powers
Enhance regional capabilities through designatedregional hubs and issue-specific experts engagingregional organizations
Reform and deliver results through multilateralinstitutions by elevating multilateral affairs inregional bureaus and linking bilateral, multilateraland regional diplomacy
Building a New Global Architecture of Cooperation
8CONSULTATION DRAFT/NODISAdapting Diplomacy to Meet 21st Century Challenges
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Challenge
A striking aspect of the diplomatic landscape today is theexpanding role government agencies play overseas
Breadth and depth of expertise across the interagency is
a potent force for U.S. foreign policy
To be effective, the international efforts of diverseagencies must be coordinated and complementary
QDDR Response
Empower and hold accountable Chiefs of Mission asCEOs of multi-agency missions and engage them in high-level interagency decision-making in Washington
Develop a response framework that outlines interagencyroles and responsibilities and procedures for planningand responding to crisis
Draw on the skills and expertise of other agencies beforeturning to contractors
A New Approach to Interagency Collaboration
9CONSULTATION DRAFT/NODISAdapting Diplomacy to Meet 21st Century Challenges
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Challenge
Transnational issues (e.g., energy,economics, human security)overlap multiple bureaus
Insufficient internal coordinationacross issues limits our ability toadvance objectives in Washingtonand overseas
The changing global context andtodays pressing challenges requirea different approach and distinct
capabilities
QDDR Response
To streamline operations and improve outcomes consolidate functional issuesand realign bureaus
Consolidate human security functions: Reorganize to establish the Office of the
Under Secretary for Civilian Security, Democracy, and Human Rights
Consolidate transnational issues: Reorganize to establish the Office of theUnder Secretary for Economic Growth, Energy, and Environmental Affairs
Prioritize energyincluding energy security and energy accessbyconsolidating all energy matters into a Bureau of International Energy Affairs
Increase focus on the use of illicit financial networks by consolidating effortsunder a Special Coordinator for Sanctions and Illicit Finance
Organizing the State Department to Address
21st Century Challenges
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Adapting Diplomacy to Meet 21st Century ChallengesCONSULTATION DRAFT/NODIS
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Deputy Secretary of StateD(L)
Secretary of State(S)
Executive Secretariat
(S/ES)
Executive Secretary
United StatesDepartment of State
Under Secretary for Economic
Growth, Energy and EnvironmentUnder Secretary for Political Affairs
(P)
Under Secretary for Arms Control
and International Security Affairs
(T)
Under Secretary for Management(M)
Under Secretary for Public
Diplomacy and Public Affairs
(R)
Under Secretary for Civilian
Security, Democracy and Human
Rights
African Affairs
(AF)
Assistant Secretary
South and Central AsianAffairs
(SCA)
Assistant Secretary
International Organizations(IO)
Assistant Secretary
Western Hemisphere Affairs
(WHA)
Assistant Secretary
Near Eastern Affairs
(NEA)
Assistant Secretary
European and Eurasian
Affairs
(EUR)Assistant Secretary
Political-Military Affairs
(PM)
Assistant Secretary
Verification, Compliance andImplementation
(VCI)
Assistant Secretary
International Security andNonproliferation
(ISN)
Assistant Secretary
Administration
(A)
Assistant Secretary
Information ResourceManagement
(IRM)Chief Information Officer
Overseas Buildings
Operations
(OBO)Director
Foreign Service Institute
(FSI)Director
Consular Affairs
(CA)
Assistant Secretary
Diplomatic Security and
Foreign Missions
(DS)Assistant Secretary
Resource Management(RM)
Chief Financial Officer
Democracy, Human Rights
and Labor(DRL)
Assistant Secretary
Population, Refugeesand Migration
(PRM)
Assistant Secretary
Public Affairs(PA)
Assistant Secretary
Education and CulturalAffairs
(ECA)Assistant Secretary
International Information
Programs(IIP)
Coordinator
Economic Growth &
Business Affairs
Assistant Secretary
Deputy Secretary of StateD(S)
Counselor and Chief of Staff
(S/COS)
United States Agency forInternational Development
(USAID)
Administrator
United States Permanent
Representative to the United Nations
(USUN)
East Asian
and Pacific Affairs
(EAP)
Assistant Secretary
Human Resources
(HR)Director General of the
Foreign Service and Director
of Human Resources
Medical Services
(M/MED)
Director
Office of
Civil Rights
(S/OCR)
Director
Office ofU.S. Foreign Assistance
(F)Director
Intelligence and
Research
(INR)
Assistant Secretary
Office forCounterterrorism
(S/CT)
Coordinator andAmbassador at Large
Office of Global
Womens Issues
(S/GWI)
Ambassador atLarge
Office of GlobalAIDS Coordinator
(S/GAC)Ambassador at Large
Office of the
Chief of Protocol
(S/CPR)
Ambassador
Legislative Affairs
(H)
Assistant Secretary
Office of Policy
Planning
(S/P)Director
Crisis and Conflict
Operations
(encompasses S/CRS)Assistant Secretary
Office of
Legal Adviser
(L)
Legal Adviser
Office ofInspector General
(OIG)
Inspector General
Office to Monitor and
Combat Traffickingin Persons
(G/TIP)
Ambassador at Large
International Energy
AffairsAssistant Secretary
(encompasses S/IEC and
S/EEE)
Oceans and Int'l
Environmental and ScientificAffairs
(OES)
Assistant Secretary
International Narcotics and
Law Enforcement
(INL)Assistant Secretary
Office of
War Crimes Issues
(S/WCI)
Ambassador at Large
Adapting Diplomacy to Meet 21st Century Challenges CONSULTATION DRAFT/NODIS
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Challenge
Public opinion increasingly matters in overseasdomestic and international politics, even inauthoritarian states
Non-state actors, ranging from non-governmental organizations to businesses,religious groups to community organizations, areplaying an ever greater role in internationalaffairs
Diplomats must have the time, tools andcapabilities to advance US interests beyond thecapitol
QDDR Response
Integrate public diplomacy as a core diplomatic missionthroughout the State Department and particularly in regionalbureaus
Implement a 21st century statecraft agenda with particular focus
on technology, women and girls, and community diplomacy
Revise the current risk management posture to enable State,USAID and other civilian officials to engage more broadlyyetresponsiblywith communities
Provide personnel with communication tools for 21st centuryengagement
Make it easier for the private sector to partner with the U.S.Government
Engaging Beyond the State
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Reforming Development to Deliver Results
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USAID Global Presence
CONSULTATION DRAFT/NODIS
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Challenge
To be world class in any area ofdevelopment requires both depth and scale.It also requires that diplomacy anddevelopment are mutually reinforcing
Too often productive members of societiesare excluded
Feed the Future (FTF) and the Global HealthInitiative (GHI) are foreign policy prioritiesthat require the U.S. to demonstrate a newway of working in diplomacy anddevelopment: building sustainable systems;collaborating and acting as a one
government across U.S. agencies; and,partnering with other countries, multilateralinstitutions, NGOs and the private sector
QDDR Response
Consistent with the Presidential Policy Directive on Global Development,concentrate programming by focusing investments in areas in which wehave a comparative advantage:
Sustainable Economic Growth
Democracy and Governance
Food Security Global Health
Climate Change
Humanitarian Assistance
Integrate women and girls participation, protection and outcomes in todevelopment programs
USAID will assume leadership and accountability for the Global Hunger andFood Security Initiative. As USAID builds capacity and achieves definedbenchmarks, it will assume leadership of the Global Health Initiative
Greater Coordination and Focus
14CONSULTATION DRAFT/NODISReforming Development to Deliver Results
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Challenge
Country ownership is critical to achieving sustainability
The number and types of actors in the development arenacontinues to increase, but coordination has not kept pace
Todays international landscape requires more developmententrepreneurs like those who helped lead the Green Revolutionand develop oral rehydration therapy
Successful development programs must be scalable andsustainable
Development has evolved into a measurable discipline, requiringevaluation, monitoring and results
QDDR Response
Focus on partnerships, not patronage, by expandingcollaboration with: national and local governments;bilateral, multilateral and private donors; and in-countrylocal implementers
Innovation as a driver of sustainable development:incentivize, incubate, scale, and leverage science andtechnology
Establish Development Innovation Ventures (DIV) todevelop breakthrough ideas and game changingapproaches within USAID and the developmentcommunity
Engage professionals from leading academicinstitutions, social entrepreneurial ventures and theprivate sector to work with USAID through anInnovation Fellowship program
Measure outcomes, not inputs
Monitoring and evaluation capabilities
Transparency
Sustained commitment for results
High Impact Development
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Preventing and Responding to Crisis, Conflictand Instability
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From The Failed States Index 2010Collaboration between Foreign Policyand The Fund for Peace*
*Not an official USG product CONSULTATION DRAFT/NODIS
E b C fli P i d R
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Challenge
Crisis, conflict and instability in the world threaten U.S. interests andnational security
Since the end of the Cold War, State and USAID have steadily takenon more missions in dangerous places, focusing on conflictprevention, mitigation and resolution, stabilization, facilitating
political transitions, and protecting displaced populations
More than 25 percent of State Department and 38 percent of USAIDofficers serve in the 30 countries classified as highest risk for conflictand instability
As the speed, scope, and scale of conflicts and crises increase, Stateand USAID need a new approach to conflict and crisis prevention
and response
Investments in civilian activities today can avert costly militaryinterventions tomorrow
QDDR Response
Recognize conflict prevention and response as adistinct discipline
Build a center of excellence, compiling knowledgeand best practices on conflict prevention
Better support embassies and USAID missions forcrisis and conflict prevention and response
Establish an Under Secretariat for Civilian Security,Democracy, and Human Rights
Recognize the role of women in conflict prevention
and recovery
Strengthen security and justice sector assistancecapability as key prevention and response tool
Embrace Conflict Prevention and Response as a
Core Mission
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Preventing and Responding to Crisis, Conflict and InstabilityCONSULTATION DRAFT/NODIS
P S d USAID f
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Challenge
Adopting crisis response and prevention asa core mission requires new tools, training,personnel and ways of doing business, bothin Washington and in the field
We have not successfully institutionalizedmechanisms and approaches that can beapplied across a range of crises andconflicts
We need to recruit and train technicalexperts, and institutionalize structures thatensure our work delivers the best results
QDDR Response
Lead agency approach: State will lead in political and security crisesand conflicts; USAID will lead in humanitarian crises caused by large-scale natural disasters, famines, disease, etc. USAID drives humanitarianresponse under State lead in acute political and security situations likePakistan
Consolidate State expertise into a Bureau for Crisis and ConflictOperations (CCO) encompassing the operations of S/CRS and crisis andconflict prevention capabilities
Build deployable civilian surge capability by making the CivilianResponse Corps more flexible and cost-effective
Expand the USAID Office of Transition Initiatives (OTI) and reinforce in-
country reporting to the Chief of Mission
As the CCO bureau evolves, review the best location to support andfulfill the political mandate of OTI
Prepare State and USAID forCrisis Response and Prevention
19CONSULTATION DRAFT/NODISPreventing and Responding to Crisis, Conflict and Instability
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Secretary of State Hillary Rodham Clinton
1/23/09
Working Smarter
Department of State
and USAID Presence
CONSULTATION DRAFT/NODIS
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Challenge
U.S. diplomats and development experts are thebackbone of Americas civilian power. State and USAID
must recruit, train and retain a 21st century workforce
Over the past five years, State and USAID have beencalled upon to significantly expand their presence andoperations in frontline states such as Afghanistan,Pakistan, and Iraq
Global civilian operations require a workforce that is
ever more innovative, entrepreneurial, collaborative,agile and capable of taking and managing risk
QDDR Response
Close the experience gap by tripling mid-level hires in theDevelopment Leadership Initiative at USAID and expandinglimited-term appointments at State
Recruit and retain highly skilled Foreign Service Nationals
by creating expert level positions at USAID
Seek more flexible hiring authorities to attract expertise;enlarge the pool of candidates with specialized skills
Expand Foreign Service Officer conversion opportunitiesfor State Department Civil Service and Foreign Servicepersonnel
Tie promotion to training and expand the range of trainingopportunities
Recruiting, Training and Retaining a
21st Century Workforce
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Challenge
Though State and USAIDs responsibilities in thefrontline states have expanded, staffing levelshave stagnated
Much of what used to be the inherent work ofgovernment has been sourced to privateactorsboth for-profit and not-for-profit
Contracts and grants themselves have becomehigh-profile instruments of U.S. diplomacy anddevelopment
QDDR Response
Build and rebalance the workforce: Improve oversight andaccountability by in-sourcing positions appropriate for direct hirepersonnel at State and expanding direct hire staff at USAID
Enhance competition for contracts by broadening the partnerbase through smaller and more focused awards by USAID anddividing large State contracts into discrete units
Leverage increased use of local partner country systems tostrengthen local government, civil society and private sectorcapacity
Draw on the personnel of other agencies before turning tocontractors
Reforming Contracting and Procurement
22CONSULTATION DRAFT/NODISWorking Smarter
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Challenge
Ability to make sound decisionswhile maximizing the impact ofresources is essential to fulfillingour mission
State and USAID must bothrationalize and improve planningand budgeting processes
The ability to publicly justify Stateand USAID activities anddemonstrate results requiresexpanded measurement and
evaluation capabilities andevidence-based decision-making
QDDR Response
Elevate strategic planning by charging States and USAIDs policy planningofficestogether with the Deputy Secretary for Management and Resourceswith responsibility for developing high-level guidance that leads to a jointState/USAID Strategic Plan
Based on the guidance and Joint Strategic Plan, Chiefs of Mission will produce a
multiyear Integrated Country Strategy that combines all elements of country-level planning into a single strategy. USAID will lead the formulation of thedevelopment component of Integrated Strategies
Integrated Country Strategies will serve as the basis for mission and bureaubudget requests
State and USAID must both strengthen and rationalize planning and budgeting
processes
State and USAID will emphasize results by measuring outcomesnot inputsand improving monitoring and evaluation capabilities
Planning and Budgeting for Results
23CONSULTATION DRAFT/NODISWorking Smarter
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Planning and Budgeting with the Department of Defense
to Meet National Security Requirements
24CONSULTATION DRAFT/NODISWorking Smarter
Challenge
[T]he United States interagency tool kit is still ahodgepodge of jury-rigged arrangements constrainedby a dated and complex patchwork of authorities,persistent shortfalls in resources, and unwieldy
processes. Secretary of Defense Robert Gates
Todays most pressing challenges demand acomprehensive response that integrates civilian andmilitary power and allows us to deploy these tools in acoordinated and flexible way
QDDR Response
Apply joint planning and budgeting processesdeveloped in Iraq and Afghanistan to other complexsituations as we examine the creation of a unifiedNational Security Budget
Establish an Overseas Contingency Operations title inState/USAIDs annual budget to reflect theextraordinary civilian costs and whole of governmenteffort in frontline states
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The Quadrennial Diplomacy and Development Review is an ongoingcommitment. Some of these recommendations are already underway; manywill be launched in the next year; and some require a longer period toimplement and achieve
The Deputy Secretary for Management and Resources and the USAIDAdministrator will oversee QDDR implementation
Secretary Clinton is committed to ensuring these changes are made and thebenefits of civilian power are realized
Implementation
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Our security depends upon diplomats whocan act in every corner of the world, fromgrand capitals to dangerous outposts;development experts who can strengthengovernance and support human dignity; andintelligence and law enforcement that canunravel plots, strengthen justice systems, andwork seamlessly with other countries.
President Barack Obama
May 27, 2010
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