Yemen: Conflict, Red Sea Attacks, and U.S. Policy

Key Chapter Title List

1. Overview and Key Stakeholders
2. Current Conflict Status and U.S. Diplomacy
3. Maritime Attacks and U.S. Responses
4. Humanitarian Situation
5. Counterterrorism Issues
6. Yemen and the 119th U.S. Congress

Document Introduction

Yemen, a conflict-ridden country located along the strategic Bab el-Mandeb Strait, lies in one of the world's busiest shipping lanes. Since 2015, the Iran-backed Houthi forces have been engaged in a civil war with Yemen's internationally recognized government and its supporters, as well as other anti-Houthi forces. External interventions have further complicated the situation, creating what the United Nations calls "one of the world's largest humanitarian crises." An unstable ceasefire agreement reached in 2022 froze the frontlines, but since October 2023, the Houthis have launched numerous attacks on international shipping, citing the aim of forcing Israel to end its war with Hamas, posing severe challenges to maritime security in the Red Sea.

This report systematically outlines the historical roots and core dynamics of the Yemen conflict, including the governance disputes following the 1990 unification of North and South Yemen, the influence of tribal forces, and the failure of political transformation after the Arab Spring. It focuses on analyzing the interactions among key stakeholders, covering the Saudi-led coalition, the UAE-backed Southern Transitional Council, Iran's support for the Houthis, and the activities of terrorist groups such as Al-Qaeda in the Arabian Peninsula (AQAP).

The report details the current conflict status and the evolution of U.S. policy: U.S. logistical, intelligence, and advisory support for the Saudi-led coalition since 2015, subsequent adjustments including the termination of aerial refueling and some arms sales due to civilian casualties; the Trump and Biden administrations' repeated adjustments to the terrorist organization designation of the Houthis, and the latest developments in March 2025 regarding the Trump administration's expansion of military strikes against Houthi targets. Simultaneously, it provides an in-depth analysis of the development of maritime attacks in the Red Sea, including the scope of Houthi attacks, their impact on global shipping, relevant UN Security Council resolutions, and the U.S.-led "Operation Prosperity Guardian" coalition patrols and countermeasures.

The humanitarian situation is a key concern of the report. It presents UN assessment data indicating that 19.5 million Yemenis (more than half the population) require humanitarian assistance, with nearly half the population facing food insecurity. It analyzes the impact of factors such as reliance on imported supplies, blocked aid channels, and terrorist organization designations on humanitarian relief. Furthermore, the report discusses counterterrorism challenges within Yemen's security vacuum and the influence of relevant U.S. congressional legislation and appropriations on Yemen-related operations. It offers a comprehensive and in-depth analytical perspective for understanding the complex geopolitical dynamics, characteristics of asymmetric conflict, and the trajectory of U.S. policy in the region.