30 ноября с.г. в Женеве под эгидой ООН стартует четвертая по счету встреча т.н. Конституционного комитета Сирии, мандат которого нацелен на продвижение политического процесса в стране и подготовку новой сирийской конституции.
Конституционный комитет был сформирован год назад и его успехи в реализации поставленных задач следует оценивать со сдержанным оптимизмом. С учетом имеющихся кардинальных противоречий между официальным Дамаском и оппозиционными группами сам факт функционирования этого органа уже следует оценивать в качестве успеха. Особенно на фоне сохраняющейся напряженности и угрозы нового всплеска гражданского противостояния, в первую очередь в Идлибе.
В этом контексте от нового заседания Конституционного комитета в начале декабря не ждут прорывных решений. Сам факт участия всех сторон в диалоге уже воспринимается как ощутимый прогресс, поскольку позволяет выстраивать доверительные отношения и позитивное взаимодействие между различными его участниками.
Думается, в условиях экономического кризиса, гуманитарных и продовольственных проблем и дополнительного негативного фактора пандемии все стороны переговоров естественным образом стремятся к некоему объединению усилий на почве противостояния этим вызовам, которые затрагивают все слои сирийского общества.
Соответственно, на переговорах Конституционного комитета сегодня доминируют насущные проблемы — гуманитарная и экономическая повестка и права различных уязвимых групп населения, включая женщин, детей и внутренне перемещенных лиц и беженцев. На первый план выходит согласование программ и проектов по репатриации, обеспечения личной безопасности граждан и их доступа к базовым социальным услугам. Участники переговоров видимо осознают, что без прорывного решения этих важных задач усилия по конституционного реформированию будут затрачены впустую. Подготовка новой конституционной реформы не может вестись в вакууме, отрыве от реальных преобразований в сирийском обществе в плане защиты и обеспечения прав уязвимых слоев. Проведение такой реформы не может стать успешной, если в нее не будут вовлечены представители гражданского общества.
Не способствует прогрессу на политическом треке и военная обстановка. По оценкам Совета Безопасности ООН, уровень насилия в Сирии в текущем году действительно ниже, чем в 2019 г. Этого удалось добиться прежде всего благодаря установлению на национальном уровне режима прекращения огня по итогам подписанного в марте с.г. российско-турецкого соглашения и возвращения в итоге 250 тысяч беженцев в Идлиб и западную часть Алеппо. Несмотря на это, тем не менее, мир в Сирии остается весьма и весьма хрупким. Противостояние продолжается, хотя и не в таком масштабе. Только за ноябрь с.г. в результате обстрелов и вооруженных атак погибло 8 и ранено 15 гражданских лиц, а также гуманитарный персонал.
Очевидно, замедляет прогресс на политическом треке и обостряющаяся гуманитарная обстановка. Западные страны в частности винят в этом то обстоятельство, что в текущем году под нажимом Дамаска и его союзников через ООН были проведены решения о закрытии большей части гуманитарных коридоров из соседней Турции. Делалось это разумеется в целях укрепления территориальной целостности и централизованной координации всех гуманитарных поставок доноров через официальный Дамаск в соответствии с международными гуманитарными принципами. Однако привело на деле и к другому необратимому процессу – поступление гуманитарной помощи в страну после этого решения объективно замедлилось. При этом в срочном продовольственном содействии внутри Сирии, включая контролируемые вооруженными формированиями территории Идлиба, нуждается 9.3 млн. человек.
Также следует иметь в виду, что острая гуманитарная проблема сохраняется в Сирии точечно, в лагерях беженцев. В частности это касается лагеря Аль Холь (64 тысячи беженцев) в курдском анклаве на северо-востоке Сирии и лагеря Рукбан (12 тысяч беженцев) на сирийско-иорданской границе. Решение проблемы беженцев в лагерях на сирийской территории – составная часть политической проблемы – и без их скорейшего урегулирования будет сложно построить доверительный политический диалог.
Не способствуют возобновлению полноценного и открытого диалога в рамках Конституционного комитета и целый ряд дополнительных обстоятельств. Дамаск требует окончательного вывода с территории страны остающегося там незначительного американского военного присутствия и считает это обстоятельство угрозой территориальной целостности и суверенитета страны. С другой стороны, оппозицию волнует проблема политзаключенных. Дамаск не намерен их отпускать, поскольку квалифицирует их как преступников, а оппозиция усматривает в этом важное предварительное условие для восстановления доверия.
С учетом имеющихся обстоятельств, даже сам факт поддержания работы Конституционного комитета на регулярной основе уже можно считать важным достижением. В то же время, мандат этого органа завершается весной 2021 года, когда в Сирии пройдут анонсированные ранее президентсткие выборы. Главной миссией Конституционного комитета является подготовка и проведения открытых и транспарентных президентских выборов в Сирии под эгидой ООН весной 2021 году. Для этого проект новой конституции должен быть согласован и выставлен на общенациональный референдум до выборов. Затем по новой конституции должны состояться сами президентские выборы — под полным контролем и при мониторинге со стороны ООН. По мысли западных стран, если Конституционный комитет не договорится и не сможет предложить новую версию основного закона до президентских выборов, его миссию можно считать провальной. Сирийское правительство между тем призывает не увязывать президентские выборы-2021 и работу Конституционного комитета по новой конституции, полагая что последняя может вступить в силу в стране уже после президентских выборов в следующем году.
Резюмируя, дальнейшее развитие политических процессов в Сирии возможно по нескольким сценариям. Наиболее возможным является следующий. Как известно, в июле с.г. в Сирии прошли парламентские выборы, которые считались своего рода репетицией президентской гонки. Там предсказуемо победила правящая партия Баас, хотя и при минимальной явке в 33%. Поэтому не сомнений что президентские выборы будут проведены по такому же сценарию, а работа Конституционного комитета будет и далее торпедироваться Дамаском исходя из этих соображений. В итоге с большой долей вероятности новые президентские выборы в Сирии не будут официально признаны западным сообществом, и дальнейшее продвижение по пути политического реформирования будет сильно затруднено, а работа Конституционного комитета потеряет свой первоначальный смысл. Есть еще вторая, менее реализуемая опция, при которой Дамаск мог бы допустить некий формальный мониторинг президентских выборов со стороны ООН – чтобы обеспечить их международную легитимность и признание. Но при этом очевидно, на такой шаг Б.Асад мог бы пойти при почти стопроцентной уверенности в своей победе и отсутствии сильных альтернативных кандидатов. Также ясно, что при таком сценарии Дамаск все равно не пойдет на переписывание нынешней конституции под диктовку оппозиции и как крайний вариант допустит возможность некоего временного, промежуточного акта, который мог бы регулировать выборы под эгидой ООН и закрепить некие базовые конституционные принципы. В любом случае, предстоящая в начале декабря четвертая и намеченная на начало 2021 года пятая сессии Конституционного комитета Сирии обещают быть решающими для понимания будущего сирийского политического процесса.
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POST QUERY:
POST QUERY RESULTS