Dr. Ammar Kahf, executive director of the Omran Center for Strategic Studies, commented on the Brussels donor conference, saying, "The pledges were better than expected, except that the focus was always on the aid approach rather than the systematic empowerment approach that the Syrian people need to create more jobs.
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From the beginning of the Syrian uprising, several Arab countries were almost unanimous in isolating the Syrian regime to punish it for its violations of Arab League resolutions and the rights of the Syrian people. This approach was translated by Qatar’s leadership in the Arab League and the important support of Saudi Arabia and post-revolutionary Tunisia and Egypt into a resolution that led to the suspension of the regime’s membership in the Arab League in November 2011.
In the following years, most Arab countries called on the regime to stop military operations against civilians, and some of them even played a greater rolein actively seeking regime change in diplomatic manners and by supporting and financing the opposition. However, in the coming years, political changes occurred in some Arab countries such as in Egypt and the United Arab Emirates, causing a departure from regime change politics to the restoration of pre-Arab spring MENA security order, thus affecting the regional attitude towards the Syrian regime.
Egypt resumed consular relations in 2013, when most Arab countries took a stand against the Syrian regime, but has not fully normalized its relations with the regime to date. This shows that Egypt prioritizes the stability of the Syrian regime in its foreign policy, as Egypt distrusts the opposition and considers it a proxy for Turkey. Moreover, Egypt prefers to work with the army and considers it more reliable.
The UAE and Jordan, on the other hand, were on the opposite side and supported the Syrian opposition to varying degrees, but after the Russian intervention in 2015, the situation on the ground had changed, which, along with other factors such as the UAE’s attempt to counter Turkey and contain Iran with a different approach in Syria, led to a change in the countries’ priorities in their foreign policy toward Syria. In 2018, the UAE and Bahrain reopened their embassy in Damascus and resumed relations with the Syrian regime. The UAE wants to normalize its relations with the Syrian regime in order to have relations with all parties on the ground.
Similarly, when the Syrian opposition lost control of southern Syria in 2018 and signed reconciliation agreements, Jordan reopened its border with Syria with some restrictions, as it had done before 2015, Jordan has not completely severed relations with the Syrian regime, but it has downgraded its representation. It normalized its relations only in October 2021 after a telephone conversation between King Abdullah and Bashar al-Assad, which was expected after King Abdullah’s speech on CNN during his visit to Washington and after his meeting with President Biden.
Looking at the factors behind this action, the first one seems to be the economic factor, because the country is in a difficult economic situation, aiming at normalization and cross-border trade, as the Arab gas pipeline will help the Kingdom’s economy. In addition, the security factor is not as important as the economy, but it plays a role because the Kingdom is concerned about stability on its northern border and normalization will help in security coordination with the Syrian regime to prevent possible threats.
2021, the beginning to regime regional re-integration
In the last quarter of 2021, more precisely on November 9, 2021, the Foreign Minister of the United Arab Emirates, Abdullah bin Zayed, visited Damascus as the highest UAE official since the beginning of the Syrian uprising in 2011. The visit came at a time when the idea of normalizing relations between Arab countries was discussed among Arab officials, and some expressed this on various occasions. In addition, Jordan’s King Abdullah spoke to Bashar al-Assad by phone in October last year, removing doubts about relations between the two countries.
At the same time, Egypt, which has maintained close relations with the Syrian regime in recent years, has not yet fully normalized its relations. So, if we look at the approach of each country, we can examine the differences between these three actors in the region-Egypt and the UAE, Jordan-in terms of timing and level, as well as their advocacy for the Syrian regime. Timing shows how long these countries have been linked to the regime, while level shows how deep these links are. Advocacy shows which countries are committed to the regime’s return to the Arab world.
As for the level, not all countries that normalize with the regime do so to the same degree. Egypt has played a role in supporting the Syrian regime, although it has not yet fully restored its relations with the country. There are several reasons for this, such as the desire to maintain relations with the Gulf States, as they have led the front against the Assad regime.
Egypt’s main objective is to view this relationship from a political and security perspective. The UAE, on the other hand, is looking at the relationship from an economic and political perspective. They want to participate in the reconstruction process in the coming years. Therefore, its normalization process with the Syrian regime has taken place without any conditions.
Although it has not severed its relations with the regime, Jordan has taken positions close to the Syrian opposition over the past decade, but has kept its border open with the Syrian regime for economic reasons. The Kingdom believes that normalizing its relations with the regime will help its economy recover and that it wants to play a role in resolving the conflict. Jordan has also sought to reactivate the bilateral agreement with Syria on various issues such as water. It also wanted to reactivate the Arab Gas Pipeline to reach Lebanon through Syria, which is part of the kingdom’s ambitions to become an energy hub in the region.
What sets Jordan apart, however, is that it is not only Jordan that wants to engage with the regime, but also brings along other countries that have the same idea of changing the regime’s behavior through concessions and vice versa. It is an approach that has met with the approval of the Biden administration. As part of its strategy to manage the Syria conflict by focusing on changing the regime’s behavior rather than regime change, this administration’s new approach to Syria is the opposite of the previous administration, which pursued a policy of maximum pressure.
In March 2022, another important UAE rapprochement with the Syrian regime took place, namely Bashar al-Assad’s visit to the country. This visit is considered very significant, mainly because it was al-Assad’s first visit to an Arab country since the beginning of the uprising. The visit can be analyzed from various points of view, such as future investments, the possibility of the regime’s return to the Arab League, and Iran’s influence.
In terms of support for the Syrian regime, not all of these countries are equally committed to Syria’s return to the Arab League in order to normalize the country’s relations with the world, but we can see some differences. In late January this year, Arab League Secretary General Ahmed Aboul Gheit said that Syria’s return to the Arab League was not discussed at the consultative meeting of Arab foreign ministers in Kuwait. He later added that Syria’s return to the Arab League depends on consensus among Arab countries. These are indications that a return is unlikely at the next summit.
The irony is that Egypt is playing a role in the Syrian regime’s return to the Arab League but has not yet fully normalized its relations with the Asaad regime, which could happen in the near future. As mentioned earlier, Egypt sided with the Syrian regime under President Abdel Fattah al-Sisi, and the two countries have since restored consular relations.
The UAE changed its stance on Syria after 2015 until it normalized its relations with the regime. After that, they began to support the Assad regime and promote the normalization of their relations with other countries in the region. They went even further by calling for the lifting of sanctions imposed on Syria.
In Jordan, however, we see a different approach that accepts the current status quo in Syria as a reality. For example, Jordan does not fully side with the regime in the Syrian conflict, but rather seeks to benefit from the opening of its relations with the Syrian regime on an economic level and restore the situation to what was before the border between the two countries. In doing so, it advocates its approach to Syria “step by step” as a comprehensive plan for dealing with the regime.
Ultimately, these approaches are similar in some respects, but they are not identical. This means that not all of the approaches these countries are taking have the same goals. Moreover, not all countries approaching the Syrian regime can be considered allies of the regime; rather, it is about their needs.
Finally, these approaches are similar in some respects, but they are not identical. This raises the question of which of these approaches will be successful and how this will affect the situation on the ground. To what extent these approaches will be able to bring the Syrian regime back to the Arab League.
So far, these approaches have not been able to change the position of Riyadh and Doha in terms of normalizing relations with the Syrian regime, which may show how effective these processes have been so far. On another level, will the relations between the Syrian regime and the international community remain the same? Will we see some changes in the position of some countries like the U.S., or could other approaches be taken?
In opposition-held territories, the agricultural sector suffers from a variety of complex challenges. Among those challenges is that supply exceeds demand due to poor planning, absence of refrigerated storage facilities, weak purchasing power, absence -or limited- presence of food production factories, and the absence of export channels. Although some exports have moved from Syria to Turkey, they remain limited in quantity and continuity. Most sellers were left with no choice but to sell their products at unfairly low prices, with a high cost of production and export logistics, leaving them with little if any margins of profit. Such challenges have prevented agricultural production from employing the necessary workforce and strengthening the food cycle throughout the years. The current governance dynamics prevents farmers from securing effective solutions, and therefore the farming community continues to endure losses. This has drastically affected the development of the agricultural sector within these regions.
The following paper covers some of the agricultural sector's challenges and proposes recommendations to empower its sustainable growth. The outlined recommendations may offer some solutions to achieve the minimum level of recovery of costs and create a plan of action.
The problems faced by the agricultural sector, whether in terms of supply or demand, can be summarized as follows:
Governing bodiesignored the calculations of the absorptive market capacity (demand) of agricultural crops, which increased the financial losses and caused a weak valuation of the sector. For example, based on a 2020 study by the General Organization of the Seed, for onions and potatoes crops, the General Organization for Seed Multiplication estimated the surplus local onions production at 25% and local production of potatoes at 19%. The percentage was estimated without considering the worker's wages, as farmer hardly earns $100 per hectare of onions, while their loss is $1,668 per hectare of potatoes.
In addition to inaccurate calculations, farmers also endure difficulties in exporting produce. Exporting agricultural products from opposition areas to regime-held districts is neither easy nor feasible because of the high transportation costs and bribes to guards at regime-held checkpoints. For example, a kilo of onions in al-Bab area is estimated at the writing of this paper at 200 Syrian Pounds but reaches 500 S.P in Damascus' markets(1) There are also high costs and difficulties in exporting produce from opposition-held territory to Turkey. In June 2018, the opposition areas exported only 4,000 tons of potatoes to Turkey, even though the local production of potatoes was around one million tons. Among the difficulties is the local council’s low capacity to facilitate exports with Turkey. Usually, Turkish authorities show interest in importing commodities from the opposition area, requesting lentils, chickpeas, pistachios, pomegranates, cherries, potatoes and onions, according to their needs in cooperation and coordination with local councilswho mediate between the Turkish government and local Syrian fermers(2)
Furthermore, current procedures implemented by Syrian Interim Government do not accurately facilitate the market balance between goods imported from abroad and those produced locally. This leads to the dumping of produce by the local market due to imported items creating a surplus in the market. This became relatively frequent after March 2021, when the Syrian Interim Government reduced customs costs for Turkish goods entering the areas of Aleppo countryside through the Al-Salama, Al-Ra'i, Jarablus, Al-Hamam, Tal Abyad and Ras Al-Ain crossings, as the following table shows(3)
It is evident that the agricultural sector is suffering for a multitude of other reasons. These reasons include the negative impact of the industrial sector, high costs of raw material, lack of accessibility to energy sources such as water, electricity, and fuel, the low purchasing power of citizens, and the unstable security environment. Water has become an issue across the region, but Al-Bab in particular, has suffered from lack of water due to the digging of random wells and draining of the strategic water reserves.
To enhance communications, the NFA may issue quarterly reports that include an economic index to measure the growth of the agricultural sector to enhance the values of transparency.
As shown in the figure below, the NFA would be a public body comprised of farmer unions/ associations from every city and town who select a national entity. This new entity would then establish the supporting offices that include: (1) a Legal Office to consider the affairs of agricultural licenses and property rights, control the investment process, issue instruments, and control violations. (2) Marketing Office promotes products and projects to investors and investment entities, negotiates with governments, and signs memorandums of understanding and work protocols to promote agricultural crops and secure consumption channels. (3) Production Management Office that will adapt the production plan to the market needs of food, industry, storage, export and other needs, (4) Financial Office that will be responsible for the transactions, financial liquidity, and the funding and crediting process.
The NFA can preliminarily work in four tracks:
A. Trademarking for Syrian Agriculture
This track includes structuring the agricultural process as a whole and attaining a certificate of confidence from farmers in their willingness to work with the NFA. This process will allow farmers to be included in a registry that will be followed up with regularly.
The other step is to stamp the crop with the NFA's “stamp” to indicate that the product conforms to international health and agricultural specifications. This will enhance the NFA’s control and trust in Syrian communities and abroad. These two steps will motivate the farmer to return to his land and gain greater confidence in both his/her work and product.
B. Regulation of the production process
The failure to consider the balance between supply and demand has led significant increases or decreases in prices. The NFA would intervene to advance the calculations around production to determine the quantity of production, demand, and whether consumption, manufacturing, or exporting, are the necessary response. Through these proper calculations, the NFA would be better able to manage the production process costs and prevent financial losses for farmers eventually.
C. Policy Recommendations to Local and International Actors
Through its reach and capacity, the NFA will be able to issue recommendations on the agricultural sector in Syria to key stakeholders. The NFA would submit recommendations to the Syrian Interim Government, communicating them to relevant governance bodies. This will help enact protectionist policies that limit the import of any product similar to the specifications of the local one, thus reducing the dumping of local produce and harm to farmers. Recommendations may include imposing taxes and duties on every imported product similar to the local product. This will protect the local product, raise its competitiveness, and diversify markets.
D. Product Marketing
For the marketing process, the NFA should focus on two aspects: (1) the legal basis of contracts and covenants for agreements between two parties. The agreement documents will be in accordance with the international legal framework, and (2)the NFA will strengthen the assets of power and negotiation with Turkey on imports and exports to and from opposition areas, including the transit of local products through Turkey’s territory for exports abroad.
E.Developing the Finances surrounding the Agricultural Sector
The lack of financial institutions, such as banks, in opposition areas, has contributed to decreased sources of credit and created a fragile environment for funding and payments. The exchange rate and prices are constantly fluctuating. The NFA can design a financial program that regulates the credit and funding process based on the environment and situation. This includes signing work protocols with organizations, companies and banks, opening bank credits in Turkey and other countries to facilitate the payment and receipt process, and issuing special farming financial instruments(4) to be sold to Syrian investors at home and abroad with the guarantee of the NFA. The NFA can also direct funds to support the food industries sector and various industries in the agricultural sector.
() The farmer sells a kilo of onions for 200 pounds, and the cost of transporting it to Damascus is 300 pounds, Syria TV, 26-01-2021, link: https://bit.ly/3CSLdyA
() Turkey starts importing potato from war-torn Syria, 27-6-2018, link: https://cutt.ly/zRC8lhw
() “The Interim Government” announces a reduction of customs duties of Turkish goods, Alsouria Net website: 14-03-2021, link: https://cutt.ly/XRC3zs3
() Sukuk: Securities from the Islamic Sharia-compliant financing tools. The instrument is linked to specific projects and investment opportunities that are already existed or under construction. The instrument is equal to the value of a share in an ownership, and the holder of the instrument takes profits and has the right to participate in the management, capital, and trading. There are many types of instruments in Islamic Sharia, known as Sukuk (instruments),such as al-Mudaraba, al-Murabaha, al-Istisna’a, al-Musakah, al-Muzara’a, Ijara, services, and others.
On 28th September 2019, Syrian American Council and Syrian Forum USA organized an event for the Syrian community at Syriana Cafe & Gallery in Maryland state.
Omran Center for Studies board member Mr. Yaser Tabbara, and Omran’s Information Unit Manager Navvar Saban talked about the latest trends in regard of the Syrian situation both locally and internationally, the event ended by a Q&A session.
In Washington, 26 Sep 2019. Omran Center Senior Fellow Yaser Tabbara and Information Unit Manager Navvar Saban attended the release of the final report for the Syria Study Group (SSG).
This session organized by United States Institute of Peace (USIP) to present and discuss the assessments and recommendations of the final report, which took several months to work through extensive consultations across a wide range of local experts, regional and international stakeholders.
In coordination with Omran Center For Strategic Studies, Syrian American Council, and Syrian Forum USA a discussion session was coordinated on 14 Sep 2019, in Washington DC in America entitled "The Future of the Conflict in Syria" and what will be the field and political developments? Senior fellow Dr. Sinan Hatahet at omran center participated and considered that the challenge in 2020 to the Syrian revolution is to try to stop the bleeding and redefine the negotiating path with the regime by finding new understanding and spaces with the United States and the European Union. This leads to the formation of a new opposition bloc that relies on its own sources
After seven years of conflict between the people and the Assad regime, Syria is now going through a difficult phase. The nature of the conflict has transformed whereby the role and effectiveness of local actors has been greatly maringalized compared to an increasing role for international state and non-state actors. The role of armed opposition factions has diminished as international military, administrative, and political influence has grown. These armed opposition actors are also in a phase of turmoil as they struggle to survive or integrate under direct international custodianship, after having previously received support from the Northern or Southern Operations Rooms. This process follows the series of meetings in Astana and Sochi, and after the political bodies were domesticated into official negotiating bodies that support the interests of countries with direct influence over them. At the same time, direct Russian influence came to dominate the political, military, economic, and administrative spheres. As a result, the concept of the unified framework of the "regime platform" versus the "opposition platform" in accordance with the Geneva II concept was discarded through the creation of several negotiating platforms on the sides of the opposition, the regime, and the Syria Democratic Forces (SDF).
At the same time as these political changes were happening, the areas of influence and control on the ground were consolidated in 2018 into the north and northwestern portion under Turkish control, the northeast under the U.S. and SDF control, and southwestern Syria under the influence of the U.S. and Jordan, allowing Israel to strike any sites that it deems threatening. The areas of siege and opposition group control have been eliminated. International and regional influence has thus become more distinct, as efforts to control and integrate both armed opposition and pro-government groups continue.
This new phase is characterized by a complex series of partial deals that build on one another, and the arrangements among the state actors are developing in a "step by step" policy approach. The "counter-terrorism" framework that was used to justify the entry of these countries into Syria, is no longer a justification for their continued presence and influence: the U.S. is increasingly focused on the "Iranian threat;" Turkey is focused on "fighting the PKK" and security its borders; Israel justifies its interventions with the need to protect its borders against the "Iranian threat" and to prevent the transfer of weapons and fighters toward its borders; and Jordan is now also interested in protecting itself against the “Shi’ite crescent".
In light of this new landscape, contributing writers to this book discuss several aspects of Syria's current form of governance and how experiences on the ground in the different areas of influence converge or diverge from the concepts of centralization and decentralization, both vertically and horizontally. Towards this end, the chapters of this book first clarify the concepts and forms of decentralization and the way they are applied in post-conflict countries. They highlight the important role that agreeing on the form of governance and power sharing is an important factor in maintaining territorial unity and in shepherding negotiations to a more relevant stage of the new post-conflict reality. Next, the authors delineate decentralization in terms of its political, security, financial, and developmental functions, and review the constitutional and legal foundations of administrative and political decentralization in Syria. Finally, the authors present the experiences and applications of governance since 2011 in the regime-controlled areas and opposition-controlled areas, as well as in the SDF-controlled in northeast areas of the Democratic Autonomous Administration. Woven throughout the book are comparative descriptions of the experiences from Iraq, Lebanon, and other countries emerging from conflict, to see what lessons can be learned from the ways that these countries have negotiated the distribution of powers between central and local administrative units.
This book aims to help lay out a path towards the restoration of the legitimacy lost by all parties in Syria through the organization of local governance tools based on the experience of local councils. Local councils have tended neither towards excessive forms of decentralization nor to authoritarian centralization, but have instead followed a path that strengthens local structures and sets limits to central state authorities by granting powers rather than delegating them. At this stage, it is essential to work in parallel on strengthening the central government while also safeguarding and reinforcing the gains of the local councils through constitutional guarantees and a new local governance law. This book also stems from recognition of the need to shift away from limited centralized negotiations among the two “sides of the conflict” through a constitutional process followed by general elections, towards a negotiation based on power-sharing arrangements. Local governing bodies and other local actors should be engaged in the process of deciding which functions and authorities are mandated to the central institution versus the local governing units.
The chapters of this book were contributed by several researchers who differ in their approaches, but they all agree on the need to develop a decentralized Syrian model that avoids the reductive binary approach of political decentralization / administrative decentralization or federalism, and one that is based on the sharing of powers and functions, thus transitioning Syria’s system of governance from local administration to local governance. There is no doubt that further development and discussion of these ideas is required, but we present this effort as a starting place for a dialogue in the Syrian community on the most authentic or locally developed form of governance for Syria, which after years of adhoc decentralization, has become more localized than ever before.
Finally, it is important to note that most chapters were written in late 2017 and early 2018, which was before the change of control of Damascus suburb, northern Homs and the southern front. The arguments for a tailored and customized Syria-centric decentralization model put forth are still valid regardless of the controlling armed party.
Chapter one of the book focuses on the concept of decentralization and illustrates the differences among countries when it comes to choosing how they exercise administrative authority. Every country’s approach to governance is influenced by its political and social conditions, as well as the maturity and depth of its democratic practices. The need to shift towards a decentralized system becomes apparent after examining factors related to a state’s nature, size, and degree of political stability. Decentralization becomes a necessity for stability in some countries because of its core idea: the distribution of power and functions of state institutions between the central governments and local administrative units. This conceptualization reaffirms the fact that the transformation to fully decentralized system may be risky for many governments, despite the promise that decentralization holds as the solution for most conflicts in developing countries such as those in the Arab world. Chief among these problems is the need to expand the political and economic participation of citizens. Still, given the ethnic and sectarian diversity and complex nature of countries, decentralization can be a threat to state unity.
Chapter two describes political functions of the state in a decentralized system and how it is practiced in different versions of decentralization. Political functions of the state take many forms depending on the degree of decentralization and mode of local governance. The far end of a decentralized governance system continuum appears in the practice of full political decentralization (full federalism), where provinces and regions have their individual constitutions and laws, exercise special legislative, executive, and judicial powers, and influence federal government policy through a political oversight authority and through their representatives in the legislative branch councils. Local governments, meanwhile, exercise specific roles in these functions under the partial political decentralization within their constitutionally-vested authority. These roles are primarily related to domestic policy-making and the development of local rules and regulations that do not contradict federal legislations. In administrative decentralization modes of governance, the practice of political functions and duties is reduced to a great extent as it focusses exclusively on administrative and executive functions of local governing institutions. Local administrative units would then be fully subordinated and controlled by the central administration in the capital. In partial administrative decentralization modes of local governance, political functions completely disappear from local units.
According to chapter three of this book, the exercise of legislative and judicial functions within a decentralized system will require reforms in the Syrian judicial branch, such as: the restructuring of the Supreme Judicial Council to ban the executive branch from holding membership in it and stop its interference, and the repeal of laws that encroach on public rights and freedoms with judicial not executive branch oversight. Assessing the current form and content of the Syrian Constitution in terms of centralized or decentralized approaches highlights centralism as highly visible and grants authority to the presidency (which has broad constitutional powers) to override all other authorities and functions of the state. Instead, the principles of separation and distribution of powers should be applied to three independent bodies in order to create balance and cooperation between them. With regard to legislative duties in Syria, this paper shows that the Constitution has broadly granted legislative duties to the People's Council of Syria (Parliament) and the President of the Republic, transforming the mandate of the Parliament from drafting laws to ratification of presidential laws. Reforming this imbalanced structure requires redefining the scope and mandate of the Parliament, abolishing the broad powers granted to the President, and reducing the centrality of legislation process and parliament. There needs to be a shift toward some kind of decentralization that divides future legislative functions in a balanced approach between the exclusive jurisdiction of the legislative branch, and the jurisdiction of the executive branch for all that is not stated in text of the constitution.
The fourth chapter focuses on security functions in decentralized systems. In the context of conflict-ridden or post-conflict countries, it is critical and necessary to re-assess national security functions: their applications, mechanisms for implementation and governance, and how security roles are distributed at different levels of government. This paper emphasizes that the redistribution of security duties and authorities in decentralized countries (in accordance with the lessons from stable and unstable countries) may result in a more efficient and coherent security architecture depending on who and how such a process is executed and whether by means of national actors, cross boarder actors, or international actors. In the search for a governing framework of the Syrian security sector within a decentralized system, independent intelligence agencies should have a clear mandate of intelligence gathering only (except for police forces and anti terrorism units that can arrest citizens) and an identified geographical jurisdiction. Local governing bodies should be constitutionally mandated to provide local security services and conduct police functions and duties locally. The assessment and identification of security threats and risks and the counter strategy to such risks should be developed locally and shared with central agencies for coordination.
The fifth chapter highlights the dialectical relationship between decentralization and its role in local development in countries emerging from conflict. Local development is one of the most important determining factors in whether or not decentralization is adopted in these cases. While some of post-conflict countries have reached acceptable rates of economic and social development after moving to a decentralized system, others have not. This disparity may be due to factors linked to each country’s particular local development process and adopted form of decentralization. This paper emphasizes that in the context of the Syrian situation, the country has suffered from the absence of a clear developmental model for decades. This has led to major developmental imbalances at the central state level, which are most evident in the developmental disparities between Syrian governorates. The adoption of a model of administrative decentralization in Syria will help to mitigate this disparity by empower local communities to participate in the local development process.
The sixth chapter, which deals with financial decentralization, emphasizes the fact that the successful implementation of decentralized systems of government in post-conflict countries depends largely on their ability to establish regulatory frameworks for financial decentralization and mechanisms for the collection, distribution, and disbursement of financial resources at various levels of government and administration. Successful implementation also requires substantial reforms in fiscal policy in general and in spending policies in particular. This paper finds that that the model for allocating financial resources to the local administrative units out of the state budget in Syria has many flaws. It is necessary to grant administrative units greater financial independence and to define metrics for successful financial decentralization to measure whether these units are meeting developmental requirements and making effective contributions to economic and social stability in their regions.
The seventh chapter examines the reality of local administration in regime-controlled areas. It illustrates the dominance of the central government in the local administration systems in regime-controlled areas, the growing influence of the Baath party, and the increasing influence of local Iran-backed forces in the operations of some local administrative units. This paper finds that the service sector crises in the areas of local administration units are indicative of their lack of funding, dysfunctional mechanisms, and insufficient personnel, forcing them to rely on the central government to conduct their affairs. It also argues that the regime is not interested in decentralization – which runs counter to its desire to retain centralized control – but it does use decentralization politically as a bargaining chip for negotiations with the international community, particularly the Europeans. The regime also attempted to manipulate the boundaries of the electoral constituency of administrative units to change administrative districts and weaken opposition areas by preventing them from winning elections in their areas while rewarding loyalists.
The eighth chapter focuses on the reality of governance in Syrian opposition-controlled areas. It reaches several conclusions, the most important of which is that local councils have undergone changes in terms of structure, mechanisms of formation, and function, as their organizational structures have stabilized and they rely increasingly on the elections for their membership. They have also been able to consolidate their service roles, compared to their role in local security and politics. The financial file is one of the primary challenges facing local councils as they cope with growing financial deficits, due both to the nature of revenues and expenditures, and also their lack of financial systems or laws regulating their budgets. This chapter explains how the long duration of the conflict, the transformations in its nature, the push towards coexistence, and the survival of the regime have all stimulated competition between local actors, of which the local councils were one of the most prominent players due to their political value and local legitimacy. As a result of the way the local councils have dealt with these challenges and threats, they face one of three scenarios in the foreseeable future: vanishing entirely, forming regional or cross-regional self-administrations, or continuing the current independent local units structures.
The ninth chapter analyzes the reality of governance in the Democratic Autonomous Administration (DAA) areas. It shows that lack of transparency is a key feature of service delivery, financial administration, and the management of strategic resources within the Democratic Autonomous Administration (DAA) areas. The process of forming legislative councils (mandated to pass laws) in these areas was based on partisan consensus that relied primarily on the literature and system of the Democratic Union Party (PYD) and its Movement for a Democratic Society (TEV-DEM). Laws passed by these legislative councils, such as laws related to self-defense, changes to school curricula, and civil status laws, are problematic. A review of the structure of the DAA and its legislative and executive bodies, shows the presence of a partisan political project that is being forced on the local population through its security and military apparatuses. This paper concludes that the DAA, though able to impose a unique governance model, still suffers from problems of representation, legitimacy within its population, and a lack of competent personnel, and it has failed to eliminate the local and regional concerns arising from this project.
The tenth and final chapter of this book proposes a unique Syria-customized decentralized framework, one that takes into account the importance of achieving stability. It highlights the importance of refocusing international negotiations on two parallel tracks: negotiations policies to strengthen central state institutions in order to create conditions for peace and stability, and empowering local governance models through local negotiations on power sharing of authorities and functions of the central state with local administrative units. They must also revisit the basic Geneva Communiqué according to the principle of power sharing agreements between the center and periphery and not only a central agreement where the opposition and regime share authority. This means prioritizing internationally-monitored elections over any other track, beginning with local administration elections.
In order to ensure the success of the elections, essential actions are required from the different parties with regards to the restoration of the functionality of police and local courts. It is therefore necessary to begin drafting a new law for local administration (decentralization) to allow locally-elected authorities to have full control over the work of the police and administration of local courts.
The opportunity exists for local councils to legitimize their structures and negotiate new authorities, guaranteeing a decentralized model that provides expanded authorities to the councils and governorates, based on the strength of their electoral legitimacy. This chapter emphasizes the need to empower the tools and foundations of local governance both constitutionally and legally, and to ensure that the countries with a presence on Syrian soil help push the negotiations to a peace-building stage and guarantee relative stability on the ground until an agreement on the various security arrangements is concluded.
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In an interview with AFP, Ayman al-Dassouky gives his analysis about the lucrative trade business across front lines between Syrian opposition held and regime territory
The crossings generated millions for the forces which contr it by businessmen who trade across them," and It brings mutual benefit to the warring sides who have allied themselves to boost trade..
On the 25th of July, Dr. Ammar Kahf, the executive director of the Omran, commented on latest developments in southern Syria to USA Today, by stating that the regime’s territorial gains in Daraa has put Iran and Hezbollah closer to being a threat to Israel and regional powers.
This development will increase the likelihood of greater conflict in the Middle East. Developments in Daraa are also signs of a new era in the Syrian conflict, where domestic actors have largely disappeared and given way to international and non-state actors using Syria for their own agenda.
Dr. Kahf has stated that “The story of the armed Syrian opposition is over, Iran and Hezbollah are much stronger today than a month ago and closer to the southern front. I think this (Syrian conflict) will continue to escalate.”
Special thanks to the co-writers of the Article, Jacob Wirtschafter and Gilgamesh Nabeel.
On May 18, 2016, the Syrian Democratic Forces (SDF), of which the predominately Kurdish People’s Protection Units (YPG or PYD) form the main fighting force, launched an operation with a few American and French Special Forces and International Coalition air support to take Raqqa from ISIS control. According to the SDF, the battle ended on May 31, 2016, due to fierce resistance by ISIS fighters and the widespread use of mines in the rural areas surrounding Raqqa. At that time, the battle for Manbij was announced. The SDF seized control of Manbij on August 12, 2016, after which the battle for Raqqa was relaunched. In its first three phases, the battle for Raqqa achieved its desired goals: cutting off supply routes and lines of communication between ISIS’s Iraqi and Syrian branches, isolating and besieging Raqqa, and finally preparing for the offensive attack on besieged Raqqa, which is the fourth and final phase of the current operation.
The Raqqa operation closely mirrors the Mosul operation both politically and militarily. Politically, it was launched amid disagreements and a lack of clarity about which local and international forces will participate and who will govern the city post liberation. Militarily, ISIS used the same strategy it used in Mosul aiming to exhaust the attacking forces with the use of improvised explosive devices instead of direct combat. ISIS also retreated from positions near the borders of Raqqa and took more fortified positions inside neighborhoods with narrow streets in an attempt to change the battle into an urban combat nature. Furthermore, the battle uncovered critical weaknesses in the SDF’s ability to carry out the fight alone. The SDF required heavy air support from Coalition forces, as well as direct involvement of American and French forces, which deployed paratroopers in the area and changed the course of the battle by taking control of the Euphrates Dam and Tabqa Military Airport.
This paper analyzes the various political contexts surrounding the battle for Raqqa and breaks down the interests of the local and international actors involved. Furthermore, this paper projects scenarios about the governance of Raqqa post liberation, which is expected to have a significant impact on a political settlement and the future Syrian state.
The U.S.-led International Coalition decided to launch the battle for Raqqa depending solely on the SDF. Other groups that had previously been excluded from operations in Syria—until now—rejected the Coalition’s decision. However, similar to the way the US led international coalition initiated the operation in Mosul, their decision reflected two things: 1) the Coalition’s need to open a battle front in Syria in support of the Mosul operations, and 2) the desire for the operation to focus on fighting ISIS without allowing any participating party to exploit the battle for its own interests. Therefore, it seems that America’s choice of the YPG as the main fighting force of the SDF in Syria secured American interests, particularly by enabling Kurdish forces to participate, and created more obstacles for Turkey and Russia, whose participation in the battle remains a sore point. The battle for Raqqa is yet to begin, but the circumstances, as they are, force Turkey and Russia to align their interests more closely with America’s in the fight against ISIS if they want to participate in the fight—and in shaping the future Syrian state.
Interestingly, the dilemma of choosing partners and distributing roles is more difficult for the U.S. in the battle for Raqqa than it was in the battle for Mosul due to a number of political and military factors that make Syria different from Iraq.
A. Military Factors
The battle for Raqqa will be one of the toughest for the International Coalition because ISIS has lost significant territory in Iraq and thus will put more effort into maintaining the major cities it still controls in Syria, such as Raqqa. Furthermore, the SDF’s role in the first phases of the operation to surround Raqqa revealed that the group is not capable of carrying out the fight against ISIS in Syria on its own. This is especially concerning due to the SDF’s large numbers, with some sources estimating around 30,000 fighters. Even if we accept this inflated estimate, 30,000 fighters is significantly smaller than the force of 120,000 that is participating in the battle for Mosul, which is yet to be completed. Considering these factors, it is questionable as to how a 30,000-person force could take on ISIS in Syria.
Major SDF Battles with ISIS 2016 - 2017
Measure of Level of Participation from 1 – 10
Table No. 1 Source: Monitoring Unit at Omran Center for Strategic Studies
B. Political Factors
Regional and international political interests are more aligned in Syria than they are in Iraq; however, participation of local actors is much less in Syria than in Iraq. Additionally, the government of Iraq maintains a national military, international legitimacy, and a reasonable level of national sovereignty to a much greater extent than the Assad-led government in Syria. Furthermore, the Kurdistan Regional Government in Iraq is a successful political project that poses little threat to other Iraqi forces. The PYD in Syria, however, is a militia that has its own political project and thus poses a threat. Furthermore, the number of international and regional actors in Iraq is far fewer than that in Syria. In Iraq, competition between international and regional actors is limited to the framework of a crisis between Turkey and Iran, and the Russian-American row is almost nonexistent; however, these complications are amplified in Syria.
The factors described above and the various interests of regional and international actors will significantly impact the battle for Raqqa and future battles against ISIS in Syria. This was clearly reflected in the reactions of various players to the announcement of the battle for Raqqa as described below.
1. Turkey - Drawing the line at National Security
For Turkey, the YPG participation in the battle for Raqqa is a red line for its national security. For this reason, Turkey’s president and other officials responded strongly to the announcement of the start of the battle, at one point threatening to close Incirlik Air Base, especially if the International Coalition were to insist that the SDF, of which the YPG makes up the bulk of the forces, leads the battle.() There was also a negative atmosphere left behind due to the U.S. and the Coalition’s lack of support for Turkey’s Operation Euphrates Shield. Instead, Turkey relied on opposition forces, coordinated with Russia, and received minimal assistance from the U.S. These events revealed Turkey’s ability to launch an operation towards Raqqa with Syrian opposition forces without coordinating with the U.S. or the Coalition. Instead, Turkey could coordinate with Russia to prevent the SDF from expanding and taking over more Syrian territory. This is more likely due to statements made by Ankara that indicate its willingness to start new operations in Syria to liberate Raqqa. ()
Turkey also announced that it was supporting forces known as the Eastern Shield, made up of groups from eastern Syria currently operating in northern rural Aleppo.() Turkey’s desire to act alone was expected after Washington ignored the Turkish proposals() and after a March 7 meeting in Antalya, Turkey, about who would participate in the battle for Raqqa produced no results. So far, Washington’s position on YPG participation in the battle for Raqqa has proven to be a strong test for its relations with Ankara. Many Turkish officials have stated clearly that Washington’s insistence on the YPG’s participation in the battle will jeopardize relations between the two countries.()
2. Russia - Stuck in the Middle
Russia views U.S. involvement in the fight against ISIS and the increased number of American troops in Syria as a threat to its political prowess and its control of the military situation on the ground. This was especially the case during the Obama administration. In fact, launching the battle for Raqqa without coordinating with Moscow, coupled with the U.S.’s refusal to allow regime forces or Iranian-backed militias to participate, which meant Moscow would not be included either. This led Russian officials to make a number of statements demanding to participate in the operations. Moscow indicated its desire to coordinate with the SDF and the International Coalition in the fight to take Raqqa, even after the American strikes on the Sheirat Airbase and after Russia announced its cancellation of military cooperation with the U.S. in Syria. The Russian Foreign Minister Sergey Lavrov sent conciliatory messages to the Americans regarding the battle for Raqqa hoping to unite efforts between Russia and the International Coalition in fighting terrorism in Syria.() The U.S. continues to reject Russian attempts to legitimize the Assad regime in the battle of Raqqa. Instead, America has conditioned any Russian role in Raqqa on reaching an understanding about a political solution in Syria that addresses Bashar al Assad’s future role in Syria. Until now, this remains a difficult task to achieve.
Russia is dealing with this American predicament surrounding the battle for Raqqa and must make a decision on who its allies will be. There are possibly two options: either give up its alliance with Iran and Assad and move closer to the U.S. or continue with its Assad/Iran alliance. If Russia chooses the second option, then it will lose any opportunity to be a partner in any internationally endorsed solution. Instead, Russia will be considered part of the problem. At the same time, Moscow is trying its best to create a third option by playing on the disagreement between Turkey and the U.S. regarding the role of the Kurdish militia in the battle for Raqqa. This Russian plan may be the one that appeals to all parties, similar to what happened in Manbij.() The plan aims to encourage the U.S. to coordinate with Russia in the battle for Raqqa by allowing Assad regime forces to be included in the operations. Assad’s forces will enter into certain areas forming a buffer between the SDF and Turkish-backed forces with American and Russian oversight. This plan does not require undoing any existing agreements made after the fall of Aleppo, especially between Russia and Turkey. Turkey is not completely disturbed by the regime’s military activities in northern Syria since the placement of regime forces effectively separates the Kurdish cantons—Qamishli, Ain al Arab, Kobani (east of the Euphrates River), and Afrin (west of the river). This is exactly what Ankara wants.() This would also ensure that Turkish-U.S. relations are not negatively impacted due to the less problematic Kurdish issue, if such a plan succeeds.()
3. Iran - Weary of All Parties
Iran rejected the new American presence in Syria. Iran also denied reports that the American incursion into Syria occurred based on an agreement between the two.() Coming from Ali Larijani, chairman of the Parliament of Iran, this position reflected Iran’s fears of not only being excluded from the fight against terror but also a wholesale change in policy against the country, especially by the Trump administration. Trump considers Iran to be the main sponsor of terrorism in the region and considers its official forces and the militias it supports to be in the same camp as the terror groups in Syria. These are critical strategic challenges facing Iran that could change its future role in the region. Iran will specifically find it difficult to manage issues where its interests are in competition with the policies of the new American administration—in Iraq, where Baghdad is cozying up to Washington on the back of the Mosul operations, coupled with the increased American presence in Iraq and Syria, where America has deployed Marines in the North.()
Iran is also skeptical of Russia’s regional activities, such as its closer relations with Turkey. Furthermore, Iran is concerned by Turkey sending military forces into northern Syria, which weakens Iran’s ability to expand. Iran is also troubled by Russia’s willingness to sell out Iran and its militias in an American-Russian deal that would protect Russia’s interests. This is especially true after Israel stepped in to pressure both Moscow and Washington to put an end to the presence of Iranian-backed militias in Syria.
4. Syrian Democratic Forces (SDF) - Avoiding the Cracks
The PYD is taking advantage of America’s predicament in choosing its best allies by presenting itself as a lesser of two evils for the U.S. The YPG is also trying to show flexibility by complying with American demands, such as including as many Arab fighters as possible in the fight for Raqqa and announcing that Raqqa will be administered by a local council comprising residents of Raqqa while still a part of the “Democratic Nation,” according to Salih Muslim, current co-chair of the PYD.() For its part the YPG and its affiliated militias’ have shown success in the battle of Raqqa their ability to play politics with major regional and international actors while avoiding increased tensions between the US and Turkey, as well as Russia and the U.S. For now, the YPG separatist project depends on agreements made by major players—and what took place in Manbij is the strongest indication of what is possible.
As for its position towards Ankara, the SDF released increasingly stern statements about Turkish participation in the battle for Raqqa. It has tried to force its position on the U.S. On one occasion, Talal Sello, SDF spokesperson, claimed that he informed the U.S. that it was unacceptable for Turkey to have any role in the operation to retake Raqqa.() In response, the U.S.-led International Coalition’s spokesperson John Dorrian failed to make clear whether Turkey would participate. Instead, he suggested that Turkey’s role was still being discussed on both military and diplomatic levels. He added that the Coalition was open to Turkey playing a role in the liberation of Raqqa and that talks would continue until a logical plan was reached.()
In response to the SDF’s statements and American ambivalence, Turkey shifted yet again from threatening rhetoric to real movements on the ground similar to what took place in Manbij. There are serious reports about a possible Turkish military operation against the Kurds in northern Syria. Reports show that Turkey has sent significant military assets to the border area. In addition, the Turkish Air Force has been striking PKK() positions in Syria. Under these circumstances, American troops in northern Syria have become monitors to ensure limited military exchanges between YPG and Turkish troops in northern Syria. For this purpose, American troops were deployed to the Turkish-Syrian border to make sure the two sides do not engage. However, this does not necessitate a favorable stance from the U.S. towards the Kurds. The Trump administration is still studying alternatives to Obama’s Raqqa plan, which it believes was full of shortcomings, especially with respect to sidelining Turkey’s armed forces. What we can be sure of regarding American policy on Raqqa is that the U.S. is convinced that the Kurds must leave Raqqa as soon as they clear the city of ISIS forces. The previous U.S. Secretary of Defense Ash Carter, who indicated that the Kurds knew that they would have to hand the city over to Arab forces as soon as they took over, confirmed this.
Even Samantha Power, former U.S. ambassador to the United Nations, insisted that starting any operation in Raqqa without Turkey would hurt the relationship between the two countries and would put Washington in an embarrassing situation for supporting a group that has conducted terror attacks against a NATO ally.()
Amid this politically charged environment, the SDF announced the start of its operation to take Raqqa under the name “Wrath of the Euphrates.” Its plan was to isolate the city starting from the southern rural areas of Ain Issa with heavy air support from the U.S.-led international coalition. On November 14, 2016, the SDF announced the end of phase 1 of their operation after taking 500 square kilometers of territory from ISIS.
From its start, the operation focused on the rural areas south of Ain Issa, which are easy to take unlike residential areas. However, the situation was not so simple since ISIS depended on improvised explosive devices (IEDs), which were planted randomly around Ain Issa causing serious damage to the SDF. The presence of IEDs was the main reason for the heavy Coalition strike on areas where there were no ISIS forces present.
The second phase of Operation Wrath of the Euphrates started on December 10, 2016, aiming to take control of Raqqa’s western rural areas along the banks of the Euphrates River. The most significant development in this phase of the battle was the SDF’s announcement of new parties joining the operation:
In the announcement came a confirmation by Jihan Sheikh Ahmed, a spokesperson for the Wrath of the Euphrates Operation, of successful coordination with the Coalition in the previous phase and the expectation of continued coordination.
The second phase of the operation lasted until January 16, 2017, during which 2,480 square kilometers were taken over from ISIS, as well as important places such as the historic Qalet Jaber.
On February 4, 2017, the SDF announced the start of the third phase of Operation Euphrates Shield. This phase of the operation aimed to cut off lines of communication between Raqqa and Deir Ezzor and to make significant advances from the North and the West on ISIS’s self-declared capital.
In mid-March 2017, Coalition airstrikes intensified on Tabqa and the surrounding areas, reaching 125 strikes between March 17 and 26. On March 25, an offensive was launched to seize control of the 4 km-long Euphrates Dam in Tabqa. On March 26, the dam was struck by Coalition airstrikes making it non-operational.
Despite the heavy Coalition airstrikes, the YPG and its allies were unable to take the dam due to the large number of IEDs planted by ISIS. According to field interviews conducted by Omran Center, American troops landed in western rural Tabqa as YPG-led forces crossed the Euphrates River. An attack ensued on the Tabqa Military Airport from the South without striking the city itself.
On the evening of March 26, the YPG announced control over the military airport and immediately after—with oversight by American and French troops—the YPG started operations to take control of the rural parts of the city. By mid-April, the city was besieged and operations began to take the city with a significant uptick in Coalition airstrikes. Airstrikes on Tabqa city during the month of April 2017 reached 215 strikes, making Tabqa the most targeted city by the Coalition during that month, as shown below.
Forces involved in the Tabqa offensive: The Americans headed up the landing south of the Euphrates. French troops were present at Jabar on the other side of the river and were able to secure boat crossings for the YPG to the other side. Coalition forces wanted to take Tabqa Military Airport to make it a base for future operations and eventually for the complete siege of Tabqa. As for the YPG, its role was limited to protecting the backs of the Coalition forces and then moving in when the Coalition leaves.
Map No. (1) Control and Influence of Raqqa and Tabqa, between 7 February 2017 and 2 June 2017
On April 13, the SDF announced the fourth phase of Operation Wrath of the Euphrates that aimed to take what remained of northern rural Raqqa and Jallab Valley, according to a statement released by the Wrath of the Euphrates operations room.()
Even though the SDF announced the fourth phase of Operation Wrath of the Euphrates, and previous phases achieved their stated goals, it was not able to take full control of Tabqa city until May 4, 2017. Furthermore, that only happened after making a deal with ISIS to let its fighters and their family members leave towards Deir Ezzor.()
Costs of the Battle (Infrastructure and Civilians):
Coalition strikes in September 2016 destroyed the remaining bridges that crossed the Euphrates River between the Iraqi border and eastern Raqqa. Additional raids destroyed the city's bridges on February 3, 2017. The Euphrates Dam was also damaged because of the clashes and now, with a damaged control room and the introduction of melting snow, the dam's status is questionable, with the water level increasing 10 meters since the beginning of the year.
The dam is now non-operational due to clashes between Kurdish fighters and ISIS, coupled with Coalition strikes. This has caused major concerns because if the dam breaks, the water could submerge more than one third of Syria and large parts of Iraq, reaching Ramadi.
Almost all of the hospitals in rural Raqqa are out of service. The only hospital remaining is operating at one fourth of its capacity even though there are approximately 200,000 civilians living there.()
On March 21, 2017, more than 200 civilians were killed and wounded in a Coalition strike on a school inhabited by displaced persons in the town of Mansoura in rural Raqqa.()
Again, on March 22, 2017, Coalition strikes committed another attack in Tabqa, west of Raqqa, targeting a bakery in a busy market killing at least 25 civilians and injuring more than 40 others.() On April 22, 2017, another five civilians were killed and tens were injured in a Coalition airstrike on Tabqa.
In a mistaken strike by Coalition forces, 18 SDF fighters were killed south of Tabqa. The coalition released a statement explaining that the strike was conducted based on a request from one of its partners and the target was identified as an ISIS fighting position. The statement explained that the target was actually a front position of the SDF.()
Even though the SDF is dominating the headlines and appears as the ideal force to liberate Raqqa, a number of factors indicate that there is more than one plausible scenario for the liberation of Raqqa. The issue is not determined solely by the force that will do the bulk of the fighting but also, who will administer the city after it is retaken, who will go after ISIS forces fleeing the city, and who will attack the last ISIS stronghold in Deir Ezzor, Syria.
The factors influencing the drawing up of possible battle scenarios are as follows:
Given these factors, it is possible to project the following four scenarios for the battle of Raqqa:
The U.S. would continue to exclusively depend on the YPG and make serious attempts to take advantage of the Arab forces that are currently an inactive part of the SDF. This would balance out the influence of the PYD in the SDF. After Raqqa is liberated, it would be handed to a local council that represents the local population, as is being planned for now. This scenario seems more likely if we look at the increasing number of American troops in Syria. There are also 1,000 American Special Forces deployed in Kuwait on standby ready to be called in to support operations in Syria or Iraq. President Trump has also given the army the authority to determine appropriate troop levels in both Iraq and Syria.() In this scenario, the U.S. would be able to conduct a successful operation to take Raqqa but with a significant footprint, including direct combat and an extended period. Moreover, the political issues would remain unresolved, especially with respect to Turkey. These unresolved political issues could heighten tensions between Turkey and the U.S. after the battle for Raqqa, especially since Turkey insists that the SDF refrain from taking control of any other territory and that current SDF-controlled territory be disconnected. Increased tensions with the U.S. may lead to a solution in this scenario that is something similar to what happened in Manbij.() Moscow is hoping that it can take advantage of Turkish-American tensions in order to push the participation of regime forces as a legitimate option.
The U.S. and Turkey would increase their coordination in Syria while pushing the PYD forces farther away. This would happen according to one of two Turkish plans. The first is that Turkish forces enter Syria towards Raqqa from Tal Abyad and the SDF opens a 25-km corridor for them. This would mean the PYD loses control of Tal Abyad and cuts off unobstructed access between Qamishli and Ain Arab (Kobani), which is unlikely. The other option is for Turkish forces to enter from Al Bab, which would mean either attacking regime forces or coordinating with them to secure a corridor access to Raqqa. It is unclear until now if the Trump administration is willing to completely give up its coordination with the SDF. In addition, the option of having Turkish-backed Arab forces fighting alongside the SDF is unlikely since both Turkey and the SDF reject such a proposal. Turkey will not participate in the battle if the other party includes PYD forces.
The Americans and Russians would reach an agreement on the framework of a solution in Syria. This would include neutralizing Turkey and enabling the participation of regime forces alongside the YPG. This scenario would be welcomed by the regime. This scenario could become more likely because of the regime’s advances in eastern rural Aleppo reaching the administrative border of Raqqa Province (Ithraya-Khanaser). The regime has also reinforced its presence in Ithraya on the way to Tabqa, as well as in Palmyra, which is a critical position on the road between Palmyra and Raqqa. The regime has also been making attempts to increase its control of more positions in the desert by attacking “Usood al Sharqiyeh” forces in recent days.() The regime also controls critical positions in Deir Ezzor, especially in the western rural areas congruent with Raqqa Province. This includes the Deir Ezzor Military Airport in the eastern part of the province, which extends to the Iraqi border. Thus, the regime puts the Coalition in a position where it has no choice but to coordinate with regime forces, either in the battle for Raqqa or in future operations.
The results of the last Astana meeting to create four de-conflicted zones could be a premise for a fourth scenario in which the U.S. is more open to the participation of all interested parties from Astana in the battle for Raqqa and what comes after. This would include roles for the SDF, regime forces, and opposition forces backed by Turkey. American and Russian oversight would ensure effective implementation of the participating forces and prevent any infighting among them. The de-confliction zones proposal is the strongest evidence that such a scenario may be carried out. The de-confliction zones would essentially mean a truce between regime and opposition forces with well-defined borders in order for the parties to focus their efforts more closely on fighting ISIS. Turkey and Russia responded positively to the last Astana meeting, which followed a meeting between the presidents of Turkey and Russia, indicating that there are some preexisting agreements about Turkey’s participation in the battle for Raqqa. Furthermore, the American approval of the de-confliction zones indicates a possible three-way understanding about the battle for Raqqa. Another positive development is Russia’s reopening lines of communication with the U.S. regarding sharing and coordinating Syria’s air space. This was surprising given the deadly strikes on the Sheirat air base. Further clarification on this possible three-way understanding on the battle for Raqqa is expected following the meeting between U.S. President Donald Trump and Turkish President Recep Tayyip Erdogan in Washington, D.C. on [insert date].
Map No. (2) Control and Influence of Eastern Syria – May 7, 2017
The presence of American forces in Syria joining the fight against ISIS is a significant change in the Syrian arena, making the situation more complicated and the interests of the various parties more contradictory. In the meantime, the U.S. continues to take advantage of these contradictory interests. Therefore, the most important contribution of the American entry into Syria was undermining the post-Aleppo status quo established by Russia in an attempt to create a new climate that is more consistent with an American policy that is more involved in the Middle East. These new understandings are still unclear and will not be completely understood until after the defeat of ISIS. The battle for Raqqa and what comes after are the apex of these understandings, especially the shape of a future Syria that regional and international actors will decide.
() Front lines defenses were shored up at the eastern edge of Operation Euphrates Shield territory with regime, Russian, and US forces creating a buffer preventing any further Turkish backed offensive.
() Fabrince Balance, The Battle for al-Bab Is Bringing U.S.-Turkish Tensions to a Head, The Washington Institute, 2017, https://goo.gl/Q5zGrg
() Turkey announces the end of Operation Euphrates Shield, Arabic, Aljazeera Net, https://goo.gl/JvGtqT
() “Eastern Shield Army”, A new formation to face three powers in Syria’s east, Enab Baladi News, Arabic, https://goo.gl/y4zVWx
() Turkey’s plans to liberate Syria’s Raqqa, Turkey Now, Arabic, https://goo.gl/cmJr9X
() American, Russian, Turkish coordination in Syria, Arabic, Aljazeera Net, https://goo.gl/O7cAC6
() Moscow offers coordination with America in Syria, Al Hayat, https://goo.gl/mDCKb1
() Front lines defenses were shored up at the eastern edge of Operation Euphrates Shield territory with regime, Russian, and US forces creating a buffer preventing any further Turkish backed offensive.
() Safinaz Muhammad Ahmad, “Manbij and Raqqa..International and regional interventions and the new maps of influence in Syria”, Al Ahram for Strategic Studies, https://goo.gl/PyVtoS
() Ibrahim Humeidi, Moscow’s surprise between Manbij and al Bab: Tempting Washington and marginalizing Ankara, Al Hayat, https://goo.gl/VnGkKn
() Larijani: US intervention in Syria is not in its favor .. The presence of the Marines was not in coordination with Tehran .. We do not aim to achieve special interests in Syria, Rai Al Youm, https://goo.gl/PRk0SA
() "Marines" in Syria to accelerate the battle of Raqqa ... and "reassure" Turkey, Al Hayat, https://goo.gl/UELPQg
() After abandoning Obama's plan .. Trump is looking for his way to Raqqa, Russia Today Arabic, https://goo.gl/jvyX8p
() The fourth phase of “Wrath of the Euphrates”: Trying to reach Raqqa’s border, The New Arab, https://goo.gl/JTHxLS
() Daesh withdraws from Tabqa under agreement with SDF, The New Arab, https://goo.gl/3cZcD3
() Raqqa, Between Coalition massacres and preparing for what is after Daesh, Enab Baladi, https://goo.gl/OiQTJ0
() A new massacre by the international coalition in Mansoura in rural Raqqa, Zaman Alwasl, https://goo.gl/6VUbGZ
() The international coalition commits a massacre in Tabqa, Raqqa Post, https://goo.gl/pp2wLv
() Trump gives the Pentagon the power to determine troop levels in Iraq and Syria, Reuters, https://goo.gl/7Er9oO
() Front lines defenses were shored up at the eastern edge of Operation Euphrates Shield territory with regime, Russian, and US forces creating a buffer preventing any further Turkish backed offensive.
() Lions of the East: The regime advances in rural eastern Sweida, MicroSyria, https://goo.gl/zB8cIV