Syria: Transition and U.S. Policy

List of Key Chapter Titles

1. Overview and Key Developments
2. The United Nations and Syria
3. The Humanitarian Crisis in Syria and U.S. & International Aid
4. U.S. Interests and Initiatives
5. U.S. Military Operations in Syria and U.S. Partner Forces
6. U.S. Bilateral Assistance Programs
7. U.S. and International Sanctions and Syria
8. Regional and International Initiatives and Interests
9. Accountability and Justice
10. Legislation and Hearings in the 119th Congress
11. Outlook and Issues for Congress
12. Appendix: Hay'at Tahrir al-Sham (HTS): Leadership, Insurgency, Terrorism, and Governance

Document Overview

This report, updated by the Congressional Research Service in March 2025, aims to provide U.S. Members of Congress and committees with in-depth analysis and policy reference on the evolving situation in Syria. The central backdrop is the collapse of the regime of former Syrian President Bashar al-Assad in December 2024 under the offensive of anti-government forces, with Assad himself forced to resign and go into exile in Russia. This event marks the entry into a new and uncertain phase of the conflict against Assad, which lasted over a decade, and the decades-long tensions between the U.S. and Syria. The report examines in detail the complex challenges faced by the Syrian interim government established under the leadership of Hay'at Tahrir al-Sham, a U.S.-designated Foreign Terrorist Organization.

The report systematically outlines Syria's current political and security landscape. Led by HTS leader Ahmad al-Shara'a, the interim government has abolished the old constitution and begun dissolving former regime institutions, announcing plans to promote national dialogue, draft a new constitution, and ultimately hold elections. However, the path to national reconstruction is fraught with difficulties: the security environment is fragile, with pro-Assad armed attacks in western provinces in March 2025 and violence targeting Alawite communities highlighting the volatility; economic collapse, energy shortages, and the paralysis of basic services have exacerbated the humanitarian disaster, with over 16.5 million Syrians estimated by the UN to need assistance. Simultaneously, the relationship between the northeast region controlled by the U.S.-backed Syrian Democratic Forces and the interim government, conflicts between the Turkish-backed Syrian National Army and the SDF, and the latent threat of Islamic State remnants constitute an intricate security mosaic.

The report provides a deep analysis of U.S. multiple interests and policy tools in Syria. The U.S. military presence in Syria (approximately 2,000 personnel) continues to operate under the 2001/2002 Authorization for Use of Military Force, with the core mission of ensuring the "enduring defeat" of the Islamic State organization and supporting partner forces in managing thousands of IS prisoners and related camps. At the diplomatic and aid level, U.S. officials have engaged with the interim government but have not granted formal recognition; meanwhile, the Trump administration's review of foreign aid policy led to the interruption of some Syria assistance projects. Furthermore, the complex array of U.S. sanctions on Syria (including the Caesar Act) has not substantively changed following Assad's fall, becoming a major obstacle for the interim government's calls for international support for its economic reconstruction.

The report also assesses the dynamics of regional and international actors and their impact on Syria's transition. Countries such as Turkey, Israel, Iran, Russia, and Gulf Arab states are adjusting their interactions with Syria's new authorities based on their own strategic interests. For example, Israel has increased military strikes on targets within Syria and proposed demands for the demilitarization of the south; the European Union has suspended some sanctions on Syria to support the recovery process. The interplay of these external forces will profoundly shape Syria's future political and security trajectory.

Finally, the report outlines key decision-making issues for the U.S. 119th Congress, including whether to continue military and counterterrorism operations in Syria, what kind of relationship to establish with the Syrian interim government, and how to adjust assistance and sanctions policies towards Syria. By posing a series of specific questions, the report guides congressional oversight and legislative considerations to address the strategic rebalancing challenges the U.S. faces in Syria in the post-Assad era.