What changed

B100157/2025

Follow up to the European Parliament non-legislative resolution of 12 March 2025 on the need for EU support towards a just transition and reconstruction in Syria

European Parliament resolution on the need for EU support towards a just transition and reconstruction in Syria

Resolution tabled pursuant to Rule 136 (2) and (4) of the European Parliament's Rules of procedure.

(2025/2569(RSP))

References: 2025/2569(RSP) / B10-0157/2025 / P10_TA(2025)0035

The European Parliament,

Date of adoption of the resolution: 12 March 2025

– having regard to its previous resolutions on Syria,

Competent Parliamentary Committee: The text adopted in plenary was tabled by the EPP, S&D, ECR, Renew and Greens/EFA groups.

– having regard to the outcome of the Foreign Affairs Council meeting of 24 February 2025,

Brief analysis/ assessment of the resolution and requests made in it:

– having regard to the European Council conclusions of 19 December 2024,

The European Parliament’s resolution emphasises the urgent need for the European Union (EU) to support a Syrian-led, just and inclusive political transition to unite and rebuild the country and to assist Syria in its reconstruction efforts following the fall of the Assad's regime – a position fully shared by the European Commission (the Commission). The resolution underscores the fresh start in the EU-Syria relations, encouraging the EU to cooperate with Syria’s transitional government in a transparent manner, being ready to provide state-building assistance where needed. The European Parliament expresses deep concern about the fragile security situation across Syria, particularly the coastal area, and emphasizes that all EU diplomatic channels need to be used to advocate for the stabilisation of the country. The resolution also calls on neighbouring countries to respect Syria’s territorial integrity and sovereignty and to immediately cease all attacks and incursions on and occupation of Syrian territory in full compliance with international law. To allow for the rebuilding and reconstruction of the country, the resolution invites the EU to urgently support demining efforts. Recognizing the invaluable contribution of civil society reflecting the aspirations of the Syrian people, the resolution calls for the EU to increase its support to Syrian civil society organisations. In the context of a rise of disinformation within Syria and abroad, the resolution suggests that the EU should provide funding and capacity building to support a pluralistic media landscape. Transitional justice and accountability are portrayed as key elements to ensure a successful political transition. In this regard, the resolution calls on the EU to provide relevant support and funding.

– having regard to the G7 leaders’ statement on Syria of 12 December 2024,

The text underscores the centrality of the need to focus on the Syrian economy, including sanctions, with a view to facilitating reconstruction efforts. The resolution calls specifically on the Commission to reach out to other countries imposing sanctions on Syria and to provide European businesses and banks with assurances to address the risk of over-compliance. The resolution requests comprehensive and sustained EU humanitarian and development aid including by maintaining support to neighbouring countries. A shift in aid towards more economic recovery and reconstruction is sought with adequate due diligence and independent monitoring processes in place. Increase of overall EU support is requested also in light of the US disinvestment and decrease in global aid budgets (UK, several EU Member States). On refugee returns, the Commission is called upon to provide EU Member States with guidance on ‘go-and- see’ visits; the role of the Syrian diaspora in the transition process is emphasized.

– having regard to UN Security Council press statement of 17 December 2024 on the situation in Syria,

6. Response to the requests in the resolution and overview of the action taken, or intended to be taken, by the Commission:

– having regard to the Rome Statute of the International Criminal Court (ICC),

The Commission acknowledges the recent European Parliament resolution on the need for EU support towards a just transition and reconstruction in Syria. The Commission remains committed to continue supporting Syria in this new historic chapter. All Syrians, in the country and the diaspora, should have an opportunity to reunify, stabilise and rebuild their country, in line with the core principles of UN Security Council Resolution 2254. The Commission underlines the importance of a peaceful and inclusive, Syrian-led and Syrian-owned transition, free from harmful foreign interference, which ensures the protection of the rights of Syrians from all backgrounds without discrimination. Syria’s independence, sovereignty and territorial integrity within secure borders should be fully respected, in accordance with international law, in particular with international humanitarian law and human rights law. The EU condemns any unilateral foreign military actions as well as attempts to undermine Syria’s stability and prospects for a peaceful transition. Human rights and fundamental freedoms should be respected, protected and fulfilled for everyone in Syria, without discrimination of any kind. Ensuring accountability and comprehensive transitional justice are fundamental elements to lasting peace. The Commission will continue to address humanitarian needs across all of Syria. The Commission is committed to play a proactive role in the stabilisation, socio-economic recovery and future reconstruction of Syria, provided that an inclusive political transition continues. The Commission approach will be gradual and proportionate to the steps taken by the new transitional government.

– having regard to Rule 136(2) of its Rules of Procedure,

Security

A. whereas the fall of Bashar al-Assad’s brutal dictatorship after 13 years of civil war and intense oppression, which caused the loss of more than 500 000 lives and the displacement of 14 million Syrians, marks the beginning of a new chapter for the Syrian people and the wider Middle East;

The Commission underlines the need for state institutions to fulfil their responsibility in maintaining order and protecting the population throughout Syria and the importance to move towards the disarmament, demobilisation, and integration of all armed groups into national security forces as part of a wider and robust effort of security sector reform, and as a prerequisite for internal security and political stability under the rule of law. The Commission underscores the importance of the security and stability of Northeast Syria, including the prevention of resurgence of terrorism, and the need for continued and secured operation of the camps and detention facilities in Northeast Syria. A coordinated and Team Europe approach is needed in this regard.

B. whereas the call of the 2011 revolution, for democracy, justice, and equality, has re-emerged, creating an opportunity for the establishment of a new, inclusive and democratic Syria;

Sanctions

C. whereas the EU must play a significant role in facilitating Syria’s democratic transition, which should focus on respect for sovereignty and territorial integrity and on ensuring the participation of all Syrians, regardless of gender, ethnicity, religion or political affiliation;

The Commission welcomed the adoption by the Council of legal acts on 27 May 2025 lifting economic sanctions on Syria, while maintaining listings of individuals and entities linked to the Assad regime and sanctions based on security grounds. The adoption formalises the political decision announced on 20 May 2025, and aims at supporting the Syrian people in reuniting and rebuilding a new, inclusive, pluralistic and peaceful Syria. In addition, the Commission welcomed the Council’s decision to remove twenty four entities from the EU list of those subject to the freezing of funds and economic resources, including the Central Bank of Syria and to introduce new restrictive measures under the EU Global Human Rights Sanctions Regime, in relation to the wave of violence in Syria’s coastal region in March 2025. Continuous monitoring of developments on the ground is a priority.

D whereas on 24 February 2025, the EU suspended restrictive measures on Syrian energy, transport and banking sectors;

EU assistance

E. whereas approximately 500 000 internally displaced people have returned to their areas of origin since the change of regime; whereas many of them face inadequate services, limited livelihoods and damaged infrastructure, hindering their sustainable reintegration; whereas 7.4 million people remain displaced inside the country;

The Commission takes note of the European Parliament’s call on the EU to increase its financial support to Syria and its people and to ensure sustainability of its funding. The EU and its Member States have been the largest donor, having mobilised more than EUR 37 billion since 2011 in humanitarian, resilience and stabilisation assistance, supporting Syrians both inside the country and in the region. Out of this amount, the EU-mobilised assistance since 2011 amounts to EUR 15.61 billion including humanitarian and non-humanitarian funding.

F. whereas according to the UN Refugee Agency, UNHCR, the situation in Syria remains one of the world’s most acute crises, with almost 17 million people – 70 % of the entire Syrian population – requiring humanitarian assistance;

Inside Syria, since 2011, the EU has been funding early recovery projects for a total of EUR 500 million under the NDICI/ENI instruments. Through this funding the EU has been supporting local initiatives with the aim to build resilience, address longer term needs and prepare the ground for a better future for all Syrians. The EU has been supporting and empowering Syrians across the country, working on education and vocational training, health, livelihoods, agriculture, fight against impunity and social cohesion. Under the Assad regime, this assistance has been implemented under strict red lines (no reconstruction, no lifting of sanctions and no normalisation with the regime) and operational parameters.

G. whereas the EU and its Member States have mobilised more than EUR 33.3 billion in humanitarian, development, economic and stabilisation assistance;

The EU has also supported the main host countries in the region with both humanitarian and non-humanitarian assistance, addressing the needs of both refugees from Syria and host communities’ alike, and ensuring access and delivery of basic services. Humanitarian aid has focused on addressing critical lifesaving and protection needs of the population and supported humanitarian early recovery by improving access to basic services for an increasingly deprived population in Syria and across the region. Since the beginning of the crisis in 2011, the EU’s humanitarian assistance inside Syria amounts to over EUR 1.9 billion in total.

H. whereas more than 14 million Syrians have been forced to flee their homes in search of safety; whereas 5.5 million Syrian refugees live in the five countries neighbouring Syria, namely Türkiye, Lebanon, Jordan, Iraq and Egypt; whereas the conflict has had an impact on Palestine refugees who rely on the UN Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) for basic services, 438 000 of whom are estimated to be in Syria and many of whom are displaced and expected to return; whereas continued support for UNRWA is needed for the protection of these refugees; whereas EU countries host over one million Syrian asylum seekers and refugees;

In parallel to humanitarian and non-humanitarian efforts, the EU has consistently monitored the volatile security situation in Syria and its implications for the EU internal security, particularly the terrorist threat emanating from the region. It has supported targeted projects to counter terrorism and prevent radicalisation, including in the camps in Northeast Syria, where many allegedly Daesh-affiliated family members are being held.

I. whereas the International, Impartial and Independent Mechanism (IIIM) was established by the UN General Assembly in 2016 to assist in the investigation and prosecution of persons responsible for the most serious crimes under international law committed in the Syrian Arab Republic since March 2011;

Brussels Conferences

Institutional transition and governance

Since 2017, the EU has been leading on international efforts to keep Syria high on the political agenda, to mobilise international funding in response to the Syrian crisis and to support Syrian civil society through the organisation of the Brussels Conferences. This year, building on the Ministerial meetings in Aqaba, Riyadh and Paris, the EU hosted a Ministerial segment of the Ninth Brussels Conference on 17 March 2025 on “Standing with Syria: meeting the needs for a successful transition.” For the first time, Syria’s new interim authorities participated.

1. Welcomes this historic new phase and the opportunities it brings for Syria following the fall of Assad’s brutal regime, and expresses its strongest support for the people of Syria and its communities;

This ninth Brussels Conference underscored the strong political will of the international community to support Syria during this historic time, mobilising EUR 5.8 billion, in both grants and loans, to support Syria's transition process and socio-economic recovery, while also addressing urgent humanitarian needs, both within Syria and in host communities across the region. In clear demonstration of continued and strengthened support, the EU committed nearly EUR 2.5 billion for 2025 and 2026, increasing the pledge from last year by EUR 349 million.

2. Believes that the future of Syria must be led by the Syrian people and must be inclusive and democratic, to ensure a stable and viable transition that is based on the principles of sovereignty, unity, territorial integrity and the rule of law, and to ensure the protection and the participation of all civilians, regardless of gender, ethnicity, religion or political affiliation;

EU assistance for 2025 and beyond

3. Calls for an inclusive transition process that represents all of Syria’s communities, including Arabs, Kurds, Christians, Sunni, Shia, Druze, Alawites, Armenians, Turkmens and Circassians;

Supporting Syria on its path from humanitarian assistance to a more long-term recovery and reconstruction, also reflecting European Parliament’s call for this extended focus, the Commission will make available an enhanced socio-economic recovery package for Syria of EUR 139 million for 2025. It will cover three key areas: 1) institutional capacity building - through mobilisation of expertise from inside and outside of Syria, including through the Syrian diaspora; 2) socio-economic recovery and 3) transitional justice, accountability and human rights. This package will be implemented using solid operational parameters.

4. Calls for the urgent inclusion of women in all stages of the political transition and the legal protection of gender equality in the new constitutional framework; insists on the need for policies to ensure women’s economic empowerment, protection from gender-based violence, and access to leadership roles; welcomes the creation of a Women’s Affairs Office in Syria’s interim government and its commitment to engaging Syrian women in social, cultural and political institutions; advocates, in particular, maintaining the progress made on gender equality in the Kurdish-held areas in north-eastern Syria, also known as the Rojava region; considers the region to be a role model for gender equality and inclusiveness;

The Commission emphasises the essential role civil society and freedom of association play in ensuring a peaceful, democratic, just, inclusive and pluralist society. The EU has been a longstanding supporter of Syrian civil society. It has a huge role to play – including on governance, transitional justice and inclusion – in building the new Syria. To that end, the EU will continue strongly supporting the civil society to fully participate in the future of the country. The EU plans to support a dialogue with civil society later this year in Syria.

5. Calls on the Syrian authorities and the international community to continue to focus on the fight against Daesh and the destruction of chemical weapon stockpiles, landmines and cluster munitions;

The Commission will also be stepping up humanitarian engagement in response to the Syrian crisis through a humanitarian assistance package of EUR 333 million in 2025. This includes EUR 202.5 million for Syria, EUR 93 million for Lebanon, EUR 12.5 million for Jordan, EUR 20 million for Iraq and EUR 5 million for Egypt.

6. Considers it to be essential to ensure accountability for crimes, including war crimes and crimes against humanity, such as torture, sexual violence and enforced disappearance; calls on the Syrian transitional authorities to take measures aimed at securing and preserving physical evidence of serious international crimes across the country, including through cooperation and engagement with international experts;

In the area of crisis response measures, the EU (FPI) is also finalising a ‘Civilian resilience package’ for Syria of EUR 13.5 million, focused on mine action, protection of civilians and support to media. Where possible, accountability and transitional justice will be integrated into these actions. Transitional justice is central to Syria’s future stability and reconciliation.

7. Urges the Syrian transitional authorities to ratify the Rome Statute and to fully cooperate with, and grant unhindered access to, independent monitors such as the IIIM, the UN Commission of Inquiry on Syria and the Independent Institution on Missing Persons in the Syrian Arab Republic;

The EU is also committed to continue supporting the main host countries in the region, Türkiye, Lebanon, Jordan, Egypt and Iraq, to address the humanitarian and non-humanitarian needs of both refugees from Syria and vulnerable host communities. In addition to life-saving humanitarian assistance to vulnerable refugees and host communities, the EU pledged EUR 1.044 billion for Türkiye, Lebanon, Jordan and Iraq in 2025, focused on system strengthening the social sectors and supporting durable solutions for Syrian refugees, such as socio-economic inclusion, resettlement and complementary pathways, or supporting the conditions for safe, dignified, voluntary and sustainable refugee returns.

8. Advocates the creation of independent transitional justice mechanisms to ensure full accountability for war crimes, crimes against humanity and other human rights violations committed since the beginning of the civil war in 2011;

Refugee returns

9. Supports the establishment of a Syrian-led National Dialogue, recognising the efforts initiated by the National Dialogue Conference on 27 February 2025, and calls for the full involvement of all communities and sections of the Syrian population, including civil society organisations and the Syrian diaspora;

On refugee returns, the Commission stresses that genuine obstacles remain keeping many refugees from returning at this stage, including security concerns, economic hardship, property issues, availability and access to basic services, and unexploded ordnance. The conditions for voluntary, safe, dignified and sustainable returns are not yet in place, also according to UNHCR. In this context, it is key to ensure that the asylum space is maintained, the principle of non-refoulement is respected, access to services continued and the resilience of refugees and host communities continues to be strengthened in hosting countries.

10. Calls for the establishment of a new institutional framework ensuring equal citizenship rights, universal access to education, healthcare, housing and social protection, as well as guarantees for labour rights and decent work opportunities for all;

The Commission fully acknowledges the right to return of refugees and internally displaced persons and has in this regard been working with UNHCR and IOM to support those Syrians who decide voluntarily to return to their country. The Commission also encourages Member States to facilitate “go-and-see visits” as an avenue for Syrian beneficiaries of international protection to assess the viability of a permanent return, whilst ensuring that international protection is not withdrawn. The Commission is committed to help creating the conditions for safe, voluntary, dignified and sustainable returns of refugees and stepping up its support for Syria’s socio-economic recovery. At the same time, the EU recognises the potentially destabilising effect that large-scale returns could have on the country at this time.

11. Reaffirms the fundamental role of civil society in shaping the future of Syria and ensuring a successful democratic political transition; calls on the international community to increase its investment in strengthening civil society organisations;

Coordination

Regional situation

The new reality in Syria demands collective engagement and a swift and coordinated response from the international community. The Commission stands ready to cooperate with Member States, key partners, including international financial institutions, and regional actors. Developing an enhanced coordination framework among international and multilateral donors, also in good coordination with the transitional authorities, is essential. Building on the Ministerial discussions of the Ninth Brussels Conference on Syria, the Commission organised on 18 March 2025 a senior-level workshop on Syria’s socio-economic recovery, with participation of the Syrian interim authorities. The workshop underlined the importance of ensuring better and effective coordination of international support to Syria and suggested ways forward in terms of regular donors’ coordination meetings. To this end, the Commission is now in the process of launching a dedicated donors’ coordination platform which will support a Syrian-led process to align donors’ community’s assistance with the government’s priorities. Seven thematic subgroups will be formed around key sectors of engagement - institution building, energy, health, education, livelihoods and job creation, banking and finance as well as transitional justice.

12. Considers that the fall of the Assad regime represents a significant opportunity for the stability of the entire Middle East, particularly by weakening the harmful influence of the Iranian regime and its proxies;

The Commission remains committed to cooperating with the European Parliament, Member States, and relevant stakeholders to ensure a coherent, coordinated, and strategic response to Syria's evolving situation.

13. Insists on the implementation of UN Security Council Resolution 338 (1973) and the dismantling of Israel’s occupation of the Golan Heights, in accordance with international law, and calls for Syria’s territorial integrity to be respected and for compliance with the 1974 Disengagement Agreement;

14. Urges the Government of Türkiye to halt its unilateral military action in north-eastern Syria and withdraw its forces, emphasising that a sustainable solution must be based on political and diplomatic tools and respect for international law;

15. Calls for mechanisms to ensure the withdrawal of destabilising actors such as Russia and Iran;

16. Recognises the role of the Kurdish-led Syrian Democratic Forces in the effort to combat Daesh;

17. Notes that approximately 12 000 foreign citizens, many of them EU citizens, who have joined Daesh and other terrorist groups are being held in prisons and camps in the Kurdish-held areas in north-eastern Syria; emphasises the importance of EU support for the efforts aimed at weakening and ultimately defeating Daesh, which continues to represent a major threat;

18. Supports efforts to prevent jihadists from using Syrian territory to plan attacks outside Syria and efforts to dismantle the captagon trade network;

19. Calls on the Syrian transitional authorities to play a constructive role in regional multilateral organisations and commit to participating in international forums in support of the two-state solution of Israeli and Palestinian states living side by side;

Migration

20. Strongly condemns the decision by some Member States to suspend asylum applications from Syrians and calls for the EU to uphold its international obligations; calls strongly for the establishment of a more coordinated and humane asylum framework that protects vulnerable groups, including women, children and persecuted minorities;

21. Calls on the Member States to establish flexible asylum frameworks for Syrians who have been granted international protection in the EU, allowing them to return temporarily to Syria without jeopardising their legal status, with the aim of strengthening the societal and economic ties between the EU and Syria; insists that all returns must be voluntary, safe and dignified, in line with international standards, and that all asylum claims must be assessed individually and thoroughly;

22. Calls for an EU-wide strategy to support refugee-hosting countries such as Lebanon, Jordan and Türkiye, including sustainable financial aid, fair burden-sharing and development-oriented assistance for both refugees and host communities;

23. Emphasises that the Syrian diaspora is a key asset for the country’s democratic transition and reconstruction; calls for the facilitation of remittances and economic contributions from Syrians abroad;

EU role and final commitments

24. Reiterates that the EU must take an active and cautious role in Syria’s democratic transition, using all available tools to support the transitional authorities in upholding democracy and human rights, promoting gender equality and respecting neighbouring countries;

25. Reaffirms the EU’s commitment to supporting Syria’s democratic aspirations and calls for stronger financial and political action to bolster rebuilding efforts and humanitarian and stabilisation assistance;

26. Supports the recent decision by the Foreign Affairs Council to suspend sanctions on Syria, in particular in the energy, transport and financial sectors; advocates rigorous monitoring of respect for fundamental rights, the rule of law, minorities, gender equality, the fight against terrorism, international law and the sovereign rights of all Member States as a precondition for the full and permanent suspension of sanctions; calls for targeted sanctions to be maintained on individuals responsible for the atrocities committed by the previous regime;

27. Welcomes the ninth Brussels conference on supporting the future of Syria and the region, to take place on 17 March 2025; stands ready to play its political and institutional role in engaging in dialogue with all Syrians and international partners on the main challenges of transition, reconstruction and stability in the region; recalls the importance of ensuring adequate support also for the implementation of governance, institutional and security reforms aimed at protecting civil, political and socio-economic rights;

29. Calls for the consideration of ways to use the frozen assets of the Assad regime for a trust fund for Syrian reconstruction and rehabilitation and to compensate victims;

30. Calls for the EU to increase its presence in Syria through a joint action by the Commission and Parliament to support civil society and all democratic movements;

31. Urges the Vice-President of the Commission / High Representative of the Union for Foreign Affairs and Security Policy to prepare a comprehensive strategy for engaging Syrian civil society and diaspora communities in all steps of the institutional transition, in particular to promote justice and national reconciliation;

32. Calls on the Commission to support reconstruction efforts in Syria with particular attention to repairing the Syrian healthcare system and the country’s water supply infrastructure;

33. Calls for the EU to support Syria in efforts to restore areas and places of deep cultural significance to the Syrian public and to step up efforts to combat the illicit trafficking of stolen and looted cultural goods;

34. Reaffirms the EU’s support for the IIIM’s work on justice and accountability and calls for the EU institutions and the Member States to step up funding for the IIIM;

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35. Instructs its President to forward this resolution to the Council, the Commission, the Vice-President of the Commission / High Representative of the Union for Foreign Affairs and Security Policy, the Syrian transitional authorities and the parliaments of the Member States.