Updated November 15, 2023
Syria and U.S. Policy
Since 2011, conflict between the government of Syrian
Sham, which is an FTO due to its links to Al Qaeda. Many
President Bashar al Asad and opposition forces seeking his
residents of this area have been displaced from areas of
removal has displaced roughly half of the country’s
Syria now under Asad control, and an estimated 75%
population and killed over half a million people. Five
depend on U.N. assistance to meet their basic needs.
countries operate in or maintain military forces in Syria:
Turkish Forces and Aligned Militias
Russia, Turkey (Türkiye), Iran, Israel, and the United
Turkish-held areas of northern Syria include territories
States. The United States supports a negotiated political
occupied by Turkish forces in cooperation with Syrian Arab
settlement to the Syria conflict in accordance with U.N.
proxy forces. In these areas, Turkey has established local
Security Council Resolution 2254 and seeks the enduring
councils subordinate to the Turkish provinces they border,
defeat of the Islamic State (IS, aka ISIS/ISIL). U.S.
with Turkish provincial governments overseeing the
policymakers work to address threats posed by IS remnants
provision of some basic services.
and detainees, counter Al Qaeda, facilitate humanitarian
access to Syria, and manage Russian, Turkish, and Iranian
Figure 1. Syria: Areas of Influence
challenges to U.S. operations. Earthquakes in February
2023 and resurgent Russia-backed government attacks on
rebel held areas of northwest Syria have created additional
humanitarian needs. Following the October 2023 terrorist
attacks in Israel and Israel’s military operations in Gaza,
Iran-backed militia have attacked U.S. military personnel in
Syria, prompting U.S. response strikes.
Areas of Control
The Asad Government
The Asad government—backed by Russia, Iran, and
aligned Syrian and foreign militia forces—controls about
two thirds of Syria’s territory, including most major cities.
In 2021, President Asad won a fourth seven-year term; U.S.
officials described the election as “an insult to democracy.”
Some armed resistance to Asad’s rule remains, but the Arab
League and some Arab states have normalized relations
with the government and engage Asad and his senior

officials directly.
Source: CRS, using ESRI and U.S. State Department data.
Kurdish-Arab Military and Civilian Authorities
The Islamic State
After the defeat of the Islamic State by the largely Kurdish
U.S. military officials assess that the Islamic State operates
U.S.-backed Syrian Democratic Forces (SDF), Kurdish
as a cohesive, low-level insurgency, targeting Asad
authorities and their Arab partners in northeast Syria
government forces in southwest Syria and the central Syrian
established the Autonomous Administration of North and
desert, and the SDF in northern and eastern Syria.
East Syria (AANES), also known as the Self
Administration of Northeast Syria (SANES). The SDF and
Islamic State Detainees. The SDF continues to hold about
its political wing (the Syrian Democratic Council, SDC)
10,000 IS fighters in 26 detention facilities across northern
play a leading role in the AANES, whose leaders have
Syria. In January 2022, U.S. forces joined SDF forces in a
stated that it is not aligned with either the Asad government
lengthy battle to retake a prison seized by IS fighters. The
or with opposition forces. Turkey has clashed with the main
SDF also retains custody of up to 47,000 people linked to
Kurdish group within the SDF because of its links with the
the Islamic State (mostly women and children) at the Al
Kurdistan Workers’ Party (PKK), a U.S.-designated
Hol IDP camp. U.S. officials assess that the Islamic State
Foreign Terrorist Organization (FTO). Turkish strikes in
“views its fighters in detention and the population in the Al
Syria following an October 2023 PKK attack in Turkey
Hol displaced persons camp as keys to its resurgence.” In
damaged civilian infrastructure in areas under AANES
the Senate, the committee-reported FY2024 foreign aid
control. Some Arab tribal forces have taken up arms against
appropriations bill (S. 2438) would direct $25 million to the
the SDF since August 2023, with reported Syrian
Administration’s Al Hol Action Plan.
government support.
2023 Earthquakes
Opposition and Extremist Forces
In February 2023, successive 7.8 and 7.5 magnitude
Opposition-held areas of northwest Syria are administered
earthquakes struck southern Turkey near the Syrian border,
by the Syrian Salvation Government (SSG). The SSG was
resulting in over 47,000 fatalities across both countries.
established in 2017 and is affiliated with Hayat Tahrir al
Within Syria, the northwest—including areas controlled by
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Syria and U.S. Policy
opposition and extremist groups, and by Turkish-backed
defense appropriations bill (H.R. 4365) would provide the
Syrian militia forces—was most impacted. The United
requested amount and recommends the rescission of $50
States mobilized $251.5 million in humanitarian assistance
million in FY2023 appropriated funds, with the House
to earthquake-affected populations in Syria in FY2023.
Armed Services committee noting its concern about the
U.S. Policy
accountability of funds allocated for partner force stipends
in Syria. The Senate committee-reported version (S. 2587)
The Biden Administration identifies four policy priorities in
would provide $146.2 million in FY2024 CTEF funds for
pursuing a political settlement to the conflict as envisioned
Syria programs, and the Senate Armed Services
in Resolution 2254: (1) sustaining the U.S. and coalition
Committee’s report expresses concern about the
campaign against the Islamic State; (2) supporting local
“makeshift” nature of some SDF-run detention facilities.
ceasefires; (3) expanding humanitarian access; and (4)
pressing for accountability and respect for international law
Sanctions
while promoting human rights and nonproliferation,
The United States maintains sanctions on Syria relating to
including through the imposition of targeted sanctions.
its support for terrorism, interference in Lebanon, use of
U.S. Military Presence: Operation Inherent Resolve
chemical weapons, and human rights violations. U.S.
Department of the Treasury compliance guidance states that
U.S. forces have operated inside Syria since 2015 pursuant
the United States “remains committed to ensuring that
to the 2001 and 2002 Authorizations for Use of Military
humanitarian assistance flows to the Syrian people.”
Force (AUMF), amid ongoing debate in Congress about the
authorization for U.S. operations in Syria. U.S. operations
Humanitarian Assistance
in Syria as part of Operation Inherent Resolve (OIR) seek
The United States is the largest donor of humanitarian
“the enduring defeat of the ISIS.” About 900 U.S. troops
assistance to the Syria crisis, allocating nearly $17.2 billion
are based in Syria to conduct counter-IS operations and
since FY2012 for humanitarian efforts in Syria and in
support U.S. partner forces in pursuing their own counter-IS
neighboring states that host Syrian refugees. In October
operations. Most U.S. forces are deployed in what military
2023, U.N. officials estimate that more than 15 million
officials term the Eastern Syria Security Area, in support of
Syrians required humanitarian or protection support.
the SDF. Some U.S. troops support the Syrian Free Army at
Cross-Border Assistance. The Asad government in
the At Tanf garrison in south east Syria, which is located
November 2023 extended permission to the United Nations
along a transit route between Iraq and Syria used by both IS
to deliver cross-border aid to opposition held areas of
fighters and by Iran-backed militias.
northwest Syria using the Bab al Hawa and Al Ra’ee
Since 2015, CENTCOM has conducted periodic military
crossings until February 13, 2024. The U.N. Security
strikes in Syria outside the framework of OIR, including on
Council had provided a mandate for cross-border aid with
targets linked to Al Qaeda, Syrian government chemical
notification to (rather than the permission of) the Asad
weapons-related targets, and Iran-backed militias—some of
government from 2014 until July 2023, when Russia
which have used Syria-based facilities to monitor and target
prevented the mandate’s reauthorization.
U.S. forces in Syria and Iraq.
Stabilization Assistance
Since October 2023, the U.S. military has conducted strikes
The United States has provided more than $1.3 billion in
on facilities in eastern Syria associated with Iran’s Islamic
stabilization assistance for non-regime-held areas of Syria
Revolutionary Guard Corps and affiliated militias in
since 2011. The State Department describes stabilization
response to attacks by Iran-backed militias on U.S. forces in
assistance in northeast Syria as a counterweight to the
Syria and Iraq. Strikes have targeted U.S. forces at At Tanf,
influence of the Islamic State. The FY2023 Consolidated
near the Euphrates River valley, and in far northeast Syria.
Appropriations Act (P.L. 117-328) provides funds under
U.S. Policy Tools
titles III and IV of Division K of the act “notwithstanding
any other provision of law, for non-lethal stabilization
Syria Train and Equip Program
assistance for Syria, including for emergency medical and
The Syria Train and Equip program, authorized by
rescue response and chemical weapons investigations.” The
Congress in 2014 and funded via the Counter-ISIS Train
House-passed version of the FY2024 foreign assistance
and Equip Fund (CTEF), seeks to make partner forces in
appropriations bill (H.R. 4665) would prohibit the use of
Syria capable of defeating the Islamic State. U.S. partner
funds made available by the act in Asad-controlled areas.
forces consist of the SDF and the SFA. U.S. military
Issues for Congress
officials assess that the SDF “has the ability to successfully
execute unilateral operations but relies on Coalition for
Congress may consider whether increased violence within
some capabilities.” U.S. military officials assessed in June
Syria, more frequent attacks on U.S. forces in Syria, and
2023 that the SFA “primarily relies on Coalition support,
developments in regional conflicts are affecting U.S. goals
including through CTEF, to carry out its mission to counter
for Syria and whether or how U.S. military operations in
ISIS activities and provide Coalition force protection.”
Syria, Syria-related diplomacy, and/or humanitarian and
stabilization operations should adapt. Congress may address
FY2023 Funding and FY2024 Proposals. The FY2023
Syria issues in foreign assistance and defense
Consolidated Appropriations Act (P.L. 117-328 and
appropriations and authorization legislation for FY2024.
accompanying explanatory statement) made $475 million
available for CTEF, including $160 million for Syria. It
Christopher M. Blanchard, Specialist in Middle Eastern
also directed the rescission of $65 million in prior year
Affairs
CTEF funds. The President requests $156 million in
FY2024 CTEF funds for Syria programs. The House-passed
IF11930
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Syria and U.S. Policy


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https://crsreports.congress.gov | IF11930 · VERSION 8 · UPDATED

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