Israel and Hamas Conflict In Brief: Overview, U.S. Policy, and Options for Congress

Changes from November 1, 2023 to November 7, 2023

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Israel and Hamas 2023 Conflict In Brief:
November November 17, 2023 , 2023
Overview, U.S. Policy, and Options for
Jim Zanotti
Congress
Specialist in Middle Specialist in Middle
Eastern Affairs Eastern Affairs
On October 7, 2023, the Palestinian On October 7, 2023, the Palestinian ~~Sunni~~Sunniv Islamist group Hamas (a U.S.-designated foreign Islamist group Hamas (a U.S.-designated foreign

terrorist organization, or FTO) led surprise attacks against Israel from the Gaza Strip by land, sea, terrorist organization, or FTO) led surprise attacks against Israel from the Gaza Strip by land, sea,
Jeremy M. Sharp
and air. The assault came on a Jewish holiday, 50 years after the Egypt-Syria surprise attack on and air. The assault came on a Jewish holiday, 50 years after the Egypt-Syria surprise attack on
Specialist in Middle Specialist in Middle
Israel that sparked the 1973 Yom Kippur War. The October 7 assault’s scope and lethality Israel that sparked the 1973 Yom Kippur War. The October 7 assault’s scope and lethality
Eastern Affairs Eastern Affairs
against Israel have no precedent in the 16 years Hamas has controlled Gaza, and the nature of the against Israel have no precedent in the 16 years Hamas has controlled Gaza, and the nature of the

violence stunned Israelis. The apparent intelligence and operational failures in preventing the violence stunned Israelis. The apparent intelligence and operational failures in preventing the
assault have become a subject of analysis for Israeli and U.S. officials. Iran reportedly provides assault have become a subject of analysis for Israeli and U.S. officials. Iran reportedly provides

material support to Hamas, and according to U.S. officials may be complicit in a broad sense, but material support to Hamas, and according to U.S. officials may be complicit in a broad sense, but
President Joe Biden has said “there is no evidence” that Iran helped plan the attack. President Joe Biden has said “there is no evidence” that Iran helped plan the attack.
In response to the October 7 attacks, Israel’s cabinet formally declared war on Hamas. Israel has initiated efforts to recover In response to the October 7 attacks, Israel’s cabinet formally declared war on Hamas. Israel has initiated efforts to recover
some 240-250 hostages (including some Americans) taken during the Hamas-led assault, undertaken an aerial bombardment some 240-250 hostages (including some Americans) taken during the Hamas-led assault, undertaken an aerial bombardment
campaign, campaign, ~~mobilized hundreds of thousands of reserve troops,~~ and launched ground operations against Hamas in Gaza. and launched ground operations against Hamas in Gaza.
Israel’s government has almost completely halted the supply of electricity, food, water, and fuel to Gaza, which before the Israel’s government has almost completely halted the supply of electricity, food, water, and fuel to Gaza, which before the
conflict had already faced crisis-level economic and humanitarian conditions. conflict had already faced crisis-level economic and humanitarian conditions. ~~On October 28,~~ Israeli Prime Minister Israeli Prime Minister
Benjamin Netanyahu Benjamin Netanyahu has announced that Israel’s military~~announced the “second stage of the war, whose~~ objectives are objectives are ~~clear:~~ “To destroy the military and To destroy the military and
governmental capabilities of Hamas and bring the hostages home.” governmental capabilities of Hamas and bring the hostages home.”
As of November 6, Israeli forces have reportedly encircled Gaza City, where they apparently seek to target key nodes of Hamas’s command structure and vast network of tunnels. The United Nations has stated that Gaza, with an estimated 1. The United Nations has stated that Gaza, with an estimated 1.45 million Gazans ( million Gazans (~~more than half~~nearly three-fourths of the territory’s of the territory’s
approximately 2.1 million people) displaced and major shortages in life-sustaining supplies, constitutes a major humanitarian approximately 2.1 million people) displaced and major shortages in life-sustaining supplies, constitutes a major humanitarian
crisis. U.S. officials have worked with Israel, Egypt, and the United Nations to allow for some international humanitarian crisis. U.S. officials have worked with Israel, Egypt, and the United Nations to allow for some international humanitarian
assistance to enter Gaza from Egypt. The U.N. Secretary-General has repeatedly called for a humanitarian ceasefire. assistance to enter Gaza from Egypt. The U.N. Secretary-General has repeatedly called for a humanitarian ceasefire.
Biden Administration officials have stated that Israel has the right and obligation to defend itself, and have resisted calls from other regional and international actors for a cease-fire—though U.S. leaders have reportedly warned Israeli counterparts that global outcry over civilian suffering could reach “a tipping point.” U.S. leaders have supported the idea of humanitarian pauses—possibly limited in time and geographical scope—to safely facilitate the delivery of life-sustaining aid and perhaps help facilitate hostage release efforts. However, to date Israel has refused any “temporary ceasefire that does not involve the release of the kidnapped Israelis.” Reportedly, more than 1,400 Israelis (and at least 36 U.S. citizens) and more than 10,000~~Reportedly, more than 1,400 Israelis (and at least 36 U.S. citizens) and 8,500~~ Palestinians in Gaza have been Palestinians in Gaza have been killed as of November 6. Some U.S. citizens reportedly remain in Gaza, though some 300 have crossed into Egypt since November 1, along with some injured Palestinians and other foreign nationals~~killed as of~~
~~October 31. Hundreds of U.S. citizens are estimated to be in Gaza, and the U.S. government is discussing safe passage for~~
~~them with Egypt and Israel, with some people reportedly crossing into Egypt on November 1~~. Five hostages (including two . Five hostages (including two
Americans) have been released or rescued to date. Americans) have been released or rescued to date.
There are risks that the conflict could expand. For example, the Iran-backed Shia Islamist group Lebanese Hezbollah (another There are risks that the conflict could expand. For example, the Iran-backed Shia Islamist group Lebanese Hezbollah (another
FTO) has exchanged fire with Israel and could create a second front at the Israel-Lebanon border. U.S. statements and FTO) has exchanged fire with Israel and could create a second front at the Israel-Lebanon border. U.S. statements and
actions, including expedited arms deliveries to Israel and the reported movement of major U.S. military assets, appear actions, including expedited arms deliveries to Israel and the reported movement of major U.S. military assets, appear
intended to warn Hezbollah or others not to get involved. U.S. officials have warned Iran of a strong response if groups Iran intended to warn Hezbollah or others not to get involved. U.S. officials have warned Iran of a strong response if groups Iran
supports continue to target U.S. military positions in the region. Additionally, amid rising supports continue to target U.S. military positions in the region. Additionally, amid rising ~~tensions and~~ violence between violence between
Palestinians and Israelis in the West Bank, President Biden has called for attacks by “extremist settlers” against Palestinians Palestinians and Israelis in the West Bank, President Biden has called for attacks by “extremist settlers” against Palestinians
to stop. to stop.
In October 2023, President Biden asked Congress to appropriate more than $8 billion in U.S. security assistance for Israel, In October 2023, President Biden asked Congress to appropriate more than $8 billion in U.S. security assistance for Israel,
and more than $9 billion in global humanitarian assistance amounts that could partly be allocated for Gaza, the West Bank, and more than $9 billion in global humanitarian assistance amounts that could partly be allocated for Gaza, the West Bank,
and Israel. Members of Congress have expressed differing views on the request and its various elements. Congress may and Israel. Members of Congress have expressed differing views on the request and its various elements. Congress may
consider whether or not to provide additional military assistance to Israel or humanitarian assistance for Palestinians and consider whether or not to provide additional military assistance to Israel or humanitarian assistance for Palestinians and
Israelis, perhaps partly based on whether the Biden Administration and Congress can ensure that any assistance would not be Israelis, perhaps partly based on whether the Biden Administration and Congress can ensure that any assistance would not be
used beyond its intended purposes. Congress also may weigh other legislative and oversight options. used beyond its intended purposes. Congress also may weigh other legislative and oversight options.
Congressional Research Service Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress For additional background on the conflict, see CRS Report R47754, For additional background on the conflict, see CRS Report R47754, Israel and Hamas October 2023 Conflict: Frequently
Asked Questions (FAQs), coordinated by Jim Zanotti, Jeremy M. Sharp, and Christopher M. Blanchard. , coordinated by Jim Zanotti, Jeremy M. Sharp, and Christopher M. Blanchard.
Congressional Research Service Congressional Research Service

link to page link to page 56 Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress

Conflict Overview
Background
On October 7, 2023, the Palestinian Sunni Islamist group Hamas (a U.S.-designated foreign On October 7, 2023, the Palestinian Sunni Islamist group Hamas (a U.S.-designated foreign
terrorist organization, or FTO) led a series of surprise attacks from the Gaza Strip by land, sea, terrorist organization, or FTO) led a series of surprise attacks from the Gaza Strip by land, sea,
and air against Israel (seeand air against Israel (see Figure 1). Palestine Islamic Jihad (or PIJ, another FTO) claimed that its . Palestine Islamic Jihad (or PIJ, another FTO) claimed that its
forces also participated in the attacks, and other militants outside of Hamas and PIJ may also have forces also participated in the attacks, and other militants outside of Hamas and PIJ may also have
joined. The assault targeted Israeli military joined. The assault targeted Israeli military ~~bases and civilian areas during the final Jewish high~~
~~holiday, just over 50 years after the Egypt-~~
~~Possible Iranian role in Hamas attacks~~
~~Syria surprise attack on Israel that sparked the~~
Possible Iranian Role in Hamas Attacks bases and civilian areas during the final The possible role of Iran in the planning, support, or The possible role of Iran in the planning, support, or
~~1973 Yom Kippur War (known in the Arab~~Jewish high holiday, just over 50 years after
execution of the Hamas attacks is a question of keen execution of the Hamas attacks is a question of keen
~~world as the October War). The October 7~~the Egypt-Syria surprise attack on Israel that
interest to many Members of Congress. National interest to many Members of Congress. National
~~attacks’ scope and lethality have no precedent~~sparked the 1973 Yom Kippur War (known in
Security Advisor Jake Sul ivan has described Iran as Security Advisor Jake Sul ivan has described Iran as
~~in the 16 years Hamas has controlled Gaza.~~
“complicit in this attack in a broad sense,” given the “complicit in this attack in a broad sense,” given the
~~The nature of the violence stunned Israelis and~~the Arab world as the October War). The
level of support it has provided Hamas for years.1 level of support it has provided Hamas for years.1
October 7 attacks’ scope and lethality have no President Joe Biden said on October 15, “did they President Joe Biden said on October 15, “did they
~~many others.3 The apparent intelligence and~~precedent in the 16 years Hamas has
[Iran] have foreknowledge; did they help plan the attack [Iran] have foreknowledge; did they help plan the attack
~~operational failures in preventing the assault~~controlled Gaza. The nature of the violence
…there’s no evidence of that at this point.”2 …there’s no evidence of that at this point.”2
stunned Israelis and many others.3 The apparent intelligence and operational failures in preventing the assault or limiting its impact have become~~or limiting its impact became~~ a subject of a subject of
analysis for Israeli and U.S. officials. Some analysis for Israeli and U.S. officials. Some
analysts have said that Israel may have missed signals, over-relied on technological solutions, analysts have said that Israel may have missed signals, over-relied on technological solutions,
and/or misread Hamas’s intentions, among other factors.4 and/or misread Hamas’s intentions, among other factors.4
In response to the attacks, Israel’s cabinet formally declared war on Hamas, In response to the attacks, Israel’s cabinet formally declared war on Hamas, ~~with~~and Prime Minister Prime Minister
Benjamin Netanyahu Benjamin Netanyahu ~~asserting that Israel would win a long and difficult campaign, and then~~
~~forming~~formed an emergency unity government with some members of the opposition. Israel also halted an emergency unity government with some members of the opposition. Israel also halted
supplies from Israeli territory to Gaza of electricity, food, and fuel. Israel’s military has mobilized supplies from Israeli territory to Gaza of electricity, food, and fuel. Israel’s military has mobilized
hundreds of thousands of troops, conducted air and artillery bombardments in Gaza, and hundreds of thousands of troops, conducted air and artillery bombardments in Gaza, and ~~initiated~~
~~ground operations in Gaza’s northern half~~has encircled Gaza City through ground operations. Hamas and other Gaza-based militants have continued . Hamas and other Gaza-based militants have continued
indiscriminate rocket fire into Israel.indiscriminate rocket fire into Israel.
On October On October ~~7, the Permanent Representative of Israel to the United Nations, Gilad Erdan, sent a~~
~~letter to the Security Council stating that the initial assault was perpetrated “by terrorist~~
~~organizations led by Hamas.”5 That same day, U.S. Permanent Representative to the United~~
~~Nations Linda Thomas-Greenfield reaffirmed to Israeli officials “our ironclad support for Israel’s~~13, the Israel Defense Forces (IDF) announced that it was “call[ing] for” the evacuation of all civilians in Gaza City “from their homes southwards for their own safety and

1 White House, “Press Briefing by Press Secretary Karine Jean-Pierre and National Security Advisor Jake Sullivan,” 1 White House, “Press Briefing by Press Secretary Karine Jean-Pierre and National Security Advisor Jake Sullivan,”
October 10, 2023. For more information on Hamas, its possible reasons for the attacks, and Iranian material support for October 10, 2023. For more information on Hamas, its possible reasons for the attacks, and Iranian material support for
Hamas, see CRS Report R47754, Hamas, see CRS Report R47754, Israel and Hamas October 2023 Conflict: Frequently Asked Questions (FAQs), ,
coordinated by Jim Zanotti, Jeremy M. Sharp, and Christopher M. Blanchard. coordinated by Jim Zanotti, Jeremy M. Sharp, and Christopher M. Blanchard.
2 Scott Pelley, “President Joe Biden: The 2023 60 Minutes interview transcript,” CBS News, October 15, 2023. One 2 Scott Pelley, “President Joe Biden: The 2023 60 Minutes interview transcript,” CBS News, October 15, 2023. One
article has highlighted conflicting accounts about whether and to what extent Iran was directly involved in the October article has highlighted conflicting accounts about whether and to what extent Iran was directly involved in the October
7 attacks. Summer Said et al., “Hamas Fighters Had Trained in Iran Before Israel Attack,” 7 attacks. Summer Said et al., “Hamas Fighters Had Trained in Iran Before Israel Attack,” Wall Street Journal, October , October
26, 2023. 26, 2023.
3 Israeli Ministry of Foreign Affairs, “President Herzog reveals Hamas ‘Captive Taking Handbook’ in CNN interview,” 3 Israeli Ministry of Foreign Affairs, “President Herzog reveals Hamas ‘Captive Taking Handbook’ in CNN interview,”
October 15, 2023. October 15, 2023.
4 Center for Strategic and International Studies, “Experts React: Assessing the Israeli Intelligence and Potential Policy 4 Center for Strategic and International Studies, “Experts React: Assessing the Israeli Intelligence and Potential Policy
Failure,” October 25, 2023; Ronen Bergman et al., “How Years of Israeli Failures on Hamas Led to a Devastating Failure,” October 25, 2023; Ronen Bergman et al., “How Years of Israeli Failures on Hamas Led to a Devastating
Attack,” Attack,” New York Times, October 29, 2023, October 29, 2023.
~~5 X, Pamela Falk CBS News Correspondent United Nations, October 7, 2023, https://twitter.com/PamelaFalk/status/~~
~~1710717063939936336~~. .
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Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress

~~security and right to self-defense.”6 In a letter to the Security Council on October 10, Ambassador~~
~~of the Permanent Observer Mission of the “State of Palestine” to the United Nations Riyad~~
~~Mansour alleged that actions Israel was taking in response constituted “war crimes.”7~~
~~Figure 1. Israel and Gaza: Conflict Map~~

~~On October 13, the Israel Defense Forces (IDF) announced that it was “call[ing] for” the~~
~~evacuation of all civilians in Gaza City “from their homes southwards for their own safety and~~
~~protection.”8 Hamas reportedly called on people in these areas to remain in place.9 U.N. officials~~
~~have expressed concern about potentially grave humanitarian consequences from widespread~~

~~6 U.S. Mission to the United Nations, “Statement by Ambassador Linda Thomas-Greenfield on Attacks on Israel,”~~
~~October 7, 2023.~~
~~7 Michelle Nichols, “Palestinian UN envoy accuses Israel of ‘genocidal’ campaign against Gaza,” Reuters, October 10,~~
~~2023.~~
8protection.”5 Hamas reportedly called on people in these areas to remain in place.6 U.N. officials have expressed concern about potentially grave humanitarian consequences from widespread evacuation, and Israel has reportedly conducted some air strikes in southern Gaza areas. An estimated 1.5 million Gazans (nearly three-fourths of the territory’s approximately 2.1 million people)7 are displaced from their homes as of November 6—with roughly 300,000 internally displaced persons (IDPs) in northern Gaza areas that are particularly vulnerable to conflict and disconnected from limited life-sustaining supplies that are coming in through southern Gaza.8 Figure 1. Israel and Gaza: Conflict Map Observers debate how to apportion blame between the militants and Israel for the worsening of already dire humanitarian conditions in Gaza. While those faulting Israel argue that Israeli actions 5 Israel Defense Forces, “IDF Announcement Sent to the Civilians of Gaza City,” October 13, 2023. Passages from the Israel Defense Forces, “IDF Announcement Sent to the Civilians of Gaza City,” October 13, 2023. Passages from the
announcement include, “The IDF calls for the evacuation of all civilians of Gaza City from their homes southwards for announcement include, “The IDF calls for the evacuation of all civilians of Gaza City from their homes southwards for
their own safety and protection and move to the area south of the Wadi Gaza,” and “Civilians of Gaza City, evacuate their own safety and protection and move to the area south of the Wadi Gaza,” and “Civilians of Gaza City, evacuate
south for your own safety and the safety of your families and distance yourself from Hamas terrorists who are using south for your own safety and the safety of your families and distance yourself from Hamas terrorists who are using
you as human shields.” you as human shields.”
96 “Hamas tells Gaza residents to stay home as Israel ground offensive looms,” Reuters, October 13, 2023. “Hamas tells Gaza residents to stay home as Israel ground offensive looms,” Reuters, October 13, 2023.
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~~Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress~~

~~evacuation, and Israel has reportedly conducted some air strikes in southern Gaza areas. An~~
~~estimated 1.4 million Gazans (more than half the territory’s approximately 2.1 million people10)~~
~~are displaced from their homes as of October 31—with 300,000 of internally displaced persons~~
~~(IDPs) in northern Gaza areas that are particularly vulnerable to conflict and disconnected from~~
~~outside flows of life-sustaining supplies.11~~
~~Observers debate how to apportion blame between the militants and Israel for the worsening of~~
~~already dire humanitarian conditions in Gaza. While those faulting Israel argue that Israeli actions~~
7 Per Central Intelligence Agency World Factbook figures. 8 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash Update #31,” November 6, 2023; Jaclyn Diaz et al., “Many Gazans remain trapped in the north, despite evacuation window,” NPR, November 4, 2023. Congressional Research Service 2 Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress have inflicted casualties and limited life-sustaining supplies, those blaming Hamas assert that have inflicted casualties and limited life-sustaining supplies, those blaming Hamas assert that
Hamas personnel in Gaza and other militants reportedly contribute to making civilian areas and Hamas personnel in Gaza and other militants reportedly contribute to making civilian areas and
facilities unsafe by operating in or near them. facilities unsafe by operating in or near them.
~~There are reportedly hundreds of U.S. citizens in Gaza, many of whom are seeking to leave; U.S.~~
~~officials have stated that they are working with Israel and Egypt to arrange safe passage for them.~~
According to Secretary of State Antony Blinken, after the outbreak of conflict, about 400 U.S. citizens and 600 of their family members have sought to leave Gaza.9 Egypt, via consultations with U.S., Israeli, and U.N. officials, has publicly agreed to the use of its Egypt, via consultations with U.S., Israeli, and U.N. officials, has publicly agreed to the use of its
Rafah crossing with Gaza to open a humanitarian corridor for international aid into the territory, Rafah crossing with Gaza to open a humanitarian corridor for international aid into the territory,
and to allow U.S. and to allow U.S. citizens and some 7,500 other foreign passport holders safe passage out. After weeks of multi-party negotiations amid critiques by U.S. citizens in Gaza of the U.S. response,10 hundreds of U.S. citizens and family members have left Gaza. Beginning on November 1, some foreign nationals and some injured Palestinians were allowed to exit Gaza through the Rafah crossing. As of November 5, a U.S. official said that “we have been able to get out more than 300 Americans, lawful permanent residents and their family members,” and that efforts were ongoing to assist additional U.S. citizens trying to leave.11 According to U.N. officials, the border has been closed at various points in early November.12~~citizens and other foreigners safe passage out. The State Department has~~
~~advised Americans who can safely do so to transit toward the Egyptian border with Gaza.~~
~~Secretary of State Antony Blinken said in October 31 congressional testimony that Hamas~~
~~appears to have obstructed their departure.12 As quoted in news accounts, some U.S. citizens in~~
~~Gaza have criticized the U.S. response, citing bombardments and other hardships as additional~~
~~impediments; some have reported reaching the vicinity of the Rafah border and being unable to~~
~~cross because of Egyptian officials.13 On November 1, reports indicated that some U.S. citizens~~
~~and other foreigners had started crossing from Gaza into Egypt.14~~
U.N. Secretary-General António Guterres said on October 31 that the “level of humanitarian U.N. Secretary-General António Guterres said on October 31 that the “level of humanitarian
assistance that has been allowed into Gaza up to this point is completely inadequate and not assistance that has been allowed into Gaza up to this point is completely inadequate and not
commensurate with the needs of people in Gaza, compounding the humanitarian tragedy.” He commensurate with the needs of people in Gaza, compounding the humanitarian tragedy.” He
also reiterated his previous appeals “for the immediate and unconditional release of those also reiterated his previous appeals “for the immediate and unconditional release of those
civilians held hostage by Hamas,” as well as “for an immediate humanitarian ceasefire.”civilians held hostage by Hamas,” as well as “for an immediate humanitarian ceasefire.”1513
U.S. officials have reportedly sought to facilitate the provision of international assistance for U.S. officials have reportedly sought to facilitate the provision of international assistance for
Gazans via the Rafah crossing in a way that can be monitored to prevent diversion by Hamas. Gazans via the Rafah crossing in a way that can be monitored to prevent diversion by Hamas.
Additionally, on October 18, President Biden announced a $100 million U.S. humanitarian Additionally, on October 18, President Biden announced a $100 million U.S. humanitarian
assistance contribution for Gaza and the West Bank.assistance contribution for Gaza and the West Bank.1614 U.N. officials have said that assistance U.N. officials have said that assistance
levels to date address only a small fraction of the needs of Gaza’s population, and have raised levels to date address only a small fraction of the needs of Gaza’s population, and have raised
public health concerns in connection with poor sanitation and consumption of unsafe water by public health concerns in connection with poor sanitation and consumption of unsafe water by
IDPs. IDPs. ~~On October 31, Israel reportedly resumed supply from a water line to some central Gaza~~
~~areas, but supply to a southern Gaza water line had stopped a day earlier, and the line to northern~~

~~10 Per Central Intelligence Agency World Factbook figures.~~
~~11 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash~~
~~Update #25,” October 31, 2023.~~
~~12 Testimony~~Israel is piping water to areas in central and southern Gaza, but supply to northern Gaza remains cut off.15 Israeli officials have stated that they have prevented humanitarian fuel shipments into Gaza because of concerns that Hamas might divert the fuel for its military efforts; some observers have pointed to evidence that Hamas has hoarded much of the fuel currently inside Gaza.16 U.N. officials say that they need some level of fuel to conduct civilian relief efforts. Israeli officials have claimed that Hamas could provide life-sustaining supplies to 9 Secretary Blinken’s October 31, 2023 testimony before the Senate Appropriations Committee, available at https://www.cq.com/doc/congressionaltranscripts-7867772?3. available at https://www.cq.com/doc/congressionaltranscripts-7867772?3.
13 10 Nina Kravinsky and Leila Fadel, “Americans in Gaza feel abandoned by their government,” NPR, October 27, 2023; Nina Kravinsky and Leila Fadel, “Americans in Gaza feel abandoned by their government,” NPR, October 27, 2023;
Joanna Slater, “Hundreds of Americans trapped in Gaza with ‘no safe place for us to go,’” Joanna Slater, “Hundreds of Americans trapped in Gaza with ‘no safe place for us to go,’” Washington Post, October , October
20, 2023. 20, 2023.
~~14 Lawahez Jabari and Doha Madani, “First civilians leave Gaza through Rafah border crossing into Egypt,” NBC~~
~~News, November 1, 2023.~~
1511 “Transcript: Jon Finer, Deputy National Security Adviser, on ‘Face the Nation,’ Nov. 5, 2023,” CBS News. 12 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash Update #31,” November 6, 2023. 13 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash
Update #25,” October 31, 2023.Update #25,” October 31, 2023.
16 14 White House, “U.S. Announcement of Humanitarian Assistance to the Palestinian People,” October 18, 2023; Brett White House, “U.S. Announcement of Humanitarian Assistance to the Palestinian People,” October 18, 2023; Brett
Samuels, “Biden announces humanitarian aid deal for Gaza,” Samuels, “Biden announces humanitarian aid deal for Gaza,” The Hill, October 18, 2023. , October 18, 2023.
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~~Gaza remained cut off.17 Israeli officials have stated that they have prevented humanitarian fuel~~
~~shipments into Gaza because of concerns that Hamas might divert the fuel for its military efforts;~~
~~some observers have pointed to evidence that Hamas has hoarded much of the fuel currently~~
~~inside Gaza.18 U.N. officials say that they need some level of fuel to conduct civilian relief~~
~~efforts. Israeli officials have claimed that Hamas could provide life-sustaining supplies to~~
~~civilians,19~~15 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash Update #31,” November 6, 2023. 16 Michelle Nichols, “Israel’s military tells UN in Gaza: ask Hamas for fuel,” Reuters, October 24, 2023; Matthew Rosenberg and Maria Abi-Habib, “As Gazans Scrounge for Food and Water, Hamas Sits on a Rich Trove of Supplies,” New York Times, October 27, 2023. Congressional Research Service 3 Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress civilians,17 and announced plans on October 29 to permit significantly increased non-fuel and announced plans on October 29 to permit significantly increased non-fuel
humanitarian supplies through Rafah to areas of southern Gaza that can accommodate IDPs.humanitarian supplies through Rafah to areas of southern Gaza that can accommodate IDPs.2018
Reportedly, more than 1,400 Israelis (and at least 36 U.S. citizens in Israel) and Reportedly, more than 1,400 Israelis (and at least 36 U.S. citizens in Israel) and ~~8,500~~ more than 10,000 Palestinians Palestinians
in Gaza had been killed as of in Gaza had been killed as of ~~October 31.21~~November 6.19 Hamas and other militants aligned with them could be Hamas and other militants aligned with them could be
holding some 240 to 250 persons in Gaza that were taken hostage in the October 7 attacks,holding some 240 to 250 persons in Gaza that were taken hostage in the October 7 attacks,2220 and and
Secretary Blinken has said that some of the 10 Americans unaccounted for are Secretary Blinken has said that some of the 10 Americans unaccounted for are ~~part of~~among those being those being
held hostage.held hostage.2321 A Hamas spokesman has said that the group “is prepared to release non-Israeli A Hamas spokesman has said that the group “is prepared to release non-Israeli
hostages once conditions allow movement in Gaza.”hostages once conditions allow movement in Gaza.”2422 To date, Hamas has released four hostages, To date, Hamas has released four hostages,
including two Americans. Hamas spokespeople have variously said that Hamas would not release including two Americans. Hamas spokespeople have variously said that Hamas would not release
Israeli captives without a cease-fireIsraeli captives without a cease-fire and/or fuel shipments into Gaza, , and that it would release all hostages if Israel released all and that it would release all hostages if Israel released all
Palestinian prisoners in its custody. On October 30, Israeli forces in Gaza rescued an Israeli Palestinian prisoners in its custody. On October 30, Israeli forces in Gaza rescued an Israeli
soldier who was being held hostage.soldier who was being held hostage. ~~Israelis have debated whether their government’s military~~
~~objectives against Hamas conflict with or complement its goals to recover hostages.25~~
Key Developments
Israel has formed an emergency unity government and “war management cabinet” that includes has formed an emergency unity government and “war management cabinet” that includes
key opposition figure Benny Gantz (a former defense minister and chief IDF commander) key opposition figure Benny Gantz (a former defense minister and chief IDF commander)
alongside Prime Minister Netanyahu and Defense Minister Yoav Gallant.alongside Prime Minister Netanyahu and Defense Minister Yoav Gallant.~~26 With some Israeli~~
~~ground operations ongoing on October 28, Netanyahu announced the “second stage of the war,~~

~~17 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash~~
~~Update #25,” October 31, 2023.~~
~~18 Michelle Nichols, “Israel's military tells UN in Gaza: ask Hamas for fuel,” Reuters, October 24, 2023; Matthew~~
~~Rosenberg and Maria Abi-Habib, “As Gazans Scrounge for Food and Water, Hamas Sits on a Rich Trove of Supplies,”~~
New York Times, October 27, 2023.
1923 Netanyahu’s stated objective is “To destroy the military and governmental capabilities of Hamas and bring the hostages home.”24 After nearly three weeks of air strikes, Israel began ground operations inside Gaza in late October. As of November 6, Israeli forces reportedly have encircled Gaza City, where they apparently seek to target key nodes of Hamas’s command structure and vast network of tunnels. Israel has reportedly lost approximately 345 soldiers since October 7, with 33 killed since its ground incursion began. Hamas and other Palestinian militants may rely on the tunnels, their knowledge of Gaza’s terrain, and urban warfare tactics to counter Israel’s conventional military superiority. Since the October 7 attacks, Israel has exchanged fire with the Iran-backed Shia Islamist group Lebanese Hezbollah (an FTO) and Palestinian militants across Israel’s northern border with 17 Stephen Kalin, “Israel Says Gaza Has Enough Food, Water, Fuel, Medical Supplies,” Stephen Kalin, “Israel Says Gaza Has Enough Food, Water, Fuel, Medical Supplies,” Wall Street Journal, October , October
29, 2023. 29, 2023.
2018 Israel is reportedly inspecting goods at its border with Egypt before allowing the goods to enter Gaza via Rafah. IDF Israel is reportedly inspecting goods at its border with Egypt before allowing the goods to enter Gaza via Rafah. IDF
Daily Recap: Hamas - Israel War October 29th, 2023 (19:30) - Day 23. See also “Israel agrees to allow 100 trucks of Daily Recap: Hamas - Israel War October 29th, 2023 (19:30) - Day 23. See also “Israel agrees to allow 100 trucks of
humanitarian aid into Gaza each day — official,” humanitarian aid into Gaza each day — official,” Times of Israel, October 31, 2023. , October 31, 2023.
2119 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash
Update #Update #~~25,” October 31~~31,” November 6, 2023; Jim Garamone, “Austin, Blinken Ask for Funds to Defend Embattled Democracies,” , 2023; Jim Garamone, “Austin, Blinken Ask for Funds to Defend Embattled Democracies,”
DOD News, October 31, 2023. Palestinian casualty figures come from the Hamas-controlled health ministry in Gaza. DOD News, October 31, 2023. Palestinian casualty figures come from the Hamas-controlled health ministry in Gaza.
Additionally, Israel reported that the bodies of around 1,500 dead militants had been found as of October 10 in southern Additionally, Israel reported that the bodies of around 1,500 dead militants had been found as of October 10 in southern
Israeli areas recaptured by its military. Israeli areas recaptured by its military.
2220 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash
Update #25,” October 31, 2023; Hamas spokesman Abu Ubaida quoted in Harriet Sherwood, “Hamas says 250 people Update #25,” October 31, 2023; Hamas spokesman Abu Ubaida quoted in Harriet Sherwood, “Hamas says 250 people
held hostage in Gaza,” held hostage in Gaza,” The Guardian, October 16, 2023. , October 16, 2023.
2321 Department of State, “Secretary Antony J. Blinken Remarks to the Press,” October 20, 2023. Department of State, “Secretary Antony J. Blinken Remarks to the Press,” October 20, 2023.
2422 “Hamas says it is preparing to release non-Israeli hostages,” NBC News, October 16, 2023. “Hamas says it is preparing to release non-Israeli hostages,” NBC News, October 16, 2023.
~~25 Adam Goldman and Eric Schmitt, “Conflict’s Tall Order: Smash Foes While Saving Hostages,” New York Times,~~
~~November 1, 2023; Julia Frankel, “Israel says its war can both destroy Hamas and rescue hostages. Their families are~~
~~less certain,” Associated Press, October 28, 2023.~~
2623 Barak Ravid, “Israel’s Netanyahu forms unity government with ex-Defense Minister Gantz,” Axios, October 11, Barak Ravid, “Israel’s Netanyahu forms unity government with ex-Defense Minister Gantz,” Axios, October 11,
2023; and Jeremy Sharon, “Netanyahu, Gantz agree to form emergency unity government,” 2023; and Jeremy Sharon, “Netanyahu, Gantz agree to form emergency unity government,” Times of Israel, October , October
11, 2023. 11, 2023.
24 “Netanyahu says the Gaza war has entered a new stage and will be ‘long and difficult,’” Associated Press, October 28, 2023. Congressional Research Service Congressional Research Service

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~~whose objectives are clear: To destroy the military and governmental capabilities of Hamas and~~
~~bring the hostages home.”27 Hamas and other Palestinian militants may rely on their knowledge~~
~~of Gaza’s terrain, a vast network of tunnels, and urban warfare tactics to counter Israel’s~~
~~conventional military superiority.~~
~~Since the October 7 attacks, Israel has exchanged fire with the Iran-backed Shia Islamist group~~
Lebanese Hezbollah (an FTO) and Palestinian militants across Israel’s northern border with
Lebanon. Israel has ordered the evacuation of more than 40 communities in northern Israel. If Lebanon. Israel has ordered the evacuation of more than 40 communities in northern Israel. If
these clashes escalate, Hezbollah’s arsenal of more than 100,000 missiles and rockets could pose these clashes escalate, Hezbollah’s arsenal of more than 100,000 missiles and rockets could pose
a grave threat to Israeli strategic sites and population centers.a grave threat to Israeli strategic sites and population centers.2825 Israel has also reportedly Israel has also reportedly
exchanged some cross-border fire with “pro-Hezbollah fighters” in southern Syria.exchanged some cross-border fire with “pro-Hezbollah fighters” in southern Syria.2926
Officials from the Officials from the Palestinian Authority/Palestine Liberation Organization (PA/PLO), based , based
in the West Bank, appear to be in a difficult position. While they do not endorse Hamas, they in the West Bank, appear to be in a difficult position. While they do not endorse Hamas, they
likely remain mindful of the sizable population of Palestinians who support confronting Israel.likely remain mindful of the sizable population of Palestinians who support confronting Israel.30
~~While PA President and PLO Chairman Mahmoud Abbas has criticized Israel’s actions, he has~~
~~also said that no organization other than the PLO represents the Palestinian people.31 Amid rising~~
~~tensions and violence between Palestinians and Israelis in the West Bank, President Biden has~~
~~called for attacks by “extremist settlers” against Palestinians to stop.32~~27 Amid rising tensions and violence between Palestinians and Israelis in the West Bank, President Biden has called for attacks by “extremist settlers” against Palestinians to stop.28 During Secretary Blinken’s early November visit to Israel, he said he received and planned to monitor a “clear commitment” from Israel’s government to act against extremist violence in the West Bank.29
As continuing conflict has increased civilian casualties in Gaza, some regional and international As continuing conflict has increased civilian casualties in Gaza, some regional and international
actors have grown more actors have grown more publicly critical of Israeli and U.S. policy. critical of Israeli and U.S. policy. Egypt, , Saudi Arabia, , Jordan, , Qatar,
~~and the United Arab Emirates have jointly insisted on an immediate cease-fire.33 Action at the~~
~~United Nations has reflected broader concerns around the world. To date, multiple draft~~ ~~U.N.~~
~~Security Council~~ resolutions on the conflict have failed. On October 27, the U.N. ~~General~~
~~Assembly~~ ~~adopted a resolution (opposed by the United States) calling for an “immediate, durable~~
~~and sustained humanitarian truce leading to a cessation of hostilities,” and for the protection of~~
~~civilians under international law (including the release of all civilians illegally held captive).34~~
~~One observer has noted that developments related to the ongoing conflict could affect U.S.~~
~~international influence with key regional and global actors.35~~
~~Selected Open Questions~~
~~Recovering Hostages.~~ ~~Can Israel do it? If so, how, and would the United States have a role?~~
~~Under what conditions might Hamas release or harm hostages—whether Israeli, dual-national, or~~
~~foreign? To what degree do Israeli military operations put some hostages at risk?~~

~~27 “Netanyahu says the Gaza war has entered a new stage and will be ‘long and difficult,’” Associated Press, October~~
~~28, 2023.~~
28and the United Arab Emirates have jointly insisted on an immediate cease-fire.30 Qatar is facilitating indirect talks on hostage-related issues between Israeli and U.S. officials and Hamas. On November 4 while visiting Jordan, Secretary Blinken met counterparts from these countries and the PA. While acknowledging common interests about protecting civilians and increasing aid flows to Gaza, Blinken differed with his interlocutors on the issue of a cease-fire.31 Although popular sentiment in these Arab states has placed pressure on their governments to publicly oppose Israeli actions in Gaza,32 one former U.S. official has said that many Arab leaders have told him that “Hamas must be destroyed in Gaza.”33 During previous Israel-Hamas conflicts, many Arab states also publicly distanced themselves from Israel, only to resume earlier interactions with Israel after the conflict. It is unclear whether the seemingly broader scope and intensity of this conflict could lead to more lasting changes in Israel-Arab state relations. Action at the United Nations has reflected broader concerns around the world. To date, multiple draft U.N. Security Council resolutions on the conflict have failed. On October 27, the U.N. General Assembly adopted a resolution (opposed by the United States) calling for an “immediate, durable and sustained humanitarian truce leading to a cessation of hostilities,” and for the protection of civilians under international law (including the release of all civilians 25 Adi Hashmonai, “Israel Plans to Evacuate Communities Close to Border with Lebanon, Many Refuse to Leave,” Adi Hashmonai, “Israel Plans to Evacuate Communities Close to Border with Lebanon, Many Refuse to Leave,”
Haaretz, October 17, 2023. , October 17, 2023.
2926 “Israel strikes kill 8 Syria troops, hit Aleppo airport: defence ministry,” Agence France Presse, October 25, 2023. “Israel strikes kill 8 Syria troops, hit Aleppo airport: defence ministry,” Agence France Presse, October 25, 2023.
3027 Mohammad al-Kassim, “PA President Mahmoud Abbas MIA as Hamas wages war against Israel,” Mohammad al-Kassim, “PA President Mahmoud Abbas MIA as Hamas wages war against Israel,” Ynetnews, ,
October 10, 2023. October 10, 2023.
~~31 “President Abbas discusses difficult developments in Palestine with Venezuelan counterpart,” WAFA News Agency,~~
~~October 16, 2023.~~
~~32 White House, “Remarks by President Biden and Prime Minister Anthony Albanese of Australia in Joint Press~~
~~Conference,” October 25, 2023.~~
3328 White House, “Remarks by President Biden and Prime Minister Anthony Albanese of Australia in Joint Press Conference,” October 25, 2023. 29 Department of State, “Secretary Antony J. Blinken at a Press Availability,” Tel Aviv, Israel, November 3, 2023. 30 The New Arab, “Arab group at UN ‘doubling efforts to secure Gaza ceasefire,’” October 25, 2023. The New Arab, “Arab group at UN ‘doubling efforts to secure Gaza ceasefire,’” October 25, 2023.
~~34 Resolution available at https://documents-dds-~~
~~ny.un.org/doc/UNDOC/LTD/N23/319/20/PDF/N2331920.pdf?OpenElement.~~
~~35 Hugo Dixon, “Israel war tests US appeal to global swing states,” Reuters, October 30,~~ 31 Matthew Lee, “Arab leaders push for an Israel-Hamas cease-fire now. Blinken says that could be counterproductive,” Associated Press, November 4, 2023. 32 International Crisis Group, “The Gaza War Reverberates Across the Middle East,” November 4, 2023. 33 Dennis Ross, “I Might Have Once Favored a Cease-Fire with Hamas, but Not Now,” New York Times, October 27, 2023. 2023.
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Israeli Military Ground Operations in Gaza. If ground operations continue, how long and
~~extensive would they be, and with what results and human costs? To what extent would Hamas~~
~~officials, affiliates, and sympathizers be killed, captured, expelled, or otherwise proven not to~~
~~pose a threat for Israel to declare victory, or to consider~~illegally held captive).34 One observer has noted that developments related to the ongoing conflict could affect U.S. international influence with key regional and global actors.35 Some open questions include: What would constitute “victory” for Israel in Gaza? Determining that Hamas’s rule over Gaza or its ability to Hamas’s rule over Gaza or its ability to
threaten Israel threaten Israel is eliminated or sufficiently reduced? What effect might U.S. and international concerns regarding civilian suffering and casualties have on the duration and nature of Israeli military operations?~~eliminated or sufficiently reduced? What will the conflict mean for governance of~~
~~Gaza’s more than two million people? If Hamas is ousted, who might assume responsibility?~~
~~How will the conflict affect support in Gaza for Hamas? Can military operations effectively~~
~~remove threats from people in Gaza with whom Israel has a long, complicated history of violence~~
~~and uneasy coexistence? What might reconstruction cost and who would pay for it?~~
Potential Escalation Between Israel and Hezbollah or Other Actors. Could a major second
~~front materialize? What might trigger a broader conflict (e.g., an Israeli operation that endangers~~
~~Hamas’s position in Gaza; unrest in the West Bank and/or Jerusalem; choices or miscalculations~~
~~at the Lebanese border or involving Iran; strikes involving groups in Syria, Iraq, or Yemen)?~~
~~Longer-term Outcomes.~~ What might be the longer-term ramifications for U.S. priorities such as What might be the longer-term ramifications for U.S. priorities such as
regional stability, security for Israel, countering the reach of Iran and its allies, and quality of life regional stability, security for Israel, countering the reach of Iran and its allies, and quality of life
~~for all affected people? How will U.S. support for Israel in the current conflict affect its standing~~
~~in the region? In the context of Israel’s future relations with regional Arab actors, can U.S.-Israel-~~
~~Saudi diplomacy resume, and would efforts toward an Israeli-Palestinian two-state solution be~~
~~viable?~~
~~U.S. Policy~~
~~The United States~~ for all affected people? Under what circumstances and to what end might U.S.-backed diplomacy resume between Israel, Palestinians, and Arab states? U.S. Policy Israeli Military Operations and Potential Pauses The U.S. government has stated its support for military operations by Israel to defend government has stated its support for military operations by Israel to defend
itself in line with international law, including in Gaza. U.S. officials have publicly disagreed with itself in line with international law, including in Gaza. U.S. officials have publicly disagreed with
calls for a cease-fire, citing Israel’s right to defend itself. Nevertheless, U.S. officials have voiced calls for a cease-fire, citing Israel’s right to defend itself. Nevertheless, U.S. officials have voiced
support for “humanitarian pauses”—support for “humanitarian pauses”—possibly more limited in time and geographical scope—that might more limited in time and geographical scope—that might
safely facilitate aid deliverysafely facilitate aid delivery or serve other purposes. On November 1, President Biden voiced support for a pause that could facilitate hostage releases.36 ~~.36~~
President Biden, Secretary of State President Biden, Secretary of State ~~Antony~~ Blinken, Secretary of Defense Lloyd Austin, and Blinken, Secretary of Defense Lloyd Austin, and
several other Administration officials have visited Israel and other countries in the region since several other Administration officials have visited Israel and other countries in the region since
the outbreak of the outbreak of conflict. On November 3, during Secretary Blinken’s latest trip to Israel, he reiterated the U.S. view that Israel has the right and obligation to defend itself to prevent the October 7 attacks from happening again, while remarking that “the way Israel does so matters,” and reiterating U.S. interests in protecting civilians and bringing assistance to them.37 According to some reports, U.S. officials have privately expressed to Israeli counterparts that they may have limited time for operations to root out Hamas in Gaza before international uproar over civilian suffering and calls for a cease-fire reach “a tipping point.”38 Apparently, U.S. officials have advised Israelis that some measures might reduce civilian casualties, including improvements in targeting and advance intelligence gathering, efforts to separate civilians from militants, and the use of smaller bombs.39 On November 3, Blinken also reiterated U.S. support for potential humanitarian pauses: A number of legitimate questions were raised in our discussions today, including how to use any period of pause to maximize the full humanitarian assistance, how to connect a pause to the release of hostages, how to ensure that Hamas doesn’t use these pauses or arrangements to its own advantage. These are issues that we need tackle urgently, and we believe they can be solved.40 34 Resolution available at https://documents-dds-ny.un.org/doc/UNDOC/LTD/N23/319/20/PDF/N2331920.pdf?OpenElement. 35 Hugo Dixon, “Israel war tests US appeal to global swing states,” Reuters, October 30, 2023. 36 White House, “Remarks by President Biden at a Campaign Reception | Minneapolis, MN,” November 1, 2023. 37 Department of State, “Secretary Antony J. Blinken at a Press Availability,” Tel Aviv, Israel, November 3, 2023. 38 “US warns Israel amid Gaza carnage it doesn’t have long before support erodes,” CNN, November 3, 2023. 39 Adam Entous et al., “U.S. Is Urging Israel to Limit Gaza Fatalities,” New York Times, November 5, 2023. 40 Department of State, “Secretary Antony J. Blinken at a Press Availability,” Tel Aviv, Israel, November 3, 2023. Congressional Research Service 6 Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress The same day, Prime Minister Netanyahu stated, “Israel refuses any temporary ceasefire that does not involve the release of the kidnapped Israelis. Israel is not allowing fuel into Gaza and objects to funds being transferred into the Strip.”41 In a November 6 interview, Netanyahu clarified that Israel would pause hostilities were Hamas to agree to the release of hostages, and that Israel is open to “little pauses, an hour here, an hour there” short of a general cease-fire to enable humanitarian goods to come in. He argued that “the only thing that works on these criminals in Hamas is the military pressure that we're exerting.”42 Potential Post-Conflict Scenarios In addition to reportedly advising Israel on how it conducts military operations, U.S. officials also have engaged in diplomatic talks with Israel and other regional partners over the future governance of Gaza. ~~conflict. During Secretary Blinken’s trip, he outlined “four key [U.S.] objectives:~~
~~to make clear that the United States stands with Israel; to prevent the conflict from spreading to~~
~~other places; to work on securing the release of hostages, including American citizens; and to~~
~~address the humanitarian crisis that exists in Gaza.”37~~
~~Also, in October 31 testimony before the Senate Appropriations Committee, Secretary Blinken~~
~~said, “We have about 400 American citizens and their family members, so it's roughly 1,000~~
~~people who are stuck in Gaza and want to get out. I’m focused on this intensely,” adding that~~
~~about another “5,000 third-country nationals from other countries [are] seeking to get out.”38~~
In an October 15 interview, President Biden expressed support for Israeli efforts to eliminate In an October 15 interview, President Biden expressed support for Israeli efforts to eliminate
Hamas—calling it a “group of people who have engaged in barbarism that is as consequential as Hamas—calling it a “group of people who have engaged in barbarism that is as consequential as
the Holocaust.” When asked in the same interview if he would “support Israeli occupation of the Holocaust.” When asked in the same interview if he would “support Israeli occupation of
Gaza at this point,” President Biden said, “I think it’d be a big mistake.” Later in the interview, he Gaza at this point,” President Biden said, “I think it’d be a big mistake.” Later in the interview, he
said that “the extreme elements of Hamas don’t represent all the said that “the extreme elements of Hamas don’t represent all the Palestinian people,” and that “there needs to be a Palestinian authority. There needs to be a path to a Palestinian state.”43 In his October 31 testimony, Secretary Blinken said that “what would make the most sense would be for an effective and revitalized Palestinian Authority to have governance, and ultimately, security responsibility for Gaza,” but that if doing so “in one step” cannot happen, “other, temporary arrangements” could involve other regional countries and/or international agencies.44 In a November 6 interview, Prime Minister Netanyahu said, “I think Israel will, for an indefinite period will have the overall security responsibility because we've seen what happens when we don't have it.”45 While discussing potential post-conflict scenarios with Blinken in the West Bank on November 5, PA President Mahmoud Abbas stated the PA’s willingness to “fully assume our responsibilities within the framework of a comprehensive political solution that includes all of the West Bank, including East Jerusalem, and the Gaza Strip.”46 In 2005, Israel withdrew its military presence from Gaza and ceded control to the PA. Two years later in 2007, the PA lost its hold on the territory in an armed struggle with Hamas, which was founded in Gaza in the 1980s and has maintained a considerable base of support there since. Some analysts have questioned whether the PA could (or would) assume control of Gaza as a result of Israeli military action: one has argued that being seen “as the agent of Israeli invasion and U.S. complicity—which is how most Palestinians would see it—might be close to suicidal.”47 According to one media report, U.S. officials believe that some form of Arab state backing would be critical to helping lay the groundwork for what might follow Hamas in governing Gaza. However, Arab government leaders reportedly are resisting U.S. suggestions that they play a 41 “Israel, US clash over ‘humanitarian pauses,’ Blinken rejects ceasefire calls,” Jerusalem Post, November 4, 2023. 42 Alexandra Hutzler, “Netanyahu to ABC’s Muir: ‘No cease-fire’ without release of hostages,” ABC News, November 6, 2023. 43 Scott Pelley, “President Joe Biden: The 2023 60 Minutes interview transcript.” 44~~Palestinian people,” and that~~

~~36 White House, “Press Briefing by Press Secretary Karine Jean-Pierre, National Economic Council Director Lael~~
~~Brainard, and NSC Coordinator for Strategic Communications John Kirby,” October 26, 2023.~~
~~37 U.S. Department of State, “Secretary Antony J. Blinken Remarks to the Press,” Cairo, Egypt, October 15, 2023.~~
38 Testimony available at https://www.cq.com/doc/congressionaltranscripts-7867772?3. Testimony available at https://www.cq.com/doc/congressionaltranscripts-7867772?3.
45 Hutzler, “Netanyahu to ABC’s Muir: ‘No cease-fire’ without release of hostages.” 46 “Receiving US State Secretary, President Abbas demands immediate end to Israel's aggression on Gaza,” WAFA News Agency, November 5, 2023. 47 Nathan J. Brown, “There Might Be No Day After in Gaza,” Carnegie Endowment for International Peace, November 3, 2023. Congressional Research Service 7 ~~Congressional Research Service~~

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~~“there needs to be a Palestinian authority. There needs to be a path to a Palestinian state.”39 In his~~
~~October 31 testimony, Secretary Blinken said that “what would make the most sense would be for~~
~~an effective and revitalized Palestinian Authority to have governance, and ultimately, security~~
~~responsibility for Gaza,” but that if doing so “in one step” cannot happen, “other, temporary~~
~~arrangements” could involve other regional countries and/or international agencies.40~~
larger role—expressing that they believe Gaza to be “a problem largely of Israel’s own making.”48 Questions may persist about the credibility of any post-conflict outcome that does not provide some basic form of (1) order and security, (2) Palestinian autonomy (connected to aspirations for statehood), (3) and Israeli capacity to monitor and prevent the rise of new threats. It is unclear whether or not an international or multilateral coalition can facilitate such an outcome—particularly given problems over the long history of Israeli-Palestinian conflict with implementing such proposals—or whether or not such an outcome can occur without some continuity in personnel who have run key civil services under Hamas rule. U.S. Military Deployments
Since October 7, President Biden has positioned additional U.S. military assets and personnel to Since October 7, President Biden has positioned additional U.S. military assets and personnel to
the Middle East in an apparent effort to bolster Israel’s defense, deter Iran and Iranian-supported the Middle East in an apparent effort to bolster Israel’s defense, deter Iran and Iranian-supported
groups from widening the war, support select Arab partners, and prepare for contingencies, such groups from widening the war, support select Arab partners, and prepare for contingencies, such
as an evacuation of U.S. citizens in Israel and Gaza. as an evacuation of U.S. citizens in Israel and Gaza.
Navy and Marine Corps Forces. The United States has repositioned the The United States has repositioned the USS Gerald R. Ford
carrier strike group, which was already in the Mediterranean, to the Eastern Mediterranean, and carrier strike group, which was already in the Mediterranean, to the Eastern Mediterranean, and
directed the directed the USS Dwight D. Eisenhower carrier strike group carrier strike group~~, which was starting a previously~~
~~scheduled deployment from Norfolk,~~ to the Persian Gulf via the Mediterranean. Each strike group to the Persian Gulf via the Mediterranean. Each strike group
includes an aircraft carrier with an embarked carrier air wing, along with one cruiser and three includes an aircraft carrier with an embarked carrier air wing, along with one cruiser and three
destroyers. Each carrier air wing includes about 40 F/A-18 strike fighters and about 20 other destroyers. Each carrier air wing includes about 40 F/A-18 strike fighters and about 20 other
~~support aircraft. The cruisers and destroyers can conduct air defense operations and can be armed~~
~~with Tomahawk land-attack cruise missiles~~support aircraft. Some of the cruisers and destroyers are additionally . Some of the cruisers and destroyers are additionally
capable of conducting theater-range ballistic missile defense operations. capable of conducting theater-range ballistic missile defense operations.
The United States has repositioned the The United States has repositioned the USS Bataan Amphibious Ready Group (ARG) from the Amphibious Ready Group (ARG) from the
Persian Gulf to the Red Sea. The ARG consists of three amphibious assault ships—the “large Persian Gulf to the Red Sea. The ARG consists of three amphibious assault ships—the “large
deck” amphibious assault ship deck” amphibious assault ship USS Bataan, which looks like a medium-sized aircraft carrier, and , which looks like a medium-sized aircraft carrier, and
two additional amphibious ships, two additional amphibious ships, USS Mesa Verde and and USS Carter Hall. Embarked across the . Embarked across the
three ships is the 26th Marine Expeditionary Unit (MEU)three ships is the 26th Marine Expeditionary Unit (MEU)~~. A MEU is Marine Corps unit~~ with with
~~approximately 2,400 Marines, their aircraft, ground vehicles, weapons, and supplies. Amphibious~~
~~ships with their embarked Marine forces can be particularly valuable for conducting evacuation~~
~~operations or humanitarian assistance/disaster response (HA/DR) operations~~approximately 2,400 Marines. .
Air Force Aircraft. The United States has also ordered additional F-35, F-15, and F-16 fighter The United States has also ordered additional F-35, F-15, and F-16 fighter
aircraft, and A-10 attack aircraft to the Middle East region. aircraft, and A-10 attack aircraft to the Middle East region.
Army Air and Missile Defense Units. To enhance the air defense capabilities of Arab partners in To enhance the air defense capabilities of Arab partners in
the U.S. Central Command (CENTCOM) area of responsibility, the United States has dispatched the U.S. Central Command (CENTCOM) area of responsibility, the United States has dispatched
a Terminal High-Altitude Area Defense (THAAD) missile defense system to Saudi Arabia, and a Terminal High-Altitude Area Defense (THAAD) missile defense system to Saudi Arabia, and
Patriot air and missile systems to Kuwait, Jordan, Iraq, Qatar, and the United Arab Emirates. Patriot air and missile systems to Kuwait, Jordan, Iraq, Qatar, and the United Arab Emirates.
U.S. Advisors. The United States has sent to Israel several U.S. officers with expertise in The United States has sent to Israel several U.S. officers with expertise in
combatting terrorist groups in urban environments gained from U.S. operations in Iraq and Syria combatting terrorist groups in urban environments gained from U.S. operations in Iraq and Syria
to offer “advice to our Israeli partners on best practices for mitigating civilian harm.” to offer “advice to our Israeli partners on best practices for mitigating civilian harm.” 4149
U.S. Military Response to Iranian-Supported Groups
Iranian officials have threatened to become involved in response to the Israeli operation in Gaza, Iranian officials have threatened to become involved in response to the Israeli operation in Gaza,
with the foreign minister reportedly stating in mid-October that Iran “cannot remain a spectator” with the foreign minister reportedly stating in mid-October that Iran “cannot remain a spectator”

~~39 Scott Pelley, “President Joe Biden: The 2023 60 Minutes interview transcript.”~~
~~40 Testimony available at https://www.cq.com/doc/congressionaltranscripts-7867772?3.~~
4148 Lee, “Arab leaders push for an Israel-Hamas cease-fire now.” 49 U.S. Department of Defense, “Senior Defense Official, Senior Military Official Hold a Background Briefing on U.S. Department of Defense, “Senior Defense Official, Senior Military Official Hold a Background Briefing on
Israel,” October 23, 2023. Israel,” October 23, 2023.
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to such operations. to such operations.4250 In late October, however, he said, “We don’t want this war to spread out.” In late October, however, he said, “We don’t want this war to spread out.”4351
Iran supports several proxy non-state actors across the Middle East, and armed groups in Iraq and Iran supports several proxy non-state actors across the Middle East, and armed groups in Iraq and
Yemen have expressed support for the Hamas attacks on Israel and pledged support to Yemen have expressed support for the Hamas attacks on Israel and pledged support to
Palestinians. Some have threatened military action against U.S. interests if the United States Palestinians. Some have threatened military action against U.S. interests if the United States
intervenes militarily in the Israel-Hamas war. Some groups have already conducted military intervenes militarily in the Israel-Hamas war. Some groups have already conducted military
operations directed at U.S. forces in the Middle East and/or possibly Israel. In Iraq, since October operations directed at U.S. forces in the Middle East and/or possibly Israel. In Iraq, since October
7, U.S. forces have faced repeated drone attacks, leading to several injuries. Iran-allied Houthis in 7, U.S. forces have faced repeated drone attacks, leading to several injuries. Iran-allied Houthis in
Yemen have reportedly launched multiple drones Yemen have reportedly launched multiple drones and missiles toward Israel.toward Israel.4452 On October 25, President Biden On October 25, President Biden
warned Iran not to threaten U.S. forces, saying, “My warning to the Ayatollah was that if they warned Iran not to threaten U.S. forces, saying, “My warning to the Ayatollah was that if they
continue to move against those troops, we will respond. And he should be prepared.”continue to move against those troops, we will respond. And he should be prepared.”4553 On On
October 26, Secretary Austin stated that U.S. forces struck two facilities in eastern Syria used by October 26, Secretary Austin stated that U.S. forces struck two facilities in eastern Syria used by
Iran and its allies for “ongoing and mostly unsuccessful attacks against U.S. personnel in Iraq and Iran and its allies for “ongoing and mostly unsuccessful attacks against U.S. personnel in Iraq and
~~Syria by Iranian-backed militia groups.”46~~
~~U.S. Expedited Arms Deliveries to Israel~~
~~Since October 7, the Biden Administration has expedited the provision of U.S. military and~~
~~security assistance to Israel. According to one report, dozens of military and civilian cargo aircraft~~
~~have landed in Israel as part of a U.S. emergency airlift of munitions to Israel.47 As of October 31,~~
~~shipments have included: (1) small-diameter bombs (250 pounds) made by Boeing under a 2021~~
~~$735 million Direct Commercial Sale;48~~Syria by Iranian-backed militia groups.”54 As of November 5, the Department of Defense (DOD) reported that there have been 38 attacks on U.S. military personnel in U.S. Central Command’s area of responsibility since October 7, including 21 attacks since the October 26 U.S. strikes in eastern Syria. U.S. defense officials have stated that at least 45 Americans are reporting minor injuries or potential traumatic brain injuries from Iran-supported attacks against U.S. forces.55 U.S. Expedited Arms Deliveries to Israel Since October 7, the Biden Administration has expedited the provision of U.S. military and security assistance to Israel, including: (1) small-diameter bombs (250 pounds); (2) interceptors to replenish Israel’s Iron Dome (a U.S.- (2) interceptors to replenish Israel’s Iron Dome (a U.S.-
supported short-range anti-rocket, anti-mortar, and anti-artillery system);supported short-range anti-rocket, anti-mortar, and anti-artillery system);49 (3) Joint Direct Attack (3) Joint Direct Attack
Munitions (JDAMs - a kit that converts unguided armaments into satellite-guided bombs);Munitions (JDAMs - a kit that converts unguided armaments into satellite-guided bombs);5056 and and
(4) 155mm artillery shells.(4) 155mm artillery shells.51
~~After receiving two bipartisan congressional letters52 calling on the Administration~~57 The Administration also is to provide to provide
Israel with two Iron Dome batteries previously purchased by the U.S. ArmyIsrael with two Iron Dome batteries previously purchased by the U.S. Army~~, the Administration~~
~~announced on October 24 that it would transfer the batteries to Israel; the Pentagon did not~~

42. Humanitarian Assistance for Palestinians During President Biden’s October 18 visit to Israel, he announced $100 million in U.S. humanitarian assistance for Gaza and the West Bank, to “help support over a million displaced and conflict-affected people with clean water, food, hygiene support, medical care, and other 50 “Iran warns it may not ‘remain a spectator in Israel-Hamas conflict – as U.S. urges Iran not to intervene,” “Iran warns it may not ‘remain a spectator in Israel-Hamas conflict – as U.S. urges Iran not to intervene,” Forbes, ,
October 15, 2023. October 15, 2023.
4351 “Iran does not want Israel-Hamas conflict to spread, foreign minister says,” Reuters, October 29, 2023. “Iran does not want Israel-Hamas conflict to spread, foreign minister says,” Reuters, October 29, 2023.
4452 “Yemen’s Huthi rebels claim drone attack on Israel,” Agence France Presse, October 31, 2023. “Yemen’s Huthi rebels claim drone attack on Israel,” Agence France Presse, October 31, 2023.
4553 White House, “Remarks by President Biden and Prime Minister Anthony Albanese of Australia in Joint Press White House, “Remarks by President Biden and Prime Minister Anthony Albanese of Australia in Joint Press
Conference,” October 25, 2023. Conference,” October 25, 2023.
4654 Department of Defense, “Secretary of Defense Lloyd J. Austin III’s Statement on U.S. Military Strikes in Eastern Department of Defense, “Secretary of Defense Lloyd J. Austin III’s Statement on U.S. Military Strikes in Eastern
Syria,” October 26, 2023. Syria,” October 26, 2023.
~~47 Avi Scharf, “OSINT Shows U.S. Deploying More Arms and Troops to Israel, Cyprus and Jordan,” Haaretz, October~~
~~24, 2023.~~
~~48 Anthony Capaccio, “Boeing Sped 1,000 Smart Bombs to Israel After Hamas Attacks,” Bloomberg, October 10,~~
~~2023.~~
~~49 White House, “Remarks by President Biden on the Terrorist Attacks in Israel,” October 10, 2023.~~
5055 Courtney Kube, “At least 45 U.S. service members may have been injured in Iran-linked attacks,” NBC News, November 6, 2023. 56 “The US is moving quickly to boost Israel “The US is moving quickly to boost Israel'’s military. A look at what assistance it’s providing,” Associated Press, s military. A look at what assistance it’s providing,” Associated Press,
October 14, 2023. October 14, 2023.
5157 Reportedly, the Administration has decided to redirect these shipments, which had been taken from the U.S. Reportedly, the Administration has decided to redirect these shipments, which had been taken from the U.S.
stockpile in Israel (WRSA-I) to provide to Ukraine, back to Israel for their use. See, Barak Ravid, “Scoop: U.S. to send stockpile in Israel (WRSA-I) to provide to Ukraine, back to Israel for their use. See, Barak Ravid, “Scoop: U.S. to send
Israel artillery shells initially destined for Ukraine,” Axios, October 19, 2023. Israel artillery shells initially destined for Ukraine,” Axios, October 19, 2023.
~~52 See, Senator Jacky Rosen, “Rosen Leads Bipartisan Group of Senate Armed Services Committee Members in~~
~~Requesting Additional Iron Dome Batteries for Israel,” October 11, 2023 and Representative Brian Mast, “Mast,~~
~~Moskowitz, Bipartisan Coalition Urge DoD to Send Additional Iron Dome System to Israel,” October 16, 2023.~~
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~~publicly indicate the terms and legal authorities underpinning the planned transfer.53 According to~~
~~a report, DOD intends to lease the batteries to Israel with the United States retaining ownership.54~~
~~Humanitarian Assistance for Palestinians~~
~~During President Biden’s October 18 visit to Israel, he announced $100 million in U.S.~~
~~humanitarian assistance for Gaza and the West Bank, to “help support over a million displaced~~
~~and conflict-affected people with clean water, food, hygiene support, medical care, and other~~
~~essential needs” via “trusted partners including UN agencies and international NGOs.”55 On~~
~~October 24, Representative James Comer, Chair of the House Committee on Oversight and~~
~~Accountability, joined with 23 other Representatives to request documents from the U.S. Agency~~
~~for International Development, in an apparent effort to learn~~essential needs” via “trusted partners including UN agencies and international NGOs.”58 Some lawmakers have sponsored legislation or written letters calling for a halt to humanitarian aid in Gaza and/or greater monitoring of whether or not any U.S. assistance to whether or not any U.S. assistance to
Gaza and the West Bank may previously have been diverted—or be at risk of future diversion—Gaza and the West Bank may previously have been diverted—or be at risk of future diversion—
by Hamas, other FTOs, or their affiliates.by Hamas, other FTOs, or their affiliates.5659 In October 31 testimony before the Senate In October 31 testimony before the Senate
Appropriations Committee, Secretary of State Blinken said that U.S. officials can track and Appropriations Committee, Secretary of State Blinken said that U.S. officials can track and
monitor the humanitarian assistance transiting Egypt’s Rafah crossing into Gaza, after inspection monitor the humanitarian assistance transiting Egypt’s Rafah crossing into Gaza, after inspection
by Israeli and Egyptian officials, by Israeli and Egyptian officials,
to ensure that it’s actually gotten to where it’s supposed to go and not been diverted. To to ensure that it’s actually gotten to where it’s supposed to go and not been diverted. To
date, we don't have reports either from the UN or from Israel that this assistance has been date, we don't have reports either from the UN or from Israel that this assistance has been
diverted from its intended recipients, but it’s something that we're going to track very diverted from its intended recipients, but it’s something that we're going to track very
closely. Can I promise you and this committee that there’ll be 100 percent delivery to the closely. Can I promise you and this committee that there’ll be 100 percent delivery to the
designated recipients? No. There will inevitably be some spillage. We haven't seen it to designated recipients? No. There will inevitably be some spillage. We haven't seen it to
date, but I think we have to anticipate that. But the overwhelming, overwhelming majority date, but I think we have to anticipate that. But the overwhelming, overwhelming majority
of the assistance thus far is getting to people who need it. And we need more.of the assistance thus far is getting to people who need it. And we need more.5760
President’s Budget Request to Congress and Proposed Legislation
In an October 19 Oval Office speech, President Biden announced an emergency supplemental In an October 19 Oval Office speech, President Biden announced an emergency supplemental
budget request to support U.S. partners, including Ukraine, Israel, and Taiwan, and address other budget request to support U.S. partners, including Ukraine, Israel, and Taiwan, and address other
domestic and global issues.domestic and global issues.5861 In sum, the President seeks over In sum, the President seeks over $14 billion in Israel-related in Israel-related
funding, of which funding, of which $8.7 billion would be for direct aid for Israel, including: (1) would be for direct aid for Israel, including: (1) $4 billion in DOD in DOD
funding for Iron Dome and David’s Sling defense systems; (2) funding for Iron Dome and David’s Sling defense systems; (2) $3.5 billion in Foreign Military in Foreign Military
Financing (FMF), all of which may be made available for Israel to spend in-country in local Financing (FMF), all of which may be made available for Israel to spend in-country in local
currency (known as off-shore procurement); and (3) currency (known as off-shore procurement); and (3) $1.2 billion in DOD funding for the Iron in DOD funding for the Iron
Beam laser-based defense system being developed by Israel. Beam laser-based defense system being developed by Israel.
In addition, the President has requested In addition, the President has requested $5.4 billion for DOD’s response to the Israel-Hamas war for DOD’s response to the Israel-Hamas war
in Gaza and related expenses, including: (1) in Gaza and related expenses, including: (1) $4.4 billion that could be transferred among several that could be transferred among several
defense appropriations accounts for various purposes (including the replenishment of U.S. defense appropriations accounts for various purposes (including the replenishment of U.S.
defense equipment, reimbursement of DOD for defense services provided to Israel; expansion of defense equipment, reimbursement of DOD for defense services provided to Israel; expansion of
munitions production; and production of unspecified critical defense articles); (2) munitions production; and production of unspecified critical defense articles); (2) $801.4 million

~~53 Noah Robertson, Bryant Harris and Jen Judson, “US agrees to send two Iron Dome batteries to Israel,”~~ ~~Defense~~
~~News, October 24, 2023.~~
~~54 “US to send two Iron Dome systems back to Israel – sources,” Reuters, October 19, 2023.~~
~~55 White House, “U.S. Announcement of Humanitarian Assistance to the Palestinian People,” October 18, 2023.~~
~~56 Letter~~ for ammunition procurement; and (3) $198.6 million “to mitigate industrial base constraints” through Defense Production Act purchases. To allow for the obligation of requested funds for these intended purposes, the supplemental request also includes proposed provisions that would amend several existing laws. The request would amend the Department of Defense Appropriations Act, 2005 (P.L. 108-287, §12001) to 58 White House, “U.S. Announcement of Humanitarian Assistance to the Palestinian People,” October 18, 2023. For examples of congressional support for humanitarian assistance, see text of October 18 letter from 33 Senators to Secretary Blinken at https://www.murphy.senate.gov/imo/media/doc/un_humanitarian_appeal.pdf; and text of October 20 letter from 130 Representatives to President Biden at https://connolly.house.gov/uploadedfiles/letter_to_president_biden_on_israel.pdf. 59 Text of letter from 24 Representatives to U.S. Agency for International Development Director Samantha Power available at https://www.documentcloud.org/documents/24080806-23-10-23-letter-to-usaid-re-gaza-west-available at https://www.documentcloud.org/documents/24080806-23-10-23-letter-to-usaid-re-gaza-west-
bank-bank-funding-copy. Lawmakers in both chambers have introduced bills during the 118th Congress that would prohibit any U.S. funding for Palestinians in Gaza absent a presidential certification that (among other things) the assistance would not benefit Hamas or other terrorist organizations or affiliates. Senate version: S. 489; House version at https://kustoff.house.gov/sites/evo-subsites/kustoff.house.gov/files/evo-media-document/text-stop-taxpayer-funding-of-hamas-act.pdf. 60~~funding-copy.~~
57 Testimony available at https://www.cq.com/doc/congressionaltranscripts-7867772?3. Testimony available at https://www.cq.com/doc/congressionaltranscripts-7867772?3.
5861 The request is available at https://www.whitehouse.gov/wp-content/uploads/2023/10/Letter-regarding-critical- The request is available at https://www.whitehouse.gov/wp-content/uploads/2023/10/Letter-regarding-critical-
national-security-funding-needs-for-FY-2024.pdf. national-security-funding-needs-for-FY-2024.pdf.
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~~for ammunition procurement; and (3) $198.6 million “to mitigate industrial base constraints”~~
~~through Defense Production Act purchases.~~
~~To allow for the obligation of requested funds for these intended purposes, the supplemental~~
~~request also includes proposed provisions that would amend several existing laws. The request~~
~~would amend the Department of Defense Appropriations Act, 2005 (P.L. 108-287, §12001) to~~
permit the transfer of previously prohibited categories of defense articles to the Government of permit the transfer of previously prohibited categories of defense articles to the Government of
Israel, and temporarily waive limitations on the total value of defense stockpiles located in Israel Israel, and temporarily waive limitations on the total value of defense stockpiles located in Israel
and set aside for Israel’s use per 22 U.S.C. §2321h(b). The request also contains a provision that and set aside for Israel’s use per 22 U.S.C. §2321h(b). The request also contains a provision that
would authorize the Secretary of Defense to provide fewer than 30 days’ notice to Congress when would authorize the Secretary of Defense to provide fewer than 30 days’ notice to Congress when
transferring defense articles to Israel in extraordinary circumstances. transferring defense articles to Israel in extraordinary circumstances.
The request includes over The request includes over $9 billion in funding via global humanitarian accounts that could be in funding via global humanitarian accounts that could be
partly allocated to address the needs of those affected by the crisis in Gaza and Israel (including partly allocated to address the needs of those affected by the crisis in Gaza and Israel (including
in neighboring countries): in neighboring countries): $5.65 billion in International Disaster Assistance (IDA) and in International Disaster Assistance (IDA) and $3.495
billion in Migration and Refugee Assistance (MRA). in Migration and Refugee Assistance (MRA).
On On ~~October 30, House majority members published a draft $14.3 billion~~ November 2, the House passed H.R. 6126, the Israel Security Supplemental Appropriations Act, 2024, (226-196). The bill would provide $14.3 billion in related supplemental supplemental
appropriations appropriations ~~bill~~ for Israel. While the bill closely follows the President’s request for Israel, it for Israel. While the bill closely follows the President’s request for Israel, it
adds, among other provisions, a reporting requirement describing all security assistance provided adds, among other provisions, a reporting requirement describing all security assistance provided
to Israel since the October 7 attacks; raises the cap on presidential drawdown authority (PDA) to to Israel since the October 7 attacks; raises the cap on presidential drawdown authority (PDA) to
$2.5 billion for FY2024; and requires a report to Congress on all uses of FY2024 PDA. The bill $2.5 billion for FY2024; and requires a report to Congress on all uses of FY2024 PDA. The bill
also would offset the proposed additional appropriations for Israel by rescinding $14.3 billion for also would offset the proposed additional appropriations for Israel by rescinding $14.3 billion for
the Internal Revenue Service. The bill does not include appropriations for Ukrainethe Internal Revenue Service. The bill does not include appropriations for Ukraine or for humanitarian assistance. .
Possible Options for Congress
Congress may consider an array of legislative or oversight options related to the ongoing conflict, Congress may consider an array of legislative or oversight options related to the ongoing conflict,
amid rapidly evolving developments and broader regional and U.S. foreign policy considerations. amid rapidly evolving developments and broader regional and U.S. foreign policy considerations.
Select options and considerations are discussed below, and some others (such as sanctions on Select options and considerations are discussed below, and some others (such as sanctions on
Iran, Hamas, or related actors; or the authorization of U.S. military force) are discussed in CRS Iran, Hamas, or related actors; or the authorization of U.S. military force) are discussed in CRS
Report R47754, Report R47754, Israel and Hamas October 2023 Conflict: Frequently Asked Questions (FAQs), ,
coordinated by Jim Zanotti, Jeremy M. Sharp, and Christopher M. Blanchard. coordinated by Jim Zanotti, Jeremy M. Sharp, and Christopher M. Blanchard.
Additional U.S. Assistance for Israel
Lawmakers may consider whether to increase, maintain, or condition existing U.S. support for Lawmakers may consider whether to increase, maintain, or condition existing U.S. support for
Israel. Relevant types of U.S. assistance may include: Israel. Relevant types of U.S. assistance may include:
Additional Missile Defense Funding. Congress and successive Administrations have
~~demonstrated strong support for joint U.S.-Israeli missile defense projects designed to thwart a~~
~~diverse range of threats. Iron Dome is actively defending Israeli territory against Hamas rocket~~
~~fire.~~
Additional Foreign Military Financing (FMF) for Israel. Since 1999, U.S. assistance to Israel
~~has been outlined in 10-year government-to-government Memoranda of Understanding (MOUs).~~
~~According to the current MOU, “Both the United States and Israel jointly commit to respect the~~
~~FMF levels specified in this MOU, and not to seek changes to the FMF levels for the duration of~~
~~this understanding.” However, because Congress controls appropriations, some lawmakers have~~
~~indicated that they would favor exceeding annual MOU-delineated FMF limits.~~
Presidential Drawdown Authority (PDA). Presidential Drawdown Authority (PDA) authorizes
~~the President to allow for the immediate transfer of defense articles and services from U.S. stocks,~~
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~~up to a funding cap established in law, in response to an “unforeseen emergency” (22 U.S.C.~~
~~§2318(a)(1)). For FY2024, the general cap for all countries is $100 million. In the context of~~
~~Russia’s 2022 invasion of Ukraine, the Biden Administration has authorized 47 drawdowns~~
~~initially valued at nearly $25 billion.59 Section 5505 of the James M. Inhofe National Defense~~
~~Authorization Act for FY2023 (P.L. 117-263) added paragraph 3 to 22 U.S.C. 2318(a) (FAA,~~
~~Sec.506(a)), which created a separate drawdown category for Taiwan with its own dollar value~~
~~cap. One option for Congress would be to consider whether or not to do the same for Israel.~~
Use of U.S. Stockpile in Israel. Since the 1980s, the United States has stockpiled military
~~equipment in Israel, but only “single-use” armaments that could not be used by the IDF. Section~~
~~514 of the Foreign Assistance Act of 1961 (22 U.S.C. §2321h) allows U.S. defense articles stored~~
~~in war reserve stocks to be transferred to a foreign government through Foreign Military Sales or~~
~~through grant military assistance, such as FMF. Congress limits the value of assets transferred~~
~~into War Reserves~~(1) missile defense funding; (2) Foreign Military Financing (FMF); (3) Presidential Drawdown Authority (PDA); (4) War Reserve Stocks Stocks for Allies-Israel (WRSA-I); and (5) emergency arms sales.62 ~~for Allies (WRSA) stockpiles located in foreign countries in any fiscal~~
~~year through authorizing legislation. Since 1989, Israel has requested access to the stockpile on at~~
~~least two occasions, and Congress has called on successive Administrations to ensure the WRSA-~~
~~I contains adequate supplies of precision-guided munitions to be made available to Israel in~~
~~emergency situations.60 Congress could consider whether or not to engage the Administration on~~
~~use of the WRSA-I.~~
Emergency Arms Sales. In the event that Israel requests the immediate use of U.S. equipment
~~not on hand, U.S. law provides for emergency sales of U.S. equipment without congressional~~
~~review. Per provisions in the Arms Export Control Act (AECA, P.L. 90-629, 82 Stat. 1320, as~~
~~amended), Israel, along with North Atlantic Treaty Organization (NATO) member states, Japan,~~
~~Australia, South Korea, and New Zealand (commonly referred to as NATO+5) already have~~
~~shorter congressional review periods (15 days instead of 30) and higher dollar notification~~
~~thresholds than other countries for both Foreign Military Sales and commercially licensed arms~~
~~sales, or Direct Commercial Sales. In more urgent situations, the AECA authorizes the President~~
~~to declare, in a formal notification to Congress, that “an emergency exists” requiring that a sale of~~
~~U.S. equipment to a foreign partner is “in the national security interests of the United States,”~~
~~thereby waiving mandatory congressional review.~~
~~Additional~~ Humanitarian Assistance for Palestinians and Israel
As mentioned above, the President’s October supplemental budget request includes more than As mentioned above, the President’s October supplemental budget request includes more than $9
billion in humanitarian assistance potentially usable for needs in and around Gaza, the West in humanitarian assistance potentially usable for needs in and around Gaza, the West
Bank, and Israel from the MRA and IDA accounts. In a separate October request, the President Bank, and Israel from the MRA and IDA accounts. In a separate October request, the President
asked for asked for $1.05 billion in “Food for Peace” grants for global emergency food needs via the in “Food for Peace” grants for global emergency food needs via the
Department of Agriculture.Department of Agriculture.6163
Members of Congress are debating the scope and conditions under which current or proposed Members of Congress are debating the scope and conditions under which current or proposed
humanitarian assistance should be allocated. Some strongly support boosting humanitarian aid for humanitarian assistance should be allocated. Some strongly support boosting humanitarian aid for

~~59 CRS In Focus IF12040, U.S. Security Assistance to Ukraine, by Christina L. Arabia, Andrew S. Bowen, and Cory~~
~~Welt.~~
6062 For more information on U.S. aid to Israel, see CRS Report RL33222, CRS Report RL33222, U.S. Foreign Aid to Israel, by Jeremy M. Sharp. , by Jeremy M. Sharp.
61 63 See https://www.whitehouse.gov/wp-content/uploads/2023/10/Summary-of-Funding-Request-to-Meet-Critical- See https://www.whitehouse.gov/wp-content/uploads/2023/10/Summary-of-Funding-Request-to-Meet-Critical-
Needs.pdf. Needs.pdf.
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Palestinians and facilitating its provision, Palestinians and facilitating its provision,6264 while others have expressed concerns that Hamas or while others have expressed concerns that Hamas or
other militants could divert aid shipments for their own use.other militants could divert aid shipments for their own use.6365
End-Use Monitoring of U.S. Defense Articles
Congress may examine and debate end-use monitoring (EUM) requirements for U.S. defense Congress may examine and debate end-use monitoring (EUM) requirements for U.S. defense
articles in the context of the conflict. U.S. aid and arms sales—including to Israel—are subject to articles in the context of the conflict. U.S. aid and arms sales—including to Israel—are subject to
laws such as the AECA and Foreign Assistance Act (FAA). The AECA requires the Departments laws such as the AECA and Foreign Assistance Act (FAA). The AECA requires the Departments
of State and Defense to conduct EUM to ensure that recipients of U.S. defense articles use such of State and Defense to conduct EUM to ensure that recipients of U.S. defense articles use such
items solely for their intended purposes.items solely for their intended purposes.6466 In addition, in summer 2023, the Department of State In addition, in summer 2023, the Department of State
announced the formation of the Civilian Harm Incident Response Guidance (CHIRG), a process announced the formation of the Civilian Harm Incident Response Guidance (CHIRG), a process
whereby U.S. officials will “investigate reports of civilian harm by partner governments whereby U.S. officials will “investigate reports of civilian harm by partner governments
suspected of using U.S. weapons and recommend actions that could include suspension of arms suspected of using U.S. weapons and recommend actions that could include suspension of arms
sales.”sales.”6567 On October 16, DOD spokesperson Sabrina Singh said, “Of course, we monitor and we On October 16, DOD spokesperson Sabrina Singh said, “Of course, we monitor and we
keep track of the assistance that we’re providing. But once it is in the hands of … the Israelis on keep track of the assistance that we’re providing. But once it is in the hands of … the Israelis on
how they want to use, it’s – it’s really their decision…. So how the Israelis choose to use the how they want to use, it’s – it’s really their decision…. So how the Israelis choose to use the
supplies capabilities that we give them is really not up to us.”supplies capabilities that we give them is really not up to us.”66
~~Calls for a Ceasefire, Pauses, and/or Respect for International Law~~
~~Members of Congress are debating whether or not to call for a ceasefire or humanitarian pause to~~
~~the conflict and whether or not to examine the applicability of international law to the conflict.~~
~~Some Members have proposed a resolution (H.Res. 786) that, among other things, urges the~~
~~Administration to call for a ceasefire.67 Others have written a letter to the Administration urging~~
~~U.S. officials to, among other things, advise Israel to abide by international law in its actions,~~
~~including with respect to the protection of civilians.68 House Speaker Mike Johnson has stated~~
~~that “There will be a ceasefire when Hamas ceases to be a threat to Israel.”69~~

6268 On November 5, the New York Times reported that some lawmakers were questioning whether a proposed $34 million direct commercial sale of 24,000 assault rifles to Israel might end up in the hands of Israeli settlers and civilian militias.69 A subsequent report indicated that the Biden Administration permitted the sale after being assured that “the weapons wouldn't go to civilian teams in Jewish settlements in the occupied West Bank according to four U.S. and Israeli officials with direct knowledge of the deal.”70 On November 6, multiple news outlets reported that the State Department had approved a $320 million sale to Israel of “Spice Family Gliding Bomb Assemblies,” which, according to Israeli arms manufacturer Rafael, “enables precision, high volume strikes in GPS-denied arenas.”71 Calls for a Cease-Fire, Pauses, and/or Respect for International Law Members of Congress are debating whether or not to call for a cease-fire or humanitarian pause to the conflict and whether or not to examine the applicability of international law to the conflict. One letter urged a humanitarian pause and for Israel to conduct military operations within the 64 See text of October 18 letter from 33 Senators to Secretary Blinken at See text of October 18 letter from 33 Senators to Secretary Blinken at
https://www.murphy.senate.gov/imo/media/doc/un_humanitarian_appeal.pdf; and text of October 20 letter from 130 https://www.murphy.senate.gov/imo/media/doc/un_humanitarian_appeal.pdf; and text of October 20 letter from 130
Representatives to President Biden at https://connolly.house.gov/uploadedfiles/letter_to_president_biden_on_israel.pdf. Representatives to President Biden at https://connolly.house.gov/uploadedfiles/letter_to_president_biden_on_israel.pdf.
6365 Rachel Oswald, “GOP seeks to end aid to Palestinian refugee agency amid Gaza war,” Rachel Oswald, “GOP seeks to end aid to Palestinian refugee agency amid Gaza war,” Congressional Quarterly, ,
October 26, 2023; Marc Rod, “October 26, 2023; Marc Rod, “~~Risch: Plan for post-Hamas Gaza a ‘work in progress,’” Jewish Insider, October 19,~~
~~2023; Marc Rod, “~~Republicans signal concerns about aid to Palestinians, Ukraine in Israel funding request,” Republicans signal concerns about aid to Palestinians, Ukraine in Israel funding request,” Jewish
~~Insider, October 23, 2023. Lawmakers in both chambers have introduced bills during the 118th Congress entitled the~~
~~Stop Taxpayer Funding of Hamas Act, which would prohibit any U.S. funding for Palestinians in Gaza absent a~~
~~presidential certification that (among other things) the assistance would not benefit Hamas or other terrorist~~
~~organizations or affiliates. Senate version: S. 489; House version at https://kustoff.house.gov/sites/evo-~~
~~subsites/kustoff.house.gov/files/evo-media-document/text-stop-taxpayer-funding-of-hamas-act.pdf.~~
64Insider, October 23, 2023. 66 CRS In Focus IF11197, CRS In Focus IF11197, U.S. Arms Sales and Human Rights: Legislative Basis and Frequently Asked Questions, by , by
Paul K. Kerr and Michael A. Weber; CRS Report R46814, Paul K. Kerr and Michael A. Weber; CRS Report R46814, The U.S. Export Control System and the Export Control
Reform Act of 2018, by Paul K. Kerr and Christopher A. Casey. , by Paul K. Kerr and Christopher A. Casey.
6567 Missy Ryan, “Biden administration will track civilian deaths from U.S.-supplied arms,” Missy Ryan, “Biden administration will track civilian deaths from U.S.-supplied arms,” Washington Post, September , September
13, 2023. 13, 2023.
~~66 U.S.~~68 Department of Defense, Department of Defense, “Press Gaggle with Sabrina Singh, Deputy Pentagon Press Secretary,Press Gaggle with Sabrina Singh, Deputy Pentagon Press Secretary,” October 16, 2023. 69 Edward Wong and Patrick Kingsley, “U.S. Officials Fear American Guns Ordered by Israel Could Fuel West Bank Violence,” New York Times, November 5, 2023. 70 Barak Ravid, “Scoop: Israel assures U.S. new M16s won't go to West Bank settlers,” Axios, November 6, 2023. 71 See, https://www.rafael.co.il/spice-family/ and Edward Wong, “The State Department Approves $320 Million Sale of Guided Bomb Equipment to Israel,” New York Times, November 6, ~~October 16, 2023.~~
~~67 Available online at https://bush.house.gov/imo/media/doc/bushceasefirenowresolution.pdf.~~
~~68 Available online at https://jayapal.house.gov/wp-content/uploads/2023/10/Letter-Expressing-Concern-on-the-~~
~~Humanitarian-Situation-in-Gaza.pdf.~~
~~69 “House Speaker Mike Johnson Tells GOP Jewish Confab: ‘God Is Not Done with Israel,’” Ha’aretz, October 29,~~
2023. 2023.
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scope of international law while supporting its right to defend itself.72 On November 2, Senator Richard Durbin called for a cease-fire in the Israel-Hamas war, but stipulated that it must start with the release of all hostages. Other Members have supported Israel’s continuing military operations unequivocally. Speaker of the House Mike Johnson, for example, has stated, “There will be a ceasefire when Hamas ceases to be a threat to Israel.”73 Some others have written a letter to the Administration urging U.S. officials to, among other things, advise Israel to abide by international law in its actions, including with respect to the protection of civilians.74
Author Information

Jim Zanotti Jim Zanotti
Jeremy M. Sharp Jeremy M. Sharp
Specialist in Middle Eastern Affairs Specialist in Middle Eastern Affairs
Specialist in Middle Eastern Affairs Specialist in Middle Eastern Affairs

Acknowledgments
Research Assistant Michael H. Memari, CRS Geospatial Information Systems Analyst Molly Cox, and Research Assistant Michael H. Memari, CRS Geospatial Information Systems Analyst Molly Cox, and
Visual Information Specialists Amber Wilhelm and Brion Long contributed to this report.Visual Information Specialists Amber Wilhelm and Brion Long contributed to this report.

Disclaimer
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72 Text of November 3 letter from 58 Members to Secretary Blinken available at https://twitter.com/AndrewSolender/status/1720582253816791248/photo/1. 73 “House Speaker Mike Johnson Tells GOP Jewish Confab: ‘God Is Not Done with Israel,’” Haaretz, October 29, 2023. 74 Text of October 13 letter from 55 Representatives to President Biden and Secretary Blinken available at https://jayapal.house.gov/wp-content/uploads/2023/10/Letter-Expressing-Concern-on-the-Humanitarian-Situation-in-Gaza.pdf. Congressional Research Service R47828 · VERSION 4 · UPDATED ~~Congressional Research Service~~
~~R47828 · VERSION 1 · NEW~~
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