On Tuesday, March 19, the Senate Committee on Foreign Relations, Subcommittee on Near East and South and Central Asian Affairs held a hearing titled “Syria’s Humanitarian Crisis.” The witnesses were divided into three panels. Panel 1 consisted of the Honorable Anne C. Richard, Assistant Secretary of State for Population, Refugees, and Migration, and the Honorable Nancy Lindborg, Assistant Administrator for Democracy, Conflict and Humanitarian Assistance at the U.S. Agency for International Development. Panel 2 consisted of testimony from Antonio Guterres, United Nations High Commissioner for Refugees. Panel 3 contained testimony from Tom Malinowski, Washington Director of Human Rights Watch, and Michael Singh, Managing Director of the Washington Institute. Senator Robert Casey presided over the hearing.
For full event notes, continue reading or click here for the PDF.
Senator Robert Casey opened the hearing by citing statistics on the magnitude of the humanitarian crisis in Syria and sharing specific stories of individuals who have been affected by the Syrian conflict. He applauded the aid community for the work in delivering assistance, noting the U.N.’s inability under international law to enter Syria to deliver aid directly without an invitation from the Assad government. He also discussed the strain Syrian refugees have placed on neighboring countries. Casey noted the election of Ghassan Hitto as prime minister of the opposition’s interim government, calling him “a capable alternative to Assad” and stating that he would give the United States and the international community an important partner in distributing aid.
Senator James Risch, Ranking Member of the subcommittee, expressed concern over the U.S.’s ability to aid the Syrian population, saying, “The finances of this country have deteriorated to the point that we cannot provide the kind of assistance we used to provide in the past.” He emphasized the complexity of the situation in Syria and expressed interest in what a post-Assad Syria will look like.
In the first panel, the Honorable Anne Richard began her testimony by discussing the issues associated with Syrian refugees. She noted the growing number of refugees, citing the recent milestone of one million refugees. She also expressed gratitude to the countries who have allowed Syrian refugees to enter and noted the strain placed on the infrastructure and host communities of these countries. Richard urged that these countries keep their borders open. Discussing the State Department’s aid efforts, Richard stated that the State Department is working to get as much aid as possible to the victims of violence in Syria. State Department funds are used to meet basic humanitarian needs like shelter, water, and health. Richard stated that humanitarian organizations provide aid in a neutral and impartial manner and it is a violation of humanitarian principles for Syria to deny U.N. access for the purposes of distributing assistance. She also claimed that humanitarian aid will likely continue beyond Assad’s fall, saying, “needs could extend into the long term.” Discussing the State Department’s ongoing efforts to provide the maximum amount of assistance, Richard said the State Department is deepening its coordination with the Syrian opposition coalition’s coordination unit. She also stated that they are speaking with other governments about their monetary pledges, traveling to the region, and trying to gain access to hard-to-reach places in Syria in an effort to “save as many lives as possible.”
The Honorable Nancy Lindborg stated that U.S. aid has been a lifeline to people inside Syria. Discussing the current level of aid, she said, “We know it’s not enough, but we’re working to ensure that it reaches as broad a swath of those in need.” She also stated that it is more important than ever for the international community to increase its pledges of assistance as the situation in Syria worsens. Lindborg stated that the U.S. works closely with the Syrian Opposition Coalition’s Assistance Coordination Unit as well as with the United Nations, NGOs, and local Syrian groups. She stated that USAID has prioritized food, basic medical and trauma care, and relief supplies as the primary needs. She noted a particular focus on assisting Syrians who are internally displaced. Lindborg also stated that all programs are looking at the psycho-social impact of this conflict. She noted the shifting focus as winter ends, saying that warm weather brings increased concerns about clean water and sanitation to prevent the spread of water-borne diseases. She stated that there are particular problems with access and security. She also discussed the question of branding assistance, saying that branding is an essential part of ensuring that Syrians know the U.S. is sending assistance but can become a security problem for humanitarian workers on the ground. She closed by calling all countries to contribute to the assistance effort and stating that a full-fledged humanitarian response is necessary for Syrians to achieve their democratic aspirations.
Senator Casey asked Lindborg to expand on her statements on branding. Lindborg said that USAID wants to ensure that their partners and aid recipients are not targeted. She stated that they add branding when possible and work through social media and Arabic media within Syria in order to communicate to the Syrian people that the U.S. stands with them.
Senator Ron Johnson asked Richard to provide a breakdown of the percentage of casualties that have been opposition or Assad supporters and a breakdown of the number of supporters of the regime among the refugee population. Richard stated that there is no breakdown for casualties. She stated that most refugees are critical of the regime and are horrified by the situation in Syria. Johnson also asked if there was a likely scenario in which Assad remained in power and the humanitarian crisis did not escalate. Lindborg stated that there will probably be assistance for a long time to come, and Richard stated that it is hard to imagine a winding down of the conflict while Assad is in power. Johnson asked if the goal of U.S. policy should be the removal of Assad. Richard responded that Ambassador Robert Ford is dealing with the political side of the conflict. Johnson also questioned the ability to move funds around in the foreign aid budget. Richard said that the State Department’s budget request for this year was submitted before the escalation of the crisis and expressed gratitude to Congress for allowing flexibility in using contingency funds. She also stated that “the mood on the Hill” forces the Department to be very careful about how it spends its money. Johnson closed by asking how high a priority Syria is in the administration, and Richard and Lindborg both stated that it is a top priority in their offices.
Senator Barbara Boxer asked about the situation of female refugees, particularly victims of sexual assault, and child refugees. Richard stated that her office funds UNHCR and NGOs in Jordan, Lebanon, and Iraq to respond to sexual violence and prevent reoccurrence. Lindborg stated that USAID is supporting hospitals and clinics inside Syria and is prioritizing getting rape kits to these facilities and training healthcare staff on providing counseling services.
Senator Bob Corker asked whether the U.S. is doing enough to prepare for the day after Assad falls. Richard stated that the administration formed committees early last year to begin planning for this possibility. She also stated that not enough is being done by other countries to contribute funds to prepare for reconstruction efforts. Corker also asked what the U.S. could do to ensure the success of the new prime minister of the interim government. Lindborg stated that it is essential that Hitto gain the trust of the people by delivering essential services. Corker also inquired about whether Syrians know the U.S. is providing assistance. Lindborg affirmed that they know the U.S. helping.
Senator Benjamin Cardin asked for assurances that aid money is furthering U.S. national interests and is helping Syrians achieve their objectives. Richard stated that she has confidence that aid to refugees is being provided in a very efficient way, pointing to a significant professionalization of aid providers in recent years. She also noted the challenge of access.
In the second panel, Antonio Gutteres began by discussing the significant problems associated with the refugees, citing the numbers of refugees in Syria’s neighboring countries and the specific burdens associated with this influx of refugees. He called the growing number of refugees an “alarming escalation.” Guterres outlined a variety of groups the U.N. is working with, including NGO partners, local authorities, host communities, religious leaders, and the refugees themselves. He noted specific efforts to assist victims of domestic violence and sexual assault. Guterres also stated that there is significant concern over internally displaced persons in Syria and noted the specific case of Palestinian refugees living in Syria. He stated that the UNHCR was focusing on providing “community services, shelter assistance and providing relief items to internally displaced people” in both opposition- and government-controlled areas. He urged international support for countries hosting refugees, noting the economic and social strains the refugees placed on these communities. He expressed particular concern over a “dramatic lack of resources” to fund these efforts and stated that if the agencies and organizations dealing with this crisis run out of funding, the results could be disastrous. Gutteres closed by saying that the current situation in Syria poses a risk of escalating beyond the international response capacity on political, security, and humanitarian dimensions.
Senator Casey inquired about details on the gap in resources Guterres had identified. Guterres stated that the gap is in pledges made and that the UNHCR is continuing its work and hoping for increased support. He also said that he expects one million refugees to be living in each of the current host countries by the end of 2013.
Senator Johnson stated that humanitarian aid is a band-aid but the true cure in Syria is the fall of Assad; he asked Guterres whether that fall is inevitable. He also expressed concern over who would replace the Assad regime and over possible resentment of America by Syrians for not doing more militarily. Guterres stated that there is no military solution to the current crisis and that he worries that the conflict could last and lead to a permanent degradation of the living situation in Syria. He also called for the international community to unite to find an international solution.
Senator Casey closed by asking about the most difficult challenge of the humanitarian crisis. Guterres expressed concern that the informed and politicized community would become angrier and more active and contribute to more spillover of the conflict.
During the third panel, Tom Malinowski described his recent trip to Syria, saying that “suffering was extreme and evident.” He said it was striking how absent the United States and the United Nations were in Aleppo and noted the “Sophie’s choice” the U.N. faced regarding operating in either the south or the north. He said he had witnessed anger at the U.S. for not doing more, saying that Syrians assume U.S. actions are part of larger plan and therefore assume that a lack of help symbolizes a desire for Assad to win. Malinowski did note, however, a significant increase in aid over the months since his visit. He stated that the central problem is not the humanitarian issue alone, but rather is the punitive scud strikes launched by the government, which make the implementation of humanitarian assistance plans impossible and makes targeted areas ungovernable. He argued that there is that can be done to open borders, register NGO workers on the ground, and get the United Nations operating on the ground. He echoed Lindborg’s concerns about branding aid but deferred to the people on the ground and their judgment on the security of branded aid. He also stated that it is “profoundly unfair” that the burden of proving U.S. assistance is placed on the people on the ground distributing the aid. He argued that this is the job of governments. Malinowski closed by saying that humanitarian assistance is desperately needed but that the U.S. is not meeting its responsibilities if focuses only on this aid rather than addressing the source of the suffering.
Michael Singh stated that it is impossible to address the conflict in Syria without a plan to resolve the origin of the crisis. He argued that the U.S. has a strategic interest in doing more, citing the possibility of spillover of the conflict, the destabilizing effect of the refugees on the region, and Assad’s role as a conduit of Iranian power in the Levant as particular concerns for the U.S. He argued that the current U.S. policy is not working. He also stated that we must assess our objectives, which he claimed are bringing the war to a quick resolution, preventing further spillover of the conflict, and strengthening the moderate opposition in Syria. He pointed out obstacles to success, including the presence of extremists in the opposition and the possibility that the Syrian government may resort to using chemical weapons. Singh proposed a three-pillar strategy focused on people, funding, and military support. He urged the U.S. to advocate for the representation of Syrian minorities in the opposition government and called for incentives for military officers and other high-level Assad supporters to defect. He also urged support for opposition leaders focused on democratic government. Singh argued for increased sanctions on the governments providing goods and other support to the Assad regime and increased humanitarian support. He also claimed that the U.S. must degrade the regime forces or bolster the opposition forces. He noted the regime’s reliance on air forces and called for a discussion in NATO for limited air strikes to destroy this capability. He stated that it is necessary to build support for these steps internationally rather than attempting to implement the strategy alone. He closed by saying that bolder action carries risks, but inaction carries risk as well.
Senator Casey asked Malinowski to discuss the influence of extremist groups within the opposition, specifically requesting a breakdown of the composition of the opposition. Malinowski stated that there are clearly some extremists involved in the opposition and that there is a perception among Syrians that they are not getting help from anyone else; essentially, “bad guys [are] filling the void.” He said there is an attitude that the U.S. is using these groups as an excuse not to provide assistance. He noted a relationship between Syrians’ perception of the amount of help from the international community and how the extremists provide help. He also stated that there is not significant support for extremists among the general opposition. Singh added that we need to ask the administration why there is not greater knowledge about the composition of the opposition.
Senator Johnson asked for an explanation of the administration’s reluctance to do more militarily in Syria. Malinowski stated that the president must weigh the ability to save lives and the consequences of inaction against the next step after the conflict ends. Johnson also inquired about methods of providing arms, to which Singh noted the importance of degrading Assad’s forces with air power and bolstering opposition security forces that would remain useful after Assad’s ouster.
Senator Casey closed by inquiring about the use of sanctions to create pressure on the regime. Singh stated that more sanctions may not be sufficient to convince Assad to cease his fight for survival but they may help encourage defections from Assad’s inner circle.