Kuwait: Issues for the 118th Congress

Kuwait: Issues for the 118th Congress
March 19, 2024
U.S. relations with the State of Kuwait have remained close since the United States led a
multinational coalition that liberated Kuwait from Iraqi forces in 1991. Defense cooperation
Christopher M. Blanchard
serves as the centerpiece of U.S.-Kuwaiti partnership. The United States has U.S. military
Specialist in Middle
personnel deployed in Kuwait on a lasting and rotational basis, along with forward operational
Eastern Affairs
commands and U.S. military equipment pursuant to a bilateral Defense Cooperation Agreement

and an Acquisition and Cross-Servicing Agreement. Germany, Japan, and South Korea are the
only overseas countries that host more U.S. forces than Kuwait, if rotational forces are included.

The Kuwaiti government pays some of the cost of the U.S. military presence in Kuwait.
U.S. foreign and defense assistance to Kuwait has been limited, and since the 1990s, Congress has considered legislation
addressing bilateral relations relatively infrequently. Members of Congress may review developments in Kuwait and U.S.-
Kuwait relations in the context of overseeing U.S. diplomacy and defense policy, including efforts to ensure security of the
global energy supply, deter aggression, promote accountable governance and human rights, respond to humanitarian crises,
and deescalate conflicts in the Middle East region.
President George W. Bush designated Kuwait as a Major Non-NATO Ally in 2004, making Kuwait eligible to purchase
certain U.S. arms, receive excess defense articles (EDA), and engage in defense research cooperation with the United States.
Proposed U.S. foreign military sales to Kuwait since 2020 have included U.S. construction services for the Ministry of
Defense headquarters, Patriot missile system upgrades, Apache AH-64 helicopters, and land and air force munitions. The
Biden Administration has notified the 118th Congress of more than $2 billion in proposed foreign military sales to Kuwait.
With 1.3 million citizens, Kuwait derives its global influence from its large oil and natural gas reserves, its sizeable sovereign
financial resources, its strategic location at the northern terminus of the Persian Gulf, and its diplomatic outreach and posture
in international and regional organizations. Kuwait’s oil reserves amount to more than 7% of global proven reserves, and at
current production rates, its reserves would last through this century. Kuwait’s Emir, Shaykh Mishaal al Ahmed al Jaber Al
Sabah (born 1940), succeeded his late half-brother in December 2023; Emir Mishaal previous exercised some delegated
constitutional functions in his role as Crown Prince and before that served as the head of Kuwait’s National Guard and State
Security bureau. The Al Sabah family has exercised authority in Kuwait since the 18th century. Eligible Kuwaitis vote to elect
members of parliament, the National Assembly—the most constitutionally empowered and politically influential legislative
body among the Arab Gulf states. Kuwait’s citizenry is largely Sunni Muslim, and members of its Shia Muslim minority
(~30%) participate peacefully in politics.
Kuwait’s political environment has been under strain for years. A succession transition in 2006 rebalanced power in the Al
Sabah family, and future succession arrangements remain uncertain. Executive-legislative impasses over public spending,
corruption allegations, proposed reforms to public sector employment and benefits, service costs, and financing for new
economic initiatives have contributed to political discord since 2019. Voters elect 50 members to the 65-member National
Assembly (up to 15 appointed cabinet members also serve as Assembly members). Recent parliaments have included some
pro-reform and opposition figures. During the late Emir’s tenure he granted amnesty to some opposition figures and made
some attempts at greater consultation with constituent groups, though enduring differences often left the executive branch
and legislature at an impasse.
The new Emir in January 2024 named Shaykh Dr. Mohammad Sabah Al Salem Al Sabah as prime minister. On February 15,
2024, the Emir ordered the dissolution of the National Assembly elected in June 2023 pursuant to Article 107 of the Kuwaiti
constitution, citing “unrestrained, insulting language” to the Emir. A parliamentary election, the fourth since 2020, is
scheduled for April 10, 2024. The Emir has until December 2024 to appoint a Crown Prince as heir apparent, subject to the
approval of a majority of National Assembly members.
Kuwait has responded to the October 2023 Hamas-led attacks on Israel and ensuing Israel-Hamas war by reiterating its
solidarity with Palestinians, criticizing Israeli military actions, calling for an immediate ceasefire and unhindered
humanitarian access, and restating support for the establishment of an independent Palestinian state.
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link to page 4 link to page 5 link to page 5 link to page 5 link to page 7 link to page 7 link to page 8 link to page 10 link to page 11 link to page 12 link to page 12 link to page 13 link to page 13 link to page 13 link to page 14 link to page 14 link to page 16 link to page 17 link to page 18 link to page 4 link to page 7 link to page 19May 24, 2024 The Persian Gulf emirate of Kuwait derives its global influence from its large oil and natural gas reserves, its sizeable sovereign financial resources, its strategic location, and its diplomatic Christopher M. Blanchard outreach and posture in international and regional organizations. Kuwait’s oil reserves amount to Specialist in Middle more than 7% of global proven reserves, and at current production rates, its reserves would last Eastern Affairs through this century. Kuwait’s 1.3 million citizens are largely Sunni Muslim, and its Shia Muslim minority (~30%) has participated peacefully in politics. Kuwait’s Emir, Shaykh Mishaal al Ahmed al Jaber Al Sabah (born 1940), succeeded his late half-brother in December 2023. The Al Sabah family has exercised authority in Kuwait since the 18th century. A succession in 2006 rebalanced power in the Al Sabah family, and future succession arrangements are uncertain. Kuwait’s politics have been under strain for years, amid differences between the executive and legislative branches of government, within the ruling family, and among different constituencies. Kuwait’s National Assembly has long been the most constitutionally empowered and politically influential legislative body among the Arab Gulf states, and Kuwaiti citizens have been more politically engaged and active relative to their Gulf counterparts. On May 10, 2024, the Emir issued a decree dissolving the elected National Assembly and suspending several articles of the 1962 constitution for a period of up to four years, citing perceived challenges to his authority and longstanding executive-legislative impasses. The decree further called for a review of the practice of democracy in Kuwait. Previous emirs took similar steps twice in the past, suspending the legislature and specific constitutional articles from 1976 to 1981 and from 1986 to 1992. The current Emir’s order suspends additional articles that may enable the government to rule by decree, amend or issue laws, and implement executive decisions without future legislative review. The decree may allow Kuwaiti leaders to enact economic and public sector reforms while adapting the constitution to current conditions. However, Kuwaiti leaders may face domestic opposition and international scrutiny if changes erode the rights and responsibilities that Kuwaiti citizens have long maintained under the country’s unique consultative system. The Emir has tasked the government he appointed following the Assembly’s suspension with implementing development, fiscal reform, anticorruption, and service improvement measures. The Emir has until December 2024 to appoint a Crown Prince as heir apparent, a step that before May 10 would have been subject to the approval of a majority of National Assembly members. U.S. relations with the State of Kuwait have been close since the United States led a multinational coalition that liberated Kuwait from Iraqi forces in 1991. Defense cooperation serves as the centerpiece of U.S.-Kuwaiti partnership. The United States has U.S. military personnel deployed in Kuwait on a lasting and rotational basis, along with forward operational commands and U.S. military equipment pursuant to a bilateral Defense Cooperation Agreement and an Acquisition and Cross-Servicing Agreement. Germany, Japan, and South Korea are the only countries that host more U.S. forces than Kuwait, if rotational forces are included. The Kuwaiti government pays some of the cost of the U.S. military presence in Kuwait. U.S. foreign and defense assistance to Kuwait has been limited, and since the 1990s, Congress has considered legislation addressing bilateral relations relatively infrequently. President George W. Bush designated Kuwait as a Major Non-NATO Ally in 2004, making Kuwait eligible to purchase certain U.S. arms, receive excess defense articles (EDA), and engage in defense research cooperation with the United States. Proposed U.S. foreign military sales to Kuwait since 2020 have included U.S. construction services for the Ministry of Defense headquarters, Patriot missile system upgrades, Apache AH-64 helicopters, and land and air force munitions. The Biden Administration has notified the 118th Congress of more than $2 billion in proposed foreign military sales to Kuwait. Kuwait has responded to the October 2023 Hamas-led attacks on Israel and ensuing Israel-Hamas war by reiterating its solidarity with Palestinians, criticizing Israeli military actions, calling for an immediate ceasefire and unhindered humanitarian access, and restating support for the establishment of an independent Palestinian state. Members of Congress may review developments in Kuwait and U.S.-Kuwait relations in the context of overseeing U.S. diplomacy and defense policy, including efforts to ensure security of the global energy supply, deter aggression, promote accountable governance and human rights, respond to humanitarian crises, and deescalate conflicts in the Middle East region. Congressional Research Service link to page 4 link to page 5 link to page 5 link to page 5 link to page 7 link to page 8 link to page 9 link to page 10 link to page 11 link to page 12 link to page 12 link to page 12 link to page 12 link to page 13 link to page 13 link to page 15 link to page 17 link to page 17 link to page 4 link to page 8 link to page 18 link to page 20 link to page 20 Kuwait: Issues for the 118th Congress

Contents
Overview and Bilateral Relations .................................................................................................... 1
U.S.-Kuwaiti Defense Relations ............................................................................................... 2
U.S.-Kuwaiti Economic Relations ............................................................................................ 2
Congress and Kuwait ................................................................................................................ 2
Kuwait’s History and Politics .......................................................................................................... 4
Political System ......................................................................................................................... 4
2022 and 2023 Elections ........................................................................................................... 5
2023 Succession and 2024 Election .....5 2023 Succession, 2024 Election, and Assembly Suspension ..................................................................................... 7 6
Human Rights............................................................................................................................ 87
Women’s Rights .................................................................................................................. 98
Trafficking in Persons ......................................................................................................... 9
Religious Freedom and Tolerance ....................................................................................... 9 10
Kuwait’s Foreign Policy .................................................................................................................. 9 10
Kuwait and Russia’s War against Ukraine .............................................................................. 10.. 9
Kuwait and China ..................................................................................................................... 11 10
Kuwait and its Neighbors ......................................................................................................... 11 10
Fiscal, Economic, and Energy Issues ............................................................................................ 1312
Resources and Climate Change ............................................................................................... 14
Outlook .......................................................................................................................................... 1514

Figures
Figure 1. Map of Kuwait ................................................................................................................. 1
Figure 2. Kuwait: Basic Facts ......................................................................................................... 45

Appendixes
Appendix. Political Developments 2006-20202023 .............................................................................. 1615

Contacts
Author Information ........................................................................................................................ 17

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Kuwait: Issues for the 118th Congress

Overview and Bilateral Relations
The U.S. Department of State describes the U.S.-Kuwait relationship as warm and multifaceted.1 The U.S. Department of State describes the U.S.-Kuwait relationship as warm and multifaceted.1
Bilateral ties have remained close since the U.S.-led liberation of Kuwait in the 1991 Gulf War Bilateral ties have remained close since the U.S.-led liberation of Kuwait in the 1991 Gulf War
(see (see textboxtext box below). The United States hosted the fifth U.S.-Kuwait Strategic Dialogue below). The United States hosted the fifth U.S.-Kuwait Strategic Dialogue
ministerial in Washington, DC, in January 2022, and Secretary of State Antony Blinken expressed ministerial in Washington, DC, in January 2022, and Secretary of State Antony Blinken expressed
the Administration’s appreciation of the Kuwaiti government’s “generosity,” its “commitment to the Administration’s appreciation of the Kuwaiti government’s “generosity,” its “commitment to
humanitarianism and international stability,” and its “statesmanship.”2 A sixth dialogue was being humanitarianism and international stability,” and its “statesmanship.”2 A sixth dialogue was being
planned in late 2023 but appears to have been postponed.3 In October 2023, the U.S. Senate planned in late 2023 but appears to have been postponed.3 In October 2023, the U.S. Senate
confirmed Karen Sasahara as U.S. Ambassador to Kuwait. During the U.S. withdrawal from confirmed Karen Sasahara as U.S. Ambassador to Kuwait. During the U.S. withdrawal from
Afghanistan in August 2021, Kuwait chartered flights from its national airline to assist in the Afghanistan in August 2021, Kuwait chartered flights from its national airline to assist in the
evacuation of U.S. personnel and Afghan employees from Afghanistan and facilitated the onward evacuation of U.S. personnel and Afghan employees from Afghanistan and facilitated the onward
transit of 5,000 Afghans through its territory.4 Kuwaiti-U.S. counterterrorism cooperation has transit of 5,000 Afghans through its territory.4 Kuwaiti-U.S. counterterrorism cooperation has
deepened since the early 2000s. According to the Institute of International Education, deepened since the early 2000s. According to the Institute of International Education,
approximately 5,400 Kuwaiti students enrolled in U.S. higher education institutions during the approximately 5,400 Kuwaiti students enrolled in U.S. higher education institutions during the
2022/2023 academic year, an 8% annual decline.5 2022/2023 academic year, an 8% annual decline.5
Figure 1. Map of Kuwait

Source: CRS, using State Department and ESRI data. CRS, using State Department and ESRI data.
NotesNote: Energy fields and boundaries approximate. Energy fields and boundaries approximate.

1 U.S. State Department Bureau of Near Eastern Affairs, “U.S. Relations With Kuwait,” January 5, 2021. 1 U.S. State Department Bureau of Near Eastern Affairs, “U.S. Relations With Kuwait,” January 5, 2021.
2 U.S. State Department, Secretary Antony J. Blinken and Kuwaiti Foreign Minister Sheikh Ahmed Nasser Al-2 U.S. State Department, Secretary Antony J. Blinken and Kuwaiti Foreign Minister Sheikh Ahmed Nasser Al-
Mohammed Al-Sabah Statements to the Press, January 26, 2022. Mohammed Al-Sabah Statements to the Press, January 26, 2022.
3 Faten Omar, “US-Kuwait Strategic Dialogue to boost ties, address challenges,” 3 Faten Omar, “US-Kuwait Strategic Dialogue to boost ties, address challenges,” Kuwait Times, September 17, 2023. , September 17, 2023.
4 Agreement Between the United States of America and Kuwait Effected by Exchange of Notes at Kuwait City, August 4 Agreement Between the United States of America and Kuwait Effected by Exchange of Notes at Kuwait City, August
22, 2021; U.S. Ambassador Alina L. Romanowski, Statement on Kuwait’s Cooperation with the United States on 22, 2021; U.S. Ambassador Alina L. Romanowski, Statement on Kuwait’s Cooperation with the United States on
Evacuation of American Citizens and At-Risk Afghans, August 23, 2021; and, Sgt. Marc Loi, “29th Infantry Division Evacuation of American Citizens and At-Risk Afghans, August 23, 2021; and, Sgt. Marc Loi, “29th Infantry Division
moves 5,000 Afghans through Kuwait,” U.S. 29th Infantry Division, November 5, 2021. moves 5,000 Afghans through Kuwait,” U.S. 29th Infantry Division, November 5, 2021.
5 Institute of International Education, 5 Institute of International Education, Open Doors - —International Students Data, November 2023. International Students Data, November 2023.
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Kuwait: Issues for the 118th Congress

U.S.-Kuwaiti Defense Relations
As of 2024, thousands of U.S. military personnel are in Kuwait at the invitation of the Kuwaiti As of 2024, thousands of U.S. military personnel are in Kuwait at the invitation of the Kuwaiti
government, which pays some of the cost of the U.S. military presence.6 Kuwait hosts the government, which pays some of the cost of the U.S. military presence.6 Kuwait hosts the
forward headquarters of U.S. Army Central Command (USARCENT) and the Combined Joint forward headquarters of U.S. Army Central Command (USARCENT) and the Combined Joint
Task Force Operation Inherent Resolve (CJTF-OIR), which supports Iraqi and Syrian partner Task Force Operation Inherent Resolve (CJTF-OIR), which supports Iraqi and Syrian partner
forces in operations against the remnants of the Islamic State (IS, aka ISIS/ISIL) organization. forces in operations against the remnants of the Islamic State (IS, aka ISIS/ISIL) organization.
When rotational forces are included in the count, only Germany, Japan, and South Korea host When rotational forces are included in the count, only Germany, Japan, and South Korea host
more U.S. forces than Kuwait. A bilateral Defense Cooperation Agreement is in place. more U.S. forces than Kuwait. A bilateral Defense Cooperation Agreement is in place.
U.S. forces affiliated with Task Force Spartan/Operation Spartan Shield also operate in Kuwait, U.S. forces affiliated with Task Force Spartan/Operation Spartan Shield also operate in Kuwait,
for deterrence purposes and to build regional partner capacity. The 401st Army Field Support for deterrence purposes and to build regional partner capacity. The 401st Army Field Support
Battalion–Kuwait manages pre-positioned U.S. Army stocks in Kuwait, and Kuwait-based Battalion–Kuwait manages pre-positioned U.S. Army stocks in Kuwait, and Kuwait-based
stockpiles have been used to support Ukraine under drawdown authorities. Proposed U.S. foreign stockpiles have been used to support Ukraine under drawdown authorities. Proposed U.S. foreign
military sales to Kuwait since 2020 have included U.S. construction services for the Ministry of military sales to Kuwait since 2020 have included U.S. construction services for the Ministry of
Defense headquarters, various Patriot missile system upgrades, Apache AH-64 helicopters, and Defense headquarters, various Patriot missile system upgrades, Apache AH-64 helicopters, and
land and air force munitions, follow-on support, and services. land and air force munitions, follow-on support, and services.
In August 2022, a purported Iraqi armed group claimed to have launched an unmanned aerial In August 2022, a purported Iraqi armed group claimed to have launched an unmanned aerial
system (UAS/drone) attack against Ali Al Salem Air Base; U.S. forces, which provide for their system (UAS/drone) attack against Ali Al Salem Air Base; U.S. forces, which provide for their
own security in Kuwait, initially denied that any attack took place In May 2023, U.S. officials own security in Kuwait, initially denied that any attack took place In May 2023, U.S. officials
told the press that remnants of an Iranian-origin UAS had been recovered on Iraq’s territory told the press that remnants of an Iranian-origin UAS had been recovered on Iraq’s territory
following the reported attack.7 following the reported attack.7
U.S.-Kuwaiti Economic Relations
U.S.-Kuwaiti trade relations are limited in scope. The United States and Kuwait signed a Trade The United States and Kuwait signed a Trade
Investment Framework Agreement in 2004. In 2023, U.S. exports to Kuwait were valued at $2.92 Investment Framework Agreement in 2004. In 2023, U.S. exports to Kuwait were valued at $2.92
billion and U.S. imports from Kuwait were valued at $1.72 billion.8 The overall value of bilateral billion and U.S. imports from Kuwait were valued at $1.72 billion.8 The overall value of bilateral
trade has declined since 2015, reflecting lower prices and volumes of Kuwaiti oil exports to the trade has declined since 2015, reflecting lower prices and volumes of Kuwaiti oil exports to the
United States. In April 2022, the United States removed Kuwait from the U.S. Trade United States. In April 2022, the United States removed Kuwait from the U.S. Trade
Representative’s Section 301 Watch List citing “continued and significant progress on concerns Representative’s Section 301 Watch List citing “continued and significant progress on concerns
that stakeholders identified with [intellectual property] IP enforcement and transparency rights.”9 that stakeholders identified with [intellectual property] IP enforcement and transparency rights.”9
Congress and Kuwait
Congress has considered legislation addressing U.S. relations with Kuwait relatively infrequently Congress has considered legislation addressing U.S. relations with Kuwait relatively infrequently
since the 1990s, but Members of Congress frequently visit U.S. troops stationed in Kuwait. In since the 1990s, but Members of Congress frequently visit U.S. troops stationed in Kuwait. In
2022, Congress designated U.S. veterans who served on active duty in Kuwait on or after August 2022, Congress designated U.S. veterans who served on active duty in Kuwait on or after August
2, 1990, as “covered veterans” under the Honoring our Promise to Address Comprehensive 2, 1990, as “covered veterans” under the Honoring our Promise to Address Comprehensive
Toxics (PACT) Act of 2022 (P.L. 117-168), which expands health care eligibility for veterans Toxics (PACT) Act of 2022 (P.L. 117-168), which expands health care eligibility for veterans
subject to toxic exposure. subject to toxic exposure.


6 Current U.S. law provides for acceptance of burden sharing contributions by designated countries and regional 6 Current U.S. law provides for acceptance of burden sharing contributions by designated countries and regional
organizations (see 10 U.S.C. 2609 and 10 U.S.C. 2350j). organizations (see 10 U.S.C. 2609 and 10 U.S.C. 2350j).
7 Associated Press, “US Air Force Targeted in ‘Propaganda Attack’ in Kuwait,” August 21, 2022; and, Michael R. 7 Associated Press, “US Air Force Targeted in ‘Propaganda Attack’ in Kuwait,” August 21, 2022; and, Michael R.
Gordon, Warren P. Strobel, and David S. Cloud, “Drone Strike That Killed U.S. Contractor in Syria Was Launched by Gordon, Warren P. Strobel, and David S. Cloud, “Drone Strike That Killed U.S. Contractor in Syria Was Launched by
Iran-Backed Militia in Iraq,” Iran-Backed Militia in Iraq,” Wall Street Journal, May 14, 2023. , May 14, 2023.
8 U.S. Department of Commerce International Trade Administration using U.S. Census Bureau data, March 2024. 8 U.S. Department of Commerce International Trade Administration using U.S. Census Bureau data, March 2024.
9 Office of the U.S. Trade Representative, USTR Releases 2022 Special 301 Report on Intellectual Property Protection 9 Office of the U.S. Trade Representative, USTR Releases 2022 Special 301 Report on Intellectual Property Protection
and Enforcement, April 27, 2022. and Enforcement, April 27, 2022.
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Kuwait: Issues for the 118th Congress

The 1990-1991 Invasion of Kuwait and its Aftermath
In August 1990, Iraq’s then-dictator Saddam Hussein ordered the Iraqi military to invade neighboring Kuwait. The In August 1990, Iraq’s then-dictator Saddam Hussein ordered the Iraqi military to invade neighboring Kuwait. The
subsequent Iraqi occupation of Kuwait led to the displacement of Kuwait’s government; the death, disappearance, subsequent Iraqi occupation of Kuwait led to the displacement of Kuwait’s government; the death, disappearance,
and injury of thousands of Kuwaitis; and extensive damage to Kuwait’s natural resources and environment. and injury of thousands of Kuwaitis; and extensive damage to Kuwait’s natural resources and environment.
President George H.W. Bush quickly dispatched U.S. military forces to Saudi Arabia to deter further advances by President George H.W. Bush quickly dispatched U.S. military forces to Saudi Arabia to deter further advances by
Iraqi forces. The 101st Congress condemned the Iraqi invasion immediately (S.Res. 318 and H.R. 5431) and Iraqi forces. The 101st Congress condemned the Iraqi invasion immediately (S.Res. 318 and H.R. 5431) and
authorized and appropriated supplemental funds for Operation Desert Shield (P.L. 101-403, P.L. 101-510, and P.L. authorized and appropriated supplemental funds for Operation Desert Shield (P.L. 101-403, P.L. 101-510, and P.L.
101-511). 101-511).
In January 1991, the 102nd Congress authorized the President to use military force (P.L. 102-1) pursuant to United In January 1991, the 102nd Congress authorized the President to use military force (P.L. 102-1) pursuant to United
Nations Security Council Resolution 678 (1990), which called on U.N. Member States to use “all necessary means Nations Security Council Resolution 678 (1990), which called on U.N. Member States to use “all necessary means
to uphold and implement” related Security Council resolutions and restore international peace and security in the to uphold and implement” related Security Council resolutions and restore international peace and security in the
area. A U.S.-led multinational military campaign (Operation Desert Storm) to evict Iraqi forces began on January area. A U.S.-led multinational military campaign (Operation Desert Storm) to evict Iraqi forces began on January
17, 1991. Coalition forces liberated Kuwait by the end of February. Saddam Hussein’s regime was weakened, and 17, 1991. Coalition forces liberated Kuwait by the end of February. Saddam Hussein’s regime was weakened, and
U.S. and partner forces established and maintained no-fly zones in southern and northern Iraq over the next U.S. and partner forces established and maintained no-fly zones in southern and northern Iraq over the next
decade, amid U.N.-backed sanctions and global scrutiny of Iraq’s suspected weapons of mass destruction decade, amid U.N.-backed sanctions and global scrutiny of Iraq’s suspected weapons of mass destruction
programs. The U.S. military and U.S. national security decisionmakers continue to study the 1990-1991 crisis and programs. The U.S. military and U.S. national security decisionmakers continue to study the 1990-1991 crisis and
U.S. decisions for lessons to inform current policy and future planning.10 The 117th Congress considered but did U.S. decisions for lessons to inform current policy and future planning.10 The 117th Congress considered but did
not enact a Biden Administration-supported proposal to repeal the 1991 Iraq authorization for use of military not enact a Biden Administration-supported proposal to repeal the 1991 Iraq authorization for use of military
force (AUMF, P.L. 102-1).11 In March 2023, the Senate adopted S. 316 to repeal the 1991 and 2002 Iraq AUMFs. force (AUMF, P.L. 102-1).11 In March 2023, the Senate adopted S. 316 to repeal the 1991 and 2002 Iraq AUMFs.
The after-effects of Iraq’s invasion of Kuwait and The after-effects of Iraq’s invasion of Kuwait and
Kuwait’s liberation have shaped the Middle East Kuwait’s liberation have shaped the Middle East
region and U.S. foreign policy for more than three region and U.S. foreign policy for more than three
decades. U.S. confrontation with Saddam Hussein’s decades. U.S. confrontation with Saddam Hussein’s
Iraq culminated in the U.S. invasion of Iraq in March Iraq culminated in the U.S. invasion of Iraq in March
2003. The disorder and violence that fol owed 2003. The disorder and violence that fol owed
destabilized Iraq and arguably altered the regional destabilized Iraq and arguably altered the regional
balance of power in Iran’s favor. More than thirty balance of power in Iran’s favor. More than thirty
years after U.S. forces first fought alongside years after U.S. forces first fought alongside
partners to free Kuwait from Iraqi forces, U.S. and partners to free Kuwait from Iraqi forces, U.S. and
partner militaries remain in both countries, partner militaries remain in both countries,
maintaining pre-positioned equipment, conducting maintaining pre-positioned equipment, conducting
training and supporting deterrence operations in training and supporting deterrence operations in
Kuwait while providing security advice and Kuwait while providing security advice and
assistance to Iraq’s post-2003 government. assistance to Iraq’s post-2003 government.
Photo Source: U.S. Department of Defense, Kuwait 1991.
The military presence that the United States established and maintained in the Gulf in the wake of the 1991 war The military presence that the United States established and maintained in the Gulf in the wake of the 1991 war
cemented a role for the United States as a de facto guarantor of the Gulf’s security that has endured. The global cemented a role for the United States as a de facto guarantor of the Gulf’s security that has endured. The global
economy’s reliance on the free flow of energy resources from the Persian Gulf similarly has evolved since the economy’s reliance on the free flow of energy resources from the Persian Gulf similarly has evolved since the
1990s but persists. U.S. and host country decisions about the future presence and role of U.S. forces in the region 1990s but persists. U.S. and host country decisions about the future presence and role of U.S. forces in the region
thus remain a question of significant regional and global interest. thus remain a question of significant regional and global interest.
In 2022, the U.N. Compensation Commission that processed and paid compensation claims related to Iraq’s In 2022, the U.N. Compensation Commission that processed and paid compensation claims related to Iraq’s
invasion and occupation of Kuwait announced the completion of the 31-year compensation process.12 Under a invasion and occupation of Kuwait announced the completion of the 31-year compensation process.12 Under a
series of U.N. Security Council resolutions, a portion of proceeds from Iraq’s oil sales were allocated to fund the series of U.N. Security Council resolutions, a portion of proceeds from Iraq’s oil sales were allocated to fund the
$52.4 bil ion in compensation claims paid over the life of the program. Congress may consider how the $52.4 bil ion in compensation claims paid over the life of the program. Congress may consider how the
development and implementation of this claims-compensation process might inform arrangements to secure and development and implementation of this claims-compensation process might inform arrangements to secure and
administer compensation for claims arising from Russia’s invasion of Ukraine or other cases of state aggression. administer compensation for claims arising from Russia’s invasion of Ukraine or other cases of state aggression.
Photo Source: U.S. Department of Defense, Kuwait 1991.
10 Richard A. Lacquement Jr., “The Gulf War 30 Years Later: Successes, Failures, and Blind Spots,” 10 Richard A. Lacquement Jr., “The Gulf War 30 Years Later: Successes, Failures, and Blind Spots,” War on the Rocks, ,
September 9, 2020. September 9, 2020.
11 See Charlie Savage, “Senate panel votes to repeal 1991 and 2002 laws authorizing wars with Iraq,” 11 See Charlie Savage, “Senate panel votes to repeal 1991 and 2002 laws authorizing wars with Iraq,” New York Times, ,
August 4, 2021; and, Rebecca Kheel, “House votes to repeal 1991, 1957 war authorizations,” August 4, 2021; and, Rebecca Kheel, “House votes to repeal 1991, 1957 war authorizations,” The Hill, June 29, 2021. , June 29, 2021.
In 2022, the House-passed version of the National Defense Authorization Act for In 2022, the House-passed version of the National Defense Authorization Act for FY 2023FY2023 (§5878 of H.R. 7900) would (§5878 of H.R. 7900) would
have repealed P.L. 102-1. The Senate version did not contain a repeal provision. The final version, the James M. Inhofe have repealed P.L. 102-1. The Senate version did not contain a repeal provision. The final version, the James M. Inhofe
National Defense Authorization Act for Fiscal Year 2023 (H.R. 7776 /P.L. 117-263), did not contain a repeal provision. National Defense Authorization Act for Fiscal Year 2023 (H.R. 7776 /P.L. 117-263), did not contain a repeal provision.
12 United Nations, “Iraq makes final reparation payment to Kuwait for 1990 invasion,” February 9, 2022. 12 United Nations, “Iraq makes final reparation payment to Kuwait for 1990 invasion,” February 9, 2022.
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The Consolidated Appropriations Act, 2023 (Section 8111 of Division C, P.L. 117-328) authorizes The Consolidated Appropriations Act, 2023 (Section 8111 of Division C, P.L. 117-328) authorizes
the Department of Defense to incur obligations not to exceed $350 million during the fiscal year the Department of Defense to incur obligations not to exceed $350 million during the fiscal year
“in anticipation of receipt of contributions, only from the Government of Kuwait.” Section 1229 “in anticipation of receipt of contributions, only from the Government of Kuwait.” Section 1229
of the National Defense Authorization Act for Fiscal Year 2024 (P.L. 118-31 ) directs the of the National Defense Authorization Act for Fiscal Year 2024 (P.L. 118-31 ) directs the
Secretary of Defense to review and report on “the legal protections afforded by bilateral Secretary of Defense to review and report on “the legal protections afforded by bilateral
agreements” between the United States and Kuwait and “how the rights and privileges afforded agreements” between the United States and Kuwait and “how the rights and privileges afforded
under such agreements may differ from United States law.” The under such agreements may differ from United States law.” The Actact also authorizes $18.85 also authorizes $18.85
million for an Energy Resilience and Conservation Investment Program (ECRIP) power million for an Energy Resilience and Conservation Investment Program (ECRIP) power
generation and microgrid project at Camp Buehring and $8.2 million to complete a previously generation and microgrid project at Camp Buehring and $8.2 million to complete a previously
authorized ECRIP project at Camp Arifjan. authorized ECRIP project at Camp Arifjan.
Kuwait’s History and Politics
Coastal Kuwait grew gradually as a trading center in the northern Gulf region as the Al Sabah Coastal Kuwait grew gradually as a trading center in the northern Gulf region as the Al Sabah
family and others gained influence there after migrating to the family and others gained influence there after migrating to the regionarea in the late 17th and early in the late 17th and early
18th centuries. Kuwait’s interior was home to then-nomadic tribal groups, and urban-rural 18th centuries. Kuwait’s interior was home to then-nomadic tribal groups, and urban-rural
differences and tribal identities and relations have remained influential in Kuwaiti society and differences and tribal identities and relations have remained influential in Kuwaiti society and
politics.13 The Al Sabah family’s leadership and administrative roles in Kuwait deepened during politics.13 The Al Sabah family’s leadership and administrative roles in Kuwait deepened during
the 18th century. At the end of the 19th century, the Al Sabah family sought British protection from the 18th century. At the end of the 19th century, the Al Sabah family sought British protection from
the Ottoman Empire, trading Kuwait’s sovereignty by treaty for security guarantees. Kuwait’s the Ottoman Empire, trading Kuwait’s sovereignty by treaty for security guarantees. Kuwait’s
citizenry includes Sunni and Shia Muslims and descendants of settled and nomadic communities, citizenry includes Sunni and Shia Muslims and descendants of settled and nomadic communities,
all of which have experienced considerable social and economic change since the discovery of oil all of which have experienced considerable social and economic change since the discovery of oil
in 1938. Kuwait regained independence from the United Kingdom in 1961, developing rapidly in 1938. Kuwait regained independence from the United Kingdom in 1961, developing rapidly
with an influx of oil revenue and foreign labor. Under a constitution adopted in 1962 and renewed with an influx of oil revenue and foreign labor. Under a constitution adopted in 1962 and renewed
following the 1991 U.S.-led liberation of Kuwait from occupation by neighboring Iraq, the Al following the 1991 U.S.-led liberation of Kuwait from occupation by neighboring Iraq, the Al
Sabah family has shared some power with Kuwait’s diverse citizenry. Together they have forged a Sabah family has shared some power with Kuwait’s diverse citizenry. Together they have forged a
global profile for their small, energy-rich emirate global profile for their small, energy-rich emirate (Figure 2). .
Kuwait’s political environment has been strained for years with questions about leadership succession and debates over public finances, services, social issues, and alleged corruption. Disagreements between successive governments and members of the elected National Assembly created legislative deadlock and fueled political confrontation, leading to the election and dismissal of several Assemblies and resignations of several cabinets (see Chronology, in Appendix). Some observers have described tensions in Kuwaiti politics over the last two decades as reflecting “conflict over policy with disputes over the rules of the game,” and, at times, “an overzealous utilization of oversight tools, such as the repeated questioning of ministers followed by votes of no confidence.”14 The Emir’s May 2024 dissolution of the National Assembly and suspension of constitutional articles appears to leave Kuwaitis weighing options for preserving their system’s relative openness and consultative nature, pursuing efficient governance and change, and ending paralysis and confrontation. 13 See Alanoud al-Sharekh and Courtney Freer, Tribalism and Political Power in the Gulf: State-Building and National Identity in Kuwait, Qatar and the UAE, (I.B. Tauris-Bloomsbury), September 2021. 14 See Luai Allarakia and Hamad H. Albloshi, “The Politics of Permanent Deadlock in Kuwait,” Arab Gulf States Institute in Washington, March 11, 2021. Congressional Research Service 4 Kuwait: Issues for the 118th Congress Political System
Kuwait’s 1962 constitution recognizes the Kuwait’s 1962 constitution recognizes the
Figure 2. Kuwait: Basic Facts
Emir as head of state and ruler, with Emir as head of state and ruler, with
power as commander-in-chief of the power as commander-in-chief of the
military and authority to appoint all military and authority to appoint all
judges and to dismiss or suspend judges and to dismiss or suspend
Kuwait’s unicameral legislature. The Kuwait’s unicameral legislature. The
Emir appoints a prime minister as head of Emir appoints a prime minister as head of
government, who in turn selects the government, who in turn selects the
cabinet. The prime minister has always cabinet. The prime minister has always
been a member of the Al Sabah family, been a member of the Al Sabah family,

and Al Sabah family members and Al Sabah family members usually
holdhave often held key cabinet portfolios such as key cabinet portfolios such as
Source: CRS, using data from the U.S. State Department, CRS, using data from the U.S. State Department,
Esri, the Central Intelligence Agency, International Esri, the Central Intelligence Agency, International
defense, interior, foreign affairs, and defense, interior, foreign affairs, and
Monetary Fund, and Government of Kuwait. Monetary Fund, and Government of Kuwait.
finance. finance.
Plans for succession within the ruling Al Sabah family are uncertain, and the Plans for succession within the ruling Al Sabah family are uncertain, and the Assembly must
National Assembly would under normal circumstances be required to confirm the Emir’s designee for the position of confirm the Emir’s designee for the position of crown prince.15crown prince. This requirement reportedly has

13 See Alanoud al-Sharekh and Courtney Freer, Tribalism and Political Power in the Gulf: State-Building and National
Identity in Kuwait, Qatar and the UAE, (I.B. Tauris-Bloomsbury), September 2021.
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contributed to controversial entanglements between rival royal family members and some
members of the National Assembly since a leadership transition in 2006.14 Until 2006, the main Until 2006, the main
branches of the family (Al Jaber and Al Salem) generally had alternated in holding the positions branches of the family (Al Jaber and Al Salem) generally had alternated in holding the positions
of Emir and Crown Prince.of Emir and Crown Prince.16 In 2006, Assembly members and other leading figures questioned the In 2006, Assembly members and other leading figures questioned the
suitability of the suitability of the late Emir’s successor from the Al Salem branch on health grounds and successor from the Al Salem branch on health grounds and
recommended his replacement through a negotiated transition. Since that time, members of the Al recommended his replacement through a negotiated transition. Since that time, members of the Al
Jaber branch of the Al Sabah family have served as Emir and Crown Prince.Jaber branch of the Al Sabah family have served as Emir and Crown Prince.1517
Kuwait’s National Assembly Kuwait’s National Assembly ishas been the longest-established elected body among the Gulf Arab the longest-established elected body among the Gulf Arab states.
It has states and, under the 1962 constitution, the Assembly has had a greater scope of authority than any other Gulf Arab legislature or consultative body. a greater scope of authority than any other Gulf Arab legislature or consultative body.
EligibleUnder normal circumstances, eligible voters elect 50 Assembly members, with up to 15 members of the cabinet eligible to voters elect 50 Assembly members, with up to 15 members of the cabinet eligible to
serve and vote in the Assembly ex-officio.serve and vote in the Assembly ex-officio.1618 The Assembly’s members The Assembly’s members have been empowered to draft legislation and act on draft legislation and act on
legislation proposed by the government. The Assembly legislation proposed by the government. The Assembly doeshas not not votevoted to confirm cabinet to confirm cabinet
nominees, but its members nominees, but its members have frequently frequently questionquestioned ministers (a process known as interpellation or ministers (a process known as interpellation or
colloquially as “grilling”), and the Assembly colloquially as “grilling”), and the Assembly canhas had the power to remove ministers by a vote of no confidence. remove ministers by a vote of no confidence.
The Assembly The Assembly canhas had the power to remove the prime minister by voting to declare the Assembly’s inability to remove the prime minister by voting to declare the Assembly’s inability to
cooperate with the prime minister.
The Assembly’s membership has reflected Kuwait’s political and social diversity over time,
including Sunni and Shia Muslims, social liberals and conservatives, younger and older Kuwaitis,
urban and more rural citizens, and supporters and critics of the prevailing constitutional order.
The country’s majority expatriate population, which remains critical to its economy and includes
individuals holding public sector positions, does not have representation. Some religious and
social conservatives have opposed women’s rights as candidates and members of the Assembly
since the state recognized those rights in 2005 (see Women’s Rights, below). Opposition activism
in Kuwait over the last two decades has featured critiques of alleged government corruption,
advocacy for stronger legislative authority and greater checks on executive power, rejection of
electoral system changes, and, in some instances, demands that the state implement more
religiously and socially conservative policies.17 The legacy of disputes since 2006 over Kuwait’s
electoral system continues to shape Kuwaiti politics (see Chronology in Appendix).
2022 and 2023 Elections
Kuwait’s political environment has been strained for years with questions about leadership
succession and debates over public finances, services, social issues, and alleged corruption.

14cooperate with the prime minister. Prior 15 During the period of the Assembly’s first suspension, a leadership transition occurred and the Emir and Crown Prince were sworn in before the sitting government. The requirement for legislative approval reportedly had contributed to controversial entanglements between rival royal family members and some members of the National Assembly following the 2006 leadership transition. See Kristin Smith Diwan, “Kuwait’s constitutional showdown,” See Kristin Smith Diwan, “Kuwait’s constitutional showdown,” Foreign Policy, November 17, 2011; Kristian Coates , November 17, 2011; Kristian Coates
Ulrichsen, “Kuwait: Political crisis at critical juncture,” Ulrichsen, “Kuwait: Political crisis at critical juncture,” BBC News, October 23, 2012; and, Rivka Azoulay and Claire , October 23, 2012; and, Rivka Azoulay and Claire
Beaugrand, “Limits of political clientelism: elites’ struggles in Kuwait’s fragmenting politics,” Beaugrand, “Limits of political clientelism: elites’ struggles in Kuwait’s fragmenting politics,” International Journal of
Archaeology and Social Sciences in the Arabian Peninsula, Vol. 4, 2015., Vol. 4, 2015. Members 16 In addition to the Al Jaber, members of the Al Salem, Hamad, and of the Al Salem, Hamad, and
Abdullah lines of the family—all named for descendants of sons of Emir Mubarak Al Sabah (ruled 1896-1915)—Abdullah lines of the family—all named for descendants of sons of Emir Mubarak Al Sabah (ruled 1896-1915)—
remain eligible to lead under the constitution. remain eligible to lead under the constitution.
1517 For background on Kuwaiti succession, see Kristian Ulrichsen and Simon Henderson (eds.), For background on Kuwaiti succession, see Kristian Ulrichsen and Simon Henderson (eds.), Kuwait: A Changing
System Under Stress, Washington Institute for Near East Policy, Policy Note 69, October 2019., Washington Institute for Near East Policy, Policy Note 69, October 2019.
1618 Kuwaiti male and female citizens over the age of 21 may vote, excluding citizens naturalized within 20 years of the Kuwaiti male and female citizens over the age of 21 may vote, excluding citizens naturalized within 20 years of the
election date and members of the armed forces and police services. election date and members of the armed forces and police services.
17 For background on Kuwait’s electoral system and opposition politics since 2011, see Yuree Noh, “The Rise of the
Islamic Constitutional Movement in Kuwait,” Project on Middle East Political Science, February 2014; Shafeeq
Ghabra, “Kuwait: At the Crossroads of Change or Political Stagnation,” Middle East Institute, May 20, 2014; Daniel L.
Tavana, “The Evolution of the Kuwaiti ‘Opposition’: Electoral Politics After the Arab Spring,” Baker Institute for
Public Policy, August 7, 2018; Courtney Freer and Andrew Leber, “The ‘tribal advantage’ in Kuwaiti politics and the
future of the opposition,” Brookings Institution, April 19, 2021; and, Luai Allarakia and Hamad H. Albloshi, “The
Politics of Permanent Deadlock in Kuwait,” Arab Gulf States Institute in Washington (AGSIW), March 11, 2021.
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Disagreements between successive governments and members of the elected National Assembly
have created legislative deadlock and fueled political confrontation, leading to the dismissal of
several Assemblies and resignations of several cabinets (see Chronology, in Appendix). Some
observers have described enduring tensions in Kuwaiti politics since 2009 as reflecting “conflict
over policy with disputes over the rules of the game,” and, at times, “an overzealous utilization of
oversight tools, such as the repeated questioning of ministers followed by votes of no
confidence.”18
Following a December 2020 election, political stalemate persisted, and in April 2022 then-prime
minister Shaykh Sabah al Khaled al Hamad Al Sabah resigned. The Emir and Crown Prince
initially delayed naming a replacement, and, in June 2022, the Crown Prince announced the
Assembly would be dismissed pursuant to the constitution and called for a new election.19 In
relaying the decision to dismiss the parliament, the Crown Prince referred to “practices and
behaviors that threaten national unity,”20 perhaps reflecting the ruling establishment’s
dissatisfaction with the outgoing Assembly’s pointed approach to questioning government
officials and parliamentarians’ refusal to endorse government fiscal proposals. The Assembly had
not enacted the 2022-2023 budget and did not approve authority for the government to borrow
domestically or internationally to finance long-debated projects. In July 2022, leaders appointed
the Emir’s son, Shaykh Ahmed Nawaf al Ahmed Al Sabah, as prime minister to serve until the
planned election.
On September 29, 2022, Kuwaiti voters elected a new Assembly, including 27 new members,
among them various opposition figures and members of the Islamic Constitutional Movement—
the Kuwaiti Muslim Brotherhood’s political arm. Women members, absent from the previous
Assembly, again won seats. Voters also returned Ahmed al Saadoun, who served as Assembly
speaker from 1985 to 1999, to parliament.
In October, the Emir reappointed Shaykh Ahmed Al Sabah as prime minister; who made initial
cabinet appointments. However, the cabinet promptly resigned after some National Assembly
members protested that the cabinet’s membership had not changed sufficiently. Consultations
followed and a new cabinet was seated in mid-October.
Observers of Kuwaiti politics noted that an atmosphere of consultation and potential cooperation
emerged after the 2022 election, with the government announcing pardons of some convicted
government critics in an attempt to “create an atmosphere for fruitful cooperation between the
executive and legislative authorities... and remove all obstacles that would hinder development and
achievement.”21 The cabinet presented proposals for reform across several sectors, while the
Assembly endorsed several legislative proposals to address accountability for corruption and
launched investigations related to corruption allegations involving some defense and property
contracts.22 The cabinet’s four-year government program called for recovering stolen public funds

18 See Luai Allarakia and Hamad H. Albloshi, “The Politics of Permanent Deadlock in Kuwait,” Arab Gulf States
Institute in Washington, March 11, 2021.
19 Kuwait’s leaders previously dissolved the National Assembly for long periods from 1976 to 1981 and from 1986 to
1992. Temporary dissolutions occurred in 2003, 2006, 2008, 2009, 2011, 2012, 2016 and 2020 as mandates for new
elections within 60 days.
20 Kuwait Times, “Kuwait Crown Prince dissolves parliament,” August 2, 2022.
21 Kuwait Times, “Cabinet announces pardon on persons for penalties restricting their freedoms,” January 17. 2023.
22 B Izzak and Kuwait News Agency, “Govt lays out four-year plan for long-term development,” Kuwait Times,
December 13, 2022; and Izzak, “Assembly forms panel to probe two defense deals,” Kuwait Times, December 14,
2022.
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and rooting out corruption, and Kuwait’s Minister of Defense pledged to cooperate with
parliamentary investigations.
Some Assembly members proposed measures that would commit the government to purchasing
the private debt of Kuwaiti citizens or increasing public sector salaries in response to cost of living
pressures. Other Assembly members renewed efforts to interpellate (or “grill”) cabinet members
over alleged financial mismanagement. In January 2023, cabinet ministers boycotted National
Assembly sessions and forced the Assembly’s adjournment, arguing that the cabinet had not had
sufficient opportunity to comment on the proposed legislation that would incur state costs. On
January 23, the prime minister submitted the cabinet’s resignation, and the crown prince
reappointed him to nominate a new cabinet in March 2023.23
On March 19, Kuwait’s Constitutional Court ruled the 2022 election void and reinstated the
parliamentarians elected in December 2020. The ruling came in response to cases filed by
members of the 2020 Assembly, and the court found that the government’s formal decree to
dismiss the 2020 Assembly shortly after Shaykh Ahmed became prime minister was invalid
because it did not allow sufficient time to determine if that Assembly membership and a new
prime minister could work together effectively.24 Previous court decisions to overturn election
results in 2012 and 2013 prompted demonstrations, confrontations, and boycotts.
Public opposition to the court’s March 2023 decision surfaced immediately, including through
small demonstrations. Some members of the 2020 and 2022 parliaments made strident statements
criticizing various actions of the executive and judicial branches or calling for constitutional
reform. Kuwait’s rulers reportedly pressured the head of the Supreme Judicial Council that
appoints the members of the Constitutional Court to resign.25 The Council rejected his initial
resignation, but he later resubmitted it.26
In April 2023, the Crown Prince announced the 2020 parliament would be dismissed,
acknowledging “popular will” and saying that unspecified planned reforms would “move the state
into a new phase of discipline.”27 The Crown Prince dismissed the reinstated parliament on May 1.
On June 6, 2023, Kuwaiti voters elected a new parliament, returning 38 of the members elected in
September 2022 to office. Campaign rhetoric featured candidates portraying the election as a
referendum on alternate paths for governance in Kuwait. Following the election, the Emir and
Crown Prince appointed a new government again led by Shaykh Ahmed Nawaf al Ahmed Al
Sabah as prime minister. The cabinet resigned in December 2023 following the Emir’s death.
2023 Succession and 2024 Election
On December 16, 2023, Shaykh Nawaf al Ahmed al Jaber Al Sabah died at age 86 after a long
period of reported ill health. He was succeeded by his half-brother, Crown Prince Shaykh Mishaal
al Ahmed al Jaber Al Sabah (born 1940).
In January 2024, Emir Mishaal named Shaykh Dr. Mohammad Sabah al Salem Al Sabah as Prime
Minister. The new prime minister is a former ambassador to the United States and foreign
minister, and the son of the late former Emir Shaykh Sabah III al Salim Al Sabah. The prime

23 Fiona MacDonald, “Kuwait Cabinet Quits as MPs Push for Oil Wealth Spending,” Bloomberg, January 23, 2023.
24 B Izzak, “2022 Assembly Annulled,” Kuwait Times, March 20, 2023; and, Ahmed Hagagy, “Kuwait court reinstates
previous parliament,” Reuters, March 19, 2023.
25 Kristin Smith Diwan, “New Elections and Frustration within Kuwait’s Elite,” AGSIW, May 10, 2023.
26 Ibid.
27 Fiona MacDonald, “Kuwait Emir Dissolves Reinstated 2020 Parliament for Second Time,” Bloomberg, April 17,
2023.
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minister leads a cabinet of mostly newly appointed ministers, including the first non-royal foreign
minister in the country’s history.28
On February 15, 2024, Emir Mishaal issued an order dissolving the National Assembly pursuant
to the constitution after a legislator used language offensive to the Emir and the Assembly voted
not to remove the statement from its record.29 An election, the fourth since 2020, is planned for
April 10. Authorities have disqualified some candidates for participating in so-called tribal
elections, which are informal primaries among tribal groups to select a group-affiliated candidate.
The Emir has until December 2024 to appoint an heir apparent as Crown Prince, with the
approval of a majority of the National Assembly. The Emir’s selection process and any
accompanying competition between candidates and branches of the Al Sabah family may shape
Kuwait’s politics during 2024. In February 2024, the prime minister acknowledged intra-family
differences, but said they stopped short of disruptive conflict.30
Human Rights
Kuwait’s government, like those of some other Gulf countries, publicly rejects foreign criticism
of human rights practices, dismissing such critiques as interference in Kuwait’s internal affairs.
Amid foreign and domestic attention to the execution of seven individuals convicted of murder
and other offenses in November 2022, Kuwait’s Foreign Minister said, “The decisions of our
judicial apparatus are independent without any interference from inside or outside Kuwait.”31
The 2022 U.S. State Department report on human rights conditions in Kuwait found
credible reports of: torture or cruel, inhuman, or degrading treatment or punishment by
government agents; arbitrary arrest; political prisoners and detainees; serious restrictions
on free expression and media, including censorship and the existence of criminal libel laws;
serious restrictions on internet freedom; substantial interference with the freedom of
peaceful assembly and freedom of association, including overly restrictive laws on the
organization, funding, or operation of nongovernmental organizations (NGOs) and civil
society organizations; restrictions on freedom of movement including the right to leave the
country; serious government corruption; government harassment of domestic human rights
organizations; lack of investigation of and accountability for gender-based violence,
including domestic or intimate partner violence; trafficking in persons; crimes involving
violence or threats of violence targeting lesbian, gay, bisexual, transgender, or intersex
persons; and the existence and use of laws criminalizing consensual same-sex sexual
conduct between adults.32
According to the report, “Numerous activists representing stateless persons of Arab heritage –
known as Bidoon—reported mistreatment at the hands of authorities while in detention.”33 The
Bidoon community consists of approximately 100,000 residents of Kuwait who lack or have been
denied registration as Kuwaiti citizens, which limits their access to employment, social benefits,
and political rights. Kuwait’s government historically has declined to recognize claims from

28 For biographical information on the January 2024 cabinet, see Arab Times, “Brief CV’s of Kuwait’s newly-formed
government,” January 18, 2024.
29 Fiona MacDonald, “Kuwaiti Emir Dissolves Parliament After MPs’ Offensive Language,” Bloomberg, February 15,
2024.
30 Merza al Kuwaidi, “Kuwaiti PM: Talk of Family ‘Feud’ Is Just ‘Drama,” Al Sharq Al Awsat, February 6, 2024.
31 Reuters, “Kuwait executes seven convicted of murder,” November 17, 2022.
32 U.S. State Department, 2022 Country Reports on Human Rights Practices: Kuwait, March 20, 2023.
33 Ibid. The Arabic term for such persons is bidoon jinsiya (without nationality) or, colloquially, Bidoon [(those)
without].
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members of the Bidoon community to citizenship based on questions about the timing,
circumstances, and purpose of individuals’ migration to Kuwait. Kuwaiti authorities separately
are pursuing initiatives to reduce the expatriate population and create more public and private
sector employment opportunities for Kuwaiti nationals.
Kuwait’s government limits freedom of speech and association.34 The state has not outlawed
political parties, but authorities effectively ban them. The government has outlawed informal
primaries among tribal groups, though one study released in 2021 found “electoral returns offer
evidence of growing tribal coordination intended to ensure representation within the National
Assembly, albeit one disrupted by changes in electoral laws.”35 The National Assembly in
December 2022 moved to delay committee consideration of proposed changes to electoral laws
that would provide for candidates to run on coordinated political lists pending further consultation
with the executive.Congressional Research Service 5 link to page 18 Kuwait: Issues for the 118th Congress to its May 2024 suspension, the Assembly had been suspended twice before: from 1976 to 1981 and from 1986 to 1992. The Assembly’s membership has reflected Kuwait’s political and social diversity over time, including Sunni and Shia Muslims, social liberals and conservatives, younger and older Kuwaitis, urban and more rural citizens, and supporters and critics of the prevailing constitutional order. The country’s majority expatriate population, which remains critical to its economy and includes individuals holding public sector positions, has not had political representation. Authorities have announced plans to carry out “unprecedented” measures in 2024 against expatriates living illegally in Kuwait.19 Some religious and social conservatives have opposed women’s rights as candidates and members of the Assembly since the state recognized those rights in 2005 (see Women’s Rights, below). Opposition activism in Kuwait over the last two decades has featured critiques of alleged government corruption, advocacy for stronger legislative authority and greater checks on executive power, rejection of electoral system changes, and, in some instances, demands that the state implement more religiously and socially conservative policies.20 The legacy of disputes since 2006 over Kuwait’s electoral system has continued to shape Kuwaiti politics (see Chronology in Appendix). 2023 Succession, 2024 Election, and Assembly Suspension On December 16, 2023, Shaykh Nawaf al Ahmed al Jaber Al Sabah died at age 86 after a long period of reported ill health. He was succeeded by his half-brother, Crown Prince Shaykh Mishaal al Ahmed al Jaber Al Sabah (born 1940). On February 15, 2024, Emir Mishaal issued an order dissolving the National Assembly pursuant to the constitution after a legislator used language deemed offensive to the Emir and the Assembly voted not to remove the statement from its record.21 An election, the fourth since 2020, was held on April 10, 2024. Authorities disqualified some candidates for participating in so-called tribal elections, which are informal primaries among tribal groups to select a group-affiliated candidate. The April 2024 election returned 29 opposition members to the legislature, largely mirroring the parliament elected in 2023. Among those elected were one woman legislator and eight members of the country’s Shia minority. Analysts expected that the election result meant that confrontation between the executive and legislative branches was set to continue.22 The Emir designated his nephew Shaykh Ahmad Abdullah Al Ahmed Al Jaber Al Sabah as Prime Minister and issued a decree delaying the first session of the new Assembly until May 15. On May 10, the Emir issued a decree dissolving the Assembly and suspending articles of the constitution, including Article 107, which calls for the election of a replacement assembly within two months. The Emir suspended articles beyond those suspended in previous suspension decrees in 1976 and 1981, which appear to enable the 19 Kuwait Times, “MoI: ‘Unprecedented’ crackdown on residency violators after amnesty,” May 23, 2024. 20 For background on Kuwait’s electoral system and opposition politics since 2011, see Yuree Noh, “The Rise of the Islamic Constitutional Movement in Kuwait,” Project on Middle East Political Science, February 2014; Shafeeq Ghabra, “Kuwait: At the Crossroads of Change or Political Stagnation,” Middle East Institute, May 20, 2014; Daniel L. Tavana, “The Evolution of the Kuwaiti ‘Opposition’: Electoral Politics After the Arab Spring,” Baker Institute for Public Policy, August 7, 2018; Courtney Freer and Andrew Leber, “The ‘tribal advantage’ in Kuwaiti politics and the future of the opposition,” Brookings Institution, April 19, 2021; and, Luai Allarakia and Hamad H. Albloshi, “The Politics of Permanent Deadlock in Kuwait,” Arab Gulf States Institute in Washington (AGSIW), March 11, 2021. 21 Fiona MacDonald, “Kuwaiti Emir Dissolves Parliament After MPs’ Offensive Language,” Bloomberg, February 15, 2024. 22 Courtney Freer, “Kuwait’s Legislative Stalemate and Prospects for Reform,” Gulf International Forum, April 2024, and AGSIW, “What Do the Latest Parliamentary Elections Mean for Democratic Politics in Kuwait?” April 15, 2024. Congressional Research Service 6 Kuwait: Issues for the 118th Congress executive branch to issue laws and amend the constitution during the Assembly’s suspension without future legislative review.23 Oman’s ruler visited Kuwait on May 14, and other Arab officials engaged Kuwaiti counterparts during an Arab League summit in Bahrain in mid-May. As of May 23, the U.S. government had not commented publicly on the Emir’s decree.24 The Emir has until December 2024 to appoint an heir apparent as Crown Prince, which would have required the approval of a majority of the National Assembly.25 The Emir’s selection process and any accompanying competition between candidates and branches of the Al Sabah family may shape Kuwait’s politics during 2024 and beyond. In February 2024, the prime minister acknowledged intra-family differences, but said they stopped short of disruptive conflict.26 Human Rights Kuwait’s government, like those of some other Gulf countries, publicly rejects foreign criticism of human rights practices, dismissing such critiques as interference in Kuwait’s internal affairs. Amid foreign and domestic attention to the execution of seven individuals convicted of murder and other offenses in November 2022, Kuwait’s Foreign Minister said, “The decisions of our judicial apparatus are independent without any interference from inside or outside Kuwait.”27 The 2023 U.S. State Department report on human rights conditions in Kuwait found credible reports of: torture or cruel, inhuman, or degrading treatment or punishment by government agents; arbitrary arrest or detention; political prisoners and detainees; serious restrictions on free expression and media freedom, including censorship and the existence of criminal libel laws; serious restrictions on internet freedom; substantial interference with the freedom of peaceful assembly and freedom of association, including overly restrictive laws on the organization, funding, or operation of nongovernmental organizations and civil society organizations; restrictions on freedom of movement and residence within the territory of a state and the right to leave the country; inability of citizens to change their government peacefully through free and fair elections; serious government corruption; serious government restrictions on or harassment of domestic and international human rights organizations; extensive gender-based violence, including domestic or intimate 23 In 1976 and 1986, Kuwait’s then-emir suspended Articles 56 (paragraph three), 107, 174, and 181. The 2024 decree suspends articles 51, 56 (paragraphs two and three), 71 (paragraph two), 79, 107, 174 and 181. Article 71 (paragraph two) provides for legislative review of decrees issued during the Assembly’s dissolution. Article 181 states that constitutional provisions may not be suspended unless martial law has been declared. The Emir’s May 10 decree did not declare martial law. In 1976, the U.S. Embassy in Kuwait reported in a now released cable that “Under article 181 of the Kuwaiti constitution of 1962, the Amir was expressly barred from suspending any article of that constitution, except after declaring martial law, which he did not declare. Thus, it seems that the Amir acted unconstitutionally when he suspended several provisions of the constitution without declaring martial law. (The fact that he suspended the article barring his own action (181) raises a legal paradox.)” See U.S. National Archives and Records Administration, Diplomatic Records Archival Database, Cable Record, U.S. Embassy Kuwait to SECSTATE (KUWAIT 4265), “Rule by Decree in Kuwait: Nature, Duration and Then What?” September 7, 1976. 24 In August 1986, following the prior such decree, the State Department replied to a congressional question for the record about the measures taken by stating “It would be inappropriate to discuss publicly diplomatic exchanges we might have with the government of Kuwait about these measures. . . . We regret restrictions on the democratic process but note that in his decree, the Emir of Kuwait reiterated his commitment to Kuwait’s parliamentary path.” U.S. Congress, House Committee on Foreign Affairs, Subcommittee on Europe and the Middle East, Developments in the Middle East, August 1986, hearing, 99th Congress, 2nd Session, August 14, 1986, U.S. Government Printing Office, Washington, 1986. 25 Following the 1976 dissolution of the National Assembly and suspension of its constitutional role, a succession transition occurred at the end of 1977. A new crown prince was chosen in early 1978 and was sworn in before the appointed cabinet. 26 Merza al Kuwaidi, “Kuwaiti PM: Talk of Family ‘Feud’ Is Just ‘Drama,” Al Sharq Al Awsat, February 6, 2024. 27 Reuters, “Kuwait executes seven convicted of murder,” November 17, 2022. Congressional Research Service 7 Kuwait: Issues for the 118th Congress partner violence sexual violence, workplace violence, and other forms of such violence; trafficking in persons, including forced labor; laws criminalizing consensual same-sex sexual conduct between adults, which were enforced; and crimes involving violence or threats of violence targeting lesbian, gay, bisexual, transgender, queer, or intersex persons. The government took credible steps in some cases to prosecute and punish officials who may have committed human rights abuses.28 According to the report, “Numerous activists representing stateless persons of Arab heritage—known as Bidoon—reported mistreatment at the hands of authorities while in detention.”29 The Bidoon community consists of approximately 100,000 residents of Kuwait who lack or have been denied registration as Kuwaiti citizens, which limits their access to employment, social benefits, and political rights. Kuwait’s government historically has declined to recognize claims from members of the Bidoon community to citizenship based on questions about the timing, circumstances, and purpose of individuals’ migration to Kuwait. Kuwaiti authorities separately are pursuing initiatives to reduce the expatriate population and create more public and private sector employment opportunities for Kuwaiti nationals. Kuwait’s government limits freedom of speech and association.30 The state has not outlawed political parties, but authorities effectively ban them. The government has outlawed informal primaries among tribal groups, though one study released in 2021 found “electoral returns offer evidence of growing tribal coordination intended to ensure representation within the National Assembly, albeit one disrupted by changes in electoral laws.”31 In March 2024, Kuwait’s security officials reaffirmed a ban on all In March 2024, Kuwait’s security officials reaffirmed a ban on all
unauthorized public gatherings or the advertising of such gatherings in rallies amid calls on social unauthorized public gatherings or the advertising of such gatherings in rallies amid calls on social
media for demonstrations in solidarity with Palestinians.media for demonstrations in solidarity with Palestinians.3632
Women’s Rights
The Emir recognized women’s political rights in 2005 after the National Assembly blocked an The Emir recognized women’s political rights in 2005 after the National Assembly blocked an
earlier initiative to do so. According to the State Department, women in Kuwait face “cultural, earlier initiative to do so. According to the State Department, women in Kuwait face “cultural,
social, and financial barriers to full political participation.”social, and financial barriers to full political participation.”3733 No women won seats in the National No women won seats in the National
Assembly election of 2020, but an appointed woman cabinet member had the right to vote on Assembly election of 2020, but an appointed woman cabinet member had the right to vote on
Assembly decisions during its tenure. Two women won Assembly seats in the September 2022 Assembly decisions during its tenure. Two women won Assembly seats in the September 2022
election and one woman won a seat in the June 2023 election. The cabinet appointed in January election and one woman won a seat in the June 2023 election. The cabinet appointed in January
2024 has one woman member. 2024 has one woman member.
The State Department reports that The State Department reports that in 2023, Kuwaiti law Kuwaiti law “does did “not provide women the same legal status, not provide women the same legal status,
rights, and inheritance provisions as men,” and found thatrights, and inheritance provisions as men,” and found that, in 2022, “women “omen experienced experienced
discrimination in most aspects of family law, including divorce and child custody, as well as in discrimination in most aspects of family law, including divorce and child custody, as well as in
the basic rights of citizenship, the workplace, and in certain circumstances, the value of their
testimony in court.”38 Some Kuwaiti social and religious conservatives oppose changes in gender
relations and women’s participation in politics and the work force introduced since the late 1990s.
Trafficking in Persons
The 2023 State Department report on trafficking in persons found Kuwait’s visa sponsorship
system “continued to render migrant workers highly vulnerable to exploitation, specifically
trafficking.”39 Kuwait is a Tier 2 Watch List country, meaning that the State Department judges

34 28 U.S. State Department, 2023 Country Reports on Human Rights Practices: Kuwait, April 22, 2024. 29 Ibid. The Arabic term for such persons is bidoon jinsiya (without nationality) or, colloquially, Bidoon [(those) without]. 30 Ibid. According to the report, “Sentences for organizing public demonstrations Ibid. According to the report, “Sentences for organizing public demonstrations amongstamong the Bidoon, participating in the Bidoon, participating in
unlicensed or illegal demonstrations against the country’s ruling system, spreading false news, or criticizing the unlicensed or illegal demonstrations against the country’s ruling system, spreading false news, or criticizing the Amir
amir or other leaders on social media ranged from six months in prison to 10 years plus fines for multiple offensesor other leaders on social media ranged from six months in prison to 10 years plus fines for multiple offenses. . . . The . The
government actively monitored social media and incarcerated bloggers and political activists for expressing opinions government actively monitored social media and incarcerated bloggers and political activists for expressing opinions
and ideas critical of the government.” and ideas critical of the government.”
35 31 Courtney Freer and Andrew Leber,” Defining the ‘Tribal Advantage’ in Kuwaiti Politics,” Courtney Freer and Andrew Leber,” Defining the ‘Tribal Advantage’ in Kuwaiti Politics,” Middle East Law and
Governance, 2021, pp. 1-30. , 2021, pp. 1-30.
3632 Arab Times, “No shows for pro-Palestinian rally in Kuwait,” and “Unauthorized Gatherings or Marches Prohibited in , “No shows for pro-Palestinian rally in Kuwait,” and “Unauthorized Gatherings or Marches Prohibited in
Kuwait,” March 2, 2024. Kuwait,” March 2, 2024.
3733 U.S. State Department, U.S. State Department, 20222023 Country Reports on Human Rights Practices: Kuwait, Country Reports on Human Rights Practices: Kuwait, March 20, 2023.
38 Ibid.
39 U.S. State Department, 2023 Report on Trafficking in Persons: Kuwait, June 28, 2023.
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April 22, 2024. Congressional Research Service 8 Kuwait: Issues for the 118th Congress the basic rights of citizenship, the workplace, and in certain circumstances the value of their testimony in court.”34 Some Kuwaiti social and religious conservatives oppose changes in gender relations and women’s participation in politics and the work force introduced since the late 1990s. Trafficking in Persons The 2023 State Department report on trafficking in persons found Kuwait’s visa sponsorship system “continued to render migrant workers highly vulnerable to exploitation, specifically trafficking.”35 Kuwait is a Tier 2 Watch List country, meaning that the State Department judges that Kuwait “does not fully meet the minimum standards for the elimination of trafficking but is that Kuwait “does not fully meet the minimum standards for the elimination of trafficking but is
making significant efforts to do so.” making significant efforts to do so.”
Religious Freedom and Tolerance
According to the State Department, the Kuwaiti government has official initiatives to promote According to the State Department, the Kuwaiti government has official initiatives to promote
religious tolerance and provides for limited freedom of religious practice.religious tolerance and provides for limited freedom of religious practice.4036 Shia Muslims and Shia Muslims and
religious minorities report some discrimination. The state regulates and directs the content religious minorities report some discrimination. The state regulates and directs the content
presented by Sunni religious leaders.presented by Sunni religious leaders.4137 Under a National Plan to Reinforce Moderation, Kuwait’s Under a National Plan to Reinforce Moderation, Kuwait’s
Ministry of Information and Ministry of Religious Endowments have supported programs to Ministry of Information and Ministry of Religious Endowments have supported programs to
combat religious radicalization and promote religious tolerance.combat religious radicalization and promote religious tolerance.4238 In 2015, the Islamic State (IS, In 2015, the Islamic State (IS,
aka ISIS/ISIL/Daesh) group claimed a major terrorist attack against a Kuwaiti Shia mosque. aka ISIS/ISIL/Daesh) group claimed a major terrorist attack against a Kuwaiti Shia mosque.
Kuwait is a member of the Global Coalition against Daesh and periodically announces security Kuwait is a member of the Global Coalition against Daesh and periodically announces security
actions against suspected IS-supporters in the country. actions against suspected IS-supporters in the country.
Kuwait’s Foreign Policy
Kuwait’s experiences of military occupation and liberation in 1990 and 1991 shape its foreign Kuwait’s experiences of military occupation and liberation in 1990 and 1991 shape its foreign
policy, which generally promotes neutrality, balanced relations with major powers, respect for policy, which generally promotes neutrality, balanced relations with major powers, respect for
international law, and diplomatic resolution of conflicts. Kuwait is a member of the Gulf international law, and diplomatic resolution of conflicts. Kuwait is a member of the Gulf
Cooperation Council (GCC) and the Arab League. As a major oil producer, Kuwait is a member Cooperation Council (GCC) and the Arab League. As a major oil producer, Kuwait is a member
of the Organization of the Petroleum Exporting Countries (OPEC) and coordinates with OPEC of the Organization of the Petroleum Exporting Countries (OPEC) and coordinates with OPEC
and non-OPEC oil producers by agreement under the auspices of the OPEC+ group. and non-OPEC oil producers by agreement under the auspices of the OPEC+ group.
Kuwait and Russia’s War against Ukraine
Kuwaiti officials have spoken out against military aggression and violations of sovereignty and Kuwaiti officials have spoken out against military aggression and violations of sovereignty and
territorial integrity since Russia’s February 2022 invasion of Ukraine and the ongoing Russia-territorial integrity since Russia’s February 2022 invasion of Ukraine and the ongoing Russia-
Ukraine war. Kuwait has voted to condemn Russian aggression and violations of Ukraine’s Ukraine war. Kuwait has voted to condemn Russian aggression and violations of Ukraine’s
sovereignty and territorial integrity but joined other Arab Gulf states in abstaining on a 2022 sovereignty and territorial integrity but joined other Arab Gulf states in abstaining on a 2022
resolution to suspend Russia’s membership in the U.N. Human Rights Council.resolution to suspend Russia’s membership in the U.N. Human Rights Council.4339 During 2022, During 2022,
Kuwait’s military delivered more than 70 tons of food and medical supplies for Ukrainians, and Kuwait’s military delivered more than 70 tons of food and medical supplies for Ukrainians, and
Kuwait pledged $2 million for Ukraine programs to the United Nations and the International
Committee of the Red Cross. The Department of Defense Inspector General reported in May
2023 that artillery and vehicles withdrawn from pre-positioned U.S. Army stocks in Kuwait for
drawdown transfer to Ukraine had not been maintained properly by Kuwait-based contractors,
requiring costly repairs prior to their transfer.44

40 34 Ibid. 35 U.S. State Department, 2023 Report on Trafficking in Persons: Kuwait, June 28, 2023. 36 U.S. State Department, 2022 Report on International Religious Freedom: Kuwait, May 15, 2023. U.S. State Department, 2022 Report on International Religious Freedom: Kuwait, May 15, 2023.
4137 Ibid. Ibid.
4238 U.S. State Department, 2020 Country Report on Terrorism: Kuwait, December 16, 2021. U.S. State Department, 2020 Country Report on Terrorism: Kuwait, December 16, 2021.
4339 For a detailed review of Kuwait’s votes on selected U.N. measures related to Ukraine, see Appendix in CRS Report For a detailed review of Kuwait’s votes on selected U.N. measures related to Ukraine, see Appendix in CRS Report
R47160, R47160, Middle East and North Africa: Implications of the Russia-Ukraine War, coordinated by Christopher M. , coordinated by Christopher M.
Blanchard. Blanchard.
44 U.S. Department of Defense Office of Inspector General, Management Advisory: Maintenance Concerns for the
Army’s Prepositioned Stock–5 Equipment Designated for Ukraine (DODIG-2023-076), May 23, 2023.
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Congressional Research Service 9 Kuwait: Issues for the 118th Congress Kuwait pledged $2 million for Ukraine programs to the United Nations and the International Committee of the Red Cross. The Department of Defense Inspector General reported in May 2023 that artillery and vehicles withdrawn from pre-positioned U.S. Army stocks in Kuwait for drawdown transfer to Ukraine had not been maintained properly by Kuwait-based contractors, requiring costly repairs prior to their transfer.40
Kuwait and China
Kuwait’s economic and political relationships with the People’s Republic of China (PRC, or Kuwait’s economic and political relationships with the People’s Republic of China (PRC, or
China) are limited, and China is a leading importer of Kuwaiti oil. Under the banner of China’s China) are limited, and China is a leading importer of Kuwaiti oil. Under the banner of China’s
Belt and Road Initiative, PRC-based entities have engaged with Kuwaiti partners on Kuwait’s Belt and Road Initiative, PRC-based entities have engaged with Kuwaiti partners on Kuwait’s
planned Silk City, Five Islands, and Mubarak Al Kabeer port megaprojects, which may develop planned Silk City, Five Islands, and Mubarak Al Kabeer port megaprojects, which may develop
areas of northern Kuwait into a logistics hub.areas of northern Kuwait into a logistics hub.4541 Kuwaiti telecom providers Zain and VIVA have Kuwaiti telecom providers Zain and VIVA have
partnered with PRC-firm Huawei in developing their fifth generation (5G) mobile partnered with PRC-firm Huawei in developing their fifth generation (5G) mobile
communications networks.communications networks.4642 In his capacity as Crown Prince, the current Emir visited China in In his capacity as Crown Prince, the current Emir visited China in
September 2023 and met with PRC leader Xi Jinping. The countries signed memoranda of September 2023 and met with PRC leader Xi Jinping. The countries signed memoranda of
understanding on the completion of the Mubarak al Kabeer port, housing projects, and renewable understanding on the completion of the Mubarak al Kabeer port, housing projects, and renewable
energy cooperation.energy cooperation.4743
Kuwait and its Neighbors
Kuwait’s preference for multilateralism and diplomatic outreach has been evident in its officials’ Kuwait’s preference for multilateralism and diplomatic outreach has been evident in its officials’
mediation efforts in the Middle East region and beyond since 2015. mediation efforts in the Middle East region and beyond since 2015.
Gulf Cooperation Council and Yemen. Kuwaiti leaders contributed to rapprochement between Kuwaiti leaders contributed to rapprochement between
Qatar and its critics in Saudi Arabia and the United Arab Emirates from 2017 to 2021, when those Qatar and its critics in Saudi Arabia and the United Arab Emirates from 2017 to 2021, when those
counties ended their isolation of Qatar. In 2016, Kuwait hosted peace talks between Yemeni counties ended their isolation of Qatar. In 2016, Kuwait hosted peace talks between Yemeni
government officials and representatives of the Ansar Allah (aka Houthi) movement.government officials and representatives of the Ansar Allah (aka Houthi) movement.4844 Kuwait Kuwait
also has sent military forces to support the Yemeni government as part of the military coalition also has sent military forces to support the Yemeni government as part of the military coalition
led by neighboring Saudi Arabia. led by neighboring Saudi Arabia.
Iran. Kuwaiti officials continue to engage with counterparts from neighboring Iran on a range of Kuwaiti officials continue to engage with counterparts from neighboring Iran on a range of
issues and generally support dialogue between Iran and its Arab neighbors. Unresolved maritime issues and generally support dialogue between Iran and its Arab neighbors. Unresolved maritime
boundaries between Kuwait and Iran may have implications for the development of maritime boundaries between Kuwait and Iran may have implications for the development of maritime
energy resources and for commercial and military navigation in the northern Persian Gulf. In July energy resources and for commercial and military navigation in the northern Persian Gulf. In July
2023, Kuwait’s Oil Minister asserted exclusive Kuwaiti/Saudi rights to develop the offshore 2023, Kuwait’s Oil Minister asserted exclusive Kuwaiti/Saudi rights to develop the offshore
Dorra/Arash gas field after an Iranian official preliminary consideration of development had Dorra/Arash gas field after an Iranian official preliminary consideration of development had
begun.begun.4945 After Iranian and Kuwaiti officials indicated they would each pursue their own rival After Iranian and Kuwaiti officials indicated they would each pursue their own rival
development projects, Kuwait and Saudi Arabia reasserted their position that they have an development projects, Kuwait and Saudi Arabia reasserted their position that they have an
exclusive right to do so.50 An Iranian official said in March 2024 that Iran views the Dorra/Arash
field as shared.51

45 40 U.S. Department of Defense Office of Inspector General, Management Advisory: Maintenance Concerns for the Army’s Prepositioned Stock–5 Equipment Designated for Ukraine (DODIG-2023-076), May 23, 2023. 41 See CRS In Focus IF11735, See CRS In Focus IF11735, China’s “One Belt, One Road” Initiative: Economic Issues, by Karen M. Sutter, Andres , by Karen M. Sutter, Andres
B. Schwarzenberg, and Michael D. Sutherland. See also, Kuwait News Agency, “Kuwait, China sign Silk City, 5 B. Schwarzenberg, and Michael D. Sutherland. See also, Kuwait News Agency, “Kuwait, China sign Silk City, 5
islands MoU,” November 18, 2018; Fiona MacDonald, “’Silk City’ Dream Stifled in Only Gulf State Where Voters islands MoU,” November 18, 2018; Fiona MacDonald, “’Silk City’ Dream Stifled in Only Gulf State Where Voters
Matter,” Matter,” Bloomberg, November 6, 2019; and, Sylvia Westall and Ahmed Hagagy, “Kuwait plan for northern mega city , November 6, 2019; and, Sylvia Westall and Ahmed Hagagy, “Kuwait plan for northern mega city
faces political hurdles,” Reuters, May 1, 2019. faces political hurdles,” Reuters, May 1, 2019.
4642 For background, see CRS In Focus IF11251, For background, see CRS In Focus IF11251, National Security Implications of Fifth Generation (5G) Mobile
Technologies, by Kelley M. Sayler. , by Kelley M. Sayler.
4743 Kuwait News Agency, Kuwait Crown Prince concludes productive China’s (sic) visit,” September 24, 2023. Kuwait News Agency, Kuwait Crown Prince concludes productive China’s (sic) visit,” September 24, 2023.
4844 For background, see CRS Insight IN11917, For background, see CRS Insight IN11917, Political Transition in Yemen, by Carla E. Humud. , by Carla E. Humud.
4945 Reuters, “Kuwait, Saudi Arabia have ‘exclusive rights’ in Durra gas field, Kuwait oil minister says,” July 10, 2023. Reuters, “Kuwait, Saudi Arabia have ‘exclusive rights’ in Durra gas field, Kuwait oil minister says,” July 10, 2023.
50 Reuters, “Iran will pursue rights over Durra gas field if other parties shun cooperation, oil minister says,” July 30,
2023; and Reuters, “Saudi Arabia, Kuwait reaffirm rights to natural resources in Durra gas field, Saudi ministry says,”
August 2, 2023.
51 Iranian Vice President for Legal Affairs Mohammed Dehghan quoted in E’temad, March 8, 2024.
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Congressional Research Service 10 Kuwait: Issues for the 118th Congress exclusive right to do so.46 An Iranian official said in March 2024 that Iran views the Dorra/Arash field as shared.47
Israel and the Palestinians. Kuwait’s leaders have chosen not to recognize or engage with Israel Kuwait’s leaders have chosen not to recognize or engage with Israel
to date, though some other Arab states’ recognition of Israel under the Abraham Accords to date, though some other Arab states’ recognition of Israel under the Abraham Accords
prompted Kuwaiti press discussion of normalization with Israel. Some Kuwaitis remain vocally prompted Kuwaiti press discussion of normalization with Israel. Some Kuwaitis remain vocally
opposed to recognition of Israel, and Kuwait’s National Assembly and government have endorsed opposed to recognition of Israel, and Kuwait’s National Assembly and government have endorsed
some anti-normalization measures since 2020. Kuwait’s government participates in the Arab some anti-normalization measures since 2020. Kuwait’s government participates in the Arab
boycott of Israel and supported the 2002 Arab Peace Initiative. boycott of Israel and supported the 2002 Arab Peace Initiative.
Kuwait’s government has responded to the Israel-Hamas war by condemning and denouncing Kuwait’s government has responded to the Israel-Hamas war by condemning and denouncing
Israel’s military actions, calling for accountability for alleged violations of international Israel’s military actions, calling for accountability for alleged violations of international
humanitarian law, and demanding an immediate ceasefire and unimpeded provision of humanitarian law, and demanding an immediate ceasefire and unimpeded provision of
humanitarian aid.humanitarian aid.5248 Kuwait’s initial response to the October 7, 2023 Kuwait’s initial response to the October 7, 2023, Hamas-led attack on Israel Hamas-led attack on Israel
said the attack came as a result of Israeli violations and attacks on Palestinians.said the attack came as a result of Israeli violations and attacks on Palestinians.5349 Kuwait has Kuwait has
joined other Arab states in calling for “a comprehensive and just solution for the Palestinian cause joined other Arab states in calling for “a comprehensive and just solution for the Palestinian cause
that includes an independent state on the 1967 border with East Jerusalem being its capital.”that includes an independent state on the 1967 border with East Jerusalem being its capital.”5450
Kuwait Specialized Hospital operates with Kuwaiti state support in Rafah in the southern Gaza Kuwait Specialized Hospital operates with Kuwaiti state support in Rafah in the southern Gaza
Strip. Strip.
In May 2022, the U.S. Department of the Treasury designated Kuwait-based Jordanian national
Abdallah Yusuf Faisal Sabri for sanctions, stating that Sabri had “managed Hamas’s operational
expenses” since 2018.55 Press reports citing current and former U.S. officials have focused on
allegations that Kuwait-based entities since October 2023 have used crowdfunding mechanisms
to solicit funding that benefits Hamas.56 Kuwaiti officials have revoked the fundraising licenses
of some charitable entities since December 2023 and have underscored requirements for
fundraising to abide by Kuwaiti law.57
Iraq. Kuwait’s land border with Iraq was delineated by a United Nations Iraq-Kuwait Boundary
Demarcation Commission following the 1990-1991 Gulf War and endorsed by the U.N. Security
Council in Resolution 833 (1993). The delineation of maritime boundaries remains a subject of
Kuwaiti-Iraqi discussion – both Kuwait and Iraq are developing large capacity ports on the Khor
Abdullah waterway (see Figure 1).58 In September 2023, Iraq’s Federal Supreme Court
invalidated the Iraqi parliament’s 2013 endorsement of a 2012 agreement on the partial
delineation of the Iraq-Kuwait maritime border, citing lack of two-thirds majority support for the
implementing law. On September 19, 2023, the United States and the GCC jointly “called for the
complete demarcation of the Kuwait-Iraq maritime boundary beyond boundary point 162
[defined in the 2012 agreement] and called on the Government of Iraq to expeditiously resolve
the domestic legal status of the 2012 Kuwait-Iraq Agreement to regulate maritime navigation in

52Emir Meshaal visited Egypt on April 30, 2024 and in a joint statement with Egyptian President Abdel Fattah El Sisi the two countries “confirmed their categorical rejection of Israel’s ongoing military operations and their possible expansion into the Palestinian city of Rafah” and said the leaders “were in alignment with regard to the vital need to reach an urgent, immediate and enduring ceasefire in the Gaza Strip and on the critical importance of ensuring the unfettered, adequate and sustainable delivery of humanitarian aid and relief to the Palestinian people in the occupied territories.”51 In May 2022, the U.S. Department of the Treasury designated Kuwait-based Jordanian national Abdallah Yusuf Faisal Sabri for sanctions, stating that Sabri had “managed Hamas’s operational expenses” since 2018.52 Press reports citing current and former U.S. officials have focused on allegations that Kuwait-based entities since October 2023 have used crowdfunding mechanisms to solicit funding that benefits Hamas.53 Kuwaiti officials have revoked the fundraising licenses 46 Reuters, “Iran will pursue rights over Durra gas field if other parties shun cooperation, oil minister says,” July 30, 2023; and Reuters, “Saudi Arabia, Kuwait reaffirm rights to natural resources in Durra gas field, Saudi ministry says,” August 2, 2023. 47 Iranian Vice President for Legal Affairs Mohammed Dehghan quoted in E’temad, March 8, 2024. 48 Kuwait News Agency, “Kuwait strongly denounces Israeli occupation aggression on Gaza,” December 2, 2023; and, Kuwait News Agency, “Kuwait strongly denounces Israeli occupation aggression on Gaza,” December 2, 2023; and,
Kuwait News Agency, “Kuwait condemns Israeli bombing of Palestinians waiting for humanitarian aid,” February 29, Kuwait News Agency, “Kuwait condemns Israeli bombing of Palestinians waiting for humanitarian aid,” February 29,
2023. 2023.
5349 Cleary Waldo, Gabriel Epstein, Sydney Hilbush, Aaron Y. Zelin, “International Reactions to the Hamas Attack on Cleary Waldo, Gabriel Epstein, Sydney Hilbush, Aaron Y. Zelin, “International Reactions to the Hamas Attack on
Israel,” October 11, 2023. The Kuwaiti Ministry of Foreign Affairs October 7, 2023 statement linked in this report is no Israel,” October 11, 2023. The Kuwaiti Ministry of Foreign Affairs October 7, 2023 statement linked in this report is no
longer active, but several Kuwaiti and regional news outlets contemporaneously carried the text cited in this report. longer active, but several Kuwaiti and regional news outlets contemporaneously carried the text cited in this report.
5450 Kuwait News Agency, “Kuwait strongly denounces Israeli occupation aggression on Gaza,” December 2, 2023. Kuwait News Agency, “Kuwait strongly denounces Israeli occupation aggression on Gaza,” December 2, 2023.
5551 Presidency of Egypt, “Joint Statement on the State Visit by Amir of Kuwait Sheikh Meshal Al-Ahmad Al-Jaber Al-Sabah,” April 30, 2024 52 U.S. Department of the Treasury, “Treasury Targets Covert Hamas Investment Network and Finance Official,” May U.S. Department of the Treasury, “Treasury Targets Covert Hamas Investment Network and Finance Official,” May
24, 2022. 24, 2022.
5653 Joby Warrick and Souad Mekhennet, “Seeking cash, Hamas turns to allies experienced in ‘financial jihad,’” Joby Warrick and Souad Mekhennet, “Seeking cash, Hamas turns to allies experienced in ‘financial jihad,’”
Washington Post, January 12, 2024. , January 12, 2024.
57 Arab Times, “Ten charities blocked for good from collecting donations,” March 19, 2024.
58 See Middle East Monitor, “Kuwait calls on Iraq to complete maritime border demarcation,” December 21, 2022; Al
Sharqiya (Iraq), “Kuwait calls on Iraq to withdraw naval vessels that exceeded its territorial waters,” December 2,
2022; and, Bader Al Saif, “Think Big: Why Broadening Negotiations Could Help Resolve the Kuwaiti-Iraqi Maritime
Dispute,” Carnegie Middle East Center, March 19, 2021.
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Khor Abdullah and ensure that the agreement remains in force.”59Congressional Research Service 11 link to page 4 Kuwait: Issues for the 118th Congress of some charitable entities since December 2023 and have underscored requirements for fundraising to abide by Kuwaiti law.54 Iraq. Kuwait’s land border with Iraq was delineated by a United Nations Iraq-Kuwait Boundary Demarcation Commission following the 1990-1991 Gulf War and endorsed by the U.N. Security Council in Resolution 833 (1993). The delineation of maritime boundaries remains a subject of Kuwaiti-Iraqi discussion—both Kuwait and Iraq are developing large capacity ports on the Khor Abdullah waterway (see Figure 1).55 In September 2023, Iraq’s Federal Supreme Court invalidated the Iraqi parliament’s 2013 endorsement of a 2012 agreement on the partial delineation of the Iraq-Kuwait maritime border, citing lack of two-thirds majority support for the implementing law. On September 19, 2023, the United States and the GCC jointly “called for the complete demarcation of the Kuwait-Iraq maritime boundary beyond boundary point 162 [defined in the 2012 agreement] and called on the Government of Iraq to expeditiously resolve the domestic legal status of the 2012 Kuwait-Iraq Agreement to regulate maritime navigation in Khor Abdullah and ensure that the agreement remains in force.”56 Rejection or reopening of the Rejection or reopening of the
2012 agreement could affect both countries’ ability to use the waterway and affect their relative 2012 agreement could affect both countries’ ability to use the waterway and affect their relative
rights regarding maritime boundary and resource claims in northern Persian Gulf waters adjacent rights regarding maritime boundary and resource claims in northern Persian Gulf waters adjacent
to Iran and Saudi Arabia. Iraqi Prime Minister Mohammed Shia al Sudani visited Kuwait in to Iran and Saudi Arabia. Iraqi Prime Minister Mohammed Shia al Sudani visited Kuwait in
November 2022 and met with Kuwaiti executive and legislative leaders. Iraqi and Kuwaiti November 2022 and met with Kuwaiti executive and legislative leaders. Iraqi and Kuwaiti
officials consulted on outstanding border issues in Iraq in July 2023. Kuwait and Iraq have agreed officials consulted on outstanding border issues in Iraq in July 2023. Kuwait and Iraq have agreed
on managing oil fields that transcend the Iraq-Kuwaiti border.on managing oil fields that transcend the Iraq-Kuwaiti border.
Syria. Kuwait closed its embassy in Syria in 2012 but maintained diplomatic relations with the Kuwait closed its embassy in Syria in 2012 but maintained diplomatic relations with the
Syrian government. Some Kuwaiti citizens raised funds for groups opposed to Syrian President Syrian government. Some Kuwaiti citizens raised funds for groups opposed to Syrian President
Bashar Al Asad.Bashar Al Asad.6057 Kuwait’s Foreign Ministry in April 2023 said that Kuwait would support Arab Kuwait’s Foreign Ministry in April 2023 said that Kuwait would support Arab
states’ consensus on Syria, and Kuwait did not officially oppose Syria’s readmission to the states’ consensus on Syria, and Kuwait did not officially oppose Syria’s readmission to the
League of Arab States in May 2023.League of Arab States in May 2023.
Kuwait supported the statement of the May 2024 Arab League summit in Bahrain, which among other things called for “the lifting of unilateral coercive measures imposed on Syria.”58 Fiscal, Economic, and Energy Issues
Kuwait’s state finances remain almost completely dependent on oil revenue and investment Kuwait’s state finances remain almost completely dependent on oil revenue and investment
income, but authorities are engaged in efforts to expand non-oil revenue sources and promote income, but authorities are engaged in efforts to expand non-oil revenue sources and promote
private sector economic activity under the national private sector economic activity under the national Vision 2035/“New Kuwait” initiative. initiative.6159 Relative to other Gulf Cooperation Council members pursuing similar economic transformation 54 Arab Times, “Ten charities blocked for good from collecting donations,” March 19, 2024. 55 See Middle East Monitor, “Kuwait calls on Iraq to complete maritime border demarcation,” December 21, 2022; Al Sharqiya (Iraq), “Kuwait calls on Iraq to withdraw naval vessels that exceeded its territorial waters,” December 2, 2022; and, Bader Al Saif, “Think Big: Why Broadening Negotiations Could Help Resolve the Kuwaiti-Iraqi Maritime Dispute,” Carnegie Middle East Center, March 19, 2021. 56 U.S. State Department, “Joint Statement Following the Ministerial Meeting of the United States and the Gulf Cooperation Council (GCC),” September 19, 2023. 57 Sylvia Westall and Mahmoud Harby, “Insight: Kuwaitis campaign privately to arm Syrian rebels,” Reuters, June 27, 2013. 58 The National, “Full text of Arab League's Bahrain Declaration,” May 16, 2024. 59 For 2021, the IMF estimates that oil and investment earnings accounted for $36 billion and $13.8 billion in revenue respectively out of $53.8 billion in total revenue (equal to ~92.5%). See IMF Country Report No. 22/89, Kuwait 2021 Article IV Consultation Staff Report, Table 1, March 2022. For a summary of Vision 2035/New Kuwait, see World Bank Group, State of Kuwait Country Engagement Framework, 2021–2025; and information from the Kuwaiti government available at http://www.newkuwait.gov.kw/home.aspx. Congressional Research Service 12 link to page 4 Kuwait: Issues for the 118th Congress
Relative to other Gulf Cooperation Council members pursuing similar economic transformation
initiatives, Kuwait’s efforts appear nascent and the country’s political stalemates arguably have initiatives, Kuwait’s efforts appear nascent and the country’s political stalemates arguably have
constrained them. Increases in oil prices from 2020 lows have brought a windfall to Kuwait and constrained them. Increases in oil prices from 2020 lows have brought a windfall to Kuwait and
other oil exporters, and pushed Kuwait’s fiscal balance back into surplus in 2022 after a large other oil exporters, and pushed Kuwait’s fiscal balance back into surplus in 2022 after a large
deficit in 2020-2021 amplified by the effects of the Coronavirus Disease 2019 (COVID-19) deficit in 2020-2021 amplified by the effects of the Coronavirus Disease 2019 (COVID-19)
pandemic. pandemic.
Kuwait’s oil reserves amount to more than 7% of global proven reserves, and at current production Kuwait’s oil reserves amount to more than 7% of global proven reserves, and at current production
rates, would last through this century. (For a map of Kuwaiti energy resources, seerates, would last through this century. (For a map of Kuwaiti energy resources, see Figure 1.)
Kuwait plans to expand its oil production capacity, but has limited spare capacity at present. Under Kuwait plans to expand its oil production capacity, but has limited spare capacity at present. Under
the October 2022 OPEC+ decision to cut production by 2 million barrels per day, Kuwait agreed to the October 2022 OPEC+ decision to cut production by 2 million barrels per day, Kuwait agreed to
reduce its production by 135,000 barrels per day. Kuwait is expanding the capacity of its Al Zour reduce its production by 135,000 barrels per day. Kuwait is expanding the capacity of its Al Zour
oil refinery from 800,000 barrels per day to 1.4 million barrels per day.oil refinery from 800,000 barrels per day to 1.4 million barrels per day.6260 Kuwait has considerable Kuwait has considerable
natural gas reserves, but its gas production infrastructure is less developed. Kuwait imports natural natural gas reserves, but its gas production infrastructure is less developed. Kuwait imports natural
gas for domestic consumption even as it continues to flare associated gas from oil production. gas for domestic consumption even as it continues to flare associated gas from oil production.
As of 2022, the Kuwait Investment Authority (KIA) managed $769 billion in sovereign wealth As of 2022, the Kuwait Investment Authority (KIA) managed $769 billion in sovereign wealth
assets between the $700 billion Future Generations Fund (FGF) and the smaller General Reserve assets between the $700 billion Future Generations Fund (FGF) and the smaller General Reserve
Fund (GRF).Fund (GRF).6361 The executive may not issue debt or access FGF assets without parliamentary The executive may not issue debt or access FGF assets without parliamentary
approval, and used GRF funds and existing authority to transfer stakes in state entities to the KIA approval, and used GRF funds and existing authority to transfer stakes in state entities to the KIA

59 U.S. State Department, “Joint Statement Following the Ministerial Meeting of the United States and the Gulf
Cooperation Council (GCC),” September 19, 2023.
60 Sylvia Westall and Mahmoud Harby, “Insight: Kuwaitis campaign privately to arm Syrian rebels,” Reuters, June 27,
2013.
61 For 2021, the IMF estimates that oil and investment earnings accounted for $36 billion and $13.8 billion in revenue
respectively out of $53.8 billion in total revenue (equal to ~92.5%). See IMF Country Report No. 22/89, Kuwait 2021
Article IV Consultation Staff Report, Table 1, March 2022. For a summary of Vision 2035/New Kuwait, see World
Bank Group, State of Kuwait Country Engagement Framework, 2021 – 2025; and information from the Kuwaiti
government available at - http://www.newkuwait.gov.kw/home.aspx.
62 Argus Media, “Kuwait’s al-Zour refinery starts commercial operations,” November 6, 2022.
63 Adrienne Klasa, Andrew England, and Simeon Kerr, “Inside the Kuwait Investment Authority: ‘It’s chaos there
now,’” Financial Times, July 29, 2022.
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in exchange for funds to cover successive budget deficits from 2020 to 2022. The Finance in exchange for funds to cover successive budget deficits from 2020 to 2022. The Finance
Minister of the post-June 2023 government resigned shortly after his appointment, citing changes Minister of the post-June 2023 government resigned shortly after his appointment, citing changes
to KIA management procedures.to KIA management procedures.
As discussed above, executive-legislative impasses over public spending, corruption allegations, As discussed above, executive-legislative impasses over public spending, corruption allegations,
proposed reforms to public sector employment and benefits, service costs, and financing for new proposed reforms to public sector employment and benefits, service costs, and financing for new
economic initiatives have contributed to political discord since 2019.economic initiatives have contributed to political discord since 2019.6462 In 2021, the state drew In 2021, the state drew
down GRF assets during a deficit-driven liquidity crisis, and parliament refused to authorize down GRF assets during a deficit-driven liquidity crisis, and parliament refused to authorize
borrowing.borrowing.6563 Higher oil prices have offered fiscal respite since 2022, but underlying differences Higher oil prices have offered fiscal respite since 2022, but underlying differences
remain unresolved and this has limited progress toward goals set out under the Vision 2035/“New remain unresolved and this has limited progress toward goals set out under the Vision 2035/“New
Kuwait” program.Kuwait” program.6664 The U.S. government country commercial guide for Kuwait, has observed The U.S. government country commercial guide for Kuwait, has observed
that authorities responded to fiscal pressures and executive legislative-impasses by “postponing that authorities responded to fiscal pressures and executive legislative-impasses by “postponing
major infrastructure projects and putting other projects on hold until further notice.”major infrastructure projects and putting other projects on hold until further notice.”6765 The 2023 The 2023
Investment Climate Statement notes that “recovering oil prices ...could help restart many of the Investment Climate Statement notes that “recovering oil prices ...could help restart many of the
key infrastructure projects from Vision 2035.”key infrastructure projects from Vision 2035.”6866
In September 2023, the International Monetary Fund reported that while “frequent changes of In September 2023, the International Monetary Fund reported that while “frequent changes of
government, and the political impasse between the government and Parliament, have impeded government, and the political impasse between the government and Parliament, have impeded
important fiscal and structural reforms” high oil prices and Kuwait’s ample financial reserves and important fiscal and structural reforms” high oil prices and Kuwait’s ample financial reserves and
borrowing capacity “would also allow Kuwait to tackle its long-standing structural impediments
and reinvigorate non-oil, private sector-led growth from a strong position.”69
Resources and Climate Change
Kuwait is highly vulnerable to the projected effects of global climate change, including sea level
rise and increased average temperatures, which already are consistently among the highest in the
Gulf.70 Kuwait’s water resources are extremely limited, and the state burns fossil fuels to generate
power for water desalination, air conditioning, and other essential services. In 2023, summer
power demand, driven by air conditioning needs, exceeded available supply, creating some power
outages.71
Kuwait is a major oil producer and exporter, and as such, global energy transition away from
fossil fuel consumption may affect Kuwait’s fiscal outlook. In November 2022, Kuwait made

64 60 Argus Media, “Kuwait’s al-Zour refinery starts commercial operations,” November 6, 2022. 61 Adrienne Klasa, Andrew England, and Simeon Kerr, “Inside the Kuwait Investment Authority: ‘It’s chaos there now,’” Financial Times, July 29, 2022. 62 Fiona MacDonald, “This $600 Billion Wealth Fund Got Caught in a Power Struggle,” Fiona MacDonald, “This $600 Billion Wealth Fund Got Caught in a Power Struggle,” Bloomberg, June 20, 2021. , June 20, 2021.
6563 Fiona MacDonald, “One of World’s Richest Nations Taps Wealth Fund as Cash Dries Up,” Fiona MacDonald, “One of World’s Richest Nations Taps Wealth Fund as Cash Dries Up,” Bloomberg, February 3, , February 3,
2021. 2021.
6664 For examples, see Fiona MacDonald, “Oil Money Can’t Buy Progress for Gulf’s Laggard State Kuwait,” Bloomberg, For examples, see Fiona MacDonald, “Oil Money Can’t Buy Progress for Gulf’s Laggard State Kuwait,” Bloomberg,
January 3, 2023. January 3, 2023.
6765 U.S. Department of Commerce, International Trade Administration, Country Commercial Guide: Kuwait, Market U.S. Department of Commerce, International Trade Administration, Country Commercial Guide: Kuwait, Market
Overview, September 13, 2022. Overview, September 13, 2022.
6866 U.S. Department of Commerce, International Trade Administration, Investment Climate Statement, December 30, U.S. Department of Commerce, International Trade Administration, Investment Climate Statement, December 30,
2023. 2023.
69 International Monetary Fund, “Kuwait: 2023 Article IV Consultation-Press Release; and Staff Report,” September
18, 2023.
70 For a detailed study see, Deen Shariff Sharp, Abrar Alshammari, and Kanwal Hameed, The Quiet Emergency:
Experiences and Understandings of Climate Change in Kuwait, London School of Economics, October 13, 2021.
71 Yesar Al Maleki, “Kuwait’s Summer Electricity Crunch Set to Worsen,” Middle East Economic Survey, November
3, 2023.
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Congressional Research Service 13 Kuwait: Issues for the 118th Congress borrowing capacity “would also allow Kuwait to tackle its long-standing structural impediments and reinvigorate non-oil, private sector-led growth from a strong position.”67 Resources and Climate Change Kuwait is highly vulnerable to the projected effects of global climate change, including sea level rise and increased average temperatures, which already are consistently among the highest in the Gulf.68 Kuwait’s water resources are extremely limited, and the state burns fossil fuels to generate power for water desalination, air conditioning, and other essential services. In 2023, summer power demand, driven by air conditioning needs, exceeded available supply, creating some power outages.69 Kuwait is a major oil producer and exporter, and as such, global energy transition away from fossil fuel consumption may affect Kuwait’s fiscal outlook. In November 2022, Kuwait made what its then-Foreign Minister described as “a solid serious pledge” to achieve carbon neutrality what its then-Foreign Minister described as “a solid serious pledge” to achieve carbon neutrality
in oil and gas operations by 2050 and nationwide by 2060.in oil and gas operations by 2050 and nationwide by 2060.7270
Outlook
Kuwaiti-U.S. security cooperation appears likely to continue to anchor the bilateral relationship, Kuwaiti-U.S. security cooperation appears likely to continue to anchor the bilateral relationship,
while the pace of implementation of Kuwaiti plans for economic transformation may determine while the pace of implementation of Kuwaiti plans for economic transformation may determine
opportunities for deeper bilateral economic partnership. Congress may conduct oversight of the opportunities for deeper bilateral economic partnership. Congress may conduct oversight of the
U.S. military’s presence and programs in Kuwait and may monitor Kuwaiti government U.S. military’s presence and programs in Kuwait and may monitor Kuwaiti government
decisionmaking on a range of foreign and domestic policy topics. These may include Kuwait’s oil decisionmaking on a range of foreign and domestic policy topics. These may include Kuwait’s oil
production, Kuwaiti engagement with China, Kuwait’s policy toward Israel and the Palestinians production, Kuwaiti engagement with China, Kuwait’s policy toward Israel and the Palestinians
(including Hamas), Kuwait’s posture toward Russia and Ukraine, Kuwait’s relations with its Arab (including Hamas), Kuwait’s posture toward Russia and Ukraine, Kuwait’s relations with its Arab
and non-Arab neighbors, developments in Kuwaiti politics, alleged support by Kuwaiti nationals and non-Arab neighbors, developments in Kuwaiti politics, alleged support by Kuwaiti nationals
or residents for terrorist groups, and the Kuwaiti government’s protection of human rights, or residents for terrorist groups, and the Kuwaiti government’s protection of human rights,
including women’s rights and religious freedom. including women’s rights and religious freedom.

7267 International Monetary Fund, “Kuwait: 2023 Article IV Consultation-Press Release; and Staff Report,” September 18, 2023. 68 For a detailed study see, Deen Shariff Sharp, Abrar Alshammari, and Kanwal Hameed, The Quiet Emergency: Experiences and Understandings of Climate Change in Kuwait, London School of Economics, October 13, 2021. 69 Yesar Al Maleki, “Kuwait’s Summer Electricity Crunch Set to Worsen,” Middle East Economic Survey, November 3, 2023. 70 Kuwaiti Foreign Minister Salem Al Sabah quoted in Reuters, “Kuwait says to become carbon neutral in oil and gas Kuwaiti Foreign Minister Salem Al Sabah quoted in Reuters, “Kuwait says to become carbon neutral in oil and gas
by 2050,” November 8, 2022. by 2050,” November 8, 2022.
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Appendix. Political Developments 2006-20202023
Chronology of Selected Political Developments, 2006-20202023
January 2006 January 2006
Longtime Emir Shaykh Jaber al Ahmed al Jaber Al Sabah (aka Jaber III) dies on January 15, Longtime Emir Shaykh Jaber al Ahmed al Jaber Al Sabah (aka Jaber III) dies on January 15,
2006. His designated successor, Shaykh Sa’ad al Abdul ah al Salem Al Sabah, was infirm. A 2006. His designated successor, Shaykh Sa’ad al Abdul ah al Salem Al Sabah, was infirm. A
brief succession dispute ensues, and the National Assembly endorses a transfer of power brief succession dispute ensues, and the National Assembly endorses a transfer of power
to then-Prime Minister Shaykh Sabah al Ahmad al Jaber Al Sabah (aka Sabah IV), the to then-Prime Minister Shaykh Sabah al Ahmad al Jaber Al Sabah (aka Sabah IV), the
younger brother of the late Emir. Shaykh Sabah becomes Emir on January 29, 2006. younger brother of the late Emir. Shaykh Sabah becomes Emir on January 29, 2006.
June – July 2006 June – July 2006
Fol owing executive-legislative disputes over electoral system reform, the Emir dissolves Fol owing executive-legislative disputes over electoral system reform, the Emir dissolves
the National Assembly, and Kuwaitis hold a national election on June 26, 2006. Women the National Assembly, and Kuwaitis hold a national election on June 26, 2006. Women
run as candidates for the first time. After the election, the National Assembly adopts a run as candidates for the first time. After the election, the National Assembly adopts a
new electoral law reducing the number of electoral districts from 25 to 5. new electoral law reducing the number of electoral districts from 25 to 5.
May 2008 May 2008
Continuing executive-legislative differences over public sector wage reform lead the Emir Continuing executive-legislative differences over public sector wage reform lead the Emir
to dissolve the National Assembly. Kuwaitis hold a national election on May 17, 2008, the to dissolve the National Assembly. Kuwaitis hold a national election on May 17, 2008, the
first under the new 5-district electoral system. first under the new 5-district electoral system.
March – May 2009 March – May 2009
After opposition parliamentarians demand to question the then-prime minister, the prime After opposition parliamentarians demand to question the then-prime minister, the prime
minister and cabinet resign in March. The Emir dissolves the National Assembly and minister and cabinet resign in March. The Emir dissolves the National Assembly and
Kuwaitis hold a national election on May 16, 2009. Women candidates win seats for the Kuwaitis hold a national election on May 16, 2009. Women candidates win seats for the
first time. The Emir reappoints the prime minister. first time. The Emir reappoints the prime minister.
December 2011 – December 2011 –
Amid region-wide political turbulence often referred to as the ‘Arab Spring,’ some Amid region-wide political turbulence often referred to as the ‘Arab Spring,’ some
February 2012 February 2012
Kuwaitis challenge the government over corruption allegations, including through public Kuwaitis challenge the government over corruption allegations, including through public
demonstrations and the storming of the Assembly building in November 2011. The Emir demonstrations and the storming of the Assembly building in November 2011. The Emir
dissolves the National Assembly in December 2011, and Kuwaitis hold a national election dissolves the National Assembly in December 2011, and Kuwaitis hold a national election
on February 2, 2012. Opposition candidates win 34 of 50 seats. on February 2, 2012. Opposition candidates win 34 of 50 seats.
June – June –
In June, the Constitutional Court invalidates the Emir’s December 2011 decree dissolving In June, the Constitutional Court invalidates the Emir’s December 2011 decree dissolving
December 2012 December 2012
the previous National Assembly (the membership elected in May 2009). The decision the previous National Assembly (the membership elected in May 2009). The decision
dissolves the Assembly elected in February 2012 and reinstates the Assembly’s May 2009 dissolves the Assembly elected in February 2012 and reinstates the Assembly’s May 2009
membership. Opposition members refuse to attend Assembly sessions, preventing a membership. Opposition members refuse to attend Assembly sessions, preventing a
quorum; the Emir again dissolves the Assembly in October. The cabinet unsuccessful y quorum; the Emir again dissolves the Assembly in October. The cabinet unsuccessful y
appeals to have the 25-district electoral law reinstated, and the Emir issues a decree appeals to have the 25-district electoral law reinstated, and the Emir issues a decree
reducing the number of candidates that voters can select from four to one. Many reducing the number of candidates that voters can select from four to one. Many
opposition members reject the reduction because it has the effect of limiting the utility of opposition members reject the reduction because it has the effect of limiting the utility of
informal coordination among candidates and voters across communal differences such as informal coordination among candidates and voters across communal differences such as
location, tribe, and class. Demonstrators protest the changes, some opposition members location, tribe, and class. Demonstrators protest the changes, some opposition members
clash with security forces, and the government imposes controls on public gatherings. clash with security forces, and the government imposes controls on public gatherings.
Many opposition candidates boycott the December 1, 2012 election. Turnout declines Many opposition candidates boycott the December 1, 2012 election. Turnout declines
from nearly 60% in February 2012 to just over 40% in December 2012. from nearly 60% in February 2012 to just over 40% in December 2012.
June – July 2013 June – July 2013
The Constitutional Court finds the December 2012 National Assembly election invalid on The Constitutional Court finds the December 2012 National Assembly election invalid on
procedural grounds, but upholds the Emir’s October 2012 decree reducing the number of procedural grounds, but upholds the Emir’s October 2012 decree reducing the number of
votes per voter from four to one. Fewer opposition members boycott the July 27, 2013 votes per voter from four to one. Fewer opposition members boycott the July 27, 2013
election, and turnout increases to above 51%. election, and turnout increases to above 51%.
October – October –
The Emir dissolves the National Assembly and calls for an early election, as Kuwaitis The Emir dissolves the National Assembly and calls for an early election, as Kuwaitis
November 2016 November 2016
debate austerity measures proposed and adopted in response to fiscal strains resulting debate austerity measures proposed and adopted in response to fiscal strains resulting
from lower oil prices and high public sector spending. Turnout again increases, from lower oil prices and high public sector spending. Turnout again increases,
approaching 70% in the November 26, 2016 election. Voters elect one female candidate. approaching 70% in the November 26, 2016 election. Voters elect one female candidate.
September – September –
Emir Shaykh Sabah al Ahmed al Jaber Al Sabah dies on September 29, 2020. His half- Emir Shaykh Sabah al Ahmed al Jaber Al Sabah dies on September 29, 2020. His half-
December 2020 December 2020
brother Shaykh Nawwaf al Ahmed al Jaber Al Sabah becomes Emir. Their half-brother brother Shaykh Nawwaf al Ahmed al Jaber Al Sabah becomes Emir. Their half-brother
Shaykh Mishaal al Ahmed al Jaber Al Sabah becomes Crown Prince. An October decree Shaykh Mishaal al Ahmed al Jaber Al Sabah becomes Crown Prince. An October decree
calls for a national election as Kuwaitis face a fiscal crisis exacerbated by low global oil calls for a national election as Kuwaitis face a fiscal crisis exacerbated by low global oil
prices and the COVID-19 pandemic. Turnout exceeds 60% in the December 5, 2020 prices and the COVID-19 pandemic. Turnout exceeds 60% in the December 5, 2020
election. Voters do not elect any women candidates. election. Voters do not elect any women candidates.
December 2020 – Political stalemate persists, and, in April 2022 then-prime minister Shaykh Sabah al Khaled April 2022 al Hamad Al Sabah resigns. The Emir and Crown Prince delay naming a replacement, and, Congressional Research Service 15 Kuwait: Issues for the 118th Congress in June 2022, the Crown Prince announces the Assembly wil be dismissed pursuant to the constitution and calls for a new election. The dismissed Assembly had taken a pointed approach to questioning government officials and refused to endorse government fiscal proposals or approve authority for the government to borrow domestically or internationally to finance long-debated projects. July – December The Emir’s son, Shaykh Ahmed Nawaf al Ahmed Al Sabah, becomes prime minister. On 2022 September 29, 2022, Kuwaiti voters elect a new Assembly, including 27 new members, among them various opposition figures and members of the Islamic Constitutional Movement—the Kuwaiti Muslim Brotherhood’s political arm. Women members, absent from the previous Assembly, again win seats. Voters return Ahmed al Saadoun, who served as Assembly speaker from 1985 to 1999, to parliament. In October, a newly appointed cabinet resigns after some Assembly members protest that the cabinet’s membership had not changed sufficiently. Consultations fol ow and a new cabinet is seated. Consultation fol ows government pardons of some convicted government critics. January – May 2023 Cabinet ministers boycott Assembly sessions forcing its adjournment, arguing that the cabinet had not had sufficient opportunity to comment on proposed legislation that would incur state costs. The cabinet resigns. In March, the Constitutional Court rules that the October 2022 election is void and reinstates the parliamentarians elected in December 2020. Amid some public opposition to the court’s decision, including small demonstrations, some members of the 2020 and 2022 Assemblies call for constitutional reform. In May 2023, the Crown Prince dismisses the reinstated 2020 Assembly. June – December On June 6, 2023, voters elect a new Assembly, returning 38 of the members elected in 2023 September 2022 to office. Fol owing the election, the Emir and Crown Prince appoint a new government again led by Shaykh Ahmed Nawaf al Ahmed Al Sabah as prime minister. The cabinet resigns in December 2023 fol owing the Emir’s death. Crown Prince Shaykh Mishaal al Ahmed al Jaber Al Sabah becomes Emir. Sources: Compiled from international media and wire service reports, 2006-2024Sources: Compiled from international media and wire service reports, 2006-2020. Turnout data from . Turnout data from
International Foundation for Electoral Systems. International Foundation for Electoral Systems.

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Author Information

Christopher M. Blanchard Christopher M. Blanchard

Specialist in Middle Eastern Affairs Specialist in Middle Eastern Affairs



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