Proposal for a COUNCIL DECISION terminating the partial suspension of the Cooperation Agreement between the European Economic Community and the Syrian Arab Republic and repealing Decision 2011/523/EU
Date: 2026-04-20
Institutions: Directorate-General for Trade and Economic Security, European Commission
Subjects: Syria, cooperation agreement (EU), cooperation policy

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   EUROPEAN COMMISSION  Brussels, 20.4.2026  COM(2026) 169 final 2026/0093 (NLE)  Proposal for a COUNCIL DECISION terminating the partial suspension of the Cooperation Agreement between the European Economic Community and the Syrian Arab Republic and repealing Decision 2011/523/EU   
 
EXPLANATORY MEMORANDUM 

1. 

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CONTEXT OF THE PROPOSAL 

Reasons for and objectives of the proposal 

On  2  September  2011,  the  Council  adopted  Decision  2011/522/CFSP  amending  Decision 
2011/273/CFSP  concerning  restrictive  measures  against  Syria.  That  decision  prohibited  the 
purchase,  import  or  transport  from  Syria  of  crude  oil  and  petroleum  products  following  the 
brutal  campaign  waged  by  Bashar  al-Assad  and  his  regime  against  their  own  people.  The 
prohibition  had  been  extended  to  oil  and  petroleum  products  as  it  was  the  trade  of  those 
products that benefitted the Syrian regime most, thereby supporting its repressive policies. 

To  comply  with  the  terms  of  the  Cooperation  Agreement  between  the  European  Economic 
Community  and  the  Syrian  Arab  Republic  (the  “Cooperation  Agreement”),  the  Council 
adopted also on 2 September 2011 Decision 2011/523/EU authorising the partial suspension 
of Articles 12, 14 and 15 thereof, which are the rules prohibiting quantitative restrictions for 
goods  originating  in  Syria  that  were  covered  by  the  restrictive  measures  of  the  initial 
Common Foreign and Security Policy (CFSP) decision. The suspension was notified to Syria 
on 5 September 2011.  

On  27  February  2012,  the  Council  adopted  Council  Decision  2012/122/CFSP  amending 
Decision  2011/782/CFSP  concerning  restrictive  measures  against  Syria.  This  Decision 
prohibited the direct or indirect sale, purchase, transportation or brokering of gold,  precious 
metals, and diamonds to, from or for the Government of Syria, its public bodies, corporations 
and  agencies,  or  the  Central  Bank  of  Syria,  as  well  as  to,  from  or  for  persons  and  entities 
acting on their behalf or at their direction, or entities owned or controlled by them. 

On 27 February 2012the Council  adopted also  Decision 2012/123/CFSP amending  Decision 
2011/523/EU to extend the coverage of the partial suspension to gold and precious metals, as 
well  as  diamonds  insofar  as  they  originate  in  Syria.  The  Union  notified  Syria  that  of  the 
coverage of the partial suspension of the Cooperation Agreement had been extended to those 
products on 29 February 2012. 

The reason for partially suspending the Cooperation Agreement and imposing the restrictive 
measures was the serious and systematic human rights violations by the Assad regime since 
2011, as well as the failure to respect the principles of the United Nations Charter which form 
the basis of the Cooperation Agreement.  

The fall of the Assad regime in December 2024 opened a window of opportunity for a new 
Syria and for renewed bilateral relations.  

In its conclusions of 23 June 2025, the Council underlined the importance of a peaceful and 
inclusive transition in Syria, free from harmful foreign interference, and protecting the rights 
of all Syrian people, without discrimination.  

The  Council  also  underlined  its  support  for  the  ongoing  efforts  by  international  financial 
institutions  to  assess Syria’s needs and invited the European  Investment  Bank to  resume its 
activity  in  Syria.  It  called  on  the  international  community  to  facilitate  Syria’s  economic 
recovery and to work on reintegrating it into the international financial system. 

In that context, the EU has lifted all economic sanctions on Syria, except for those based on 
security grounds. The EU has also mobilised more than EUR 424 million in support for Syria, 
including  a  EUR  175  million  package  to  support  Syria's  socio-economic  recovery  and 
institution-building,  as  well  as  to  promote  transitional  justice,  accountability  and  human 
rights. 

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In a clear demonstration of continued support, the EU organised the Brussels IX Conference 
on  “Standing  with  Syria:  meeting  the  needs  for  a  successful  transition”,  committing  nearly 
EUR2.5  billion  for  2025  and  2026.  Together  with  partners,  a  total  of  EUR  5.8  billion  was 
raised overall to aid Syria's transition process and the country's socio-economic recovery. The 
EU  also  addressed  the  urgent  humanitarian  needs,  both  within  Syria  and  in  the  host 
communities across Jordan, Lebanon, Iraq, and Türkiye. 

The  EU  also  successfully  organised  in  cooperation  with  Syrian  civil  society  and  the  Syrian 
transitional authorities the Day of Dialogue in Damascus, gathering over 350 representatives 
from the country's civil society.  

In  line  with  these  decisions,  and  with  the  objective  of  restoring  normal  trade  relations  with 
Syria and supporting the country’s socio-economic recovery, it is important to terminate the 
partial suspension of the EU-Syria Cooperation Agreement, thereby fully reinstating the EU-
Syria Cooperation Agreement. 

The  suspensions  concerned  the  provisions  of  the  Cooperation  Agreement  removing  the 
quantitative restrictions on Syrian imports into the Union of products which were subject to 
the restrictive measures. The tariff concessions were not suspended. Therefore,  repealing the 
partial suspension would not have any impact on trade flows, as, after repealing the restrictive 
measures, there are currently no other quantitative restrictions on imports into the Union from 
Syria of the products subject to the partial suspension. 

By ending the partial suspension of the Cooperation Agreement, even if this is a formality and 
has  no  specific  effects  on  trade,  the  Union  can  send  out  a  political  signal  of  support  for 
normalising the relations with Syria and for the country’s socio-economic recovery. 

• 

Consistency with Union policies 

This proposal is consistent with and complements the EU’s positions on Syria since the fall of 
the  Assad  regime,  and  in  particular  the  European  Council  conclusions  on  Syria  of  19 
December  2024  as  well  as  the  Council  conclusions  of  23  June  2025  and  the  Council’s 
decision to lift EU economic sanctions on Syria in May 2025.  

This  proposal  is  consistent  with  Article  207(1)  of  the  Treaty  on  the  Functioning  of  the 
European  Union  (TFEU),  which  provides  that  the  common  commercial  policy  is  to  be 
conducted in the context of the principles and objectives of the Union’s external action. These 
include  the  universality  of  human  rights  and  fundamental  freedoms,  rule  of  law  and  the 
principles of international law.  

• 

Consistency with other Union policies 

The  proposal  addresses  a  foreign  policy  objective,  namely  restoring  normal  trade  relations 
with Syria and supporting the country’s socio-economic recovery, and does not interfere with 
other Union policies.  

2. 

• 

LEGAL BASIS, SUBSIDIARITY AND PROPORTIONALITY 

Procedural Legal basis 

Article  218(9)  TFEU  provides  in  its  first  alternative  a  procedural  legal  base  for  decisions 
suspending an international agreement. This also includes decisions terminating a suspension 
which has previously been decided by the Council. 

In the present case the Commission proposes a Council decision terminating the suspension of 
certain trade-related provisions of the Cooperation Agreement and hence Article 218(9) is the 
appropriate procedural legal basis. 

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• 

Substantive legal basis 

The  substantive  legal  basis  for  a  decision  under  Article  218(9)  TFEU  depends  primarily  on 
the objective and content of the envisaged act in respect of which a position is being taken on 
the Union's behalf.  

The main objective and content of the envisaged act concerns reinstating import concessions 
for trading in goodslaid down in an international agreement. Such a measure is fully covered 
by the scope of the common commercial policy as set out in Article 207(1) TFEU.  

Therefore,  the  substantive  legal  basis  of  the  proposed  decision  is  the  first  subparagraph  of 
Article 207(4) TFEU.  

• 

Conclusion 

The legal basis of the proposed Council decision should be the first subparagraph of Article 
207(4) TFEU in conjunction with Article 218(9) TFEU.  

• 

Proportionality 

This proposal does not go beyond what is necessary to achieve the objective pursued, namely, 
terminating  the  partial  suspenion  of  certain  trade-related  provisions  of  the  EU-Syria 
Cooperation Agreement.  

• 

Choice of the instrument 

The  objectives  of  this  proposal  can  only  be  achieved  by  an  act  that  terminates  the  partial 
suspension  of  the  international  agreement  concerned.  Therefore,  a  Council  decision 
terminating  the  Decision  partially  suspending  the  Cooperation  Agreement  is  the  only 
available instrument for achieving this objective. 

3. 

BUDGETARY IMPLICATIONS 

The legal act envisages ending the suspension of the provisions of the Cooperation Agreement 
prohibiting  quantitative  restrictions  on  Syrian  imports  into  the  Union.  It  concerns  products, 
which were subject to the restrictive measures under the CFSP. Therefore it has no budgetary 
implications.  

4. 

• 

OTHER ELEMENTS 

Notification of the termination 

With regard to matters falling within the scope of application of the TFEU, the Commission 
represents the Union externally in accordance with Article 17(1) TEU. It is therefore the task 
of the Commission, once the Council has adopted this Decision by the Council, to notify the 
Republic  of  Syria  that  the  partial  suspension  of  the  Cooperation  Agreement  that  has  been 
implemented  in  line  with  the  Council  Decision  of  2  September  2011  (2011/523/EU)  as 
amended by Council Decision 2012/123/CFSP of 27 February 2012 has been terminated. 

• 

Time for implementation 

To provide sufficient time to implement the changes to the customs tariff, the termination of 
the suspension of the preferential market access shall become applicable as of the first day of 
the  first  month  following  the  notification  of  the  termination  by  the  Commission  to  the 
Republic of Syria. 

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• 

Execution of the Decision 

The  Directorate-General  for  Trade  and  Economic  Security  has  the  task  to  execute  this 
Decision  by  instructing  the  Delegation  of  the  European  Union  to  Syria  to  notify  the 
termination  of  the  suspension  by  diplomatic  note  to  the  Ministry  of  Foreign  Affairs  and 
Expatriates of the Syrian Arab Republic and by notifying the Cooperation Council established 
by  Article  35(1)  of  the  Cooperation  Agreement  and  to  the  Mission  of  the  Syrian  Arab 
Republic to the European Union. 

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2026/0093 (NLE) 

Proposal for a 

COUNCIL DECISION 

terminating the partial suspension of the Cooperation Agreement between the European 
Economic Community and the Syrian Arab Republic and repealing Decision 
2011/523/EU  

THE COUNCIL OF THE EUROPEAN UNION, 

Having regard to the Treaty on the Functioning of the European Union, and in particular Article 
207(4), first subparagraph, in conjunction with Article 218(9) thereof, 

Having regard to the proposal from the European Commission, 

Whereas: 

(1) 

(2) 

(3) 

(4) 

1 

2 

3 

4 

5 

On  18  January  1977,  the  European  Economic  Community  and  the  Syrian  Arab 
Republic  concluded  a  Cooperation  Agreement1  (the  Cooperation  Agreement)  to 
promote  overall  cooperation  with  a  view  to  strengthening  relations  between  the 
parties. 
Council  Decision  2011/523/EU2  partially  suspended 
the 
Cooperation Agreement following the brutal campaign waged by Bashar al-Assad and 
his regime against their own people. 

the  application  of 

The partial suspension of Articles 12, 14 and 15 of the Cooperation Agreement, which 
prohibit  Syrian  imports  into  the  Union,  with  regard  to  crude  oil  and  petroleum 
products was necessary in order to implement Council Decision 2011/522/CFSP3. 
Council Decision 2012/123/CFSP4 extended the partial  suspension of the application 
of  the  Cooperation  Agreement  to  Syrian  imports  into  the  Union  of  gold,  precious 
metals  and  diamonds.  The  adoption  of  Decision  2012/123/CFSP  was  necessary  in 
order  to  implement  the  restrictive  measures  provided  for  in  Council  Decision 
2012/122/CFSP5. 

Cooperation  Agreement  between  the  European  Economic  Community  and  the  Syrian  Arab  Republic 
(OJ L 269, 27.9.1978, p. 2, ELI: http://data.europa.eu/eli/agree_internation/1978/2216/oj). 
Council  Decision  2011/523/EU  of  2  September  2011  partially  suspending  the  application  of  the 
Cooperation  Agreement  between  the  European  Economic  Community  and  the  Syrian  Arab  Republic 
(OJ L 228, 3.9.2011, p. 19, ELI: http://data.europa.eu/eli/dec/2011/523/oj). 
Council Decision 2011/522/CFSP of 2 September 2011 amending Decision 2011/273/CFSP concerning 
restrictive  measures 
ELI: 
(OJ 
http://data.europa.eu/eli/dec/2011/522/oj). 
Council  Decision  2012/123/CFSP  of  27  February  2012  amending  Decision  2011/523/EU  partially 
suspending the application of the Cooperation Agreement between the European Economic Community 
and 
ELI: 
(OJ 
Republic 
http://data.europa.eu/eli/dec/2012/123(1)/oj). 
Council Decision 2012/122/CFSP of 27 February 2012 amending Decision 2011/782/CFSP concerning 
restrictive  measures 
ELI: 
(OJ 
Syria 
http://data.europa.eu/eli/dec/2012/122(1)/oj). 

28.2.2012, 

28.2.2012, 

3.9.2011, 

against 

against 

Syrian 

Syria 

Arab 

228, 

18, 

54, 

16, 

14, 

54, 

the 

p. 

p. 

p. 

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(5) 

(6) 

(7) 

(8) 

(9) 

Since  December  2024,  the  fall  of  the  Bashar  al-Assad  regime  has  brought  about  a 
fundamental  change  in  the  Syrian  political  landscape  rendering  the  original  grounds 
for the suspension obsolete.  

In  its  conclusions  of  23  June  2025,  the  Council  underlined  the  importance  of 
a peaceful and inclusive transition in Syria, free from harmful foreign interference, and 
protecting the rights of all Syrian people, without discrimination.  

The Council also underlined its support for ongoing efforts  by international financial 
institutions  to  assess  Syria’s  needs  and  invited  the  European  Investment  Bank  to 
resume  its  activity  in  Syria.  It  called  on  the  international  community  to  facilitate 
Syria’s  economic  recovery  and  to  work  on  its  reintegration  into  the  international 
financial system.  
On    24  February  and  27  May  2025,  in  its  Decisions  (CFSP)  2025/4066  and  (CFSP) 
2025/10967,  the  Council  lifted  all  economic  restrictive  measures  on  Syria,  with  the 
exception of those based on security grounds, in order to support the country’s socio-
economic recovery. 

In  accordance  with  those  decisions,  and  with  the  objective  of  restoring  normal  trade 
relations with Syria and supporting the country’s socio-economic recovery, the partial 
suspension of the application of the Cooperation Agreement provided for in Decision 
2011/523/EU should be terminated. 

(10)  Decision 2011/523/EU should therefore be repealed, 

HAS ADOPTED THIS DECISION:  

Decision 2011/523/EU is repealed. 

Article 1 

Article 2  

This Decision shall take effect on the date of its notification. 

Article 3  

This Decision is addressed to the Syrian Arab Republic.  

Done at Brussels, 

For the Council 
The President 

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Council  Decision  (CFSP)  2025/406  of  24  February  2025  amending  Decision  2013/255/CFSP 
concerning  restrictive  measures  in  view  of  the  situation  in  Syria  (OJ  L,  2025/406,  25.2.2025, 
ELI: http://data.europa.eu/eli/dec/2025/406/oj). 
Council Decision (CFSP)  2025/1096 of 27 May 2025 amending Decision 2013/255/CFSP concerning 
restrictive  measures 
(OJ  L,  2025/1096,  28.5.2025, 
ELI: http://data.europa.eu/eli/dec/2025/1096/oj). 

the  situation 

in  view  of 

in  Syria 

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