Date: 2025-05-28Category: Not ApplicableState: Union GovernmentCountry: Europe
Council Implementing Regulation (EU) 2025/1111 of 28 May 2025 implementing Regulation (EU) 2020/1998 concerning restrictive measures against serious human rights violations and abuses
## Policy Analysis Report: Council Implementing Regulation (EU) 2025/1111
**1. Executive Summary:**
This report analyzes Council Implementing Regulation (EU) 2025/1111 of 28 May 2025. This regulation amends Annex I to Regulation (EU) 2020/1998, which concerns restrictive measures against serious human rights violations and abuses. The amendment adds two individuals and three entities to the list of sanctioned parties due to their involvement in serious human rights abuses in Syria, specifically arbitrary killings, torture, inhuman treatment, and forced displacement of civilians during violence in the coastal region in March 2025. The core purpose is to reinforce the EU's commitment to human rights by imposing restrictive measures on those responsible for violations.
**2. Introduction:**
This report provides an informative analysis of Council Implementing Regulation (EU) 2025/1111 based solely on the provided text. The report aims to clarify the purpose, key changes, and potential implications of this regulation.
**3. Policy Overview:**
* This regulation is an **amendment**. It amends Annex I to Council Regulation (EU) 2020/1998 concerning restrictive measures against serious human rights violations and abuses.
* **Core Objective:** The core objective, as inferred from the text, is to reinforce the EU Global Human Rights Sanctions Regime by specifically targeting individuals and entities responsible for serious human rights violations and abuses. This is achieved by adding them to the list of sanctioned parties outlined in Annex I of Regulation (EU) 2020/1998.
**4. Background and Rationale:**
* This is an amendment to an existing regulation. The likely reason for this specific amendment is to address recent serious human rights violations and abuses that occurred in Syria's coastal region in March 2025. The text highlights "a wave of violence" resulting in "a high number of victims, including many civilians." The amendment seeks to hold accountable those individuals and entities identified as responsible for these violations, specifically those involved in arbitrary killings, torture, inhuman treatment, and forced displacement. The High Representative's statement condemning these crimes serves as further justification.
**5. Key Provisions / Changes:**
This regulation amends Annex I to Regulation (EU) 2020/1998. The specific changes introduced are:
* **Addition of individuals to the list of natural persons:**
* **Muhammad Hussein al-Jasim:** Founder and leader of the Sultan Sulaiman Shah Brigade. The reason for listing is his command of the brigade during violence in the coastal region of Syria in March 2025, which included arbitrary killings of civilians, especially members of the Alawite community.
* **Sayf Boulad Abu Bakr:** Leader of the Hamza Division. The reason for listing is his command of the division which participated in the violence in the coastal region of Syria in March 2025, which included torture and arbitrary killings of civilians. Furthermore, it is noted that, throughout the Syrian civil war, the Hamza Division has been responsible for numerous acts of torture, extortion, and forced displacement of civilians.
* **Addition of entities to the list of legal persons, entities, and bodies:**
* **Sultan Sulaiman Shah Brigade:** An armed militia active in the Syrian civil war. The reason for listing is the brigade's participation in the violence in the coastal region of Syria in March 2025, targeting civilians, especially the Alawite community, including by committing arbitrary killings of civilians.
* **The Hamza Division:** An armed militia operating in Syria. The reason for listing is the division's participation in the violence in the coastal region of Syria in March 2025, which included arbitrary killings of civilians. The text also notes their history of torture, extortion, and forced displacement of civilians throughout the Syrian civil war.
* **The Sultan Murad Division:** An armed militia operating during the Syrian Civil War. The reason for listing is the division's participation in the violence in the coastal region of Syria in March 2025, which included inhuman treatment and arbitrary killings of civilians.
* **Effect of the Change:** Adding these individuals and entities to Annex I of Regulation (EU) 2020/1998 subjects them to the restrictive measures outlined in the original regulation. While the exact nature of these measures is not detailed in the provided text, it can be inferred that they likely include asset freezes and travel bans within the EU.
**6. Target Audience and Stakeholders:**
The primary target audience and stakeholders directly affected by these specific changes are:
* **The listed individuals:** Muhammad Hussein al-Jasim and Sayf Boulad Abu Bakr will be subject to the sanctions.
* **The listed entities:** Sultan Sulaiman Shah Brigade, The Hamza Division and The Sultan Murad Division will be subject to sanctions.
* **EU Member States:** Member States are responsible for implementing the sanctions.
* **EU financial institutions and businesses:** These entities must comply with the sanctions and ensure they are not dealing with the listed individuals and entities.
* **The Alawite community:** This population has been directly affected by the violence in Syria.
**7. Implementation Aspects (Inferred):**
* **Responsible agency/bodies:** The Council of the European Union is responsible for adopting the regulation. EU Member States are responsible for implementing the restrictive measures.
* **Timelines or procedures:** The regulation enters into force on the date of its publication in the Official Journal of the European Union (28 May 2025). The text does not specify further timelines or procedures, but it is implied that Member States must immediately take steps to implement the sanctions against the listed individuals and entities. The original Regulation (EU) 2020/1998 likely contains more details on implementation procedures.
* **(Specific to Changes):** The changes require immediate action from Member States to identify and freeze any assets held by the newly listed individuals and entities within their jurisdiction and to prevent them from entering or transiting through their territories.
**8. Expected Outcomes / Impact of Changes:**
The likely intended outcome of these specific changes introduced by the amendment is to:
* **Increase pressure on those responsible for human rights abuses in Syria:** By imposing sanctions, the EU aims to deter further violations and hold perpetrators accountable.
* **Send a strong signal of the EU's commitment to human rights:** The amendment reinforces the EU's policy of using restrictive measures to address serious human rights violations worldwide.
* **Potentially disrupt the operations and financing of the listed entities:** Sanctions could limit their ability to operate and obtain resources, thereby reducing their capacity to commit further abuses.
**9. Conclusion:**
Council Implementing Regulation (EU) 2025/1111 is a significant amendment that reinforces the EU's commitment to combating serious human rights violations. By adding individuals and entities responsible for abuses in Syria to the sanctions list, the regulation aims to hold perpetrators accountable and deter future violations. This amendment demonstrates the EU's ongoing efforts to uphold human rights globally through targeted restrictive measures.
Key Entities Referenced
European Union: A political and economic union of member states located primarily in Europe.
L series 2025/1111: Official Journal series of the European Union
28 May 2025: Date of the Council Implementing Regulation (EU) 2025/1111 and publication in the Official Journal.
COUNCIL IMPLEMENTING REGULATION (EU) 2025/1111: A regulation implementing restrictive measures against serious human rights violations and abuses.
Regulation (EU) 2020/1998: Council Regulation concerning restrictive measures against serious human rights violations and abuses.
Treaty on the Functioning of the European Union: A foundational treaty of the European Union.
High Representative of the Union for Foreign Affairs and Security Policy: The High Representative of the Union for Foreign Affairs and Security Policy.
EU Global Human Rights Sanctions Regime: A regime established to enhance the Union's role in addressing serious human rights violations and abuses worldwide.
Syria: A country in the Middle East where a wave of violence occurred in the coastal region in March 2025.
March 2025: The month when violence in Syria's coastal region occurred.
Brussels: Location where the regulation was done.
A. SZAPKA: The President of the Council.
Muhammad Hussein al-Jasim: Founder and leader of the Sultan Sulaiman Shah Brigade.
Sultan Sulaiman Shah Brigade: A Syrian armed militia active in the Syrian civil war.
Al-Jawsa, Hama Governorate, Syria: Place of birth of Muhammad Hussein al-Jasim.
Sayf Boulad Abu Bakr: Leader of the Hamza Division.
Hamza Division: An armed militia created in 2016 and operating in Syria.
Bzaah, al-Bab District, Syria: Place of birth of Sayf Boulad Abu Bakr.
The Sultan Murad Division: An armed militia established in 2013 and operating during the Syrian Civil War.
Syrian National Army SNA: An army the Sultan Murad Division is affiliated with.
Syrian Democratic Forces: Forces that were targeted by the Sultan Murad Division
Libya: Country the Sultan Murad Division participated in military operations.
Nagorno-Karabakh region: Region the Sultan Murad Division participated in military operations.
Niger: Country the Sultan Murad Division participated in military operations.
Alawite community: A community in Syria that was targeted.
Official Journal EN
of the European Union L series
2025/1111 28.5.2025
COUNCIL IMPLEMENTING REGULATION (EU) 2025/1111
of 28 May 2025
implementing Regulation (EU) 2020/1998 concerning restrictive measures against serious human
rights violations and abuses
THE COUNCIL OF THE EUROPEAN UNION,
Having regard to the Treaty on the Functioning of the European Union,
Having regard to Council Regulation (EU) 2020/1998 of 7 December 2020 concerning restrictive measures against serious
human rights violations and abuses(1), and in particular Article 14(1) thereof,
Having regard to the proposal from the High Representative of the Union for Foreign Affairs and Security Policy,
Whereas:
(1) On 7 December 2020, the Council adopted Regulation (EU) 2020/1998.
(2) On 8 December 2020, by way of the declaration by the High Representative of the Union for Foreign Affairs and
Security Policy, on behalf of the European Union, regarding the EU Global Human Rights Sanctions Regime, the
Union and its Member States reaffirmed their strong commitment to the promotion and protection of human rights
around the world. The EU Global Human Rights Sanctions Regime underscores the Union’s determination to
enhance its role in addressing serious human rights violations and abuses worldwide. Realising the effective
enjoyment of human rights for every person is a strategic goal of the Union. Respect for human dignity, freedom,
democracy, equality, the rule of law and human rights is a fundamental value of the Union and its common foreign
and security policy.
(3) In March 2025, a wave of violence in Syria’s coastal region created a high number of victims, including many
civilians. On 11 March 2025, the High Representative issued a statement on behalf of the Union in which the Union
condemned the horrific crimes committed against civilians in the context of that violence, including arbitrary
killings.
(4) In that context, two persons and three entities should be added to the list of natural and legal persons, entities and
bodies set out in Annex I to Regulation (EU) 2020/1998.
(5) Regulation (EU) 2020/1998 should therefore be amended accordingly,
HAS ADOPTED THIS REGULATION:
Article 1
Annex I to Regulation (EU) 2020/1998 is amended in accordance with the Annex to this Regulation.
Article 2
This Regulation shall enter into force on the date of its publication in the Official Journal of the European Union.
This Regulation shall be binding in its entirety and directly applicable in all Member States.
Done at Brussels, 28 May 2025.
For the Council
The President
A. SZŁAPKA
(1) OJ L 410 I, 7.12.2020, p. 1, ELI: http://data.europa.eu/eli/reg/2020/1998/oj.
ELI: http://data.europa.eu/eli/reg_impl/2025/1111/oj 1/4ANNEX
Annex I to Regulation (EU) 2020/1998 is amended as follows:
(1) the following entries are added to the list of natural or legal persons, entities or bodies under the heading ‘A. Natural persons’:
Names (Transliteration into
Names Identifying information Reasons for listing Date of listing
Latin script)
‘119. Muhammad Hussein ﻢﺳﺎﺠﻟﺍ ﻦﻴﺴﺣ ﺪﻤﺤﻣ Position(s): Muhammad Hussein al-Jasim is the founder and leader of the Sultan 28.5.2025
AL-JASIM Sulaiman Shah Brigade, a Syrian armed militia active in the Syrian civil
ﺔﺸﻤﻋ ﻮﺑﺃ DOB: 1985
war.
a.k.a. Abu AMSHA,
ﻢﺳﺎﺠﻟﺍ ﻦﻴﺴﺣ ﺪﻤﺤﻣ POB: Al-Jawsa, Hama Governorate,
Muhammad Husayn In March 2025, the Sultan Sulaiman Shah Brigade, under Muhammad
Syria
AL-JASIM, Muhammad ﻦﻴﺴﺣ ﻦﺑ ﻢﺳﺎﺠﻟﺍ ﺪﻤﺤﻣ Hussein al-Jasim’s command, took part in the violence in the coastal
AL-JASSIM BIN Nationality: Syrian region of Syria, targeting civilians and especially the Alawite community,
HUSSEIN, ﻢﺳﺎﺠﻟﺍ ﺪﻤﺤﻣ including by committing arbitrary killings of civilians.
Mohamed ALJASEM Gender: male
(Arabic spelling) Muhammad Hussein al-Jasim is therefore responsible for serious human
Associated entities: rights abuses in Syria, including arbitrary killings.
Sultan Sulaiman Shah Brigade
120. Sayf Boulad ABU BAKR ﺮﻜﺑ ﻮﺑﺃ ﺩﻻﻮﺑ ﻒﻴﺳ Position(s): Sayf Boulad Abu Bakr is the leader of the Hamza Division, an armed 28.5.2025’;
militia created in 2016 and operating in Syria.
a.k.a Sayf BALUD, ﺩﻻﻮﺑ ﻒﻴﺳ DOB: 1987-1988
Saif ABU BAKR, Throughout the Syrian civil war, the Hamza Division, under Sayf Boulad
ﺮﻜﺑ ﻮﺑﺃ ﻒﻴﺳ POB: Bza’ah, al-Bab District, Syria
Seyf Ebu BEKIR, Abu Bakr’s command, has been responsible for numerous acts of torture
Seyf EBUBEKIR (Arabic spelling) Nationality: Syrian in that group’s detention centers, for extortion and for forced
displacement of civilians, especially in the regions of Afrin and Aleppo.
Gender: male
In March 2025, the Hamza Division, under Sayf Boulad Abu Bakr’s
Associated entities: Hamza Division command, took part in the violence in the coastal region of Syria,
targeting civilians and especially the Alawite community, including by
committing torture and arbitrary killings of civilians.
Sayf Boulad Abu Bakr is therefore responsible for serious human rights
abuses in Syria, including torture and arbitrary killings of civilians.
2/4
ELI:
http://data.europa.eu/eli/reg_impl/2025/1111/oj
EN
OJ
L,
28.5.2025(2) the following entries are added to the list of natural or legal persons, entities or bodies under the heading ‘B. Legal persons, entities and bodies’:
Names (Transliteration into
Name Identifying information Reasons for listing Date of listing
Latin script)
‘34. Sultan Sulaiman Shah ﻩﺎﺷ ﻥﺎﻤﻴﻠﺳ ﻥﺎﻄﻠﺴﻟﺍ ﺔﻗﺮﻓ Associated individual(s): The Sultan Sulaiman Shah Brigade is an armed militia created in 2016, 28.5.2025
Brigade Muhammad Hussein al-Jasim active in the Syrian civil war. It was founded in 2016 in Jarabulus by
(Arabic spelling)
Muhammad Hussein al-Jasim, also known as Abu Amsha and claims to
a.k.a. Suleiman Shah
have more than 2 000 fighters, mainly Turkmen.
Brigade
In March 2025, the Sultan Sulaiman Shah Brigade took part in the
violence in the coastal region of Syria, targeting civilians and especially the
Alawite community, including by committing arbitrary killings of
civilians.
Sultan Sulaiman Shah brigade is therefore responsible for serious human
rights abuses in Syria, including arbitrary killings of civilians.
35. The Hamza Division ﺓﺰﻤﺤﻟﺍ ﺔﻗﺮﻓ Associated individual(s): Sayf The Hamza Division is an armed militia created in 2016 and operating in 28.5.2025
Boulad Abu Bakr Syria. Throughout the Syrian civil war, the Hamza Division has been
(Arabic spelling)
responsible for numerous acts of torture in its detention centres, for
extortion and for forced displacement of civilians, especially in the region
of Afrin and Aleppo.
In March 2025, the Hamza Division, under Sayf Boulad Abu Bakr’s
command, took part in the violence in the coastal region of Syria,
targeting civilians and especially the Alawite community, including by
committing arbitrary killings of civilians.
The Hamza division is therefore responsible for serious human rights
abuses in Syria, including torture and arbitrary killings.
ELI:
http://data.europa.eu/eli/reg_impl/2025/1111/oj
3/4
OJ
L,
28.5.2025
ENNames (Transliteration into
Name Identifying information Reasons for listing Date of listing
Latin script)
36. The Sultan Murad ﺩﺍﺮﻣ ﻥﺎﻄﻠﺴﻟﺍ ﺔﻗﺮﻓ The Sultan Murad Division is an armed militia established in 2013 and 28.5.2025’.
Division operating during the Syrian Civil War. The Sultan Murad Division is
(Arabic spelling)
affiliated with the Syrian National Army (SNA) and claims to have
between 5 000 and 10 000 fighters.
Before the fall of President al-Assad’s regime, the Sultan Murad Division
participated in operations targeting Syria’s Kurdish community and the
Syrian Democratic Forces, using torture, arbitrary detentions, enforced
disappearance and the ill-treatment of prisoners. The Sultan Murad
Division also participated in military operations outside Syria, including in
Libya, the Nagorno-Karabakh region and Niger.
In March 2025, the Sultan Murad Division took part in the violence in the
coastal region of Syria, targeting civilians and especially the Alawite
community, including by committing inhuman treatment and arbitrary
killings of civilians.
The Sultan Murad Division is therefore responsible for serious human
rights abuses in Syria, including torture, inhuman treatment and arbitrary
killings of civilians.
4/4
ELI:
http://data.europa.eu/eli/reg_impl/2025/1111/oj
EN
OJ
L,
28.5.2025