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. Response
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, is situated 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 factions. External interventions have further complicated the situation, resulting in what the United Nations describes as one of the world's largest humanitarian crises. An unstable ceasefire agreement reached in 2022 froze the frontlines of the conflict. However, since October 2023, the Houthis have launched numerous attacks on international shipping, citing the goal of forcing Israel to end its war with Hamas, posing severe challenges to the security of Red Sea maritime traffic.

This report systematically outlines the historical roots and core dynamics of the Yemen conflict, including governance disputes following the unification of North and South Yemen in 1990, the influence of tribal forces, and the failure of political transition 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 organizations such as Al-Qaeda in the Arabian Peninsula (AQAP).

The report elaborates in detail on the current state of the conflict and the evolution of U.S. policy: U.S. logistical, intelligence, and advisory support for the Saudi-led coalition since 2015, and subsequent adjustments including the termination of aerial refueling and certain arms sales due to civilian casualties; the Trump and Biden administrations' repeated adjustments regarding 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 United Nations Security Council resolutions, and the U.S.-led Operation Prosperity Guardian coalition patrols and countermeasures.

The humanitarian situation is a key focus 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 efforts. Furthermore, the report explores counterterrorism challenges within Yemen's security vacuum, as well as 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 direction of U.S. policy in the region.