[House Report 119-198]
[From the U.S. Government Publishing Office]
119th Congress } { Report
HOUSE OF REPRESENTATIVES
1st Session } { 119-198
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SYRIA TERRORISM THREAT ASSESSMENT ACT
_______
July 10, 2025.--Committed to the Committee of the Whole House on the
State of the Union and ordered to be printed
_______
Mr. Green of Tennessee, from the Committee on Homeland Security,
submitted the following
R E P O R T
[To accompany H.R. 1327]
[Including cost estimate of the Congressional Budget Office]
The Committee on Homeland Security, to whom was referred
the bill (H.R. 1327) to direct the Secretary of Homeland
Security to conduct a threat assessment of terrorist threats to
the United States posed by individuals in Syria with an
affiliation with a Foreign Terrorist Organization or a
Specially Designated Global Terrorist Organization, and for
other purposes, having considered the same, reports favorably
thereon without amendment and recommends that the bill do pass.
CONTENTS
Page
Purpose and Summary.............................................. 1
Background and Need for Legislation.............................. 2
Hearings......................................................... 4
Committee Consideration.......................................... 4
Committee Votes.................................................. 4
Committee Oversight Findings..................................... 4
C.B.O. Estimate, New Budget Authority, Entitlement Authority, and
Tax Expenditures............................................... 4
Federal Mandates Statement....................................... 5
Duplicative Federal Programs..................................... 5
Statement of General Performance Goals and Objectives............ 5
Congressional Earmarks, Limited Tax Benefits, and Limited Tariff
Benefits....................................................... 6
Advisory Committee Statement..................................... 6
Applicability to Legislative Branch.............................. 6
Section-by-Section Analysis of the Legislation................... 6
PURPOSE AND SUMMARY
H.R. 1327, the ``Syria Terrorism Threat Assessment Act of
2025,'' directs the Secretary of Homeland Security to conduct a
threat assessment of terrorist threats to the United States
posed by individuals in Syria with an affiliation with a
Foreign Terrorist Organization (FTO) or a Specially Designated
Global Terrorist Organization (including but not limited to,
Ansar al Islam, Islamic Jihad Union, Katibat Imam al Bukhari,
Katibat al Tawhid wal Jihad, and other organizations). The
Secretary, in coordination with other relevant Federal
agencies, will be responsible for conducting the threat
assessment identifying these individuals and their country of
origin, as well as the capability of the Department of Homeland
Security (DHS, the Department) in identifying, tracking, and
monitoring these individuals, and a description of any action
the Department has taken to mitigate terrorist threats posed by
these individuals or prevent their entry to the United States.
BACKGROUND AND NEED FOR LEGISLATION
The persistent threat of terrorism remains a central
concern for U.S. national security, particularly in the context
of instability in the Middle East. Since the outbreak of civil
conflict in 2011, Syria has been a magnet for foreign fighters
and a breeding ground for extremist activity, including for
several U.S.-designated terrorist organizations which pose
direct and indirect threats to the United States and its
allies. The ongoing instability in Syria and the breakdown of
centralized authority has led to the patchwork control of its
territory and allowed terrorist groups to exploit ungoverned
spaces for training camps, logistical operations, and digital
recruitment.\1\ Moreover, the return or migration of foreign
fighters from Syria to their countries of origin--including the
United States and European nations--poses an additional vector
for terrorism risk.
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\1\Michael Singh, After Assad: Navigating Syria Policy (Part 1),
THE WASHINGTON INSTITUTE FOR NEAR EAST POLICY, Feb. 13, 2025, https://
www.washingtoninstitute.org/policy-analysis/after-assad-navigating-
syria-policy-part-1#::text=Threats%20to%20U.S.%20Interests
&text=The%20Islamic%20State%20(IS)%2C,it%20continues%20to%20mount%20atta
cks.
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Since Bashar Al Asad's fall in December 2024, Hayat Tahrir
al Sham (HTS), a coalition of northern Syria-based Sunni
Islamist insurgent groups, has established an interim
government.\2\ In May 2018, the U.S. State Department added HTS
to its Al-Nusrah Front's FTO designation.\3\ Al-Nusrah is an
al-Qaeda (AQ) affiliated group operating in Syria. Reportedly,
while HTS has distanced itself from AQ and now oppose the
Islamic State, HTS remains a designated terrorist organization.
In addition to HTS, other concerning groups are operating
within Syria (i.e. Ansar al-Islam, the Islamic Jihad Union,
Katibat Imam al Bukhari, and Katibat al Tawhid wal Jihad).
These organizations have varying degrees of affiliation with
global jihadist movements such as al-Qaeda and ISIS and share
ideological goals that often include targeting U.S. and Western
interests, overthrowing secular governments, and establishing
Islamist states.
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\2\CHRISTOPHER M. BLANCHARD, CONG. RESEARCH SERV, RL33487, SYRIA:
TRANSITION AND U.S. POLICY (2025).
\3\Amendment to the Terrorist Designations of al-Nusrah Front, U.S.
DEP'T OF STATE, https://2017-2021.state.gov/amendments-to-the-
terrorist-designations-of-al-nusrah-front/ (last visited May 31, 2018).
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For example, Ansar al-Islam, originally formed in northern
Iraq in the early 2000s, has maintained operational capability
in both Iraq and Syria, espousing a Salafi-jihadist ideology
and conducting attacks against both U.S. forces and local
governments.\4\ The Islamic Jihad Union (IJU), a splinter group
from the Islamic Movement of Uzbekistan, has historically
operated in Central Asia and Afghanistan but has reportedly
extended its network into Syria. With a stated goal of
overthrowing secular regimes and replacing them with Islamic
rule, IJU is aligned ideologically with al-Qaeda and has been
implicated in plots against Western targets.\5\ Katibat Imam al
Bukhari\6\ and Katibat al Tawhid wal Jihad\7\ are lesser-known
but dangerous jihadist factions, who have operated in
coordination with al-Qaeda affiliates in Syria, including Hayat
Tahrir al-Sham. Their transnational composition and ties to
broader jihadist networks raise concerns about their ability to
project threats beyond the Middle East.
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\4\Kathryn Gregory, Ansar al-Islam (Iraq, Islamists/Kurdish
Separatists), Ansar al-Sunnah, COUNCIL ON FOREIGN RELATIONS, https://
www.cfr.org/backgrounder/ansar-al-islam-iraq-islamistskurdish-
separatists-ansar-al-
sunnah#::text=Introduction,northern%20and%20central
%20Iraq%20today (last visited Nov. 5, 2008, 7:00AM).
\5\Islamic Jihad Group, United Nations Security Council, https://
main.un.org/securitycouncil/en/sanctions/1267/aq_sanctions_list/
summaries/entity/islamic-jihad-group#::text=IJU%20
conducted%20a%20number%20of,responsibility%20for%20the%20foiled%20plot
(last visited Mar. 14, 2022).
\6\State Department Terrorist Designation of Katibat al-Imam al-
Bukhari, U.S. DEP'T OF STATE, https://2017-2021.state.gov/state-
department-terrorist-designation-of-katibat-al-imam-al-bukhari/, (last
visited Mar 22, 2018).
\7\Press Statement, U.S. Dep't of State, Terrorist Designation of
Katibat al Tawhid wal Jihad (Mar. 7, 2022), available at https://2021-
2025.state.gov/terrorist-designation-of-katibat-
al-tawhid-wal-jihad/.
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Considering the sustained activity of terrorist
organizations within Syria, in December 2024, an estimated
2,000 U.S. military forces were deployed in eastern and
southern Syria, carrying out counterterrorism missions and
supporting Syrian partner forces who have detained over 9,000
ISIS prisoners and administer detention camps of over 40,000
individuals from previously ISIS-held locations.\8\ Recently,
U.S. Central Command carried out a series of airstrikes against
multiple known ISIS camps in Syria just last October.\9\ These
strikes were conducted to degrade the ability of ISIS to plot,
organize, and carry out attacks against the U.S., its allies
and partners, and civilians throughout the region and beyond.
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\8\ DOD Announces 2,000 troops in Syria, Department Prepared for
Government Shutdown, U.S. Dep't of Def., https://www.defense.gov/News/
News-Stories/Article/Article/4013726/dod-
announces-2000-troops-in-syria-department-prepared-for-government-
shutdown/ (last visited Dec. 19, 2024).
\9\ Press Release, U.S. Central Command, U.S. Central Command
Conducts Airstrikes Against Several ISIS Camps in Syria (Oct. 30, 2024)
(on file with author), available at https://www.centcom.mil/MEDIA/
PRESS-RELEASES/Press-Release-View/Article/3951025/us-central-command-
conducts-airstrikes-against-several-isis-camps-in-syria/.
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While U.S. counterterrorism operations in Syria aim to
mitigate threats at their source, attention has increasingly
shifted to the potential domestic security implications
associated with individuals displaced by the conflict and now
present within the United States. As of January 2025, an
estimated 7.4 million Syrians have been internally displaced,
and 4.7 million Syrians were registered as refugees.\10\
Furthermore, over the last four years, DHS has faced an
unprecedented number of Special Interest Aliens (SIAs) from
outside the Western Hemisphere, including individuals from
Syria.\11\ Per DHS, Special Interest Aliens are non-U.S.
persons, based on an analysis of travel patterns, potentially
pose a national risk to the U.S.\12\
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\10\Samuel Davidoff-Gore, The Long Horizon of Returns to Syria,
GEORGETOWN JOURNAL OF INTERNATIONAL AFFAIRS, (Apr. 30, 2025), https://
gjia.georgetown.edu/2025/04/30/the-long-horizon-of-returns-to-syria/
#::text=On%20December%208%2C%202024%2C%20the,became
%20internally%20displaced%20(IDPs).
\11\U.S. Dep't of Homeland Sec., Home and Away: DHS and the Threats
to America, Remarks delivered by Secretary Kelly at George Washington
University Center for Cyber and Homeland Security, (ARCHIVED).
\12\U.S. Dep't of Homeland Sec., MYTH/FACT: Known and Suspected
Terrorists/Special Interest Aliens, (ARCHIVED).
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Ultimately, a comprehensive and thorough assessment of
these individuals and groups is crucial to safeguarding the
United States from potential terrorist threats, allowing both
DHS and Congress to assess if policy or procedural changes are
needed to mitigate identified risks allocate intelligence,
border security, and counterterrorism resources more
effectively.
HEARINGS
The Committee has not held a hearing that guided the
development of this legislation in the 119th Congress.
COMMITTEE CONSIDERATION
The Subcommittee on Counterterrorism and Intelligence met
on March 25, 2025, a quorum being present, to consider H.R.
1327 and ordered the measure to be favorably reported to the
Full Committee by voice vote.
The Committee met on April 9, 2025, a quorum being present,
to consider H.R. 1327 and ordered the measure to be favorably
reported to the House by voice vote.
COMMITTEE VOTES
Clause 3(b) of rule XIII requires the Committee to list the
recorded votes on the motion to report legislation and
amendments thereto.
No recorded votes were requested during consideration of
H.R. 1327.
COMMITTEE OVERSIGHT FINDINGS
In compliance with clause 3(c)(1) of rule XIII, the
Committee advises that the findings and recommendations of the
Committee, based on oversight activities under clause 2(b)(1)
of rule X, are incorporated in the descriptive portions of this
report.
CONGRESSIONAL BUDGET OFFICE ESTIMATE, NEW BUDGET AUTHORITY, ENTITLEMENT
AUTHORITY, AND TAX EXPENDITURES
With respect to the requirements of clause 3(c)(2) of rule
XIII and section 308(a) of the Congressional Budget Act of
1974, and with respect to the requirements of clause 3(c)(3) of
rule XIII and section 402 of the Congressional Budget Act of
1974, the Committee adopts as its own the estimate of any new
budget authority, spending authority, credit authority, or an
increase or decrease in revenues or tax expenditures contained
in the cost estimate prepared by the Director of the
Congressional Budget Office.
[GRAPHIC(S) NOT AVAILABLE IN TIFF FORMAT]
H.R. 1327 would require the Department of Homeland Security
to conduct an assessment of terrorist threats to the U.S. posed
by people in Syria who are affiliated with foreign terrorist
organizations. The bill would require the department, within 60
days of enactment, to provide the Congress with the assessment
and a briefing about it.
On the basis of information about similar requirements, CBO
estimates that implementing the bill would cost less than
$500,000 over the 2025-2030 period. Such spending would be
subject to the availability of appropriated funds.
The CBO staff contact for this estimate is David Rafferty.
The estimate was reviewed by Christina Hawley Anthony, Deputy
Director of Budget Analysis.
Phillip L. Swagel,
Director, Congressional Budget Office.
FEDERAL MANDATES STATEMENT
The Committee adopts as its own the estimate of Federal
mandates prepared by the Director of the Congressional Budget
Office pursuant to section 423 of the Unfunded Mandates Reform
Act of 1995.
DUPLICATIVE FEDERAL PROGRAMS
Pursuant to clause 3(c) of rule XIII, the Committee finds
that H.R. 1327 does not contain any provision that establishes
or reauthorizes a program known to be duplicative of another
Federal program.
STATEMENT OF GENERAL PERFORMANCE GOALS AND OBJECTIVES
In accordance with clause 3(c)(4) of rule XIII of the Rules
of the House of Representatives, the Committee's performance
goals and objectives are reflected in the descriptive portions
of this report.
CONGRESSIONAL EARMARKS, LIMITED TAX BENEFITS, AND LIMITED TARIFF
BENEFITS
In compliance with rule XXI, this bill, as reported,
contains no congressional earmarks, limited tax benefits, or
limited tariff benefits as defined in clause 9(d), 9(e), or
9(f) of rule XXI.
ADVISORY COMMITTEE STATEMENT
No advisory committees within the meaning of section 5(b)
of the Federal Advisory Committee Act were created by this
legislation.
APPLICABILITY TO THE LEGISLATIVE BRANCH
The Committee finds that H.R. 1327 does not relate to the
terms and conditions of employment or access to public services
or accommodation within the meaning of section 102(b)(3) of the
Congressional Accountability Act.
SECTION-BY-SECTION ANALYSIS OF THE LEGISLATION
Section 1. Short title
This section states that the Act may be cited as the
``Syria Terrorism Threat Assessment Act of 2025.''
Section 2. Threat assessment of terrorist threats posed by individuals
in Syria with an affiliation with a Foreign Terrorist
Organization or a specially designated global terrorist
organization
Sec. 2(a) requires the Secretary of Homeland Security to
conduct a threat assessment of terrorist threats to the United
States posed by individuals in Syria with an affiliation with
an FTO or a specially designated global terrorist organization
(SDGT). Specifically, Sec. 2(a)(2) details the elements the
Secretary is required to include in the threat assessment. For
each individual identified, the Secretary will include their
country of origin and which terrorist organization they belong
to (subclauses (A) and (B)), as well as a description for the
capability of DHS to monitor these individuals and any actions
DHS has taken to mitigate threats from these individuals,
including prevention from entering the United States
(subclauses (C) and (D)).
Sec. 2(b) requires the Secretary to inform Congress by
submitting the assessment in writing to the appropriate
congressional committees. The Secretary will also be required
to provide a briefing to the respective Committees on the
contents.
Sec. 2(c)(1) defines the term ``appropriate congressional
committees'' as the Committee on Homeland Security of the House
of Representatives and the Committee on Homeland Security and
Governmental Affairs of the Senate.
Sec. 2(c)(2) defines the term ``foreign terrorist
organization'' as an organization designated as a foreign
terrorist organization under section 219 of the Immigration and
Nationality Act (8 U.S.C. 1189).
Sec. 2(c)(2) defines the term ``specially designated global
terrorist organization'' as an organization that has been
designated as a specially designated global terrorist
organization by the Secretary of State or the Secretary of the
Treasury, as the case may be, pursuant to Executive Order 13224
(50 U.S.C. 1701 note; relating to blocking property and
prohibiting transactions with persons who commit, threaten to
commit, or support terrorism).
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