Syria
Expected Council Action
In December, the Council expects to hold two meetings on Syria: one on political and humanitarian issues and another on the chemical weapons track.
Key Recent Developments
Conflict escalated significantly in Syria in late November. On 27 November, anti-government forces led by the Security Council-listed terrorist group Hayat Tahrir al-Sham (HTS), launched a major offensive in the north-western Aleppo governorate, resulting in significant territorial changes and the most intense fighting in the region since 2020. In the following days, rebel groups advanced into the city of Aleppo, seizing control of most areas, including the airport, amidst reports of a withdrawal by Syrian government forces.
Although the situation on the ground remains fluid, media sources suggest the rebels have established control in areas between Aleppo and the rebel-controlled Idlib province, capturing key towns south of Aleppo along the main Aleppo-Damascus highway. Rebel groups also claim to have seized the Abu al-Duhur military airbase in the eastern countryside of Idlib. At the time of writing, media reports suggest that rebel forces were advancing towards Hama, a government-controlled city south of Aleppo. The number of casualties from the recent hostilities remains unclear, with some reports estimating that over 327 people had been killed, including civilians and combatants from both sides.
Meanwhile, Russian and Syrian forces have intensified airstrikes in recent days, targeting rebel positions in Idlib and Aleppo. On 30 November, the SOHR reported that Russian and Syrian forces conducted 23 airstrikes in Idlib, killing four civilians and injuring 19 others. On the same day, airstrikes reportedly struck central Aleppo, resulting in the deaths of 16 civilians and 20 insurgent fighters.
The Israel-Hamas war has intensified tensions and violence in the Middle East, including in Syria. Israel has continued to strike positions in Syria that it claims are associated with Iranian forces and affiliated militants, including Hezbollah. Iran-linked proxies, in turn, have attacked US and allied forces stationed in the region, including in Syria. On 14 November, airstrikes reportedly hit residential buildings in the Mazzeh and Qudsaya areas of Damascus, resulting in at least 15 casualties. The Israeli military claimed that the strikes targeted military sites and the headquarters of Palestinian Islamic Jihad. On 20 November, Israeli airstrikes targeted multiple locations in and around Palmyra in central Syria, hitting key military sites, including a weapons depot. There were at least 79 fatalities, marking one of Israel’s deadliest operations in Syria.
Israel’s military operation in Lebanon, targeting Hezbollah positions, has worsened the plight of Syrian refugees living in Lebanon. In her remarks at the 21 November Council briefing on Syria, Director of the Operations and Advocacy Division at the Office for the Coordination of Humanitarian Affairs (OCHA) Edem Wosornu noted that over 540,000 people have fled to Syria from Lebanon since late September, more than half of them are children and two-thirds are Syrians who had been refugees in Lebanon. Wosornu highlighted the severe impact of airstrikes near Lebanon-Syria border crossings, allegedly conducted by Israel, noting that two of the five official border crossings are now impassable for vehicles due to damage.
On 27 November, Israel and Hezbollah agreed to a ceasefire, although both sides accused the other of violating it in the ensuing days.
In late October, Turkey intensified its military operations in northern Syria following the 23 October attack on the Turkish Aerospace Industries headquarters near Ankara, which killed five people and injured 22 others. The Kurdistan Workers’ Party (PKK) claimed responsibility for the attack, prompting Turkish forces to target areas in the Kurdish-held Autonomous Administration of North and East Syria (AANES). The strikes by Turkish forces reportedly targeted critical infrastructure, including water facilities, power and gas stations, and dispensaries, resulting in at least 17 deaths and 69 injuries.
According to media reports, Turkish airstrikes in north-east Syria have cut off access to electricity and water for more than one million people in a region that has experienced severe drought conditions in recent years. There were more than 100 attacks by Turkey between October 2019 and January, targeting oil fields, gas facilities, and power stations in AANES. Turkey has reportedly declared all infrastructure and assets associated with the PKK and Kurdish militia YPG to be “legitimate military targets”.
Amid deteriorating security and humanitarian situations across the country, the political process remains at a standstill. The Syrian Constitutional Committee has not met since June 2022 because Russia, a close ally of Syria, has opposed Geneva as the venue for the talks following Switzerland’s imposition of sanctions on Russia in response to its invasion of Ukraine in 2022.
On 11-12 November, members of the Astana format (Iran, Russia, and Türkiye) convened the 22nd high-level meeting in Astana. The representatives assessed the impact of regional developments on Syria and discussed the security, humanitarian, and economic situations on the ground, as well as counter-terrorism efforts.
Special Envoy for Syria Geir O. Pedersen has continued his efforts to revitalise the Syrian political process, including through engaging with relevant regional and international stakeholders. During the Astana meeting, Pedersen held discussions with representatives of the Astana guarantors and the Syrian government. On 19 November, he met with Jordanian Foreign Minister Ayman Safadi in Jordan. In a post on X (formerly Twitter), the Jordanian foreign ministry highlighted Safadi’s call to intensify efforts to end the Syrian crisis and address all its consequences, including by creating appropriate conditions for the voluntary return of refugees.
The 25 October report of the Director-General of the Organisation for the Prohibition of Chemical Weapons (OPCW) on the progress on the verification of and destruction of Syria’s chemical weapons stockpile said that the 28th round of consultations between the Declaration Assessment Team (DAT) of the OPCW and Syrian authorities took place in Damascus from 10 to 18 September. Although inspections were scheduled for 18 to 24 September, the Secretariat recalled the inspection team due to deteriorating security conditions in the region. The report concluded that considering the unresolved gaps, inconsistencies, and discrepancies, the declaration submitted by Syria cannot be considered accurate and complete in accordance with the Chemical Weapons Convention.
Human Rights-Related Developments
Addressing the 1 November meeting of the General Assembly’s Third Committee, the Chair of the Independent International Commission of Inquiry on Syria, Paulo Pinheiro, warned that “Syria is being pulled into the catastrophic conflict that is engulfing the region”. He highlighted the dire conditions faced by those fleeing hostilities in Lebanon and crossing into Syria. Pinheiro expressed deep concern about reports of displaced Syrians being subjected to abuse, arrests, and extortion by predatory armed actors at checkpoints.
He reported a resurgence of violence throughout Syria, including clashes in Deir-ez-Zor between government-backed tribal fighters and the Syrian Democratic Forces (SDF), a primarily Kurdish group opposing the Syrian government; mutual shelling between the SDF and the Turkish-backed Syrian National Army in northern Aleppo; and increased attacks by pro-government forces in and around Idlib, resulting in civilian casualties and displacement. Pinheiro criticised the near impunity for crimes and violations in Syria over the past decade, saying that international acquiescence has normalised disregard for international law. He echoed calls for immediate ceasefires in Gaza and Lebanon, citing the grave implications for Syria and its people amid escalating regional conflicts.
Key Issues and Options
A key concern for Council members is the ongoing hostilities across multiple front lines in Syria. Persistent violence and the lack of accountability on all sides threaten to destabilise the country further. A related issue is addressing the evolving security landscape in the country and its immediate and long-term implications. The recent hostilities in northern Syria have resulted in significant shift in frontlines, driven by advances by HTS and other armed opposition factions. The presence of terrorist and other armed groups remains a significant threat to the security and stability of the country. At the same time, the deteriorating socioeconomic conditions in Syria are a further strain on the population.
Addressing the spillover effects of the situation in the Occupied Palestinian Territory and Lebanon—as well as de-escalating rising tensions in the region, including in Syria—is also an issue of importance for the Council.
One option would be for the Council to request a briefing from the Secretary-General addressing the recent advances of HTS and the impact of regional escalation on Syria.
Another critical issue is addressing the growing humanitarian needs across Syria. Compounding this challenge is the refugee crisis, exacerbated by regional hostilities. In his 1 November statement, Pinheiro said that before current hostilities, only 1.7 percent of refugees expressed an intention to return to Syria in the short term, citing concerns about safety and security inside Syria as key obstacles.
Despite the escalating violence in the country and worsening humanitarian situation, the international community is not addressing the gravity of the situation. At the time of writing, Syria’s 2024 Humanitarian Response Plan (HRP), which called for $4.07 billion, was only 29.4 percent funded. At the 21 November briefing on Syria, Wosornu said that the UNHCR-led inter-agency emergency appeal for the displaced from Lebanon to Syria, amounting to $324 million, had only received $55 million.
The need to break the underlying political impasse in the country and support the Special Envoy’s work in this regard is another key issue. The Council could consider holding a private meeting with stakeholders to discuss strategies for overcoming the impediments to the resumption of the Syrian Constitutional Committee, including the issue of venue, and support Pedersen’s efforts to reinvigorate the political process.
Another option is for the Council to issue an outcome that would:
- Express strong concern about the persisting violence across Syria, the spillover effects of regional escalation on the country, and the resulting humanitarian consequences;
- Call on relevant stakeholders to de-escalate tensions in the region and within Syria and make efforts toward a nationwide ceasefire;
- Call on all actors to uphold the obligations under international humanitarian law to protect civilians and civilian infrastructure;
- Express strong support for the efforts of the UN and humanitarian actors on the ground;
- Call on the international community to scale up the humanitarian response in Syria, including through enhanced funding; and
- Express support for Pedersen’s efforts to reinvigorate the political process.
Council Dynamics
Syria continues to be one of the most divisive files on the Council’s agenda. China and Russia are supportive of the Syrian government, emphasising the need to respect the country’s sovereignty and territorial integrity and drawing connections between unilateral coercive measures on Syria and the country’s challenging humanitarian and economic situations. In contrast, the P3 (France, the UK, and the US) and other like-minded members criticise the government for violating international humanitarian law and human rights law, arbitrarily detaining people, not engaging meaningfully in political dialogue, and not creating conditions for the safe and voluntary return of refugees. Ensuring accountability for violence against civilians also remains a key issue for these members.
Council members remain concerned about the spillover of regional violence into Syria and the plight of refugees and returnees fleeing Lebanon into Syria under adverse circumstances. While China and Russia highlight the measures taken by the Syrian government to facilitate the entry and movement of displaced people, others, including the P3 members, have expressed concerns about reports of abuses against returnees. These members maintain that returns under duress do not indicate that conditions in Syria are conducive to the voluntary, safe, and dignified return of the refugees.
In light of the worsening humanitarian situation, several members have stressed the importance of sustained humanitarian access in Syria. Members, including Malta, the Republic of Korea, Slovenia, and the US, have highlighted the need to keep all cross-border and cross-line routes open, ensuring that aid delivery remains efficient and predictable for as long as necessary.
Russia has consistently criticised the presence of US forces in Syria, accusing them of contributing to the country’s instability. China and Russia have also regularly condemned Israeli attacks in Syria and underscored the importance of respecting Syria’s sovereignty and territorial integrity. The US has asserted that its military deployment is solely aimed at combating ISIL/Da’esh. It has also criticised the Syrian government for allowing Iranian-backed militias to operate within its territory. Additionally, some members, including the UK and the US, have condemned Syrian and Russian forces for targeting civilians and civilian infrastructure, particularly in the north-west, further exacerbating the humanitarian crisis.
With regard to the chemical weapons track, Council members have displayed starkly different views over the years on a range of related issues, including responsibility for the use of chemical weapons in Syria, the credibility of the work of the OPCW, and numerous procedural aspects of the OPCW’s decision-making bodies. While several members have consistently expressed support for the OPCW’s work, maintaining that it is credible and essential, other members, such as China and Russia, claim that its work is biased and politicised.
Switzerland is the penholder on the Syria humanitarian file.
| Security Council Resolutions | |
| 18 December 2015S/RES/2254 | This was the first resolution focused exclusively on a political solution to the Syrian crisis. It was adopted unanimously. |
| 27 September 2013S/RES/2118 | This resolution was adopted unanimously by the Council and required the verification and destruction of Syria’s chemical weapons stockpiles, called for the convening of the Geneva II peace talks and endorsed the establishment of a transitional governing body in Syria with full executive powers. |
