Israel and Hamas Conflict In Brief: Overview,

U.S. Policy, and Options for Congress

Updated March 13, 2024

Congressional Research Service

https://crsreports.congress.gov
R47828
 SUMMARY

R47828
Israel and Hamas Conflict In Brief: Overview,
March 13, 2024
U.S. Policy, and Options for Congress Jim Zanotti
On October 7, 2023, the Palestinian Sunni Islamist group Hamas (a U.S.-designated foreign Specialist in Middle
terrorist organization, or FTO) led surprise attacks against Israel from the Gaza Strip. More than Eastern Affairs
1,200 Israelis and foreign nationals (including at least 35 U.S. citizens in Israel) were killed.
Hamas and other groups also seized 253 hostages on October 7. The stunning nature, scope, and Jeremy M. Sharp
lethality of the attacks and apparent intelligence failures have become a subject of analysis for Specialist in Middle
Israeli and U.S. officials. Iran reportedly provides material support to Hamas, and according to Eastern Affairs
U.S. officials may be complicit in a broad sense, but President Joe Biden said in October “there is
no evidence” that Iran helped plan the attack.

In response to the October 7 attacks, Israel declared war on Hamas and launched aerial
bombardment and ground operations in Gaza. As of March 12, 2024, more than 31,000 Palestinians in Gaza have been killed.
Israel and Hamas agreed to a multiday pause in fighting in late November. During the pause, 110 hostages held in Gaza and
250 Palestinian prisoners held by Israel were released. Hamas and others reportedly hold some 130 persons (with at least 30
probably dead), including about five living Americans.

The situation in Gaza, with an estimated 1.7 million Gazans displaced (out of a population of approximately 2.1 million
people) constitutes a humanitarian crisis. More than 60% of the housing units in Gaza have reportedly been destroyed or
damaged. Some food and other essential supplies have entered Gaza via Egypt and Israel during the conflict, but delays and
other obstacles to transporting aid through crossings and Israeli checkpoints and then safely delivering it—particularly in
northern Gaza—contributed to a late February U.N. assessment that one-quarter of Gaza’s people were “one step away from
famine.” Amid an international outcry, assistance deliveries have increased; they remain short of U.N.-assessed needs. In
early March, the United States and other countries began taking steps to provide additional humanitarian aid to Gaza via
airdrops and a planned maritime corridor, while Israel opened a new land crossing directly into northern Gaza. In response to
worsening food insecurity in Gaza, President Biden has ordered the U.S. military to construct a temporary port just offshore
from Gaza to facilitate commercial shipments of assistance from Cyprus. The Department of Defense estimates that the port
will be ready for use around 60 days from March 8.

Israeli Prime Minister Benjamin Netanyahu has called for “total victory,” the elimination of Hamas, and the return of all
hostages. The Israel Defense Forces (IDF) has reportedly gained control over key areas of northern Gaza, withdrawn some of
its forces, and shifted somewhat toward lower-intensity warfare while continuing operations farther south in an effort to
target Hamas and its top leaders. Hamas’s tunnels make urban warfare more challenging. Negotiations involving the United
States, Egypt, and Qatar have sought to resolve sticking points between Israel and Hamas on a potential multi-week cease-
fire and hostage-prisoner exchange deal. The Biden Administration has stated that Israel has the right to defend itself, and has
resisted calls from other international actors for an indefinite cease-fire. However, U.S. leaders have urged Israel to minimize
casualties and increase humanitarian assistance in Gaza. The Administration also has publicly stated concerns about Israel’s
plans to eventually move its forces into Gaza’s southernmost city of Rafah, urging Israel not to advance on the city without a
credible plan to protect the over 1 million civilians living there—most of whom earlier fled other conflict areas.

Differences between officials from the United States, Israel, and the West Bank-based Palestinian Authority (PA) on post-
conflict security and governance for Gaza may intensify the challenges involved. U.S. officials have expressed support for a
resumption of PA administration in Gaza after the PA undertakes certain reforms, as part of efforts to move toward a two-
state solution; PA and other Arab leaders insist on progress toward a Palestinian state for them to cooperate with this
transition. Prime Minister Netanyahu has made statements opposing a PA return to power in Gaza, and has insisted that Israel
should have full security control of “all territory west of the Jordan River,” asserting that his years-long stance has prevented
the establishment of a Palestinian state.

In an October 2023 supplemental budget request, President Biden asked Congress to appropriate more than $14 billion in
Israel-related funding, and more than $9 billion in global humanitarian assistance that could partly be allocated for Gaza,
Israel, and the surrounding region. Members of Congress have expressed differing views on the request and its various
elements, with some debate focused on what level of oversight or conditionality (if any) to place on security assistance to
Israel and humanitarian assistance to Gaza. The House and Senate have each passed bills and continue to deliberate on the
way forward.

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 Israel and Hamas Conflict In Brief: Overview, U.S. Policy, and Options for Congress

Contents
Conflict Overview ........................................................................................................................... 1
Initial Attacks, Ongoing Conflict, and Humanitarian Crisis ..................................................... 1
Political Developments and Implications .................................................................................. 4
U.S. Policy....................................................................................................................................... 5
Israeli Military Operations and Policies .................................................................................... 5
Humanitarian Assistance for Palestinians ................................................................................. 6
Potential Post-Conflict Scenarios .............................................................................................. 7
U.S. Expedited Arms Deliveries to Israel ................................................................................. 8
Supplemental Appropriations Legislation ................................................................................. 8
Possible Options for Congress....................................................................................................... 10
Conditioning Aid to Israel ....................................................................................................... 10
Congressional Review of Arms Sales to Israel ........................................................................ 11
Additional Humanitarian Assistance to Gaza and UNRWA .................................................... 11
Monitoring U.S. Security Assistance for Human Rights Purposes ......................................... 12

Figures
Figure 1. Israel and Gaza: Conflict Map ......................................................................................... 2

Contacts
Author Information........................................................................................................................ 13

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 Israel and Hamas Conflict In Brief: Overview, U.S. Policy, and Options for Congress

Conflict Overview
Initial Attacks, Ongoing Conflict, and Humanitarian Crisis
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 against Israel
(see Figure 1).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 a Jewish high holiday. The
October 7 attacks’ scope and lethality had no precedent in the 16 years since Hamas seized
control of Gaza. The nature of the violence stunned Israelis and many others, and includes
allegations of sexual violence.2
The apparent intelligence and operational failures in preventing the assault or limiting its impact
have become a subject of 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.3
Whether or not Iran had a role in the attack remains a question. Iran reportedly provides material
support to Hamas, and according to U.S. officials may be complicit in a broad sense, but
President Joe Biden said in October “there is no evidence” that Iran helped plan the attack.4
In response to the attacks, Israel’s cabinet declared war on Hamas, and Prime Minister Benjamin
Netanyahu formed an emergency unity government and “war management cabinet” with key
opposition figure Benny Gantz and Defense Minister Yoav Gallant. Israel also initially halted
supplies from Israeli territory to Gaza of electricity, food, and fuel. Since the outbreak of conflict,
Israel and Egypt—via consultations with U.S. and U.N. officials—have coordinated the use of
Egypt’s Rafah crossing with Gaza, and later also Israel’s Kerem Shalom crossing, to bring some
international aid into the territory in a way that seeks to prevent diversion by Hamas.
Israel’s military mobilized hundreds of thousands of troops, has bombarded targets in Gaza from
the air, and undertaken ground operations as well. About 1.7 million of Gaza’s roughly 2.1
million people have been displaced from their homes (some multiple times) and face a dire
“humanitarian situation” (discussed below).5 Reportedly, over 60% of Gaza’s housing units have
been destroyed or damaged.6 At various points in the conflict, Hamas and other Gaza-based
militants have fired rockets indiscriminately into Israel. As of mid-March, the Israel Defense

1 For historical context on the broader Israeli-Palestinian conflict and factors contributing to the current round of
violence, see CRS Report RL34074, The Palestinians: Background and U.S. Relations, by Jim Zanotti, and CRS
Report R44245, Israel: Major Issues and U.S. Relations, by Jim Zanotti.
2 UN News, “‘Clear and convincing information’ that hostages held in Gaza subjected to sexual violence, says UN

Special Representative,” March 4, 2024.

3 Ronen Bergman and Adam Goldman, “Israel Knew Hamas’s Attack Plan More Than a Year Ago,” New York Times,

November 30, 2023; Center for Strategic and International Studies, “Experts React: Assessing the Israeli Intelligence
and Potential Policy Failure,” October 25, 2023.
4 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 In Focus IF12549, Hamas: Background, Current Status, and U.S. Policy, by Jim Zanotti.
5 Office of the Director of National Intelligence, “Annual Threat Assessment of the U.S. Intelligence Community,”

February 5, 2024.
6 United Nations Office for the Coordination of Humanitarian Affairs (UN-OCHA), “Hostilities in the Gaza Strip and

Israel - reported impact | Day 157,” March 12, 2024. Palestinian housing damage figures come from the Hamas-
controlled government media office in Gaza.

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 Israel and Hamas Conflict In Brief: Overview, U.S. Policy, and Options for Congress

Forces (IDF) had consolidated ground operations in parts of northern Gaza, while it continues
operations farther south; Hamas and other militias have continued mortar and other attacks.
Since January, Israel has withdrawn tens of thousands of troops and shifted somewhat toward
lower-intensity warfare. Israeli leaders have said they eventually plan to conduct a major ground
operation to secure Gaza’s southernmost city of Rafah to corner Hamas’s leaders and intact
fighting units, triggering major U.S. and international concern about the safety and welfare of the
over 1 million civilians there—most of whom earlier fled other conflict areas.

Figure 1. Israel and Gaza: Conflict Map

Reportedly as of March 12, 2024, more than 1,200 Israelis and foreign nationals (including at
least 35 U.S. citizens in Israel) were killed as a result of the October 7 attacks, more than 31,000
Palestinians in Gaza have been killed, and more than 245 Israeli soldiers died since Israel’s
military began ground operations in Gaza.7 While various estimates indicate that between 6,000
and 13,000 of some 30,000 Hamas fighters have been killed, Hamas’s unconventional tactics and
tunnel network have helped its resilience and allowed its most senior leaders to elude Israel.8
Hamas and other groups reportedly seized 253 Israeli and foreign national hostages on October 7,
including some Americans.9 Recovering hostages has been a major Israeli and U.S. concern.

7 UN-OCHA, “Hostilities in the Gaza Strip and Israel | Flash Update #137,” March 12, 2024; Department of State,
“Secretary Antony J. Blinken at a Press Availability,” Tel Aviv, Israel, November 3, 2023. Palestinian casualty figures
come from the Hamas-controlled health ministry in Gaza.
8 Marcus Walker et al., “Why Hamas Thinks It Still Could Win the War,” Wall Street Journal, March 1, 2024; “Gaza

airstrike takes out senior Hamas recruiter as IDF raises troop death toll to 246,” Times of Israel, March 4, 2024.
9 “Israel says 253 people taken hostage on October 7, announcing firm number for the first time,” CNN, January 17,

2024.

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 Israel and Hamas Conflict In Brief: Overview, U.S. Policy, and Options for Congress

Qatar, Egypt, and the United States facilitated a multiday pause in fighting between Israel and
Hamas in the final week of November. During the pause, 110 hostages held in Gaza (including
two U.S.-Israeli dual citizens) and 250 Palestinian prisoners held by Israel were released.10
Hamas and other groups reportedly still hold around 130 persons in Gaza (including about five
living Americans), with reports suggesting that at least 30 of these hostages are probably dead.11
Throughout the humanitarian crisis, U.N. and World Health Organization (WHO) officials have
raised many public health concerns associated with overcrowding; acute water, food, and fuel
shortages; poor sanitation; and challenges to hospitals’ safety and functionality.12
Observers debate how to apportion blame between Israel and Hamas for dangers to civilians and
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.13

Worsening of Humanitarian Crisis and U.S./International Response

During February 2024, developments indicated that the humanitarian crisis in Gaza was intensifying, including
• Fewer truckloads coming into Gaza. The daily average of trucks bringing in food and other humanitarian
assistance prior to October 7 had been 500. According to U.N. figures, it was around 150 in January but
dipped to under 50 during the second week of February. The average has since returned to slightly above the
January levels.14 Possible contributing factors for the drop included various supply chain delays described by
U.N. officials (including delays related to security and transport problems within Gaza, as discussed below), as
well as some Israeli political protestors seeking to block the convoys.15 Facing charges from U.N. officials that it
was not adequately facilitating aid delivery, Israel denied being responsible for bottlenecks at crossings16 and
blamed humanitarian organizations for supply-laden trucks remaining idle inside Gaza, while the U.N. asserted
that safe access to the trucks was sometimes lacking.17
• Breakdown of security and safe transport within Gaza. Major challenges emerged in transporting
assistance to needy populations within Gaza. Gaza-based police largely stopped escorting convoys after
multiple fatal attacks by Israeli forces against some of the police; Israeli officials claim that some of the police
have sought to siphon goods to Hamas.18 Without police escorts, hungry crowds and armed gangs have
reportedly looted some aid convoys before they could reach their planned delivery points.19 During one such

10 Erin Banco, “Gaza hostage talks hit roadblock, raising fears of prolonged captivity” Politico, December 7, 2023.
Four hostages (including two Americans) were released before the late November pause.
11 Ronen Bergman and Patrick Kingsley, “Israel Reveals Hostage Toll: 30 Are Dead,” New York Times, February 7,

2024; Monica Pronczuk et al., “Aid Ship Heads to Gaza as Hezbollah Takes Aim at Northern Israel,” New York Times,
March 13, 2024.
12 UN-OCHA, “Hostilities in the Gaza Strip and Israel | Flash Update #137,” March 12, 2024; WHO, “oPT Emergency

Situation Update,” Issue 24, March 3, 2024.

13 See, for example, Michael Crowley and Edward Wong, “Under Scrutiny Over Gaza, Israel Points to Civilian Toll of

U.S. Wars,” New York Times, November 7, 2023; Jason Willick, “We can’t ignore the truth that Hamas uses human
shields,” Washington Post, November 14, 2023; Avner Gvaryahu, “The Myth of Israel’s ‘Moral Army,’” Foreign
Affairs, March 4, 2024.
14 UN-OCHA, “Hostilities in the Gaza Strip and Israel - reported impact | Day 157,” March 12, 2024.

15 UN-OCHA, “Humanitarian Access Snapshot - Gaza Strip | End-February 2024.”

16 “Human Rights Watch says Israel is violating order from top U.N. court by blocking aid to Gazans,” Associated

Press, February 26, 2024; Dion Nissenbaum et al., “Security Void Takes Toll on Gaza Aid Effort,” Wall Street Journal,
February 22, 2024.
17 “Why isn’t desperately needed aid reaching Palestinians in Gaza?,” Associated Press, February 21, 2024.

18 David S. Cloud and Carrie Keller-Lynn, “As Israel Drives Out Hamas, Lawlessness Hampers Gaza Aid Efforts,”

Wall Street Journal, February 27, 2024.

19 Barak Ravid and Laurin-Whitney Gottbrath, “U.S. officials warn: Gaza ‘is turning into Mogadishu,’” Axios,

February 24, 2024.

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incident on February 29, more than 100 people were killed and 700 injured by some combination—subject to
conflicting accounts—of gunfire from Israeli forces, stampeding, and vehicular trauma.20 Additionally, Israeli
forces have reportedly limited convoys’ access to northern Gaza during the conflict, citing security reasons.21
In late February, a U.N. official stated that one-quarter of Gaza’s population was “one step away from famine.”22
Reports indicate that some 300,000 in northern Gaza are particularly at risk23—with multiple cases of young
children dead or near death from malnutrition.24
In early March, the United States and some other countries began airdropping food and supplies to people in
Gaza, while acknowledging that the airdrops—given their relative inefficiency—could only supplement rather than
substitute for ground-level aid deliveries.25 Additionally, Israel has prepared a new land crossing to allow aid to
flow directly into northern Gaza.26 According to senior U.S. officials, Israel also plans to surge more trucks coming
from Jordan through the Kerem Shalom crossing, and to coordinate with the United States, the Republic of
Cyprus, and other countries to inspect assistance that will be prepared in coming weeks for maritime shipment
from Cyprus directly to Gaza.27 Reportedly, endeavors funded by the European Union and United Arab Emirates
aim to send amphibious supply vessels from Cyprus to Gaza in coming days.28 For more information on U.S. policy
on this issue, including plans to facilitate maritime shipments, as announced in President Biden’s State of the Union
address, see “Humanitarian Assistance for Palestinians” below.

Additionally, since the October 7 attacks, significant U.S. and international attention has focused
on the extent to which conflict might expand in other areas of the region, including the West
Bank, Lebanon, Syria, Iraq, and Yemen/Red Sea.29

Political Developments and Implications

Possible cease-fire and/or continuation of conflict. Negotiations involving the United States,
Egypt, and Qatar have sought to persuade Israel and Hamas to accept a proposed hostage-prisoner
exchange that could pause the fighting for several weeks or more.30 A temporary cease-fire deal
did not materialize before the start of the Muslim holy month of Ramadan (March 10-April 9),
leading to speculation about a possible spike in regional tensions.31
While the return of some hostages to Israel could alleviate domestic pressure on the Netanyahu
government, it may face difficult debates about whether and how continued or resumed fighting

20 Raja Abdulrahim et al., “Wait for Food Ended in Chaos, Panic and Death,” New York Times, March 2, 2024.
21 Claire Parker, “How Israel’s restrictions on aid put Gaza on the brink of famine,” Washington Post, March 3, 2024.
22 United Nations Security Council Meeting, “Famine Imminent in Gaza, Humanitarian Officials Tell Security Council,

Calling for Immediate Ceasefire,” SC/15604, February 27, 2024.

23 “Gaza cease-fire talks fail to achieve a breakthrough with Ramadan just days away, Egypt says,” Associated Press,

March 6, 2024.
24 UN-OCHA, “Hostilities in the Gaza Strip and Israel - reported impact | Day 157,” March 12, 2024.

25 “How US airdrops of humanitarian aid into Gaza can help and why the operation is complicated,” Associated Press,

March 2, 2024.
26 “UN uses new land route from Israel to reach northern Gaza,” Reuters, March 12, 2024.

27 White House, “Background Press Call on Humanitarian Aid for Gaza Ahead of the State of the Union,” March 7,

2024.
28 Hiba Yazbek et al., “U.S. and E.U. Plan to Bring More Aid to Gaza by Sea,” New York Times, March 9, 2024; Sune

Engel Rasmussen et al., “Sea Plan Tests U.S., Allies Ability to Help,” Wall Street Journal, March 9, 2024.
29 CRS In Focus IF12587, Iran-Supported Groups in the Middle East and U.S. Policy, by Clayton Thomas; CRS

Insight IN12301, Houthi Attacks in the Red Sea: Issues for Congress, by Christopher M. Blanchard; CRS Insight
IN12309, Iraq: Attacks and U.S. Strikes Reopen Discussion of U.S. Military Presence, by Christopher M. Blanchard.
30 Barak Ravid, “Scoop: Hamas’ top priority in hostage deal is Palestinians’ return to northern Gaza,” Axios, March 4,

2024.
31 Rory Jones and Dov Lieber, “Hamas Pins Survival Hopes on Ramadan,” Wall Street Journal, March 11, 2024;

“Hamas envoys leave Cairo, with deadlocked hostage deal talks to resume next week,” Times of Israel, March 7, 2024.

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might help it achieve its declared war aims of recovering hostages and destroying Hamas’s
military and governing capacity in Gaza. Prime Minister Netanyahu stated on March 10 that
Israel has destroyed “three-quarters of Hamas’s fighting terrorism battalions” and that additional
warfare would not “take more than two months.”32
Arab states. Popular sentiment has placed pressure on Arab governments to oppose Israeli
actions in Gaza,33 even though many Arab leaders might welcome an end to Hamas rule there.34
Together with other members of the Organization of Islamic Cooperation, Arab countries have
called for an end to “Israeli aggression against the Gaza strip,” more humanitarian aid, and a
freeze on international arms exports to Israel.35
International organizations. On November 15, the U.N. Security Council adopted Resolution
2712, which called for “urgent and extended humanitarian pauses” and the “immediate and
unconditional release of all hostages held by Hamas and other groups,” and urged all parties to
refrain from depriving civilians in Gaza of “basic services and humanitarian assistance
indispensable to their survival.” On December 22, the Security Council adopted Resolution 2720,
which called for “urgent steps to immediately allow safe, unhindered, and expanded humanitarian
access and to create the conditions for a sustainable cessation of hostilities.” The United States
abstained from both resolutions. On January 26, the International Court of Justice (ICJ) found that
it had jurisdiction over allegations by South Africa that Israel may have committed acts of
genocide, and ordered Israel (among other provisional measures) to prevent the commission of or
incitement to genocide and to “enable the provision of urgently needed basic services and
humanitarian assistance” to Palestinians in Gaza.36

U.S. Policy
Israeli Military Operations and Policies
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 opposed calls for an
indefinite cease-fire, citing Israel’s right to defend itself.37 Nevertheless, U.S. officials have
voiced support for temporary pauses and additional hostage-prisoner exchanges.
While President Biden appears to broadly support Israel’s stated objectives of ending Hamas rule
in Gaza, he and Administration officials have sought to convince their Israeli counterparts to take
steps to minimize casualties, reduce the intensity of their operations, step up humanitarian aid,
and avoid “reoccupation.”38 The Administration’s public criticism of Israel appears to have

32 Paul Ronzheimer and Carlo Martuscelli, “Netanyahu vows to defy Biden’s ‘red line’ on Rafah,” Politico (Europe),
March 10, 2024.
33 Cathrin Schaer, “Gaza conflict: Arab attitudes are hardening against Israel,” Deutsche Welle, December 20, 2023.

34 Robert Satloff, “From War to Peace in the Middle East? Observations from a Regional Tour,” Washington Institute

for Near East Policy, February 23, 2024.

35 “Arab-Islamic summit adopts resolution on Israeli aggression against the Palestinian people,” Arab News, November

12, 2023.
36 ICJ Order, Application of the Convention on the Prevention and Punishment of the Crime of Genocide in the Gaza

Strip (South Africa v. Israel), January 26, 2024.

37 Joe Biden, “The U.S. won’t back down from the challenge of Putin and Hamas,” Washington Post, November 18,

2023.
38 Ibid.; White House, “Remarks by President Biden at a Hanukkah Holiday Reception,” December 11, 2023; White

House, “Remarks by President Biden at a Campaign Reception,” December 12, 2023. A National Security Council
(continued...)

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sharpened as the conflict has continued, and it has pressed Israel not to proceed with major
military operations in Rafah without clearly planning for the safety and welfare of civilians.39
Asked on March 9 whether an Israeli invasion of Rafah would be a red line, Biden said, “It is a
red line but I’m never going to leave Israel. The defense of Israel is still critical. So there’s no red
line (in which) I’m going to cut off all weapons so they don’t have the Iron Dome to protect
them.”40

U.S. Measures Regarding the West Bank

While Gaza has been the primary center of attention, smaller-scale violence has continued in the West Bank
involving Palestinian militants, Israeli forces, and Israeli settlers. U.S. officials and lawmakers have signaled concerns
related to Israeli actions in the West Bank that may endanger Palestinians’ lives or property.41 On February 1,
President Biden issued Executive Order 14115, authorizing “financial sanctions against those directing or
participating in certain actions, including acts or threats of violence against civilians, intimidating civilians to cause
them to leave their homes, destroying or seizing property, or engaging in terrorist activity in the West Bank”; 42
and the Administration imposed sanctions (including visa bans) on four individuals.43 In March, one journalist
wrote that language in E.O. 14115 authorizing sanctions against government officials who undermine West Bank
stability by failing to enforce policies could be used as leverage to distance Prime Minister Netanyahu from his
ultra-nationalist coalition partners.44

Humanitarian Assistance for Palestinians

According to the U.S. Agency for International Development (USAID), for FY2024, the United
States has announced more than $180 million in humanitarian assistance for emergency relief
efforts in the region since October 7.45 USAID’s Bureau of Humanitarian Assistance had
committed $96.5 million in assistance for Gaza and the West Bank; the Department of State’s
Bureau of Population, Refugees, and Migration had committed $51 million for Gaza and the West
Bank via the United Nations Relief and Works Agency for Palestine Refugees in the Near East
(UNRWA), and $18.2 million for the region via another implementing partner.46 The Department
of State has announced a temporary pause in U.S. funding to UNRWA, pending further review of
allegations that some UNRWA employees were involved in the October 7 attacks.47

spokesperson has said a transitional period is plausible where “in the immediate aftermath, Israeli forces would be
present for a specific period of time and for tactical security purposes.” White House, “Press Gaggle with NSC
Coordinator for Strategic Communications John Kirby,” November 9, 2023.
39 White House, “Readout of Vice President Harris’s Meeting with Member of Israeli War Cabinet Gantz,” March 4,

2024.
40 “Biden makes contradictory comments on Gaza ‘red line’ in MSNBC interview,” Reuters, March 9, 2024.

41 Letter from 12 Senators to President Biden dated December 20, 2023, at https://www.heinrich.senate.gov/imo/media/

doc/letter_to_potus_west_bank.pdf; Department of State, “Announcement of Visa Restriction Policy to Promote Peace,

Security, and Stability in the West Bank,” December 5, 2023.
42 “Executive Order 14115 of February 1, 2024: Imposing Certain Sanctions on Persons Undermining Peace, Security,

and Stability in the West Bank,” Federal Register, vol. 89, no. 24, February 5, 2024, pp. 7605-7608.
43 Department of State, “Announcement of Further Measures to Promote Peace, Security, and Stability in the West

Bank,” February 1, 2024.

44 Yair Rosenberg, “Biden’s New Doomsday Option Against Israeli Settlers,” The Atlantic, March 6, 2024.

45 USAID, Levant Complex Emergency Fact Sheet #4, March 8, 2024.

46 Ibid.

47 Department of State Press Briefing, January 30, 2024. According to this source, total U.S. funding for UNRWA

(which provides services to refugees in Jordan, Lebanon, and Syria, in addition to those in Gaza and the West Bank) in
FY2024 has been $121 million.

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U.S. Military Involvement in Airdrops and Facilitating Maritime Corridor to Gaza

As the humanitarian situation in Gaza has deteriorated, some lawmakers have called on the Administration to
directly deliver aid to Gaza, in coordination with Israel.48 In early March, U.S. Central Command—in concert with
Jordan—began a series of airdrops of food into Gaza as part of a broader U.S. government policy to work with
allies and partners to facilitate the expansion of humanitarian assistance to Gaza by land, air, and sea.49 Casualties
have reportedly resulted from at least one airdrop; U.S. officials have said U.S. airdrops were not to blame. 50
In his March 7 State of the Union address, President Biden announced that the U.S. military would lead an
emergency mission to establish a port on the Gaza coast that can receive large ships carrying food, water,
medicine, and temporary shelters.51 Administration officials said that the mission will be “conducted by the
[Army’s] 7th Transportation Brigade from Joint Base Langley-Eustis, Virginia, and other forces, [and] will deploy
DOD’s Joint Logistics Over-the-Shore capability, or JLOTS, with a goal of beginning delivery operations in
approximately 60 days [emphasis added].”52 Any logistics ships will reportedly need armed escorts when in range of
the coast.53 Some have described the plan as “fraught with uncertainty” given security risks, delivery issues, and
other obstacles.54 According to U.S. officials, the plan involves the following:
• Offshore construction of a temporary pier and causeway with capacity to eventually deliver more
than 2 million meals per day (according to one journalist, “conservatively Gaza needs 6.6 million meals a
day”), without placing any of the over 1,000 U.S. military personnel involved in the operation onshore in
Gaza.55
• Logistical and security coordination that includes Israeli inspection of aid in Cyprus, commercial shipping
to Gaza enabled by a U.S. military-led coalition, and distribution of assistance within Gaza by the U.N. and
other organizations,56 with Israel providing security.57

Potential Post-Conflict Scenarios

The Administration has reportedly been conferring with Israeli, PA, and Arab state officials on
security and governance for Gaza after conflict ends or abates. Tensions between supporting
domestically legitimate Palestinian self-rule and safeguarding Israel’s capacity to monitor and
stifle potential threats may intensify the challenges involved.
Biden Administration officials have said that a revamped PA should ultimately take responsibility
for post-conflict governance in Gaza, while diplomatic efforts continue toward an eventual two-
state solution.58 PA President Mahmoud Abbas has indicated that the PA would only govern
Gaza—which Hamas forcibly seized from the PA in 2007—in the context of significant progress
toward establishing a Palestinian state in the West Bank and Gaza that has a capital in East

48 Sen. Jeff Merkley, “The U.S. Should Immediately Mobilize ‘Operation Gaza Relief,’” February 16, 2024; Heather
Mongilio, “Pentagon Has No Plans to Send U.S. Navy Hospital Ship to Middle East,” USNI News, February 29, 2024.
49 White House, “Background Press Call on the Humanitarian Assistance Airdrop into Gaza,” March 2, 2024.

50 “Israel-Hamas war: U.S. official rejects claims that U.S. airdrop killed civilians,” NBC News, March 8, 2024.

51 White House, “Remarks by President Biden in State of the Union Address,” March 7, 2024.

52 DOD News, “DOD to Construct Pier to Deliver Humanitarian Aid to Gaza,” March 8, 2024.

53 Helene Cooper and Eric Schmitt, “U.S. Widens Aid Effort for the People in Gaza, Even as It Backs Israel,” Wall

Street Journal, March 11, 2024.

54 Rasmussen et al., “Sea Plan Tests U.S., Allies Ability to Help.”

55 Department of Defense, “Pentagon Press Secretary Air Force Maj. Gen. Pat Ryder Holds a Press Briefing,” March 8,

2024.
56 White House, “Background Press Call on Humanitarian Aid for Gaza Ahead of the State of the Union,” March 7,

2024.
57 White House, “Remarks by President Biden Before Air Force One Departure | Joint Base Andrews, MD,” March 8,

2024.
58 Biden, “The U.S. won’t back down from the challenge of Putin and Hamas.”

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Jerusalem.59 President Biden has said that the PA “must prepare to build a state that accepts peace,
[and] does not harbor terrorist groups like Hamas and [Palestine] Islamic Jihad.”60 U.S.
Ambassador to Israel Jack Lew has signaled that “an over the horizon process that includes a
vision for a demilitarized Palestinian state” would be an important factor in persuading Arab
countries to consider improving relations with Israel, supporting PA reform, and backing Gaza’s
reconstruction.61 U.S. and PA officials have reportedly discussed possible mechanisms for
improving PA leadership and domestic legitimacy. Some leading Palestinian figures argue that the
PA cannot be strengthened via reforms without Israel granting it greater control over its revenues
and security.62 Prospects for any Hamas role in post-conflict PA governance, which some leading
PA figures appear to be discussing, would likely encounter U.S. and Israeli opposition.63
Prime Minister Netanyahu has insisted that only Israel can demilitarize Gaza, and has argued that
the PA should not rule Gaza because he alleges it provides rhetorical and financial support for
terrorism.64 In January, after President Biden reiterated his commitment to an eventual two-state
solution, Netanyahu has insisted that Israel should have full security control of “all territory west
of the Jordan River,” and said that his years-long stance has prevented the establishment of a
Palestinian state.65 Netanyahu may calculate that opposition to a two-state solution might rally
domestic support for him and the ultra-nationalist figures in his coalition. The significant dip in
Netanyahu’s public approval rating since the October 7 attack could lead to his government’s
collapse and new Knesset elections sometime in 2024.66

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. Most U.S. arms deliveries have been for regular munitions (e.g., 155
mm artillery shells or tank rounds) and precision-guided munitions. According to one February
account in the Wall Street Journal, the Administration is currently considering new deliveries of
over a thousand each of MK-82 bombs, KMU-572 Joint Direct Attack Munitions kits, and FMU-
139 bomb fuses, while, since the October 7, 2023 Hamas-led attacks, the United States has
provided Israel “roughly 21,000 precision-guided munitions” and “Israel has used roughly half.”67

Supplemental Appropriations 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 others, and to address other

59 “Receiving US State Secretary, President Abbas demands immediate end to Israel’s aggression on Gaza,” WAFA
News Agency, November 5, 2023.
60 White House, “Remarks by President Biden and His Majesty King Abdullah II of Jordan After a Meeting,” February

12, 2024.
61 U.S. Embassy in Israel, “Ambassador Lew’s Remarks to the National Israel Mission of the Conference of

Presidents,” February 18, 2024.

62 “US wants shakeup of Palestinian Authority to run Gaza after Hamas,” Reuters, December 16, 2023.

63 Benoit Faucon et al., “Hamas Starts Planning for End of Gaza War,” Wall Street Journal, December 20, 2023.

64 Benjamin Netanyahu, “Israel’s Three Prerequisites for Peace,” Wall Street Journal, December 26, 2023.

65 Israel Prime Minister’s Office, “Statement by PM Netanyahu,” January 21, 2024.

66 See, for example, James Shotter and Neri Zilber, “‘Benjamin Netanyahu—yes or no?’: the looming choice for Israeli

voters,” Financial Times, February 1, 2024.

67 Nancy A. Youssef, Jared Malsin, “U.S. Is Preparing to Send Bombs, Other Arms to Israel,” Wall Street Journal,

February 17, 2024.

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domestic and global issues.68 In sum, the President seeks over $14 billion in Israel-related
funding. In the nearly five months since then, the House and Senate have considered respective
versions of supplemental appropriations legislation addressing Israel, Gaza, Ukraine, Taiwan, and
domestic matters such as U.S. border and tax policies.
To date, there have been three votes on supplemental appropriations bills, all of which would
have come close to matching the President’s Israel-related request but differed in other respects.
On November 2, 2023, the House passed (by a vote of 226-196) H.R. 6126, the Israel Security
Supplemental Appropriations Act, 2024. That bill would provide $14.3 billion in Israel-related
supplemental appropriations but would offset the proposed additional appropriations for Israel by
rescinding $14.3 billion for the Internal Revenue Service. On February 6, 2024, the House failed
to pass (by a vote of 180-250)69 H.R. 7217, the Israel Security Supplemental Appropriations Act,
2024. On February 13, 2024, the Senate passed, via a substitute amendment (by a vote of 70-29),
H.R. 815, a bill that would provide $14.1 billion in Israel-related supplemental appropriations,
including
• $4.4 billion for the Department of Defense (DOD) response to the Israel-Hamas
war in Gaza and related expenses;
• $801.4 million for U.S. Army ammunition procurement to respond to the
situation in Israel;
• $4 billion in DOD funding for Iron Dome and David’s Sling defense systems;
• $3.5 billion in Foreign Military Financing (FMF), $769.3 million of which is
specified for Off-Shore Procurement (OSP), though that figure “may be
exceeded, if agreed by the United States and Israel, following consultation with
the Committees on Appropriations.” The Senate bill also would authorize the
Secretary of State to waive congressional notification on the FMF funds provided
in the bill “if the Secretary of State determines that to do so is in the national
security interest of the United States”;
• $1.2 billion in DOD funding for the Iron Beam laser-based defense system being
developed by Israel; and
• $100 million to the Department of State for Worldwide Security Protection and
the response to the situation in Israel.
In addition, H.R. 815 also includes proposed provisions that 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).
In addition to providing Israel-related funding, H.R. 815 would match the President’s request by
appropriating over $9 billion 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). H.R. 815 includes global humanitarian assistance
funds, some of which may be used to support the Palestinians, but the bill would explicitly
prohibit funds (notwithstanding any other provision of law) appropriated in the bill (and prior

68 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.
69 H.R. 7217 had been considered under Suspension of the Rules, which requires approval by at least two-thirds of

voting members.

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acts) for contributions to UNRWA. The bill also would require the Secretary of State to certify
and report to Congress on U.S. oversight policies and procedures for monitoring assistance in
Gaza. H.R. 815 also would provide $2.44 billion to replace combat expenditures for weapons in
the Red Sea and CENTCOM’s other areas of operations.
As of mid-March 2024, some House lawmakers are considering using a Discharge Petition (218
signatures needed) to bring to the House floor H.R. 7372, the Defending Borders, Defending
Democracies Act, a bill that would provide amounts related to Israel, Ukraine, and Taiwan. It
includes $10.7 billion in Israel-related appropriations (though no FMF). Unlike the Senate-passed
H.R. 815, H.R. 7372 does not include global humanitarian funding. Some House lawmakers also
are considering a second discharge petition to force a floor vote on H.R. 815.70

Possible Options for Congress

Conditioning Aid to Israel
Lawmakers may consider whether to increase, maintain, decrease, or condition existing U.S.
support for Israel. As humanitarian conditions in northern Gaza have reached critical levels, some
lawmakers have called on President Biden to enforce Section 620I of the Foreign Assistance Act
of 1961 (FAA), which prohibits providing certain assistance to foreign countries that block or
impede delivery of U.S. humanitarian assistance.71 Other lawmakers have warned against an
Israeli military operation in Rafah and argued that U.S. assistance should not support action that
runs counter to National Security Memorandum-20 (NSM-20) on Safeguards and Accountability
with Respect to Transferred Defense Articles and Defense Services (described below).72 Other
Members criticized NSM-20 and the February Executive Order on the West Bank (E.O. 14115),
and have opposed tightening conditions on U.S. military aid to Israel.73
To date, the White House has continued to indicate its overall public support for Israel’s military
campaign in Gaza.74 When asked whether the Administration intends to restrict military aid to
Israel per Section 620I of the FAA, State Department Spokesperson Matthew Miller said, “That is
not a judgment that we have made.”75 According to one report, President Biden has “privately
expressed skepticism to some Democrats that withholding weaponry to Israel would be effective,
arguing that while Jerusalem would like more security aid, it does not currently need it.”76
However, another report suggests that President Biden is considering conditioning military aid if
Israel were to conduct large scale operations in Rafah.77

70 Stephen Groves, “House Democrats and centrist Republicans launch separate efforts to force a vote on Ukraine aid,”
Associated Press, March 12, 2024.
71 Sen. Bernie Sanders, “Sanders, Van Hollen, Merkley, and Five Colleagues Urge President Biden to Enforce U.S.

Law with Netanyahu,” March 12, 2024.

72 Rep. Joaquin Castro, “Reps. Castro, Raskin, and Schakowsky Lead 30+ House Democrats in Urgent Appeal to

Prevent Israeli Ground Invasion of Rafah,” March 6, 2024; “US Democrats question arms to Israel over Gaza
concerns,” Reuters, March 6, 2024.
73 Andrew Solender, “Israel aid fight in Congress reignited by threat of Rafah invasion,” Axios, March 13, 2024; Sen.

Rick Scott, “Sens. Rick Scott, Tom Cotton & Colleagues to Biden: Rescind Directives Intended to Undermine Israelis,”
February 29, 2024.
74 Department of State Press Briefing, March 4, 2024.

75 Department of State Press Briefing, March 11, 2024.

76 “As pressure mounts, Biden reportedly remains unwilling to condition aid to Israel,” Times of Israel, March 1, 2024.

77 Alexander Ward and Jonathan Lemire, “If Israel invades Rafah, Biden will consider conditioning military aid to

Israel,” Politico, March 11, 2024.

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To date, President Biden has taken other steps that the Administration has identified as aimed at
promoting adherence to international law and accountability for U.S. arms deliveries to Israel. On
February 8, President Biden issued NSM-20, a new National Security Memorandum. Among
other things, the directive requires that prior to the transfer of any U.S. defense article, the
Departments of State and Defense must obtain written assurances from the recipient country that
it will use any such defense articles in accordance with international humanitarian law and, as
applicable, other international law.78 According to one report, the White House has tasked the
Department of State with providing it a list of pending defense export licenses for Israel to help
U.S. officials prioritize deliveries and consider if there are issues which require “deconfliction.”79

Congressional Review of Arms Sales to Israel

As the Biden Administration has expedited arms deliveries to Israel, some lawmakers are
concerned that U.S. officials are either taking steps to bypass congressional review or have not
provided Congress a full accounting of U.S. military support to Israel.80 Since the October 7
attacks, there have been only two FMS notified to Congress (both were under emergency
circumstances and therefore bypassed congressional review).81 According to one report, other
FMS cases for Israel were either previously approved for delivery and accelerated, taken from the
U.S. stockpile in Israel (known as War Reserve Stock for Allies-Israel or WRSA-I), and/or were
not notified to Congress because their dollar value fell below the prior notice threshold82 for
transfers to Israel.83 Department of State officials have been cited as saying that there are
currently 600 active cases of potential military transfer or sales—with a total value of more than
$23 billion—between the United States and Israel, and that U.S. officials have “followed the
procedures Congress itself has specified to keep members well-informed and regularly brief
members even when formal notification is not a legal requirement.”84

Additional Humanitarian Assistance to Gaza and UNRWA

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 and Israel from
the MRA and IDA accounts. In February, the Administration said it expected $1.4 billion of this
amount to be planned for Gaza.85 Members of Congress are debating the scope and conditions
under which humanitarian assistance should be appropriated, including with respect to UNRWA

78 White House, “National Security Memorandum on Safeguards and Accountability with Respect to Transferred
Defense Articles and Defense Services,” February 8, 2024.
79 Barak Ravid, “Scoop: White House asks State Dept., Pentagon for Israel-bound weapons list,” Axios, March 7, 2024.

80 Sen. Tim Kaine, “Kaine to File Amendment to Maintain Congressional Oversight of Foreign Military Assistance,”

January 9, 2024.
81 Defense Security Cooperation Agency, “Israel—M830a1 120mm Tank Cartridges,” December 9, 2023, and “Israel –

155mm Artillery Ammunition,” December 29, 2023.

82 Per the Arms Export Control Act (AECA), in the case of sales to NATO member states, NATO, Japan, Australia,

South Korea, Israel, or New Zealand, the President must formally notify Cong. 15 calendar days before proceeding
with the sale. The prior notice threshold values for transfers to these recipients are $25 million for the sale,
enhancement, or upgrading of major defense equipment; $100 million for the sale, enhancement, or upgrading of
defense articles and defense services; and $300 million for the sale, enhancement, or upgrading of design and
construction services. See CRS Report RL31675, Arms Sales: Congressional Review Process, by Paul K. Kerr.
83 See, Jared Malsin and Nancy A. Youssef, “How the U.S. Arms Pipeline to Israel Avoids Public Disclosure,” Wall

Street Journal, March 6, 2024.

84 Ibid.

85 Department of State Press Briefing, February 5, 2024.

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or alternative implementing partners.86 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 may previously have been diverted—or be at risk of future diversion—by
Hamas or other groups.87 Other lawmakers have called for additional humanitarian aid for the
Palestinians.88 In February 2024, 25 Senators wrote a letter to President Biden urging his
Administration to work with Israel to increase humanitarian aid access to Gaza and investigate
employee wrongdoing at UNRWA “so that the resumption of U.S. assistance through UNRWA,
when appropriate, remains possible.”89

Monitoring U.S. Security Assistance for Human Rights Purposes

Since the IDF began its operations in Gaza, some critics have accused Israel of causing excessive
civilian casualties and possible misuse of U.S. defense equipment.90 The IDF has maintained that
while individual soldiers may have committed criminal offenses and are subsequently under
investigation, the military as a whole has complied with international legal obligations and that
noncombatant casualty figures have been deliberately exaggerated by Hamas.91
Reportedly, the Department of State is investigating the use of U.S. weaponry in Israeli airstrikes
in Gaza that resulted in civilian casualties and the IDF’s use of white phosphorus munitions in
Lebanon.92 According to a Department of State spokesperson, “We do seek to thoroughly assess
reports of civilian harm by authorized recipients of U.S.-provided defense articles around the
world.”93 In December 2023, Senator Bernie Sanders introduced S.Res. 504, a privileged
resolution, which would have mandated that the Department of State provide Congress with a
report on Israel’s human rights practices within 30 days of passage, pursuant to Section 502B(c)
of the Foreign Assistance Act of 1961. After receiving such a report, Congress, by joint
resolution, may act to terminate, restrict, or continue security assistance to Israel. On January 16,
2024, the Senate voted 72-11 to table a motion to discharge S.Res. 504 from the Senate Foreign
Relations Committee.94

86 CRS Insight IN12316, The United Nations Relief and Works Agency for Palestine Refugees in the Near East
(UNRWA): Overview and the U.S. Funding Pause, by Rhoda Margesson and Jim Zanotti.
87 Text of October 24 letter from 24 Representatives to USAID 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 118 th Cong. 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.
88
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.
89 Sen. Chris Murphy, “Murphy, Van Hollen, Coons, Merkley, 21 Colleagues Urge Biden Administration to Work with

Israel to Take 5 Steps to Get More Humanitarian Aid into Gaza,” February 2, 2024.
90 See, for example, Brian Finucane, “Is Washington Responsible for What Israel Does with American Weapons?,”

Foreign Affairs, November 17, 2023.

91 David S. Cloud, “Israel’s Military Investigates Soldiers for Misconduct,” Wall Street Journal, February 22, 2024.

92 Dion Nissenbaum and Vivian Salama, “Tensions Build Between Netanyahu and Biden,” Wall Street Journal,

February 16, 2024.

93 “US reviewing reports of civilian harm by Israel, State Dept says,” Reuters, February 13, 2024.

94 Roll Call Vote 118th Cong. - 2nd Session, available at https://www.congress.gov/bill/118th-congress/senate-

resolution/504/actions.

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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 Analysts Molly Cox
and Cassandra Higgins, 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
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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
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Congressional Research Service R47828 · VERSION 21 · UPDATED 13