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

Israel and Hamas 2023 Conflict In Brief:
November November 714, 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 SunnivSunni 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 240-250roughly 239 hostages (including some Americans) taken during the Hamas-led assault, hostages (including some Americans) taken during the Hamas-led assault, undertakenconducted an aerial bombardment an aerial bombardment
campaign, and launched ground operations against Hamas in Gaza. Israelcampaign, 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 conflict also halted supplies from Israeli territory to Gaza of electricity, food, and fuel. Before the conflict, Gaza had already faced crisis-level economic and had already faced crisis-level economic and
humanitarian conditions. Israeli Prime Minister Benjamin Netanyahu has announced that Israel’s military objectives are “To humanitarian conditions. Israeli Prime Minister Benjamin Netanyahu has announced that Israel’s military objectives are “To
destroy the military and governmental capabilities of Hamas and bring the hostages home.” As of November destroy the military and governmental capabilities of Hamas and bring the hostages home.” As of November 613, Israeli forces , Israeli forces
have reportedly encircled Gaza City, where they have reportedly encircled Gaza City, where they apparently seek to target key nodes ofare targeting Hamas’s command structure and vast Hamas’s command structure and vast
network of tunnels. network of tunnels.
The United Nations has stated that Gaza, with an estimated 1.5 million Gazans The United Nations has stated that Gaza, with an estimated 1.5 million Gazans displaced (nearly three-fourths of the territory’s (nearly three-fourths of the territory’s
approximately 2.1 million people) approximately 2.1 million people) displaced and major shortages in life-sustaining supplies, constitutes a major humanitarian constitutes a major humanitarian
crisis. U.S. officials have worked with Israel, Egypt, and the United Nations to allow for some international humanitarian
assistance to enter Gazacrisis. As of mid-November, U.S., Egyptian, Israeli, and U.N. officials have coordinated a process by which some 100 trucks with humanitarian supplies are entering Gaza daily from Egypt. The U.N. Secretary-General has repeatedly called for a humanitarian from Egypt. The U.N. Secretary-General has repeatedly called for a humanitarian ceasefire.
cease-fire. The Biden Administration Biden Administration officials havehas stated that Israel has the right and obligation to defend itself, and stated that Israel has the right and obligation to defend itself, and havehas resisted calls from resisted calls from
other regional andother international actors for a cease-fire—though U.S. leaders have reportedly warned Israeli counterparts that international actors for a cease-fire—though U.S. leaders have reportedly warned Israeli counterparts that
global outcry over civilian suffering could global outcry over civilian suffering could reach “a tipping point.” To date, Israel has refused any prolonged cease-fire without the release of Israeli hostages, though it has allowed some localized four-hour pauses. Reportedly, more than 1,200 Israelis and foreign nationals (including 35 U.S. citizens in Israel) and more than 11,000 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 Palestinians in Gaza have been Palestinians in Gaza have been
killed as of November killed as of November 613. Some U.S. citizens reportedly remain in Gaza, though . Some U.S. citizens reportedly remain in Gaza, though some 300 hundreds have crossed into Egypt since have crossed into Egypt since
November 1, along with some injured Palestinians and other foreign nationals. Five hostages (including two Americans) have November 1, along with some injured Palestinians and other foreign nationals. Five hostages (including two Americans) have
been released or rescued to datebeen released or rescued to date, and one Israeli soldier has died in captivity. .
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 actions, including expedited arms deliveries to Israel and the reported movement of major U.S. military assets, appear 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 violence between Palestinians and supports continue to target U.S. military positions in the region. Additionally, amid rising violence between Palestinians and
Israelis in the West Bank, President Biden has called for attacks by “extremist settlers” against Palestinians to stop. Israelis in the West Bank, President Biden has called for attacks by “extremist settlers” against Palestinians to stop.
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 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
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.
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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, Israel and Hamas October 2023 Conflict: Frequently
Asked Questions (FAQs), coordinated by Jim Zanotti, Jeremy M. Sharp, and Christopher M. Blanchard.
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link to page 5 link to page 5 link to page 8 link to page 10 link to page 10 link to page 11 link to page 12 link to page 12 link to page 13 link to page 13 link to page 14 link to page 15 link to page 15 link to page 15 link to page 16 link to page 16 link to page 6 link to page 17Israeli Prime Minister Netanyahu has said that Israel will have overall security responsibility for Gaza for an indefinite period after the conflict, while U.S. officials have said that a potentially transitional Israeli security presence should not prevent the West Bank-based Palestinian Authority (PA) from resuming governance responsibilities in Gaza, in connection with efforts to move Israel and the Palestinians away from violence and toward a two-state solution. 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 Israel. Members of Congress have expressed differing views on the request and its various elements. Congress also may weigh other legislative and oversight options. Congressional Research Service link to page 4 link to page 4 link to page 7 link to page 9 link to page 9 link to page 9 link to page 11 link to page 11 link to page 12 link to page 12 link to page 13 link to page 14 link to page 14 link to page 14 link to page 14 link to page 15 link to page 5 link to page 16 Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress

Contents
Conflict Overview ........................................................................................................................... 1
Background ............................................................................................................................... 1
Key Developments .................................................................................................................... 4
U.S. Policy ....................................................................................................................................... 6
Israeli Military Operations and Potential Pauses ...................................................................................... 6
Potential Post-Conflict Scenarios .............................................................................................. 76
U.S. Military Deployments ....................................................................................................... 8
U.S. Military Response to Iranian-Supported Groups .............................................................. 8
U.S. Expedited Arms Deliveries to Israel ................................................................................. 9
Humanitarian Assistance for Palestinians ................................................................................. 9
President’s Budget Request to Congress and Proposed Legislation ....................................... 10
Possible Options for Congress........................................................................................................ 11
Additional U.S. Assistance for Israel ....................................................................................... 11
Humanitarian Assistance for Palestinians and Israel ................................................................ 11
End-Use Monitoring of U.S. Defense Articles ......................................................................... 11 12
Calls for a Cease-Fire, Pauses, and/or Respect for International Law .................................... 12

Figures
Figure 1. Israel and Gaza: Conflict Map ......................................................................................... 2

Contacts
Author Information ........................................................................................................................ 13


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link to page link to page 65 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
Possible Iranian Role in Hamas Attacks
bases and civilian areas during the final
The possible role of Iran in the planning, support, or
bases and civilian areas during the final Jewish high holiday, just over 50 years after Jewish high holiday, just over 50 years after
execution of the Hamas attacks is a question of keen
the Egypt-Syria surprise attack on Israel that
interest to many Members of Congress. National
the Egypt-Syria surprise attack on Israel that sparked the 1973 sparked the 1973 Yom Kippur War (known in the Arab world as the October War). The Yom Kippur War (known in
Security Advisor Jake Sul ivan has described Iran as
“complicit in this attack in a broad sense,” given the
the Arab world as the October War). The
level of support it has provided Hamas for years.1
October 7 attacks’ scope October 7 attacks’ scope and lethality have no precedent in the 16 years Hamas has controlled Gaza. The nature of the violence stunned Israelis and many others.1 The and lethality have no
President Joe Biden said on October 15, “did they
precedent in the 16 years Hamas has
[Iran] have foreknowledge; did they help plan the attack
controlled Gaza. The nature of the violence
…there’s no evidence of that at this point.”2
stunned Israelis and many others.3 The
apparent intelligence and operational failures apparent intelligence and operational failures
in preventing the assault or limiting its impact have become a subject of in preventing the assault or limiting its impact have become a subject of analysis for Israeli and
U.S. officialssome debate in Israel and elsewhere. Some analysts have said that Israel may have missed signals, over-relied on . Some analysts have said that Israel may have missed signals, over-relied on
technological solutions, and/or misread Hamas’s intentions, among other factors.technological solutions, and/or misread Hamas’s intentions, among other factors.42 Iran reportedly provides 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.3
In response to the attacks, Israel’s cabinet formally declared war on Hamas, and Prime Minister In response to the attacks, Israel’s cabinet formally declared war on Hamas, and Prime Minister
Benjamin Netanyahu formed an emergency unity government with some members of the Benjamin Netanyahu formed an emergency unity government with some members of the
opposition. Israel also halted supplies from Israeli territory to Gaza of electricity, food, and fuel. opposition. Israel also halted 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 Israel’s military has mobilized hundreds of thousands of troops, conducted air and artillery
bombardments in Gaza, and has encircled Gaza City through ground operations. Hamas and other bombardments in Gaza, and has encircled Gaza City through ground operations. Hamas and other
Gaza-based militants have continued indiscriminate rocket fire into Israel. Gaza-based militants have continued indiscriminate rocket fire into Israel.
On October 13, the Israel Defense Forces (IDF) announced that it was “call[ing] for” the On October 13, the Israel Defense Forces (IDF) announced that it was “call[ing] for” the
evacuation of all civilians in evacuation of all civilians in Gaza City “from their homes southwards for their own safety and protection.”4 Hamas reportedly called on people in these areas to remain in place.5 More than 1.5 million Gazans (nearly three-fourths of the territory’s approximately 2.1 million people)6 are reportedly displaced from their homes as of November 13—with some 200,000-250,000 civilians remaining in northern Gaza areas that are particularly vulnerable to conflict and disconnected from limited life-sustaining supplies that are coming in through southern Gaza.7 1Gaza 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,”
October 10, 2023. For more information on Hamas, its possible reasons for the attacks, and Iranian material support for
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.
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
7 attacks. Summer Said et al., “Hamas Fighters Had Trained in Iran Before Israel Attack,” Wall Street Journal, October
26, 2023.
3 Israeli Ministry of Foreign Affairs, “President Herzog reveals Hamas ‘Captive Taking Handbook’ in CNN interview,” Israeli Ministry of Foreign Affairs, “President Herzog reveals Hamas ‘Captive Taking Handbook’ in CNN interview,”
October 15, 2023. October 15, 2023.
42 Center for Strategic and International Studies, “Experts React: Assessing the Israeli Intelligence and Potential Policy 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.
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protection.”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

53 Scott Pelley, “President Joe Biden: The 2023 60 Minutes interview transcript,” CBS News, October 15, 2023; 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 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. 4 Israel Defense Forces, “IDF Announcement Sent to the Civilians of Gaza City,” October 13, 2023. 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
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
you as human shields.”
65 “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.
7 Per6 Figures for Gaza’s total population per Central Intelligence Agency World Factbook Central Intelligence Agency World Factbook figures.
8. 7 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 #31,” November 6, 2023; Jaclyn Diaz et al., “Many Gazans remain trapped in the north, despite evacuation
window,” NPR, November 4, 2023.
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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
Hamas personnel in Gaza and other militants reportedly contribute to making civilian areas and
facilities unsafe by operating in or near 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 Since November 9, the IDF has instituted daily localized pauses in military operations to facilitate the southward passage of Gazans from the north. 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 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 facilities unsafe by operating in or near them. U.N. Secretary-General António Guterres has repeatedly appealed “for the immediate and unconditional release of those civilians held hostage by Hamas,” as well as “for an immediate humanitarian ceasefire.”8 Egypt, via consultations Egypt, via consultations
with U.S., Israeli, and U.N. officials, with U.S., Israeli, and U.N. officials, has publicly agreed tois coordinating the use of its Rafah crossing with the use of its Rafah crossing with
Gaza to open a humanitarian corridor forGaza to bring international aid into the territory international aid into the territory, and to allow—in a way that allows monitoring to prevent diversion by Hamas—and to permit U.S. U.S.
citizens and citizens and some 7,500 other foreign passport holders safe passage out. After weeks of multi-other foreign passport holders safe passage out. After weeks of multi-
party negotiations amid critiques by U.S. citizens in Gaza 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 Update #38,” November 13, 2023; “A perilous journey for countless Palestinians trying to flee danger in northern Gaza,” CBC News, November 10, 2023. 8 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash Update #25,” October 31, 2023. Congressional Research Service 2 Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress of the U.S. response,9 hundreds of U.S. citizens and family members have left Gaza. The border has reportedly been closed been closed
at various at various points in early November.12
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
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
civilians held hostage by Hamas,” as well as “for an immediate humanitarian ceasefire.”13
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.
Additionally, on October 18, President Biden announced a $100 million U.S. humanitarian
assistance contribution for Gaza and the West Bank.14 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
public health concerns in connection with poor sanitation and consumption of unsafe water by
IDPs. 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.
10 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,’” Washington Post, October
20, 2023.
11 “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
Update #25,” October 31, 2023.
14 White House, “U.S. Announcement of Humanitarian Assistance to the Palestinian People,” October 18, 2023; Brett
Samuels, “Biden announces humanitarian aid deal for Gaza,” The Hill, October 18, 2023.
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.
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civilians,17 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.18
Reportedly, more than 1,400 Israelis (and at least 36times since then. U.S. and U.N. officials have reportedly sought to increase the provision of international assistance into Gaza via Egypt. U.N. officials have raised public health concerns in connection with poor sanitation and consumption of unsafe water by internally displaced persons (IDPs). Israel is piping water to areas in central and southern Gaza, but supply to northern Gaza remains cut off.10 Responding to worries voiced by U.N. officials and others regarding fuel shortages for hospitals and other uses, Israeli officials have stated that they have prevented 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.11 In late October, Israel began permitting increased non-fuel humanitarian supplies through Rafah to areas of southern Gaza that can accommodate IDPs.12 As of mid-November, significant international attention has focused on the functionality and safety of hospitals in northern Gaza, with Israel and Hamas trading accusations regarding the possible endangerment of civilians by the other, and U.N. officials stating as of November 13 that only one hospital has the resources to receive patients.13 National Security Advisor Jake Sullivan has cited open sources in arguing that Hamas uses hospitals for military purposes, but has also said that the United States does not want “firefights in hospitals” that could threaten patients or other bystanders.14 On November 13, President Biden expressed his hope and expectation that Israel would take “less intrusive action relative to hospitals,”15 after officials from the World Health Organization and two other U.N. agencies—identifying “perilous” conditions for pediatric care and other services in many hospitals (including Gaza’s largest)—called for “urgent international action to end the ongoing attacks on hospitals in Gaza.”16 Some Israeli-facilitated evacuation efforts may have taken place, but reports suggest that many patients and staff have been unable to leave.17 Various countries are reportedly establishing or provisioning field hospitals in southern Gaza, northern Egypt, or on ships offshore.18 9 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,’” Washington Post, October 20, 2023. 10 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash Update #38,” November 13, 2023. 11 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. 12 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 humanitarian aid into Gaza each day — official,” Times of Israel, October 31, 2023. 13 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash Update #38,” November 13, 2023. 14 “Transcript: National Security Adviser Jake Sullivan on ‘Face the Nation,’ Nov. 12, 2023,” CBS News. 15 Brett Samuels, “Biden: Hospitals ‘must be protected’ in Gaza as Israeli forces close in,” The Hill, November 13, 2023. 16 World Health Organization, “UNFPA, UNICEF and WHO Regional Directors call for immediate action to halt attacks on health care in Gaza,” November 12, 2023. 17 Cassandra Vinograd and Hiba Yazbek, “Gaza’s Al-Shifa Hospital Is ‘No Longer Functioning,’ W.H.O. Says,” New York Times, November 13, 2023; “Gaza hospitals’ evacuation efforts falter amid heavy fighting,” NBC News, November 13, 2023. 18 Baruch Yedid, “Arab countries setting up field hospitals for Gazans,” Jewish News Syndicate, November 13, 2023. Congressional Research Service 3 Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress Reportedly, more than 1,200 Israelis and foreign nationals (including 35 U.S. citizens in Israel) and more than U.S. citizens in Israel) and more than 1011,000 ,000
Palestinians in Gaza had been killed as of November Palestinians in Gaza had been killed as of November 612.19 Hamas and other .19 Hamas and other militantsgroups aligned with aligned with
them could be holding some them could be holding some 240 to 250239 persons in Gaza that were taken hostage in the October 7 persons in Gaza that were taken hostage in the October 7
attacks,20 and Secretary Blinken has said that some of the 10 Americans unaccounted for are attacks,20 and Secretary Blinken has said that some of the 10 Americans unaccounted for are
among those being held hostage.21 A Hamas spokesman has said that the group “is prepared to
release non-Israeli hostages once conditions allow movement in Gaza.”22 To date, Hamas has
released four hostages, including two Americansamong those being held hostage.21 To date, Hamas has released four hostages, including two Americans, and Israeli forces rescued an Israeli soldier who was being held hostage (another soldier died in captivity). Hamas spokespeople have variously said that . Hamas spokespeople have variously said that
Hamas would not release Israeli captives without a cease-fire and/or fuel shipments into Gaza, Hamas would not release Israeli captives without a cease-fire and/or fuel shipments into Gaza,
and that it would release all hostages if Israel released all Palestinian prisoners in its custody. 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 soldier who was being held hostagePresident Biden said on November 14 that he believes a deal to release some hostages—which might be connected with a temporary cease-fire and the release of some Palestinian prisoners—is likely to happen in coming days.22 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. .
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.23 Netanyahu’s stated alongside Prime Minister Netanyahu and Defense Minister Yoav Gallant.23 Netanyahu’s stated
objective is “To destroy the military and governmental capabilities of Hamas and bring the objective is “To destroy the military and governmental capabilities of Hamas and bring the
hostages home.”24 hostages home.”24
After nearly three weeks of air strikes, Israel began ground operations inside Gaza in late After nearly three weeks of air strikes, Israel began ground operations inside Gaza in late
October. As of November October. As of November 613, Israeli forces reportedly have encircled Gaza City, Israeli forces reportedly have encircled Gaza City, where they
apparently seek. Israel seeks to target to target key nodes of Hamas’s command structure and vast network of tunnels. Hamas’s command structure and vast network of tunnels.
Israel has reportedly lost Israel has reportedly lost approximately 345roughly than 365 soldiers since October 7, with soldiers since October 7, with 33at least 46 killed since its killed since its
ground incursion began. ground incursion began. Hamas and other Palestinian militants may rely on the tunnels, their 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 knowledge of Gaza’s terrain, and urban warfare tactics to counter Israel’s conventional military
superiority. superiority.
Since the October 7 attacks, Israel has exchanged fire with the Iran-backed Shia Islamist group 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 (an FTO) and Palestinian militants across Israel’s northern border with

17 Stephen Kalin, “Israel Says Gaza Has Enough Food, Water, Fuel, Medical Supplies,” Wall Street Journal, October
29, 2023.
18 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
humanitarian aid into Gaza each day — official,” Times of Israel, October 31, 2023.
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 19 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash 19 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash
Update #Update #3138,” November ,” November 613, 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.
20 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash 20 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash
Update #Update #25,” October 31, 2023; Hamas spokesman Abu Ubaida quoted in Harriet Sherwood, “Hamas says 250 people
held hostage in Gaza,” The Guardian, October 1638,” November 13, 2023. , 2023.
21 Department of State, “Secretary Antony J. Blinken Remarks to the Press,” October 20, 2023. 21 Department of State, “Secretary Antony J. Blinken Remarks to the Press,” October 20, 2023.
22 22 “Hamas says it is preparing to release non-Israeli hostages,” NBC News, October 16, 2023.
Barak Ravid, “Biden says he believes deal to free dozens of hostages held in Gaza is ‘going to happen,’” Axios, November 14, 2023. 23 Barak Ravid, “Israel’s Netanyahu forms unity government with ex-Defense Minister Gantz,” Axios, October 11, 23 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 24 “Netanyahu says the Gaza war has entered a new stage and will be ‘long and difficult,’” Associated Press, October
28, 2023. 28, 2023.
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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
a grave threat to Israeli strategic sites and population centers.25 Israel has also reportedly a grave threat to Israeli strategic sites and population centers.25 Israel has also reportedly
exchanged some cross-border fire with “pro-Hezbollah fighters” in southern Syria.26 exchanged some cross-border fire with “pro-Hezbollah fighters” in southern Syria.26
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.27 likely remain mindful of the sizable population of Palestinians who support confronting Israel.27
Amid rising tensions and violence between Palestinians and Israelis in the West Bank, President 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 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 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 “clear commitment” from Israel’s government to act against extremist violence in the West
Bank.29 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 publicly critical of Israeli and U.S. policy. actors have grown more publicly critical of Israeli and U.S. policy. Egypt, , Saudi Arabia, ,
Jordan, , and the the United Arab Emirates have, and five additional Arab states jointly insisted on an immediate cease-fire jointly insisted on an immediate cease-fire in late October.30 .30 Qatar
is facilitating indirect talks on hostage-related issues between Israeli and U.S. officials and 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 Hamas. In mid-November, Saudi Arabia hosted a “joint Arab Islamic” summit, where leaders from the Gulf, Iran, Egypt, Jordan, Turkey, and Syria called for an end to “Israeli aggression against Gaza,” more humanitarian aid, and a freeze on international arms exports to Israel.31 Although popular sentiment in Arab states has placed pressure on their governments to 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 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 have told him that “Hamas must be destroyed in Gaza.”33 DuringDuring the previous Israel-Hamas conflicts, previous Israel-Hamas conflicts,
which were of smaller scope and intensity, many Arab states also publicly distanced themselves from Israel, only to resume earlier many Arab states also publicly distanced themselves from Israel, only to resume earlier
interactions interactions with Israel after the conflict. At the United Nationswith 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 , multiple
draft draft U.N. Security Council resolutions on the conflict have failed. On October 27, the 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 adopted a resolution (opposed by the United States) calling for an
“immediate, durable and sustained humanitarian truce leading to a cessation of hostilities,” and “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 for the protection of civilians under international law (including the release of all civilians illegally held captive).34 Some open questions include What would constitute “victory” for Israel in Gaza? What does the future of Gaza look like? What effect might U.S. and international concerns regarding civilian suffering and casualties have on the duration and nature of Israeli military operations? Whatall civilians

25 Adi Hashmonai, “Israel Plans to Evacuate Communities Close to Border with Lebanon, Many Refuse to Leave,” 25 Adi Hashmonai, “Israel Plans to Evacuate Communities Close to Border with Lebanon, Many Refuse to Leave,”
Haaretz, October 17, 2023. , October 17, 2023.
26 “Israel strikes kill 8 Syria troops, hit Aleppo airport: defence ministry,” Agence France Presse, October 25, 2023. 26 “Israel strikes kill 8 Syria troops, hit Aleppo airport: defence ministry,” Agence France Presse, October 25, 2023.
27 Mohammad al-Kassim, “PA President Mahmoud Abbas MIA as Hamas wages war against Israel,” 27 Mohammad al-Kassim, “PA President Mahmoud Abbas MIA as Hamas wages war against Israel,” Ynetnews, ,
October 10, 2023. October 10, 2023.
28 White House, “Remarks by President Biden and Prime Minister Anthony Albanese of Australia in Joint Press 28 White House, “Remarks by President Biden and Prime Minister Anthony Albanese of Australia in Joint Press
Conference,” October 25, 2023. Conference,” October 25, 2023.
29 Department of State, “Secretary Antony J. Blinken at a Press Availability,” Tel Aviv, Israel, November 3, 2023. 29 Department of State, “Secretary Antony J. Blinken at a Press Availability,” Tel Aviv, Israel, November 3, 2023.
30 30 The New Arab, “Arab group at UN ‘doubling efforts to secure Gaza ceasefire,’” October 25, 2023.
31 Matthew Lee, “Arab leaders push for an Israel-Hamas cease-fire now. Blinken says that could be counterproductive,”
Associated Press, November 4Qatar Ministry of Foreign Affairs, “Qatar and a Number of Arab Countries Issue Joint Statement Following Cairo Peace Summit,” October 26, 2023. 31 “Arab-Islamic summit adopts resolution on Israeli aggression against the Palestinian people,” Arab News, November 12, 2023. , 2023.
32 International Crisis Group, “The Gaza War Reverberates Across the Middle East,” 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,” 33 Dennis Ross, “I Might Have Once Favored a Cease-Fire with Hamas, but Not Now,” New York Times, October 27, , October 27,
2023. 2023.
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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 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? What might be the longer-term might be the longer-term
ramifications for U.S. priorities such as ramifications for U.S. priorities such as regional stability, security for IsraelIsrael’s security, countering the reach , countering the reach
of Iran and its allies, and of Iran and its allies, and quality of life for all affected peopleavoiding major war or humanitarian disaster? Under what circumstances and to ? Under what circumstances and to
what end might U.S.-backed diplomacy resume between Israel, Palestinians, and Arab states? 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 itself in line The U.S. 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 calls for a 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 support cease-fire, citing Israel’s right to defend itself. Nevertheless, U.S. officials have voiced support
for “humanitarian pauses”—possibly more limited in time and geographical scope—that might for “humanitarian pauses”—possibly more limited in time and geographical scope—that might
safely facilitate aid delivery or serve other purposes.safely facilitate aid delivery or serve other purposes. On November 1, President Biden voiced
support for a pause that could facilitate hostage releases.36
President Biden, Secretary of State Blinken, Secretary of Defense Lloyd Austin, and several other President Biden, Secretary of State Blinken, Secretary of Defense Lloyd Austin, and several other
Administration officials have visited Israel and other countries in the region since the outbreak of Administration officials have visited Israel and other countries in the region since the outbreak of
conflict. On November 3, during Secretary Blinken’s latest trip to Israel, he reiterated the U.S. 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 view that Israel has the right and obligation to defend itself to prevent the October 7a recurrence of attacks attacks from
happening againon the level of October 7, while remarking that “the way Israel does so matters, while remarking that “the way Israel does so matters,” and reiterating U.S.
interests in protecting civilians and bringing assistance to them.37 .”35 A week later, Blinken said, “Far too many Palestinians have been killed….We want to do everything possible to prevent harm to them and to maximize the assistance that gets to them…. To that end, we’ll be continuing to discuss with Israel the concrete steps to be taken to advance these objectives.”36 According to some reports, U.S. According to some reports, U.S.
officials have privately expressed to Israeli counterparts that they may have limited time for 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 operations to root out Hamas in Gaza before international uproar over civilian suffering and calls
for a cease-fire reach “a tipping point.”for a cease-fire reach “a tipping point.”3837 Apparently, U.S. officials have advised Israelis that Apparently, U.S. officials have advised Israelis that
some measures might reduce civilian casualties, including improvements in targeting and advance 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.intelligence gathering, efforts to separate civilians from militants, and the use of smaller bombs.39
38 On November 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.
389, General Charles Q. Brown, Chairman of the Joint Chiefs of Staff, said that Israel’s aim to eliminate Hamas was “a pretty large order,” saying that, “I think the longer this goes, the harder it can become.”39 Prime Minister Netanyahu has accepted daily four-hour pauses to the fighting for humanitarian purposes, but has refused the idea of a longer halt to Israel’s military operations without the release of Israeli hostages.40 He has argued that “the only thing that works on ... Hamas is the military pressure that we're exerting.”41 Potential Post-Conflict Scenarios In addition to reportedly advising Israel on how it conducts military operations, U.S. officials have engaged in diplomatic talks with Israel and other regional partners over the future 35 Department of State, “Secretary Antony J. Blinken at a Press Availability,” Tel Aviv, Israel, November 3, 2023. 36 Department of State, “Secretary Antony J. Blinken Remarks to the Press,” New Delhi, India, November 10, 2023. 37 “US warns Israel amid Gaza carnage it doesn’t have long before support erodes,” CNN, November 3, 2023. “US warns Israel amid Gaza carnage it doesn’t have long before support erodes,” CNN, November 3, 2023.
3938 Adam Entous et al., “U.S. Is Urging Israel to Limit Gaza Fatalities,” Adam Entous et al., “U.S. Is Urging Israel to Limit Gaza Fatalities,” New York Times, November 5, 2023. , November 5, 2023.
40 Department of State, “Secretary Antony J. Blinken at a Press Availability,” Tel Aviv, Israel, November 3, 2023.
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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
39 “Top US general cautions over risks in a long Gaza war,” Reuters, November 9, 2023. 40 “Meet the Press - November 12, 2023,” NBC News. 41 Alexandra Hutzler, “Netanyahu to ABC’s Muir: ‘No cease-fire’ without release of hostages,” ABC News, November 6, 2023. Congressional Research Service 6 Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress governance of Gaza. In an October 15 interview, President Biden expressed support for Israeli governance of Gaza. 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 efforts to eliminate 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 as consequential as 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.” Israeli occupation of 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 Later in the interview, he 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 Palestinian people,” and that “there needs to be a Palestinian authority. There needs to be a path to
a Palestinian state.”a Palestinian state.”43 In his 42 In October 31 October 31 congressional testimony, Secretary Blinken said that “what would make testimony, Secretary Blinken said that “what would make
the most sense would be for an effective and revitalized Palestinian Authority to have 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” 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 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
international agencies.43 Arab government leaders reportedly are resisting U.S. suggestions that they play a larger role—expressing that they believe Gaza to be “a problem largely of Israel’s own making.”44 While discussing potential post-conflict scenarios with Blinken in the West Bank on November 5, 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 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, within the framework of a comprehensive political solution that includes all of the West Bank,
including East Jerusalem, and the Gaza Strip.”including East Jerusalem, and the Gaza Strip.”4645 In 2005, Israel withdrew its military presence 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 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 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 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 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 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.”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 Testimony46 Prime Minister Netanyahu has 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.”47 Netanyahu also has voiced skepticism about the PA’s ability to de-militarize and de-radicalize Gaza, calling for some other “reconstructed civilian authority.”48 Some Israelis, including opposition leader Yair Lapid, argue that the PA should return to Gaza,49 with some asserting that Netanyahu’s stance reflects ideological opposition to a two-state solution.50 Additionally, the resolution from the November “Arab Islamic” summit emphasized that the PLO (under whose umbrella the PA exists) is the sole legitimate representative of the Palestinian people, and that Palestinian-inhabited territories “occupied since 1967” constitute a sole geographical unit.51 The 42 Scott Pelley, “President Joe Biden: The 2023 60 Minutes interview transcript.” 43 Senate Appropriations Committee testimony available at https://www.cq.com/doc/congressionaltranscripts- available at https://www.cq.com/doc/congressionaltranscripts-7867772?3. 44 Matthew Lee, “Arab leaders push for an Israel-Hamas cease-fire now,” November 4, 2023. 457867772?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 “Receiving US State Secretary, President Abbas demands immediate end to Israel's aggression on Gaza,” WAFA
News Agency, November 5, 2023. News Agency, November 5, 2023.
4746 Nathan J. Brown, “There Might Be No Day After in Gaza,” Carnegie Endowment for International Peace, November Nathan J. Brown, “There Might Be No Day After in Gaza,” Carnegie Endowment for International Peace, November
33, 2023. 47 Hutzler, “Netanyahu to ABC’s Muir: ‘No cease-fire’ without release of hostages.” 48 Transcript, “State of the Union,” CNN, November 12, 2023. 49 Anat Peled et al., “Israel, U.S. Split on Gaza Plan,” Wall Street Journal, November 13, 2023. 50 Zvi Bar’el, “Netanyahu Refuses to Admit That the Palestinian Authority Is the Only Option for Governing Gaza,” Haaretz, November 13, 2023. 51 “Arab-Islamic summit adopts resolution on Israeli aggression against the Palestinian people,” Arab News, November 12, 2023. , 2023.
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larger role—expressing that they believe Gaza to be “a problem largely of Israel’s own
making.”48
spokesperson for PA President Abbas has insisted that Israeli attempts to separate Gaza from the West Bank are destined to fail.52 Questions may persist about the credibility of any post-conflict outcome that does not provide 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 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. statehood), (3) and Israeli capacity to monitor and prevent the rise of new threats. ItGiven potential tensions among these three points, it is unclear 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—orwhether or not a multilateral coalition with an international mandate can facilitate an outcome addressing each one. It is also unclear whether or not such an outcome can occur without some whether or not such an outcome can occur without some
continuity in personnel who have run key civil services under Hamas rule. 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 USS 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 USSdirected the USS Dwight D. Eisenhower carrier strike group to the Persian Gulf via the carrier strike group to the Persian Gulf via the
Mediterranean. Each strike group includes an aircraft carrier with an embarked carrier air wing, Mediterranean. Each strike group 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 along with one cruiser and three destroyers. Each carrier air wing includes about 40 F/A-18 strike
fighters and about 20 other support aircraft. Some of the cruisers and destroyers are additionally fighters and about 20 other support aircraft. 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 USS 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 USSdeck” 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, USStwo additional amphibious ships, USS Mesa Verde and USS and USS Carter Hall. . Embarked acrossStationed aboard the the
three ships is the 26th Marine Expeditionary Unit (MEU) with approximately 2,400 Marines. three ships is the 26th Marine Expeditionary Unit (MEU) with approximately 2,400 Marines.
Air Force Aircraft. The United States has also The United States has also orderedsent additional F-35, F-15, and F-16 fighter 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.” 4953
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”

48 Lee, “Arab leaders push for an Israel-Hamas cease-fire now.”
4952 “Presidency: Israel's attempts to separate Gaza from West Bank are destined to failure,” WAFA News Agency, November 12, 2023. 53 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.5054 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.”5155
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. 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
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
Yemen have reportedly launched multiple drones and missiles toward Israel.52 Beyond Gaza and the West Bank, to date, some attacks against Israel have emanated from Lebanon, Syria, and Yemen, while Iran-supported groups in Iraq and Syria have repeatedly targeted U.S. forces stationed there. 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.56 On October 25, On October 25,
President Biden warned Iran not to threaten U.S. forces, saying, “My warning to the Ayatollah President Biden 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 was that if they continue to move against those troops, we will respond. And he should be
prepared.”prepared.”53 On October 26, Secretary Austin stated that U.S. forces struck two 57 On three occasions, the United States has conducted air strikes against facilities in facilities in
eastern Syria used by Iran and its allies for “ongoing and mostly unsuccessful attacks against U.S.
personnel in Iraq and 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
eastern Syria used by Iran and its allies.58 In the Red Sea, the U.S. Navy has intercepted Houthi missiles from Yemen heading toward Israel, while the Houthis reportedly have shot down a U.S. MQ-9 Reaper unmanned aerial vehicle.59 U.S. Expedited Arms Deliveries to Israel
Since October 7, the Biden Administration has expedited the provision of U.S. military and 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 security assistance to Israel, including: (1) small-diameter bombs (250 pounds); (2) interceptors
to replenish Israel’s Iron Dome (a U.S.-supported short-range anti-rocket, anti-mortar, and anti-to replenish Israel’s Iron Dome (a U.S.-supported short-range anti-rocket, anti-mortar, and anti-
artillery system); (3) Joint Direct Attack Munitions (JDAMs - a kit that converts unguided artillery system); (3) Joint Direct Attack Munitions (JDAMs - a kit that converts unguided
armaments into satellite-guided bombs);armaments into satellite-guided bombs);5660 and (4) 155mm artillery shells. and (4) 155mm artillery shells.5761 The Administration The Administration
also is to provide Israel with two Iron Dome batteries previously purchased by the U.S. Army. also is to provide Israel with two Iron Dome batteries previously purchased by the U.S. Army.
Humanitarian Assistance for Palestinians
During President Biden’s October 18 visit to Israel, he announced $100 million in U.S. 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 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 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.”62 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 Gaza and the West Bank 54
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.
5155 “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.
52 “Yemen’s Huthi rebels claim drone attack on Israel,” Agence France Presse, October 31, 2023.
5356 Courtney Kube, “At least 45 U.S. service members may have been injured in Iran-linked attacks,” NBC News, November 6, 2023. 57 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.
54 Department of Defense, “Secretary of Defense Lloyd J. Austin III’s Statement on U.S. Military Strikes in Eastern
Syria,” October 26, 2023.
55 Courtney Kube, “At least 45 U.S. service members may have been injured in Iran-linked attacks,” NBC News,
November 6, 2023.
5658 “US conducts airstrikes against Iran-backed groups in Syria, retaliating for attacks on US troops,” Associated Press, November 13, 2023. 59 Eric Schmitt, “Houthi Rebels Shot Down a U.S. Drone Off Yemen’s Coast, Pentagon Says,” New York Times, November 8, 2023. 60 “The US is moving quickly to boost Israel’s military. A look at what assistance it’s providing,” Associated Press, “The US is moving quickly to boost Israel’s military. A look at what assistance it’s providing,” Associated Press,
October 14, 2023. October 14, 2023.
5761 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. Seestockpile in Israel (WRSA-I) to provide to Ukraine, back to Israel for their use. See, Barak Ravid, “Scoop: U.S. to send 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.
62 White House, “U.S. Announcement of Humanitarian Assistance to the Palestinian People,” October 18, 2023. Congressional Research Service Congressional Research Service

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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 Gaza and the West Bank
may previously have been diverted—or be at risk of future diversion—by Hamas, other FTOs, or
their affiliates.59 In October 31 testimony before the Senate 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 by Israeli and Egyptian officials,
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
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
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
of the assistance thus far is getting to people who need it. And we need more.60may previously have been diverted—or be at risk of future diversion—by Hamas, other FTOs, or their affiliates.63 Others have called for additional humanitarian aid for the Palestinians.64
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.6165 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
for ammunition procurement; and (3) for ammunition procurement; and (3) $198.6 million “to mitigate industrial base constraints” “to mitigate industrial base constraints”
through Defense Production Act purchases. through Defense Production Act purchases.
To allow for the obligation of requested funds for these intended purposes, the supplemental 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 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 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-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 Testimony available at https://www.cq.com/doc/congressionaltranscripts-7867772?3.
61 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.
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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 November 2, the House passed H.R. 6126, the Israel Security Supplemental Appropriations On 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 appropriations Act, 2024, (226-196). The bill would provide $14.3 billion in related supplemental appropriations
for Israel. While the bill closely follows the President’s request for Israel, it adds, among other 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 to Israel since the 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 $2.5 billion for 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 also would offset 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 the Internal the proposed additional appropriations for Israel by rescinding $14.3 billion for the Internal
63 Text of October 24 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-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: H.R. 5996. 64 Text of November 8 letter from 26 Senators to President Biden available at https://www.vanhollen.senate.gov/imo/media/doc/letter_to_president_biden_on_gaza.pdf. 65 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. Congressional Research Service 10 Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress Revenue Service. The bill does not include appropriations for Ukraine or for humanitarian Revenue Service. The bill does not include appropriations for Ukraine or for humanitarian
assistance. 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 includeIsrael. Relevant types of U.S. assistance may include: (1) missile defense funding; (2) Foreign (1) missile defense funding; (2) Foreign
Military Financing (FMF); (3) Presidential Drawdown Authority (PDA); (4) War Reserve Stocks Military Financing (FMF); (3) Presidential Drawdown Authority (PDA); (4) War Reserve Stocks
for Allies-Israel (WRSA-I); and (5) emergency arms sales.for Allies-Israel (WRSA-I); and (5) emergency arms sales.6266
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.6367
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 humanitarian assistance should be appropriated or allocated. Some strongly support boosting allocated. Some strongly support boosting humanitarian aid for Palestinians and facilitating its provision,68humanitarian aid for

62 For more information on U.S. aid to Israel, see CRS Report RL33222, U.S. Foreign Aid to Israel, by Jeremy M.
Sharp.
63 See https://www.whitehouse.gov/wp-content/uploads/2023/10/Summary-of-Funding-Request-to-Meet-Critical-
Needs.pdf.
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Palestinians and facilitating its provision,64 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.6569
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
66 For more information on U.S. aid to Israel, see CRS Report RL33222, U.S. Foreign Aid to Israel, by Jeremy M. Sharp. 67 See https://www.whitehouse.gov/wp-content/uploads/2023/10/Summary-of-Funding-Request-to-Meet-Critical-Needs.pdf. 68 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. 69 Jeff Stein and Jacob Bogage, “GOP targets Gaza’s biggest relief group, clashing with the White House,” Washington Post, November 11, 2023; Marc Rod, “Republicans signal concerns about aid to Palestinians, Ukraine in Israel funding request,” Jewish Insider, October 23, 2023. Congressional Research Service 11 Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress items solely for their intended purposes.70items solely for their intended purposes.66 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.”67 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
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.”68
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
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.
65 Rachel Oswald, “GOP seeks to end aid to Palestinian refugee agency amid Gaza war,” Congressional Quarterly,
October 26, 2023; Marc Rod, “Republicans signal concerns about aid to Palestinians, Ukraine in Israel funding
request,” Jewish Insider, October 23, 2023.
6671 Since the start of the conflict, some people have criticized Israel for civilian casualties and accused it of possible misuse of U.S. defense equipment. In November 8 congressional testimony, Deputy Assistant Secretary of Defense Dana Stroul remarked that “in our conversations with the Israel Defense Forces, they have made very clear that they assess collateral damage estimates before they take strikes. They have legal reviews, through their chain of command, and when there are incidents of civilian harm, they investigate them after.”72 Regarding U.S. defense consultation with Israel on mitigating civilian harm, National Security Council spokesperson John Kirby has said, “We’re not sitting down next to them as they develop the target lists…. This is their fight.”73 Previously, 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 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.”74 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 scope of international law while supporting its right to defend itself.75 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.”76 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.77 70 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.
6771 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.
68 Department of Defense, “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, 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
72 House Foreign Affairs Committee testimony available at https://plus.cq.com/doc/congressionaltranscripts-7877975?4. 73 David E. Sanger, “Biden Confronts the Limits of U.S. Leverage in Two Conflicts,” New York Times, November 6, 2023. 74 Department of Defense, “Press Gaggle with Sabrina Singh, Deputy Pentagon Press Secretary,” October 16, 2023. 75 Text of November 3 letter from 58 Members to Secretary Blinken available at https://twitter.com/AndrewSolender/status/1720582253816791248/photo/1. 76 “House Speaker Mike Johnson Tells GOP Jewish Confab: ‘God Is Not Done with Israel,’” Haaretz, October 29, 2023. 77 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 12 Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress
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
Former 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
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
shared staff to congressional committees and Members of Congress. It operates solely at the behest of and shared staff to congressional committees and Members of Congress. It operates solely at the behest of and
under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other
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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 Congressional Research Service R47828 · VERSION 8 · UPDATED
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