Sittings · Document
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
Resolution tabled pursuant to Rule 136 (2) and (4) of the European Parliament's Rules of procedure.
References: 2025/2569(RSP) / B10-0157/2025 / P10_TA(2025)0035
Date of adoption of the resolution: 12 March 2025
Competent Parliamentary Committee: The text adopted in plenary was tabled by the EPP, S&D, ECR, Renew and Greens/EFA groups.
Brief analysis/ assessment of the resolution and requests made in it:
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.
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.
6. Response to the requests in the resolution and overview of the action taken, or intended to be taken, by the Commission:
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.
Security
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.
Sanctions
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.
EU assistance
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.
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.
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.
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.
Brussels Conferences
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.
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.
EU assistance for 2025 and beyond
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.
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.
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.
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.
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.
Refugee returns
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.
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.
Coordination
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.
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.