JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS

JOINT COMMUNICATION TO THE EUROPEAN PARLIAMENT, THE COUNCIL, THE EUROPEAN ECONOMIC AND SOCIAL COMMITTEE AND THE COMMITTEE OF THE REGIONS

TOWARDS A COMPREHENSIVE EU APPROACH TO THE SYRIAN CRISIS

INTRODUCTION

The pace of the deterioration of the Syria conflict in recent months is such that a humanitarian catastrophe is spreading throughout the whole region. In addition to the human suffering inflicted, this conflict is not only destroying the traditional fabric of Syrian society but also seriously endangering the stability of the neighbouring countries, Lebanon and Jordan in particular, with no immediate prospect of an end in sight.

This Joint Communication proposes a comprehensive European Union (EU) approach in response to the conflict and its consequences both in Syria and its neighbouring countries.

Since the beginning of the conflict, we have witnessed a dramatic decline in human security, with over 93,000 deaths and 1.6 million refugees as of June 2013. Conservative estimates indicate that 6.8 million people are in need of aid, 4.25 million are internally displaced (IDPs), and the United Nations High Commissioner for Refugees (UNHCR) foresees the possibility of 3.45 million refugees by the end of this year. The human rights situation in Syria has also deteriorated dramatically. In its June 2013 report, the UN independent international Commission of Inquiry on Syria (CoI) denounces the new levels of brutality of the conflict, and documents, for the first time, the systematic imposition of sieges, the use of chemical agents and forcible displacements. The CoI recalls that Government forces and affiliated militia have committed crimes against humanity, war crimes and gross violations of international human rights and humanitarian law. There is also evidence that anti-Government armed groups have committed war crimes and other serious abuses, although not of the same intensity and scale of those committed by the Syrian authorities. The UN Secretary General reported to the Security Council in June 2013 that both the Free Syrian Army (that is allegedly recruiting child soldiers) and the government forces, including Syrian Armed Forces, intelligence services and regime militia have engaged in grave violations against children.

The first priority of the EU is to promote a political settlement aimed at ending the violence. As Syria enters its third year of crisis, and in spite of some progress made on the ground by the Government of Syria' forces, there is a strong possibility of a drawn-out conflict, with neither side able to assert conclusive military superiority. Thus far, there has been little progress in reaching consensus in the United Nations Security Council (UNSC). However, the recent agreement between US Secretary of State Kerry and Russian Foreign Minister Lavrov to relaunch negotiations based on the June 2012 Geneva Communiqué and organise an international peace conference on Syria ("Geneva II") have given a new impetus to the political process.

In parallel to efforts on the political front, the EU has mobilised all of its instruments in order to contribute to a wider international response. The EU is therefore the biggest donor of humanitarian aid. To date, EUR 678 million in humanitarian assistance has been committed by Member States and from the EU budget. In addition, the EU has mobilised EUR 175 million from other non-humanitarian budget instruments. In sum, the total response to the crisis has already reached over EUR 850 million. However, even this substantial sum is insufficient to cope with the massive, and increasing, humanitarian needs.

The major challenge facing the EU in delivering aid is the complex, dangerous environment where international humanitarian law is all too often ignored. In accordance with humanitarian principles, the EU works with all sides in the conflict, building closer links with local communities and their local councils to help meet basic needs such as medical assistance, food security, electricity, water and other services. This assistance should be provided through all possible channels to ensure efficient access.

The consequences of the increasingly unpredictable and destabilising Syrian conflict are being felt beyond Syria's borders. Lebanon and Jordan, who were already facing substantial challenges before the outbreak of the crisis, are now faced with an unprecedented situation that threatens their internal stability. Turkey and Iraq also face potential political problems directly related to the ethnic, religious and political affiliation of refugees, although their relative socio-economic absorption capacity is higher than that of Lebanon and Jordan.

The dramatic developments and fast-increasing needs call for an urgent and comprehensive response package commensurate to the challenges. This response package should bring together the EU and its Member States’ policies and instruments in order to address the immediate humanitarian needs in a coordinated, comprehensive manner, to contain and resolve the Syrian crisis, to promote access to justice and accountability, to preserve the stability of neighbouring countries and to lead longer term international reconstruction efforts once a lasting peace has been found.

The EU is well placed to make a decisive contribution as it can build i) on the strength of its political relationships and traction with the various stakeholders, many of whom expect a strong EU role; ii) its ability to facilitate coordination and; iii) its experience not only in the delivery of humanitarian assistance but in dealing with security issues as well as post conflict and reconstruction phases.

This Joint Communication proposes the main elements of a comprehensive EU response to the crisis, while highlighting actions and initiatives already taken thus far by the High Representative and the European Commission