Baroness Warsi
That this House takes note of the situation in Syria and the Middle East.
The Senior Minister of State, Department for Communities and Local Government & Foreign and Commonwealth Office (Baroness Warsi)
My Lords, I would like to start by thanking the House for hosting this important debate on Syria and the wider Middle East. I am aware that Syria is a topic which comes up regularly both in the Chamber and, indeed, with noble Lords outside the Chamber. It is an issue in which people have a deep interest and on which many noble Lords have specific expertise. The debate is therefore timely and important.
The conflict in Syria continues to worsen. As we speak, the people and the city of Homs are being subjected to a renewed and brutal onslaught. The humanitarian situation continues to deteriorate by the day, and the gulf between the regime’s priorities and those of the Syrian people grows ever wider. It is also clear that the murder, violence and repression with which demands for democracy and accountability have been met have serious implications not only for the country’s future, but also for wider regional and international security.
At least 93,000 Syrians have been killed, more than 1.6 million are refugees in neighbouring countries and 4.25 million, almost a fifth of Syria’s population, have been displaced within Syria itself. A year ago, 1 million people inside Syria needed humanitarian aid; the figure now is nearly 7 million. The UN assesses that, by the end of the year, some 15% of Syria’s population will have become refugees in other countries. Ordinary Syrians are facing an increasingly desperate plight at the hands of a brutal regime that has committed an ever-growing number of war crimes: from sieges on towns and cities across Syria to forced displacement and the use of chemical weapons.
All of this is having a profound impact on regional stability. The growing burden on Syria’s neighbours, above all Lebanon and Jordan, both of which are playing a vital humanitarian role in hosting hundreds of thousands of refugees, is becoming increasingly unsustainable. The intervention of increasing numbers of foreign fighters on the side of the regime has escalated the conflict and increased the risk of regional overspill. Individuals with links to the UK as well as from across the Middle East and well-known terrorist organisations have also been travelling to Syria to fight the regime and push their own agenda. Those organisations increasingly view the chaotic situation as an opportunity to further their own causes.
It is in the UK’s interest that these challenges to regional peace and stability are addressed, and our priority remains achieving a negotiated political solution to bring an end to the violence. Our efforts are therefore directed at actively supporting the US-Russian plan to convene an international conference in Geneva with both the opposition and the Syrian regime to seek a peaceful settlement. As my right honourable friend the Prime Minister has made clear, we are determined to overcome diplomatic differences and agree a way forward to help the Syrian people achieve the change they want. We used our G8 presidency to underline that efforts must be focused on the ultimate goal of a political resolution. That has not changed. This built on previous contacts between the Prime Minister and President Putin in Sochi, and with President Obama in Washington. They agreed that all our efforts must be focused on the ultimate goal of a political resolution. Strengthening an inclusive, credible and capable opposition is an important step towards laying the groundwork for a negotiated settlement. It can also contribute to saving the lives of ordinary Syrians and to ensuring accountability for human rights abuses.
The UK has been at the forefront of the international community in providing non-lethal support to the Syrian opposition, committing £20 million to date. Our assistance to the moderate opposition includes vehicles with ballistic protection, body armour, trucks and forklifts, solar power generators, and equipment to search for survivors in the aftermath of shelling. This has helped enable the national coalition to develop structures that allow it to operate more effectively on the ground and to deliver assistance to Syrians in need as it develops into a credible alternative to the Assad regime. Our practical assistance has also included training human rights activists to document human rights abuses and violations for a future accountability process, as well as building capacity for Syrian civil society.
At Lough Erne, we agreed with our G8 partners $1.5 billion of new money for humanitarian support for Syria and its neighbours in response to the recent UN appeal for $5.2 billion. We are committed to doing all we can to aid the millions of civilians in Syria in desperate need of humanitarian assistance and will continue to urge our international partners to do likewise. At the G8, my right honourable friend the Prime Minister announced an additional £175 million in humanitarian assistance, making this the largest single funding commitment ever made by the UK in response to a humanitarian disaster. Our total contribution now stands at £348 million.
This will build on our existing support, which is providing food for thousands of people, water purification supplies, repairs to infrastructure and medical consultations for the critically ill and sick. Over £100 million of this has been committed to addressing the needs of Syrian refugees and host communities in the neighbouring countries of Lebanon and Jordan, both of which have seen over 400,000 refugees cross their borders. The influx is increasing the political, economic and security pressures on both countries. There are now more than half a million refugees in Lebanon, equivalent to more than 10% of its population. In Jordan, the refugee camp at Zaatari is one of the largest in the world and is now equivalent to one of Jordan’s biggest cities.
Along with our international partners, including Russia, we continue to press for access for neutral humanitarian agencies inside Syria, including through assistance across battle lines and borders. This is important because the regime has shown that so long as it entertains hopes of military victory it is willing to accept any level of loss of life in Syria. We, along with other nations, are dedicated to halting the bloodshed, restoring international peace and security, bolstering those resisting the regime and promoting a transition in the process.
The agreement to lift the EU arms embargo for the Syrian national coalition sends a clear signal to the Assad regime that it has to negotiate seriously and that all options remain on the table if it refuses to do so. We are encouraging the national coalition to engage with the Geneva II process. We strongly welcomed the Syrian national coalition’s declaration on 21 April setting out its commitment to a free and democratic Syria and condemning all forms of extremism.
Let me be clear that no decision has been taken to provide lethal support to the opposition. As my right honourable friend the Foreign Secretary has made clear, if we were to pursue this, it would be in co-ordination with other nations, in carefully controlled circumstances and in accordance with our obligations under national and international law. He has also made clear that Parliament would be engaged before any such decision was put into action and that the House would not be denied an opportunity to make a decision on the issue.
As my right honourable friend the Foreign Secretary and Secretary of State Kerry agreed in Washington on 12 June, the situation in Syria demands a strong, co-ordinated and determined response by the international community. Our priority remains to see a diplomatic process in Geneva that succeeds in reaching a negotiated end to the conflict. However, we have to be prepared to do more to save lives, to pressurise the Assad regime to negotiate seriously and to prevent the threat of extremism and terrorism if diplomatic efforts are to succeed.
We are deeply concerned by the recent intensification of fighting on the ground, not least in al-Qusair, where the Syrian regime, backed by foreign fighters, launched a military offensive against the town, which, according to UN reports, led to 90% destruction of its infrastructure and the displacement of most of its civilian population.
Continued support to Assad’s regime, which allows it to kill and repress the Syrian people, is continuing to directly undercut the peace initiative that was announced by Secretary of State Kerry and Foreign Minister Lavrov. We condemn the intervention of militias and fighters from Iran and Iraq, who are escalating the violence and supporting repression by the regime.
We welcome the UN Human Rights Council’s resolution, adopted on 28 May, which strongly condemned the violations of international law by Syrian authorities and government-affiliated militias, in particular the regime’s use of ballistic missiles and other heavy weapons against the people of al-Qusair.
As events in Sidon in southern Lebanon last week have shown, Hezbollah’s intervention in the conflict has already had a detrimental effect on Lebanon’s peace and security. An escalation in the conflict is entirely contrary to the interests of Lebanon, which must not become another victim of this conflict.
The House is well aware that we remain deeply troubled by the growing body of persuasive evidence that the Assad regime has used chemical weapons, including sarin. The process of gathering more information is ongoing, and we have been working tirelessly with others to get more and better evidence. We agree with the recent US assessment that chemical weapons, including sarin, have been used by the Assad regime. Samples tested in France have also added to the body of evidence.
However, we recognise that there is more work to do. As part of the G8, we called on all parties to,
“allow access to the UN investigating team mandated by the UN Secretary-General, and drawing on the expertise of the Organisation for the Prohibition of Chemical Weapons (OPCW) and World Health Organisation (WHO), in order to conduct an objective investigation into reports of use of chemical weapons”.
Given the experiences of the past, it is important to have as independent a view as possible. We therefore welcome the UN Secretary-General’s decision to investigate allegations of chemical weapons use in Syria, and we support the work of the UN Human Rights Council’s commission of inquiry, which continues to gather evidence of human rights violations and abuses.
The commission’s latest report, published on 4 June, highlighted the new levels of brutality in the conflict, including documented cases of the use of chemical agents, enforcing sieges on ordinary Syrians trapped in cities and towns, in desperate need of humanitarian aid. The report also notes human rights abuses undertaken by armed opposition groups. We are deeply concerned by these reports and continue to urge the opposition to abide by international human rights obligations. This is why we welcomed the national coalition’s compact, announced on 20 April in Istanbul, in which it set out clear commitments on reaching out to minorities, guaranteeing the rights, interests and participation of all components of Syrian society and adhering to international human rights conventions.
We have continued to call on the Syrian regime to allow both the UN investigation into allegations of chemical weapons use and the commission of inquiry immediate and unfettered access to investigate all violations of international law by all parties. The UK remains at the forefront of international calls for the situation in Syria to be referred to the International Criminal Court.
We cannot understate the severity of the crisis in Syria. We are faced with the prospect of, on the one hand, an ever more savage conflict and military stalemate, producing an even bigger humanitarian disaster, greater radicalisation and deeper sectarian divisions, further massacres, and even the collapse of the Syrian state and disintegration of its territory; or, on the other hand, and what we must strive for, a negotiated end to the conflict that ends the bloodshed and leads to a new transitional Government, enabling refugees to return to their homes and extremism to be contained.
There are no risk-free options, but we remain convinced that the best way to end the violence and resolve the conflict must be through a negotiated political settlement. To maximise the prospects for success, we must continue to support the moderate opposition, increase the pressure on the Assad regime to make clear there can be no military solution and challenge extremists who do not represent the desire of the majority of Syrians for a more democratic and peaceful future.
I welcome this debate on the situation in Syria and the wider Middle East. It is vital that this House continues to discuss and examine this issue of critical importance to regional and international security. I value the opportunity to hear your Lordships’ views in this debate and I am keen that we in the Foreign Office should benefit from the considerable expertise and experience of Members of this House as we continue to make every effort to end the bloodshed, minimise the risks to the region and protect the security of the United Kingdom. I beg to move.
Baroness Warsi
My Lords, I am grateful to the House for hosting this timely and important debate on the situation in Syria and the Middle East, and I will try to answer the many questions in a timely way. I am grateful for the insightful and moving contributions made over the course of our discussions, including those from the opposition Front Bench, but especially for the contributions of the noble Lord, Lord Wright of Richmond, and my noble friends Lord Risby and Lord Dobbs, and the broader contributions on faith, identity and international impacts from the noble Lord, Lord Desai, and the noble Baroness, Lady Afshar. My noble friend Lady Morris is right that many interventions merit a reread, and I will certainly be encouraging those of us at the Foreign Office dealing with Syria and the wider region to do that. It is important that this House continues to consider the deteriorating situation in Syria, its wider regional impact and how the UK has responded. We are privileged in being able to draw on the extensive experience of so many noble Lords here today, and we have enjoyed a wide-ranging discussion on the Motion.
The noble and learned Lord, Lord Morris of Aberavon, asked whether the House would have a say before any decision was made about arming the opposition. Let me repeat what the Foreign Secretary said in a Statement in the Commons on 18 June:
“We certainly would not want to pursue any aspect of our policy on this issue against the will of the House of Commons. That is neither feasible nor desirable, so of course we have made clear that there would be a vote. I have also made it clear that we would expect it to be before any such decision was put into action”.—[Official Report, Commons, 18/6/2013; col. 746.]
I can tell my noble friend Lord Alderdice that I have asked officials for options in the event that this House is in recess. I will ensure that his comments are considered in that process and, as ever, I am grateful for his clarity on this issue. I will report back to the House in writing or at the Dispatch Box when a decision is taken.
As the Minister with responsibility for Foreign Office business in this House, I have been particularly focused on these issues, and I felt it was important to gauge your Lordships’ views and to keep the House informed. I thank noble Lords. I thank the noble Lord, Lord Hannay of Chiswick, for his wide and in-depth contribution and my noble friend Lord Bates for his kind comments. It is amazing how coffee can keep you going, even after Afghanistan and Pakistan.
I shall take a few moments to recap the Government’s policy towards the complex situation in Syria and the Middle East, and the types of assistance that we are already providing to the Syrian people. Syria remains at the top of the Government’s foreign policy agenda. We are firm in our belief that the conflict and the suffering of the Syrian people will come to an end only through a negotiated settlement. We have therefore continued to escalate our assistance in order to achieve that goal.
In response to the dire humanitarian situation faced by Syrians displaced inside Syria and as refugees in neighbouring countries, we have set out our largest ever funding commitment for a humanitarian disaster. I can assure the right reverend Prelate the Bishop of Truro that we will remain committed. Our total contribution now stands at £348 million, which sends a clear signal to the Syrian people that they can count on the UK’s continuing support. At the same time, we have used our platform as host of the recent G8 summit to urge our international partners to commit to humanitarian assistance on a similar scale and to pay funds that are committed. The noble Lord, Lord Anderson of Swansea, asked about countries failing to make a contribution. The UN humanitarian appeal is for £5.2 billion. It is its largest appeal in history. The UK, US and the EU have been the largest contributors to that appeal, but we agree that others need to do more. That is why the Foreign Secretary urged Ministers at the Friends of Syria meeting on 22 June to increase their contributions to the UN appeal, including lobbying Saudi Arabia, Qatar and the UAE.
We have also committed large amounts of assistance to Syria’s neighbours, who are experiencing great economic strains and political tensions due to the conflict spilling over. Regional peace and security are important in containing the conflict, reducing the threat of extremism and ultimately helping to bring the conflict to a close. I can tell the noble Lord, Lord Wood, that Jordan and Lebanon are playing a vital humanitarian role and we are providing assistance to help alleviate not only the humanitarian crisis but the side effects too. We are supporting projects to help maintain stability in the region.
A political solution to the crisis would allow millions of civilians who have fled across the border to escape the conflict to return to their homes safely. However, the Syrian regime continues to block humanitarian agencies seeking access to deliver relief in government-controlled areas as well as to prevent the UN commission of inquiry investigating the human rights situation on the ground. Alongside our international partners, we will continue to call upon the Syrian regime to allow humanitarian agencies and investigative bodies immediate and unfettered access.
My noble friend Lord Ashdown gave us the benefit of his extensive experience. He focused on arms and diplomacy. I can assure him that the UK is fully committed to a political process. We are putting all our weight behind the US/Russia/UN-convened Geneva II conference. He and the noble Lord, Lord Wood of Anfield, asked what efforts are being put in place. I can assure noble Lords that huge efforts are being put in place to bring people to the negotiating table, to get a coherent and representative opposition, to ensure that we work with an opposition that abides by international human rights standards and to get like-minded people around that table to move this process further. We believe that a political solution is the best—indeed, the only—way forward. This matter will not be resolved on the battlefield.
Lord Ashdown of Norton-sub-Hamdon
I thank the Minister for that answer, which was extremely helpful—not that I thought it would not be. I asked a specific question about Saudi Arabia and Qatar. Is anything being done, either bilaterally or multilaterally through the EU and with our American friends, to try to persuade them to desist arming the jihadists?
Baroness Warsi
I have made notes further down and will come to that in a few moments.
My noble friend Lady Falkner, the noble Lord, Lord Wood, and my noble friend Lord Ashdown spoke about considerations in relation to arming the opposition. Our practical assistance so far as been entirely non-lethal, and we will continue to support the moderate opposition and Syrian civil society wherever possible as they develop into what we believe is a credible alternative to the Assad regime. However, the lifting of the EU arms embargo gives us greater flexibility to act if action is needed. Noble Lords can rest assured that any decision will be put to a vote in the other place, and we would not want to pursue any aspect of this policy against the will of the House. Our policy sends a clear signal to the Assad regime that it must negotiate seriously and that we will do all we can to ensure that the forthcoming Geneva II conference is successful in trying to bring the conflict to an end.
In relation to the conditions if we were to consider sending arms to the opposition, when the Foreign Affairs Council agreed to end the EU arms embargo and return decisions on arms provision to member states on 27 May, Ministers also agreed a framework of safeguards to guide those member states that might decide to provide arms. Arms can be sent to the national coalition only; they should be intended for the protection of civilians; there should be safeguards to ensure delivery to the right hands; and existing obligations under the EU common practice for arms exports remain in place. Legal constraints, such as the United Nations Security Council resolutions in relation to, for example, al-Qaeda, remain in place, preventing the supply of equipment to known terrorist organisations.
I repeat that the Government’s position remains that the only way to achieve a solution is via a negotiated political settlement. However, it is for the Syrian people to negotiate how that transition happens and to agree the make-up of a transitional Government who can win the consent of all Syrians. We are therefore working closely with the opposition and urging them to commit to and prepare for Geneva II as a way of pursuing their goals and achieving political transition. It is a bold and difficult decision for the opposition to make, but one that merits that risk.
The noble Lord, Lord Williams of Baglan, spoke about representation in the opposition. We have recognised the Syrian national coalition as the sole legitimate representative of the Syrian people. The coalition is committed to expanding its membership. This was recently discussed, with representation from all groups within Syria. I welcome the noble Lord’s expertise, and will ensure that officials feed into planning his concerns about Lebanon and a potential evacuation.
A number of noble Lords raised the issue of Saudi Arabia, Qatar, Iran, China and Russia. I will try to address these. My noble friend Lord Howell of Guildford asked about bringing Russia and China to a more constructive position. It is no secret that China and Russia have differing views on how best to handle the situation in Syria. We all share fundamental aims: to end the conflict, to stop Syria fragmenting, to let the Syrian people decide who governs them and to prevent the growth of violent extremism. We are intensifying our diplomatic efforts with all members of the UN Security Council. As the conflict escalates, the threat to regional and international security increases. As the Prime Minister and President Putin discussed at the G8, we and Russia are on the same page on the need to end the conflict. However, as we near a peace conference in Geneva, we will step up our engagement with Russia and China to ensure that the process stands the best chance of a successful outcome.
The noble Lord, Lord Wright, asked whether the differences were insurmountable and about the prospects for success at the conference. Intensive efforts are ongoing on the details of what could be decided at that conference. There will inevitably be challenges, but the UN Secretary-General has stressed that the three parties are committed to convening the conference as soon as possible. We continue to engage actively and support the efforts of Lakhdar Brahimi, the UN-Arab League peace envoy. The Foreign Secretary spoke to Mr Brahimi last month about preparations for the Geneva conference and reiterated our strong support for him and for his office.
My noble friend Lord Ashdown and the noble Lord, Lord Wright, asked about countries that could be providing funds that could get into the hands of extremists. We are working alongside the US and the allies through the Friends of Syria core group, which includes Saudi Arabia, Qatar and Turkey. At the most recent meeting, attended by the Foreign Secretary in Doha on 22 June, core group Ministers expressed concerns over the growing sectarian nature of the conflict in Syria and the radicalising risks that accompany such developments in regional and international security. Ministers from all those countries agreed at that meeting the urgent need to support and build the capacity of the moderate Syrian opposition, including supporting the national coalition and its supreme military council in efforts to save the lives of ordinary citizens.
Noble Lords may be aware that the Friends of Syria group was created in response to the Russian and Chinese veto on the Security Council resolution. Its first meeting took place in Tunisia last year in February. At various times, 114 nations have now attended the Friends of Syria meetings, but the core group of 11—including the UK, the US, Egypt, France, Germany, Italy, Jordan, Qatar, Saudi Arabia, Turkey and the UAE—meet on a much more regular basis. The concerns raised by the noble Lord, Lord Ashdown, and others are discussed there.
The noble Lords, Lord Wood and Lord Luce, and others asked about Iran’s participation in negotiations. It was anticipated that those who participated in Geneva I would participate in Geneva II. Of course, Iran did not. However, no decision has been made and we are still working through the details of the Geneva II conference with international partners.
My noble friend Lord Howell and the noble Lord, Lord Hylton, raised the change of President in Iran. The Government of course hope that, following Dr Rouhani’s election, Iran will take up the opportunity of a new relationship with the international community by making every effort, for example, to reach a negotiated settlement on the nuclear issue; and, of course, to adopt a more constructive position on Syria. We will keep an open mind, but we will judge Iran by its actions, not its words.
The right reverend Prelate the Bishop of Truro asked about Assad’s departure. As the Foreign Secretary has said, Assad’s departure is not a precondition for the Geneva talks. However, when considering a transitional Government that could win the consent of all Syrians, it is hard to imagine how Assad could be part of that. The UK position on Assad is that he has lost legitimacy and must therefore step aside if we are to get a solution into which the Syrian people can buy. However, it is ultimately for the Syrian people to negotiate how transition happens and agree the make-up of a transitional Government that can win their consent.
The noble Lord, Lord Ashdown, and my noble friend Lord Risby had concerns about the national coalition. We have those concerns, too, which is why we raised them. On 20 April, the national coalition declared its commitment to democracy, to ethnic and religious pluralism and to the rule of law, as well as its concerns about discrimination and extremism. It also declared that it would guard against the proliferation of any supplied lethal equipment and would return such equipment at the end of the conflict, and confirmed that the supreme military council operates under the civilian authority of the coalition. Allowing supply of equipment to an organised body that adheres to acceptable values lowers the risk of diversion and misuse in comparison to a more general lifting of the arms embargo. Clearly, however, we must ensure that the national coalition makes good on its commitments.
The noble Lords, Lord Turnberg and Lord Anderson, raised the Middle East peace process. We welcome Prime Minister Netanyahu and President Abbas’s clear commitment to a two-state solution, and to working to achieve peace for the Israeli and Palestinian people. We believe that both leaders are genuine partners for peace and we have seen no evidence that the Syrian conflict has affected President Abbas’s commitment to peace. It is vital that both show the bold, decisive leadership that allows the efforts of the United States to succeed. The events of the Arab spring, particularly the threat posed by the conflict in Syria, make the need for progress even more pressing. The consequences of the current efforts not succeeding, for Israelis, Palestinians and the wider region, could be severe. Of course, we continue to support the efforts of Secretary Kerry.
The noble and learned Lord, Lord Morris, asked a question that was repeated many times: are we confident that any action that we take is right, and is a step towards peace? I assure noble Lords that all our efforts are focused on reaching a political solution. There are no easy decisions, but the international community cannot stand still in the face of what is happening in Syria. Our policy must move forward to prevent loss of life there. This is not a choice between diplomacy and practical assistance to the opposition. The two efforts are interlinked, in order to bring about a political transition. As we move towards more active efforts to save lives, we will co-ordinate our response with international partners and will consider the risks of all options before moving forward.
In conclusion, our priority must be proactively to pursue a political solution to bring this terrible conflict to a close. The millions of Syrians who are now refugees as a result of the conflict constitute an urgent humanitarian crisis. A negotiated settlement would help to alleviate this crisis, which continues to deteriorate. We must be proactive in responding to an increasingly desperate humanitarian situation by continuing to push a political settlement that would allow millions of refugees to return home, reduce the growing threat of extremism to the UK and stem the tide of spreading regional instability. We will work in every way we can to ensure that the perpetrators of human rights violations and war crimes are held to account.
It is clear that there are no risk-free options ahead from which to choose. However, I strongly believe that an inclusive Syrian-led political process is the best way to bring an end to the bloodshed and minimise the threat to peace and security in the wider region.
Syria, and our response, is an issue with which we grapple every day in the Foreign and Commonwealth Office. We take each step with much consideration, looking at all potential options. On a personal level, my own historic anti-war positions are no secret. However, every day, I learn that holding a “Stop the war” banner and shouting from outside King Charles Street is much easier than sitting inside, grappling with decisions over the least worst option. I thank noble Lords for informing my thinking.