U.S. Resumption of Foreign Aid to the Palestinians
link to page 2 
INSIGHTi
U.S. Resumption of Foreign Aid to the
Palestinians
April 14, 2021
On April 7, 2021, Secretary of State Antony Blinken announced the Biden Administration’s plan to
resume various forms of aid to the Palestinians that had been discontinued under the Trump
Administration. Separately in March, the Biden Administration allocated $15 million in International
Disaster Assistance for Coronavirus Disease 2019 (COVID-19) response needs and emergency food
assistance in the West Bank and Gaza Strip.
Secretary Blinken’s statement and other documents (see textbox below) indicate that the Administration
plans to provide:
$75 million in bilateral Economic Support Fund (ESF) assistance from FY2020
appropriations for the West Bank and Gaza (see Figure 1);
$40 million in bilateral International Narcotics Control and Law Enforcement (INCLE)
assistance from FY2016 and FY2017 appropriations for Palestinian Authority (PA)
security forces and justice sector institutions in the West Bank;
$150 million in contributions for humanitarian response to the United Nations Relief and
Works Agency for Palestine Refugees in the Near East (UNRWA); and
$10 million in peacebuilding programs.
The Trump Administration had suspended contributions to UNRWA in August 2018, peacebuilding
programs involving Palestinians in September 2018, and ESF and INCLE aid in January 2019.
UNRWA provides education, health care, and other social services to more than five million registered
Palestinian refugees in the West Bank, Gaza, Lebanon, Jordan, and Syria. It is funded through voluntary
contributions from governments and other donors. Since the United States halted its voluntary
contributions, UNRWA has relied on other international donor support, and reduced its provision of
services to help manage expenses—sometimes delaying payment of salaries to its employees. Some
Members of Congress and Israeli officials want U.S. officials to pressure UNRWA to reform some of its
practices (as referenced below). While many supporters of the organization may agree with the need for
reform, they also argue that UNRWA provides critical humanitarian support to the Palestinian refugee
population.
Congressional Research Service
https://crsreports.congress.gov
IN11649
CRS INSIGHT
Prepared for Members and
Committees of Congress
Congressional Research Service
2
For background on U.S. aid to the Palestinians and other key issues affecting U.S.-Palestinian relations,
see CRS reports on the Palestinians, aid to the Palestinians, and amendments to the Anti-Terrorism Act.
Figure 1. U.S. Bilateral Aid to the Palestinians, FY2012-FY2021
Sources: U.S. State Department and U.S. Agency for International Development (USAID), adapted by CRS.
Notes: All amounts are approximate. Various amounts (including INCLE for FY2020 and all amounts for FY2021) have
been appropriated but not obligated. NADR = Nonproliferation, Antiterrorism, Demining, and Related Programs, OCO =
Overseas Contingency Operations.
Congressional Research Service
3
U.S. Rationale and Israeli-Palestinian Reactions
Secretary Blinken explained that resuming aid for the Palestinians would serve important U.S. interests
such as critical humanitarian assistance; economic development; and fostering Israeli-Palestinian
understanding, security coordination, and stability that can lead toward a negotiated two-state solution. He
also said that all assistance would be provided consistent with U.S. law, and encouraged other
international donors to increase their funding for similar programs. According to the World Bank, foreign
aid the PA received in 2020 was 20 percent lower than in 2019 and the lowest in decades. PA Prime
Minister Mohammad Shtayyeh welcomed the resumption of aid and called on the Administration to take
complementary diplomatic steps to address the aspirations and rights of the Palestinian people.
Israel’s Ambassador to the United States Gilad Erdan stated opposition to the renewal of funding for
UNRWA, and demanded that it be contingent on reforms. Secretary Blinken had asserted that the United
States needs “to be at the table [with UNRWA] to ensure that the reforms advance efficiencies and are in
accord with our interests and values.” In an interview a few days later, a senior U.S. official said that
UNRWA has made clear commitments to the Administration on transparency, accountability, and
neutrality that include “zero tolerance” for anti-Semitism.
Legislative Conditions and Congressional Holds and
Oversight
U.S. aid for Palestinians (including contributions to UNRWA) is subject to numerous conditions in annual
appropriations legislation (see Sections 7037-7040, 7041(k), and 7048(d) of P.L. 116-260) and elsewhere.
The Taylor Force Act (TFA, Div. S, Title X of P.L. 115-141), enacted in March 2018, is intended in part to
discourage Palestinian leaders from continuing domestic welfare payments to individuals or families that
are arguably “for acts of terrorism.” The TFA prohibits ESF (other than for a few specified purposes) that
directly benefits the PA until the Administration can certify, among other things, that payments “for acts
of terrorism” have been terminated. In an April 2021 press briefing, the State Department spokesperson
said that in May 2018 (during the Trump Administration) the department apprised Congress of the criteria
it uses to determine whether ESF directly benefits the PA, including:
the intended primary beneficiary or end user of the assistance; whether the PA is the direct recipient
of the assistance, of course; whether the assistance involves payments of Palestinian Authority
creditors; the extent of ownership or control the PA exerts over an entity or an individual that is the
primary beneficiary or end user of the assistance; and whether the assistance or, in some cases, the
services provided directly replace assistance or services that the PA would otherwise provide.
While Palestinian leaders have reportedly contemplated significantly altering domestic welfare payments,
near-term changes may be unlikely given leaders’ desire to court popular sentiment with PA legislative
and presidential elections scheduled, respectively, for May and July 2021.
After the Biden Administration announced its intention to resume aid, Senate Foreign Relations
Committee Ranking Member Jim Risch and House Foreign Affairs Committee Ranking Member Michael
McCaul (who issued a joint statement arguing that U.S. funding should be linked to PA concessions and
UNRWA reforms) reportedly placed an informal congressional hold on the ESF assistance. Also, 18
Senators sent a letter to Secretary Blinken urging him to pause the ESF until the Administration takes
some steps to justify it in light of the TFA’s general restriction on ESF directly benefitting the PA. The
letter also calls on the Administration to implement recommendations from a March 2021 Government
Accountability Office (GAO) report to ensure that aid disbursements to implementing organizations,
including sub-grantees, fully comply with anti-terrorism vetting requirements.
Congressional Research Service
4
Congressional holds on foreign aid are not legally binding on the executive branch. However, since the
late 1970s, successive Administrations have generally deferred to holds placed by pertinent committee
leaders as part of a consultative process. Prior to obligating funds subject to a hold, the executive branch
generally provides Congress with information or otherwise addresses committees’ concerns. Previous
congressional leaders have placed holds on U.S. aid for Palestinians, and in one instance the Obama
Administration overrode a hold some months after a committee chair had placed it.
Author Information
Jim Zanotti
Rhoda Margesson
Specialist in Middle Eastern Affairs
Specialist in International Humanitarian Policy
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 material from a third party, you may need to obtain the
permission of the copyright holder if you wish to copy or otherwise use copyrighted material.
IN11649 · VERSION 1 · NEW
INSIGHTi
U.S. Resumption of Foreign Aid to the
Palestinians
April 14, 2021
On April 7, 2021, Secretary of State Antony Blinken announced the Biden Administration’s plan to
resume various forms of aid to the Palestinians that had been discontinued under the Trump
Administration. Separately in March, the Biden Administration allocated $15 million in International
Disaster Assistance for Coronavirus Disease 2019 (COVID-19) response needs and emergency food
assistance in the West Bank and Gaza Strip.
Secretary Blinken’s statement and other documents (see textbox below) indicate that the Administration
plans to provide:
$75 million in bilateral Economic Support Fund (ESF) assistance from FY2020
appropriations for the West Bank and Gaza (see Figure 1);
$40 million in bilateral International Narcotics Control and Law Enforcement (INCLE)
assistance from FY2016 and FY2017 appropriations for Palestinian Authority (PA)
security forces and justice sector institutions in the West Bank;
$150 million in contributions for humanitarian response to the United Nations Relief and
Works Agency for Palestine Refugees in the Near East (UNRWA); and
$10 million in peacebuilding programs.
The Trump Administration had suspended contributions to UNRWA in August 2018, peacebuilding
programs involving Palestinians in September 2018, and ESF and INCLE aid in January 2019.
UNRWA provides education, health care, and other social services to more than five million registered
Palestinian refugees in the West Bank, Gaza, Lebanon, Jordan, and Syria. It is funded through voluntary
contributions from governments and other donors. Since the United States halted its voluntary
contributions, UNRWA has relied on other international donor support, and reduced its provision of
services to help manage expenses—sometimes delaying payment of salaries to its employees. Some
Members of Congress and Israeli officials want U.S. officials to pressure UNRWA to reform some of its
practices (as referenced below). While many supporters of the organization may agree with the need for
reform, they also argue that UNRWA provides critical humanitarian support to the Palestinian refugee
population.
Congressional Research Service
https://crsreports.congress.gov
IN11649
CRS INSIGHT
Prepared for Members and
Committees of Congress
Congressional Research Service
2
For background on U.S. aid to the Palestinians and other key issues affecting U.S.-Palestinian relations,
see CRS reports on the Palestinians, aid to the Palestinians, and amendments to the Anti-Terrorism Act.
Figure 1. U.S. Bilateral Aid to the Palestinians, FY2012-FY2021
Sources: U.S. State Department and U.S. Agency for International Development (USAID), adapted by CRS.
Notes: All amounts are approximate. Various amounts (including INCLE for FY2020 and all amounts for FY2021) have
been appropriated but not obligated. NADR = Nonproliferation, Antiterrorism, Demining, and Related Programs, OCO =
Overseas Contingency Operations.
Congressional Research Service
3
U.S. Rationale and Israeli-Palestinian Reactions
Secretary Blinken explained that resuming aid for the Palestinians would serve important U.S. interests
such as critical humanitarian assistance; economic development; and fostering Israeli-Palestinian
understanding, security coordination, and stability that can lead toward a negotiated two-state solution. He
also said that all assistance would be provided consistent with U.S. law, and encouraged other
international donors to increase their funding for similar programs. According to the World Bank, foreign
aid the PA received in 2020 was 20 percent lower than in 2019 and the lowest in decades. PA Prime
Minister Mohammad Shtayyeh welcomed the resumption of aid and called on the Administration to take
complementary diplomatic steps to address the aspirations and rights of the Palestinian people.
Israel’s Ambassador to the United States Gilad Erdan stated opposition to the renewal of funding for
UNRWA, and demanded that it be contingent on reforms. Secretary Blinken had asserted that the United
States needs “to be at the table [with UNRWA] to ensure that the reforms advance efficiencies and are in
accord with our interests and values.” In an interview a few days later, a senior U.S. official said that
UNRWA has made clear commitments to the Administration on transparency, accountability, and
neutrality that include “zero tolerance” for anti-Semitism.
Legislative Conditions and Congressional Holds and
Oversight
U.S. aid for Palestinians (including contributions to UNRWA) is subject to numerous conditions in annual
appropriations legislation (see Sections 7037-7040, 7041(k), and 7048(d) of P.L. 116-260) and elsewhere.
The Taylor Force Act (TFA, Div. S, Title X of P.L. 115-141), enacted in March 2018, is intended in part to
discourage Palestinian leaders from continuing domestic welfare payments to individuals or families that
are arguably “for acts of terrorism.” The TFA prohibits ESF (other than for a few specified purposes) that
directly benefits the PA until the Administration can certify, among other things, that payments “for acts
of terrorism” have been terminated. In an April 2021 press briefing, the State Department spokesperson
said that in May 2018 (during the Trump Administration) the department apprised Congress of the criteria
it uses to determine whether ESF directly benefits the PA, including:
the intended primary beneficiary or end user of the assistance; whether the PA is the direct recipient
of the assistance, of course; whether the assistance involves payments of Palestinian Authority
creditors; the extent of ownership or control the PA exerts over an entity or an individual that is the
primary beneficiary or end user of the assistance; and whether the assistance or, in some cases, the
services provided directly replace assistance or services that the PA would otherwise provide.
While Palestinian leaders have reportedly contemplated significantly altering domestic welfare payments,
near-term changes may be unlikely given leaders’ desire to court popular sentiment with PA legislative
and presidential elections scheduled, respectively, for May and July 2021.
After the Biden Administration announced its intention to resume aid, Senate Foreign Relations
Committee Ranking Member Jim Risch and House Foreign Affairs Committee Ranking Member Michael
McCaul (who issued a joint statement arguing that U.S. funding should be linked to PA concessions and
UNRWA reforms) reportedly placed an informal congressional hold on the ESF assistance. Also, 18
Senators sent a letter to Secretary Blinken urging him to pause the ESF until the Administration takes
some steps to justify it in light of the TFA’s general restriction on ESF directly benefitting the PA. The
letter also calls on the Administration to implement recommendations from a March 2021 Government
Accountability Office (GAO) report to ensure that aid disbursements to implementing organizations,
including sub-grantees, fully comply with anti-terrorism vetting requirements.
Congressional Research Service
4
Congressional holds on foreign aid are not legally binding on the executive branch. However, since the
late 1970s, successive Administrations have generally deferred to holds placed by pertinent committee
leaders as part of a consultative process. Prior to obligating funds subject to a hold, the executive branch
generally provides Congress with information or otherwise addresses committees’ concerns. Previous
congressional leaders have placed holds on U.S. aid for Palestinians, and in one instance the Obama
Administration overrode a hold some months after a committee chair had placed it.
Author Information
Jim Zanotti
Rhoda Margesson
Specialist in Middle Eastern Affairs
Specialist in International Humanitarian Policy
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 material from a third party, you may need to obtain the
permission of the copyright holder if you wish to copy or otherwise use copyrighted material.
IN11649 · VERSION 1 · NEW