Israel and Hamas 2023 Conflict In Brief:
November 14, 2023
Overview, U.S. Policy, and Options for
Jim Zanotti
Congress
Specialist in Middle
Eastern Affairs
On October 7, 2023, the Palestinian Sunni Islamist group Hamas (a U.S.-designated foreign

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

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

material support to Hamas, and according to U.S. officials may be complicit in a broad sense, but
President Joe Biden has said “there is no evidence” that Iran helped plan the attack.
In response to the October 7 attacks, Israel’s cabinet formally declared war on Hamas. Israel has initiated efforts to recover
roughly 239 hostages (including some Americans) taken during the Hamas-led assault, conducted an aerial bombardment
campaign, and launched ground operations against Hamas in Gaza. Israel also halted supplies from Israeli territory to Gaza of
electricity, food, and fuel. Before the conflict, Gaza had already faced crisis-level economic and humanitarian conditions.
Israeli Prime Minister Benjamin Netanyahu has announced that Israel’s military objectives are “To destroy the military and
governmental capabilities of Hamas and bring the hostages home.” As of November 13, Israeli forces have reportedly
encircled Gaza City, where they are targeting Hamas’s command structure and vast network of tunnels.
The United Nations has stated that Gaza, with an estimated 1.5 million Gazans displaced (nearly three-fourths of the
territory’s approximately 2.1 million people) constitutes a major humanitarian crisis. As of mid-November, U.S., Egyptian,
Israeli, and U.N. officials have coordinated a process by which some 100 trucks with humanitarian supplies are entering Gaza
daily from Egypt. The U.N. Secretary-General has repeatedly called for a humanitarian cease-fire. The Biden Administration
has stated that Israel has the right and obligation to defend itself, and has resisted calls from other international actors for a
cease-fire—though U.S. leaders have reportedly warned Israeli counterparts that global outcry over civilian suffering could
reach “a tipping point.” To date, Israel has refused any prolonged cease-fire without the release of Israeli hostages, though it
has allowed some localized four-hour pauses.
Reportedly, more than 1,200 Israelis and foreign nationals (including 35 U.S. citizens in Israel) and more than 11,000
Palestinians in Gaza have been killed as of November 13. Some U.S. citizens reportedly remain in Gaza, though hundreds
have crossed into Egypt since November 1, along with some injured Palestinians and other foreign nationals. Five hostages
(including two Americans) have been released or rescued to date, and one Israeli soldier has died in captivity.
There are risks that the conflict could expand. For example, the Iran-backed Shia Islamist group Lebanese Hezbollah (another
FTO) has exchanged fire with Israel and could create a second front at the Israel-Lebanon border. U.S. statements and
actions, including expedited arms deliveries to Israel and the movement of major U.S. military assets, appear intended to
warn Hezbollah or others not to get involved. U.S. officials have warned Iran of a strong response if groups Iran supports
continue to target U.S. military positions in the region. Additionally, amid rising violence between Palestinians and Israelis in
the West Bank, President Biden has called for attacks by “extremist settlers” against Palestinians to stop.
Israeli Prime Minister Netanyahu has said that Israel will have overall security responsibility for Gaza for an indefinite period
after the conflict, while U.S. officials have said that a potentially transitional Israeli security presence should not prevent the
West Bank-based Palestinian Authority (PA) from resuming governance responsibilities in Gaza, in connection with efforts
to move Israel and the Palestinians away from violence and toward a two-state solution.
In October 2023, President Biden asked Congress to appropriate more than $8 billion in U.S. security assistance for Israel,
and more than $9 billion in global humanitarian assistance amounts that could partly be allocated for Gaza, the West Bank,
and Israel. Members of Congress have expressed differing views on the request and its various elements. Congress also may
weigh other legislative and oversight options.
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Conflict Overview
Background
On October 7, 2023, the Palestinian Sunni Islamist group Hamas (a U.S.-designated foreign
terrorist organization, or FTO) led a series of surprise attacks from the Gaza Strip by land, sea,
and air against Israel (see Figure 1). Palestine Islamic Jihad (or PIJ, another FTO) claimed that its
forces also participated in the attacks, and other militants outside of Hamas and PIJ may also have
joined. The assault targeted Israeli military bases and civilian areas during the final Jewish high
holiday, just over 50 years after the Egypt-Syria surprise attack on Israel that sparked the 1973
Yom Kippur War (known in the Arab world as the October War). The October 7 attacks’ scope
and lethality have no precedent in the 16 years Hamas has controlled Gaza. The nature of the
violence stunned Israelis and many others.1
The apparent intelligence and operational failures in preventing the assault or limiting its impact
have become a subject of some debate in Israel and elsewhere. Some analysts have said that Israel
may have missed signals, over-relied on technological solutions, and/or misread Hamas’s
intentions, among other factors.2 Iran reportedly provides material support to Hamas, and
according to U.S. officials may be complicit in a broad sense, but President Joe Biden has said
“there is no evidence” that Iran helped plan the attack.3
In response to the attacks, Israel’s cabinet formally declared war on Hamas, and Prime Minister
Benjamin Netanyahu formed an emergency unity government with some members of the
opposition. Israel also halted supplies from Israeli territory to Gaza of electricity, food, and fuel.
Israel’s military has mobilized hundreds of thousands of troops, conducted air and artillery
bombardments in Gaza, and has encircled Gaza City through ground operations. Hamas and other
Gaza-based militants have continued indiscriminate rocket fire into Israel. On October 13, the
Israel Defense Forces (IDF) announced that it was “call[ing] for” the evacuation of all civilians in
Gaza City “from their homes southwards for their own safety and protection.”4 Hamas reportedly
called on people in these areas to remain in place.5
More than 1.5 million Gazans (nearly three-fourths of the territory’s approximately 2.1 million
people)6 are reportedly displaced from their homes as of November 13—with some 200,000-
250,000 civilians remaining in northern Gaza areas that are particularly vulnerable to conflict and
disconnected from limited life-sustaining supplies that are coming in through southern Gaza.7

1 Israeli Ministry of Foreign Affairs, “President Herzog reveals Hamas ‘Captive Taking Handbook’ in CNN interview,”
October 15, 2023.
2 Center for Strategic and International Studies, “Experts React: Assessing the Israeli Intelligence and Potential Policy
Failure,” October 25, 2023; Ronen Bergman et al., “How Years of Israeli Failures on Hamas Led to a Devastating
Attack,” New York Times, October 29, 2023.
3 Scott Pelley, “President Joe Biden: The 2023 60 Minutes interview transcript,” CBS News, October 15, 2023; White
House, “Press Briefing by Press Secretary Karine Jean-Pierre and National Security Advisor Jake Sullivan,” October
10, 2023. For more information on Hamas, its possible reasons for the attacks, and Iranian material support for Hamas,
see CRS Report R47754, Israel and Hamas October 2023 Conflict: Frequently Asked Questions (FAQs), coordinated
by Jim Zanotti, Jeremy M. Sharp, and Christopher M. Blanchard.
4 Israel Defense Forces, “IDF Announcement Sent to the Civilians of Gaza City,” October 13, 2023.
5 “Hamas tells Gaza residents to stay home as Israel ground offensive looms,” Reuters, October 13, 2023.
6 Figures for Gaza’s total population per Central Intelligence Agency World Factbook.
7 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash
(continued...)
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Israel and Hamas 2023 Conflict In Brief: Overview, U.S. Policy, and Options for Congress

Since November 9, the IDF has instituted daily localized pauses in military operations to facilitate
the southward passage of Gazans from the north.
Figure 1. Israel and Gaza: Conflict Map

Observers debate how to apportion blame between the militants and Israel for the worsening of
already dire humanitarian conditions in Gaza. While those faulting Israel argue that Israeli actions
have inflicted casualties and limited life-sustaining supplies, those blaming Hamas assert that
Hamas personnel in Gaza and other militants reportedly contribute to making civilian areas and
facilities unsafe by operating in or near them. U.N. Secretary-General António Guterres has
repeatedly appealed “for the immediate and unconditional release of those civilians held hostage
by Hamas,” as well as “for an immediate humanitarian ceasefire.”8
Egypt, via consultations with U.S., Israeli, and U.N. officials, is coordinating the use of its Rafah
crossing with Gaza to bring international aid into the territory—in a way that allows monitoring
to prevent diversion by Hamas—and to permit U.S. citizens and other foreign passport holders
safe passage out. After weeks of multi-party negotiations amid critiques by U.S. citizens in Gaza

Update #38,” November 13, 2023; “A perilous journey for countless Palestinians trying to flee danger in northern
Gaza,” CBC News, November 10, 2023.
8 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash
Update #25,” October 31, 2023.
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of the U.S. response,9 hundreds of U.S. citizens and family members have left Gaza. The border
has reportedly been closed at various times since then.
U.S. and U.N. officials have reportedly sought to increase the provision of international
assistance into Gaza via Egypt. U.N. officials have raised public health concerns in connection
with poor sanitation and consumption of unsafe water by internally displaced persons (IDPs).
Israel is piping water to areas in central and southern Gaza, but supply to northern Gaza remains
cut off.10 Responding to worries voiced by U.N. officials and others regarding fuel shortages for
hospitals and other uses, Israeli officials have stated that they have prevented fuel shipments into
Gaza because of concerns that Hamas might divert the fuel for its military efforts. Some
observers have pointed to evidence that Hamas has hoarded much of the fuel currently inside
Gaza.11 In late October, Israel began permitting increased non-fuel humanitarian supplies through
Rafah to areas of southern Gaza that can accommodate IDPs.12
As of mid-November, significant international attention has focused on the functionality and
safety of hospitals in northern Gaza, with Israel and Hamas trading accusations regarding the
possible endangerment of civilians by the other, and U.N. officials stating as of November 13 that
only one hospital has the resources to receive patients.13 National Security Advisor Jake Sullivan
has cited open sources in arguing that Hamas uses hospitals for military purposes, but has also
said that the United States does not want “firefights in hospitals” that could threaten patients or
other bystanders.14 On November 13, President Biden expressed his hope and expectation that
Israel would take “less intrusive action relative to hospitals,”15 after officials from the World
Health Organization and two other U.N. agencies—identifying “perilous” conditions for pediatric
care and other services in many hospitals (including Gaza’s largest)—called for “urgent
international action to end the ongoing attacks on hospitals in Gaza.”16 Some Israeli-facilitated
evacuation efforts may have taken place, but reports suggest that many patients and staff have
been unable to leave.17 Various countries are reportedly establishing or provisioning field
hospitals in southern Gaza, northern Egypt, or on ships offshore.18

9 Nina Kravinsky and Leila Fadel, “Americans in Gaza feel abandoned by their government,” NPR, October 27, 2023;
Joanna Slater, “Hundreds of Americans trapped in Gaza with ‘no safe place for us to go,’” Washington Post, October
20, 2023.
10 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash
Update #38,” November 13, 2023.
11 Michelle Nichols, “Israel’s military tells UN in Gaza: ask Hamas for fuel,” Reuters, October 24, 2023; Matthew
Rosenberg and Maria Abi-Habib, “As Gazans Scrounge for Food and Water, Hamas Sits on a Rich Trove of Supplies,”
New York Times, October 27, 2023.
12 Israel is reportedly inspecting goods at its border with Egypt before allowing the goods to enter Gaza via Rafah. IDF
Daily Recap: Hamas - Israel War October 29th, 2023 (19:30) - Day 23. See also “Israel agrees to allow 100 trucks of
humanitarian aid into Gaza each day — official,” Times of Israel, October 31, 2023.
13 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash
Update #38,” November 13, 2023.
14 “Transcript: National Security Adviser Jake Sullivan on ‘Face the Nation,’ Nov. 12, 2023,” CBS News.
15 Brett Samuels, “Biden: Hospitals ‘must be protected’ in Gaza as Israeli forces close in,” The Hill, November 13,
2023.
16 World Health Organization, “UNFPA, UNICEF and WHO Regional Directors call for immediate action to halt
attacks on health care in Gaza,” November 12, 2023.
17 Cassandra Vinograd and Hiba Yazbek, “Gaza’s Al-Shifa Hospital Is ‘No Longer Functioning,’ W.H.O. Says,” New
York Times, November 13, 2023; “Gaza hospitals’ evacuation efforts falter amid heavy fighting,” NBC News,
November 13, 2023.
18 Baruch Yedid, “Arab countries setting up field hospitals for Gazans,” Jewish News Syndicate, November 13, 2023.
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Reportedly, more than 1,200 Israelis and foreign nationals (including 35 U.S. citizens in Israel)
and more than 11,000 Palestinians in Gaza had been killed as of November 12.19 Hamas and other
groups aligned with them could be holding some 239 persons in Gaza that were taken hostage in
the October 7 attacks,20 and Secretary Blinken has said that some of the 10 Americans
unaccounted for are among those being held hostage.21 To date, Hamas has released four
hostages, including two Americans, and Israeli forces rescued an Israeli soldier who was being
held hostage (another soldier died in captivity). Hamas spokespeople have variously said that
Hamas would not release Israeli captives without a cease-fire and/or fuel shipments into Gaza,
and that it would release all hostages if Israel released all Palestinian prisoners in its custody.
President Biden said on November 14 that he believes a deal to release some hostages—which
might be connected with a temporary cease-fire and the release of some Palestinian prisoners—is
likely to happen in coming days.22
For additional background on the conflict, see CRS Report R47754, Israel and Hamas October
2023 Conflict: Frequently Asked Questions (FAQs), coordinated by Jim Zanotti, Jeremy M.
Sharp, and Christopher M. Blanchard.
Key Developments
Israel has formed an emergency unity government and “war management cabinet” that includes
key opposition figure Benny Gantz (a former defense minister and chief IDF commander)
alongside Prime Minister Netanyahu and Defense Minister Yoav Gallant.23 Netanyahu’s stated
objective is “To destroy the military and governmental capabilities of Hamas and bring the
hostages home.”24
After nearly three weeks of air strikes, Israel began ground operations inside Gaza in late
October. As of November 13, Israeli forces reportedly have encircled Gaza City. Israel seeks to
target Hamas’s command structure and vast network of tunnels. Israel has reportedly lost roughly
than 365 soldiers since October 7, with at least 46 killed since its ground incursion began. Hamas
and other Palestinian militants may rely on the tunnels, their knowledge of Gaza’s terrain, and
urban warfare tactics to counter Israel’s conventional military superiority.
Since the October 7 attacks, Israel has exchanged fire with the Iran-backed Shia Islamist group
Lebanese Hezbollah (an FTO) and Palestinian militants across Israel’s northern border with
Lebanon. Israel has ordered the evacuation of more than 40 communities in northern Israel. If
these clashes escalate, Hezbollah’s arsenal of more than 100,000 missiles and rockets could pose

19 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash
Update #38,” November 13, 2023; Jim Garamone, “Austin, Blinken Ask for Funds to Defend Embattled Democracies,”
DOD News, October 31, 2023. Palestinian casualty figures come from the Hamas-controlled health ministry in Gaza.
Additionally, Israel reported that the bodies of around 1,500 dead militants had been found as of October 10 in southern
Israeli areas recaptured by its military.
20 United Nations Office for the Coordination of Humanitarian Affairs, “Hostilities in the Gaza Strip and Israel | Flash
Update #38,” November 13, 2023.
21 Department of State, “Secretary Antony J. Blinken Remarks to the Press,” October 20, 2023.
22 Barak Ravid, “Biden says he believes deal to free dozens of hostages held in Gaza is ‘going to happen,’” Axios,
November 14, 2023.
23 Barak Ravid, “Israel’s Netanyahu forms unity government with ex-Defense Minister Gantz,” Axios, October 11,
2023; and Jeremy Sharon, “Netanyahu, Gantz agree to form emergency unity government,” Times of Israel, October
11, 2023.
24 “Netanyahu says the Gaza war has entered a new stage and will be ‘long and difficult,’” Associated Press, October
28, 2023.
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a grave threat to Israeli strategic sites and population centers.25 Israel has also reportedly
exchanged some cross-border fire with “pro-Hezbollah fighters” in southern Syria.26
Officials from the Palestinian Authority/Palestine Liberation Organization (PA/PLO), based
in the West Bank, appear to be in a difficult position. While they do not endorse Hamas, they
likely remain mindful of the sizable population of Palestinians who support confronting Israel.27
Amid rising tensions and violence between Palestinians and Israelis in the West Bank, President
Biden has called for attacks by “extremist settlers” against Palestinians to stop.28 During
Secretary Blinken’s early November visit to Israel, he said he received and planned to monitor a
“clear commitment” from Israel’s government to act against extremist violence in the West
Bank.29
As continuing conflict has increased civilian casualties in Gaza, some regional and international
actors have grown more publicly critical of Israeli and U.S. policy. Egypt, Saudi Arabia,
Jordan, the United Arab Emirates, and five additional Arab states jointly insisted on an
immediate cease-fire in late October.30 Qatar is facilitating indirect talks on hostage-related
issues between Israeli and U.S. officials and Hamas. In mid-November, Saudi Arabia hosted a
“joint Arab Islamic” summit, where leaders from the Gulf, Iran, Egypt, Jordan, Turkey, and Syria
called for an end to “Israeli aggression against Gaza,” more humanitarian aid, and a freeze on
international arms exports to Israel.31 Although popular sentiment in Arab states has placed
pressure on their governments to publicly oppose Israeli actions in Gaza,32 one former U.S.
official has said that many Arab leaders have told him that “Hamas must be destroyed in Gaza.”33
During the previous Israel-Hamas conflicts, which were of smaller scope and intensity, many
Arab states also publicly distanced themselves from Israel, only to resume earlier interactions
with Israel after the conflict.
At the United Nations, multiple draft U.N. Security Council resolutions on the conflict have
failed. On October 27, the U.N. General Assembly adopted a resolution (opposed by the United
States) calling for an “immediate, durable and sustained humanitarian truce leading to a cessation
of hostilities,” and for the protection of civilians under international law (including the release of
all civilians illegally held captive).34
Some open questions include What would constitute “victory” for Israel in Gaza? What does the
future of Gaza look like? What effect might U.S. and international concerns regarding civilian
suffering and casualties have on the duration and nature of Israeli military operations? What

25 Adi Hashmonai, “Israel Plans to Evacuate Communities Close to Border with Lebanon, Many Refuse to Leave,”
Haaretz, October 17, 2023.
26 “Israel strikes kill 8 Syria troops, hit Aleppo airport: defence ministry,” Agence France Presse, October 25, 2023.
27 Mohammad al-Kassim, “PA President Mahmoud Abbas MIA as Hamas wages war against Israel,” Ynetnews,
October 10, 2023.
28 White House, “Remarks by President Biden and Prime Minister Anthony Albanese of Australia in Joint Press
Conference,” October 25, 2023.
29 Department of State, “Secretary Antony J. Blinken at a Press Availability,” Tel Aviv, Israel, November 3, 2023.
30 Qatar Ministry of Foreign Affairs, “Qatar and a Number of Arab Countries Issue Joint Statement Following Cairo
Peace Summit,” October 26, 2023.
31 “Arab-Islamic summit adopts resolution on Israeli aggression against the Palestinian people,” Arab News, November
12, 2023.
32 International Crisis Group, “The Gaza War Reverberates Across the Middle East,” November 4, 2023.
33 Dennis Ross, “I Might Have Once Favored a Cease-Fire with Hamas, but Not Now,” New York Times, October 27,
2023.
34 Resolution available at https://documents-dds-
ny.un.org/doc/UNDOC/LTD/N23/319/20/PDF/N2331920.pdf?OpenElement.
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might be the longer-term ramifications for U.S. priorities such as Israel’s security, countering the
reach of Iran and its allies, and avoiding major war or humanitarian disaster? Under what
circumstances and to what end might U.S.-backed diplomacy resume between Israel, Palestinians,
and Arab states?
U.S. Policy
Israeli Military Operations and Pauses
The U.S. government has stated its support for military operations by Israel to defend itself in line
with international law, including in Gaza. U.S. officials have publicly disagreed with calls for a
cease-fire, citing Israel’s right to defend itself. Nevertheless, U.S. officials have voiced support
for “humanitarian pauses”—possibly more limited in time and geographical scope—that might
safely facilitate aid delivery or serve other purposes.
President Biden, Secretary of State Blinken, Secretary of Defense Lloyd Austin, and several other
Administration officials have visited Israel and other countries in the region since the outbreak of
conflict. On November 3, during Secretary Blinken’s latest trip to Israel, he reiterated the U.S.
view that Israel has the right and obligation to defend itself to prevent a recurrence of attacks on
the level of October 7, while remarking that “the way Israel does so matters.”35 A week later,
Blinken said, “Far too many Palestinians have been killed….We want to do everything possible to
prevent harm to them and to maximize the assistance that gets to them…. To that end, we’ll be
continuing to discuss with Israel the concrete steps to be taken to advance these objectives.”36
According to some reports, U.S. officials have privately expressed to Israeli counterparts that they
may have limited time for operations to root out Hamas in Gaza before international uproar over
civilian suffering and calls for a cease-fire reach “a tipping point.”37 Apparently, U.S. officials
have advised Israelis that some measures might reduce civilian casualties, including
improvements in targeting and advance intelligence gathering, efforts to separate civilians from
militants, and the use of smaller bombs.38 On November 9, General Charles Q. Brown, Chairman
of the Joint Chiefs of Staff, said that Israel’s aim to eliminate Hamas was “a pretty large order,”
saying that, “I think the longer this goes, the harder it can become.”39
Prime Minister Netanyahu has accepted daily four-hour pauses to the fighting for humanitarian
purposes, but has refused the idea of a longer halt to Israel’s military operations without the
release of Israeli hostages.40 He has argued that “the only thing that works on ... Hamas is the
military pressure that we're exerting.”41
Potential Post-Conflict Scenarios
In addition to reportedly advising Israel on how it conducts military operations, U.S. officials
have engaged in diplomatic talks with Israel and other regional partners over the future

35 Department of State, “Secretary Antony J. Blinken at a Press Availability,” Tel Aviv, Israel, November 3, 2023.
36 Department of State, “Secretary Antony J. Blinken Remarks to the Press,” New Delhi, India, November 10, 2023.
37 “US warns Israel amid Gaza carnage it doesn’t have long before support erodes,” CNN, November 3, 2023.
38 Adam Entous et al., “U.S. Is Urging Israel to Limit Gaza Fatalities,” New York Times, November 5, 2023.
39 “Top US general cautions over risks in a long Gaza war,” Reuters, November 9, 2023.
40 “Meet the Press - November 12, 2023,” NBC News.
41 Alexandra Hutzler, “Netanyahu to ABC’s Muir: ‘No cease-fire’ without release of hostages,” ABC News, November
6, 2023.
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governance of Gaza. In an October 15 interview, President Biden expressed support for Israeli
efforts to eliminate Hamas—calling it a “group of people who have engaged in barbarism that is
as consequential as the Holocaust.” When asked in the same interview if he would “support
Israeli occupation of Gaza at this point,” President Biden said, “I think it’d be a big mistake.”
Later in the interview, he said that “the extreme elements of Hamas don’t represent all the
Palestinian people,” and that “there needs to be a Palestinian authority. There needs to be a path to
a Palestinian state.”42 In October 31 congressional testimony, Secretary Blinken said that “what
would make the most sense would be for an effective and revitalized Palestinian Authority to
have governance, and ultimately, security responsibility for Gaza,” but that if doing so “in one
step” cannot happen, “other, temporary arrangements” could involve other regional countries
and/or international agencies.43 Arab government leaders reportedly are resisting U.S. suggestions
that they play a larger role—expressing that they believe Gaza to be “a problem largely of Israel’s
own making.”44
While discussing potential post-conflict scenarios with Blinken in the West Bank on November 5,
PA President Mahmoud Abbas stated the PA’s willingness to “fully assume our responsibilities
within the framework of a comprehensive political solution that includes all of the West Bank,
including East Jerusalem, and the Gaza Strip.”45 In 2005, Israel withdrew its military presence
from Gaza and ceded control to the PA. Two years later in 2007, the PA lost its hold on the
territory in an armed struggle with Hamas, which was founded in Gaza in the 1980s and has
maintained a considerable base of support there since. Some analysts have questioned whether the
PA could (or would) assume control of Gaza as a result of Israeli military action: one has argued
that being seen “as the agent of Israeli invasion and U.S. complicity—which is how most
Palestinians would see it—might be close to suicidal.”46
Prime Minister Netanyahu has said, “I think Israel will, for an indefinite period will have the
overall security responsibility because we’ve seen what happens when we don’t have it.”47
Netanyahu also has voiced skepticism about the PA’s ability to de-militarize and de-radicalize
Gaza, calling for some other “reconstructed civilian authority.”48 Some Israelis, including
opposition leader Yair Lapid, argue that the PA should return to Gaza,49 with some asserting that
Netanyahu’s stance reflects ideological opposition to a two-state solution.50 Additionally, the
resolution from the November “Arab Islamic” summit emphasized that the PLO (under whose
umbrella the PA exists) is the sole legitimate representative of the Palestinian people, and that
Palestinian-inhabited territories “occupied since 1967” constitute a sole geographical unit.51 The

42 Scott Pelley, “President Joe Biden: The 2023 60 Minutes interview transcript.”
43 Senate Appropriations Committee testimony available at https://www.cq.com/doc/congressionaltranscripts-
7867772?3.
44 Matthew Lee, “Arab leaders push for an Israel-Hamas cease-fire now,” November 4, 2023.
45 “Receiving US State Secretary, President Abbas demands immediate end to Israel's aggression on Gaza,” WAFA
News Agency, November 5, 2023.
46 Nathan J. Brown, “There Might Be No Day After in Gaza,” Carnegie Endowment for International Peace, November
3, 2023.
47 Hutzler, “Netanyahu to ABC’s Muir: ‘No cease-fire’ without release of hostages.”
48 Transcript, “State of the Union,” CNN, November 12, 2023.
49 Anat Peled et al., “Israel, U.S. Split on Gaza Plan,” Wall Street Journal, November 13, 2023.
50 Zvi Bar’el, “Netanyahu Refuses to Admit That the Palestinian Authority Is the Only Option for Governing Gaza,”
Haaretz, November 13, 2023.
51 “Arab-Islamic summit adopts resolution on Israeli aggression against the Palestinian people,” Arab News, November
12, 2023.
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spokesperson for PA President Abbas has insisted that Israeli attempts to separate Gaza from the
West Bank are destined to fail.52
Questions may persist about the credibility of any post-conflict outcome that does not provide
some basic form of (1) order and security, (2) Palestinian autonomy (connected to aspirations for
statehood), (3) and Israeli capacity to monitor and prevent the rise of new threats. Given potential
tensions among these three points, it is unclear whether or not a multilateral coalition with an
international mandate can facilitate an outcome addressing each one. It is also unclear whether or
not such an outcome can occur without some continuity in personnel who have run key civil
services under Hamas rule.
U.S. Military Deployments
Since October 7, President Biden has positioned additional U.S. military assets and personnel to
the Middle East in an apparent effort to bolster Israel’s defense, deter Iran and Iranian-supported
groups from widening the war, support select Arab partners, and prepare for contingencies, such
as an evacuation of U.S. citizens in Israel and Gaza.
Navy and Marine Corps Forces. The United States has repositioned the USS Gerald R. Ford
carrier strike group, which was already in the Mediterranean, to the Eastern Mediterranean, and
directed the USS Dwight D. Eisenhower carrier strike group to the Persian Gulf via the
Mediterranean. Each strike group includes an aircraft carrier with an embarked carrier air wing,
along with one cruiser and three destroyers. Each carrier air wing includes about 40 F/A-18 strike
fighters and about 20 other support aircraft. Some of the cruisers and destroyers are additionally
capable of conducting theater-range ballistic missile defense operations.
The United States has repositioned the USS Bataan Amphibious Ready Group (ARG) from the
Persian Gulf to the Red Sea. The ARG consists of three amphibious assault ships—the “large
deck” amphibious assault ship USS Bataan, which looks like a medium-sized aircraft carrier, and
two additional amphibious ships, USS Mesa Verde and USS Carter Hall. Stationed aboard the
three ships is the 26th Marine Expeditionary Unit (MEU) with approximately 2,400 Marines.
Air Force Aircraft. The United States has also sent additional F-35, F-15, and F-16 fighter
aircraft, and A-10 attack aircraft to the Middle East region.
Army Air and Missile Defense Units. To enhance the air defense capabilities of Arab partners in
the U.S. Central Command (CENTCOM) area of responsibility, the United States has dispatched
a Terminal High-Altitude Area Defense (THAAD) missile defense system to Saudi Arabia, and
Patriot air and missile systems to Kuwait, Jordan, Iraq, Qatar, and the United Arab Emirates.
U.S. Advisors. The United States has sent to Israel several U.S. officers with expertise in
combatting terrorist groups in urban environments gained from U.S. operations in Iraq and Syria
to offer “advice to our Israeli partners on best practices for mitigating civilian harm.”53
U.S. Military Response to Iranian-Supported Groups
Iranian officials have threatened to become involved in response to the Israeli operation in Gaza,
with the foreign minister reportedly stating in mid-October that Iran “cannot remain a spectator”

52 “Presidency: Israel's attempts to separate Gaza from West Bank are destined to failure,” WAFA News Agency,
November 12, 2023.
53 U.S. Department of Defense, “Senior Defense Official, Senior Military Official Hold a Background Briefing on
Israel,” October 23, 2023.
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to such operations.54 In late October, however, he said, “We don’t want this war to spread out.”55
Iran supports several proxy non-state actors across the Middle East, and armed groups in Iraq and
Yemen have expressed support for the Hamas attacks on Israel and pledged support to
Palestinians. Beyond Gaza and the West Bank, to date, some attacks against Israel have emanated
from Lebanon, Syria, and Yemen, while Iran-supported groups in Iraq and Syria have repeatedly
targeted U.S. forces stationed there. U.S. defense officials have stated that at least 45 Americans
are reporting minor injuries or potential traumatic brain injuries from Iran-supported attacks
against U.S. forces.56
On October 25, President Biden warned Iran not to threaten U.S. forces, saying, “My warning to
the Ayatollah was that if they continue to move against those troops, we will respond. And he
should be prepared.”57 On three occasions, the United States has conducted air strikes against
facilities in eastern Syria used by Iran and its allies.58 In the Red Sea, the U.S. Navy has
intercepted Houthi missiles from Yemen heading toward Israel, while the Houthis reportedly have
shot down a U.S. MQ-9 Reaper unmanned aerial vehicle.59
U.S. Expedited Arms Deliveries to Israel
Since October 7, the Biden Administration has expedited the provision of U.S. military and
security assistance to Israel, including: (1) small-diameter bombs (250 pounds); (2) interceptors
to replenish Israel’s Iron Dome (a U.S.-supported short-range anti-rocket, anti-mortar, and anti-
artillery system); (3) Joint Direct Attack Munitions (JDAMs - a kit that converts unguided
armaments into satellite-guided bombs);60 and (4) 155mm artillery shells.61 The Administration
also is to provide Israel with two Iron Dome batteries previously purchased by the U.S. Army.
Humanitarian Assistance for Palestinians
During President Biden’s October 18 visit to Israel, he announced $100 million in U.S.
humanitarian assistance for Gaza and the West Bank, to “help support over a million displaced
and conflict-affected people with clean water, food, hygiene support, medical care, and other
essential needs” via “trusted partners including UN agencies and international NGOs.”62 Some
lawmakers have sponsored legislation or written letters calling for a halt to humanitarian aid in
Gaza and/or greater monitoring of whether or not any U.S. assistance to Gaza and the West Bank

54 “Iran warns it may not ‘remain a spectator in Israel-Hamas conflict – as U.S. urges Iran not to intervene,” Forbes,
October 15, 2023.
55 “Iran does not want Israel-Hamas conflict to spread, foreign minister says,” Reuters, October 29, 2023.
56 Courtney Kube, “At least 45 U.S. service members may have been injured in Iran-linked attacks,” NBC News,
November 6, 2023.
57 White House, “Remarks by President Biden and Prime Minister Anthony Albanese of Australia in Joint Press
Conference,” October 25, 2023.
58 “US conducts airstrikes against Iran-backed groups in Syria, retaliating for attacks on US troops,” Associated Press,
November 13, 2023.
59 Eric Schmitt, “Houthi Rebels Shot Down a U.S. Drone Off Yemen’s Coast, Pentagon Says,” New York Times,
November 8, 2023.
60 “The US is moving quickly to boost Israel’s military. A look at what assistance it’s providing,” Associated Press,
October 14, 2023.
61 Reportedly, the Administration has decided to redirect these shipments, which had been taken from the U.S.
stockpile in Israel (WRSA-I) to provide to Ukraine, back to Israel for their use. See Barak Ravid, “Scoop: U.S. to send
Israel artillery shells initially destined for Ukraine,” Axios, October 19, 2023.
62 White House, “U.S. Announcement of Humanitarian Assistance to the Palestinian People,” October 18, 2023.
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may previously have been diverted—or be at risk of future diversion—by Hamas, other FTOs, or
their affiliates.63 Others have called for additional humanitarian aid for the Palestinians.64
President’s Budget Request to Congress and Proposed Legislation
In an October 19 Oval Office speech, President Biden announced an emergency supplemental
budget request to support U.S. partners, including Ukraine, Israel, and Taiwan, and address other
domestic and global issues.65 In sum, the President seeks over $14 billion in Israel-related
funding, of which $8.7 billion would be for direct aid for Israel, including: (1) $4 billion in DOD
funding for Iron Dome and David’s Sling defense systems; (2) $3.5 billion in Foreign Military
Financing (FMF), all of which may be made available for Israel to spend in-country in local
currency (known as off-shore procurement); and (3) $1.2 billion in DOD funding for the Iron
Beam laser-based defense system being developed by Israel.
In addition, the President has requested $5.4 billion for DOD’s response to the Israel-Hamas war
in Gaza and related expenses, including: (1) $4.4 billion that could be transferred among several
defense appropriations accounts for various purposes (including the replenishment of U.S.
defense equipment, reimbursement of DOD for defense services provided to Israel; expansion of
munitions production; and production of unspecified critical defense articles); (2) $801.4 million
for ammunition procurement; and (3) $198.6 million “to mitigate industrial base constraints”
through Defense Production Act purchases.
To allow for the obligation of requested funds for these intended purposes, the supplemental
request also includes proposed provisions that would amend several existing laws. The request
would amend the Department of Defense Appropriations Act, 2005 (P.L. 108-287, §12001) to
permit the transfer of previously prohibited categories of defense articles to the Government of
Israel, and temporarily waive limitations on the total value of defense stockpiles located in Israel
and set aside for Israel’s use per 22 U.S.C. §2321h(b). The request also contains a provision that
would authorize the Secretary of Defense to provide fewer than 30 days’ notice to Congress when
transferring defense articles to Israel in extraordinary circumstances.
The request includes over $9 billion in funding via global humanitarian accounts that could be
partly allocated to address the needs of those affected by the crisis in Gaza and Israel (including
in neighboring countries): $5.65 billion in International Disaster Assistance (IDA) and $3.495
billion in Migration and Refugee Assistance (MRA).
On November 2, the House passed H.R. 6126, the Israel Security Supplemental Appropriations
Act, 2024, (226-196). The bill would provide $14.3 billion in related supplemental appropriations
for Israel. While the bill closely follows the President’s request for Israel, it adds, among other
provisions, a reporting requirement describing all security assistance provided to Israel since the
October 7 attacks; raises the cap on presidential drawdown authority (PDA) to $2.5 billion for
FY2024; and requires a report to Congress on all uses of FY2024 PDA. The bill also would offset
the proposed additional appropriations for Israel by rescinding $14.3 billion for the Internal

63 Text of October 24 letter from 24 Representatives to U.S. Agency for International Development Director Samantha
Power available at https://www.documentcloud.org/documents/24080806-23-10-23-letter-to-usaid-re-gaza-west-bank-
funding-copy. Lawmakers in both chambers have introduced bills during the 118th Congress that would prohibit any
U.S. funding for Palestinians in Gaza absent a presidential certification that (among other things) the assistance would
not benefit Hamas or other terrorist organizations or affiliates. Senate version: S. 489; House version: H.R. 5996.
64 Text of November 8 letter from 26 Senators to President Biden available at
https://www.vanhollen.senate.gov/imo/media/doc/letter_to_president_biden_on_gaza.pdf.
65 The request is available at https://www.whitehouse.gov/wp-content/uploads/2023/10/Letter-regarding-critical-
national-security-funding-needs-for-FY-2024.pdf.
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Revenue Service. The bill does not include appropriations for Ukraine or for humanitarian
assistance.
Possible Options for Congress
Congress may consider an array of legislative or oversight options related to the ongoing conflict,
amid rapidly evolving developments and broader regional and U.S. foreign policy considerations.
Select options and considerations are discussed below, and some others (such as sanctions on
Iran, Hamas, or related actors; or the authorization of U.S. military force) are discussed in CRS
Report R47754, Israel and Hamas October 2023 Conflict: Frequently Asked Questions (FAQs),
coordinated by Jim Zanotti, Jeremy M. Sharp, and Christopher M. Blanchard.
Additional U.S. Assistance for Israel
Lawmakers may consider whether to increase, maintain, or condition existing U.S. support for
Israel. Relevant types of U.S. assistance may include (1) missile defense funding; (2) Foreign
Military Financing (FMF); (3) Presidential Drawdown Authority (PDA); (4) War Reserve Stocks
for Allies-Israel (WRSA-I); and (5) emergency arms sales.66
Humanitarian Assistance for Palestinians and Israel
As mentioned above, the President’s October supplemental budget request includes more than $9
billion in humanitarian assistance potentially usable for needs in and around Gaza, the West
Bank, and Israel from the MRA and IDA accounts. In a separate October request, the President
asked for $1.05 billion in “Food for Peace” grants for global emergency food needs via the
Department of Agriculture.67
Members of Congress are debating the scope and conditions under which current or proposed
humanitarian assistance should be appropriated or allocated. Some strongly support boosting
humanitarian aid for Palestinians and facilitating its provision,68 while others have expressed
concerns that Hamas or other militants could divert aid shipments for their own use.69
End-Use Monitoring of U.S. Defense Articles
Congress may examine and debate end-use monitoring (EUM) requirements for U.S. defense
articles in the context of the conflict. U.S. aid and arms sales—including to Israel—are subject to
laws such as the AECA and Foreign Assistance Act (FAA). The AECA requires the Departments
of State and Defense to conduct EUM to ensure that recipients of U.S. defense articles use such

66 For more information on U.S. aid to Israel, see CRS Report RL33222, U.S. Foreign Aid to Israel, by Jeremy M.
Sharp.
67 See https://www.whitehouse.gov/wp-content/uploads/2023/10/Summary-of-Funding-Request-to-Meet-Critical-
Needs.pdf.
68 See text of October 18 letter from 33 Senators to Secretary Blinken at
https://www.murphy.senate.gov/imo/media/doc/un_humanitarian_appeal.pdf; and text of October 20 letter from 130
Representatives to President Biden at https://connolly.house.gov/uploadedfiles/letter_to_president_biden_on_israel.pdf.
69 Jeff Stein and Jacob Bogage, “GOP targets Gaza’s biggest relief group, clashing with the White House,” Washington
Post, November 11, 2023; Marc Rod, “Republicans signal concerns about aid to Palestinians, Ukraine in Israel funding
request,” Jewish Insider, October 23, 2023.
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items solely for their intended purposes.70 In addition, in summer 2023, the Department of State
announced the formation of the Civilian Harm Incident Response Guidance (CHIRG), a process
whereby U.S. officials will “investigate reports of civilian harm by partner governments
suspected of using U.S. weapons and recommend actions that could include suspension of arms
sales.”71
Since the start of the conflict, some people have criticized Israel for civilian casualties and
accused it of possible misuse of U.S. defense equipment. In November 8 congressional testimony,
Deputy Assistant Secretary of Defense Dana Stroul remarked that “in our conversations with the
Israel Defense Forces, they have made very clear that they assess collateral damage estimates
before they take strikes. They have legal reviews, through their chain of command, and when
there are incidents of civilian harm, they investigate them after.”72 Regarding U.S. defense
consultation with Israel on mitigating civilian harm, National Security Council spokesperson John
Kirby has said, “We’re not sitting down next to them as they develop the target lists…. This is
their fight.”73 Previously, DOD spokesperson Sabrina Singh said, “Of course, we monitor and we
keep track of the assistance that we’re providing. But once it is in the hands of … the Israelis on
how they want to use, it’s – it’s really their decision…. So how the Israelis choose to use the
supplies capabilities that we give them is really not up to us.”74
Calls for a Cease-Fire, Pauses, and/or Respect for International Law
Members of Congress are debating whether or not to call for a cease-fire or humanitarian pause to
the conflict and whether or not to examine the applicability of international law to the conflict.
One letter urged a humanitarian pause and for Israel to conduct military operations within the
scope of international law while supporting its right to defend itself.75 On November 2, Senator
Richard Durbin called for a cease-fire in the Israel-Hamas war, but stipulated that it must start
with the release of all hostages. Other Members have supported Israel’s continuing military
operations unequivocally. Speaker of the House Mike Johnson, for example, has stated, “There
will be a ceasefire when Hamas ceases to be a threat to Israel.”76 Some others have written a letter
to the Administration urging U.S. officials to, among other things, advise Israel to abide by
international law in its actions, including with respect to the protection of civilians.77

70 CRS In Focus IF11197, U.S. Arms Sales and Human Rights: Legislative Basis and Frequently Asked Questions, by
Paul K. Kerr and Michael A. Weber; CRS Report R46814, The U.S. Export Control System and the Export Control
Reform Act of 2018, by Paul K. Kerr and Christopher A. Casey.
71 Missy Ryan, “Biden administration will track civilian deaths from U.S.-supplied arms,” Washington Post, September
13, 2023.
72 House Foreign Affairs Committee testimony available at https://plus.cq.com/doc/congressionaltranscripts-
7877975?4.
73 David E. Sanger, “Biden Confronts the Limits of U.S. Leverage in Two Conflicts,” New York Times, November 6,
2023.
74 Department of Defense, “Press Gaggle with Sabrina Singh, Deputy Pentagon Press Secretary,” October 16, 2023.
75 Text of November 3 letter from 58 Members to Secretary Blinken available at
https://twitter.com/AndrewSolender/status/1720582253816791248/photo/1.
76 “House Speaker Mike Johnson Tells GOP Jewish Confab: ‘God Is Not Done with Israel,’” Haaretz, October 29,
2023.
77 Text of October 13 letter from 55 Representatives to President Biden and Secretary Blinken available at
https://jayapal.house.gov/wp-content/uploads/2023/10/Letter-Expressing-Concern-on-the-Humanitarian-Situation-in-
Gaza.pdf.
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Author Information

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

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

Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
shared staff to congressional committees and Members of Congress. It operates solely at the behest of and
under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other
than public understanding of information that has been provided by CRS to Members of Congress in
connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not
subject to copyright protection in the United States. Any CRS Report may be reproduced and distributed in
its entirety without permission from CRS. However, as a CRS Report may include copyrighted images or
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