7. Internal protection alternative

When examining the element ‘absence of persecution or serious harm’, the decision-maker should refer to chapters 1 - 5 of this document.

When assessing the requirement of safety with regard to the applicability of IPA in individual cases of applicants from Syria, the following elements should be taken into account:

• General security situation in relation to indiscriminate violence

The general security situation in the city of Damascus should be assessed in accordance with the analysis under the section on Article 15(c) QD/QR. In this regard, it has been concluded that in the governorate of Damascus, including the city of Damascus, there is, in general, no real risk for a civilian to be personally affected within the meaning of Article 15(c) QD/QR.

• Actor of persecution or serious harm and their reach

There is a good level of security in Damascus and security forces have a strong presence in the city. However, in case where the applicant fears persecution or serious harm by the Transitional Government, including the factions that might have integrated into the new Syrian military, internal protection in Damascus would in general not be considered safe (please refer to The Transitional Government for further information about the potential integration of armed factions).

With regard to persecution by other actors, such as The Islamic State of Iraq and the Levant (ISIL) or other armed groups, it should be noted that there was one targeted attack on a Greek Orthodox church in Damascus’ Dweila neighbourhood in June 2025. However, generally these groups are active within certain regions and their operational capacity in the city Damascus remains limited.

Therefore, the criterion of safety may be considered satisfied in most cases where the applicant fears persecution or serious harm by other actors than the Transitional Government. However, particular consideration should be given to the individual circumstances of the applicant.

• Whether the profile of the applicant is considered a priority target and/or a threat by the actor of persecution or serious harm 

The applicant’s profile could make him or her a priority target, increasing the likelihood that the actor of persecution or serious harm would attempt to trace them in the potential IPA location.

• Behaviour of the applicant

It is recalled that an applicant cannot be reasonably expected to abstain from practices fundamental to his or her identity, such as those related to religion or sexual orientation (16)and gender identity, in order to avoid the risk of persecution or serious harm.

• Other risk-enhancing circumstances

The information under 4. Refugee status should be used to assist in this assessment.

Alternatively, it may be determined that the requirement of safety is satisfied if the applicant would have access to protection against persecution or serious harm, as defined in Article 7 QD/QR, in the area where IPA is considered. In the case of persecution by the State, a presumption of non-availability of State protection applies.

Additionally, since it has been assessed that the Transitional Government does not meet the criteria of an actor of protection under Article 7 QD/QR who is able to provide effective, non-temporary and accessible protection (see 6. Actors of protection), the requirement of safety can only be satisfied when there is an absence of persecution or serious harm in Damascus.

For example, in the case of persecution or serious harm by the Syrian society at large, these actors would likely have the reach necessary to target the applicant in any part of the country. Therefore, and in light of the lack of State protection, the safety requirement would in general not be met. It can be the case when the applicant faces persecution or serious harm for reasons related to the prevalent social norms in Syria (e.g. Persons with diverse SOGIESC).

Careful consideration must be given to whether, in the event of persecution or serious harm by the family or the community, these actors have the reach necessary to target the applicant in other parts of the country than their home area. If that is the case and in light of the lack of State protection, the safety requirement would in general not be met. It would apply to certain particularly vulnerable individuals, such as Women and girls and Children, in case, for example, of forced or child marriage and/or ‘honour’ crime.

See also 3. Actors of persecution or serious harm.

Means of basic subsistence and employment

Despite the lifting of several sanctions, and the easing or the waiving of other sanctions by the UK, the US and/or EU in May 2025 and the clearence of Syria's arrears to the World Bank, Syria continued to face severe economic hardship. Damascus' ovrall socio-economic situation is considered just above the threshold of sustainability.

The cost of living had risen by 21 % in 2024 and more than tripled in the last two years. One in four Syrians lives in extreme poverty on less than USD 2.15 a day, while 67 % fall below the lower middle-income poverty line of USD 3.65. The minimum monthly cost of living for a family of five in Damascus had reached SYP 8 million at the end of March 2025. Household expenditures continued to exceed income levels.

According to UNDP in February 2025, 90 % of the Syrian population could no longer afford essential goods and 75 % depended on some form of humanitarian assistance. 66 % of the population lived in condition of extreme poverty, with poverty rates highest among female headed households and displaced households.

Starting in December 2024, the Transitional Government dismissed tens to hundreds of thousands of public sector employees. Civil servants working in areas previously controlled by the Syrian government faced the most severe economic challenges, with wages covering only 5.6 % of basic needs. Unemployment in Syria reached 24 % in 2024 and access to livelihoods in Damascus is considered challenging. In Damascus, 25 % of the industry and manufacturing sectors were described as non-operational.

The lack of economic opportunities and essential services pose the greatest challenge for returnees. Many households resorted to borrowing money, selling productive assets, or engaging in high-risk, degrading jobs. Many are forced into low paid and insecure informal jobs.

Cash liquidity remained limited with continued restrictions on bank withdrawals and disruptions to online payment systems. In April 2025 the Ministry of Finance introduced the digital salary directing public institutions to pay their employees through the Sham Cash electronic application starting from May 2025.

Food security

Syria remained highly dependent on food imports, making it vulnerable to fluctuations in global commodity prices and exchange rates. Soaring inflation and the depreciation of the Syrian Pound have significantly reduced purchasing power, rendering food unaffordable for large segments of the population. According to UNDP in February 2025, 60 % of the population (equal to 13.8 million) faced extreme food insecurity. As of April 2025, UN World Food Program (WFP) indicated that Damascus registered the highest Minimum Expenditure Basket in the country for the third consecutive month (equal to SYP 2 403 097), driven by elevated prices for potatoes, apples, eggplants and white beans.

Housing and shelter

About one-third of the housing units in Syria have been either destroyed or severely damaged over the conflict. This created in the suburbs of Damascus a severe shortage of housing and limited availability of residential areas. Additionally, high property prices in the city of Damascus make renting or purchasing unaffordable for most returnees, while some housing on the outskirts or in more remote areas have generally poor living conditions.

There is a certain degree of social discrimination against individuals relocating to Damascus from other parts of the country. Locals are often reluctant to rent to newcomers or charge them higher prices, based on the perception that they may not properly maintain the property.

Water and sanitation

For the first time in 50 years, Damascus faces a severe water shortage, prompting the strictest rationing since the 1950s. Residents now receive water once every three days, while many rely on costly private tankers charging USD 35–70 per 1 000 litres. In surrounding rural areas such as Qudsia, Jabal al-Ward, and al-Arein, households endure water cuts of over 90 hours, leaving families torn between thirst and financial strain. Syria is experiencing severe drought-like conditions, the worst in over 36 years, further compounding an already fragile humanitarian situation. The drought has had devastating impacts on staple crops, livestock, water access, and public health. In an assessment conducted by IOM between March and April 2025, 26 % of key informants in Damascus lacked access to drinking water, 21 % lacked water for hygiene and 19 % did not have access to a sewage system.

Basic healthcare

More than 65 % of the Syrian population were in need of humanitarian health assistance. There is a shortage of medications for emergency conditions such as pain and infections. Maternal and child health services were found to be lacking in 48 % of cases.

In areas like Damascus, hospitals remained largely non-operational. According to IOM, 7 % of key respondents in Damascus did not have access to primary health facilities, 69 % did not have access to specialised health facilities and 19 % did not have access to emergency health facilities. In Damascus, 34 % of health centres (29 out of 86) were affected by underfunding, with an impact on approximately 712 000 individuals. Syria also faces a critical shortage of health workers, exacerbated by low salaries, which significantly hinders access to health services. Doctors working in areas like Damascus reportedly received monthly salaries as low as 30 USD.

In addition to the general situation in the area of potential IPA, the assessment whether it is reasonable to settle in that part of the country should take into account the individual circumstances of the applicant, including his/her vulnerabilities and coping mechanisms. A non-exhaustive list of relevant considerations is provided below:

• Civil documentation: access to documentation is needed for legal employment, housing, to reclaim property and to access basic services. Individuals without documentation such as IDPs might be more vulnerable and socio-economically disadvantaged.

• Gender: women, particularly single women or female-headed households might face more socio-economic hardship. Female headed households including divorced and widowed women were particularly vulnerable to housing, land and property issues. Poverty rates are highest among members of this category. Girls are particularly affected by educational challenges such as curriculum gaps, language barriers and integration challenges.

• Age: young and elderly age could limit the applicant's access to means of subsistence such as through employment, making him or her dependent on other providers. Therefore, this element should be seen in conjuction with the available support by family or a broader support network. In the case of children, the best interest of the child shall be a primary consideration, for example, with regard to access to basic education. Damaged infrastructure and displacement severely disrupted access to education. Children are more at risk of malnutrition caused by the elevated prices of food.

• Support network: the lack of economic opportunities, the shortage of housing and high property prices in Damascus, make purchasing or renting unaffordable for most returnees. Community ties in Damascus, the support from relatives, or having access to savings or remittances, can improve access to housing, employment and support.

• Professional and educational background and financial means: access to livelihood in Damascus is considered challenging, with 25 % of the industry and manufacturing sectors non-operational. There is a general lack of employment opportunities and essential services. Unskilled labour is underpaid. Many households resorted to borrowing money, selling productive assets, or engaging in high-risk or degrading jobs.

• Ethnoreligious background: Damascus is a diverse city with minority groups. There is a degree of social discrimination against individuals relocating to Damascus from other parts of the country. While not driven by state policy, the bias stems from longstanding distinction between Damascenes and non-locals. Locals are often reluctant to rent to newcomers or charge them higher prices, based on the perception that they may not properly maintain the property.

• State of health: healthcare facilities are limited. In Damascus hospitals remained largely non-operational. Persons who need specialised health facilities, may not receive adequate treatment. There is limited capacity to address chronic illnesses, injuries and disabilities, particularly among vulnerable groups such as children, older persons and persons with disabilities.

These factors would often intersect, leading to different conclusions on the reasonableness of IPA. In some cases, more than one element of vulnerability would indicate that IPA is not reasonable for the particular applicant (e.g. person with a disability without support network), while in other cases the relevant factors may balance each other (e.g. single woman with a strong support network).

The general conclusion on the reasonableness of IPA for particular profiles of applicants are based on an assessment of the general situation in the city of Damascus and the individual circumstances of such applicants, as outlined in the sections above.