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The Parliamentary Under-Secretary of State for Foreign, Commonwealth and Development Affairs (Hamish Falconer)
I beg to move,
That the Syria (Sanctions) (EU Exit) (Amendment) (No. 2) Regulations 2024, (SI, 2024, No. 833), dated 29 July 2024, a copy of which was laid before this House on 30 July, be approved.
This instrument amends the Syria (Sanctions) (EU Exit) Regulations 2019. The instrument was laid on 30 July using powers provided by the Sanctions and Anti-Money Laundering Act 2018 and entered into force on 31 July. For clarity, the instrument was laid on 24 May under the previous Government. We support its aims, so we revoked it and re-laid it to provide additional time post election for the required parliamentary scrutiny. There are no amendments to the policy and the substance of the instrument is the same.
With the conflict in Syria now in its 14th year, the humanitarian situation remains dire. A record 16.7 million people are estimated to be in humanitarian need, nine in 10 people in Syria are living in poverty, and nearly 13 million lack sufficient food. Many more have been forced to flee their homes and are living in settlements and camps.
Our support for the Syrian people is unwavering. The UK has spent over £4 billion to date—our largest ever response to a single humanitarian crisis—and we continue to provide lifesaving support to those in need. It is imperative that aid reaches the most vulnerable and that UN agencies, international organisations and non-governmental organisations have the support necessary for their work.
The UK has engaged with financial institutions and humanitarian actors to fully understand and mitigate the impact of the humanitarian provisions in our sanctions legislation, including by issuing general licences following the earthquakes in February last year. The UK has acted to ensure that aid continues to reach those most in need. These amendments to the regulations will allow trusted organisations to focus on delivering aid, support efficient and effective humanitarian delivery and provide reassurance for those organisations and their service providers. They will ensure that we continue to meet our humanitarian objectives while ensuring that our sanctions regime is robust.
UK sanctions are designed to encourage the Assad regime to refrain from actions, policies or activities that repress the civilian population in Syria. They also serve to encourage the regime to participate in good faith in negotiations for a political settlement in line with UN Security Council resolution 2254 and to bring about a peaceful solution to the conflict in Syria.
This instrument amends the humanitarian exception to the petroleum measures contained in the 2019 regulations with the aim of improving the delivery of humanitarian aid in Syria. The amendments expand the eligibility for the humanitarian exception from solely UK-funded persons to all organisations covered by UN Security Council resolution 2664 to the extent that they are captured by UK sanctions. The extension will enable more organisations to benefit from the humanitarian exception.
The instrument extends the regulations to ensure that they apply to those involved in the humanitarian delivery chain. The change ensures that the delivery chain of relevant persons as outlined in the regulations will benefit from being able to use that exception. That provides assurances to relevant delivery partners on the ground and to financial service providers when improving payments.
The instrument also amends the 2019 regulations to authorise financial service providers of “relevant persons” to use the humanitarian exception, removing the requirement for financial service providers to apply for individual licences to facilitate activities authorised by the exception. The change will also provide greater assurance to both humanitarian organisations and their financial providers, reducing delays in payments.
In addition, the instrument replaces the existing notification requirement for “relevant persons” using the humanitarian exception for petroleum prohibitions in the 2019 regulations with a new requirement to notify the Treasury on an annual basis that they are involved in the provision of humanitarian assistance in Syria. The notification requirement will apply to relevant persons conducting humanitarian assistance activities in Syria, but not to financial service providers, the UN, the International Committee of the Red Cross, the International Federation of Red Cross and Red Crescent Societies, the British Red Cross or downstream delivery partners.
Finally, the instrument makes two further, more minor amendments. First, there is a small amendment to the humanitarian fuel exception and a related exception for petroleum products for diplomatic and consular premises in the 2019 regulations. Those exceptions are amended to refer to “acquiring” fuel rather than “purchasing” it. Secondly, the instrument amends the record-keeping requirements in the regulations with respect to trade licences to clarify that specified information is required where appropriate. That will ensure that correct records are kept for relevant licences.
UK sanctions on Syria continue to send a clear message to the regime and its supporters: we will not stand by while they commit serious human rights abuses. The regulations ensure that the sanctions will not hinder humanitarian aid efforts. We will continue to work closely with the UN, like-minded states, humanitarian organisations and the financial sector to ensure that the sanctions work in tandem with humanitarian efforts and that the Assad regime and its allies and supporters bear responsibility for the devastation endured by the Syrian people. I commend the regulations to the House.
Alicia Kearns (Rutland and Stamford) (Con)
The people of Syria have suffered unimaginable horrors since 2011, first under Bashar al-Assad’s brutal dictatorship and then at the hands of Daesh, al-Qaeda, Iranian-backed militias and the Wagner Group. The Syrian people have endured unforgivable cruelty and suffering, with over 6 million forced abroad as refugees, 7 million displaced in their own country and 90% living within poverty. Over half lack access to clean and safe water. It is a humanitarian catastrophe that stems from Bashar al-Assad’s oppressive authoritarian rule and industrialised brutalisation of his own people. Sadly, the earthquakes in February 2023 caused further suffering and directly impacted a further 9 million people. It is absolutely right that we continue to sanction Assad and his regime, but we must also ensure that much-needed humanitarian aid is delivered.
This instrument was initially proposed before the election as a means of improving the humanitarian exemption from sanctions for those providing vital aid to Syria. It will give humanitarian organisations access to fuel, ensuring that they can carry out important work. I am therefore grateful to the Minister for re-tabling the instrument, which the Opposition will of course support.
The sanctions regime, delivered under the Conservative Government, rightly targets those who have caused this appalling humanitarian disaster, not the rule-abiding NGOs, international organisations and accredited individuals helping to alleviate the suffering. Introducing an automatic humanitarian exemption, rather than by licence, and extending the 2023 earthquake exemptions were requested by humanitarian groups through the tri-sector group. These changes will now extend to fuel. Of course, we will expect the Minister and his officials to maintain clear protections to prevent the misuse of this exemption, and we will monitor its implementation. Sadly, new crises are emerging at an alarming rate, but we must never forget the people of Syria. Assad and his Russian backers may be content to let the people of Syria suffer, but the UK has a proud humanitarian legacy, regardless of which party is in government. These changes will help to ensure its continuation.
On our Syria sanctions regime, I ask the Minister to use his position to look into the proliferation of Captagon, a highly addictive amphetamine. The success of global sanctions in cutting off Assad’s regime from funding has led him to turn Syria into a narco-state, producing 80% of the world’s Captagon. In my view, Syria has become the Amazon warehouse for terrorists and states who behave like terrorists. There was some hope that the normalisation of relations between several Arab countries and the Syrian regime might see that addressed. When in government, we opposed that normalisation, and I would be grateful if the Minister confirmed that his Government will adopt that position.
Although Captagon causes the most damage in countries neighbouring Syria, it is starting to affect those across the world. I am concerned that, having been discovered in the Netherlands—my own Committee did an inquiry into this—we are starting to see it in the UK. Addiction and misery are now bankrolling Assad’s continued tyranny and indulgence of Putin’s Russia. We must ensure that we take action on Captagon so that we are protected here in the UK.
We cannot forget Syria and the Syrian people. Anyone who has worked on Syria knows that we are haunted by our failures, the survivors we met and the photos of those who were murdered. Rarely is Syria discussed in this place, since the shameful vote of 2015, so I take this opportunity to request a few clarifications from the Government on their policy. First, I ask the Minister to take forward and give his Government’s support for a new chemical weapons tribunal—a treaty-based court that will put on trial those guilty of such heinous inhumanity and deliver accountability and justice for those in Syria.
Likewise, I urge the Minister to keep his eye on Daesh, because we are seeing a re-emergence of that evil in the caves and the mountains along the border between Iraq and Syria. There were 153 attacks in the first six months of the year, and we know that they are seeking every opportunity. Finally, I ask the Minister to use his voice and urge his office to speak up for those whom Assad seeks to silence. Hope lives on in Syria, as we have seen from the women-led protests across the country as recently as August.
We give our full support to this instrument—originally laid by the Conservative Government—which welcomes and provides exemptions for humanitarian groups to access fuel under strict management systems and which, we hope, will go some way towards addressing the misery that the Syrian people have endured for too long, and support those who are working to alleviate that suffering.
Richard Foord (Honiton and Sidmouth) (LD)
I echo what we have heard about the effect that this dreadful war has had on the people of Syria. We understand that 300,000 civilians have been killed since the war broke out in 2011, and more than 13 million people have been displaced internally or have had to leave Syria as refugees. We have been talking this afternoon about sanctions and about how we might tighten the noose on trade and on financial transactions. If we see the situation on the ground improving we might need to loosen that noose, but what is happening on the ground in Syria is still appalling. More on that later.
First, bilateral aid between the UK and Syria has been falling in recent years, from a high of £300 million in 2020 to £205 million the following year, £158 million in 2022 and £150 million last year. We have seen the halving of our bilateral humanitarian aid to Syria. I question whether one reason for that may have been co-option of humanitarian aid—a concern that was flagged in a 2019 report by Human Rights Watch called “Rigging the System”, which pointed out that the Syrian Government of al-Assad had co-opted reconstruction funding in Syria and had
“developed a policy and legal framework that allows it to co-opt humanitarian assistance and reconstruction funding to fund its atrocities, advance its own interests”
and to
“punish those perceived as opponents”.
This SI is specifically about carve-outs for petrol for humanitarian workers. I am sure that the Government will have assured themselves that those humanitarian workers will not be siphoning fuel for the Syrian Government, but I ask the Minister to reinforce that reassurance when he responds.
Finally, we heard earlier that there have been strikes in Syria. The Syrian Observatory for Human Rights has suggested that the strikes, allegedly carried out by Israel, were on a programme to develop short and medium-range precision missiles and drones. If that is so, it is the same site that was struck in 2017 when an Israeli strike was suspected on a rebel-held town in northern Syria.
Will the Minister confirm that, by supporting humanitarian groups and organisations, we are not in any sense affording the Assad regime access to fuel to carry out his dreadful crimes in Syria?
Madam Deputy Speaker (Caroline Nokes)
I call Charlie Maynard to make his maiden speech.
Charlie Maynard (Witney) (LD)
Thank you, Madam Deputy Speaker. I thank the hon. Members for Makerfield (Josh Simons) and for Great Yarmouth (Rupert Lowe), who gave us very different views of their constituencies, but were linked by their love for them.
I stand here today to represent the people of Witney. I am incredibly grateful to them for electing me to represent them, and I will do my best for them. I am also incredibly grateful to the people who helped me get here. We had a fantastic team who worked extremely hard, and I thank them all. I am also extremely grateful for my very large family up there in the Gallery—I love you all, too.
Until July, Witney had voted Conservative for 102 years. Famous parliamentarians from Witney include Douglas Hurd and David Cameron. I owe David Cameron a backhanded vote of thanks, because some of his decisions put me on the path to politics. I also thank Robert Courts, who worked very hard for the constituency for the past eight years.
Our constituency is beautiful. It sits at the bottom of the Cotswolds, and it is full of market towns such as Faringdon, Burford and Witney, which did well off the wool trade. They did more than trade it—they spun it, they wove it and they made it into beautiful blankets, which were famous throughout Europe from the middle ages. Then, the dastardly duvet came along and that was the end of it.
At its best, Witney innovated. We have a lot of Methodist roots in town; the people shared technology, and they cared about welfare and social justice. If there is one theme that is kept going today throughout the constituency, it is that care. So many community groups work so hard. One of the wonderful things about being an MP and a candidate is getting to see so much of them at first hand, whether it is the food banks, the larders and the fridges, the sports teams, the day centres, the councils or the churches—you name it, it goes on and on and on. That network of volunteers makes the constituency tick. They are particularly stretched now because our public services are so underfunded and stretched.
Witney is just 10 miles west of Oxford, which for many makes it one of the reasons it is so wonderful to live, work and play there. That cuts both ways. We have enormous pressure on housing. So many people have grown up there but cannot afford to live there anymore. That is brutal. Added to that is transport—in our wisdom, we tore up the railway 50 years ago and we are now stuck on the A40, taking more than an hour most days to get just those 10 miles between Witney and Oxford. That doubles down into health. We have great GP practices around the constituency, but our secondary healthcare is in Oxford, which is virtually impossible to get to. That causes an enormous amount of stress. We are trying to get secondary healthcare out of that hub in Oxford and to Witney, where we can redevelop council-owned land into better healthcare services, more social rented housing and better further education provision.
For the past four years, I have worked on a project to rebuild the railway linking Carterton, Witney and Eynsham with Oxford. It is a huge project, but we now have an opportunity. One thing that will make it harder—and easier—is that our new Government have just said that West Oxfordshire must take 62% more housing. That, by itself, would be a disaster and is too high a number. However, if we are clever we can do what our Victorian forebears did: put housing around railway stations and use that to fund the railway. That is what we are intent on doing. That would connect Witney to Oxford in just 16 minutes, a cut in travel time of 70%.
Our rivers were our original transport links. They did very well for our blanket and quarrying industries, but we have not returned the favour and they are full of sewage. We are very lucky to have one of the best advocacy groups in the country, Windrush Against Sewage Pollution, which has done a fabulous job of turning the light on Thames Water and really recognising how dire the situation is. Thames Water now has £18 billion of debt and £1 billion in cashflow. It is in breach of its operating licences, but is allowed by this Government to operate with impunity. The sooner the company is put into special administration, the better.
Our constituency plays a key part in the defence of our country. We have the biggest airbase in the UK, at RAF Brize Norton just south of Carterton, and the nation’s Defence Academy at Shrivenham in the south of the constituency. Since world war one, the women and men in my family have served our country: they have fought for the Army, the Navy, the RAF, the Fleet Air Arm and the SAS. They have been awarded one MBE, two Distinguished Service Crosses, three Distinguished Service Orders and a Victoria Cross for their courage. One of the DSOs and the VC were awarded for saving lives rather than taking them. That gives me a lot of respect for how the people in our forces serve us. At their best, the academy and our air force stand up for the British values of democracy, human rights and the rule of law. Here in this Chamber, we need to ensure that we also stand up for those values and do not sell weapons to dodgy regimes.
Today’s motion is about Syria. I fully support it, because we need to get more humanitarian aid in there. Thirty years ago, I visited Syria and it was wonderful. After a chance meeting one morning, I was invited to a wedding feast in the evening and the hospitality was fabulous. Nine years ago, a two-year-old Syrian boy was washed up dead on a British beach. This country’s grief was enormous: there was a nationwide outpouring. Almost by accident, my family ended up taking quite a few Syrian refugees. They stayed with us for over a year and we still stay in very close touch with them. That taught us that one key thing the Government could do is make it easy for their citizens to help refugees to integrate in our country and society. We really have not done that very well at all. The other thing it brought home to me is that when a Government fail their citizens, it can go very, very badly wrong. In our country, I think we are complacent about how unlikely some things are; that they will not happen and that things will not go wrong.
Another trigger that brought me into politics was Brexit. I started a business when I was 25. I built it, with colleagues, over 24 years. It ended up being a global business. We had nine offices around the world, with seven in Asia, and 100 people. That was through thick and thin, and by hanging on in there and trusting people to get things done. But when Brexit hit and, beyond that, we were taken out of the single market and the customs union, my experience of business led me to think, “Holy cow, this is really bad news. This is disastrous for our economy. It will not sink us overnight, because we have a lot of things going for us, but it is a slow puncture.” We see that today in our flat GDP figures, our flat investment figures and our chronically underfunded public services. I blame our previous Government for that, but I also look across the Chamber and I am shocked. What I see now is a new Government defending those disastrous Tory policies of being outside the single market and outside the customs union. I hear that we are pro-growth, but how does that add up? It does not make any sense. I really hope—I say this in a constructive spirit—that we find a way to get out of that hole pretty quickly. We owe it to our country to do so. So please, I would love the new Government’s help on that.
The people of the Witney constituency put me here to listen, to learn—as anybody who is new in this Chamber knows, there is an enormous amount to learn—and to speak up for them, but they also put me here to do things. I still have to figure out how to get things done here, but I look forward to working with Members from all around the House to do that. To the people of Witney, I say “Thank you again for voting me in to represent you. I will do my very best.”
Jim Shannon (Strangford) (DUP)
It is a real pleasure to follow the hon. Member for Witney (Charlie Maynard). I thank him for his excellent maiden speech. I did not agree with everything—such as the Brexit stuff, but that is by the way—but I was very pleased to hear his contribution. I am also very pleased to see his very large family in the Gallery. You’ve been a busy boy, by the looks of it.
I would like to touch on a comment the hon. Gentleman made about the Syrian relocation scheme, which was introduced by the previous Government. In my constituency, there is a big town called Newtonards. We took in six families and they are still there today. The scheme really worked, because the people of Newtonards recognised that the people were desperate and needed help. That brought together all the organisations: churches of all denominations, together as one; the housing executive, with responsibility for housing; and voluntary and community groups. The refugees were displaced Christian families from Syria and, if I may, Madam Deputy Speaker, I would like to speak about them briefly.
Before the election, I had occasion to meet some of those Syrian refugees. They now have jobs, have had children and have moved into houses. That has happened because the people of Strangford and Ards, like the people Witney and elsewhere, saw the need and came together and responded. That, for me, is one of the wonderful things about my constituency. So, I just wanted to make that comment to reinforce what the hon. Gentleman said about Witney in his maiden speech.
I welcome the Minister to his place and I welcome his commitment. I suspect we will be in many debates together, as this is a subject matter in which I have an interest, and I look forward to that. His colleagues on the Front Bench have had responsibility for similar subject matter and we have worked together on many things. I hope we will do the same.
Sanctions are important, because throughout Syria there are pockets of conflict where Christians continue to be caught in the crossfire. I am the chair of the all-party parliamentary group for international freedom of religion or belief, so this is a really important issue for me, as it is for many other Members. We speak up for those with Christian faith, those with other faiths and those with no faith, because that is what we believe in, so it is really important to put these issues on the record. In many cases, Christians are deliberately targeted. For example in Afrin, Turkish-backed troops are reported to be targeting Kurdish Christians. Christians are particularly endangered in the Idlib province, which is still controlled by Islamic militants. In the Al-Hasakah district in the north-east, Turkish military and Turkish-supported opposition forces are active. They always seem to pick the small ethnic and religious groups. They abuse human rights and the humanitarian aid, which is so important. I understand the difficulties that exist, but I ask the Minister whether it is possible to ensure that humanitarian aid does reach those small ethnic groups in Syria, especially those in the north and the Kurdish areas—to ensure, given the human rights abuses, religious persecution, murders, rapes and physical abuse, that the aid gets to the right people. Converts to Christianity are also at risk throughout the country, but their situation is especially dangerous in the north-west and the north-east.
The hon. Member for Rutland and Stamford (Alicia Kearns) referred to drug abuse in Syria. I attend the prayer breakfast here when it is possible for me to do so; it takes place on Wednesdays, and I suspect that there will be one this Wednesday. A speaker from Syria came to address us at one of those events, and told us that drugs were rife in Syria, among all sections of people. That, he said, had been encouraged by the Russians, who seem to be involved in all sorts of illegal activities in that country as well.
It is important that we recognise the difficulties in Syria in general, but also recognise the ethnic and religious groups who particularly need humanitarian help. In the past, the UK has had a strong relationship with Syria, but I ask the Minister: what can we do to help those groups, apart from imposing sanctions? I fully support the sanctions and understand the reasons for them. I know that, if we are to address human rights abuses and maintain the support that we give to ethnic and religious groups in Syria, we need to combat the brutal violence that the Syrian Government are perpetrating against those people. My question to the Minister is a simple one: what more can we do to help Syrians who are suffering human rights abuses and subjected to persecution for their religious beliefs, and to help the women and children and give them hope? We in the House always wish to give hope and, if it is possible, Minister, I think we would all appreciate hearing your thoughts on how we are to do that.
Madam Deputy Speaker (Caroline Nokes)
Order. Before I call the Minister, may I please remind Members not to use the word “you”—that means me!—and, specifically, not to refer to colleagues by name.
I call the Minister to wind up the debate.
Hamish Falconer
I thank Members for their contributions. Let me address some of the important questions that they have raised, particularly in relation to Captagon, chemical weapons, and whether we have achieved the right balance between sanctions and humanitarian aid. I will also deal briefly with some of the points raised about freedom of religious belief.
I pay tribute to the hon. Member for Witney (Charlie Maynard) for his maiden speech, and associate myself in particular with his comment about the Chamber being a confusing place for a newbie—and if it was me who made those mistakes, Madam Deputy Speaker, I apologise. We are closely monitoring the regime’s links with Captagon, as you will know—I am sorry; as the hon. Member will know. My apologies, Madam Deputy Speaker. In March 2024, we co-hosted a conference with Jordan and we are keeping the matter under close review. I should be happy to write to the hon. Member with further details, because it is of real concern. Also of concern, obviously, is the chemical weapons situation in Syria. Last week, I was pleased to meet the director general of the Organisation for the Prohibition of Chemical Weapons, and to make a further voluntary contribution on Syria specifically in relation to the significant problems that it poses in respect of chemical weapons. As for the concern about getting the balance right—
Alicia Kearns
Would the Minister be kind enough to write to me with the details of that voluntary contribution, so that I understand fully what contribution was made?
Hamish Falconer
I should be happy to do so.
I can assure the hon. Member for Honiton and Sidmouth (Richard Foord) that no assistance will be provided directly to the Government of Syria, and that we go to great lengths to ensure proper compliance with our sanctions regime. The hon. Member also referred to the strikes in Syria. The protracted conflict clearly poses risks of other regional tensions being played out, but we have made it clear to all parties that further escalation in the middle east must be avoided at all costs, and is in no one’s interests.
I understand and welcome the fact that the hon. Member for Strangford (Jim Shannon) and I will no doubt face each other across the aisle in debates on many issues, and I recognise his personal commitment to freedom of religious belief. We have provided, I believe, £14 million of assistance in respect of human rights monitoring in the conflict in Syria, I know how desperate some of the human rights issues are in the country, and we will continue to keep them under close review.
I hope and trust that the House will support the regulations, and I thank Members for that.
Question put and agreed to.
Resolved,
That the Syria (Sanctions) (EU Exit) (Amendment) (No. 2) Regulations 2024, (SI, 2024, No. 833), dated 29 July 2024, a copy of which was laid before this House on 30 July, be approved.