A Vital Humanitarian Mandate for Syria’s North West
A Vital Humanitarian Mandate for Syria’s North West

Declaración sobre Siria

Asumiendo que el congreso estadounidense lo autorice, Washington (junto con algunos de sus aliados), pronto emprenderá un ataque militar contra objetivos del régimen sirio. Siendo así, habrá llevado a cabo tal acción por razones lejanas en gran medida a los intereses del pueblo sirio. El gobierno de Estados Unidos ha mencionado la necesidad de castigar, disuadir y prevenir el uso de armas químicas -un objetivo defendible, aunque el pueblo sirio ha sufrido atrocidades mucho más mortales durante el curso del conflicto sin que esto hubiera provocado una acción colectiva en su defensa. El gobierno también se refiere a la necesidad, dada la “línea roja” declarada por el presidente Obama en contra del uso de armas químicas, de proteger la credibilidad de Washington -de nuevo, un objetivo comprensible pero poco probable de impactar al  pueblo sirio. Lejos de hablar de indignación, disuasión y restauración de la credibilidad estadounidense, la prioridad debe ser el bienestar de los sirios. Independientemente de si se ordene un ataque militar o no, esto sólo se puede lograr a través de un alto al fuego y de una transición política ampliamente aceptada.

Medir exactamente con antelación el impacto de un ataque militar estadounidense, independientemente de su alcance y de esfuerzos para calibrarlo cuidadosamente, es por definición una tarea imposible. En un conflicto que se ha asentado en un patrón, si bien familiar, mortal -y en una región cerca del punto de ebullición- un ataque militar introducirá de manera inevitable un elemento poderoso de incertidumbre. Las consecuencias serán casi impredecibles. Sin embargo, se pueden hacer varias observaciones sobre lo que puede y no puede hacer:

  • Un ataque militar no será, ni podrá ser, adoptado con incluso un mínimo consenso internacional; en este sentido, el intento de presentar una evidencia sólida del uso de armas químicas por parte del régimen sirio, aunque necesario, es también inútil. Teniendo en cuenta los pretextos falsos que informaron la invasión estadounidense de Iraq en 2003 y, desde entonces, la polarización regional e internacional aunada a la dinámica del propio conflicto sirio, la evidencia presentada por Estados Unidos no será suficiente para convencer a los incrédulos y el escepticismo será generalizado.
     
  • Podría desalentar el uso futuro de las armas químicas al señalar castigos aún más duros en caso de reincidencia -un logro importante por sí mismo. Sin embargo, si el régimen se encontrara luchando por su supervivencia, esa consideración no tendría gran peso. Algunos dentro de la oposición también podrían estar tentados a utilizar tales armas y luego culpar al régimen, precisamente con el fin de provocar una nueva intervención estadounidense.
     
  • Podría desencadenar una escalada de violencia dentro de Siria puesto que el régimen  podría tomar venganza contra los rebeldes y las zonas controladas por los rebeldes, mientras que la oposición trata de aprovechar la oportunidad para crear sus propias ganancias.
     
  • Una escalada de la violencia a nivel regional o internacional (tales como medidas de represalia por parte del régimen, Irán o Hezbolá, en particular contra Israel) es posible pero no probable debido a los riegos involucrados, aunque esto podría depender del alcance de los ataques.
     
  • La acción militar, sobre la que Estados Unidos ha declarado que no tendrá como objetivo provocar el colapso del régimen, podría incluso no tener un efecto duradero sobre el equilibrio de poder en el terreno. En efecto, el régimen podría registrar una victoria propagandística al alegar que se mantuvo firme contra EE.UU. y consolidar la opinión nacional y regional en torno a un lema anti-occidental y anti-imperialista.

En última instancia, la cuestión principal en relación con un posible ataque militar es si los esfuerzos diplomáticos para resolver el conflicto podrían ser reanudados al concluir el ataque. La experiencia dice que no: a raíz de un ataque condenado como ilegal e ilegítimo, el régimen y sus aliados no se encontrarán en un estado de ánimo para negociar con EE.UU. Calibrar cuidadosamente el ataque para hacer el daño suficiente para cambiar sus cálculos pero no lo suficiente para provocar represalias o impedir la diplomacia suena en teoría atractivo, pero en la práctica no es factible.

Independientemente de si EE.UU. decide lanzar una ofensiva militar, su responsabilidad debe ser de tratar de optimizar las posibilidades de un avance en el campo diplomático. Esto requiere de un doble esfuerzo que hasta la fecha está ausente: el desarrollo de una oferta realista de compromiso político así como un llamado auténtico tanto a Rusia como a Irán de una manera capaz de suscitar su interés -en lugar de ubicarse en un conflicto prolongado que tiene la capacidad aparente de escalar sin límites.

Bajo estos principios, EE.UU. debe presentar -y los aliados de Siria deben de considerar de manera seria y constructiva- una propuesta basada en los siguientes elementos:

  1. Es imprescindible ponerle fin a esta guerra. La persistencia del conflicto incita de manera inevitable la escalada de la violencia, la inestabilidad regional y el embrollo internacional.
     
  2. La única salida es política. Esto requiere de concesiones de largo alcance y una reducción de las demandas de todas las partes. El único resultado viable es un acuerdo que proteja los intereses de todos los grupos sirios y refleje en lugar de altere el equilibrio estratégico en la región.
     
  3. La crisis siria presenta una oportunidad importante para probar si Estados Unidos y la República Islámica de Irán pueden trabajar juntos en asuntos regionales para restaurar la estabilidad.
     
  4. Un resultado político viable en Siria no puede ser uno en el que el liderazgo actual se mantenga de manera indefinida en el poder, pero más allá de eso, EE.UU. debe ser flexible en lo que respecta a los plazos y las modalidades específicas.
     
  5. Estados Unidos tiene un gran interés en evitar el colapso del estado sirio y el vacío político que podría resultar como consecuencia de este colapso. Así pues el objetivo debe ser una transición que se base en las instituciones existentes y no las sustituya. Esto es cierto en particular con respecto al Ejército.
     
  6. Se debe de dar prioridad a garantizar que ningún componente de la sociedad siria sea blanco de represalias, discriminación o marginalidad en el contexto de una solución negociada.

Tal propuesta debe ser la base para que se renueven los esfuerzos por parte de Lakhdar Brahimi, enviado de las Naciones Unidas y la Liga Árabe, y conducir a una convocatoria pronta de una segunda Conferencia de Ginebra.

El debate sobre un posible ataque -su acierto, alcance y legitimidad ante la ausencia de la aprobación del Consejo de Seguridad de la ONU- ha oscurecido y distraído de lo que debería ser la principal preocupación internacional: cómo revitalizar la búsqueda de un acuerdo político. Dejando a un lado las discusiones sobre su legalidad, cualquier acción militar prevista debe juzgarse en función de si se logra o no esa meta.

Bruselas

Workers carry boxes of humanitarian aid near Bab al-Hawa crossing at the Syrian-Turkish border, in Idlib governorate, Syria, June 30, 2021. Picture taken June 30, 2021. REUTERS/Mahmoud Hassano

A Vital Humanitarian Mandate for Syria’s North West

The UN Security Council is considering renewing an understanding whereby UN agencies transport aid to Idlib, an area held by Syrian rebels. In this Q&A, Crisis Group experts Richard Gowan, Dareen Khalifa and Ashish Pradhan explain why the arrangement remains essential.

What is at stake in the Security Council?

The UN Security Council is set to vote soon on the renewal of a mandate that allows UN agencies to deliver aid to rebel-held Idlib in north-western Syria via a border crossing with Türkiye without asking for approval from the government in Damascus. The UN calculates that nearly two and a half million people rely on this lifeline for food and other essential supplies. Yet the arrangement is contentious. Since 2019, Russia, the Syrian regime’s ally, has aimed to curtail the mandate, arguing that the UN should work with Damascus on aid deliveries out of respect for Syria’s sovereignty.

In 2021, the U.S. made a concerted effort to convince Moscow to help keep the mandate alive, but it has made no similar push in 2022, as the two powers’ relations have collapsed over Russia’s war in Ukraine. Senior UN officials worry that Russia may veto the mandate – which should be renewed by 10 July – causing a dramatic drop in humanitarian assistance to Idlib and potentially leading to an influx of refugees into Türkiye. What happens with the mandate is a concern for the UN and, more importantly, for the people in Idlib.

The Security Council first authorised the UN to deliver cross-border aid to opposition-controlled areas of Syria without Damascus’s approval in 2014. At first, this mandate covered four crossing points, giving UN agencies access to southern and north-eastern Syria as well as the north west. The Council members’ cooperation on humanitarian issues despite their broader rifts over the war in Syria was a rare bright spot in UN diplomacy. But in rancorous debates in late 2019 and mid-2020, during which Russia and China used their vetoes three times to block resolutions renewing the mandate, Moscow succeeded in limiting the UN’s cross-border operations to a single crossing, at Bab al-Hawa between Türkiye and Idlib. Russia also made clear that the mandate could not be renewed indefinitely.

In 2021, the Biden administration identified maintaining aid to Idlib as an area for better relations with Russia. U.S. officials negotiated over the mandate’s future bilaterally with their Russian counterparts in Vienna and Geneva. While the official U.S. position was that the Council should reauthorise opening all four original crossings – an outcome few UN officials and diplomats thought likely – Russia assented that July only to keeping Bab al-Hawa open. Moscow also demanded that the UN work harder on channelling aid into Idlib from government-held Syrian territory (which is referred to as “cross-line” aid, as opposed to cross-border from Türkiye) and called for greater international funding for “early recovery” projects in government-controlled parts of Syria. Finally, Russia insisted that the UN Secretary-General report on cross-line aid halfway through the mandate period in January 2022, indicating that it might try to block the mandate’s continuation at that point (though it did not act on this threat). Despite these caveats, the Biden administration presented the fact that Russia was willing to keep the mandate alive at all – and the absence of public rows and vetoes at the UN like those in 2019 and 2020 – as proof that the U.S. could do business with the Kremlin.

Security Council members [fret] that Russian and Western diplomats would fail to reach an agreement on the future of aid to Syria.

A year on, that optimism looks like a thing of the past. Since Russia’s assault on Ukraine in February and the sharp deterioration in Moscow’s relations with Western powers, Security Council members have fretted that Russian and Western diplomats would fail to reach an agreement on the future of aid to Syria. As things stand, the mandate’s fate remains unclear with less than a week to go before the deadline for its renewal.

Ireland and Norway, the Security Council’s two elected members acting as “penholders” (diplomatic leads) on the issue, introduced a draft resolution renewing the authorisation for aid deliveries through Bab al-Hawa for twelve months on 27 June. Russia has yet to make a definitive response, and Council members expect that there may be intense wrangling over the text before the vote. The outcome will have a major effect on the lives of civilians in Idlib. It is also a crucial test of how far Russia and the West can continue to work together at the Security Council – however grudgingly – as the war in Ukraine rages and their policies become ever more hostile to one another.

How important is the mandate for Idlib and are there alternatives?

Despite the high level of tension in the Security Council over cross-border aid, this mandate has given the UN essential political backing to guide humanitarian operations in Idlib. The UN Office for the Coordination of Humanitarian Affairs (OCHA) in particular has played a pivotal role in cross-border aid delivery. The Council mandate allowed OCHA to coordinate donor response, lead negotiations with local authorities, and guarantee a significant degree of transparency for aid delivered into these rebel-held areas. OCHA has also helped NGOs involved in relief work navigate the legal and political hurdles of operating in an area under the control of Hei’at Tahrir al-Sham (HTS), the Islamist militia running most of Idlib. HTS is UN-sanctioned and is listed by Russia, the U.S. and Türkiye as a terrorist organisation.

The UN has additionally led negotiations involving Damascus and the HTS-backed Salvation Government that administers Idlib over the balance between cross-border and cross-line aid operations. The Syrian government and Russia insist that the UN ramp up cross-line assistance as an alternative to channelling aid through Bab al-Hawa, as part of their effort to reinstate Damascus’s influence over aid delivery to all of Syria. UN officials and Western diplomats are sceptical that this proposal is realistic, especially given the Syrian regime’s track record of blocking aid to punish civilians in opposition-held areas and the hostility of its rhetoric toward Idlib and its residents. From a technical point of view, cross-border aid remains the cheapest, quickest and most reliable way to meet Idlib’s needs. A report from the UN Secretary-General in June stated that UN humanitarian monitors counted some 1,686 trucks carrying supplies (four fifths of them bearing food) from Türkiye into Idlib in April and May alone. By contrast, the report noted that the UN had overseen just five cross-line convoys between July 2021 and June 2022, and highlighted one in May that involved just fourteen trucks.

The U.S. and its allies have agreed that the UN should also experiment with cross-line aid ... into Idlib.

Nonetheless, the U.S. and its allies have agreed that the UN should also experiment with cross-line aid, mainly as a political concession to Russia and in hope of retaining Moscow’s acquiescence to cross-border operations. In 2021, the Security Council agreed to “encourage efforts to improve cross-line deliveries of humanitarian assistance” from government-controlled areas into Idlib. Moscow complains that the resolution has not been fully respected, as cross-line deliveries to Idlib have remained irregular, while HTS (and civil society groups in Idlib) as well as many humanitarian agency employees describe these efforts as a sop to the Kremlin rather than serious aid.

This debate has also become highly contentious for local forces in Idlib. HTS and the Salvation Government have reluctantly agreed to some of the cross-line aid deliveries, providing them with security and allowing for safe distribution. Yet HTS has come under fierce criticism from parts of the population and rivals in Syria’s opposition for thus “collaborating” with a regime that has killed thousands and displaced millions of Syrians. In private, HTS members express concern that the cross-line mechanism is a quandary for them: if they cooperate, they are criticised locally; if they don’t, they will be condemned internationally; and in neither situation can cross-line aid address even a fraction of humanitarian needs in Idlib. For the time being, HTS has found it prudent to facilitate the safe passage of several cross-line aid convoys to avoid giving Moscow a pretext to put a halt to the UN’s cross-border mandate and to strengthen Türkiye’s hand in negotiating with Russia. According to HTS, it would be much harder for them to cooperate on cross-line aid if Moscow were to veto the cross-border mandate’s renewal.

What would a Russian veto mean?

If Russia does veto renewal of the cross-border aid mandate, the immediate fallout could be chaotic. It is not clear whether OCHA would have to abruptly end its Syria operations in Türkiye or whether it could continue to play a minimal coordination function during a transitional phase. Regardless, the absence of OCHA’s irreplaceable aid infrastructure and cross-border mandate would significantly reduce the volume of aid and the efficiency of the donor response. It would also leave NGOs and donors struggling to manage aid coordination and oversight, while reducing their leverage in dealing with authorities in Türkiye and Idlib. UN officials estimate that NGOs could supply at best 30 to 40 per cent of the aid that the UN has been providing. In practice that means hunger will increase, medical cases will go untreated, and millions will be at risk of losing shelter and assistance.

Crisis Group’s interlocutors in Idlib agree that the aid flow’s disruption could lead many of the region’s inhabitants – many of whom fled other parts of Syria earlier in the war – to attempt to escape the area, mostly by trying to enter Türkiye. How Ankara would respond to chaos at the border remains unclear; already in Türkiye the presence of an estimated 3.7 million Syrian refugees is a source of socio-political tension, which is on the rise due to economic troubles and elections due in June 2023. Although living conditions in Idlib have improved considerably since Moscow and Ankara forged a de facto ceasefire in 2020, the population remains anxious about the precarious situation. “Our lives depend on the mood in the Kremlin every few months. This is inhuman and unsustainable”, an Idlib resident said.

What are the chances the mandate will survive?

In the immediate aftermath of Russia’s assault on Ukraine, Security Council members generally seemed pessimistic about the chances of renewing the mandate for cross-border aid in conversations with Crisis Group. Now, however, some are guardedly optimistic that Moscow will let it survive. It is mostly a matter of speculation. The Russian mission in New York typically has to wait until late in negotiations on this file to get clear instructions from Moscow on how to act. In negotiations on the draft resolution tabled by Ireland and Norway on 27 June extending the mandate, neither Russian nor Chinese diplomats appeared to have definite guidance from their capitals. Western diplomats hope that Moscow will decide that it will retain greater leverage over events in Idlib by agreeing to renew the mandate – which gives it a platform for pushing the UN to work harder at cross-line aid – rather than forcing a crisis.

Western officials hope that Moscow will [refrain from using its veto] on this occasion.

Although Western and Russian diplomats have had toxic relations at the Security Council over Ukraine, Moscow has refrained from using its veto on other resolutions, such as a new mandate for the UN Assistance Mission in Afghanistan, that other countries feared it might block. Western officials hope that Moscow will show similar restraint on this occasion, especially as vetoing the resolution would intensify its tensions with Türkiye (Turkish sources, by contrast, insist that they cannot prevent Russia from using its veto, and argue that Ankara should not be expected to fix this problem on behalf of the U.S. and European nations). China may also help moderate Russia’s calculations. During the 2021 negotiations over the Syrian humanitarian mandate, Chinese diplomats told Western counterparts that they did not want a repeat of the public disputes of 2019 and 2020. In 2022, they have emphasised the need to avoid too many blow-ups in the Security Council while the Russian-Ukrainian war continues.

There are different views regarding what Council negotiations will bring. Some Council members speculate that Russia could make last-minute demands – most likely over cross-line aid and funding for recovery – in the coming days. While the Council is slated to vote on mandate renewal on 7 July, it could push the date back, with negotiations perhaps running past the current mandate’s expiry on 10 July. Equally some UN officials guess that Russia will not create this sort of disruption, meaning that the process may end with a quick vote.

What is the longer-term future of cross-border aid to Syria?

It is clear that the best outcome of current UN diplomacy over Syria would be for the Security Council to renew the mandate for cross-border aid for a year. No credible alternative set of arrangements exists for cross-border aid. If Russia does veto the mandate, the fallout would provoke enormous humanitarian suffering, additional displacement and, potentially, political turmoil in and around Idlib. While Moscow has shown scant regard for the disapproval of other Security Council members over its war on Ukraine, it might be wary of straining its relationship with Ankara – and of creating a new crisis for itself in Syria while it is focused on Ukraine.

Nonetheless, Western members of the Council and UN officials need to ready themselves for an end to the cross-border-mandate, either in July or at a later date. The original Council mandate for cross-border aid to Syria in 2014 was based on the assumption that rebel-controlled enclaves around the country were temporary phenomena, and the mandate as well. For now, it appears more likely that the Syrian conflict is moving into an extended stalemate with no clear military or political resolution on the horizon. Areas of northern Syria where millions of displaced Syrians live might remain outside government control – and in need of significant external aid – for some time to come. There is no guarantee that the Security Council will continue to renew the authorisation for cross-border aid indefinitely.

Donors, the UN and NGOs already have plans for the eventuality that the cross-border arrangements end. One option – even if the mandate is renewed – may be for OCHA to gradually wind down its delivery operations while continuing to play a smaller coordination role and helping build up the capacity of NGOs to supply aid to Idlib in place of UN agencies. In this case, a future Russian veto would do less damage to aid supplies than it would do today. For the time being, however, it is essential that the Security Council renew the mandate for cross-border aid to avoid a fresh humanitarian disaster in north-western Syria.

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