Agreement on the Implementation Mechanism for the Transition Process in Yemen in Accordance with the Initiative of the Gulf Cooperation Council (GCC Implementation Mechanism)

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Country/entity: Yemen
Region: Middle East and North Africa
Agreement name: Agreement on the Implementation Mechanism for the Transition Process in Yemen in Accordance with the Initiative of the Gulf Cooperation Council (GCC Implementation Mechanism)
Date: 23 Nov 2011
Agreement status: Multiparty signed/agreed
Interim arrangement: Yes
Agreement/conflict level: Intrastate/intrastate conflict
Yemeni Civil Wars (1994) (2011 - )
The Republic of Yemen was formed in May 1990 after the merger between the Yemeni Arab Republic (YAR) in the north and the People’s Democratic Republic of Yemen (PDRY) in the south. The unification process was rushed and the final agreement between President Ali Abdullah Saleh and President Ali Salem al-Beidh was based on the imperfect promise of equality. Following the merger, integration of the militaries and civil services was at best incomplete or at times entirely non-existent. When Saleh’s General Congress Party (GPC) allied itself with the newly created Islamist Islah (‘reform’) party in 1993, the former ruling party of South Yemen – the Yemen Socialist Party (YSP) – was effectively side-lined in the 1993 General Elections. Violence involving the use of heavy weaponry and aerial bombardment erupted in April 1994 and on the 21 May 1994 Vice President al-Beidh declared the secession of the south, citing political centralization with the northern highland tribes, violence against the YSP and economic discrimination. In the midst of fighting, negotiations in Cairo, Egypt, collapsed. The war ended with the military victory of the north, and on the 1 October 1994, Ali Abdullah Saleh was elected President.

Despite the unification of Yemen in 1990, political power during the 1990s and 2000s remained centralized with the northern highland tribes, particularly the villages from which President Ali Abdullah Saleh and his confidants stemmed. The system of clientelism established through the ruling General People’s Congress party maintained relative loyalty among the fractured political allegiances of Yemen’s traditional tribal leadership. However, diminishing oil reserves and the shrinking opportunities for access to rent increased economic and political marginalization in Yemen’s peripheral communities. The degree of regionalism of conflicts is further defined by other local grievances. In the northern governorate of Sa’dah, a backlash was provoked among the local Zaydi Shi’a against Sunni Salafist cultural incursions resulting in six wars between 2004 and 2010. In the southern governorates of Hadramawt, Shabwa, al-Dhali and Abyan, civil and military personnel forcibly retired after the 1994 Civil War began protesting and eventually formed the secessionist Southern ‘al-Hiraak’ movement in 2007. Furthermore, tribal grievances have spurred attacks on oil companies and government installations to extract rents. Various takfiri groups including al-Qaeda in the Arabian Peninsula have also increased their presence since 1995.

The Yemen Spring in early 2011 allowed all these movements to express their joint displeasure. Moreover, factionalism in the regime split the already weak military and thus allowed the Houthis, the takfiris and tribal-based militia known as popular committees, to assert themselves militarily. Mandated by the UN-sponsored Gulf Cooperation Council Initiative, the National Dialogue held from March 2013 to January 2014 aimed at guaranteeing power-sharing among the different parties. However, the GCC Initiative only included formal political parties that did not accurately reflect political realities. Furthermore, provisions lacked adequate transitional justice and provided former-President Saleh, as well as others, full amnesty. As a result, little faith was placed in the process by formerly marginalized groups such as the Zaydi Shia Houthi rebels (Ansar Allah) and al-Hiraak who opted to increase their bargaining power vis-à-vis the state by strengthening their own territorial enclaves. In September 2014 the Houthis succeeded in capturing the capital Sana’a and gradually expanded their control southward. The subsequent UN-mediated Peace and National Partnership Agreement between transitional president Hadi and the Houthis on a federal, democratic Yemeni state, failed to be implemented as the Houthis successfully dissolved the parliament and deposed Hadi in January 2015. Following the Saudi military intervention to restore the Hadi government in March 2015, ceasefire attempts continuously failed. A two-year deadlock ensued until negotiations between the Houthis and the government of Yemen finally culminated in the Stockholm Agreement in December 2018. However, throughout 2019 the Saudi-led coalition continues to launch airstrikes. Furthermore, in May 2017 the Southern al-Hiraak movement had declared the secessionist formation of the Southern Transitional Council (STC), seizing the interim-capital Aden by January 2018. Territorial divisions between the Yemeni government, the Houthis, forces affiliated with Saudi Arabia and the United Arab Emirates, local militias and tribes have continued to fracture the country.
Stage: Framework/substantive - partial
Conflict nature: Government
Peace process: Yemen peace process
Parties: Not signed, agreement mentions the following parties as having produced it: the National Coalition (General People’s Congress and its allies), the National Council (Joint Meeting Parties their partners).
Third parties: Not signed, agreement invites the following parties to sign: the the Secretary-General of the GCC and the Secretary-General of the United Nations or their representatives, the representatives of the States members of the GCC, the permanent members of the United Nations Security Council, the European Union and the League of Arab States.
Description: This short agreement details the transition mechanism, and provides for the transfer of power, settlement of disputes, and includes an Annexed Draft Presidential Decree.

Agreement document: YE_111123_Agreement on the implementation mechanism for the transition.pdf (opens in new tab) | Download PDF
Agreement document (original language): YE_111123_Agreement on the implementation mechanism for the transition_ar.pdf (opens in new tab)| Download PDF

Main category: Page 3, Part III: First phase of the transitional period, Formation of the government of national unity, Article 10
... (a) Each party shall account for 50 per cent of nominees for the government of national unity, and due consideration shall be given to the representation of women. With regard to the distribution of portfolios, one of the two parties shall prepare two lists of ministries and transmit them to the other party, which shall have the right to choose one of the lists.

Page 6, Part III: First phase of the transitional period, Early presidential elections, Article 18
The early presidential elections shall be held in accordance with the following provisions:
... (b) Any citizen, male or female, who has attained the legal age for voting and can establish as much on the basis of an official document such as a birth certificate or national identity card, shall have the right to vote on the basis of that document;

Page 7, Part IV: Conference for National Dialogue, Article 20
With the beginning of the second transitional phase, the President-elect and the government of national unity shall convene a comprehensive Conference for National Dialogue for all forces and political actors, including youth, the Southern Movement, the Houthis, other political parties, civil society representatives and women. Women must be represented in all participating groups.
... Article 21
The Conference shall discuss the following issues:
... (g)The adoption of legal and other means to strengthen the protection and rights of vulnerable groups, including children, as well as the advancement of women;

Page 8, Part VI: Concluding provisions, Article 26
... Women shall appropriately represented in all of the institutions referred to in this Mechanism.

Women, girls and gender

Participation: Participation→Effective participation
Page 6, Part III: First phase of the transitional period, Early presidential elections, Article 18
The early presidential elections shall be held in accordance with the following provisions:
... (b) Any citizen, male or female, who has attained the legal age for voting and can establish as much on the basis of an official document such as a birth certificate or national identity card, shall have the right to vote on the basis of that document;

Page 3, Part III: First phase of the transitional period, Formation of the government of national unity,
Article 10
... (a) Each party shall account for 50 per cent of nominees for the government of national unity, and due consideration shall be given to the representation of women. With regard to the distribution of portfolios, one of the two parties shall prepare two lists of ministries and transmit them to the other party, which shall have the right to choose one of the lists.

Page 7, Part IV: Conference for National Dialogue,
Article 20
With the beginning of the second transitional phase, the President-elect and the government of national unity shall convene a comprehensive Conference for National Dialogue for all forces and political actors, including youth, the Southern Movement, the Houthis, other political parties, civil society representatives and women. Women must be represented in all participating groups.

Page 8, Part VI: Concluding provisions,
Article 26
... Women shall appropriately represented in all of the institutions referred to in this Mechanism.
Participation→Citizenship
Page 6, Part III: First phase of the transitional period, Early presidential elections, Article 18
The early presidential elections shall be held in accordance with the following provisions:
... (b) Any citizen, male or female, who has attained the
legal age for voting and can establish as much on the basis of an official document
such as a birth certificate or national identity card, shall have the right to vote on the basis of that document;
Equality: No specific mention.
Particular groups of women: No specific mention.
International law: International law→General IHRL, IHL and IL
Page 7, Article 21
The Conference shall discuss the following issues:
... (g)The adoption of legal and other means to strengthen the protection and rights of vulnerable groups, including children, as well as the advancement of women;
New institutions: No specific mention.
Violence against women: Violence against women→Protection (general)
Page 7, Article 21
The Conference shall discuss the following issues:
... (g)The adoption of legal and other means to strengthen the protection and rights of vulnerable groups, including children, as well as the advancement of women;
Transitional justice: No specific mention.
Institutional reform: No specific mention.
Development: No specific mention.
Implementation: Implementation→Women's role and consideration in implementation of the agreement
Page 8, Part VI: Concluding provisions, Article 26
... Women shall appropriately represented in all of the institutions referred to in this Mechanism.
Other: No specific mention.

In the name of God, the Merciful, the Compassionate

Agreement on the implementation mechanism for the transition process in Yemen in

accordance with the initiative of the Gulf Cooperation Council (GCC)

Contents:

Part I. Part II.

Part III.

Part IV.

Part V .

Part VI.

Annex:

Introduction

The transition period

First phase of the transition

Second phase of the transfer of power Settlement of disputes

Concluding provisions

Draft Presidential Decree

Part I. Introduction

The two parties recognize that

(a) As a result of the deadlock in the political transition, the political, economic, humanitarian and security situation has deteriorated with increasing rapidity and the Yemeni people have suffered great hardship;

(b) Our people, including youth, have legitimate aspirations for change;

and

(c) This situation requires that all political leaders should fulfil their responsibilities towards the people by immediately engaging in a clear process for transition to good democratic governance in Yemen.

The two parties deeply appreciate the efforts of the Gulf Cooperation Council (GCC) and its Secretary-General, the United Nations Secretary General acting through his Special Adviser, the ambassadors of the five permanent members of the Security Council, and those of the GCC and the European Union, to support an agreement on the peaceful transfer of power.

The two parties adopt this Mechanism on the basis of the GCC initiative and fully in accordance with United Nations Security Council resolution 2014 (2011).

The following definitions shall apply in relation to this Agreement:

(a) The term "GCC Initiative" refers to the GCC initiative to resolve the Yemeni crisis in the draft of 21 and 22 May 2011;

(b) The term "the Mechanism" refers to this Agreement on the implementation mechanism for the transition process in Yemen in accordance with the GCC Initiative;

(c) The term "the two parties" refers to the National Coalition (General People’s Congress and its allies) as one party, and the National Council (Joint Meeting Parties their partners) as the other.

The GCC Initiative and the Mechanism shall supersede any current constitutional or legal arrangements.

They may not be challenged before the institutions of the State.

Part II.

The transition period

The two parties acknowledge that under Presidential Decree No.

24 of 2011, the President of Yemen irrevocably delegated to the Vice-President the presidential powers to negotiate, sign and bring into force this Mechanism, along with all constitutional powers pertaining to its implementation and follow-up.

Those powers include calling for early elections and taking all of the decisions necessary to form a government of national unity, including swearing in its members, as well as establishing the other bodies set forth in this Mechanism.

The transition period shall enter into effect as follows:

(a) In accordance with United Nations Security Council resolution 2014 (2011), which notes the commitment by the President of Yemen to immediately sign the GCC Initiative and encourages him, or those authorized to act on his behalf, to do so, and to implement a political settlement based upon it, and in accordance with Presidential Decree No.

24 of

05/12/11 5074.11

(b) 2011, the President or the Vice-President acting on his behalf shall sign the GCC Initiative concurrently with the signature of this Mechanism by the two parties.

(c) Concurrently with the signing of this Mechanism, and acting under the powers delegated by the President in Presidential Decree No.

24 of 2011, the Vice-President shall issue a decree providing for early presidential elections to be held within 90 days of the entry into force of this Mechanism.

In accordance with the relevant provisions of the Constitution, the decree shall enter into force 60 days before the elections.

The draft text of the Decree is annexed to this Mechanism (Annex 1).

This Mechanism shall enter into force when the President or Vice-President has signed the GCC Initiative, all parties have signed this Mechanism in accordance with this paragraph, and the decree referred to in subparagraph (b) above has been issued.

The transition period shall begin with the entry into force of this Mechanism.

The transition period shall then consist of two phases:

(a) The first phase shall begin with the entry into force of this Mechanism and end with the inauguration of the President following the early presidential elections;

(b) The second phase, which shall last for two years, shall begin with the inauguration of the President following the early presidential elections.

It shall end with the holding of general elections in accordance with the new Constitution and the inauguration of the new President of the Republic.

During the first and second stages of the transition, decisions of Parliament shall be taken by consensus.

If consensus on any given topic cannot be reached, the Speaker of Parliament shall refer the matter for decision by the Vice-President in the first phase, or the President in the second phase.

That decision shall be binding for the two parties.

The two parties shall take the necessary steps to ensure that Parliament adopts the legislation and other laws necessary for the full implementation of commitments in respect of the guarantees set forth in the GCC Initiative and this Mechanism.

Part III.

First phase of the transitional period Formation of the government of national unity

10. Immediately on entry into force of the GCC Initiative and the Mechanism, the opposition shall nominate its candidate for the post of Prime Minister.

The Vice-President shall issue a presidential decree requesting that person to form a government of national unity.

The government of national unity shall be formed within 14 days of the issuance of the decree.

A republican decree shall be issued to that effect and signed by the Vice-President and Prime Minister;

(a) Each party shall account for 50 per cent of nominees for the government of national unity, and due consideration shall be given to the representation of women.

With regard to the distribution of portfolios, one of the two parties shall prepare two lists of ministries and transmit them to the other party, which shall have the right to choose one of the lists.

(b) The Prime Minister-designate shall appoint the members of the government as proposed by the two parties.

The Vice-President shall then issue a decree setting forth the agreed names of the cabinet members.

Nominees shall have a high standard of accountability and commitment to human rights and international humanitarian law.

11. The members of the government shall take the constitutional oath before the Vice-President.

Within ten days, the government of national unity shall submit its programme to Parliament for a vote of confidence within five days.

Functioning of the government of national unity

The government of national unity shall take its decisions by consensus.

If there is no full consensus on any given matter, the Prime Minister shall consult with the Vice-President or, after the early presidential elections, the President, in order to reach consensus.

If consensus between them is not possible, the Vice-President or, after the early presidential elections, the President, shall take the final decision.

Immediately after its formation, the government of national unity shall

(a) Take the necessary steps, in consultation with the other relevant actors, to ensure the cessation of all forms of violence and violations of humanitarian law;

end the confrontation of armed forces, armed formations, militias and other armed groups;

ensure their return to barracks;

ensure freedom of movement for all through the country;

protect civilians;

and take the other necessary measures to achieve peace and security and extend State control;

(b) Facilitate and secure humanitarian access and delivery wherever it is needed;

(c) Issue appropriate legal and administrative instructions for all branches of the State sector to comply immediately with standards of good governance, the rule of law and respect for human rights;

(d) Issue specific legal and administrative instructions to the Office of the Public Prosecutor, the police, prisons andsecurity forces to act in accordance with the law and international standards, and to release those unlawfully detained;

(e) The government of national unity shall comply with all resolutions of the Security Council and Human Rights Council and with the relevant international norms and conventions.

Powers of the Vice-President and government of national unity

14.In implementing this Mechanism, the Vice-President shall exercise the following constitutional powers, in addition to those appertaining to his office:

(1) Convening early presidential elections;

(2) Exercising all functions of the President in respect of Parliament;

(3) Announcing the formation of, and swearing in, the government of national unity in the first phase;

(4) All functions relating to the work of the Committee on Military Affairs for Achieving Security and Stability;

(5) Managing foreign affairs to the extent necessary for the implementation of this Mechanism;

(6) Issuing the decrees necessary for the implementation of this Mechanism.

15. In the first phase, the Vice-President and government of national unity shall exercise executive authority encompassing all matters pertaining to this Agreement, including the following, acting in conjunction with Parliament where appropriate:

(a) Formulating and implementing an initial programme of economic stabilization and development and addressing the immediate needs of the population in all regions of Yemen;

(b) Coordinating relations with development donors;

(c) Ensuring that governmental functions, including local government, are fulfilled in an orderly manner in accordance with the principles of good governance, rule of law, human rights, transparency and accountability;

(d) Approving an interim budget, supervising the administration of all aspects of State finance and ensuring full transparency and accountability;

(e) Taking the necessary legislative and administrative steps to ensure that presidential elections are held within 90 days of the entry into force of this Mechanism;

(f) Establishing the following institutions as provided for by this Mechanism:

(1) Committee on Military Affairs for Achieving Security and Stability;

(2) Conference for National Dialogue.

(g) The government of national unity and the Vice-President shall immediately establish a liaison committee to engage effectively with youth movements from all parties in the squares and elsewhere in Yemen, to disseminate and explain the terms of this Agreement;

initiate an open conversation about the future of the country, which will be continued through the comprehensive Conference for National Dialogue;

and involve youth in determining the future of political life.

Committee on Military Affairs for Achieving Security and Stability

16. Within five days of the entry into force of the GCC Initiative and the Mechanism, the Vice- President in the first transitional phase shall establish and chair a Committee on Military Affairs for Achieving Security and Stability.

The Committee shall work to

(a) End the division in the armed forces and address its causes;

(b) End all of the armed conflicts;

end all armed presence in the capital Sana'a and other the cities;

and remove militias and irregular armed groups from the capital and other cities;

(d) Remove road blocks, checkpoints and improvised fortifications in all governorates;

(e) Rehabilitate those who do not meet the conditions for service in the military and security forces;

(f) Take any other measures to reduce the risk of armed confrontation in Yemen.

17. During the two transitional phases, the Committee on Military Affairs for Achieving Security and Stability shall also work to create the necessary conditions and take the necessary steps to integrate the armed forces under unified, national and professional leadership in the context of the rule of law.

Early presidential elections

18. The early presidential elections shall be held in accordance with the following provisions :

(a) The elections shall take place within 90 days of the signature of the GCC Initiative and the Mechanism;

(b) The early elections for the post of President shall be organized and supervised by the Higher Commission for Elections and Referendums using the current register of voters on an exceptional basis.

Any citizen, male or female, who has attained the legal age for voting and can establish as much on the basis of an official document such as a birth certificate or national identity card, shall have the right to vote on the basis of that document;

(c) The sides commit not to nominate or endorse any candidate for the early presidential elections except for the consensus candidate Vice-President Abd Rabbuh Mansur Hadi;

(d) The Secretary-General of the United Nations is requested to provide and coordinate electoral assistance to help ensure the orderly and timely holding of elections.

Part IV.

Second phase of the transfer of power

Functions and powers of the President and government of national unity

19. After the early Presidential elections, the newly elected President and the Government of

† national unity shall exercise all of their customary functions as set forth in the Constitution .

In addition, they shall exercise the powers necessary to continue the tasks specified for the implementation of the first phase, and additional tasks specified for the second phase of the transfer of power.

The latter include

* †

Translator's note:

this paragraph is mis-numbered 20 in the original Arabic text.

Translator's note:

this paragraph is mis-numbered 21 in the original Arabic text.

(a) Ensuring that the Conference for National Dialogue is convened, and forming a preparatory committee for the Conference, as well as an Interpretation Committee and other bodies established pursuant to this Mechanism;

(b) Establishing a process of constitutional reform that will address the structure of the State and the political system, and submitting the amended Constitution to the Yemeni people in a referendum;

and

(d) Holding elections for Parliament and the Presidency in accordance with the new Constitution.

Conference for National Dialogue

With the beginning of the second transitional phase, the President-elect and the government of national unity shall convene a comprehensive Conference for National Dialogue for all forces and political actors, including youth, the Southern Movement, the Houthis, other all participating groups.

‡ political parties, civil society representatives and women .

Women must be represented in

The Conference shall discuss the following issues :

(a) The process of drafting the Constitution, including the establishment of a Constitutional Drafting Commission and its membership;

(b) Constitutional reform, addressing the structure of the State and political system, and submitting constitutional amendments to the Yemeni people through a referendum;

(c) The dialogue shall address the issue of the South in a manner conducive to a just national solution that preserves the unity, stability and security of Yemen.

(d) Examination of the various issues with a national dimension, including the causes of tension in Saada;

(e) Taking steps towards building a comprehensive democratic system, including reform of the civil service, the judiciary and local governance;

(f) Taking steps aimed at achieving national reconciliation and transitional justice, and measures to ensure that violations of human rights and humanitarian law do not occur in future;

(g) The adoption of legal and other means to strengthen the protection and rights of vulnerable groups, including children, as well as the advancement of women;

‡ §

Translator's note:

this paragraph is mis-numbered 18 in the original Arabic text.

Translator's note:

this paragraph is mis-numbered 19 in the original Arabic text.

(h) Contributing to determining the priorities of programmes for reconstruction and sustainable economic development in order to create job opportunities and better economic, social and cultural services for all.

Constitutional Commission

22. The government of national unity shall establish a Constitutional Commission immediately on the conclusion of the work of the Conference of National Dialogue within six months.

The Commission shall prepare a new draft constitution within three months of the date of its establishment.

It shall propose the necessary steps for the draft constitution to be discussed and submitted for referendum in order to ensure broad popular participation and transparency.

Organization of elections under the new Constitution

Within three months of the adoption of the new Constitution, Parliament shall enact a law convening national parliamentary elections and, if provided for by the Constitution, presidential elections.

The Higher Commission for Elections and Referendums shall be reconstituted and the new register of voters re-compiled in accordance with the new Constitution.

That law will be subject to subsequent review by the newly elected Parliament.

The term of the President elected under paragraph 7 of this Mechanism shall end upon the inauguration of the President elected under the new Constitution.

Part V. Settlement of disputes

25. Within 15 days of the entry into force of the GCC Initiative and the Mechanism, the Vice- President and the Prime Minister of the government of national unity shall form an Interpretation Committee to which the two parties shall refer in order to resolve any dispute regarding the interpretation of the GCC Initiative or the Mechanism.

Part VI.

Concluding provisions

26.Women shall appropriately represented in all of the institutions referred to in this Mechanism.

27.The Government shall provide adequate funding for the institutions and activities established by this Mechanism.

28. In order to ensure the effective implementation of this Mechanism, the two parties call on the States members of the GCC and the United Nations Security Council to support its implementation.

They further call on the States members of the GCC, the permanent members of the Security Council, the European Union and its States members to support the implementation of the GCC Initiative and the Mechanism.

29.The Secretary-General of the United Nations is called upon to provide continuous assistance, in cooperation with other agencies, for the implementation of this Agreement.

He is also requested to coordinate assistance from the international community for the implementation of the GCC Initiative and the Mechanism.

30. The following are invited to attend the signature of this Mechanism:

the Secretary-General of the GCC and the Secretary-General of the United Nations or their representatives, as well as the representatives of the States members of the GCC, the permanent members of the United Nations Security Council, the European Union and the League of Arab States.

(Signatures and dates)

the authority conferred on me by the President under Presidential Decree No.

24 of 2011, I hereby solemnly convene elections for the office of President of the Republic to be held on 00/00/2012.

This Decree is deemed to be in force from today, and the convening of elections contained therein is irrevocable.

The convening of elections shall take effect in accordance with the provisions of the Mechanism, without any need for any further steps, sixty days before the holding of elections as set forth in the Mechanism.

This decree shall be published in the Official Gazette.

Exercising

Translator's note:

On the basis of the unofficial English translation, the following may be missing from the Arabic text:

" Annex:

Decree issued by the Vice-President concurrently with the signature of the GCC Initiative and the Mechanism.

The Vice-President of the Republic, acting under to the authority conferred on him by the President under Presidential Decree No.

24 of 2011."

Agreement on the Implementation Mechanism for the Transition Process in Yemen in Accordance with the Initiative of the Gulf Cooperation Council (GCC Implementation Mechanism)

Women, girls and gender

Source agreement