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

Changes from November 14, 2023 to November 30, 2023

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Israel and Hamas 2023 Conflict In Brief:
November November 1430, 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 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 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 President Joe Biden ~~has said~~said in October “there is no evidence” that Iran helped plan the attack. “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 In response to the October 7 attacks, Israel’s cabinet formally declared war on Hamas. Israel has ~~initiated efforts to recover~~
~~roughly 239 hostages (including some Americans) taken during the Hamas-led assault, conducted an aerial bombardment~~
~~campaign, and launched ground operations against Hamas in Gaza. Israel also halted supplies from Israeli territory to Gaza of~~
~~electricity, food, and fuel. Before the conflict, Gaza had already faced crisis-level economic and 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 13, Israeli forces have reportedly~~
~~encircled Gaza City, where they are targeting Hamas’s command structure and vast network of tunnels.~~
~~The United Nations has stated that Gaza, with an estimated 1.5 million Gazans displaced (nearly three-fourths of the~~
~~territory’s~~conducted aerial bombardment and ground operations in Gaza, and also has halted electricity, food, and fuel supplies to Gaza from Israeli territory. Some life-sustaining goods are entering Gaza via Egypt, but U.S. and U.N. officials have sought to boost this aid. 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.” In October, Israel called for civilians in northern Gaza to move south. As of late November, the Israel Defense Forces (IDF) seems to control much of northern Gaza above ground, and is apparently preparing for major operations to confront key elements of Hamas’s military and political leadership in the group’s vast network of tunnels and in some areas of the south. The United Nations has stated that Gaza, with more than 1.8 million Gazans displaced (out of a population of approximately 2.1 million people) constitutes a major humanitarian crisis approximately 2.1 million people) constitutes a major humanitarian crisis~~. 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 cease-fire~~—having already faced dire economic and humanitarian conditions before the conflict. The Biden Administration . The Biden Administration
has stated that Israel has the right and obligation to defend itself, and has resisted calls from other international actors for has stated that Israel has the right and obligation to defend itself, and has resisted calls from other international actors for a
~~cease-fire—though~~an indefinite cease-fire. However, U.S. leaders have reportedly warned Israeli counterparts that global outcry over civilian suffering could U.S. leaders have reportedly warned Israeli counterparts that global outcry over civilian suffering could
reach “a tipping pointreach “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~~,” and have cautioned against Israeli military operations in southern Gaza unless and until Israel can demonstrate plans for protecting civilians there. .
Reportedly, more than 1,200 Israelis and foreign nationals (including 35 U.S. citizens in Israel) and more than Reportedly, more than 1,200 Israelis and foreign nationals (including 35 U.S. citizens in Israel) and more than 1115,000 ,000
Palestinians in Gaza have been killed as of November Palestinians in Gaza have been killed as of November ~~13. Some U.S. citizens reportedly remain in Gaza, though hundreds~~
~~have crossed into Egypt since November 1, along with some injured Palestinians and other foreign nationals. Five hostages~~
~~(including two Americans) have been released or rescued to date, and one Israeli soldier has died in captivity.~~
29. Hamas and other groups also seized around 240 hostages on October 7. Via talks involving Qatar, Egypt, and the United States to address the hostage situation, Israel and Hamas agreed to a multi-day pause in fighting that began on November 24. During the pause, 97 hostages held in Gaza and 210 Palestinian prisoners held by Israel have been released as of November 29, and increased humanitarian supplies have come into Gaza. Hamas and others reportedly hold 140 or more persons, including six to eight Americans. 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 movement of major U.S. military assets, appear intended to actions, including expedited arms deliveries to Israel and the 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 supports 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 Israelis in 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. the West Bank, President Biden has called for attacks by “extremist settlers” against Palestinians to stop.
Israeli Prime Minister Netanyahu has said that Israel will have overall security responsibility for Gaza for an indefinite period Israeli 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 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 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. 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, In October 2023, President Biden asked Congress to appropriate more than $8 billion in U.S. security assistance for Israel,
and more than $9 billion in global humanitarian assistance amounts that could partly be allocated for Gaza, the West Bank, and more than $9 billion in global humanitarian assistance amounts that could partly be allocated for Gaza, the West Bank,
and Israel. Members of Congress have expressed differing views on the request and its various elements. Congress also may 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. weigh other legislative and oversight options.
Congressional Research Service Congressional Research Service

link to page 5 link to page 5 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 bases and civilian areas during the final Jewish high joined. The assault targeted Israeli military bases and civilian areas during the final Jewish high
holiday, just over 50 years after the Egypt-Syria surprise attack on Israel that sparked the 1973 holiday, just over 50 years after the Egypt-Syria surprise attack on Israel that sparked the 1973
Yom Kippur War (known in the Arab world as the October War). The October 7 attacks’ scope Yom Kippur War (known in the Arab world as the October War). The October 7 attacks’ scope
and lethality have no precedent in the 16 years Hamas has controlled Gaza. The nature of the and lethality have no precedent in the 16 years Hamas has controlled Gaza. The nature of the
violence stunned Israelis and many others.1 violence stunned Israelis and many others.1
The apparent intelligence and operational failures in preventing the assault or limiting its impact The apparent intelligence and operational failures in preventing the assault or limiting its impact
have become a subject of some debate in Israel and elsewhere. Some analysts have said that Israel have become a subject of some debate in Israel and elsewhere. Some analysts have said that Israel
may have missed signals, over-relied on technological solutions, and/or misread Hamas’s may have missed signals, over-relied on technological solutions, and/or misread Hamas’s
intentions, among other factors.2 Iran reportedly provides material support to Hamas, and intentions, among other factors.2 Iran reportedly provides material support to Hamas, and
according to U.S. officials may be complicit in a broad sense, but President Joe Biden according to U.S. officials may be complicit in a broad sense, but President Joe Biden ~~has said~~
said in October “there is no evidence” that Iran helped plan the attack.3 “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~~
~~bombardments in Gaza, and has encircled Gaza City through ground operations. Hamas and other~~
~~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 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~~
Egypt, via consultations with U.S., Israeli, and U.N. officials, is coordinating the use of its Rafah crossing with Gaza to bring international aid into the territory—in a way that seeks to prevent diversion by Hamas—and to permit U.S. citizens and other foreign passport holders safe passage out. Israel’s military has mobilized hundreds of thousands of troops, conducted air and artillery bombardments in Gaza, and encircled Gaza City through ground operations. Hamas and other Gaza-based militants have continued indiscriminate rocket fire into Israel. Reportedly as of November 29, more than 1,200 Israelis and foreign nationals (including 35 U.S. citizens in Israel) and more than 15,000 Palestinians in Gaza had been killed.4
1 Israeli Ministry of Foreign Affairs, “President Herzog reveals Hamas ‘Captive Taking Handbook’ in CNN interview,” 1 Israeli Ministry of Foreign Affairs, “President Herzog reveals Hamas ‘Captive Taking Handbook’ in CNN interview,”
October 15, 2023. October 15, 2023.
2 Center for Strategic and International Studies, “Experts React: Assessing the Israeli Intelligence and Potential Policy 2 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.
3 Scott Pelley, “President Joe Biden: The 2023 60 Minutes interview transcript,” CBS News, October 15, 2023; White 3 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 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, 10, 2023. For more information on Hamas, its possible reasons for the attacks, and Iranian material support for Hamas,
see CRS Report R47754, see CRS Report R47754, Israel and Hamas October 2023 Conflict: Frequently Asked Questions (FAQs), coordinated , coordinated
by Jim Zanotti, Jeremy M. Sharp, and Christopher M. Blanchard. by Jim Zanotti, Jeremy M. Sharp, and Christopher M. Blanchard.
4 4 ~~Israel Defense Forces, “IDF Announcement Sent to the Civilians of Gaza City,” October 13, 2023.~~
~~5 “Hamas tells Gaza residents to stay home as Israel ground offensive looms,” Reuters, October 13, 2023.~~
~~6 Figures for Gaza’s total population per Central Intelligence Agency World Factbook.~~
~~7 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash~~
~~(continued...)~~
United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash Update #54,” November 29, 2023; Department of State, “Secretary Antony J. Blinken at a Press Availability,” Tel Aviv, Israel, November 3, 2023. Palestinian casualty figures come from the Hamas-controlled government media office in Gaza. 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. Congressional Research Service 1 Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress Figure 1. Israel and Gaza: Conflict Map Hamas and other groups reportedly seized around 240 Israeli and foreign national hostages on October 7, including some Americans. Recovering hostages has been a major Israeli and U.S. concern and complicating factor for Israel’s military campaign. Via talks involving Qatar, Egypt, and the United States to address the hostage situation, Israel and Hamas agreed to a multi-day pause in fighting that began on November 24. During the pause, 97 hostages held in Gaza (including two U.S.-Israeli dual citizens) and 210 Palestinian prisoners held by Israel have been released as of November 29,5 and increased humanitarian supplies have come into Gaza from Egypt. Hamas and other groups reportedly still hold 140 or more persons in Gaza, including six to eight Americans.6 Negotiations reportedly continue toward extending this pause or starting new ones in connection with more hostage-prisoner exchanges. More than 1.8 million Gazans (out of a population of approximately 2.1 million people7) are reportedly displaced from their homes as of November 29.8 Since mid-October, the Israel Defense Forces (IDF) has “call[ed] for” the evacuation of civilians in northern Gaza “from their homes 5 “Israel releases more Palestinian prisoners on sixth day of Gaza truce after Hamas frees 16 hostages,” Associated Press, November 29, 2023. Two other American hostages were released before the late November pause. 6 Ibid.; Barak Ravid, “Hamas frees 16 hostages, including American, amid talks to extend Gaza ceasefire,” Axios, November 29, 2023. 7 Figures for Gaza’s total population per Central Intelligence Agency World Factbook. 8 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash Update #54,” November 29 ~~Congressional Research Service~~

1

~~Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress~~

~~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 with U.S., Israeli, and U.N. officials, is coordinating the use of its Rafah~~
~~crossing with Gaza to bring international aid into the territory—in a way that allows monitoring~~
~~to prevent diversion by Hamas—and to permit U.S. citizens and other foreign passport holders~~
~~safe passage out. After weeks of multi-party negotiations amid critiques by U.S. citizens in Gaza~~

~~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~~

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~~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 at various times 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~~, 2023. Congressional Research Service 2 Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress southwards for their own safety and protection,”9 and has reportedly prevented efforts by some Gazans to return to their homes in the north.10 As of late November, the IDF seems to control much of northern Gaza above ground, and is apparently preparing for major operations to confront key elements of Hamas’s military and political leadership in the group’s vast network of tunnels and in some areas of the south.11 Israel reportedly has sought to relocate many of Gaza’s internally displaced persons (IDPs) to makeshift camps in a relatively open part of southern Gaza, southern Gaza, but U.N. officials have expressed opposition to the plan and skepticism about logistically addressing the humanitarian needs of Gaza’s IDPs in that manner.12 Observers debate how to apportion blame between Israel and Hamas 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. Amid international public debate about damage and casualty levels and Israel’s use of large weapons in densely populated areas, an IDF spokesperson has argued that Israel has to use “larger bombs with a higher yield” to degrade Gazan military infrastructure that is often located near or under civilian facilities.13 U.S. and U.N. officials have sought to increase the provision of international assistance into Gaza via Egypt. U.N. officials have raised various public health concerns associated with fuel and water shortages, overcrowding, and poor sanitation. During the late November pause in fighting, Israel has allowed fuel shipments into Gaza and humanitarian convoys for the northern part of the territory, but these may decrease or end if the conflict resumes. Israeli officials have stated that their general opposition to fuel shipments stems from concerns that Hamas could divert the fuel for its military efforts. Some observers have pointed to evidence that Hamas has hoarded much of the fuel currently inside Gaza.14 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.15 President Biden expressed an expectation in mid-November that Israel would take “less intrusive action relative to hospitals,”16~~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 after officials from the World
Health Organization Health Organization (WHO) and two other U.N. agencies—identifying “perilous” conditions for pediatric and two other U.N. agencies—identifying “perilous” conditions for pediatric
care and other services in many hospitals (including care and other services in many hospitals (including the Al Shifa hospital, Gaza’s largest)—called for “urgent Gaza’s largest)—called for “urgent
international actioninternational action” to end attacks on those facilities.17 U.S. officials 9 Israel Defense Forces, “IDF Announcement Sent to the Civilians of Gaza City,” October 13, 2023. 10 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash Update #54,” November 29, 2023. 11 David Ignatius, “In Gaza, the hard search for tomorrow,” Washington Post, November 19, 2023. 12 Paul Adams, “When this truce ends, the decisive next phase of war begins,” BBC News, November 24, 2023. 13 Lauren Leatherby, “Big Bombs in Urban Areas Raise Civilian Toll in Gaza,” New York Times, November 26, 2023. 14 ~~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 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,” 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. , 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.~~
1315 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 #38,” November 13, 2023. Update #38,” November 13, 2023.
~~14 “Transcript: National Security Adviser Jake Sullivan on ‘Face the Nation,’ Nov. 12, 2023,” CBS News.~~
1516 Brett Samuels, “Biden: Hospitals ‘must be protected’ in Gaza as Israeli forces close in,” Brett Samuels, “Biden: Hospitals ‘must be protected’ in Gaza as Israeli forces close in,” The Hill, November 13, , November 13,
2023. 2023.
1617 World Health Organization, “UNFPA, UNICEF and WHO Regional Directors call for immediate action to halt World Health Organization, “UNFPA, UNICEF and WHO Regional Directors call for immediate action to halt
attacks on health care in Gaza,” November 12, 2023. 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~~

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~~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 11,000 Palestinians in Gaza had been killed as of November 12.19 Hamas and other~~
~~groups aligned with them could be holding some 239 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 among 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 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.~~
~~President 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.~~
Congressional Research Service 3 Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress have said that they have intelligence indicating that Hamas used Al Shifa for military purposes,18 though debate on this subject has persisted.19 As of late November, some patients (including a number of infants) have been evacuated, but others remain.20 Some hospital services in northern Gaza have been restored amid WHO calls for that to happen. Five out of 24 hospitals there are partially functioning.21 Various countries are reportedly establishing or provisioning field hospitals in southern Gaza, northern Egypt, or on ships offshore.22 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 alongside Prime Minister Netanyahu and Defense Minister Yoav Gallant.23 Netanyahu’s ~~stated~~
~~objective is~~two stated objectives are “To destroy the military and governmental capabilities of Hamas and bring the “To destroy the military and governmental capabilities of Hamas and bring the
~~hostages home.”24~~
~~After nearly three weeks of air strikes, Israel began ground operations inside Gaza in late~~
~~October. As of November 13, Israeli forces reportedly have encircled Gaza City. Israel seeks to~~
~~target Hamas’s command structure and vast network of tunnels.~~ hostages home.”24 Israel’s decisions regarding the potential resumption of fighting in Gaza could depend partly on its calculations about how Netanyahu’s stated objectives affect one another, and how Israel might effectively target Hamas in southern Gaza while minimizing risks to civilians. Israel has reportedly lost roughly 395~~Israel has reportedly lost roughly~~
~~than 365~~ soldiers since October 7, with soldiers since October 7, with ~~at least 46~~about 77 killed since its ground incursion began killed since its ground incursion began, and has claimed to have killed thousands of militants in Gaza. . Hamas
and other Palestinian militants may rely on the tunnels, their knowledge of Gaza’s terrain, and and other Palestinian militants may rely on the tunnels, their knowledge of Gaza’s terrain, and
urban warfare tactics to counter Israel’s conventional military superiority. urban warfare tactics to counter Israel’s conventional military superiority.
Since the October 7 attacks, Israel has exchanged fire with the Iran-backed Shia Islamist group 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
Lebanon. Israel has ordered the evacuation of more than 40 communities in northern Israel. If Lebanon. Israel has ordered the evacuation of more than 40 communities in northern Israel. If
these clashes escalate, Hezbollah’s arsenal of more than 100,000 missiles and rockets could pose these clashes escalate, Hezbollah’s arsenal of more than 100,000 missiles and rockets could pose

~~19 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash~~
~~Update #38,” November 13, 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.~~
~~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.~~
20a 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 Officials from the Palestinian Authority/Palestine Liberation Organization (PA/PLO), based in the West Bank, appear to be in a difficult position. While they do not endorse Hamas, they 18 White House, “On-the-Record Press Call by NSC Coordinator for Strategic Communications John Kirby and Deputy National Security Advisor for International Economics Mike Pyle to Preview President Biden’s Day Ahead at APEC,” November 16, 2023. 19 Dov Lieber and Omar Abdel-Baqui, “Israel Details Case Against Gaza Hospital,” Wall Street Journal, November 25, 2023. 20 WHO, “Joint UN mission transfers critical patients from Al-Shifa Hospital in Gaza, under intense fighting,” November 24, 2023. 21 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash
Update #Update #3854,” November ,” November 1329, 2023; WHO, “WHO leads very high-risk joint humanitarian mission to Al-Shifa Hospital in Gaza,” November 18, 2023. 22 Baruch Yedid, “Arab countries setting up field hospitals for Gazans,” Jewish News Syndicate, November 13, 2023. ~~, 2023.~~
~~21 Department of State, “Secretary Antony J. Blinken Remarks to the Press,” October 20, 2023.~~
~~22 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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~~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~~
~~Officials from the Palestinian Authority/Palestine Liberation Organization (PA/PLO), based~~
~~in the West Bank, appear to be in a difficult position. While they do not endorse Hamas, they~~
25 Adi Hashmonai, “Israel Plans to Evacuate Communities Close to Border with Lebanon, Many Refuse to Leave,” Haaretz, October 17, 2023. 26 “Israel strikes kill 8 Syria troops, hit Aleppo airport: defence ministry,” Agence France Presse, October 25, 2023. Congressional Research Service 4 Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress likely remain mindful of the sizable population of Palestinians who support confronting likely remain mindful of the sizable population of Palestinians who support confronting ~~Israel.27~~Israel27—support that could be bolstered by the prisoner releases that have occurred in late November.28
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 stopBiden has called for attacks by “extremist settlers” against Palestinians to stop~~.28 During~~
~~Secretary Blinken’s early November visit to Israel, he said he received and planned to monitor a~~
~~“clear commitment” from Israel’s government to act against extremist violence~~,29 and has written, “The United States is prepared to take our own steps, including issuing visa bans against extremists attacking civilians in the West in the West
Bank.Bank.29
~~As continuing conflict has increased civilian casualties~~”30 As civilian casualties have mounted in Gaza, some regional and international 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, the , the United Arab Emirates, and five additional Arab states jointly insisted on an , and five additional Arab states jointly insisted on an
immediate cease-fire in late immediate cease-fire in late October.31~~October.30 Qatar is facilitating indirect talks on hostage-related~~
~~issues between Israeli and U.S. officials and Hamas.~~ In mid-November, Saudi Arabia hosted a In mid-November, Saudi Arabia hosted a
“joint Arab Islamic” summit, where leaders from the Gulf, Iran, Egypt, Jordan, Turkey, and Syria “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 called for an end to “Israeli aggression against Gaza,” more humanitarian aid, and a freeze on
international arms exports to Israel.international arms exports to Israel.31 32 Although popular sentiment in Arab states has placed Although popular sentiment in Arab states has placed
pressure on their governments to publicly oppose Israeli actions in Gaza,pressure on their governments to publicly oppose Israeli actions in Gaza,3233 one former U.S. one former U.S.
official has said that many Arab leaders have told him that “Hamas must be destroyed in Gaza.”official has said that many Arab leaders have told him that “Hamas must be destroyed in Gaza.”33
34 During the previous Israel-Hamas conflicts, which were of smaller scope and intensity, many During the previous Israel-Hamas conflicts, which were of smaller scope and intensity, many
Arab states also publicly distanced themselves from Israel, only to resume earlier interactions Arab states also publicly distanced themselves from Israel, only to resume earlier interactions
~~with Israel after the conflict.~~
~~At the United Nations, multiple draft U.N. Security Council resolutions on the conflict have~~
~~failed. On October 27, the U.N. General Assembly adopted a resolution (opposed by the United~~
~~States) calling for an “immediate, durable and sustained humanitarian truce leading to a cessation~~
~~of hostilities,” and for the protection of civilians under international law (including the release of~~
~~all civilians illegally held captive).34~~
Some open questions include What would constitute “victory” for Israel in Gaza? What does the
~~future of Gaza look like? What effect might~~ with Israel after the conflict. On November 15, the U.N. Security Council adopted Resolution 2712, which called for “urgent and extended humanitarian pauses” and the “immediate and unconditional release of all hostages held by Hamas and other groups,” and urged all parties to refrain from depriving civilians in Gaza of “basic services and humanitarian assistance indispensable to their survival.” The resolution was adopted by a vote of 12 in favor, none against, with three abstentions (the United States, the United Kingdom, and Russia). U.S. Permanent Representative to the United Nations Linda Thomas-Greenfield stated that she could not vote yes on a text that did not condemn Hamas or reaffirm the rights of all Member States to protect their citizens from terrorist attacks.35 Some open questions include: What would constitute “victory” for Israel in Gaza? What does the future of Gaza look like? How will the conflict in Gaza affect the situation in the West Bank? What effect might (1) U.S. and international concerns regarding civilian U.S. and international concerns regarding civilian
~~suffering and casualties have on the duration and nature of Israeli military operations? What~~

~~25 Adi Hashmonai, “Israel Plans to Evacuate Communities Close to Border with Lebanon, Many Refuse to Leave,”~~
Haaretz, October 17, 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,” Ynetnews,~~
~~October 10, 2023.~~
28suffering and casualties in Gaza and (2) domestic Israeli sentiment regarding the status of hostages have on the duration 27 Mohammad al-Kassim, “PA President Mahmoud Abbas MIA as Hamas wages war against Israel,” Ynetnews, October 10, 2023. 28 Christina Goldbaum and Hiba Yazbek, “In West Bank, Trust in Hamas Only Deepens,” New York Times, November 30, 2023. 29 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.
~~29 Department of State, “Secretary Antony J. Blinken at a Press Availability,” Tel Aviv, Israel, November 3, 2023.~~
3030 Joe Biden, “The U.S. won't back down from the challenge of Putin and Hamas,” Washington Post, November 19, 2023. 31 Qatar Ministry of Foreign Affairs, “Qatar and a Number of Arab Countries Issue Joint Statement Following Cairo Qatar Ministry of Foreign Affairs, “Qatar and a Number of Arab Countries Issue Joint Statement Following Cairo
Peace Summit,” October 26, 2023. Peace Summit,” October 26, 2023.
3132 “Arab-Islamic summit adopts resolution on Israeli aggression against the Palestinian people,” “Arab-Islamic summit adopts resolution on Israeli aggression against the Palestinian people,” Arab News, November , November
12, 2023. 12, 2023.
3233 International Crisis Group, “The Gaza War Reverberates Across the Middle East,” November 4, 2023. International Crisis Group, “The Gaza War Reverberates Across the Middle East,” November 4, 2023.
3334 Dennis Ross, “I Might Have Once Favored a Cease-Fire with Hamas, but Not Now,” Dennis Ross, “I Might Have Once Favored a Cease-Fire with Hamas, but Not Now,” New York Times, October 27, , October 27,
2023. 2023.
~~34 Resolution available at https://documents-dds-~~
~~ny.un.org/doc/UNDOC/LTD/N23/319/20/PDF/N2331920.pdf?OpenElement~~See also “Many Arab governments would like to see Hamas gone,” The Economist, November 16, 2023. 35 United Nations, “Adopting Resolution 2712 (2023), Security Council Calls for ‘Urgent and Extended’ Humanitarian Pauses in Gaza, Immediate Release of Hostages,” November 15, 2023. Before the adoption of Resolution 2712, Russia proposed an amendment—which was not adopted—that would have called for an “immediate, durable and sustained humanitarian truce leading to a cessation of hostilities.” This verbiage had previously been adopted by the U.N. General Assembly on October 26 as part of its Resolution A/ES-10/L.25. .
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and nature of Israeli military operations? What might be the longer-term ramifications for U.S. priorities such as Israel’s security, countering the might be the longer-term ramifications for U.S. priorities such as Israel’s security, countering the
reach of Iran and its allies, and avoiding major war or humanitarian disaster? Under what reach of Iran and its allies, and avoiding major war or humanitarian disaster? Under what
circumstances and to what end might U.S.-backed diplomacy resume between Israel, Palestinians, circumstances and to what end might U.S.-backed diplomacy resume between Israel, Palestinians,
and Arab states? and Arab states?
U.S. Policy
Israeli Military Operations and 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. 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~~
~~for “humanitarian pauses”—possibly more limited in time and geographical scope—that might~~
~~safely facilitate aid delivery or serve other purposes.~~
President Biden, Secretary of State Blinken, Secretary of Defense Lloyd Austin, and President Biden, Secretary of State Blinken, Secretary of Defense Lloyd Austin, and ~~several~~ other 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.~~
~~view that Israel has the right and obligation to defend itself to prevent a recurrence of attacks on~~
~~the level of October 7, while remarking that “the way Israel does so matters.”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. officials have privately expressed to Israeli counterparts that they~~
~~may have limited time for operations to root out Hamas in Gaza before international uproar over~~
~~civilian suffering and calls for a cease-fire reach “a tipping point.”37 Apparently, U.S. officials~~
~~have advised Israelis that some measures might reduce civilian casualties, including~~
~~improvements in targeting and advance intelligence gathering, efforts to separate civilians from~~
~~militants, and the use of smaller bombs.38 On November 9, 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~~
conflict. U.S. officials have publicly disagreed with calls for an indefinite cease-fire, citing Israel’s right to defend itself. In a November 19 Washington Post op-ed column, President Biden wrote: As long as Hamas clings to its ideology of destruction, a cease-fire is not peace. To Hamas’s members, every cease-fire is time they exploit to rebuild their stockpile of rockets, reposition fighters and restart the killing by attacking innocents again. An outcome that leaves Hamas in control of Gaza would once more perpetuate its hate and deny Palestinian civilians the chance to build something better for themselves.36 Nevertheless, U.S. officials have voiced support for “humanitarian pauses,” and President Biden personally worked with Israeli and Qatari counterparts to help secure the late November pause in fighting and hostage-prisoner exchanges.37 While President Biden appears to broadly support Israel’s stated objectives of ending Hamas rule in Gaza, one former U.S. official has said that Biden is “looking for ways to de-escalate and eventually for an exit ramp.”38 Should fighting resume, the Administration has reportedly urged Israel to be more “surgical” in its targeting of Hamas to limit further civilian casualties. One unnamed official has stated, “We don’t support Israel moving in the south unless or until they can demonstrate a plan that accounts for the additional civilian life that is now in South Gaza and how they’re going to try to protect that,” while also saying that U.S. efforts to date in encouraging Israelis to be more cautious and precise have “had some effect on their thinking and their execution.”39 Some U.S. officials have reportedly privately expressed to Israeli counterparts that they may have limited time before international uproar over civilian suffering and calls for a cease-fire reach “a tipping point.”40 Potential Post-Conflict Scenarios
In addition to reportedly advising Israel on how it conducts military operations, U.S. officials 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 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.~~
~~38 Adam Entous et al., “U.S. Is Urging Israel to Limit Gaza Fatalities,” New York Times, November 5, 2023.~~
39 36 Biden, “The U.S. won't back down from the challenge of Putin and Hamas.” 37 Barak Ravid, “Inside Biden’s push for the Israel-Hamas hostage deal,” Axios, November 23, 2023. 38 Aaron David Miller, quoted in Peter Baker, “Challenge for Biden: What Comes Next,” New York Times, November 27, 2023. 39 “US officials urge Israel to be more precise and surgical in targeting of Hamas to limit civilian casualties,” CNN, November 28, 2023. 40 “US warns Israel amid Gaza carnage it doesn’t have long before support erodes,” CNN, November 3, 2023. See also “Top US general cautions over risks in a long Gaza war,” Reuters, November 9, 2023. Congressional Research Service 6 Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress governance of Gaza. In President Biden’s November 19 op-ed, he articulated the following principles for postwar Gaza: To start, Gaza must never again be used as a platform for terrorism. There must be no forcible displacement of Palestinians from Gaza, no reoccupation, no siege or blockade, and no reduction in territory…. As we strive for peace, Gaza and the West Bank should be reunited under a single governance structure, ultimately under a revitalized Palestinian Authority, as we all work toward a two-state solution…. The international community must commit resources to support the people of Gaza in the immediate aftermath of this crisis, including interim security measures, and establish a reconstruction mechanism to sustainably meet Gaza's long-term needs.41 In October 31 congressional testimony, Secretary Blinken said that if turning Gaza over to the PA “in one ~~“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.~~
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~~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~~
~~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.”~~
~~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~~
~~a Palestinian state.”42 In October 31 congressional testimony, Secretary Blinken said that “what~~
~~would make the most sense would be for an effective and revitalized Palestinian Authority to~~
~~have governance, and ultimately, security responsibility for Gaza,” but that if doing so “in one~~
step” cannot happen, “other, temporary arrangements” could involve other regional countries step” cannot happen, “other, temporary arrangements” could involve other regional countries
and/or international agencies.and/or international agencies.4342 Arab government leaders reportedly are resisting U.S. suggestions 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 that they play a larger role—expressing that they believe Gaza to be “a problem largely of Israel’s
own making.”own making.”4443
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.”4544 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.”4645
Prime Minister Netanyahu has said, “I think Israel will, for an indefinite period will have the 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.”overall security responsibility because we’ve seen what happens when we don’t have it.”4746
Netanyahu also has voiced skepticism about the PA’s ability to de-militarize and de-radicalize Netanyahu also has voiced skepticism about the PA’s ability to de-militarize and de-radicalize
Gaza, calling for some other “reconstructed civilian authority.”Gaza, calling for some other “reconstructed civilian authority.”4847 Some Israelis, including Some Israelis, including
opposition leader Yair Lapid, argue that the PA should return to Gaza,opposition leader Yair Lapid, argue that the PA should return to Gaza,4948 with some asserting that with some asserting that
Netanyahu’s stance reflects ideological opposition to a two-state solution.Netanyahu’s stance reflects ideological opposition to a two-state solution.5049 Additionally, the Additionally, the
resolution from the November “Arab Islamic” summit emphasized that the PLO (under whose 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 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 41 Biden, “The U.S. won't back down from the challenge of Putin and Hamas.” 42 Senate Appropriations Committee testimony available at https://www.cq.com/doc/congressionaltranscripts- Senate Appropriations Committee testimony available at https://www.cq.com/doc/congressionaltranscripts-
7867772?3. 7867772?3.
4443 Matthew Lee, “Arab leaders push for an Israel-Hamas cease-fire now,” November 4, 2023. Matthew Lee, “Arab leaders push for an Israel-Hamas cease-fire now,” November 4, 2023.
4544 “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.
4645 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
3, 2023. 3, 2023.
4746 Alexandra Hutzler, “Netanyahu to ABC’s Muir: ‘No cease-fire’ without release of hostages Hutzler, “Netanyahu to ABC’s Muir: ‘No cease-fire’ without release of hostages.”
48,” ABC News, November 6, 2023. 47 Transcript, “State of the Union,” CNN, November 12, 2023. Transcript, “State of the Union,” CNN, November 12, 2023.
4948 Anat Peled et al., “Israel, U.S. Split on Gaza Plan,” Anat Peled et al., “Israel, U.S. Split on Gaza Plan,” Wall Street Journal, November 13, 2023. , November 13, 2023.
5049 Zvi Bar’el, “Netanyahu Refuses to Admit That the Palestinian Authority Is the Only Option for Governing Gaza,” Zvi Bar’el, “Netanyahu Refuses to Admit That the Palestinian Authority Is the Only Option for Governing Gaza,”
Haaretz, November 13, 2023. , November 13, 2023.
~~51 “Arab-Islamic summit adopts resolution on Israeli aggression against the Palestinian people,” Arab News, November~~
~~12, 2023.~~
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~~spokesperson for PA President Abbas has insisted that Israeli attempts to separate Gaza from the~~
~~West Bank are destined to fail.52~~
Palestinian-inhabited territories “occupied since 1967” constitute a sole geographical unit.50 National Security Council spokesperson John Kirby has said that while IDF management of security is plausible for “at least some period of time” after the conflict, an IDF reoccupation of Gaza is not “a long-term governance solution.”51 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. ~~Given potential~~Potential
tensions among these three pointstensions among these three points~~, it is unclear whether or not a multilateral coalition with an~~
~~international mandate can facilitate an outcome addressing each one~~ could intensify challenges that any actors taking responsibility for Gaza would face. It is also unclear whether or . It is also unclear whether or
not such an outcome can not such an outcome can ~~occur~~be credible without some continuity in personnel who have run key civil without some continuity in personnel who have run key civil
services under Hamas rule. 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~~As of late November, the USS the USS Gerald R. Ford
~~carrier strike group, which was already in the Mediterranean, to the Eastern Mediterranean, and~~
~~directed the~~carrier strike group remains in the eastern Mediterranean. The USS USS Dwight D. Eisenhower carrier strike group is positioned in the Gulf of Oman, and~~carrier strike group to the Persian Gulf via the~~
~~Mediterranean. Each strike group includes an aircraft carrier with an embarked carrier air wing,~~
~~along with one cruiser and three 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~~
~~capable of conducting theater-range ballistic missile defense operations.~~
~~The United States has repositioned~~ the USS the USS Bataan Amphibious Ready Amphibious Ready Group (ARG) is positioned in the Red Sea.52~~Group (ARG) from the~~
~~Persian Gulf to the Red Sea. The ARG consists of three amphibious assault ships—the “large~~
~~deck” amphibious assault ship USS Bataan, which looks like a medium-sized aircraft carrier, and~~
~~two additional amphibious ships, USS Mesa Verde and USS Carter Hall. Stationed aboard the~~
~~three ships is the 26th Marine Expeditionary Unit (MEU) with approximately 2,400 Marines.~~
~~Air Force Aircraft.~~ The United States has also sent additional F-35, F-15, and F-16 fighter The United States has also sent additional F-35, F-15, and F-16 fighter
aircraft, and A-10 attack aircraft to the Middle East regionaircraft, 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
~~the U.S. Central Command (CENTCOM) area of responsibility, the United States has dispatched~~
a along with a Terminal High-Altitude Area Defense (THAAD) missile defense system to Saudi Arabia, and 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. Military Response to Iranian-Supported Groups Iran supports several proxy non-state actors across the Middle East, and armed groups in Iraq, Syria, Lebanon, and Yemen have expressed support for the Hamas attacks. To date, 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. Since mid-October, there have been at least 73 attacks against U.S. forces stationed in Iraq and Syria. The United States has conducted at least four air strikes in retaliation.53 In the Red Sea, the U.S. Navy has intercepted Houthi missiles and drones from Yemen heading toward Israel, thwarted Houthi hijackings of Israeli-linked commercial vessels, and taken fire from Houthi forces.54 The Houthis reportedly shot down a U.S. MQ-9 Reaper unmanned aerial vehicle.55 50 “Arab-Islamic summit adopts resolution on Israeli aggression against the Palestinian people,” Arab News, November 12, 2023. 51 White House, “Press Briefing by Press Secretary Karine Jean-Pierre and NSC Coordinator for Strategic Communications John Kirby,” November 8, 2023. 52 “USNI News Fleet and Marine Tracker,” USNI News, November 20, 2023. 53 Haley Britzky and Oren Liebermann, “US forces came under attack 4 times in Iraq and Syria on Thanksgiving,” CNN, November 24, 2023. 54 “US Navy seizes attackers who held Israel-linked tanker,” BBC News, November 27, 2023. 55 Eric Schmitt, “Houthi Rebels Shot Down a U.S. Drone Off Yemen’s Coast, Pentagon Says,” New York Times, November 8, 2023. Congressional Research Service 8 Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress U.S. Advisors. 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~~
~~to offer “advice to our Israeli partners on best practices for mitigating civilian harm.”53~~
~~U.S. Military Response to Iranian-Supported Groups~~
~~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”~~

~~52 “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~~
~~Israel,” October 23, 2023.~~
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~~to such operations.54 In late October, however, he said, “We don’t want this war to spread out.”55~~
~~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~~
~~Palestinians. 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, 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 prepared.”57 On three occasions, the United States has conducted air strikes against~~
~~facilities in 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);~~60 and~~56 (4) 155mm artillery shells. (4) 155mm artillery shells.6157 The Administration The Administration
also is also is to provide Israel with two Iron Dome batteries previously purchased by the U.S. Army. According to one report, the United States also has shipped 2,000 Hellfire laser-guided missiles for Israel’s Apache attack helicopters, along with 36,000 rounds of 30mm ammunition to be fired by the Apache’s cannon.58 The same report cites an Israeli request to the United States for: 57,000 155mm High Explosive artillery shells, 20,000 M4A1 rifles, 5,000 PVS-14 night vision devices, 3,000 M141 shoulder-fired bunker-buster munitions, 400 120mm mortars and 75 of the Army and Marine Corps’ Joint Light Tactical Vehicles.59 Humanitarian Assistance for Palestinians During President Biden’s October 18 visit to Israel, he announced $100 million in U.S. humanitarian assistance for Gaza and the West Bank, to “help support over a million displaced and conflict-affected people with clean water, food, hygiene support, medical care, and other essential needs” via “trusted partners including UN agencies and international NGOs.”60 According to the U.S. Agency for International Development (USAID), for FY2024, USAID’s Bureau of Humanitarian Assistance (BHA) has so far committed $21.9 million to the World Food Program. The Department of State’s Bureau of Population, Refugees, and Migration (PRM) has so far committed $66 million to the United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) and other implementing partners.61 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 or other groups.62 Other lawmakers have called for additional humanitarian aid for the Palestinians.63 56~~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.~~
~~humanitarian assistance for Gaza and the West Bank, to “help support over a million displaced~~
~~and conflict-affected people with clean water, food, hygiene support, medical care, and other~~
~~essential needs” via “trusted partners including UN agencies and international NGOs.”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 “Iran warns it may not ‘remain a spectator in Israel-Hamas conflict – as U.S. urges Iran not to intervene,” Forbes,~~
~~October 15, 2023.~~
~~55 “Iran does not want Israel-Hamas conflict to spread, foreign minister says,” Reuters, October 29, 2023.~~
~~56 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~~
~~Conference,” October 25, 2023.~~
~~58 “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.
6157 Reportedly, the Administration has decided to redirect these shipments, which had been taken from the U.S. Reportedly, the Administration has decided to redirect these shipments, which had been taken from the U.S.
stockpile in Israel (WRSA-I) to provide to Ukraine, back to Israel for their use. See Barak Ravid, “Scoop: U.S. to send stockpile in Israel (WRSA-I) to provide to Ukraine, back to Israel for their use. See Barak Ravid, “Scoop: U.S. to send
Israel artillery shells initially destined for Ukraine,” Axios, October 19, 2023. Israel artillery shells initially destined for Ukraine,” Axios, October 19, 2023.
~~62 White House, “U.S. Announcement of Humanitarian Assistance to the Palestinian People,” October 18, 2023.~~
~~Congressional Research Service~~

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~~may 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~~58 The report also noted that the U.S. Defense Department also has shipped 1,800 M141 bunker-buster munitions and at least 3,500 night-vision devices to Israel. Tony Capaccio, “Pentagon Is Sending Israel Ammunition, Laser-Guided Missiles,” Bloomberg, November 15, 2023. 59 Ibid. 60 White House, “U.S. Announcement of Humanitarian Assistance to the Palestinian People,” October 18, 2023. 61 USAID, Levant Complex Emergency Fact Sheet #1, November 14, 2023. 62 Text of October 24 letter from 24 Representatives to USAID 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. 63 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. Congressional Research Service 9 Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress
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.6564 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
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 Act, 2024, (226-196). The bill would provide $14.3 billion in Israel-related supplemental appropriations 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 proposed additional appropriations for Israel by rescinding $14.3 billion for the Internal Revenue Service. The bill does not include appropriations for Ukraine or humanitarian assistance. Possible Options for Congress 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. 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 64~~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- The request is available at https://www.whitehouse.gov/wp-content/uploads/2023/10/Letter-regarding-critical-
national-security-funding-needs-for-FY-2024.pdf. national-security-funding-needs-for-FY-2024.pdf.
Congressional Research Service Congressional Research Service

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~~Revenue Service. The bill does not include appropriations for Ukraine or for humanitarian~~
~~assistance.~~
~~Possible Options for Congress~~
~~Congress may consider an array of legislative or oversight options related to the ongoing conflict,~~
~~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~~
~~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
and Possible Conditions Lawmakers may consider whether to increase, maintain, or condition existing U.S. support for Lawmakers may consider whether to increase, maintain, or condition existing U.S. support for
Israel. Relevant types of U.S. assistance may include (1) missile defense funding; (2) Foreign Israel. Relevant types of U.S. assistance may include (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.6665 As the Senate considers one or more potential supplemental appropriations bills, some lawmakers have publicly signaled their support for specific legislative language that would potentially condition U.S. security assistance to Israel on Israel’s compliance with U.S. and/or international law and regard for civilian casualties.66 Other members have voiced opposition to efforts to “tie the hands of Israel” or condition assistance.67
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.6768
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 appropriated or allocated. Some strongly support boosting humanitarian assistance should be appropriated or allocated. Some strongly support boosting
humanitarian aid for Palestinians and facilitating its provision,humanitarian aid for Palestinians and facilitating its provision,6869 while others have expressed while others have expressed
concerns that Hamas or other militants could divert aid shipments for their own use.concerns that Hamas or other militants could divert aid shipments for their own use.69
~~End-Use Monitoring of U.S. Defense Articles~~
~~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~~
~~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~~

~~66 For more information on U.S. aid to Israel~~70 Monitoring U.S. Security Assistance for Human Rights Purposes 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 the early days of Israel’s military response, IDF spokesperson Rear Admiral Daniel Hagari noted that Israel’s air campaign emphasized damage and not accuracy.71 Regarding Israel’s obligation to comport with international legal standards, Deputy National Security Advisor Jon Finer asserted, “Israel is fighting an adversary that not only does not hold itself to these same standards; it openly boasts 65 For more information on the subject, see CRS Report RL33222, , see CRS Report RL33222, U.S. Foreign Aid to Israel, by Jeremy M. , by Jeremy M.
Sharp. Sharp.
6766 For example, see Sarah Fortinsky, “Turner says ‘conditional aid’ to Israel ‘accurately’ reflects US policy,” The Hill, November 26, 2023; “Sen. Murphy open to placing conditions on aid to Israel, calls civilian death toll in Gaza ‘unacceptable,’” CNN, November 26, 2023. 67 Senate Minority Leader, Congressional Record, November 28, 2023; Adrian Adragna, “Senate Foreign Relations chair does not support conditions on U.S. aid to Israel,” Politico, November 27, 2023. 68 See https://www.whitehouse.gov/wp-content/uploads/2023/10/Summary-of-Funding-Request-to-Meet-Critical- See https://www.whitehouse.gov/wp-content/uploads/2023/10/Summary-of-Funding-Request-to-Meet-Critical-
Needs.pdf. Needs.pdf.
6869 See text of October 18 letter from 33 Senators to Secretary Blinken at See text of October 18 letter from 33 Senators to Secretary Blinken at
https://www.murphy.senate.gov/imo/media/doc/un_humanitarian_appeal.pdf; and text of October 20 letter from 130 https://www.murphy.senate.gov/imo/media/doc/un_humanitarian_appeal.pdf; and text of October 20 letter from 130
Representatives to President Biden at https://connolly.house.gov/uploadedfiles/letter_to_president_biden_on_israel.pdf. Representatives to President Biden at https://connolly.house.gov/uploadedfiles/letter_to_president_biden_on_israel.pdf.
6970 Jeff Stein and Jacob Bogage, “GOP targets Gaza’s biggest relief group, clashing with the White House,” 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 , November 11, 2023; Marc Rod, “Republicans signal concerns about aid to Palestinians, Ukraine in Israel funding
request,” request,” Jewish Insider, October 23, 2023., October 23, 2023.
71 “Is Israel acting within the laws of war?” The Economist, October 14, 2023. Congressional Research Service Congressional Research Service

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~~items solely for their intended purposes.70 In addition, in summer 2023, the Department of State~~
~~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~~
~~suspected of using U.S. weapons and recommend actions that could include suspension of arms~~
~~sales.”71~~
~~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.~~ about flouting them… That does not diminish Israel’s obligations, but it is a facet of this conflict that makes the challenge extremely daunting.”72 In November 8 congressional testimony, In November 8 congressional testimony,
Deputy Assistant Secretary of Defense Dana Stroul remarked that “in our conversations with the 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 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 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.”there are incidents of civilian harm, they investigate them after.”7273 Regarding U.S. defense Regarding U.S. defense
consultation with Israel on mitigating civilian harm, 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~~

70one Wall Street Journal report noted that U.S. officials have “pressed Israel to avoid targets that would endanger large numbers of civilians or that might raise objections for violating international law. Those conversations have yielded only mixed success, and Washington has communicated its frustration with the civilian death toll to the Israeli government.”74 Congress may 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 laws such as the Arms Export Control Act (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 items solely for their intended purposes.75 In addition, in February 2023, the Administration revised the U.S. Conventional Arms Transfer Policy, which states: United States foreign policy and national security objectives are best advanced by facilitating arms transfers to trusted actors who will use them responsibly and who share United States interests. This policy recognizes that, when not employed responsibly, defense materiel can be used to violate human rights and international humanitarian law, increase the risk of civilian harm, and otherwise damage United States interests.76 In summer 2023, the Department of State 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 suspected of using U.S. weapons and recommend actions that could include suspension of arms sales.”77 According to the Department of Defense, Civilian Harm Mitigation and Response Officers (CHMROs) are actively monitoring reports of civilian casualties in Gaza.78 On November 15, Representative Ilhan Omar introduced H.J.Res. 102, a resolution of disapproval against the U.S. sale of SPICE Family Gliding Bomb Assemblies (a guidance kit for converting air-droppable unguided bombs into precision-guided bombs) to Israel.79 The resolution was referred to the Committee on Foreign Affairs. 72 Rachel Oswald, “US arms aid to Israel tests whether humanitarian law applies,” CQ News, November 20, 2023. 73 House Foreign Affairs Committee testimony available at https://plus.cq.com/doc/congressionaltranscripts-7877975?4. 74 Vivian Salama and Gordon Lubold, “Israel Tests Limits of Biden’s Support,” Wall Street Journal, November 20, 2023. 75 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.
~~71 Missy Ryan, “Biden administration will track civilian deaths from U.S.-supplied arms,” Washington Post, September~~
~~13, 2023.~~
~~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.~~
76 White House, Memorandum on United States Conventional Arms Transfer Policy, February 23, 2023. 77 Missy Ryan, “Biden administration will track civilian deaths from U.S.-supplied arms,” Washington Post, September 13, 2023. 78 Department of Defense, “Deputy Pentagon Press Secretary Ms. Sabrina Singh Holds a Press Briefing,” November 21, 2023. 79 For background information on these types of resolutions, see CRS Report RL31675, Arms Sales: Congressional Review Process, by Paul K. Kerr. Congressional Research Service Congressional Research Service

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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, Former 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. and Visual Information Specialists Amber Wilhelm and Brion Long contributed to this report.

Disclaimer
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