Il faut le répéter : pessimisme et optimisme n'ont pas leur place dans l'analyse de la médiation entreprise par M.Kofi Annan en Syrie. On n'évoque donc ici que sa progression, sans même y voir forcément un progrès en soi. Considérons-le comme un coureur, pas un sprinter, plutôt un sportif engagé dans un effort prolongé. Or la course d'un bipède est un défi à la pesanteur, à la chute inéluctable. Il se maintient en préservant un équilibre dans le mouvement grâce à l'anticipation de ses gestes. En d'autres termes, la seule façon de réussir à courir est de toujours mettre un pied devant l'autre. Il faut aussi un appui sûr à chaque pas. En l'occurrence, le représentant spécial de l'ONU et de la Ligue arabe cherche le soutien le plus large, mais il réclame surtout l'appui renouvelé et sûr du Conseil de sécurité.
Pour l'heure l'ancien secrétaire général de l'ONU réussit à courir et quelle belle foulée ! C'est un modèle de la diplomatie de crise menée dans le cadre du Chapitre VI de la Charte qu'il offre au regard de l'observateur. Il n'y a pas forcément de séparation nette avec le Chapitre VII auquel les membres du Conseil de sécurité auront peut être recours dans une phase ultérieure. La question n'est pas du tout d'actualité. Aujourd'hui, M. Kofi Annan a accompli un miracle : il est parvenu à restaurer l'unité du Conseil de sécurité et la place éminente qui revient à ce dernier dans une crise aussi sensible que celle que connaît la Syrie. Réussira-t-il sa mission ? Contentons-nous d'observer sa progression. L'action des pompiers semble parfois dérisoire. Pourtant les lances à incendie peuvent servir parfois, non à éteindre le feu, mais seulement à le refroidir pour en reprendre le contrôle. L'envoi d'observateurs internationaux relève d'une démarche similaire. Et il est bien possible que l'activité de la mission préparatoire que vient d'autoriser le Conseil de sécurité débouche sur un renforcement du cadre juridique de la mission des observateurs, y compris, si nécessaire, par l'application du Chapitre VII.
L'instauration du cessez-le-feu : Déclaration présidentielle du 5 avril 2012.
Après l'adoption d'une déclaration du Président du Conseil de sécurité, M. Kofi Annan s'est attaché à obtenir le soutien sans réserve de la Russie et de la Chine à son entreprise. De fait, il y est parvenu et les Russes notamment ont clairement affirmé que cette médiation constituait une dernière chance d'un règlement pacifique de la crise interne syrienne. Fort de cet appui donné par les Puissances disposant d'une capacité d'influence sur le gouvernement de Damas, le Représentant spécial a pu exiger de ce dernier une acceptation formelle du plan de paix que le Conseil de sécurité avait approuvé.
Cette phase d'échange de correspondance entre M. Kofi Annan et le Ministre syrien des affaires étrangères a été difficile. Chaque réponse syrienne a suscité une nouvelle demande d'éclaircissements, le médiateur faisant pression en annonçant son intention de référer au Conseil de sécurité et à l'Assemblée générale des obstacles et des entraves qu'il aurait pu rencontrer dans la mise en œuvre de sa mission. Pour l'essentiel, le Représentant spécial a obtenu l'engagement syrien sur un cessez-le-feu qui devait commencer le 10 avril pour être complet le 12 à 6 heures, heure locale en Syrie.
Kofi Annan a apporté la réponse suivante au Ministre syrien, M. Walid al-Moallem :
"27 March 2012
Excellency,
Thank you for your letter of 25 March 2012. I am glad to have received the agreement of the Syrian Arab Republic to my six points plan, which has received the full endorsement of the United Nations Security Council. I look forward to your Government moving now to put the following commitments into immediate effect:
1. Commit to with the Special Envoy in an inclusive Syrian-led political process to address the legitimate aspirations and concerns of the people. To this end, commit to appoint an empowered interlocutor when invited to do so by the Special Envoy.
2- Agree to stop fighting and achieve urgently an effective UN-supervised cessation of armed violence in all its forms by all parties to protect civilians and stabilize the country. To this end, the Syrian Arab Republic agrees to:
The Special Envoy will seek a similar commitment from the opposition and all relevant elements to stop the fighting and work with the Special Envoy to bring about a sustained cessation of armed violence in all its forms by all parties with an effective UN supervision and monitoring mechanism by the United Nations, the specifics of which will be contained in a Protocol to be agreed upon. The Government will work with the United Nations to ensure that this is implemented with all speed.
3- Ensure timely provision of humanitarian assistance to all areas affected by this fighting. To this end, as immediate steps:
a- Cease troop movement towards population centers;
-
b- No use of heavy weapons in population centers;
c- Begin pullback of military concentrations in and around population centers;
d- Work with the Special Envoy to bring about a sustained cessation of armed violence in all its forms by all parties with an effective UN supervision mechanism.
a- Accept and implement a daily two hour-humanitarian pause.
b- Coordinate the exact time and modalities of the daily pause through and efficient liaison mechanism, including on the ground.
4- Take the following steps concerning all persons detained arbitrarily … to the recent incidents:
a- Provide without delay ICRC full access to all places in which such persons are being detained.
b- Release such persons and work closely with the ICRC.
5- Ensure freedom of movement throughout the country for journalists, and grant visas facility for them in accordance with Syrian regulations.
6- Respect freedom of association and the right to demonstrate peacefully as legally guaranteed.
In your letter, Excellency, you provide comments of certain aspects of implementation of my proposals. I remain of the view that my six points plan, as explained to your Government, is clear in its requirements, including as regards the steps the Syrian authorities should take immediately. In addition, as explained by my team, the State’s right to respond to Armed Violence must be in conformity with the principle of proportionality and the obligation not to endanger civilian life.
I am grateful that woth the assistance of the Deputy Foreign Minister, we have succeded in agreeing on these important fist steps, implementation will be key, not only for the Syrian people but for the region and the international community as a whole. Once again, Excellency, I look forward to working with your Government to implement all aspects of my six point plan.
Please accept, Excellency, the assurance of my highest consideration,
Kofi Annan
Joint Special Envoy for Syria »
L'envoyé spécial a rendu compte au Conseil de sécurité le 2 avril de l'avancement du processus :
Compte rendu de la réunion de M. Kofi Annan avec les membres du CS
Le 4 avril il s'est exprimé en ces termes devant l'Assemblée générale :
« Mr. President,
Thank you for the invitation to brief the General Assembly on my mission as Joint Special Envoy of the United Nations and the League of Arab States on Syria.
Your resolution on 21 February 2012 was a turning point in the international response to the crisis in Syria. You came together to express the deep concern of the international community at the situation in Syria.
Following your resolution, Secretaries-General Ban and El-Araby invited me to be their Joint Special Envoy. I thank them both for their constant support. I am guided by the General Assembly resolution and the resolutions of the Arab League.
I appreciate the Security Council’s support for my mission and the six-point plan in its Presidential Statement of 21 March, and I welcome the Council’s statement this morning. This unity will be crucial as we move forward.
The Secretary-General has spoken clearly about the unacceptable situation in Syria. As he has stressed, there is an urgent need to stop the killing and abuses and bring humanitarian relief to a suffering people.
We must also move quickly to facilitate a peaceful Syrian-led and inclusive political solution that meets the democratic aspirations of the Syrian people. This should be achieved through a comprehensive political dialogue between the Syrian Government and the whole spectrum of the opposition. A broad cross-section of Syrian society must be involved.
As we pursue these endeavours, we do so committed to respect Syria’s sovereignty, independence, unity and territorial integrity, and the UN Charter. We wish to ensure that the Syrian people’s aspirations are realized and that they shape their own future.
Mr. President,
After several weeks of engagement, including my discussion with President Assad on 10 and 11 March in Damascus, on 25 March, the Syrian Government confirmed its acceptance of the plan.
I registered this acceptance in a letter on 27 March. I regarded this as an important initial step in cooperation, and stressed that action must follow.
The essence of the six points is as follows:
First, there must be an inclusive Syrian-led process to address the legitimate aspirations and concerns of the Syrian people. In this regard, President Assad committed to appoint an empowered interlocutor for such a process when invited to do so.
Second, the Syrian Government committed to cease troop movements towards population centres, not use heavy weapons in population centres, and begin pullback of military concentrations in an around population centres. The Government also committed to work with me to bring about a sustained cessation of armed violence in all its forms by all parties. As the Government implements its obligations, I would seek a commitment from the opposition to bring about a sustained cessation of armed violence. It is agreed that this would require an effective UN supervision mechanism
Third, the Government committed to ensure timely provision of humanitarian assistance to all areas affected by the fighting, and to an immediate two hour humanitarian pause coordinated on the ground.
Fourth, with respect to all persons detained arbitrarily owing to the recent incidents, the Government committed to provide without delay full access to all places in which such persons are being detained and to release such persons, working closely with the International Committee of the Red Cross.
Fifth, the Government committed to ensure freedom of movement throughout the country for journalists, and to grant visas for them in accordance with Syrian regulations.
Sixth, the Government committed to respect freedom of association and the right to demonstrate peacefully as legally guaranteed.
Mr. President.
All points of the plan are crucial, but one is most urgent: the need for a cessation of violence. Clearly, the violence is still continuing. Alarming levels of casualties and other abuses continue to be reported daily. Military operations in civilian population centres have not stopped. For its part, the government has written to me stating that armed groups continue to assault and attack Government forces, civilians and property.
However, on 1 April, the Syrian Government informed me that a plan for withdrawing military units from populated zones and surrounding areas had been established, and would be in effect until 10 April. I was also informed that instructions have been issued that no new military forces are to be deployed to these zones. The Government has informed me of partial withdrawals from three locations – Idlib, Zabadani, and Deraa. I await further action and fuller information. The Government has indicated that it will continue to update me on steps it is taking. But it is clear that more far-reaching action is urgently required.
Immediate and verifiable steps are needed to complete implementation of commitments in the crucial days ahead. We are increasing our efforts to have an objective understanding of what is happening on the ground, and who is doing what, and I welcome support in this endeavour.
In the end, this is not merely a technical issue: as I have indicated to the Syrian authorities, these steps must be implemented in a way that sends a powerful political signal of peace.
Mr. President,
I urge the Government to complete implementation of its commitments, so that we can move to a full cessation of armed violence in all its forms by all parties 48 hours thereafter.
We must silence the tanks, helicopters, mortars and guns, and stop all other forms of violence too: sexual abuse, torture, executions, abductions, destruction of homes, forced displacement, and other such abuses, including on children.
We have explained to the opposition the immediate steps demanded of them if the Government implements its obligations. All interlocutors with whom we have spoken have committed to call for cessation of violence once the Syrian Government has demonstrably fulfilled its commitments regarding use of heavy weapons and troop withdrawals. They have also expressed their readiness to work with a UN mission. We continue to engage the opposition on this issue, and I urge Governments with influence to impress upon them that they must cease all acts of violence.
Accordingly, upon completion by the the Government of its commitments by Tuesday, 10 April, all parties should move immediately to cease all forms of violence, so that a complete cessation is in place by 0600 hours Damascus time on Thursday, 12 April. I urge the Government and opposition commanders to issue clear instructions so that the message reaches across the country, down to the fighter and soldier at the local level.
Mr. President,
I continue to press for action on the other items of the plan, including on detainees, journalists, and allowing peaceful protest. The Government has informed me that certain steps are underway, including the issuance of 21 visas to European, Russian, American and Korean journalists since 25 March. I have also been informed that plans for release of detainees are being made and will be implemented within a few weeks of the agreement. However, I await further steps and fuller information and a comprehensive report on all actions planned and taken. The six point plan needs to be implemented in its entirety and urgently.
One million people need humanitarian assistance in Syria, including internally displaced persons. There are tens of thousands of refugees now outside the country. The humanitarian effort is being pursued independently and impartially. I have stressed to the Syrian Government the importance of working with the Emergency Relief Coordinator to ensure needs in the country are met. Action is needed to allow greater humanitarian capacity in the country.
Mr. President,
The Security Council has expressed today its full support for an effective UN supervision of a sustained cessation of armed violence, and its readiness to consider proposals and authorize a mission should circumstances permit. The Syrian government has committed to accept such a mission. Opposition groups are expressing their readiness to cooperate. The conflicting assessments of the situation on the ground, as well as the inevitable difficulties that will arise on the ground in sustaining a cessation of violence, underscore the importance of a UN mission.
As agreed with the Syrian authorities, a UN team including officers from the Department of Peacekeeping Operations led by Major-General Robert Mood of Norway has arrived in Syria to start technical preparations for the potential deployment of observers to monitor a cessation of armed violence and the full implementation of the six-point plan.
As we prepare for such a mission, we need to keep the unique character of the Syrian crisis in mind. The violence in Syria cannot be addressed through the means of a traditional observer mission interposed between two armies. The situation is fluid. There is no established frontline. Peace will not be consolidated without a credible political process. What we would need on the ground is a small and nimble United Nations presence. It would need to be deployed quickly with a broad and flexible mandate. Its freedom of movement throughout the country and security must be assured. It should engage all relevant parties. It should constantly and rapidly observe, establish and assess facts and conditions on the ground in an objective manner.
Mr. President,
A cessation of violence is an important beginning. But we must move quickly forward on a political process to meet the aspirations of the Syrian people. We must commence a comprehensive political dialogue between the Syrian government and the whole spectrum of the Syrian opposition. This must enable a Syrian-led political transition to a democratic, plural political system, in which citizens are equal regardless of their affiliations or ethnicities or beliefs..
It will be vital that the opposition can engage effectively in such a process, and I continue to place a high priority on engaging them. Progress has been made on improving inclusivity and method of work within the Syrian opposition, though more needs to be done.
Mr. President,
I am acutely aware of the grave situation on the ground. I am impatient for action on commitments made. I hope both Government and opposition understand what is at stake and seize this moment. Let us stop the killing and start serious political dialogue, for the wellbeing of the Syrian people.
In this regard, our collective effort will be critical. I ask those States with influence on the parties to use it now to help bring about a cessation of violence and support implementation of the six point plan in all its aspects. The unity of the international community behind one mediation effort offers the best chance to end the violence and help Syria steer its own course to a peaceful and democratic future.
The transformational winds blowing in the region today cannot be resisted, at least not for long. The only option is for leaders to adjust their sails and to embrace change and reform.
Thank you, Mr. President, and thank you, Secretary-General. »
Finalement le 5 avril une nouvelle Déclaration présidentielle du Conseil de sécurité a pris acte de la situation créée par l'acceptation du plan en 6 points par la Syrie :
« Le Conseil de sécurité rappelle ses déclarations présidentielles du 3 août 2011 et du 21 mars 2012 et sa déclaration à la presse du 1er mars 2012.
Le Conseil réaffirme son ferme attachement à la souveraineté, à l’indépendance, à l’unité et à l’intégrité territoriale de la Syrie, ainsi qu’aux buts et aux principes énoncés dans la Charte.
Le Conseil remercie l’Envoyé spécial conjoint de l’Organisation des Nations Unies et de la Ligue des États arabes, Kofi Annan, de l’exposé qu’il lui a fait le 2 avril 2012. Il note que le Gouvernement syrien s’est engagé le 25 mars 2012 à appliquer la proposition en six points de l’Envoyé.
Le Conseil demande au Gouvernement syrien d’honorer de toute urgence et de manière visible, comme il est convenu de le faire dans la communication qu’il a adressée à l’Envoyé le 1er avril, les engagements qu’il a pris a) de mettre fin aux mouvements de troupes en direction des agglomérations, b) de cesser de faire usage d’armes lourdes en ces lieux, et c) de commencer à retirer les troupes concentrées dans les agglomérations et aux alentours, et de s’acquitter intégralement de ces engagements d’ici au 10 avril 2012 au plus tard.
Le Conseil demande à toutes les parties, y compris l’opposition, de mettre fin à la violence armée sous toutes ses formes dans les 48 heures suivant la mise en œuvre par le Gouvernement syrien de l’intégralité des mesures énoncées aux points a), b) et c) ci-dessus. Il demande en outre à
l’opposition d’engager le dialogue avec l’Envoyé à cet égard.
Le Conseil souligne l’importance qu’il y a à mettre en place en Syrie un mécanisme de supervision efficace et crédible de l’Organisation des Nations Unies, chargé de surveiller la cessation de toutes les formes de violence armée par toutes les parties et la mise en œuvre de tous les aspects pertinents de la proposition en six points de l’Envoyé. Le Conseil prie le Secrétaire général de lui présenter des propositions concernant un tel mécanisme dès qu’il y aura lieu, à l’issue de consultations avec le Gouvernement syrien. Il est prêt à examiner ces propositions et à autoriser la mise en place d’un mécanisme de supervision efficace et impartial dès que toutes les parties auront mis fin à la violence sous toutes ses formes.
Le Conseil souligne l’importance fondamentale d’un règlement politique pacifique de la crise syrienne et lance de nouveau un appel urgent en faveur de la mise en œuvre complète et immédiate de tous les aspects de la proposition en six points de l’Envoyé. Il réaffirme son plein appui à cette proposition, qui vise à faire cesser immédiatement toutes violences et violations des droits de
l’homme, à offrir accès aux organisations humanitaires et à faciliter la transition politique dirigée par les Syriens vers un système politique démocratique et pluraliste, fondé sur l’égalité des citoyens quelles que soient leur appartenance politique ou ethnique ou leurs croyances, à la faveur notamment de l’ouverture d’un dialogue politique général entre le Gouvernement syrien et l’ensemble des forces d’opposition syriennes.
Le Conseil lance de nouveau un appel aux autorités syriennes pour qu’elles donnent immédiatement au personnel des organisations humanitaires plein accès en toute liberté à toutes les populations qui ont besoin d’assistance conformément au droit international et aux principes qui gouvernent la fourniture d’assistance humanitaire. Le Conseil demande à toutes les parties en
Syrie, en particulier aux autorités syriennes, de coopérer pleinement avec l’Organisation des Nations Unies et les organisations humanitaires concernées afin de faciliter l’acheminement de l’aide humanitaire. À cette fin, il demande à toutes les parties d’observer immédiatement une pause humanitaire quotidienne de deux heures comme prévu dans la proposition en six points de l’Envoyé.
Le Conseil prie l’Envoyé de le tenir informé de la cessation des violences dans les délais indiqués plus haut, et des progrès accomplis dans la mise en œuvre de l’intégralité de sa proposition en six points. Au vu de ces informations, il envisagera toutes autres mesures qu’il jugera appropriées. »
La Déclaration présidentielle du 21 mars 2012 était minimaliste, puisque les Etats membres du Conseil de sécurité n'étaient parvenus à se mettre d'accord qu'en limitant strictement l'objet de la décision à l'approbation de l'initiative conduite par M. Kofi Annan. L'acceptation par la Syrie du plan proposé par le représentant spécial a permis d'élargir substantiellement la base de consensus.
Après avoir tergiversé en demandant que l'opposition armée acceptât par écrit le plan en 6 points, voire son désarmement, le gouvernement syrien a effectivement appliqué la trêve le 12 avril face à la fermeté du Représentant spécial (voir sa lettre au Conseil de sécurité). Certes, le retour dans les casernes n'est pas véritablement amorcé, la situation humanitaire est catastrophique et, au demeurant, le cessez-le-feu n'est pas intégralement respecté. La journée du 13 a d'ailleurs été marquée par une certaine escalade des violences, y compris le recours aux armes lourdes (Homs). Pour M. Koni Annan il y a donc urgence... à progresser : la trêve ne tiendra pas si des observateurs internationaux ne sont pas envoyés sur place sans délai.
De son côté le Secrétariat général de l'ONU a annoncé qu'un premier groupe d'observateurs était prêt à partir pour la Syrie dans l'instant même où il y serait autorisé.
Or il y avait un consensus sur l'envoi de ces personnels et sur la nécessité d'adopter au préalable une résolution du Conseil de sécurité. Ce dernier était donc attendu après l'instauration de la trêve. Il a été au rendez-vous, enfin, puisqu'il est parvenu à adopter, à l'unanimité, la première résolution dans la crise syrienne et ce dès le 14 avril.
La création de la Mission préparatoire des observateurs de l'ONU : Résolution 2024 du 14 avril 2012
L'annonce de l'adoption de la Résolution a été un grand soulagement.
Même si la diplomatie russe a envoyé un signal positif avant le vote, cette issue favorable n'était pas assurée. En effet, la Russie est trop impliquée dans la crise syrienne pour que son abstention lors du vote soit envisageable. Elle ne saurait se mettre en retrait, comme elle l'a fait pour la Libye, ce qu'elle a regretté par la suite. Ainsi, ou bien elle acceptait le projet de résolution arrêté (mis en bleu) par les Occidentaux ou elle provoquait un nouvel échec du Conseil de sécurité. La résolution serait adoptée à l'unanimité ou serait rejetée.
Du côté des auteurs du projet la marge de concession était étroite. En effet, M. Kofi Annan avait clairement exprimé ce qu'il attendait des membres du Conseil. L'échec des observateurs arabes restait évidemment dans les mémoires. Il fallait un mandat « robuste » -selon l'expression employée par la diplomatie française- assurant le maximum de liberté d'action aux observateurs afin qu'ils pussent se rendre rapidement là où leur présence serait nécessaire. Pour faciliter une montée en puissance, dans les conditions optimales, d'un dispositif devant finalement comprendre 250 personnes l'envoi immédiat d'un premier groupe de 30 personnes était indispensable. La Résolution 2024 a uniquement pour objet de fournir le cadre de cette première action préliminaire. Une autre décision sera donc nécessaire pour la mise en place du dispositif principal.
Le projet de résolution a été présenté par les Etats-Unis, la France, le Royaume-Uni, le Maroc et la Colombie.
La version initiale mise en circulation le 12 avril était ainsi rédigée :
https://docs.google.com/document/d/1VWPXGlMfLP0lBXHJf-qMX684HF9ZwPlvccDPomGxdwY/edit?pli=1
Pour répondre aux critiques de la délégation russe une version amendée du projet de résolution a été mise en circulation :
"The Security Council,
PP1 Recalling its Presidential Statements of 3 August 2011, 21 March 2012 and 5 April 2012, and also recalling all relevant resolutions of the General Assembly,
PP2 Reaffirming its support to Joint Special Envoy for the United Nations and the League of Arab States, Kofi Annan, and his work, based on General Assembly resolution A/RES/66/253 of 16 February 2012 and relevant resolutions of the League of Arab States,
PP3. Reaffirming its strong commitment to the sovereignty, independence, unity and territorial integrity of Syria, and to the purposes and principles of the Charter,
PP4 [Condemning the widespread and gross violations of human rights and the use of force against civilians by the Syrian authorities, recalling that those responsible shall be held accountable, and expressing its profound regret at the death of many thousands of people in Syria,]
PP5 Noting the Syrian government’s commitment on 25 March 2012 to implement the six-point proposal of the Joint Special Envoy of the United Nations and the League of Arab States, and to implement urgently and visibly its commitments, as it agreed to do in its communication to the Envoy of 1 April, to (a) cease troop movements towards population centres, (b) cease all use of heavy weapons in such centres, and (c) begin pullback of military concentrations in and around population centres, and to implement these in their entirety by no later than 10 April 2012, and noting alsothe Syrian opposition’s expressed commitment to respect the cessation of violence, provided the government does so,
PP6 Noting the Envoy’s assessment that [the parties appeared to be observing a cessation of fire as of 12 April 2012 and that] the Syrian government had started to implement [some of] its commitments as outlined in (a), (b), and (c) above, and supporting the Envoy’s call for an immediate and visibly implementation by the Syrian government of its commitments in their entirety, as set forth in the Security Council’s Presidential Statement of 5 April 2012, so as to enable a sustained cessation of armed violence in all its forms by all parties,
1. Reaffirms its full support for all elements of the Envoy’s six-point proposal aimed at bringing an immediate end to all violence and human rights violations, securing humanitarian access and facilitating a Syrian-led political transition leading to a democratic, plural political system, in which citizens are equal regardless of their affiliations, ethnicities or beliefs, including through commencing a comprehensive political dialogue between the Syrian government and the whole spectrum of the Syrian opposition, reiterates its call for the urgent, comprehensive, and immediate implementation of all aspects of the Envoy’s six-point proposal [Annex 1];
2. [Demands/Calls upon] the Syrian government implement visibly its commitments in their entirety, as it agreed to do in its communication to the Envoy of 1 April, to (a) cease troop movements towards population centres, (b) cease all use of heavy weapons in such centres, and (c) begin pullback of military concentrations in and around population centres, and [stresses the importance of the withdrawal of all Syrian government troops and heavy weapons from population centres to their barracks to facilitate a sustained cessation of violence;]
3. [Demands/Calls upon] that all parties in Syria, [including the opposition,] immediately cease all armed violence in all its forms and [cease and desist from all arbitrary detentions, abductions, torture, and sexual violence];
4. Expresses its intention, subject to a sustained cessation of armed violence in all its forms by all parties, to establish immediately, after consultations with the Syrian government, a United Nations supervision mission in Syria to monitor such a cessation of violence and to monitor and support the full implementation of the Envoy’s six-point proposal, on the basis of a formal proposal from the Secretary-General, which the Security Council requests to receive by 16 April 2012;
5. [Demands/Calls upon] the Syrian government (a) facilitate the expeditious and unhindered deployment of the number of unarmed military observers, civilian personnel, and the capabilities required to fulfil the mandate as set out in paragraph 4, (b) ensure full, unimpeded, and immediate freedom of movement and access throughout Syria for all mission personnel as deemed necessary by the mission to carry out its mandate, (c) guarantee unobstructed communications both within the mission and between the mission and United Nations headquarters, (d) guarantee the mission’s ability to freely and privately interview and communicate with any individual, group of individuals or body in Syria, guaranteeing also not to punish, harass or retaliate against any person as a result of interaction with the mission;
6. [Demands/Calls upon] the parties guarantee the safety of the mission and other United Nations personnel without prejudice to the freedom of movement and access, and stresses that the primary responsibility in this regard lies with the Syrian authorities;
7. Decides to authorize an advance team of up to 30 unarmed military observers to liaise with the parties and to begin to report on the implementation of a full cessation of armed violence in all its forms by all parties, pending the deployment of the mission referred to in paragraph 4 and [demands/calls upon] that the Syrian government ensure the advance team is able to carry out its functions according to the terms set forth in paragraphs 5 and 6 above;
8. Requests the Secretary-General to report immediately to the Security Council any obstructions to the effective operation of the team, by any party, in connection with the provisions in paragraphs 5 and 6 above;
9. Reiterates its call for the Syrian authorities to allow immediate, full and unimpeded access of humanitarian personnel to all populations in need of assistance, in accordance with international law and guiding principles of humanitarian assistance and calls upon all parties in Syria, in particular the Syrian authorities, to cooperate fully with the United Nations and relevant humanitarian organizations to facilitate the provision of humanitarian assistance;
10. Requests the Secretary-General to report to the Council on the implementation of this resolution by April 19;
11. Expresses its intention to consider further steps in the event of non-implementation of relevant commitments;
12. Decides to remain seized of the matter.
Après avoir discuté point par point le projet de résolution présenté par les Etats-Unis et leurs alliés la Russie a brusquement changé de stratégie en faisant circuler son propre projet de résolution :
« The Security Council,
PP1 Recalling its Presidential Statements of 3 August 2011, 21 March 2012 and 5 April 2012, and also recalling all relevant resolutions of the General Assembly,
PP2 Reaffirming its support to Joint Special Envoy for the United Nations and the League of Arab States, Kofi Annan, and his work,
PP3. Reaffirming its strong commitment to the sovereignty, independence, unity and territorial integrity of Syria, and to the purposes and principles of the Charter,
PP4 Noting the Syrian government’s commitment on 25 March 2012 to implement the six-point proposal of the Joint Special Envoy of the United Nations and the League of Arab States, and to implement urgently and visibly its commitments, as it agreed to do in its communication to the Envoy of 1 April, and noting also the Syrian opposition’s expressed commitment to respect the cessation of violence, provided the government does so,
PP5 Noting the Envoy’s assessment that the parties appeared to be observing a cessation of fire as of 12 April 2012 and that the Syrian government had started to implement its commitments to (a) cease troop movements towards population centres, (b) cease all use of heavy weapons in such centres, and (c) begin pullback of military concentrations in and around population centres andsupporting the Envoy’s call for an immediate and visible implementation by the Syrian government of these commitments in their entirety,
1. Reaffirms its full support and calls for the urgent, comprehensive, and immediate implementation of all elements of the Envoy’s six-point proposal aimed at bringing an immediate end to all violence and human rights violations, securing humanitarian access and facilitating a Syrian-led political transition leading to a democratic, plural political system, in which citizens are equal regardless of their affiliations, ethnicities or beliefs, including through commencing a comprehensive political dialogue between the Syrian government and the whole spectrum of the Syrian opposition,
2. Calls upon the Syrian government to implement visibly its commitments in their entirety, as it agreed to do in its communication to the Envoy of 1 April,
3. Calls upon all parties in Syria, including the opposition, immediately cease all armed violence in all its forms;
4. Expresses its intention, subject to a sustained cessation of armed violence in all its forms by all parties, to establish immediately, after consultations with the Syrian government, a United Nations supervision mission in Syria and requests formal proposal thereon from the Secretary-General by 16 April 2012;
5. Decides to authorize an advance team of up to 30 unarmed military observers to liaise with the parties and to begin to report on the implementation of a full cessation of armed violence in all its forms by all parties, pending the deployment of the mission referred to in paragraph 4 and calls uponthe Syrian government and all other parties to ensure the advance team is able to carry out its functions;
6. Calls upon all parties, including opposition, to guarantee the safety of the advance team without prejudice to the freedom of movement and access, and stresses that the primary responsibility in this regard lies with the Syrian authorities;
7. Requests the Secretary-General to report immediately to the Security Council any obstructions to the effective operation of the team, by any party;
8. Requests the Secretary-General to report to the Council on the implementation of this resolution by April 19, 2012 ;
9. Decides to remain seized of the matter and consider further steps as appropriate;”
La Russie a justifié son initiative en expliquant que le projet occidental était excessivement compliqué et qu'il était préférable d'adopter rapidement un texte court. Or l'objectif commun, le seul légitime en cette circonstance, était de savoir répondre à la demande adressée aux membres du Conseil de sécurité par M. Kofi Annan. Ce dernier souhaitait pour accomplir sa tâche -que tous soutiennent sans restriction- que la mission des observateurs ait, dès les premiers jours, un mandat “robuste” inscrit dans un cadre clair et précis. Le projet russe a donc été catégoriquement rejeté.
En lisant la Résolution 2024 on gardera à l'esprit ce souci, finalement unanime, des membres du Conseil de sécurité d'apporter au représentant spécial tout l'appui nécessaire à la réussite de sa mission. En annexant son plan en six points à la Résolution le Conseil renforce encore l'autorité du médiateur.
“The Security Council,
Recalling its Presidential Statements of 3 August 2011, 21 March 2012 and 5 April 2012, and alsorecalling all relevant resolutions of the General Assembly,
Reaffirming its support to the Joint Special Envoy for the United Nations and the League of Arab States, Kofi Annan, and his work, following General Assembly resolution A/RES/66/253 of 16 February 2012 and relevant resolutions of the League of Arab States,
Reaffirming its strong commitment to the sovereignty, independence, unity and territorial integrity of Syria, and to the purposes and principles of the Charter,
Condemning the widespread violations of human rights by the Syrian authorities, as well as any human rights abuses by armed groups, recalling that those responsible shall be held accountable, and expressing its profound regret at the death of many thousands of people in Syria,
Noting the Syrian government’s commitment on 25 March 2012 to implement the six-point proposal of the Joint Special Envoy of the United Nations and the League of Arab States, and to implement urgently and visibly its commitments, as it agreed to do in its communication to the Envoy of 1 April 2012, to (a) cease troop movements towards population centres, (b) cease all use of heavy weapons in such centres, and (c) begin pullback of military concentrations in and around population centres, and to implement these in their entirety by no later than 10 April 2012, and noting also the Syrian opposition’s expressed commitment to respect the cessation of violence, provided the government does so,
Noting the Envoy’s assessment that, as of 12 April 2012, the parties appeared to be observing a cessation of fire and that the Syrian government had started to implement its commitments, andsupporting the Envoy’s call for an immediate and visible implementation by the Syrian government of all elements of the Envoy’s six-point proposal in their entirety to achieve a sustained cessation of armed violence in all its forms by all parties,
1. Reaffirms its full support for and calls for the urgent, comprehensive, and immediate implementation of all elements of the Envoy’s six-point proposal (annex) aimed at bringing an immediate end to all violence and human rights violations, securing humanitarian access and facilitating a Syrian-led political transition leading to a democratic, plural political system, in which citizens are equal regardless of their affiliations, ethnicities or beliefs, including through commencing a comprehensive political dialogue between the Syrian government and the whole spectrum of the Syrian opposition;
2. Calls upon the Syrian government to implement visibly its commitments in their entirety, as it agreed to do in its communication to the Envoy of 1 April 2012, to (a) cease troop movements towards population centres, (b) cease all use of heavy weapons in such centres, and (c) begin pullback of military concentrations in and around population centres;
3. Underlines the importance attached by the Envoy to the withdrawal of all Syrian government troops and heavy weapons from population centres to their barracks to facilitate a sustained cessation of violence;
4. Calls upon all parties in Syria, including the opposition, immediately to cease all armed violence in all its forms;
5. Expresses its intention, subject to a sustained cessation of armed violence in all its forms by all parties, to establish immediately, after consultations between the Secretary-General and the Syrian government, a United Nations supervision mission in Syria to monitor a cessation of armed violence in all its forms by all parties and relevant aspects of the Envoy’s six-point proposal, on the basis of a formal proposal from the Secretary-General, which the Security Council requests to receive not later than 18 April 2012;
6. Calls upon the Syrian government to ensure the effective operation of the mission, including its advance team, by: facilitating the expeditious and unhindered deployment of its personnel and capabilities as required to fulfil its mandate; ensuring its full, unimpeded, and immediate freedom of movement and access as necessary to fulfil its mandate; allowing its unobstructed communications; and allowing it to freely and privately communicate with individuals throughout Syria without retaliation against any person as a result of interaction with the mission;
7. Decides to authorize an advance team of up to 30 unarmed military observers to liaise with the parties and to begin to report on the implementation of a full cessation of armed violence in all its forms by all parties, pending the deployment of the mission referred to in paragraph 5 and calls uponthe Syrian government and all other parties to ensure that the advance team is able to carry out its functions according to the terms set forth in paragraph 6;
8. Calls upon the parties to guarantee the safety of the advance team without prejudice to its freedom of movement and access, and stresses that the primary responsibility in this regard lies with the Syrian authorities;
9. Requests the Secretary-General to report immediately to the Security Council any obstructions to the effective operation of the team by any party;
10. Reiterates its call for the Syrian authorities to allow immediate, full and unimpeded access of humanitarian personnel to all populations in need of assistance, in accordance with international law and guiding principles of humanitarian assistance and calls upon all parties in Syria, in particular the Syrian authorities, to cooperate fully with the United Nations and relevant humanitarian organizations to facilitate the provision of humanitarian assistance;
11. Requests the Secretary-General to report to the Council on the implementation of this resolution by 19 April 2012;
12. Expresses its intention to assess the implementation of this resolution and to consider further steps as appropriate;
13. Decides to remain seized of the matter.
Annex
Six-Point Proposal of the Joint Special Envoy of the United Nations and the League of Arab States
(1) commit to work with the Envoy in an inclusive Syrian-led political process to address the legitimate aspirations and concerns of the Syrian people, and, to this end, commit to appoint an empowered interlocutor when invited to do so by the Envoy;
(2) commit to stop the fighting and achieve urgently an effective United Nations supervised cessation of armed violence in all its forms by all parties to protect civilians and stabilize the country;
To this end, the Syrian government should immediately cease troop movements towards, and end the use of heavy weapons in, population centres, and begin pullback of military concentrations in and around population centres;
As these actions are being taken on the ground, the Syrian government should work with the Envoy to bring about a sustained cessation of armed violence in all its forms by all parties with an effective United Nations supervision mechanism. Similar commitments would be sought by the Envoy from the opposition and all relevant elements to stop the fighting and work with him to bring about a sustained cessation of armed violence in all its forms by all parties with an effective United Nations supervision mechanism;
(3) ensure timely provision of humanitarian assistance to all areas affected by the fighting, and to this end, as immediate steps, to accept and implement a daily two hour humanitarian pause and to coordinate exact time and modalities of the daily pause through an efficient mechanism, including at local level;
(4) intensify the pace and scale of release of arbitrarily detained persons, including especially vulnerable categories of persons, and persons involved in peaceful political activities, provide without delay through appropriate channels a list of all places in which such persons are being detained, immediately begin organizing access to such locations and through appropriate channels respond promptly to all written requests for information, access or release regarding such persons;
(5) ensure freedom of movement throughout the country for journalists and a non- discriminatory visa policy for them;
(6) respect freedom of association and the right to demonstrate peacefully as legally guaranteed."
La résistance manifestée par la Russie au cours de l'élaboration de la Résolution aura finalement conduit à expurger le texte de tout élément qui n'était pas indispensable à la mission des observateurs, mais ce faisant la délégation russe n'a pas affaibli ce texte, au contraire.
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Syrie, progression de la médiation confiée à Kofi Annan Weckel Philippe
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Syrie, initiative arabo-européenne au Conseil de sécuritéWeckel Philippe