The Senior Minister of State, Department for Communities and Local Government & Foreign and Commonwealth Office (Baroness Warsi)
My Lords, with the leave of the House, I shall now repeat a Statement made in another place by my right honourable friend the Foreign Secretary. The Statement is as follows.
“Mr Speaker, with permission I will make a Statement to update the House on the crisis in Syria—a crisis which is still intensifying. Sixty thousand Syrians are now believed to have died, 600,000 people have become refugees, 2 million people are internally displaced and 4 million people are in desperate need.
To illustrate the true horror of the conflict, 1,000 civilians were reportedly killed in one six-day period over Christmas. On Christmas Day opposition activists reported that 17 people were executed at a checkpoint in the Damascus suburbs, nine of whom were from one family. The regime has used SCUD missiles to target populated areas, and deployed cluster munitions. Entire urban districts have been reduced to rubble in cities like Homs and Aleppo.
The House will join me in expressing our solidarity with millions of courageous Syrian people in the face of this appalling brutality. We continue to believe that the best way to end this bloodshed and to protect all Syria’s communities is through a political transition. Our country has a moral obligation to help save lives in Syria, and a national interest in ensuring that the country provides no haven for terrorist activity. We know that to achieve lasting stability we must work with the Syrian opposition and countries of the region and not try to impose a political settlement from the outside. We are determined that all our actions will uphold UK and international law, and support justice and accountability for the Syrian people themselves.
In the coming weeks we will focus on six principal areas. First, we will intensify our diplomatic efforts to reach a political transition. We are actively supporting the efforts of UN-Arab League special representative Lakhdar Brahimi who has travelled to Damascus and to Moscow for talks with the Russian Government, and who is due to hold trilateral talks with Russian and US representatives this week. My ministerial colleagues and I are in regular contact with him and expect to hold further talks with him in London later this month. Our goal remains to persuade Russia and China to join us in putting the full weight of the UN Security Council behind a political transition plan for Syria.
Secondly, we will continue our work to help the Syrian national coalition to develop its plans for the future of Syria. Since I last updated the House I attended the Friends of Syria meeting in Marrakech, where the US and many other countries followed us in recognising the national coalition as the sole legitimate representative of the Syrian people, and where $150 million was pledged to support the humanitarian effort. The coalition is enlarging its membership to include Christian, Kurdish and other minority communities. At a meeting in Istanbul this week we saw encouraging signs of the coalition making every effort to broaden its support further and build on its legitimacy, although much work remains to be done.
We are working to strengthen moderate political forces in Syria committed to a democratic future for the country. We have provided £7.4 million of non-lethal support to the Syrian opposition, to civil society and to human rights defenders, and I can announce that we will provide an additional £2 million of support, bringing the total to £9.4 million. Our assistance is designed to help to save lives, to mitigate the impact of the conflict, or to support the people trying to achieve a free and democratic Syria. It includes solar-powered lighting, generators, communication equipment and water-purification kits to help opposition groups, and satellite communication devices for activists to document human rights violations and abuses so that one day the perpetrators of these appalling crimes can be brought to justice.
This involves support for local-level administration councils providing services to Syrian people during the conflict. We have given training to more than 300 Syrian journalists, who are striving to develop alternative sources of media and freedom of the press in Syria, and we are training activists working to create a network of peace-building committees across five Syrian cities. We are also helping the national coalition to co-ordinate the international humanitarian response and have provided a humanitarian adviser to work with them. At all times we urge the coalition to ensure that all opposition groups meet their commitments on human rights.
Thirdly, we will continue to increase the pressure on the regime to stop the violence. In December we argued that the EU sanctions regime on Syria, including the arms embargo, should be rolled over for three months until 1 March rather than 12 months, so that there would be an earlier review of it. We believed that it was important not to freeze EU policy for a whole year just as a new opposition coalition was being launched and the conflict on the ground was intensifying.
No decisions have yet been made to change the support that we provide to the Syrian national coalition or the Syrian people but European countries now have the flexibility to consider taking additional steps to try to save lives if there is no progress in the near future. Clearly the best outcome for the Syrian people would be a diplomatic breakthrough, bringing an end to the bloodshed and establishing a new Syrian Government able to restore stability. However, we must keep open options to help save lives in Syria and to assist opposition groups who are opposed to extremism if the violence continues. We should send a strong signal to Assad that all options are on the table. We will therefore seek to amend the EU sanctions so that the possibility of additional assistance is not closed off.
No one can be sure how the situation in Syria will develop in the coming months. There is no guarantee that Mr Brahimi’s efforts to mediate a political agreement will be successful. President Assad’s speech last week urged the Syrian people to unite in a war against his opponents. Given the regime’s intransigence and brutality there is a serious risk that the violence will worsen in the coming months. If that happens the international community’s response will have to be stepped up. We will not rule out any options to save lives and protect civilians in the absence of a political transition in Syria. We will ensure that our efforts are legal, that they are aimed at saving lives, and that they support at all times the objective of a political transition and encouraging moderate political forces in Syria, and we will keep the House properly informed.
Fourthly, we continue to increase our life-saving humanitarian assistance to the Syrian people. The United Kingdom is the second largest bilateral donor to UN relief efforts, supporting more than 100,000 people across the region with food parcels, blankets and warm clothing. On 21 December my right honourable friend the International Development Secretary announced a further £15 million in humanitarian aid, bringing our total support to £68.5 million so far. Honourable Members will have seen images of Syrian refugees struggling with rain and cold in refugee camps across the region. The latest £15 million of funding will be used to provide food, clean water, blankets and shelter to help Syrians cope with the misery of these winter months. There will be medical supplies to treat the sick and wounded, since so many Syrian medical facilities have been destroyed, and armoured vehicles to enable humanitarian agencies to deliver aid safely inside the country.
The UN has appealed for $1.5 billion for the first six months of 2013. This is the largest ever short-term UN appeal but it remains seriously underfunded. At the donor conference hosted by Kuwait and the UN Secretary-General Ban Ki-moon later this month we will again call on other countries to pledge the additional humanitarian aid that is so desperately needed.
I pay tribute to the 26 humanitarian workers who have been killed in Syria since the fighting began and deplore the rise in attacks on medical facilities in Syria, which are contrary to international law and an affront to basic humanity. We urge all parties to stop the violence and allow humanitarian agencies to deliver assistance safely and without interference, in accordance with international law.
Fifthly, we are continuing detailed planning for how we can help a future Syrian Government deal with the many challenges that Syria will face during a political transition. This process must be led by the Syrian people, but they will need help from the international community as they repair roads and hospitals destroyed during the conflict, and restart their ravaged economy. Today we are hosting leading members of the Syrian opposition, and representatives of 14 countries and international organisations, at a Wilton Park conference designed to advance detailed planning of that support, including in the areas of political reform, security, institution-building and the economy.
Sixthly, we are supporting UN efforts to document and deter human rights abuses in Syria. The UN Human Rights Council’s Commission of Inquiry on Syria published its latest report on 20 December. It showed that the international human rights violations highlighted in its previous reports were continuing. We will continue to do all we can to support its work. We are providing specific leadership in efforts to confront rape and sexual violence in Syria. We have deployed experts to the region to provide training in how to respond to reports of sexual violence, and how to improve the prospect of future investigation and prosecutions. We will intensify this work as a matter of urgency. We are also urging the Syrian national coalition to commit itself to ensuring justice and accountability for the Syrian people, and are drawing its attention to the right of a future Government of Syria to refer the situation to the International Criminal Court—even though some members of the UN Security Council are blocking that option at present.
This is our approach: intensifying our efforts to forge agreement at the UN Security Council; pursuing a political transition on the ground while ruling out no option to save lives if the situation deteriorates; supporting the opposition and the Syrian people; increasing the pressure on the regime and being prepared to do so in new ways if necessary; working to deter human rights violations and abuses; and planning to help Syria get back on its feet once the conflict comes to an end. The Syrian people are enduring unimaginable suffering. They are at the heart of this crisis, their future is at stake, and our country and the world must not abandon them”.
My Lords, that concludes the Statement.
Baroness Warsi
I thank the noble Baroness for her response to the Statement. As always, I thank the Benches opposite for their strong support in this matter. There is clear unity across the Dispatch Box on what is clearly a continuing and worsening crisis. The noble Baroness raises some specific points. Unfortunately I cannot give her the specific date when the Foreign Secretary spoke to the Russian Foreign Minister, but I do know that both the Prime Minister and the Foreign Secretary have been in constant contact with their Russian counterparts. My own discussions took place towards the end of last year, when I spoke to the Russian ambassador. I can assure the noble Baroness and the House that we use all opportunities, both private and public. Indeed, at the United Nations General Assembly the Prime Minister commented very clearly about our belief that Russia needs to play a more constructive role in achieving progress.
In relation to the opposition and the meeting today at Wilton Park, one of its main purposes is to build further consensus and an action plan relating to political, economic and institutional reforms. It is, of course, planning for a future where it will have a say; where the views of the Syrian people will be expressed through a legitimately elected Government. The further funding and support for the opposition is to ensure that they can continue in that.
A specific addition is the UK humanitarian adviser who has been seconded into the assistance co-ordination unit, which is based in Turkey and is run by the national coalition. It effectively co-ordinates aid going both into Syria and into the refugee camps outside Syria.
The noble Baroness asked for some detail in relation to AQ and other extremist groups, an issue which concerns us. The number of fighters currently in the opposition runs into six figures. It is not, of course, an organised army—people come and people leave—and at this stage it is anticipated that the numbers who belong to an extremist ideology or are fighting on the basis of religious fundamentalism are limited. However, we are keeping a close eye on the matter.
As to the noble Baroness’s question about weapons, at this stage there is no change in the UK’s policy on their supply. We are mindful of our obligations under the EU embargo and sanctions—which we, of course, led—and of our obligations both internationally and domestically. We feel that an escalation of the supply of arms into the region would not help but, of course, we must remain flexible as to what is required to save lives in the future.
The noble Baroness also raised the issue of aid efforts to increase funds. The Foreign Secretary has been in discussions with Nabil al-Arabi. He is building on those discussions, as he is with his opposite numbers, in the lead-up to the conference. I cannot give precise details of the amount of funds that have been collected or pledged but we are urging all nations to play their part.
Lord Ashdown of Norton-sub-Hamdon
My Lords, the Government’s actions are welcome in so far as they go. They will have an effect but, I fear, it will be far less than we might wish. Does my noble friend accept that one of the reasons for that is because many people, especially in the Arab world and the Middle East, do not see this as a conflict within Syria between an oppressed citizenry and an oppressive dictatorship but rather as the front line in a widening war between the Sunnis and the Shia? Does she agree that such an event would be extremely damaging for the Middle East and have grave consequences for stability world wide? Does she understand and know that many rich Saudi businessmen—just as they did in Afghanistan—are now actively funding Salafi and Wahabi tendencies in Syria and throughout the Middle East? They are supported in large measure, with great unwisdom, by the Qatari Government, who are playing with fire. What steps are Her Majesty’s Government taking to advise both the Saudi and Qatari Governments of the hazardous policies that they are following and the very dangerous consequences that they could have?
Baroness Warsi
My noble friend speaks with great experience in relation to these matters. I can assure him that we are extremely mindful of the consequences of where this may go. It is for that reason that this crisis—which has now been on-going for 22 months—has left us in a situation where we feel consistently frustrated by the fact that we need to do more to save lives. However, we are not at this stage managing to achieve a consensus within the international community on the direction in which we need to travel to achieve that. We are acutely mindful of the role that other countries from the region could play in Syria.
The noble Lord will be aware of the work that we have been doing bilaterally with Saudi Arabia and other countries to tackle extremist ideologies. I am familiar with the work that has been done in relation to extremist ideologies and deradicalisation programmes; for example, within Saudi Arabia. We always build upon those discussions, not just for people who are radicalised within Saudi Arabia but those who may use that as a basis for fighting in other countries.
Lord Wright of Richmond
My Lords, I, too, am grateful to the noble Baroness for repeating this Statement, which raises a large number of very serious issues. I will limit myself to three brief questions.
First, I welcome the Foreign Secretary’s assurance that we are activiely supporting the efforts of Ambassador Lakhdar Brahimi. However, will the Minister accept that our recognition of the Syrian national coalition as the sole legitimate representative of the Syrian people not only amounts to a virtual declaration of war against President Assad’s Government but seriously undermines the already difficult mission which Lakhdar Brahimi is trying to carry out at the request of the United Nations and the Arab League?
Secondly, I am glad to learn that we are the second largest bilateral donor to United Nations relief efforts in Syria. However, does the Minister accept that giving massive assistance—the Statement mentions over £7 million—to a Syrian opposition, of which one of the most effective and murderous elements is the terrorist organisation, al-Nusra, contradicts our alleged efforts to get all parties to stop the violence?
Thirdly, I note that we have given training to more than 300 Syrian journalists. Does the Minister accept that a more balanced and objective assessment of the current civil war in Syria is needed, both of the extent to which President Assad still has the support of a significant part of the Syrian population, and of the extent to which terrorist activities by al-Nusra, al-Qaeda, and other extremist movements have contributed to the distressingly high casualty figures? We may, as the Statement says, have a moral obligation to save lives in Syria, but direct intervention in a Sunni-Shia war, and even the threat of providing military assistance in the future, can only precipitate a further deterioration of this tragic conflict.
Baroness Warsi
The noble Lord raises a number of important issues. I understand his concerns in relation to what could be perceived by our recognition of the Syrian national coalition as the legitimate voice of the Syrian people, or the consequences that could flow from that. However, when a regime has inflicted such brutality upon its own people, it is right that we engage with a coalition of those in opposition. I can assure him that al-Nusra is not part of that coalition, and that it is therefore not in receipt of any funding that is being given to the recognised opposition coalition.
With regard to the balance of reporting that is coming out of Syria, it is right that we fund human rights defenders and journalists to take records and keep material for potential future prosecutions. The noble Lord will be aware, as will other noble Lords, that we must not allow a culture of impunity to exist at the end of such crises, and that there must, therefore, be accountability for the actions that took place during that crisis. The noble Lord will also be aware that for access and security reasons, it is very difficult for independent observers to be on the ground in Syria. It is therefore right and appropriate that we fund and support those who are there on the ground to take records.
Lord Anderson of Swansea
My Lords, the Minister painted a very bleak picture of this appalling civil war, in which there will be no winners and only losers—those being the people of Syria themselves. She described the frustration at the United Nations Security Council, and an underfunded aid effort. Will she answer three questions?
First, the Minister spoke of working with the Syrian opposition and the countries of the region. Presumably those countries include Iran and Russia. Certainly, President Assad’s speech was very intransigent, but is there any evidence of any softening of the position of Russia, and to what extent do we believe that Iran should be brought into the discussions?
Secondly, we know of the Russian naval presence in that area. How do we interpret that—simple sabre-rattling, or worse? Thirdly, quite properly, the Minister spoke of seeking to ensure that the perpetrators of these appalling crimes are brought to justice. What efforts are we making to ensure that those who are guilty of such violations of human rights are aware that we are monitoring their actions and indeed that we intend that ultimately they will face justice? What are the means of communication to such people directly?
Baroness Warsi
With regard to working with the opposition and other important allies in the region, we have of course been working closely with Turkey, which unfortunately has had to bear the brunt of taking on the majority of refugees who have come out of Syria. Other partners in the region are playing a constructive role.
With regard to Russia, I think that I made clear when I repeated the Statement that we are using all opportunities to impress upon the Russians, using discussions with our opposite numbers and counterparts in all fora, that there has to be some progress in this matter. Is there a softening of their position? Are we facing a brick wall? At this stage I could describe what we are seeing as a potential crack in the brick wall, but we must continue to ensure that we keep pushing.
With regards to perpetrators of crimes, there is always the possibility—provided that the United Nations Security Council can pass a resolution, which of course would have to be supported by China and Russia—that those crimes could be referred to the International Criminal Court. There is also the alternative option that, at the end of this crisis, these matters could be tried within Syria by a democratically elected Government.
Lord Alderdice
My Lords, does my noble friend recognise that the aid given to our allies like Turkey—particularly Jordan, which has almost 250,000 refugees, and Lebanon—is not merely a humanitarian issue? Let us recall the destabilisation of Jordan in 1970 by the Black September movement. There is a real danger of countries—not so much Turkey but certainly Lebanon and Jordan—being destabilised by the number of refugees coming in. Do Her Majesty’s Government understand that this is not just a humanitarian question but one of stabilisation?
In discussions with the opposition, are we trying to ensure that we get an undertaking from them that, should they find themselves in a position of governance at a later stage, they will hand over all stockpiles of chemical weapons and nuclear materiel to an appropriate international organisation? Can we get that agreement at this point, rather than waiting until we are bemoaning their being abused, should these folk find themselves in government at a later stage?
Baroness Warsi
I agree with my noble friend’s first point; of course our support in the region has both a humanitarian element and a stabilisation element. Countries can find themselves with a large number of refugees and that can lead to internal challenges for those nations. We are therefore supporting countries in the region in dealing with those issues.
My noble friend makes an important point with regard to chemical and biological weapons. We have had these discussions with the opposition coalition. We have asked them to appoint an individual who will be specifically responsible for co-ordinating the discussion of these matters with a view to ensuring, if at all possible during the crisis, that these weapons are safeguarded, and we have urged them, at the end of this, to sign up to the chemical weapons convention and the biological and toxic weapons convention. The opposition coalition is in agreement with us on that.
Lord Harries of Pentregarth
My Lords, I am glad to hear from the Statement that the coalition is enlarging its membership to include Christian, Kurdish and other minority communities. With regard to those Christian minorities, as the Minister knows, Christians are particularly vulnerable at the moment because they have been relatively protected under the Assad regime, they are disproportionately represented among refugees and people who are internally displaced and of course they are particularly at risk with the wholesale outbreak of sectarian violence. What are the Government thinking with regard to the particular protection of those minorities?
The second question concerns the Kurds. As we know, since the First World War the Kurdish people have been seeking their own country, which they feel they have been denied. There are reports that they will look for an opportunity to bring this into being now. In what way are the Government bearing this possibility in mind?
Baroness Warsi
My Lords, as I said in the Statement, the inclusion of minorities in the national coalition has formed a large part of our discussions. The president of the national coalition is Sheikh al-Khatib; below him are four vice-presidents, one of whom is from the Christian community. A further two have been appointed from the Muslim community and a fourth position has been reserved for the Kurdish minority. However, that appointment has not yet been made because there are discussions within the Kurdish minority as to who would be the most appropriate person. The rights of all minorities, including the Christians and Kurds, have formed part of the discussions in relation both to the way in which the national coalition has been set up and to how those reforms are to be taken forward.
On the wider question about the Kurds, I hope that, in the discussions that we are having with the national coalition, those are matters that we can move towards resolving, certainly as far as Syria is concerned.
Baroness Uddin
My Lords, I welcome this detailed Statement. In the light of yesterday’s discussion in this House on rape being used as a weapon of war and the Minister’s reference to a specialist team being sent to monitor violence against women, what assessment have her Government made of the number of women who may have reported rape and who the perpetrators may be? With regards to the discussions both here and in Turkey, what proportion of women are taking part in these so that a post-conflict Syria is truly representative and equal?
Baroness Warsi
The noble Baroness asks a very important question. She will be familiar with the initiative to prevent sexual violence, to which the Foreign Secretary has given a huge amount of time and energy. Too often, as in the case of Syria and, as we saw, across the Arab world during the Arab uprising, sexual violence is used as a tool of war—sadly not just against women but against men as well. I do not have specific numbers for reports of sexual violence during the Syria conflict. If the office has those numbers, I will write to the noble Baroness and send her those details.
She also asks an important question about the participation of women. Again, the answer is not immediately obvious from the brief that I have here but I will make those inquiries for my own information as well as to ensure that I can send the noble Baroness a detailed response.
Lord Alton of Liverpool
My Lords, there is widespread concern at what might appear to be unconditional support for the so-called opposition forces, not least because of the treatment of minorities that has been referred to already. Did the Minister see the report in the Sunday Times recently about how a group of Jihadists beheaded a Syrian Christian and literally fed him to the dogs? Did she also see reports concerning links with family members of Osama bin Laden and al-Qaeda? Therefore, as my noble friend Lord Wright and the noble Lord, Lord Ashdown, said earlier, should we not be prudent and cautious before feeding a situation where we could simply make bad matters worse? Would the Minister not agree that, in the list of priorities that she mentioned earlier, the treatment of minorities and the upholding of their human rights should be an unconditional issue as far as our support for any opposition group is concerned?
May I also ask her to revisit a reply that her noble friend Lady Northover gave me on 18 December when I asked about support for Hand in Hand for Syria, a British medical charity? She replied that there were no current plans to fund its work. In view of the massive humanitarian needs in Syria at present, will she undertake to look again at that reply?
Baroness Warsi
I will look again that reply and I will certainly make inquiries of the Department for International Development. I know that we are currently using international NGOs for the specific work within Syria but if this is an option that could be looked at, and one that DfID feels is appropriate, I will certainly feed that information back to the noble Lord.
I can assure the noble Lord that our support for the opposition is not unconditional. It is very clearly conditional upon the fact that we require reform, we require a plan and we require them to sign up to basic requirements such as the need for equality and non-discrimination towards minorities. We must also be careful since when we make this argument, which has been made before on a number of occasions, it surely cannot be right that we sit here in Britain and feel that the only way that the rights of minorities, including Christians, across the Arab world can be protected is if they are being ruled by a dictator. There surely has to be another way in which Christians and other minorities are protected as part of a democratically elected Government under which all communities feel part of that nation.
Lord McConnell of Glenscorrodale
Given the horrors endured by the people of Syria and the impotence of the international community in 2011 and 2012, does this not reinforce the need for reform of the UN Security Council? In their discussions with the newly re-elected President of the United States of America, now starting his second term in office and therefore not facing re-election in four years’ time, do the Government plan to make taking forward reform of the UN Security Council a priority?
Baroness Warsi
My Lords, I also have the privilege of being the Minister responsible for the United Nations. Indeed, on Sunday I will be travelling to the United Nations for a full day of talks focusing specifically on the reform of the UN.
Lord Elystan-Morgan
My Lords, many noble Lords have raised the question of recognition. When Her Majesty’s Government recognised the national coalition some weeks ago, was that on a de jure or de facto basis? Presumably it was the latter because there has been no ambassadorial representation—nor is there any intention of it, as I understand it. Indeed, can the Minister confirm that, if any de jure recognition is contemplated, many considerable and complicated problems of public international law arise from the nature and composition of the opposition that we are talking about.
Baroness Warsi
My Lords, it is at moments like this that I realise why the noble Lord, Lord Howell, was such an institution—I will continue to strive to fill his large shoes. This is the kind of question he would be able to answer immediately. What I can say is that, interestingly, some of the questions around the recognition of the national coalition and the implications of that for us—of course we continue to have a diplomatic relationship with the state of Syria—were questions that I asked in my briefing about an hour ago. When I get those answers, I will write to the noble Lord and give them to him.