[Senate Report 113-79]
[From the U.S. Government Publishing Office]
Calendar No. 147
113th Congress } { Report
1st Session } SENATE { 113-79
=======================================================================
SYRIA TRANSITION SUPPORT ACT OF 2013
_______
July 24, 2013.--Ordered to be printed
_______
Mr. Menendez, from the Committee on Foreign Relations,
submitted the following
R E P O R T
[To accompany S. 960]
The Committee on Foreign Relations, having had under
consideration the bill (S. 960) to foster stability in Syria,
and for other purposes, reports favorably thereon with
amendments, and recommends that the bill, as amended, do pass.
CONTENTS
Page
I. Purpose..........................................................1
II. Committee Action.................................................2
III. Discussion.......................................................3
IV. Cost Estimate....................................................6
V. Evaluation of Regulatory Impact..................................9
VI. Changes in Existing Law..........................................9
I. PURPOSE
The purpose of S. 960 is to plan for a post-Assad Syria by
authorizing a Syria Transition Fund to provide support in the
early transition period to enable an effective political
transition to a more democratic and inclusive political
structure and provide for initiatives that will improve the
security of the United States; provide for humanitarian
assistance for the Syrian people; provide limited lethal and
additional non-lethal assistance and training to vetted Syrian
groups; and deter the Assad regime's ability to perpetrate
violence and widespread human rights violations against the
people of Syria by authorizing sanctions on certain activities
including provision of arms and petroleum products to the Assad
regime; and for other purposes.
II. COMMITTEE ACTION
S. 960 was introduced by Senators Menendez and Corker on
May 15, 2013. On May 21, 2013, the committee considered S. 960
and ordered it reported, with amendments, by a roll call vote
of 15 to 3, with Senators Menendez, Boxer, Cardin, Casey,
Shaheen, Coons, Durbin, Kaine, Corker, Risch, Rubio, Johnson,
Flake, McCain, and Barrasso voting in favor, and Senators
Udall, Murphy, and Paul opposed.
The committee took the following action with regard to
amendments:
A Manager's Package of Amendments was offered to the
introduced bill, including proposed amendments from
Senators Menendez, Corker, Casey, Rubio, Paul, Cardin,
McCain, Kaine, Shaheen, Coons, and Udall, and was
agreed by voice vote. The subject matter areas covered
by the Manager's Package of Amendments included, among
other items, provisions clarifying that securing,
dismantling and destruction of inherited weapons of
mass destruction are non-proliferation activities
supported by the Act; clarifying that the United States
should support humanitarian assistance through U.N.
voluntary agencies and support bilateral assistance to
countries hosting refugees; providing a more detailed
description of the ground conditions that should be
considered prior to branding assistance as being from
the American people; defining technical assistance for
phased disarmament as one of the authorized purposes of
Transition Fund Assistance; clarifying that rule of law
assistance may be provided prior to a transition;
authorizing use of the Transition Fund to provide
technical assistance, capacity building, and training
to develop democratically-oriented political parties
and civil society organizations; authorizing the use of
the Transition Fund to support planning and diplomacy
for post conflict stabilization; requiring
identification of efforts undertaken or planned to
leverage other donor assistance in an annual reporting
requirement; adding language calling on the
Administration to work to end Russian financial and
military support for the Assad regime; amending the
sanctions provisions of the bill including, among other
things, to include permissive rather than mandatory
banking sanctions; altering the authorization for
lethal assistance to vetted units and emphasizing that
units, entities, and senior leaders must be vetted;
requiring a 15-day Congressional notification prior to
provision of lethal assistance, including a
justification of why the aid is needed, certification
of substantial support from international allies, and a
strategy for securing weapons after the secession of
violence; authorizing training on chain of custody for
weapons provided and requiring certification that those
receiving arms can comply with chain of custody
criteria; requiring the President to certify that the
U.S. has consulted with regional allies if any anti-
aircraft weapons are provided and requiring submission
of a strategy to implement an accelerated global
program to secure or eliminate anti-aircraft systems of
proliferation risk; requiring the immediate termination
of the authorization for the provision of lethal
assistance to any unit or entity if the U.S. government
receives substantial evidence that the unit or entity
has used chemical weapons; and requiring the immediate
termination of the authorization for the provision of
lethal assistance to any unit or entity if the U.S.
government receives substantial evidence that the unit
or entity has sold or illegally transferred defense
articles or services received from the United States.
An amendment by Senator Casey and a second degree to that
amendment also by Senator Casey was agreed to by voice
vote. These amendments express the sense of the Senate
condemning the violence against the Syrian people by
the regime of President Bashar al-Assad; supporting
innocent civilians including through humanitarian
assistance and welcoming the pledges of international
donors to meet the needs of the victims; affirming the
neutrality of the medical profession; supporting
democratically oriented groups, and a stable
transitional government that is committed to open and
transparent governance and respect for human rights;
promoting stability and the rule of law; and
emphasizing the need to fully implement existing
sanctions,
An amendment by Senator Paul to add language stating that
the Act is not an authorization of the use of military
force by the United States Armed Forces and stating
that nothing in the Authorization for Use of Military
Force (Public Law 107-40) shall be construed as
authorizing the use of military force in Syria failed
by a roll call vote of 2 to 15, with Senators Paul and
Udall voting in favor, and Senators Menendez, Boxer,
Cardin, Casey, Shaheen, Coons, Murphy, Kaine, Corker,
Risch, Johnson, Rubio, Flake, McCain, and Barrasso
opposed. Senator Durbin did not vote. In discussion
prior to the vote, the Chairman noted, among other
things, that section 5 of the introduced bill
specifically states that nothing in the act shall be
construed as providing authorization for the use of
military force by the U.S. armed forces.
An amendment by Senator Udall to amend Title V of the bill
to further limit, including by reference to the United
States Munitions List, the types of support that could
be provided to the vetted opposition in Syria and
adding additional chain of custody requirements failed
by a roll call vote of 4 to 14, with Senators Udall,
Paul, Durbin, and Murphy voting in favor, and Senators
Menendez, Boxer, Cardin, Casey, Shaheen, Coons, Kaine,
Corker, Risch, Rubio, Johnson, Flake, McCain, and
Barrasso opposed.
An amendment by Senator Paul to strike Title V of the bill,
which provides authorization to provide lethal and
increased non-lethal assistance to vetted elements of
the Syrian opposition, failed by a roll call vote of 2
to 15, with Senators Paul and Murphy voting in favor,
and Senators Menendez, Boxer, Cardin, Casey, Shaheen,
Coons, Udall, Kaine, Corker, Risch, Rubio, Johnson,
Flake, McCain, and Barrasso opposed. Senator Durbin did
not vote.
III. DISCUSSION
The situation in Syria is critical for Syrians, for the
region, and for the U.S. efforts to counter extremism. More
than 93,000 Syrians have died in the last two years, and the
number of Syrian refugees now tops 1.5 million. The conflict
could destabilize the region, spill over into Lebanon and Iraq,
and cause stability and governance problems in Jordan. In
addition, extremists sponsored by the Islamic Republic of Iran,
including the Iranian Revolutionary Guard Corps and Hizballah,
and groups with direct links to al-Qaeda (including the al
Nusrah Front) are exploiting the conflict and gaining ground in
a state with significant amounts of advanced conventional
weapons and large chemical weapons stockpiles.
The bill provides authority to the President to provide
arms and other lethal assistance, as well as military training
and non-lethal supplies to the Syrian armed opposition. Only
units and entities that have gone through a thorough,
statutorily-required vetting process by the U.S. government
would be eligible for such assistance. This vetting process
would assess whether they meet certain detailed and specific
criteria on human rights and terrorism, as well as whether they
demonstrate clear support for civilian rule, cooperate on
international counterterrorism and non-proliferation efforts,
and are committed to regional stability, among other things.
The legislation also bars the provision of anti-aircraft
defensive systems, but provides a presidential waiver to permit
the distribution of such systems under strict limitations,
including certifications regarding the vital national security
interest in providing such systems and the disposition of such
systems, among other requirements. The assistance authorized by
this section must be terminated if the units or entities
receiving such assistance are no longer in compliance with the
vetting criteria set out in the legislation or if the United
States government receives substantial evidence that such
groups have used chemical weapons. The bill also requires a
report from the President to Congress every 90 days on the
provision of lethal and increased non-lethal support to the
Syrian opposition. Among other things, the report will include
specific details about the support provided, assessments of the
opposition's capacity and capabilities, and adherence of
supported groups to chain of custody requirements.
The purposes of assistance authorized by the bill are to
support transition from the current regime to a just and
democratic state; to assist the people of Syria in meeting
basic needs; to provide political and economic support to
neighboring countries hosting refugees and international
organizations providing humanitarian relief; to oppose the
unlawful use of violence against civilians; to use a broad
array of instruments of national power to expedite a negotiated
solution, including the departure of Bashar al-Assad; to
recognize the National Coalition for Syrian Revolutionary and
Opposition Forces (SOC) as a legitimate representative of the
Syrian people; to engage with opposition groups that reflect
the United States' interests and values; to promote the
territorial integrity of Syria and support a post-Assad
government in providing security, services, and political and
religious rights to its people; to provide foreign assistance,
defense articles, defense services, and training to vetted
entities; to closely coordinate with key partners on
contingency planning to ensure partners are prepared for an
appropriate response to the evolving situation in Syria; to
support efforts to identify and document those who target
civilian and vulnerable populations; to support programs that
provide scholars, scientists, and students in Syria with
opportunities outside Syria; and to ensure a stable and
appropriate political transition in Syria.
The bill provides authority for humanitarian assistance in
order to ensure the U.S. government may provide humanitarian
aid to the Syrian people notwithstanding other provisions of
law that restrict the provision of U.S. economic or other non-
military assistance to Syria. New or additional funds are not
authorized. Instead, the authorization lifts restrictions on
the use of funds for humanitarian purposes that might otherwise
have been restricted. The bill provides direction that the
President should instruct the U.S. representatives to the
United Nations and other appropriate international
organizations to support humanitarian and development
assistance for the people of Syria in order to accomplish the
purposes of assistance set out in the bill. The bill provides
direction that the President should support bilateral refugee
assistance programs in countries, including Iraq, Jordan,
Turkey, Egypt, and Lebanon, which have experienced an influx of
refugees from Syria. The bill also requires a report on the
strategy to communicate to the Syrian people about the
assistance provided by the U.S. government.
The bill authorizes a $250 million transition fund each
year through Fiscal Year 2015, drawn from funds otherwise
appropriated for the support of political and economic
transition in the Middle East and North Africa. The programs
for which the fund is authorized to be used are: security
sector support, support for regional stability, technical
assistance for phased disarmament, transitional justice and
conflict resolution, technical assistance to promote democracy
and the democratic institutions, technical assistance to
support economic revitalization, technical assistance for basic
services to the people of Syria, collection of evidence of
unlawful activities targeting civilian populations, and
planning for post-conflict stabilization. The bill also
provides that up to $100 million of the transition funds may be
used for nonproliferation and export control purposes. The bill
requires an initial six-month and an annual report on the use
of transition funds, including specific details on the use of
such funds and performance benchmarks and metrics. The bill
also provides for the lifting of sanctions on Syria under
specific, defined criteria, once Bashar al-Assad is no longer
the leader of Syria and a transitional government meeting
specific requirements is in place. The bill requires the
Secretary of State to work to establish an international
consensus on the transition and post-transition government in
Syria by working with Russia to, among other things, end its
financial and military support for the regime, working with the
Friends of Syria group to isolate terrorists and extremists,
and working to eliminate support for the Syrian regime by the
Iranian Government, to potentially include a ban on commercial
flights between Iran and Syria.
The bill provides for targeted sanctions on arms and
petroleum and petroleum products to the Assad regime.
Specifically, the President is required to impose from a list
of options two or more of the specified sanctions with respect
to any person (other than a foreign financial institution) that
the President determines has knowingly participated in or
facilitated a significant transaction related to the sale,
transfer, or transportation of defense articles (including
surface-to-air and surface-to-surface missile systems including
any S300 system and the Yakhont system), defense services, or
military training to the Assad regime of Syria or any successor
regime in Syria that the President determines is not a
legitimate transitional or replacement government. The
President is required to impose three or more of the specified
sanctions with respect to any person (other than a foreign
financial institution) that the President determines has
knowingly participated in or facilitated a significant
transaction related to the sale or transfer of petroleum or
petroleum products to the Assad regime of Syria or any
successor regime in Syria that the President determines is not
a legitimate transitional or replacement government. A
humanitarian exception is included with respect to oil sales
sanctions. The sanctions options available are restrictions on
Export-Import Bank assistance, U.S. government procurement,
U.S. government arms exports, and dual-use exports, as well as
the blocking of assets and denial of visas. In addition, the
President is authorized to impose specific sanctions on foreign
financial institutions that knowingly conduct a significant
transaction related to either arms or oil sales. The bill
provides the President with the ability to waive any sanctions
provided for in the bill with respect to a person or category
of persons for a renewable six month period, based on a
certification that such a waiver is in the vital national
security interests of the United States. The bill also provides
for amendments to allow for sanctions removal once a
transitional government is in place and certain criteria have
been met.
The bill requires the administration to work with and
report to Congress on a number of issues including a broad
strategy on Syria working through the international community
and Russia to reach a political settlement.
IV. COST ESTIMATE
In accordance with Rule XXVI, paragraph 11(a) of the
Standing Rules of the Senate, the committee provides this
estimate of the costs of this legislation prepared by the
Congressional Budget Office.
United States Congress,
Congressional Budget Office,
Washington, DC, June 26, 2013.
Hon. Robert Menendez,
Chairman, Committee on Foreign Relations,
U.S. Senate, Washington, DC.
Dear Mr. Chairman: The Congressional Budget Office has
prepared the enclosed cost estimate for S. 960, the Syria
Transition Support Act of 2013.
If you wish further details on this estimate, we will be
pleased to provide them. The CBO staff contact is Sunita
D'Monte.
Sincerely,
Douglas W. Elmendorf
Enclosure.
Syria Transition Support Act of 2013
Summary: S. 960 would authorize assistance for the Syrian
people and opposition groups. CBO estimates that implementing
the bill would have discretionary costs of $3.9 billion over
the 2013-2018 period, assuming appropriation of the estimated
amounts.
Pay-as-you-go procedures apply to this legislation because
it would affect direct spending and revenues; however, CBO
estimates those effects would not be significant.
S. 960 would impose intergovernmental and private-sector
mandates as defined in the Unfunded Mandates Reform Act (UMRA)
by expanding existing prohibitions on transactions with the
Assad regime in Syria, or any successor regime that is
determined to be an illegitimate or replacement government. CBO
estimates that the costs of the intergovernmental mandates
would fall well below the annual threshold established in UMRA
($75 million in 2013, adjusted annually for inflation) while we
estimate that the costs to the private sector would probably be
above the annual threshold established by UMRA ($150 million in
2013, adjusted annually for inflation).
Estimated Cost to the Federal Government: The estimated
budgetary impact of S. 960 is shown in the following table. The
costs of this legislation fall within budget functions 150
(international affairs), 370 (commerce and housing credit), and
800 (general government).
Changes in Spending Due to S. 960
By Fiscal Year, in Millions of Dollars
----------------------------------------------------------------------------------------------------------------
2013 2014 2015 2016 2017 2018 2013-2018
----------------------------------------------------------------------------------------------------------------
Spending Subject to Appropriation
Humanitarian Assistance
Estimated Authorization Level................ 0 900 900 900 900 900 4,500
Estimated Outlays............................ 0 361 563 707 801 824 3,256
Syria Transition Fund
Estimated Authorization Level................ 250 250 250 0 0 0 750
Estimated Outlays............................ 13 88 150 183 120 65 619
Other Provisions
Estimated Authorization Level................ * 1 1 1 1 1 5
Estimated Outlays............................ * 1 1 1 1 1 5
Total
Estimated Authorization Level................ 250 1,151 1,151 901 901 901 5,255
Estimated Outlays............................ 13 450 714 891 922 890 3,880
----------------------------------------------------------------------------------------------------------------
Note: * = less than $500,000.
Basis of Estimate: For the purposes of this estimate, CBO
assumes S. 960 would be enacted in fiscal year 2013, that the
estimated authorizations will be appropriated before the end of
2013 and near the start of each following fiscal year, and that
outlays will follow historical spending patterns for similar
and existing programs.
Spending Subject to Appropriation: S. 960 would authorize
assistance for the Syrian people and opposition groups working
to bring down the government of Bashar-al-Assad. CBO estimates
that implementing the bill would require additional
appropriations of about $5.3 billion over the 2013-2018 period
and have discretionary costs of $3.9 billion over that period,
assuming appropriation of those estimated amounts (the
remainder would be spent after 2018).
Humanitarian Assistance: Title II would authorize economic
and other nonmilitary assistance for the humanitarian needs of
the Syrian people. In the first nine months of fiscal year
2013, the United States obligated about $695 million in
humanitarian assistance. That assistance is being provided
primarily through international organizations such as the World
Food Program and other U.N. entities, as well as
nongovernmental organizations. Based on assistance provided to
date, CBO estimates that additional authorizations of $900
million each year would be required over the 2014-2018 period
and that implementing that assistance would have discretionary
costs of almost $3.3 billion over the 2014-2018 period,
assuming appropriation of the necessary amounts.
Syria Transition Fund: Section 301 would authorize the
appropriation of up to $250 million each year over the 2013-
2015 period for a Syria Transition Fund. It also would
authorize the Department of Defense and other federal agencies
to transfer certain amounts to the transition fund. The total
amount transferred could not exceed $250 million in any year.
The fund's purpose would be to support a transition to a more
democratic political structure and to enhance the security of
the Syrian people and the United States and its allies.
Assuming the appropriation of $250 million each year over the
2013-2015 period, CBO estimates that implementing assistance
through the fund would have discretionary costs of $619 million
over the 2013-2018 period. CBO cannot estimate whether or to
what extent the transfer authority would be used.
Military Assistance: Section 501 would authorize military
support (except for anti-aircraft defensive systems) through
2015 to certain elements of the Syrian opposition. The
Administration recently announced that the United States would
begin providing military assistance--such as small arms and
ammunition--to opposition forces. As yet, it is unclear under
what authorities and to what extent that assistance will be
provided and whether the Administration would use the authority
under the bill to augment that planned assistance. Therefore,
this estimate does not include any additional authorizations
for military assistance.
Other Provisions: Title IV would require the President to
impose sanctions on persons who provide petroleum, petroleum
products, defense articles, or military training to the Syrian
regime and prohibit or restrict the use of certain bank
accounts by foreign financial institutions that facilitate such
transactions. The sanctions would include prohibiting
assistance through the Export-Import Bank, banning procurement
by the U.S. government, prohibiting exports of U.S. arms and
dual-use technology, blocking assets, and denying U.S. visas or
entry into the United States. Based on information from
agencies that would implement those sanctions, CBO estimates
that implementing those provisions would impose an additional
administrative burden on those agencies. The denial of visas
also would have insignificant effects on direct spending and
revenues (discussed below).
In addition, several provisions of the bill would require
the President or the Secretary of State to submit periodic
reports or briefings to the Congress. In total, CBO estimates
that implementing those provisions would have discretionary
costs of about $5 million over the 2013-2018 period, assuming
appropriation of the estimated amounts.
Direct Spending and Revenues: Sanctions required under S.
960 would probably increase the number of people who would be
denied a visa by the Secretary of State. Most visa fees are
retained by the department and spent without further
appropriation, but some fees are deposited in the Treasury as
revenues. CBO estimates that implementing those provisions
would affect very few people and, thus, have an insignificant
budgetary effect.
Pay-As-You-Go Considerations: The Statutory Pay-As-You-Go
Act of 2010 establishes budget-reporting and enforcement
procedures for legislation affecting direct spending or
revenues. CBO estimates that enacting S. 960 would have a
negligible effect on direct spending and revenues for each
year.
Intergovernmental and Private-Sector Impact: The bill would
impose mandates, as defined in UMRA, on both public and private
entities by expanding existing prohibitions on transactions
with the Assad regime in Syria, or any successor regime that is
determined to be an illegitimate or replacement government, and
by increasing the number of entities responsible for complying
with those prohibitions.
Individuals and entities engaged in transactions under
export license agreements with foreign entities would be
required to terminate such transactions or agreements based on
new requirements outlined in the legislation. While CBO expects
that few public entities would be affected by the sanction
provisions, information from the Nuclear Regulatory Commission,
the Department of Commerce, and current trade data suggests
that a large number of private-sector entities would be
affected. In 2012, the Department of Commerce approved more
than 1,300 licenses for items worth almost $1 billion, which
could be terminated upon implementation of sanctions in the
bill.
CBO estimates that the costs of the intergovernmental
mandates would fall well below the threshold established in
UMRA ($75 million in 2013, adjusted annually for inflation).
Based on the potential value of existing private-sector
transactions and the number of entities that could be
sanctioned, CBO estimates that the cost of the private-sector
mandates would probably be above the annual threshold
established by UMRA ($150 million in 2013, adjusted annually
for inflation).
Estimate Prepared by: Federal Costs: Sunita D'Monte, Impact
on State, Local, and Tribal Governments: J'nell L. Blanco,
Impact on the Private Sector: Marin Burnett.
Estimate Approved by: Theresa Gullo, Deputy Assistant
Director for Budget Analysis.
V. EVALUATION OF REGULATORY IMPACT
Pursuant to Rule XXVI, paragraph 11(b) of the Standing
Rules of the Senate, the committee has determined that there is
no regulatory impact as a result of this legislation.
VI. CHANGES IN EXISTING LAW
In compliance with Rule XXVI, paragraph 12 of the Standing
Rules of the Senate, changes in existing law made by the bill,
as reported, are shown as follows (existing law proposed to be
omitted is enclosed in black brackets, new matter is printed in
italic, existing law in which no change is proposed is shown in
roman).
U.S. CODE
Syria Accountability and Lebanese Sovereignty
Restoration Act of 2003
(Public Law 108-175)
* * * * * * *
SEC. 5. PENALTIES AND AUTHORIZATION.
(a) Penalties.--Until the President makes the determination
that Syria meets all the requirements described in paragraphs
(1) through (4) of subsection (d) and certifies such
determination to Congress in accordance with such subsection--
(1) the President shall prohibit the export to Syria
of any item, including the issuance of a license for
the export of any item, on the United States Munitions
List or Commerce Control List of dual-use items in the
Export Administration Regulations (15 CFR part 730 et
seq.); and
(2) the President shall impose two or more of the
following sanctions:
(A) Prohibit the export of products of the
United States (other than food and medicine) to
Syria.
(B) Prohibit United States businesses from
investing or operating in Syria.
(C) Restrict Syrian diplomats in Washington,
D.C., and at the United Nations in New York
City, to travel only within a 25-mile radius of
Washington, D.C., or the United Nations
headquarters building, respectively.
(D) Prohibit aircraft of any air carrier
owned or controlled by Syria to take off from,
land in, or overfly the United States.
(E) Reduce United States diplomatic contacts
with Syria (other than those contacts required
to protect United States interests or carry out
the purposes of this Act).
(F) Block transactions in any property in
which the Government of Syria has any interest,
by any person, or with respect to any property,
subject to the jurisdiction of the United
States.
(b) Waiver.--The President may waive the application of
subsection (a)(1), (a)(2), or both if the President determines
that it is in the national security interest of the United
States to do so and submits to the appropriate congressional
committees a report containing the reasons for the
determination.
(c) Authority To Provide Assistance To Syria.--If the
President--
(1)(A) makes the determination that Syria meets the
requirements described in [paragraphs (1) through (4)
of subsection (d)] subparagraphs (A) through (D) of
paragraph (1) of subsection (d) and certifies such
determination to Congress in accordance with such
subsection;
[(2)](B) determines that substantial progress has
been made both in negotiations aimed at achieving a
peace agreement between Israel and Syria and in
negotiations aimed at achieving a peace agreement
between Israel and Lebanon; and
[(3)](C) determines that the Government of Syria is
strictly respecting the sovereignty, territorial
integrity, unity, and political independence of Lebanon
under the sole and exclusive authority of the
Government of Lebanon through the Lebanese army
throughout Lebanon, as required under paragraph (4) of
United Nations Security Council Resolution 520
(1982)[,]; or
(2) makes the determination that the Government of
Syria meets the requirements described in paragraph (2)
of such subsection and certifies such determination to
Congress in accordance with such subsection,
then the President is authorized to provide assistance
to Syria under chapter 1 of part I of the Foreign
Assistance Act of 1961 (relating to development
assistance).
(d) Certification.--A certification under this subsection
is a certification transmitted to the appropriate congressional
committees of a determination made by the President that--
(1)(A) the Government of Syria has ceased providing
support for international terrorist groups and does not
allow terrorist groups, such as Hamas, Hizballah,
Palestinian Islamic Jihad, the Popular Front for the
Liberation of Palestine, and the Popular Front for the
Liberation of Palestine--General Command to maintain
facilities in territory under Syrian control;
[(2)](B) the Government of Syria ended its occupation
of Lebanon described in section 2(7) of this Act;
[(3)](C) the Government of Syria has ceased the
development and deployment of medium- and long-range
surface-to-surface ballistic missiles, is not pursuing
or engaged in the research, development, acquisition,
production, transfer, or deployment of biological,
chemical, or nuclear weapons, has provided credible
assurances that such behavior will not be undertaken in
the future, and has agreed to allow United Nations and
other international observers to verify such actions
and assurances; and
[(4)](D) the Government of Syria has ceased all
support for, and facilitation of, all terrorist
activities inside of Iraq, including preventing the use
of territory under its control by any means whatsoever
to support those engaged in terrorist activities inside
of Iraq[.]; or
(2)(A) Bashar al-Assad is no longer the leader of
Syria; and
(B) the Government of Syria has ceased its campaign
of violence against the people of Syria and begun the
transition to a representative and inclusive government
that is demonstrably committed to the principles of--
(i) protecting human rights, expanding
political participation, and providing
religious freedom to all Syrians, irrespective
of, religion, ethnicity, or gender;
(ii) supporting the rule of law;
(iii) rejecting terrorism and extremist
ideologies;
(iv) subordinating the military to civilian
authority;
(v) protecting the Syrian population against
sectarian violence and reprisals;
(vi) cooperating with international
counterterrorism and nonproliferation efforts;
(vii) supporting regional stability and
avoiding interference in the affairs of
neighboring countries;
(viii) establishing a strong justice system
and ensuring accountability for conflict-
related crimes; and
(ix) recognizing the Golan Heights
``Separation of Forces Agreement Between Israel
And Syria,'' signed on May 31, 1974, and the
related protocol regarding United Nations
Disengagement Observer Force (UNDOF) functions.