Policy paper

Communique by the Federal Government of Somalia and the United Kingdom of Great Britain and Northern Ireland on the signing of a strategic partnership

Published 21 November 2023

This was published under the 2022 to 2024 Sunak Conservative government

Introduction

1. The UK and Somalia enjoy a close, longstanding and strategic partnership focused on shared priorities of state-building, security, counter-terrorism, economic development, human development and tackling climate change. As the first Western country to re-open its Embassy in Mogadishu a decade ago, the UK, through bilateral engagement and convening key international partners, has bolstered Somali-led efforts to strengthen Somalia’s federal system, help reduce conflict and instability, support economic and social development, and champion Somalia in international fora.

2. The Federal Government of Somalia (FGS) continues to make progress towards building a stable, democratic and prosperous Somalia. It is on the front line of a global battle against violent extremism, pursuing a comprehensive approach to countering al-Shabaab (AS).  Graduating from the Highly Indebted Poor Country Initiative later this year will mark a key milestone and is the culmination of a decade long process, supported by the UK as debt relief champion.

3. Through our strategic partnership, we have agreed shared, long-term, strategic objectives on alongside our priorities for action over the short to medium term.  While our partnership is wide-ranging, we agree that state building and good governance are fundamental for ensuring progress more broadly across security, counter-terrorism, economic growth, human development and responding to climate change.

Pillar 1: Inclusive and accountable governance

4. Our common long term objective is a stable, prosperous Somalia.  This will be delivered through a federal model that works for all and that is held accountable through regular, transparent and democratic processes.  Such a model will be underpinned by public institutions capable of delivering services, enforcing regulations and managing resources effectively, whilst ensuring respect for human rights, in line with Somali and international human rights laws.

5. We agree that establishing inclusive political processes and promoting comprehensive reconciliation is necessary for the realisation of the aspirations of the Somali people, as is strengthening the capacity and capability of Somali institutions and the continued strengthening of public financial management systems.

6. We are already working together to achieve this aim through regular bilateral and multilateral engagement, including at the UN Security Council and UN Human Rights Council where the UK is penholder and joint penholder respectively on Somalia and seeks to align mission mandates with FGS priorities.  We also engage on migration issues across a range of Somali and UK priorities, including the celebration of the Somali diaspora population in the UK.

7. To support continued progress on inclusive and accountable governance over the short to medium term, the UK will focus its support on three FGS priority areas:

i. Strengthening democracy and the federal system: FGS will strengthen transparent and inclusive parliamentary process to enshrine National Consultative Council agreements, prioritising the development of a plan for elections at federal and local levels whilst promoting reconciliation with and between Federal Member States and maintaining dialogue with Somaliland authorities.  FGS will also expand opportunities for citizen participation in government decision making processes.

In support of this objective, the UK will work with the UN Assistance Mission to Somalia (UNSOM) to eventually transition into a country team ensuring UN’s mandate meets the post-2024 needs of Somalia. 

As a leading partner on the multi-donor Somalia Stability Fund (SSF) the UK, in consultation with the FGS and FMS will also continue to work with other donors to the SSF to support government initiatives that enable progress on political settlements (including the constitutional review), democratisation, reconciliation and strengthening governance and accountability.

ii. Bolstering public financial management, embedding fiscal federalism and tackling corruption: FGS will implement systems relating to fiscal federalism and promote continued improvements in public financial management through strengthened financial oversight and anti-corruption measures, holding public officials accountable.

In support of this objective and in close coordination with the FGS, the UK will provide technical assistance and advice to develop sound public financial management systems in four FMS.  In addition, the UK will provide analysis and technical advice to the FGS and FMS in relation to the fiscal federalism framework. The UK will also support the FGS to improve transparency and accountability in the management of public finances through capacity building and system strengthening, reducing scope for corruption in the civilian and security sectors.

iii. Promoting respect for human rights and the rule of law:  FGS commits to enhancing its efforts to protect and promote Human Rights, including through progressing recommendations from the Universal Periodic Review (UPR).  It also commits to continue integrating civilian protection into security and stabilisation planning and that Somali Security forces are trained and equipped to undertake age assessment, screening procedures, and the handover of minors to child protection actors for reintegration support.  FGS is also seeking to strengthen the rule of law by reforming the judiciary, improving legal frameworks, and ensuring equal access to justice for all citizens.

In support of this objective, the UK will continue to work with the FGS to co-lead the resolution providing for the mandate of the Independent Expert on Somalia at the Human Rights Council, whilst championing the work of the Independent Expert to deliver progress on UPR recommendations.  The UK will also continue to co-Chair the Human Rights Working Group to ensure international partners continue to support increased respect for human rights for all Somali people.

Pillar 2: Security and defence

8. We recognise the bravery and sacrifice demonstrated by Somalia in the fight against al-Shabaab (AS).   Our shared long-term objective is to continue to degrade AS by increasing and sustaining full spectrum pressure in line with the FGS counter-AS strategy whilst ensuring a successful transition to Somali security ownership.  We agree that lasting progress will depend on the strength of political settlements, accountability and transparency, and cannot be delivered through military activity alone.

9. We are already working together closely towards this aim, for example through leadership and command training provided by the UK military to the Somali National Army.   As the main donor to the UN Support Office in Somalia (UNSOS) Trust Fund, the UK funds vital logistical and technical support to Somali forces on the front line.  The UK also contributes significant funds to the African Union Transition Mission in Somalia (ATMIS), which plays a critical role in providing security and supporting the transition.

10. To deliver greater security and stability in Somalia the FGS is working across a range of priority areas. These include recognising the need to build a stronger link between security provision and stabilisation, a greater focus on reconciliation, the establishment of inclusive governance mechanisms and the agreement of local security arrangements that enjoy the confidence of local communities. Together, these will provide the foundations for recovery and development.  To continue to support FGS leadership in this area, the UK will align its short to medium term efforts under the FGS’ three priority areas:

i. Enabling an effective security transition: as the drawdown of ATMIS continues, FGS will articulate a clear and realistic vision for international security support in Somalia,   promoting implementation of the revised National Security Architecture through inclusive consultation, and ensuring it delivers a strengthened security provision to the Somali people that is both affordable and accountable.  FGS will also bring greater strategic coherence to external security assistance and take a long-term view on the training, development and sustainment needs of Somali security forces.

In support, the UK will ensure that FGS objectives are reflected in UN Security Council discussions and decisions.  We will continue funding to the UNSOS Trust Fund and ATMIS this financial year.  The UK will also continue providing targeted advisory support and other assistance that increases the capability and capacity of Somalia’s Security Forces, as identified within the FGS Post-ATMIS security strategy.  Finally, the UK will support empowerment of Somali security institutions to take on responsibility for weapons and ammunition management and remains supportive of wider efforts to strengthen resource management across the sector.

ii. Stabilisation: FGS will address the need to ensure critical ‘hold’ functions in newly liberated areas are prioritised, including through policing, community engagement and defensive operations.  This will demonstrate tangible dividends to the local population through improved security and access to public services, and a clear state presence in the form of inclusive governance mechanisms

The UK has been a key partner in the design and delivery of the Joint Policing Programme, which has helped realise initial progress towards the implementation of the New Policing Model, but recognise that much remains to be done. This is an important priority to facilitate security transition as well as supporting stabilisation efforts. We will also continue to support broader stabilisation efforts, including through early community reconciliation support and rapid repair of small infrastructure damaged by AS, enabled through the Early Recovery Initiative (ERI). 

iii. Counter terrorism: FGS is committed to ensuring sustained pressure on AS, maximising the impact of financial, ideological and military levers, with clear governance, internal co-ordination and the support of key international partners.  This approach, alongside increased investment in weapons and ammunition management, will degrade AS, restrict their access to lethal equipment, and strengthen the Somali institutions taking responsibility for Somali security.

The UK remains committed to its full spectrum of support to the FGS CT Strategy, including police mentorship to improve urban centre security, and capacity building to support defection of individuals from AS.  We will also, as UN penholder, continue to exert pressure on AS with a series of bespoke measures detailed in the relevant UN resolutions.  We will also progress options for increasing collaboration including on Counter Terrorist Financing, the new National Operations Centre, support on defections and strategic communications to reinforce a holistic approach in degrading AS. 

Pillar 3: Driving economic growth

11. Somalia is a nation of entrepreneurs who have proved themselves to be resilient to intense global, regional and national shocks. With rapid population growth and one of the youngest populations in the world, the Somali economy needs to accelerate economic growth and do so in a way that is inclusive, creates jobs, and moves away from a dependence on climate-fed agriculture and traditional livestock techniques.

12. Our shared, long-term economic growth objective is to develop a diversified, climate-resilient and modern Somali economy that is better integrated into the global economy, resilient to shocks and able to fulfil its potential of becoming a regional hub for trade and economic services. This will require macro-economic stability through robust, streamlined revenue collection, prudent and transparent public expenditure, taking action to face down corruption and strong debt management.

13. We are already working closely on this aim.  The UK is Somalia’s debt relief champion, will provide 100% debt relief and continues to encourage other debtors to adopt a similar approach.  Work is also underway to strengthen revenue collection and improve public financial management, we have been taking steps to improve confidence in Somalia’s financial sector through joint efforts under the Financial Systems Initiative, and as the second largest financier of the International Finance Corporations (IFC) trust fund in Somalia we are directly supporting the enabling environment necessary to get Development Finance Institutions like the IFC investing in Somalia.

14. To support macro-economic stability and public and private investment in building a resilient and productive economy, the UK will focus its support on economic growth in three priority areas for FGS:

i. Post HIPC planning: As Somalia reaches the milestone of HIPC completion, FGS is focused on post HIPC planning and delivery to ensure continued macro-economic stability, including through a new IMF programme. With one of the smallest tax to GDP ratios in the World (2.5%) Somalia will be judicious in what the State can realistically deliver and what it can borrow for. The UK stands ready to provide strategic and world leading thinking on these questions.

In support, the UK will continue to advocate with the IMF and World Bank, to ensure these institutions deliver for Somalia.  This includes continued UK funding to the IMF and WB trust funds.  In turn, Somalia will remain on track with future IMF programmes, ensuring benchmarks are met.

ii. Creating an enabling environment for investment: To encourage private investment, FGS commits to strengthening Somalia’s business environment, including governance and regulatory frameworks and will invest in infrastructure for growth alongside investment in key productive sectors.  Continued efforts will also be needed on anti-money laundering and counter-terrorism financing regulations, enabling private financing to flow.  Building greater confidence in Somalia’s national systems will also attract additional development finance, including to fund climate adaptation, basic public services, and provide the foundations for economic development.

In support, the UK will promote Somalia’s re-integration into the international financial system by continuing to fund the Financial Systems Initiative aimed at building compliance of key banking institutions and supporting access to credit.  We will also ensure UK development finance institutions are fully appraised of investment opportunities in Somalia, recognising that these institutions operate on a commercial basis.

iii. Increasing domestic revenues:  FGS will increase domestic revenues through the modernisation of revenue administration and widening the tax base.

In coordination with the FGS, the UK will continue to provide technical support to customs reform to strengthen revenue collection and public financial management in Federal Member States.

Pillar 4: Strengthening human development and increasing resilience to climate shocks

15. Somalia’s young and growing population presents a significant demographic dividend which if realised through improvements in health, education and social protection could unlock longer-term development.  A focus particularly on women and girls is critical to realising Somalia’s full human capital potential.  At the same time, Somalia is one of the countries most impacted by climate change. This is in part driving poverty, food insecurity and rapid urbanisation.

16. Our shared objective is to support human development through the establishment of sustainable systems for the delivery of basic services (particularly health and education), and effective delivery of those services, while also building the resilience of Somali communities and cities to the foreseeable impacts of climate change through mitigation and adaptation efforts. We will ensure that development programming continues to be aligned to the FGS National Development Plan (NDP) and the poverty reduction strategy, targeting areas of greatest need to gain the greatest impact.

17. Somalia over the last 10 years has made progress in the area of basic services, often in the face of extraordinary challenges. The decline in the maternal mortality rate from 732/100,000 live births in 2015 to 692 in 2020 is a significant achievement.  In 2019 the FGS launched its first nation-wide social safety net programme Baxnaano, which in 2022 flexed to provide cash transfers to 500,000 households during the protracted drought.  In 2023, FGS quadrupled its education budget and committed to the meritocratic recruitment of 3,000 teachers.

18. The UK has worked in partnership with the FGS for over a decade to support the delivery of health services to the Somali people and have a newer and growing partnership on education. In 2022, the UK-Somalia health partnership reached almost a million people. In 2023 we signed a landmark MoU on bilateral health collaboration which extends our technical partnerships, and started a new three-year health programme with a focus on maternal, newborn and child health.  In Education, the UK has supported the Ministry of Education to deliver the Education Sector Strategic Plan through support to the Adolescent Girls’ Education in Somalia programme, the Global Partnership for Education and Education Cannot Wait.

19. On climate, the UK has spent the last eight years supporting rural Somali communities to manage the impact of, and build their resilience to, climatic shocks. More recently, as anchor donor to Somalia in the Taskforce on Access to Climate Finance, we provide technical assistance to help Somalia identify and address the barriers it faces in accessing climate finance.

20. Moving forward, FGS is committed to strengthening human development and increasing resilience to climate shocks.  The UK will focus its support on three priority areas for FGS:

i. Basic services: FGS commits to expanding provision to effectively deliver the essential package of health services and foundational education for all, utilising the full spectrum of public and private services.

The UK will continue to provide support to strengthen Government-led services and support the overall transition to a greater Government-led role. We will concentrate our efforts on increasing access to basic services, including for women and girls and marginalised groups, such as minority clans.  We are also committing up to £37 million over 3 years, working with UNICEF and the Somali Federal Ministry of Health to improve access to basic health facilities for 2.8 million people, including maternal and newborn care and the provision of routine immunisations.

ii. Social protection: FGS will continue to lead the Baxnaano social safety net programme that is currently providing support to almost 200,000 households.

The UK will work with the World Bank and World Food Programme (WFP) to develop a more systematised Government led shock-responsive social safety response to climatic crises, that effectively targets those most impacted, building on the Baxnaano programme.   

iii. Climate and resilience: FGS is committed to expanding Somalia’s access to climate finance and to invest in climate adaptation that can improve water conservation and management and mitigate climate shocks.  It has also set a target of achieve durable solutions for one million internally displaced people (IDPs) by 2025.

In support the UK will support Somali institutional capacity to receive international climate finance through targeted technical assistance.  We will also support FGS work to clarify Somalia’s adaptation priorities and to ensure climate finance is spent in line with the principles of good public financial management.  We will trial nature-based water governance programmes, to mitigate flood and drought risks, and improve food security for all. We will also support the resilience of underserved rural communities and will continue to support FGS efforts to find a durable solution for IDPs, including by supporting climate resilient urban growth and protecting the legal rights of all internally displaced people and vulnerable groups, to ensure access to livelihoods, land and quality of life for those that decide to stay in cities.

Implementation

21. The UK and FGS will review progress of our Strategic Partnership through annual strategic dialogues and through six monthly reviews.

22. This Joint Declaration on the Strategic Partnership marks a deepening of Somali-UK relations, promoting progress on common objectives as we work towards a stable, democratic and prosperous Somalia.