INSIGHTi
Houthi Attacks in the Red Sea:
Issues for Congress
January 12, 2024
Overview
Since the October 7, 2023, Hamas attacks and Israel’s ongoing military response in Gaza, Iran-supported
militias have increased attacks in Lebanon, Syria, Iraq, and the Red Sea. The Houthis, an Iran-backed
force in Yemen, have repeatedly targeted Israeli territory as well as international commercial vessels
transiting the Bab al Mandeb Strait, a key maritime choke point. In response, the U.S. Navy and other
navies have intercepted Houthi-launched projectiles, formed a coalition to patrol the Red Sea, and issued
warnings to the Houthis to halt attacks. Nevertheless, these attacks have persisted, diverting traffic from
the Red Sea and driving up shipping costs.
On January 11, 2024, the United States, United Kingdom, and others conducted joint strikes on 60 Houthi
targets across 16 different locations in Yemen. Prior to these strikes, some lawmakers had criticized the
Biden Administration’s response and called for greater pressure on the Houthis. President Joe Biden
entered office in 2021 vowing to pursue de-escalation of Yemen’s civil war. More recently, U.S. officials
have indicated reluctance to reinflame the war in Yemen amid U.N.-brokered talks. U.S. officials continue
to state their goal of keeping the Israel-Hamas conflict in Gaza from escalating into a broader regional
war.
The Houthis: Background and Iranian Support
The Houthi movement (formally known as Ansar Allah or Partisans of God), a predominantly Zaydi Shia
revivalist political and insurgent movement, was formed in northern Yemen in 2004 under the leadership
of members of the Houthi family. Ideologically, the group has espoused anti-American and anti-Zionist
beliefs. From 2004 to 2014, the Houthi movement consolidated power in northern Yemen, combating
Saudi Arabia to its north and the former Yemeni central government to its south. In 2014, after a national
dialogue failed to address long-standing Houthi grievances, the group launched a military campaign,
culminating in the overthrow of the internationally recognized government, which then sought military
intervention from Saudi Arabia and the United Arab Emirates. Yemen’s ensuing armed conflict, which has
been in stasis since 2022, remains unresolved and has resulted in the deaths of tens of thousands and
exacerbated humanitarian conditions in the Middle East’s poorest country.
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Figure 1. Reported Maritime Incidents in the Red Sea as of January 10, 2024
Source: The Guardian (UK), “Red Sea crisis: UN security council demands immediate end to Houthi attacks,†January 11,
2024.
Note: CRS cannot independently verify the location and nature of reported maritime events depicted.
Iran has provided the Houthis with components and technical knowledge to construct long-range missiles
and rockets and unmanned aerial vehicles (UAVs), and Houthi fighters have trained at an Iranian naval
academy and received instruction from Iran’s Islamic Revolutionary Guard Corps (IRGC). The Houthis
now wield anti-ship ballistic missiles and UAVs with ranges up to 1,000 miles. Iran has deployed an
aging frigate in the Red Sea to provide the Houthis with assistance in planning attacks and with “tactical
intelligence.â€
Attacks in the Red Sea
From October to December 2023, Houthi leader Abdel Malek Al Houthi threatened to intervene on behalf
of the Palestinians against Israel, announced that the Houthis would attack Israeli ships in the Red Sea,
and expanded potential targets to include all ships sailing to Israeli ports unless Gaza received “the food
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and medicine it needs.†In reality, the Houthis have targeted commercial vessels indiscriminately,
compelling some commercial shippers to divert tankers from the Red Sea to the lengthier and costlier
voyage around Africa’s Cape of Good Hope. As of January 11, U.S. Central Command reports that, since
October 17, the Houthis have attacked/harassed 27 ships in the Red Sea.
U.S. Response
Prior to the coalition strikes on January 11, U.S. naval forces responded militarily to Houthi provocations
by intercepting targets and interdicting attempted Houthi seizures of vessels. On December 18, the United
States launched Operation Prosperity Guardian, a 22-nation coalition under the command of U.S. Naval
Forces Central Command (NAVCENT). To date, five countries have contributed or pledged to contribute
warships. Bahrain, where NAVCENT is headquartered, is the only Arab member of the coalition.
Diplomatically, on January 3, 2024, the United States and 13 partners warned that the Houthis would
“bear the responsibility of the consequences†should they persist in their attacks.
On January 9, the Houthis launched their largest barrage, all of which the U.S. Navy intercepted. On
January 10, the United Nations Security Council adopted Resolution 2722, which condemned Houthi
attacks and took note of the right Member States have to defend their vessels from attack. After the
coordinated U.S.-U.K. strikes on January 11, President Biden said, “I will not hesitate to direct further
measures to protect our people and the free flow of international commerce as necessary.†The Houthis
claim that five individuals were killed in the strikes and have vowed to continue their attacks.
Issues for Congress
The January 11 strikes received some bipartisan approval, though some lawmakers called them long
overdue while others criticized the President for taking military action without first seeking congressional
approval. Some lawmakers have called for additional U.S. pressure, such as a redesignation of the
Houthis as a Foreign Terrorist Organization (FTO). In February 2021, Secretary of State Antony Blinken
revoked the Trump Administration’s January 2021 designations of the Houthis as a FTO and a Specially
Designated Global Terrorist (SDGT) entity, stating, “We have listened to warnings from the United
Nations, humanitarian groups, and bipartisan members of Congress, among others, that the designations
could have a devastating impact on Yemenis’ access to basic commodities like food and fuel.†According
to one report, the Administration is reviewing a possible Houthi redesignation. Overall, the Biden
Administration has been careful not to reignite Yemen’s civil war. According to a U.S. official, “On the
Yemen civil war, we have worked for three years to wind down that war…. And that is something that we
continue to support.†In its legislative and oversight roles, Congress may consider the balance of possible
benefits from offensive action against risks of a broader regional conflict including Iran.
Abigail Martin, CRS Research Assistant in the Foreign Affairs, Defense and Trade Division, contributed
to this Insight.
Author Information
Jeremy M. Sharp
Specialist in Middle Eastern Affairs
Congressional Research Service
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Disclaimer
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