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

Changes from December 13, 2023 to January 11, 2024

This page shows textual changes in the document between the two versions indicated in the dates above. Textual matter removed in the later version is indicated with ~~red strikethrough~~ and textual matter added in the later version is indicated with blue.

Israel and Hamas ~~2023~~ Conflict In Brief:
~~December 13, 2023~~
~~Overview,~~ Overview, January 11, 2024 U.S. Policy, and Options for
Congress Jim Zanotti
~~Congress~~
~~Specialist in Middle~~
~~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

Specialist in Middle terrorist organization, or FTO) led surprise attacks against Israel from the Gaza Strip 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~~
~~Specialist in Middle~~
~~Israel that sparked the 1973 Yom Kippur War. The violence, scope, and lethality of the October 7~~
~~Eastern Affairs~~
~~assault stunned Israelis. The apparent intelligence and operational failures in preventing the~~

~~assault have become~~ . The Eastern Affairs stunning nature, scope, and lethality of the attacks and apparent intelligence failures have become a subject of analysis for Israeli and U.S. officials. Iran reportedly provides a subject of analysis for Israeli and U.S. officials. Iran reportedly provides
material support to material support to Jeremy M. Sharp Hamas, and according to U.S. officials may be complicit in a broad sense, but Hamas, and according to U.S. officials may be complicit in a broad sense, but

President Joe President Joe Specialist in Middle Biden said in October “there is no evidence” that Iran helped plan the attack. Biden said in October “there is no evidence” that Iran helped plan the attack.
Eastern Affairs In response to the October 7 attacks, IsraelIn response to the October 7 attacks, Israel~~’s cabinet formally~~ declared war on Hamas declared war on Hamas~~. Israel has conducted~~ and launched aerial aerial
bombardment and ground operations in Gazabombardment and ground operations in Gaza~~, and halted electricity, food, and fuel supplies to Gaza from Israeli territory.~~
~~The United Nations has stated that the situation in Gaza, with more than~~. Reportedly, more than 1,200 Israelis and foreign nationals (including 35 U.S. citizens in Israel) and more than 23,000 Palestinians in Gaza have been killed as of January 10, 2024. Hamas and other groups also seized around 240 hostages on October 7. Israel and Hamas agreed to a multiday pause in fighting in late November. During the pause, 110 hostages held in Gaza and 250 Palestinian prisoners held by Israel were released. Hamas and others reportedly hold some 130 persons, including about eight Americans. The United Nations has stated that the situation in Gaza, with an estimated 1.9 million Gazans displaced (out of a population of 1.9 million Gazans displaced (out of a population of
approximately 2.1 million people) constitutes a major humanitarian crisis—having already faced dire economic and approximately 2.1 million people) constitutes a major humanitarian crisis—having already faced dire economic and
humanitarian conditions before the conflict. Some goods are entering Gaza via Egypthumanitarian conditions before the conflict. Some goods are entering Gaza via Egypt and Israel, and~~, but~~ U.S. and U.N. officials have sought U.S. and U.N. officials have sought
~~to boost this aid.~~
~~Reportedly, more than 1,200 Israelis and foreign nationals (including 35 U.S. citizens in Israel) and more than 18,200~~
~~Palestinians in Gaza have been killed as of December 12. 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 in late November. During the pause, 110 hostages held in Gaza and 250 Palestinian prisoners~~
~~held by Israel were released. Hamas and others reportedly hold more than 130 persons, including about eight Americans.~~
to boost this aid. More than 60% of the housing units in Gaza have reportedly been destroyed or damaged. Israeli Prime Minister Benjamin Netanyahu initially announced that Israel’s military objectives were “To destroy the military Israeli Prime Minister Benjamin Netanyahu initially announced that Israel’s military objectives were “To destroy the military
and governmental capabilities of Hamas and bring the hostages home.” As of and governmental capabilities of Hamas and bring the hostages home.” As of ~~mid-December~~early January, the Israel Defense Forces (IDF) , the Israel Defense Forces (IDF)
seems to control much of northern Gaza above ground, seems to control much of northern Gaza above ground, ~~and has entered the southern Gaza city of Khan Yunis largely to~~
~~target Hamas’s leadership. The group’s network of tunnels makes~~while it engages in operations farther south targeting Hamas, including its top leaders. Hamas’s tunnels make urban warfare more challenging. Israeli officials reportedly have withdrawn several thousand troops and seek to complete a transition to lower-intensity operations in Gaza by the end of January. The Biden ~~urban warfare more challenging. Israel may maintain the~~
~~intensity of its ground operations into early 2024, and pursue the overall campaign for a “year or more.” The Biden~~
Administration has stated that Israel has the right Administration has stated that Israel has the right ~~and obligation~~ to defend itself, and has resisted calls from other to defend itself, and has resisted calls from other
international actors for an indefinite cease-fire. However, U.S. leaders international actors for an indefinite cease-fire. However, U.S. leaders ~~may be seeking for ways to deescalate and eventually~~
~~help end the conflict, and have reportedly urged Israel to be more precise in its targeting of Hamas to limit further civilian~~
~~casualties, amid debate regarding how the prosecution of the conflict may affect long-term outcomes.~~
~~There are risks that the conflict could expand. For~~ have urged Israel to minimize casualties and reduce the intensity of their operations, amid debate regarding how the prosecution of the conflict may affect long-term outcomes. While ultra-nationalists in the Israeli government have advocated resettling Palestinians outside of Gaza, U.S. officials have said that Palestinians “must not be pressed to leave Gaza” and “must be able to return home as soon as conditions allow.” There are risks that the conflict could expand geographically, and U.S. officials have sought to reduce these risks. For example, the Iran-backed Shia Islamist group Lebanese Hezbollah (another 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. 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~~
~~warn Iran and its allies not to get involved~~officials are reportedly seeking to help facilitate the withdrawal of Hezbollah forces from border areas to alleviate obstacles to the return of around 80,000 evacuated Israelis to their homes in the north. Israeli officials have threatened possible military action if the issue is not resolved diplomatically. In the Red Sea, the Iran-supported Houthi militia in Yemen has attacked commercial vessels transiting the Bab al Mandab strait, leading several major shipping companies to suspend or reroute cargoes at considerable cost. To counter threats the Houthis pose, the United States is reportedly considering various military options. Additionally, amid violence and tensions between Palestinians and Israelis in the . Additionally, amid violence and tensions between Palestinians and Israelis in the
~~West Bank, President Biden has called for attacks by “extremist settlers” against Palestinians to stop, and the Department of~~
~~State has announced a visa restriction policy aimed at those who undermine “peace, security, and stability” in the West Bank.~~
~~Prime Minister Netanyahu has said that Israel will have indefinite security responsibility for Gaza after the conflict, and~~
~~opposes the West Bank-based Palestinian Authority (PA) returning~~West Bank that could affect stability there, the Administration has imposed visa bans on some extremist Israeli settlers, delayed a firearms shipment to Israel, and made efforts to persuade Israel to ease or end measures that have precipitously decreased the revenues of the West Bank-based Palestinian Authority (PA). Differences between U.S., Israeli, and PA officials on post-conflict security and governance for Gaza may intensify the challenges involved. Netanyahu has insisted that only Israel can demilitarize Gaza, and openly opposes a PA return to power there. U.S. officials have expressed support for a to power there. U.S. officials have expressed support for a
resumption of PA administration in Gaza after the PA undertakes certain resumption of PA administration in Gaza after the PA undertakes certain reforms, as part of efforts to move toward a two-state solution; PA and other Arab leaders insist on progress toward a Palestinian state for them to cooperate with this transition~~reforms, and have said that any potentially~~
~~transitional Israeli security presence should permit this eventual outcome, in connection with efforts to move Israel and the~~
~~Palestinians away from violence and toward a two-state solution~~. .
In October 2023, President Biden asked Congress to appropriate more than $8 billion in U.S. security assistance for Israel, 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, with the House and Israel. Members of Congress have expressed differing views on the request and its various elements, with the House
passing H.R. 6126 and the Senate Appropriations Committee introducing S.Amdt. 1371 to H.R. 815. passing H.R. 6126 and the Senate Appropriations Committee introducing S.Amdt. 1371 to H.R. 815.
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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, and includes allegations of sexual violence.1 violence stunned Israelis and many others, and includes allegations of sexual violence.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 debate in Israel and elsewhere. Some analysts have said that Israel may have become a subject of 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 intentions.2 have missed signals, over-relied on technological solutions, and/or misread Hamas’s intentions.2
Whether or not Iran had a role in the attack remains a question. Iran reportedly provides material Whether or not Iran had a role in the attack remains a question. Iran reportedly provides material
support to Hamas, and according to U.S. officials may be complicit in a broad sense, but support to Hamas, and according to U.S. officials may be complicit in a broad sense, but
President Joe Biden said in October “there is no evidence” that Iran helped plan the attack.3 President Joe Biden said in October “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 one opposition party. Israel Benjamin Netanyahu formed an emergency unity government with one opposition party. Israel
also halted supplies from Israeli territory to Gaza of electricity, food, and fuelalso halted supplies from Israeli territory to Gaza of electricity, food, and fuel. ; it resumed some shipments from the Kerem Shalom crossing in late December. Since the outbreak of conflict, Egypt, via Egypt, via
consultations with U.S., Israeli, and U.N. officials, consultations with U.S., Israeli, and U.N. officials, ~~is coordinating~~has coordinated the use of its Rafah crossing the use of its Rafah crossing
with Gaza to bring with Gaza to bring some international aid into the territoryinternational aid into the territory—, in a way that seeks to prevent in a way that seeks to prevent diversion by Hamas~~diversion by~~
~~Hamas—and to permit U.S. citizens and other foreign passport holders safe passage out~~. .
Israel’s military Israel’s military ~~has~~ mobilized hundreds of thousands of troops, mobilized hundreds of thousands of troops, ~~conducted~~and has conducted major air and artillery air and artillery
bombardments in Gaza, and undertaken ground operations in both northern and southern Gaza. bombardments in Gaza, and undertaken ground operations in both northern and southern Gaza.
Most Palestinians in Gaza have been displaced from their homes and face profound humanitarian Most Palestinians in Gaza have been displaced from their homes and face profound humanitarian
challenges (discussed further below). At various points in the conflict, Hamas and other Gaza-challenges (discussed further below). At various points in the conflict, Hamas and other Gaza-
based militants have fired rockets indiscriminately into Israel. As of based militants have fired rockets indiscriminately into Israel. As of ~~mid-December~~early January, the Israel , the Israel
Defense Forces (IDF) seems to control much of northern Gaza above ground, Defense Forces (IDF) seems to control much of northern Gaza above ground, ~~and has reportedly~~
~~entered Khan Yunis in southern Gaza, as it continues major operations to target Hamas’s top~~
~~leaders—including in the group~~while it engages in operations farther south in an effort to target Hamas and its top leaders—including in Hamas’s vast network of tunnels.’s vast network of tunnels.4 Reportedly as of Reportedly as of ~~December 12~~January 10, 2024, more , more
than 1,200 Israelis and than 1,200 Israelis and ~~foreign nationals (including 35 U.S. citizens in Israel) and more than~~

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; “Blinken calls sexual violence inflicted by Hamas ‘beyond anything I’ve seen,’” CNN, December October 15, 2023; “Blinken calls sexual violence inflicted by Hamas ‘beyond anything I’ve seen,’” CNN, December
10, 2023. 10, 2023.
2 Ronen Bergman and Adam Goldman, “Israel Knew Hamas’s Attack Plan More Than a Year Ago,” 2 Ronen Bergman and Adam Goldman, “Israel Knew Hamas’s Attack Plan More Than a Year Ago,” New York Times, ,
November 30, 2023; Center for Strategic and International Studies, “Experts React: Assessing the Israeli Intelligence November 30, 2023; Center for Strategic and International Studies, “Experts React: Assessing the Israeli Intelligence
and Potential Policy Failure,” October 25, 2023. and Potential Policy Failure,” October 25, 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 see CRS ~~Report R47754, Israel and Hamas October 2023 Conflict: Frequently Asked Questions (FAQs), coordinated~~
~~by Jim Zanotti, Jeremy M. Sharp, and Christopher M. Blanchard.~~
~~4 “Insight: Israel's most wanted: the three Hamas leaders in Gaza it aims to kill,” Reuters, December 1, 2023~~In Focus IF12549, Hamas: Background, Current Status, and U.S. Policy, by Jim Zanotti. .
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Israel and Hamas ~~2023~~ Conflict In Brief: Overview, U.S. Policy, and Options for Congress

~~18,200~~foreign nationals (including 35 U.S. citizens in Israel) and more than 23,000 Palestinians in Gaza Palestinians in Gaza had been killed, and over 60% of Gaza’s housing units have been destroyed or damaged.4~~had been killed.5 The IDF’s treatment of detainees has received~~
~~increasing international attention.6~~
Figure 1. Israel and Gaza: Conflict Map

Hamas and other groups reportedly seized around 240 Israeli and foreign national hostages on 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. October 7, including some Americans. Recovering hostages has been a major Israeli and U.S.
concern. concern. ~~Via talks involving~~ Qatar, Egypt, and the United States Qatar, Egypt, and the United States ~~to address the hostage situation,~~
~~Israel and Hamas agreed to a multi-day pause in fighting~~facilitated a multiday pause in fighting between Israel and Hamas in the final week of November. During in the final week of November. During
the pause, 110 hostages held in Gaza (including two U.S.-Israeli dual citizens) and 250 the pause, 110 hostages held in Gaza (including two U.S.-Israeli dual citizens) and 250
Palestinian prisoners held by Israel were Palestinian prisoners held by Israel were ~~released,7 and increased humanitarian supplies came into~~
~~Gaza from Egypt.~~released.5 Hamas and other groups reportedly still hold Hamas and other groups reportedly still hold ~~more than~~around 130 persons in Gaza, including about eight Americans, but reports suggest that some of these hostages could be dead.6 As of early 4 ~~130 persons in Gaza,~~

5 United Nations Office for the Coordination of Humanitarian Affairs (UN-OCHA), “Hostilities in the Gaza Strip and United Nations Office for the Coordination of Humanitarian Affairs (UN-OCHA), “Hostilities in the Gaza Strip and
Israel | Flash Update #Israel | Flash Update #~~67,” December 12, 2023~~89,” January 10, 2024; “Hostilities in the Gaza Strip and Israel - reported impact | Day 95,” January 10, 2024; Department of State, “Secretary Antony J. Blinken at a Press ; Department of State, “Secretary Antony J. Blinken at a Press
Availability,” Tel Aviv, Israel, November 3, 2023. Palestinian casualty figures Availability,” Tel Aviv, Israel, November 3, 2023. Palestinian casualty figures and housing damage figures come from the Hamas-controlled health come from the Hamas-controlled health
ministry ministry ~~in Gaza~~and government media office in Gaza, respectively. Additionally, Israel reported that the bodies of around 1,500 dead militants had been found as of . 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. More than October 10 in southern Israeli areas recaptured by its military. More than ~~100~~ 180 Israeli soldiers have been killed since Israeli soldiers have been killed since
Israel’s military began ground operations in Gaza. Israel’s military began ground operations in Gaza.
~~6 Shayndi Raice and Carrie Keller-Lynn, “Israel Detains Hundreds of Palestinian Men,” Wall Street Journal, December~~
~~10, 2023.~~
75 Erin Banco, “Gaza hostage talks hit roadblock, raising fears of prolonged captivity” Erin Banco, “Gaza hostage talks hit roadblock, raising fears of prolonged captivity” Politico, December 7, 2023. Four , December 7, 2023. Four
hostages (including two Americans) were released before the late November pause. hostages (including two Americans) were released before the late November pause.
6 “Israeli defense chief resists pressure to halt Gaza offensive, says campaign will ‘take time,’” Associated Press, (continued...) 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

~~including about eight Americans.8 As of mid-December, questions surround if and when serious~~
~~negotiations might resume~~January, negotiations are reportedly ongoing for more hostage-prisoner exchanges that could pause the fighting. for more hostage-prisoner exchanges that could pause the fighting.
~~Hamas leaders may demand that Israel fully cease hostilities and release the~~ Hamas may be bargaining for a cessation of hostilities and full release of the approximately 7,000 approximately 7,000
~~Palestinian prisoners in its custody.9~~
~~More than 1.9 million Gazans (out of a population of approximately 2.1 million people10) are~~
~~reportedly displaced from their homes as of December 12.11 In mid-October, the IDF “call[ed]~~
~~for” the evacuation of civilians in northern Gaza “from their homes southwards for their own~~
~~safety and protection,”12 and has reportedly prevented efforts by some Gazans to return to their~~
~~homes in the north.13 Since the IDF moved into southern Gaza in early December, its strikes and~~
~~calls for people to evacuate some areas have triggered additional displacement within the south,~~
~~including from places that had been accommodating thousands of the people who had fled~~
~~northern Gaza.14 Israeli aspirations of designating “safe areas” have been met with criticism from~~
~~U.N. officials, with one arguing that the pace of Israeli operations in southern Gaza has made no~~
~~place safe for civilians, thus leaving any humanitarian plan to protect and aid them “in tatters.”15~~
Palestinian prisoners in Israel’s custody.7 On January 2, senior Hamas official Saleh al Arouri was assassinated in Beirut, reportedly by Israel; Qatari officials have signaled that Arouri’s killing could make a new hostage-prisoner deal more difficult.8 The conflict’s impact on civilians has generated a humanitarian crisis. An estimated 1.9 million Gazans (out of a population of approximately 2.1 million people)9 were reportedly displaced from their homes as of January 8, many on multiple occasions.10 Roughly 1 million people reportedly fled south after the IDF “call[ed] for” the evacuation of civilians in northern Gaza in mid-October.11 As of early January, there is major overcrowding in Gaza’s Rafah governorate near the Egyptian border because of IDF operations in other parts of southern Gaza.12 Observers debate how to apportion blame between Israel and Hamas for dangers to civilians and Observers debate how to apportion blame between Israel and Hamas for dangers to civilians and
the worsening of already dire humanitarian conditions in Gaza. While those faulting Israel argue 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 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 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.civilian areas and facilities unsafe by operating in or near them.
~~U.S. and U.N. officials have sought to increase the provision of international assistance into Gaza~~
~~via Egypt. U.N. and World Health Organization officials have raised many public health concerns~~
~~associated with water, food, and fuel shortages, overcrowding, poor sanitation, and challenges to~~
~~hospitals’ safety and functionality. During the November pause in fighting, more shipments came~~
~~in, with some reaching northern Gaza. With the resumption of hostilities, shipments have~~
~~decreased, humanitarian access to the north has almost completely stopped, and intensified~~
~~conflict in the south has largely obstructed aid distribution there.16~~13
Key Developments
Israel has formed an emergency unity government and “war management cabinet” that includes has formed an emergency unity government and “war management cabinet” that includes
key opposition figure Benny Gantz (a former defense minister and chief IDF commander) key opposition figure Benny Gantz (a former defense minister and chief IDF commander)
alongside Prime Minister Netanyahu and Defense Minister Yoav Gallant.alongside Prime Minister Netanyahu and Defense Minister Yoav Gallant.1714 Netanyahu’s initial Netanyahu’s initial
stated objectives stated objectives in Gaza were “To destroy the military and governmental capabilities of Hamas were “To destroy the military and governmental capabilities of Hamas and bring the hostages home.”15 The conflict may be moving toward a new phase: Israeli officials reportedly have withdrawn tens of thousands of troops and seek to complete a transition to lower-intensity operations in Gaza by the end of January.16 Netanyahu has reportedly said that Israel December 11, 2023; “‘This Week’ Transcript 12-3-23: White House NSC Coordinator for Strategic Communications John Kirby, Israeli Minister of Strategic Affairs Ron Dermer and Sen. James Lankford,” ABC News. “Gallant’s post-war Gaza plan: Palestinians to run civil affairs with global task force,” Times of Israel, January 4, 2024. On December 15, Israeli forces killed three unarmed Israeli hostages who were attempting to surrender to them. 7~~and bring~~

~~8 “Israeli defense chief resists pressure to halt Gaza offensive, says campaign will ‘take time,’” Associated Press,~~
~~December 11, 2023; “‘This Week’ Transcript 12-3-23: White House NSC Coordinator for Strategic Communications~~
~~John Kirby, Israeli Minister of Strategic Affairs Ron Dermer and Sen. James Lankford,” ABC News. Israel has said~~
~~that 20 of the people held by Hamas are dead.~~
9 Rory Jones et al., “Hamas Leader Studied His Enemy,” Rory Jones et al., “Hamas Leader Studied His Enemy,” Wall Street Journal, December 11, 2023. , December 11, 2023.
108 Barak Ravid, “Scoop: Qatar tells hostages’ families that getting deal harder after Hamas leader’s killing,” Axios, January 6, 2024. 9 Figures for Gaza’s total population per Central Intelligence Agency World Factbook. Figures for Gaza’s total population per Central Intelligence Agency World Factbook.
1110 UN-OCHA, “Hostilities in the Gaza Strip and Israel | Flash Update # UN-OCHA, “Hostilities in the Gaza Strip and Israel | Flash Update #~~67,” December 12, 2023.~~
1289,” January 10, 2024. 11 Israel Defense Forces, “IDF Announcement Sent to the Civilians of Gaza City,” October 13, 2023 Israel Defense Forces, “IDF Announcement Sent to the Civilians of Gaza City,” October 13, 2023.
~~13 UN-OCHA, “Hostilities in the Gaza Strip and Israel | Flash Update #54,” November 29, 2023.~~
~~14 Jared Malsin et al., “Israel's Grid Plan Faces Challenges,” Wall Street Journal, December 11, 2023.~~
~~15 UN-OCHA, “UN relief chief: ‘No place safe’ for civilians in southern Gaza,” December 7, 2023.~~
~~16 UN-OCHA, “Hostilities in the Gaza Strip and Israel | Flash Update #67,” December 12, 2023.~~
17; Isabel Kershner et al., “Israel Vows to Keep Up the Fight in Gaza as a Third Month of War Concludes,” New York Times, January 8, 2024. 12 UN-OCHA, “Hostilities in the Gaza Strip and Israel | Flash Update #89,” January 10, 2024. 13 See, for example, Michael Crowley and Edward Wong, “Under Scrutiny Over Gaza, Israel Points to Civilian Toll of U.S. Wars,” New York Times, November 7, 2023. 14 Barak Ravid, “Israel’s Netanyahu forms unity government with ex-Defense Minister Gantz,” Axios, October 11, Barak Ravid, “Israel’s Netanyahu forms unity government with ex-Defense Minister Gantz,” Axios, October 11,
2023; and Jeremy Sharon, “Netanyahu, Gantz agree to form emergency unity government,” 2023; and Jeremy Sharon, “Netanyahu, Gantz agree to form emergency unity government,” Times of Israel, October , October
11, 2023. 11, 2023.
15 “Netanyahu says the Gaza war has entered a new stage and will be ‘long and difficult,’” Associated Press, October 28, 2023. 16 Gordon Fairclough, “Israeli Defense Chief Defends War Conduct,” Wall Street Journal, January 8, 2024; Patrick Kingsley et al., “Israel Says Its Military Is Starting to Shift to a More Targeted Gaza Campaign,” New York Times, January 8, 2024. 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

~~the hostages home.”18 One report, citing people reportedly familiar with Israeli planning, has~~
~~stated that the most intensive phase of the ground offensive will likely continue into early 2024,~~
~~with the overall campaign set to last for a “year or more,” and timing driven by “operational~~
~~progress on the ground, international pressure and opportunities to free Israeli hostages~~might accept the expulsion, rather than the killing or capture, of Hamas’s top leaders.17 Ultra-nationalists in the Israeli government have advocated resettling Palestinians outside of Gaza amid strong opposition from Arab states and U.S. officials; Secretary of State Antony Blinken has said that displaced Palestinians “must not be pressed to leave Gaza” and “must be able to return home as soon as conditions allow.”18 U.S. and U.N. officials have sought to increase the provision of international assistance into Gaza. U.N. and World Health Organization officials have raised many public health concerns associated with water, food, and fuel shortages, overcrowding, poor sanitation, and challenges to hospitals’ safety and functionality. As of early January, some international and humanitarian organizations have warned of “acute malnutrition and mortality breaching famine thresholds” in Gaza amid “intense conflict and restricted humanitarian access.”19 .”19
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. Lebanon. ~~Israel has ordered the evacuation of more than 40 communities in northern Israel. If~~
If these clashes escalate, Hezbollah’s arsenal of these clashes escalate, Hezbollah’s arsenal of ~~more than 100~~some 150,000 missiles and rockets could pose ,000 missiles and rockets could pose
~~a grave threat to Israeli strategic sites and population centers.20~~
~~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~~
~~likely remain mindful of the sizable population of Palestinians who support confronting Israel21—~~
~~support that could be bolstered by the prisoner releases Hamas secured in late November and by~~
~~reactions to civilian suffering.22 Amid rising tensions and violence between Palestinians and~~
~~Israelis in the West Bank, President Biden has called for attacks by “extremist settlers” against~~
~~Palestinians to stop.23 On December 5, the Department of State announced a “a new visa~~
~~restriction policy targeting individuals believed to have been involved in undermining peace,~~
~~security, or stability in the West Bank.”24~~
~~As civilian casualties have mounted in Gaza, some regional and international actors have grown~~
~~more publicly critical of Israeli and U.S. policy. In mid-November, Saudi Arabia hosted a “joint~~
Arab Islamic” summit, where leaders from the Gulf, Iran, Egypt, Jordan, Turkey, and Syria
~~called for an end to “Israeli aggression against Gaza,” more humanitarian aid, and a freeze on~~
~~international arms exports to Israel.25 Although popular sentiment in Arab states has placed~~
~~pressure on their governments to publicly oppose Israeli actions in Gaza,26 one former U.S.~~
~~official has said that many Arab leaders have told him that “Hamas must be destroyed in Gaza.”27~~
~~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~~

~~18 “Netanyahu says the Gaza war has entered a new stage and will be ‘long and difficult,’” Associated Press, October~~
~~28, 2023.~~
~~19 Neri Zilber, “Israel plans for ‘long war’ and aims to kill top three Hamas leaders,” Financial Times, December 1,~~
~~2023.~~
~~20 Adi Hashmonai, “Israel Plans to Evacuate Communities Close to Border with Lebanon, Many Refuse to Leave,”~~
Haaretz, October 17, 2023.
~~21 Mohammad al-Kassim, “PA President Mahmoud Abbas MIA as Hamas wages war against Israel,” Ynetnews,~~
~~October 10, 2023.~~
~~22 Christina Goldbaum and Hiba Yazbek, “In West Bank, Trust in Hamas Only Deepens,” New York Times, November~~
~~30, 2023.~~
~~23 Joe Biden, “The U.S. won't back down from the challenge of Putin and Hamas,” Washington Post, November 19,~~
~~2023.~~
~~24 Department of State, “Announcement of Visa Restriction Policy to Promote Peace, Security, and Stability in the~~
~~West Bank,” December 1, 2023.~~
~~25 “Arab-Islamic summit adopts resolution on Israeli aggression against the Palestinian people,” Arab News, November~~
~~12, 2023.~~
~~26 International Crisis Group, “The Gaza War Reverberates Across the Middle East,” November 4, 2023.~~
~~27 Dennis Ross, “I Might Have Once Favored a Cease-Fire with Hamas, but Not Now,” New York Times, October 27,~~
~~2023. See also “Many Arab governments would like to see Hamas gone,” The Economist, November 16, 2023.~~
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~~Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress~~

~~was adopted by a vote of 12 in favor, none against (the United States, the United Kingdom, and~~
~~Russia abstained). 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.28 On December 8, the~~
~~United States vetoed a draft Security Council resolution that sought an “immediate humanitarian~~
~~ceasefire.” (Thirteen countries voted in favor and the United Kingdom abstained.)29~~
Some open questions include: What would constitute “victory” for Israel in Gaza? What does the
~~future of Gaza look like? What 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 circumstances and to what end might U.S.-backed diplomacy~~
~~resume between Israel, Palestinians, 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~~
~~with international law, including in Gaza. President Biden, Secretary of State Antony Blinken,~~
~~Secretary~~ a grave threat to Israeli strategic sites and population centers.20 U.S. officials are reportedly seeking to help facilitate the withdrawal of Hezbollah forces from border areas to alleviate obstacles to the return of around 80,000 evacuated Israelis to their homes in the north.21 Israeli officials have threatened wider military action to address the issue absent a diplomatic resolution, and the Arouri assassination and other January cross-border strikes by the two sides could affect their calculations regarding whether or not to escalate.22 In the Red Sea, the Iran-supported Houthi militia in Yemen has fired several missiles and drones toward Israel, and has carried out at least 26 attacks on shipping lanes that transit the Bab al Mandab strait.23 Despite repeated international warnings, the Houthis have continued such attacks, forcing, in many cases, the rerouting of commercial shipping around the Cape of Good Hope and away from the Red Sea and Suez Canal. Tensions and violence have continued between Palestinians and Israelis in the West Bank since October 7. West Bank-based officials from the Palestinian Authority/Palestine Liberation Organization (PA/PLO) appear to be in a difficult position. While they do not endorse Hamas, they have refrained from publicly condemning it, perhaps because of a perceived spike in West Bank Palestinian support for Hamas that may stem from Hamas’s military actions, the prisoner releases it has secured, and civilian suffering in Gaza.24 U.S. officials and lawmakers have signaled concerns related to Israeli actions in the West Bank that may affect stable living 17 Michael Horovitz, “Expulsion of Hamas leaders from Gaza on the table, PM said to tell hostage families,” Times of Israel, January 3, 2024. 18 Department of State, “Secretary Antony J. Blinken and Qatari Prime Minister and Minister of Foreign Affairs Mohammed bin Abdulrahman Al Thani at a Joint Press Availability,” January 7, 2024. 19 UN-OCHA, “Hostilities in the Gaza Strip and Israel | Flash Update #88,” January 9, 2024; UNICEF, “Intensifying conflict, malnutrition and disease in the Gaza Strip creates a deadly cycle that threatens over 1.1 million children,” January 5, 2024. 20 Yehoshua Kalisky, “Precision Missiles, UAVs, and Tens of Thousands of Fighters: Hezbollah’s Order of Battle,” Institute for National Security Studies, October 19, 2023. 21 U.S. officials also have said they hope that an easing of tensions could allow a return of displaced people from southern Lebanon (reportedly around 76,000) to their homes. Department of State, “Secretary Antony J. Blinken at a Press Availability,” January 9, 2024. 22 Euan Ward et al., “Israel says it killed another Hezbollah commander after back-and-forth attacks,” New York Times, January 9, 2024. 23 “US, UK forces repel ‘largest attack’ by Houthis in Red Sea,” Reuters, January 10, 2024. 24 Palestinian Center for Policy and Survey Research, “Public Opinion Poll No. 90,” published December 13, 2023. Congressional Research Service 4 Israel and Hamas Conflict In Brief: Overview, U.S. Policy, and Options for Congress conditions for Palestinians. The Administration has imposed visa bans on some extremist Israeli settlers,25 delayed a firearms shipment to Israel,26 and has called on Israel to ease or end measures that have precipitously decreased PA revenues since October 7.27 As civilian casualties have mounted in Gaza, some regional actors have grown more publicly critical of Israeli and U.S. policy. Popular sentiment in Arab states has placed pressure on their governments to oppose Israeli actions in Gaza,28 even though many Arab leaders might welcome an end to Hamas rule there.29 Together with other members of the Organization of Islamic Cooperation, Arab countries have called for an end to “Israeli aggression against Gaza,” more humanitarian aid, and a freeze on international arms exports to Israel.30 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.” On December 22, the Security Council adopted Resolution 2720, which called for “urgent steps to immediately allow safe, unhindered, and expanded humanitarian access and to create the conditions for a sustainable cessation of hostilities.” 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 with international law, including in Gaza. President Biden, Secretary of State Blinken, Secretary of Defense Lloyd Austin, and other Administration officials have visited Israel and of Defense Lloyd Austin, and other Administration officials have visited Israel and
other countries in the region since the outbreak of conflict. U.S. officials have publicly opposed other countries in the region since the outbreak of conflict. U.S. officials have publicly opposed
calls for an indefinite cease-fire, citing Israel’s right to defend itself.calls for an indefinite cease-fire, citing Israel’s right to defend itself.31 ~~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.30~~
Nevertheless, U.S. officials have voiced support for “humanitarian pauses,” and Nevertheless, U.S. officials have voiced support for “humanitarian pauses,” and ~~President Biden~~
~~reportedly personally worked with Israeli and Qatari counterparts to help secure the late~~
~~November pause in fighting and~~additional hostage-prisoner exchanges. hostage-prisoner exchanges.31
While President Biden appears to broadly support Israel’s stated objectives of ending Hamas rule While President Biden appears to broadly support Israel’s stated objectives of ending Hamas rule
in Gaza, in Gaza, ~~one former U.S. official has said that Biden is “looking for ways to de-escalate and~~
~~eventually for an exit ramp.”32 An Israeli media readout from an early December call between~~
~~President Biden and Prime Minister Netanyahu suggested that after “3-4 more weeks” of~~
~~operations in southern Gaza, U.S. officials expect the IDF approach to become “more focused~~
~~and less intense.”33 In urging Israel to avoid civilian casualties, Secretary Austin has said that~~
~~“protecting Palestinian civilians in Gaza is both a moral responsibility and a strategic~~

~~28 United Nations, “Adopting Resolution 2712 (2023), Security Council Calls for ‘Urgent and Extended’ Humanitarian~~
~~Pauses in Gaza, Immediate Release of Hostages,” November 15, 2023.~~
~~29 UN News, “US vetoes resolution on Gaza which called for ‘immediate humanitarian ceasefire,’” December 8, 2023.~~
~~30 Biden, “The U.S. won't back down from the challenge of Putin and Hamas.”~~
~~31 Barak Ravid, “Inside Biden’s push for the Israel-Hamas hostage deal,” Axios, November 23, 2023.~~
~~32 Aaron David Miller, quoted in Peter Baker, “Challenge for Biden: What Comes Next,” New York Times, November~~
~~27, 2023.~~
~~33 “Report: Netanyahu told Biden Khan Younis operation to go on for 3-4 more weeks,” Times of Israel, December 10,~~
~~2023.~~
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~~Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress~~

~~imperative.”34 On December 10, Secretary Blinken cited a “gap” between Israel’s intent to protect~~
~~civilians and the results.35 President Biden said on December 11, “We continue to provide~~
~~military assistance to Israel … until they get rid of Hamas. But – but we have to be careful. They~~
~~have to be careful,” and added “The whole world’s public opinion can shift overnight. We can’t~~
~~let that happen.”36 The following day, he warned that Israel is starting to lose international support~~
~~“by the indiscriminate bombing that takes place.”37~~
~~Potential Post-Conflict Scenarios~~
~~U.S. officials have engaged in diplomatic talks with Israel and other regional partners over the~~
~~future governance of post-war Gaza, with some differences emerging among these parties. In~~
~~President Biden’s November 19 op-ed, he~~he and Administration officials have sought to convince their Israeli counterparts to take steps to minimize casualties, reduce the intensity of their operations, and step up humanitarian aid. In December, President Biden said, “We continue to provide military assistance to Israel … until they get rid of Hamas,”32 while also warning that Israel has started to lose international 25 Department of State, “Announcement of Visa Restriction Policy to Promote Peace, Security, and Stability in the West Bank,” December 5, 2023. 26 Nancy A. Youssef and Vivian Salama, “Washington Is Blocking Shipment of Rifles to Israel,” Wall Street Journal, December 14, 2023. 27 Department of State, “Secretary Antony J. Blinken at a Press Availability,” January 9, 2024; “In ‘frustrating’ call, Biden said to tell PM to resolve Palestinian tax funds issue,” Times of Israel, December 29, 2023; Polina Ivanova and James Shotter, “Israel is pushing Palestinian governance to ‘edge of the edge’, PM warns,” Financial Times, January 4, 2023. 28 Cathrin Schaer, “Gaza conflict: Arab attitudes are hardening against Israel,” Deutsche Welle, December 20, 2023. 29 “Many Arab governments would like to see Hamas gone,” Economist, November 16, 2023. 30 “Arab-Islamic summit adopts resolution on Israeli aggression against the Palestinian people,” Arab News, November 12, 2023. 31 Biden, “The U.S. won’t back down from the challenge of Putin and Hamas.” 32 White House, “Remarks by President Biden at a Hanukkah Holiday Reception,” December 11, 2023. Congressional Research Service 5 Israel and Hamas Conflict In Brief: Overview, U.S. Policy, and Options for Congress support “by the indiscriminate bombing that takes place.”33 In early January, a National Security Council spokesperson said the Israeli goal of degrading Hamas’s ability to carry out attacks inside Israel is attainable, but it is unlikely that Israel can eliminate the group and its ideology.34 Potential Post-Conflict Scenarios The Administration has been conferring with Israeli and PA officials on security and governance for Gaza after conflict ends or abates. Tensions between supporting domestically legitimate Palestinian self-rule and safeguarding Israel’s capacity to monitor and stifle potential threats may intensify the challenges involved. In November, President Biden articulated the following principles: articulated the following principles:
To start, Gaza must never again be used as a platform for terrorism. There must be no 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, 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 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 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 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, 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 including interim security measures, and establish a reconstruction mechanism to
sustainably meet Gaza’s long-term needs.sustainably meet Gaza’s long-term needs.38
~~In October 31 congressional testimony, Secretary Blinken said that if turning Gaza over to the PA~~
~~“in one step” cannot happen, “other, temporary arrangements” could involve other regional~~
~~countries and/or international agencies.39 Arab government leaders reportedly are resisting U.S.~~
~~suggestions that they play a larger role—expressing that they believe Gaza to be “a problem~~
~~largely of Israel’s own making.”40~~
~~While discussing potential post-conflict scenarios with Blinken in the West Bank on November 5,~~
~~PA President Mahmoud Abbas stated the PA’s willingness to “fully assume our responsibilities~~
~~within the framework of a comprehensive political solution that includes all of the West Bank,~~
~~including East Jerusalem, and the Gaza Strip,”41 suggesting that he expects progress toward~~
~~Palestinian statehood in conjunction with any move toward resuming PA governance in Gaza. In~~
~~2005, Israel withdrew its military presence from Gaza and ceded control to the PA. Two years~~
~~later in 2007, the PA lost its hold on the territory in an armed struggle with Hamas, which was~~
~~founded in Gaza in the 1980s and has maintained a considerable base of support there since.~~
~~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.”42 He has~~

~~34 Department of Defense, “‘A Time for American Leadership’: Remarks by Secretary of Defense Lloyd J. Austin III at~~
~~the Reagan National Defense Forum (As Delivered),” December 2, 2023.~~
~~35 Department of State, “Secretary Antony J. Blinken with Martha Raddatz of ABC This Week,” December 10, 2023.~~
~~36 White House, “Remarks by President Biden at a Hanukkah Holiday Reception,” December 11, 2023.~~
~~37 White House, “Remarks by President Biden at a Campaign Reception,” December 12, 2023.~~
~~38 Biden, “The U.S. won't back down from the challenge of Putin and Hamas.”~~
~~39 Senate Appropriations Committee testimony available at https://www.cq.com/doc/congressionaltranscripts-~~
~~7867772?3.~~
~~40 Matthew Lee, “Arab leaders push for an Israel-Hamas cease-fire now,” November 4, 2023.~~
~~41 “Receiving US State Secretary, President Abbas demands immediate end to Israel's aggression on Gaza,” WAFA~~
~~News Agency, November 5, 2023.~~
~~42 Alexandra Hutzler, “Netanyahu to ABC’s Muir: ‘No cease-fire’ without release of hostages,” ABC News, November~~
~~6, 2023.~~
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~~Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress~~

~~argued that only the IDF (and not an international force) can demilitarize Gaza.43 Netanyahu also~~
~~has said that he disagrees with U.S. officials about a post-conflict role for the PA,44 calling instead~~
~~for some other “reconstructed civilian authority.”45~~
~~U.S. officials reportedly have acknowledged that the PA would need to “undertake major reforms,~~
~~purging its aging leaderships, setting a timetable for elections and overhauling its security forces,~~
~~in order to be able to step into Gaza.”46 One U.S. official 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.”47 On December 12, President Biden expressed an~~
~~interest in persuading Netanyahu to help strengthen and change the PA and be open to a possible~~
~~future Palestinian state, despite opposition to it within Netanyahu’s government.48~~
~~Questions may persist about the credibility of any post-conflict outcome and major reconstruction~~
~~effort that does not provide some form of (1) order and security, (2) Palestinian autonomy~~
~~(connected to aspirations for statehood), and (3) Israeli capacity to monitor and prevent the rise of~~
~~threats. Potential tensions among these three points could intensify challenges that actors taking~~
~~responsibility for Gaza would face. It is also unclear whether or not such an outcome can be~~
~~credible without some continuity in personnel who have run key civil services under Hamas rule.~~35 PA President Mahmoud Abbas has indicated that the PA would only govern Gaza—which Hamas forcibly seized from the PA in 2007—in the context of significant progress toward establishing a Palestinian state in the West Bank and Gaza, with a capital in East Jerusalem.36 Secretary Blinken has indicated that such progress is unlikely to be easy or “happen overnight.”37 U.S. and PA officials have reportedly discussed possible mechanisms for improving PA institutions, leadership, and domestic legitimacy. Some leading Palestinian figures argue that the PA cannot be strengthened via reforms without Israel granting it greater control over its revenues and security.38 Prime Minister Netanyahu has insisted that only Israel can demilitarize Gaza, and openly opposes the PA returning, purportedly because of rhetorical and financial support the PA provides for terrorism.39 Netanyahu’s position may stem partly from concerns that a return to PA governance in both the West Bank and Gaza could increase international pressure on Israel to accept a two-state solution. He also may calculate that his opposition to PA rule might rally domestic support for him and the ultra-nationalist figures in his government. The significant dip in Netanyahu’s public approval rating since the October 7 attack could lead to his government’s collapse and new Knesset elections sometime in 2024.40 Some of Netanyahu’s advisers may be signaling openness to the possibility of a future role in Gaza for a reformed PA.41 Prospects for any Hamas role in 33 White House, “Remarks by President Biden at a Campaign Reception,” December 12, 2023. 34 White House, “Press Briefing by Press Secretary Karine Jean-Pierre and NSC Coordinator for Strategic Communications John Kirby,” January 3, 2024. 35 Joe Biden, “The U.S. won’t back down from the challenge of Putin and Hamas,” Washington Post, November 18, 2023. 36 Additionally, PA Prime Minister Muhammad Shtayyeh has reportedly said that the PA would be prepared to govern Gaza only if there is a complete Israeli military withdrawal. David S. Cloud, “Israel Eases Opposition to Palestinian Rule,” Wall Street Journal, December 22, 2023. 37 Department of State, “Secretary Blinken’s Remarks to the Press,” January 10, 2023. 38 “US wants shakeup of Palestinian Authority to run Gaza after Hamas,” Reuters, December 16, 2023. 39 Benjamin Netanyahu, “Israel’s Three Prerequisites for Peace,” Wall Street Journal, December 26, 2023. 40 See, for example, Anshel Pfeffer, “Israel Is at War, and Netanyahu Just Launched His Re-election Campaign,” Haaretz, December 12, 2023. 41 Cloud, “Israel Eases Opposition to Palestinian Rule.” Congressional Research Service 6 Israel and Hamas Conflict In Brief: Overview, U.S. Policy, and Options for Congress post-conflict PA governance, which some leading PA figures appear to be discussing, would likely encounter U.S. and Israeli opposition.42 Major U.S. policy issues related to post-conflict scenarios in Gaza could include the following: • Resolving potential differences between U.S., Israeli, and PA officials. It is unclear whether or not the parties can move from the starting points discussed above to compromises on fundamental aspects of post-conflict governance and security. In early January, Defense Minister Gallant proposed a plan for eventual Palestinian civil administration in Gaza that would (1) maintain existing Palestinian administrative mechanisms, with officials and local clans unaffiliated with Hamas; (2) give Israel broad responsibility to prevent security threats against Israel, including via coordination with Egypt at its border with Gaza; and (3) empower a multinational task force (featuring the United States and some European and Arab states) on aspects of civil affairs and economic recovery.43 • Role of PA security forces. Reportedly, “U.S. and Palestinian officials have discussed a plan to retrain 1,000 former [PA] security forces officers in Gaza and a further 3,000 to 5,000 in the West Bank who would work in Gaza after the war,”44 with training presumably under the auspices of the U.S. Security Coordinator for Israel and the Palestinian Authority (USSC).45 • Arab states’ role. Egypt, Jordan, and Arab Gulf states may be reluctant to help with efforts to transition Gaza (by contributing troops, advisers, or funding) toward PA self-rule or help with reconstruction if doing so might be perceived domestically and internationally as enabling indefinite Israeli occupation. Thus, Arab state participation may depend on diplomatic progress toward Palestinian statehood.46
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 of as an evacuation of U.S. citizens in Israel and Gaza. As of ~~mid-December, the USS~~ ~~Gerald R.~~
~~Ford~~ ~~carrier strike group remains in the eastern Mediterranean. The~~early January 2024, the USS USS Dwight D. Eisenhower
carrier strike group is positioned in the carrier strike group is positioned in the ~~Gulf of Oman~~Red Sea, and the USSand the USS Bataan Amphibious Ready Amphibious Ready
~~Group (ARG) is positioned in the Red Sea.49 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 region along with a~~
~~Terminal High-Altitude Area Defense (THAAD) missile defense system to Saudi Arabia, and~~
~~Patriot air and missile systems to Kuwait, Jordan, Iraq, Qatar, and the United Arab Emirates.~~
~~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 84 attacks against U.S. forces stationed in Iraq and Syria. The United States has~~
~~conducted at least six air strikes in retaliation.50 In the Red Sea, the U.S. Navy has intercepted~~

~~43 Israeli Prime Minister’s Office, “Statement by PM Netanyahu,” December 5, 2023.~~
~~44 David S. Cloud, “Israel’s Netanyahu Rejects U.S. Plan for Postwar Gaza,” Wall Street Journal, December 12, 2023.~~
~~45 Transcript, “State of the Union,” CNN, November 12, 2023.~~
~~46 Cloud, “Israel’s Netanyahu Rejects U.S. Plan for Postwar Gaza.”~~
~~47 White House, “Press Briefing by Press Secretary Karine Jean-Pierre and NSC Coordinator for Strategic~~
~~Communications John Kirby,” November 8, 2023.~~
~~48 White House, “Remarks by President Biden at a Campaign Reception,” December 12, 2023.~~
~~49 “USNI News Fleet and Marine Tracker,” USNI News, November 20, 2023.~~
~~50 Haley Britzky and Oren Liebermann, “US forces came under attack 4 times in Iraq and Syria on Thanksgiving,”~~
~~CNN, November 24, 2023.~~
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~~Houthi missiles and drones from Yemen heading toward Israel, thwarted Houthi hijackings of~~
~~Israeli-linked commercial vessels, and taken fire from Houthi forces.51 The Houthis reportedly~~
~~shot down a U.S. MQ-9 Reaper unmanned aerial vehicle.52 On December 4, National Security~~
~~Advisor Jake Sullivan said, “[W]e are in talks with other countries about a maritime task force of~~
~~sorts involving the ships from partner nations alongside the United States in ensuring safe passage~~
~~in the Red Sea.”53 The United States already leads anti-piracy Task Force 153 to patrol the Red~~
~~Sea area. On December 9, the Houthis threatened to target all ships heading to Israel, regardless~~
~~of their nationality, and warned all international shipping companies against dealings with Israeli~~
~~ports.54~~Group (ARG) is positioned in the eastern Mediterranean.47 The USS Gerald R. Ford carrier strike group is returning home after eight months at sea, the last three of which were spent positioned in the Middle East to deter Iranian-supported groups. 42 Benoit Faucon et al., “Hamas Starts Planning for End of Gaza War,” Wall Street Journal, December 20, 2023. 43 “Gallant’s post-war Gaza plan: Palestinians to run civil affairs with global task force,” Times of Israel, January 4, 2024. Israel and Egypt are reportedly negotiating the future parameters of their coordination at the Egypt-Gaza border, based on Israeli allegations that this border has been the “main avenue” for Hamas to smuggle weapons and illicit goods into Gaza. Summer Said and Carrie Keller-Lynn, “Israel Presses Egypt over Its Gaza Border,” Wall Street Journal, January 8, 2024. 44 Benoit Faucon et al., “U.S. Presses Palestinians to Plan for Postwar Security,” Wall Street Journal, December 16, 2023. 45 For more on the USSC and U.S. security assistance for the PA, see archived CRS Report RL34074, The Palestinians: Background and U.S. Relations, by Jim Zanotti. 46 “US officials discuss post-war Gaza governance plans with Palestinian Authority and Arab nations,” CNN, December 8, 2023. 47 “USNI News Fleet and Marine Tracker,” USNI News, January 4, 2024. Congressional Research Service 7 Israel and Hamas Conflict In Brief: Overview, U.S. Policy, and Options for Congress 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 120 attacks against U.S. forces stationed in Iraq and Syria. The United States has conducted several air strikes in retaliation; in early January, a precision U.S. strike killed a senior commander from the Iran-backed Harakat al Nujaba (HaN), a U.S. Specially Designated Global Terrorist group based in Iraq.48 In response to Houthi attacks in the Red Sea, the U.S. Navy has positioned multiple warships to intercept those attacks and formed “Operation Prosperity Guardian,” a multinational coalition to safeguard freedom of navigation in the Red Sea area. On January 3, 2024, the White House, along with various U.S. partners, issued a formal warning to the Houthis, stating that “The Houthis will bear the responsibility of the consequences should they continue to threaten lives, the global economy, and free flow of commerce in the region’s critical waterways.”49 Some Members of Congress have called on the Biden Administration to redesignate the Some Members of Congress have called on the Biden Administration to redesignate the
~~Houthis as a Foreign Terrorist Organization (FTO).55~~ Houthis as an FTO.50 According to one report, the Administration According to one report, the Administration
is reviewing whether to do so.is reviewing whether to do so.5651
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 Israelsecurity assistance to Israel~~, including, as of early December, about 15,000 bombs and 57,000~~
~~artillery shells.57 Of the 15,000 bombs transferred to Israel, 5,400 were MK84 bombs, 5,000 were~~
~~unguided MK82 bombs, 3,000 were joint direct attack munitions (JDAM) that convert unguided~~
~~bombs into precision-guided munitions, 1,000 were GBU-39 small-diameter bombs, and 100~~
~~were BLU-109, 2,000-pound bunker-buster bombs.58~~
~~Emergency Arms Sale to Israel~~
~~On December 8, the Biden Administration notified Congress of a proposed sale to Israel of 120mm M830A1 High~~
~~Explosive Anti-Tank Multi-Purpose with Tracer (MPAT) tank cartridges ($106.5 mil ion). The~~. As of late December 2023, one report indicates that since October 7, the United States has dispatched 240 transport planes and 20 ships to deliver more than 10,000 tons of armaments and equipment to Israel; the same report notes that Israel also has ordered $2.8 billion in additional purchases from the United States.52 Since early December 2023, U.S. munition deliveries have included: about 15,000 bombs and 57,000 artillery shells.53 Emergency Arms Sale to Israel In December, the Biden Administration notified Congress of proposed sales to Israel of tank cartridges ($106.5 mil ion on 12/8) and artil ery shells ($147.5 mil ion on 12/29). In both instances, the Administration said Administration said
it was invoking emergency authorities codified in the Arms Export Control Act (22 U.S.C. 2776) that allow the it was invoking emergency authorities codified in the Arms Export Control Act (22 U.S.C. 2776) that allow the
President to waive congressional review of an arms sale if the President states in a formal notification to Congress President to waive congressional review of an arms sale if the President states in a formal notification to Congress
that “an emergency exists” requiring an immediate sale “in the national security interests of the United States.”that “an emergency exists” requiring an immediate sale “in the national security interests of the United States.”5954 According to the Department of Defense (DOD), both sales wil be from U.S. Army inventory or U.S. Army stock,
~~According to the New York Times, the tank rounds are part of a larger order from Israel of 45,000 rounds of~~
~~ammunition ($500 mil ion) for Merkava tanks that is under informal review by the House Foreign Affairs and~~
~~Senate Foreign Relations Committees.60 According to the Department of Defense, the tank cartridges wil be a~~
~~“sale from U.S. Army inventory,”~~ a possible reference to the U.S.-maintained stockpile in Israel, known as War a possible reference to the U.S.-maintained stockpile in Israel, known as War
Reserve Stocks for Allies-Israel (WRSA-I). Reserve Stocks for Allies-Israel (WRSA-I). ~~The~~Amendments to the authorization of WRSA-I in a Senate-introduced ~~authorization of WRSA-I (Section 12001 of P.L. 108-287) states~~
~~that “not later than 30 days before making a transfer under the authority of this section,” the President shall~~
~~transmit a notification of the proposed transfer to the appropriate oversight committees. A proposed amendment~~
~~to this authorization in the Senate~~ version of the supplemental appropriations bil for Israel (see below) would version of the supplemental appropriations bil for Israel (see below) would
waive congressional notification of sales to Israel from WRSA-I, by replacing 30-day congressional notification with waive congressional notification of sales to Israel from WRSA-I, by replacing 30-day congressional notification with
“or as far in advance of such transfer as is practicable as “or as far in advance of such transfer as is practicable as ~~determined by the President on a case-by-case basis~~

~~51 “US Navy seizes attackers who held Israel-linked tanker,” BBC News, November 27, 2023.~~
~~52 Eric Schmitt, “Houthi Rebels Shot Down a U.S. Drone Off Yemen’s Coast, Pentagon Says,” New York Times,~~
~~November 8, 2023.~~
~~53 White House, “Press briefing by Press Secretary Karine Jean-Pierre and National Security Advisor Jake Sullivan,”~~
~~December 4, 2023.~~
~~54 “Yemen’s Houthis warn they will target all ships headed to Israel,” Reuters, December 9, 2023.~~
~~55 “Chairman McCaul Issues Statement on Houthi Threat,” House Foreign Affairs Committee, December 4, 2023.~~
56 48 Department of Defense, “Self-Defense Strike in Iraq Kills Terrorist Leader,” DOD News, January 4, 2024. 49 White House, “A Joint Statement from the Governments of the United States, Australia, Bahrain, Belgium, Canada, Denmark, Germany, Italy, Japan, Netherlands, New Zealand, Republic of Korea, Singapore, and the United Kingdom,” January 3, 2024. 50 House Foreign Affairs Committee, “Chairman McCaul Issues Statement on Houthi Threat,” December 4, 2023. 51 Jennifer Jacobs, “US to Review Terrorist Label for Houthis After Ship Seized,” Bloomberg, November 21, 2023. Jennifer Jacobs, “US to Review Terrorist Label for Houthis After Ship Seized,” Bloomberg, November 21, 2023.
5752 “244 US cargo planes, 20 ships deliver over 10,000 tons of military equipment to Israel — report,” Times of Israel, December 25, 2023. 53 Jared Malsin and Nancy A. Youssef, “U.S. Provides Bunker-Buster Bombs to Israel Jared Malsin and Nancy A. Youssef, “U.S. Provides Bunker-Buster Bombs to Israel ~~---~~ —A surge in arms includes A surge in arms includes
15,000 bombs and 57,000 artillery shells,” 15,000 bombs and 57,000 artillery shells,” Wall Street Journal, December 2, 2023. , December 2, 2023.
~~58 Ibid.~~
5954 Defense Security Cooperation Agency, “Israel Defense Security Cooperation Agency, “Israel – —M830a1 120mm Tank Cartridges,” December 9, 2023. M830a1 120mm Tank Cartridges,” December 9, 2023.
~~60 Edward Wong, “State Department Bypasses Congress to Approve Israel’s Order for Tank Ammunition,”~~ ~~New York~~
~~Times, December 9, 2023.~~
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determined by the President on a case-by-case basis during extraordinary circumstances impacting the national security of the United States.” The House version of during extraordinary circumstances impacting the national security of the United States.” The House version of
~~the~~a supplemental appropriations bil would shorten supplemental appropriations bil would shorten congressional review to 15 days. Several Members of Congress have objected to the Administration’s use of emergency authority to bypass congressional review.55 ~~congressional review to 15 days. Since 1973, the executive~~
~~branch has invoked emergency arms sales authority for Israel once, in 1991.61~~
~~The United States has transferred interceptors to replenish Israel’s Iron Dome (a U.S.-supported~~
~~short-range anti-rocket, anti-mortar, and anti-artillery system) The Administration also is~~
~~reportedly sending Israel 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.62~~
Humanitarian Assistance for Palestinians
During President Biden’s October 18 visit to Israel, he announced $100 million in U.S. During President Biden’s October 18 visit to Israel, he announced $100 million in U.S.
humanitarian assistance for Gaza and the West Bank, to “help support over a million displaced humanitarian assistance for Gaza and the West Bank, to “help support over a million displaced
and conflict-affected people with clean water, food, hygiene support, medical care, and other and conflict-affected people with clean water, food, hygiene support, medical care, and other
essential needs” via “trusted partners including UN agencies and international NGOs.”essential needs” via “trusted partners including UN agencies and international NGOs.”6356
According to the U.S. Agency for International Development (USAID), for FY2024, USAID’s According to the U.S. Agency for International Development (USAID), for FY2024, USAID’s
Bureau of Humanitarian Assistance has so far committed $43.3 million in assistance for Gaza and Bureau of Humanitarian Assistance has so far committed $43.3 million in assistance for Gaza and
the West Bank, and the Department of State’s Bureau of Population, Refugees, and Migration has the West Bank, and the Department of State’s Bureau of Population, Refugees, and Migration has
committed $66 million for the region via the United Nations Relief and Works Agency for committed $66 million for the region via the United Nations Relief and Works Agency for
Palestine Refugees in the Near East (UNRWA) and another implementing partner.Palestine Refugees in the Near East (UNRWA) and another implementing partner.6457
Some lawmakers have sponsored legislation or written letters calling for a halt to humanitarian 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 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 Bank may previously have been diverted—or be at risk of future diversion—by Hamas or other
groups.groups.6558 Other lawmakers have called for additional humanitarian aid for the Palestinians. Other lawmakers have called for additional humanitarian aid for the Palestinians.6659
Supplemental Appropriations 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 others, and address other budget request to support U.S. partners, including Ukraine, Israel, and others, and address other
domestic and global issues.domestic and global issues.6760 In sum, the President seeks over In sum, the President seeks over $14 billion in Israel-related in Israel-related
funding. On November 2, the House passed H.R. 6126, the Israel Security Supplemental funding. On November 2, the House passed H.R. 6126, the Israel Security Supplemental
Appropriations Act, 2024, (by a vote of 226-196). The bill would provide $14.3 billion in Israel-Appropriations Act, 2024, (by a vote of 226-196). The bill would provide $14.3 billion in Israel-

~~61 President Determination No. 91-25 of March 21, 1991, 56 Fed. Reg. 13263 (April 1, 1991).~~
~~62 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.~~
63related supplemental appropriations, but would offset the proposed additional appropriations for Israel by rescinding $14.3 billion for the Internal Revenue Service. The bill does not include appropriations for Ukraine or humanitarian assistance. In early December, the Senate Appropriations Committee released its version of the supplemental bill in an amendment (S.Amdt. 1371 to H.R. 815). Like the House-passed bill and the President’s request, the Senate-introduced base bill would provide: • $5.4 billion for the Department of Defense (DOD)’s response to the Israel- Hamas war in Gaza and related expenses, including (1) $4.4 billion that could be 55 Alex Gangitano, “Senate Democrats scoff at Biden’s Israel arms sale,” The Hill, January 3, 2024. 56 White House, “U.S. Announcement of Humanitarian Assistance to the Palestinian People,” October 18, 2023. White House, “U.S. Announcement of Humanitarian Assistance to the Palestinian People,” October 18, 2023.
6457 USAID, Levant Complex Emergency Fact Sheet #2, December 7, 2023. USAID, Levant Complex Emergency Fact Sheet #2, December 7, 2023.
6558 Text of October 24 letter from 24 Representatives to USAID Director Samantha Power available at 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. 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 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 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. Hamas or other terrorist organizations or affiliates. Senate version: S. 489; House version: H.R. 5996.
6659 Text of November 8 letter from 26 Senators to President Biden available at 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. https://www.vanhollen.senate.gov/imo/media/doc/letter_to_president_biden_on_gaza.pdf.
6760 The request is available at https://www.whitehouse.gov/wp-content/uploads/2023/10/Letter-regarding-critical- The request is available at https://www.whitehouse.gov/wp-content/uploads/2023/10/Letter-regarding-critical-
national-security-funding-needs-for-FY-2024.pdf. national-security-funding-needs-for-FY-2024.pdf.
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~~related supplemental appropriations, but would offset the proposed additional appropriations for~~
~~Israel by rescinding $14.3 billion for the Internal Revenue Service. The bill does not include~~
~~appropriations for Ukraine or humanitarian assistance.~~
~~In early December, the Senate Appropriations Committee released its version of the supplemental~~
~~bill in an amendment (S.Amdt. 1371) to H.R. 815. Like the House-passed bill and the President’s~~
~~request, the Senate-introduced base bill would provide:~~
~~• $5.4 billion for the Department of Defense (DOD)’s response to the Israel-~~
~~Hamas war in Gaza and related expenses, including (1) $4.4 billion that could be~~
Conflict In Brief: Overview, U.S. Policy, and Options for Congress transferred among several defense appropriations accounts for various purposes transferred among several defense appropriations accounts for various purposes
(including the replenishment of U.S. defense equipment; reimbursement of DOD (including the replenishment of U.S. defense equipment; reimbursement of DOD
for defense services provided to Israel; expansion of munitions production; and for defense services provided to Israel; expansion of munitions production; and
production of unspecified critical defense articles); (2) production of unspecified critical defense articles); (2) $801.4 million for for
ammunition procurement; and (3) ammunition procurement; and (3) $198.6 million “to mitigate industrial base “to mitigate industrial base
constraints” through Defense Production Act purchases. constraints” through Defense Production Act purchases.
• • $4 billion in DOD funding for Iron Dome and David’s Sling defense systems. in DOD funding for Iron Dome and David’s Sling defense systems.
• • $3.5 billion in Foreign Military Financing (FMF), all of which may be made in Foreign Military Financing (FMF), all of which may be made
available for Israel to spend in-country in local currency (known as off-shore available for Israel to spend in-country in local currency (known as off-shore
procurement). The bill also would waive congressional notification for any FMF procurement). The bill also would waive congressional notification for any FMF
funds appropriated in the bill for Israel if the funds appropriated in the bill for Israel if the ~~president~~President determines that to do so is determines that to do so is
in the national security interest of the United States. in the national security interest of the United States.
• • $1.2 billion in DOD funding for the Iron Beam laser-based defense system being in DOD funding for the Iron Beam laser-based defense system being
developed by Israel. developed by Israel.
In addition, and like the House bill and the President’s request, the Senate-introduced base bill In addition, and like the House bill and the President’s request, the Senate-introduced base bill
also includes proposed provisions that would amend the Department of Defense Appropriations also includes proposed provisions that would amend the Department of Defense Appropriations
Act, 2005 (P.L. 108-287, §12001) to permit the transfer of previously prohibited categories of Act, 2005 (P.L. 108-287, §12001) to permit the transfer of previously prohibited categories of
defense articles to the Government of Israel, and temporarily waive limitations on the total value defense articles to the Government of 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). As of defense stockpiles located in Israel and set aside for Israel’s use per 22 U.S.C. §2321h(b). As
previously mentioned, H.R. 6126 would shorten the congressional review period for such previously mentioned, H.R. 6126 would shorten the congressional review period for such
transfers to 15 days; the Senate-introduced bill specifies that congressional review take place “as transfers to 15 days; the Senate-introduced bill specifies that congressional review take place “as
far in advance of such transfer as is practicable as determined by the President on a case-by-case far in advance of such transfer as is practicable as determined by the President on a case-by-case
basis during extraordinary circumstances impacting the national security of the United States.” basis during extraordinary circumstances impacting the national security of the United States.”
There are several There are several other differences between the House and Senate-introduced Israel-related differences between the House and Senate-introduced Israel-related
supplemental appropriations bills. In addition to aid to Israel, the President also requested over supplemental appropriations bills. In addition to aid to Israel, the President also requested over $9
billion in funding via global humanitarian accounts that could be partly allocated to address the 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 in neighboring countries): needs of those affected by the crisis in Gaza and Israel (including 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 in Migration and Refugee
Assistance (MRA). The House bill does not include these funds. The Senate-introduced bill Assistance (MRA). The House bill does not include these funds. The Senate-introduced bill
would increase funding levels beyond the President’s request to a total of $10 billion ($5.65 would increase funding levels beyond the President’s request to a total of $10 billion ($5.65
billion in IDA and $4.34 billion in MRA). billion in IDA and $4.34 billion in MRA).
The House bill mandates a reporting requirement describing all security assistance provided to The House bill mandates a reporting requirement describing all security assistance provided to
Israel since the October 7 attacks; the SenateIsrael since the October 7 attacks; the Senate-introduced bill does not. The Senate bill does not. The Senate-introduced bill includes $120 million bill includes $120 million
in additional appropriations for other entities, including $75 million in International Narcotics in additional appropriations for other entities, including $75 million in International Narcotics
Control and Law Enforcement (INCLE) funding for Jordan and Lebanon to enhance border Control and Law Enforcement (INCLE) funding for Jordan and Lebanon to enhance border
security; $10 million in INCLE for programs administered by the security; $10 million in INCLE for programs administered by the ~~U.S. Security Coordinator for~~
~~Israel and the Palestinian Authority (USSC)~~USSC; $10 million in Peace Keeping Operations (PKO) for ; $10 million in Peace Keeping Operations (PKO) for
a U.S. contribution to the Multinational Force and Observers mission in Egypt’s Sinai Peninsula a U.S. contribution to the Multinational Force and Observers mission in Egypt’s Sinai Peninsula
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to enhance force protection capabilities; and $25 million in Economic Support Funds (ESF) for to enhance force protection capabilities; and $25 million in Economic Support Funds (ESF) for
reconciliation programs in the Middle East, including between Israelis and Palestinians. reconciliation programs in the Middle East, including between Israelis and Palestinians.
13 Senators Announce Amendment to Supplemental Appropriations Bill for Israel
On December 7, 13 Senators published a “discussion draft” of an amendment to H.R. 815 that would (1) require On December 7, 13 Senators published a “discussion draft” of an amendment to H.R. 815 that would (1) require
that the weapons received by any country under this bil are used in accordance with U.S. law, international that the weapons received by any country under this bil are used in accordance with U.S. law, international
humanitarian law, and the law of armed conflict; (2) require that, per existing law (Section 620i(a) of the Foreign humanitarian law, and the law of armed conflict; (2) require that, per existing law (Section 620i(a) of the Foreign
Assistance Act), the President obtain assurances that any country receiving weapons via this bil cooperate ful y Assistance Act), the President obtain assurances that any country receiving weapons via this bil cooperate ful y
with U.S.-supported efforts to provide humanitarian assistance to those in need; and (3) require that the with U.S.-supported efforts to provide humanitarian assistance to those in need; and (3) require that the ~~president~~
President Congressional Research Service 10 Israel and Hamas Conflict In Brief: Overview, U.S. Policy, and Options for Congress report to the Congress within 30 days on whether each country receiving U.S. security assistance through this bil report to the Congress within 30 days on whether each country receiving U.S. security assistance through this bil
is, among other things, using U.S.-funded military equipment in accordance with their intended purposes.is, among other things, using U.S.-funded military equipment in accordance with their intended purposes.6861
Possible Options for Congress
Additional U.S. Assistance for Israel and Possible Conditions
Lawmakers may consider whether to increase, maintain, decrease, or condition existing U.S. Lawmakers may consider whether to increase, maintain, decrease, or condition existing U.S.
support for Israel. Some (see text box above) have publicly signaled their support for specific support for Israel. Some (see text box above) have publicly signaled their support for specific
legislative language that would potentially condition U.S. security assistance.legislative language that would potentially condition U.S. security assistance.6962 Other Members Other Members
have voiced opposition to efforts to “tie the hands of Israel” or condition assistance.have voiced opposition to efforts to “tie the hands of Israel” or condition assistance.7063 One report One report
suggests that some lawmakers object to the Administration’s proposed elimination of suggests that some lawmakers object to the Administration’s proposed elimination of
congressional reporting requirements on the use of FMF for Israel and that the Administration congressional reporting requirements on the use of FMF for Israel and that the Administration
may have to accept more oversight.may have to accept more oversight.7164 Senator Bernie Sanders has introduced S.Res. 504, a privileged resolution, which, if passed by the Senate by a simple majority vote, would mandate that within 30 days of passage, the State Department must provide Congress with information on Israel’s human rights practices pursuant to section 502B(c) of the Foreign Assistance Act of 1961. After receiving the report, Congress, by joint resolution, may act to terminate, restrict, or continue security assistance to Israel.
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.7265 Members of Congress are debating the scope and conditions under Members of Congress are debating the scope and conditions under
which humanitarian assistance should be appropriated or allocated. Some strongly support which humanitarian assistance should be appropriated or allocated. Some strongly support
boosting humanitarian aid for Palestinians and facilitating its provision,boosting humanitarian aid for Palestinians and facilitating its provision,7366 while others have while others have
expressed concerns that Hamas or other militants could divert aid shipments for their own use.expressed concerns that Hamas or other militants could divert aid shipments for their own use.7467

6861 Senator Chris Van Hollen, “Van Hollen, Durbin, Kaine, Schatz & Colleagues Announce Amendment Requiring that Senator Chris Van Hollen, “Van Hollen, Durbin, Kaine, Schatz & Colleagues Announce Amendment Requiring that
Use of U.S. Supplemental Aid Comply with U.S., International Law,” December 7, 2023. Use of U.S. Supplemental Aid Comply with U.S., International Law,” December 7, 2023.
6962 For example, see Sarah Fortinsky, “Turner says ‘conditional aid’ to Israel ‘accurately’ reflects US policy,” 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 November 26, 2023; “Sen. Murphy open to placing conditions on aid to Israel, calls civilian death toll in Gaza
‘unacceptable,’” CNN, November 26, 2023. ‘unacceptable,’” CNN, November 26, 2023.
7063 Senate Minority Leader, Senate Minority Leader, Congressional Record, November 28, 2023; Adrian Adragna, “Senate Foreign Relations November 28, 2023; Adrian Adragna, “Senate Foreign Relations
chair does not support conditions on U.S. aid to Israel,” chair does not support conditions on U.S. aid to Israel,” Politico, November 27, 2023. , November 27, 2023.
7164 Rachel Oswald, “Push to arm Israel reveals more Democrats urging conditions,” Rachel Oswald, “Push to arm Israel reveals more Democrats urging conditions,” CQ News, December 4, 2023. , December 4, 2023.
7265 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.
7366 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.
7467 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
~~(continued...)~~Post, November 11, 2023; Marc Rod, “Republicans signal concerns about aid to Palestinians, Ukraine in Israel funding request,” Jewish Insider, October 23, 2023.
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Monitoring U.S. Security Assistance for Human Rights Purposes
Since the IDF began its operations in Gaza, some critics have accused Israel of causing excessive Since the IDF began its operations in Gaza, some critics have accused Israel of causing excessive
civilian casualties and possible misuse of U.S. defense equipment.civilian casualties and possible misuse of U.S. defense equipment.7568 Biden Administration Biden Administration
officials also have become more vocal in their call for Israeli attentiveness to civilian casualtiesofficials also have become more vocal in their call for Israeli attentiveness to civilian casualties
~~(such as Secretary of Defense Austin, as mentioned above).76~~
.69 In an early January press conference, a State Department spokesperson remarked that while the United States has seen Israel “take additional measures to deconflict sites,” the “results continue to be – to not match where the Israeli intentions are.”70 In mid-December 2023, CNN reported that a U.S. intelligence assessment compiled by the Office of the Director of National Intelligence concluded that “40-45% of the 29,000 air-to-ground munitions Israel has used [in Gaza since October 7] have been unguided.”71 A Wall Street Journal report from late December investigating a bombing in which Israel killed a senior Hamas commander and 126 other individuals, concluded that while Israeli commanders attempted to limit collateral damage, the bombing of underground tunnels also brought down buildings standing above.72 In a December video, Israel Air Force (IAF) Chief of Staff Brig. Gen. Omer Tischler described the principles IAF officers are instructed to follow when planning potential air strikes.73 Congress may debate end-use monitoring (EUM) requirements for U.S. defense articles in the 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 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 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 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.articles use such items solely for their intended purposes.7774 In addition, in February 2023, the In addition, in February 2023, the
Administration revised the U.S. Conventional Arms Transfer Policy, which states: Administration revised the U.S. Conventional Arms Transfer Policy, which states:
United States foreign policy and national security objectives are best advanced by 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 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, United States interests. This policy recognizes that, when not employed responsibly,
defense materiel can be used to violate human rights and international humanitarian law, 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.increase the risk of civilian harm, and otherwise damage United States interests.78
~~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.”79 According to DOD, Civilian Harm Mitigation and~~
~~Response Officers (CHMROs) are actively monitoring reports of civilian casualties in Gaza.~~
~~Subsequent media reports and reports by human rights groups have called into question the ability~~
~~or willingness of the Administration to actively monitor Israel’s use of U.S.-supplied military~~
~~equipment.80 According to Mira Resnick, the Deputy Assistant Secretary for Regional Security at~~
~~the State Department’s Bureau of Political-Military Affairs, “This is an extremely challenging~~
~~space where there is fog of war, where there are challenges to our ability to get proper~~
~~information.”81~~

Post, November 11, 2023; Marc Rod, “Republicans signal concerns about aid to Palestinians, Ukraine in Israel funding
~~request,” Jewish Insider, October 23, 2023.~~
~~75 See, for example, Brian Finucane, “Is Washington Responsible for What Israel Does with American Weapons?”~~
Foreign Affairs, November 17, 2023.
~~76 U.S. Department of Defense, “’A Time for American Leadership': Remarks by Secretary of Defense Lloyd J. Austin~~
~~III at the Reagan National Defense Forum (As Delivered),” Secretary of Defense Lloyd J. Austin III, December 2,~~
~~2023.~~
7775 One report from mid-December indicated that the Biden Administration is withholding the delivery of 27,000 M4 and M16 rifles for Israel’s national police due to concerns that such armaments may be transferred to civilians under an initiative led by Israel’s ultra-nationalist National Security Minister Itamar Ben Gvir.76 68 See, for example, Brian Finucane, “Is Washington Responsible for What Israel Does with American Weapons?” Foreign Affairs, November 17, 2023. 69 Department of Defense, “‘A Time for American Leadership’: Remarks by Secretary of Defense Lloyd J. Austin III at the Reagan National Defense Forum (As Delivered),” Secretary of Defense Lloyd J. Austin III, December 2, 2023. 70 Department of State Press Briefing, January 4, 2024. 71 Natasha Bertrand and Katie Bo Lillis, “US intelligence assessment finds nearly half of Israeli munitions dropped on Gaza are imprecise ‘dumb bombs,’” CNN, December 13, 2023. 72 David S. Cloud, Dov Lieber and Omar Abdel-Baqui, “How an Israeli Airstrike on a Hamas Commander Also Killed Scores of Civilians,” Wall Street Journal, December 28, 2023. 73 Emanuel Fabian, “IAF: Gaza strikes precise, there’s no indiscriminate bombing, but mistakes can happen,” Times of Israel, December 28, 2023. 74 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.
7875 White House, Memorandum on United States Conventional Arms Transfer Policy, February 23, 2023. White House, Memorandum on United States Conventional Arms Transfer Policy, February 23, 2023.
~~79 Missy Ryan, “Biden administration will track civilian deaths from U.S.-supplied arms,” Washington Post, September~~
~~13, 2023.~~
~~80 For example, see Amnesty International, “Israel/OPT: US-made munitions killed 43 civilians in two documented~~
~~Israeli air strikes in Gaza – new investigation,” December 5, 2023.~~
~~81 Missy Ryan, Michael Birnbaum, Abigail Hauslohner and John Hudson, “Biden’s arming of Israel faces backlash as~~
Gaza’s civilian toll grows,” Washington Post~~, December 9~~76 Nancy A. Youssef and Vivian Salama, “Washington Is Blocking Shipment of Rifles to Israel,” Wall Street Journal, December 14, 2023. , 2023.
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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 Former Research Assistant Michael H. Memari, CRS Geospatial Information Systems ~~Analyst~~Analysts Molly Cox Molly Cox,
~~and~~ and Cassandra Higgins, and Visual Information Specialists Amber Wilhelm and Brion Long contributed to this report. Visual Information Specialists Amber Wilhelm and Brion Long contributed to this report.

Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
shared staff to congressional committees and Members of Congress. It operates solely at the behest of and shared staff to congressional committees and Members of Congress. It operates solely at the behest of and
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Congressional Research Service Congressional Research Service
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