III 

Calendar No. 313 

111TH CONGRESS 

2D SESSION S. RES. 400 

Urging the implementation of a comprehensive strategy to address the 

instability in Yemen. 

IN THE SENATE OF THE UNITED STATES 

JANUARY 28, 2010 

Mr. KERRY (for himself, Mr. FEINGOLD, Mrs. FEINSTEIN, Mr. CASEY, Mrs. 

GILLIBRAND, and Mr. BENNET) submitted the following resolution; which 

was referred to the Committee on Foreign Relations 

MARCH 11, 2010 

Reported by Mr. KERRY, with an amendment and an amendment to the 

preamble 

[Strike out all after the resolving clause and the preamble and insert the part printed in italic] 

RESOLUTION 

Urging the implementation of a comprehensive strategy to 

address the instability in Yemen. 

Whereas al Qaeda-affiliated terrorist groups operating in the 

Republic of Yemen are a threat to the national security 

of the United States; 

Whereas, on October 12, 2000, an explosives-laden motorboat 

detonated alongside the United States Navy destroyer 

USS Cole while it was docked in the Yemeni port of 

Aden, killing 17 members of the United States armed 


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forces and wounding 39 others in the deadliest terrorist 

attack against the United States military since the 1983 

attack on United States Marine barracks in Beirut, Lebanon; 

Whereas, on September 17, 2008, after several previous 

failed attacks, Yemeni militants attacked the entrance of 

the United States Embassy in Sana’a, Yemen, killing 17 

people, including a United States citizen; 

Whereas al Qaeda in the Arabian Peninsula has claimed responsibility for the alleged attempt by a Nigerian national, Umar Farouk Abdulmutallab, to detonate explosives on board Northwest Airlines flight 253 bound for 

Detroit, Michigan, on Christmas Day 2009; 

Whereas members of al Qaeda in the Arabian Peninsula have 

used Yemeni territory as a base from which to launch attacks against the Kingdom of Saudi Arabia, including an 

August 2009 assassination attempt that injured Deputy 

Interior Minister for Security Affairs Prince Mohammed 

bin Nayef bin Abdul Aziz al Saud; 

Whereas the Government of Yemen, since December 17, 

2009, has undertaken a number of military operations 

against al Qaeda in the Arabian Peninsula leadership; 

Whereas stability in Yemen is threatened by rapid population 

growth, endemic poverty, the inadequate provision of 

basic services, widespread corruption, and natural resource shortages stemming from extreme water scarcity 

and dwindling oil production; 

Whereas a tribal insurgency in northern Yemen being waged 

by al-Houthi fighters and a southern secessionist movement threaten the stability of Yemen; 


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Whereas hundreds of thousands of Somalis and Ethiopians 

are seeking asylum in Yemen to escape civil war, political 

grievances, and poverty; 

Whereas these refugees create significant additional pressures 

on Yemen’s limited resources and government institutions; 

Whereas the February 2009 Department of State report on 

Human Rights in Yemen found that ‘‘significant human 

rights problems persisted,’’ including ‘‘reports of arbitrary and unlawful killings by government forces, politically motivated disappearances, and torture in many prisons’’; 

Whereas, on January 21, 2010, Secretary of State Clinton 

remarked, ‘‘The success of [United States Government 

assistance to Yemen] depends upon Yemen’s ability to 

make the tough choices necessary to improve the capacity 

to govern, to reform its economy, to protect human 

rights, to combat corruption, and create a better environment for business and investment.’’; 

Whereas the weakening of government institutions in Yemen 

could contribute to the ability of al Qaeda-inspired and 

affiliated militants to recruit, train, and plan terrorist operations against United States targets in the Middle East 

and in the United States; 

Whereas potential large-scale population displacement and 

migration from Yemen due to civil conflict, economic collapse, or resource failure could jeopardize the stability 

and security of the region; 

Whereas al Qaeda in the Arabian Peninsula, al Qaeda in 

East Africa, and al-Shabab militants could take advanVerDate Nov 24 2008 23:14 Mar 11, 2010 Jkt 089200 PO 00000 Frm 00003 Fmt 6652 Sfmt 6300 E:\BILLS\SR400.RS SR400

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tage of instability in Somalia and Yemen to expand their 

reach and effectiveness; 

Whereas the United States recognizes the importance of cooperating with Yemen to counter the al Qaeda threat, 

promote economic development, and preserve Yemen’s 

stability as it seeks to expand good governance; 

Whereas in September 2009, USAID and Yemen signed a 3- 

year economic assistance agreement to fund development 

projects in the fields of health, education, democracy and 

governance, agriculture and economic development; 

Whereas President Obama has significantly increased United 

States military and economic assistance to Yemen, including— 

(1) $66,800,000 in fiscal year 2009 to build the capacity of the Yemeni military to conduct counterterrorist 

operations; and 

(2) $52,500,000 in fiscal year 2010 for economic assistance administered by the Department of State; 

Whereas Yemen aspires to join the Gulf Cooperation Council, 

some of whose members pledged more than 

$4,000,000,000 to support Yemen’s economic development at a November 2006 international donors conference in London; and 

Whereas the challenges of Yemeni stability are not just a 

concern for the United States and Yemen, but are also 

a concern for countries in the region and for the entire 

international community: Now, therefore, be it 

Whereas al Qaeda-affiliated terrorist groups operating in the 

Republic of Yemen are a threat to the national security of 

the United States; 


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Whereas, on October 12, 2000, an explosives-laden motorboat 

detonated alongside the United States Navy destroyer USS 

Cole while it was docked in the Yemeni port of Aden, killing 17 members of the United States armed forces and 

wounding 39 others in the deadliest terrorist attack 

against the United States military since the 1983 attack 

on United States Marine barracks in Beirut, Lebanon; 

Whereas, on September 17, 2008, after several previous failed 

attacks, Yemeni militants attacked the entrance of the 

United States Embassy in Sana’a, Yemen, killing 17 people, including a United States citizen; 

Whereas al Qaeda in the Arabian Peninsula has claimed responsibility for the alleged attempt by a Nigerian national, Umar Farouk Abdulmutallab, to detonate explosives on board Northwest Airlines flight 253 bound for Detroit, Michigan, on Christmas Day 2009; 

Whereas members of al Qaeda in the Arabian Peninsula have 

used Yemeni territory as a base from which to launch attacks against the Kingdom of Saudi Arabia, including an 

August 2009 assassination attempt that injured Deputy 

Interior Minister for Security Affairs Prince Mohammed 

bin Nayef bin Abdul Aziz al Saud; 

Whereas the Government of Yemen, since December 17, 2009, 

has undertaken a number of military operations against 

al Qaeda in the Arabian Peninsula leadership; 

Whereas stability in Yemen is threatened by rapid population 

growth, endemic poverty, the inadequate provision of basic 

services, widespread corruption, and natural resource 

shortages stemming from extreme water scarcity and dwindling oil production; 


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Whereas a succession of armed conflicts fought in northern 

Yemen between al-Houthi fighters and the Government of 

Yemen, as well as a southern secessionist movement, 

threatens the stability of Yemen; 

Whereas hundreds of thousands of Somalis and Ethiopians are 

seeking asylum in Yemen to escape civil war, political 

grievances, and poverty; 

Whereas these refugees create significant additional pressures 

on Yemen’s limited resources and government institutions; 

Whereas the February 2009 Department of State report on 

Human Rights in Yemen found that ‘‘significant human 

rights problems persisted,’’ including ‘‘reports of arbitrary 

and unlawful killings by government forces, politically motivated disappearances, and torture in many prisons’’; 

Whereas, on January 21, 2010, Secretary of State Clinton remarked, ‘‘The success of [United States Government assistance to Yemen] depends upon Yemen’s ability to make the 

tough choices necessary to improve the capacity to govern, 

to reform its economy, to protect human rights, to combat 

corruption, and create a better environment for business 

and investment.’’; 

Whereas the weakening of government institutions in Yemen 

could contribute to the ability of al Qaeda-inspired and affiliated militants to recruit, train, and plan terrorist operations against United States targets in the Middle East 

and in the United States; 

Whereas potential large-scale population displacement and migration from Yemen due to civil conflict, economic collapse, or resource failure could jeopardize the stability and 

security of the region; 


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Whereas al Qaeda in the Arabian Peninsula, al Qaeda in East 

Africa, and al-Shabab militants could take advantage of 

instability in Somalia and Yemen to expand their reach 

and effectiveness; 

Whereas the United States recognizes the importance of cooperating with Yemen to counter the al Qaeda threat, promote 

economic development, and preserve Yemen’s stability as it 

seeks to expand good governance; 

Whereas in September 2009, USAID and Yemen signed a 3- 

year economic assistance agreement to fund development 

projects in the fields of health, education, democracy and 

governance, agriculture and economic development; 

Whereas President Obama has significantly increased United 

States military and economic assistance to Yemen, including— 

(1) $66,800,000 in fiscal year 2009 to build the capacity of the Yemeni military to conduct counterterrorist 

operations; and 

(2) $52,500,000 in fiscal year 2010 for economic assistance administered by the Department of State; 

Whereas Yemen aspires to join the Gulf Cooperation Council, 

some of whose members pledged more than $4,000,000,000 

to support Yemen’s economic development at a November 

2006 international donors conference in London; and 

Whereas the challenges of Yemeni stability are not just a concern for the United States and Yemen, but are also a concern for countries in the region and for the entire international community: Now, therefore, be it 

1 Resolved, That the Senate— 

2 (1) reaffirms its commitment to helping prevent 

3 state collapse in Yemen, denying terrorists a safeVerDate Nov 24 2008 23:14 Mar 11, 2010 Jkt 089200 PO 00000 Frm 00007 Fmt 6652 Sfmt 6401 E:\BILLS\SR400.RS SR400

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1 haven, and supporting the people and Government of 

2 Yemen in dealing with Yemen’s profound and inter3 locking security, development, and economic chal4 lenges; 

5 (2) reaffirms its commitment to disrupting, dis6 mantling, and defeating al Qaeda and affiliated 

7 movements worldwide; 

8 (3) urges the Government of Yemen to 

9 strengthen and sustain efforts against al Qaeda in 

10 the Arabian Peninsula; 

11 (4) calls upon the Government of Yemen to 

12 strengthen efforts to address corruption, to respect 

13 human rights, and to work with its citizens and the 

14 international community to address the significant 

15 factors driving the instability in Yemen; 

16 (5) calls upon the international community to 

17 closely coordinate and strengthen assistance pro18 grams in Yemen; 

19 (6) recognizes the critical role of Saudi Arabia 

20 and other members of the Gulf Cooperation Council 

21 in these assistance programs; 

22 (7) urges intensive dialogue toward ceasing 

23 armed hostilities through a negotiated political set24 tlement between the Government of Yemen and the 

25 Houthi rebellion; 


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1 (8) requests that the Secretary of State, the 

2 Secretary of Defense, and the Director of National 

3 Intelligence submit a joint, comprehensive strategy 

4 for Yemen, in classified and unclassified form, to the 

5 Senate, including— 

6 (A) counterterrorism cooperation; 

7 (B) development, humanitarian, and secu8 rity assistance; 

9 (C) regional and international diplomatic 

10 coordination; and 

11 (D) democracy, human rights, and govern12 ance promotion; and 

13 (9) urges the President to work with the people 

14 and Government of Yemen, the international com15 munity, and the international organizations to imple16 ment the strategy submitted pursuant to paragraph 

17 (8). 

18 That the Senate— 

19 (1) reaffirms its commitment to helping prevent 

20 state collapse in Yemen, denying terrorists a safe21 haven, and supporting the people and Government of 

22 Yemen in dealing with Yemen’s profound and inter23 locking security, development, and economic chal24 lenges; 


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1 (2) reaffirms its commitment to disrupting, dis2 mantling, and defeating al Qaeda and affiliated 

3 movements worldwide; 

4 (3) urges the Government of Yemen to strengthen 

5 and sustain efforts against al Qaeda in the Arabian 

6 Peninsula; 

7 (4) calls upon the Government of Yemen to 

8 strengthen efforts to address corruption, to respect 

9 human rights, and to work with its citizens and the 

10 international community to address the significant 

11 factors driving the instability in Yemen; 

12 (5) calls upon the international community to 

13 closely coordinate and strengthen assistance programs 

14 in Yemen; 

15 (6) recognizes the critical role of Saudi Arabia 

16 and other members of the Gulf Cooperation Council 

17 in these assistance programs; 

18 (7) applauds the February 2010 ceasefire that 

19 ended the latest round of fighting between the Govern20 ment of Yemen and the Houthi rebellion, and urges 

21 both parties as well as Yemen’s neighbors and the 

22 broader international community to support the 

23 ceasefire through the provision of humanitarian and 

24 reconstruction assistance in areas affected by the 

25 fighting; 


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1 (8) requests that the Secretary of State, the Sec2 retary of Defense, and the Director of National Intel3 ligence submit a joint, comprehensive strategy for 

4 Yemen, in classified and unclassified form, to the 

5 Senate, including— 

6 (A) counterterrorism cooperation; 

7 (B) development, humanitarian, and secu8 rity assistance; 

9 (C) regional and international diplomatic 

10 coordination; and 

11 (D) democracy, human rights, and govern12 ance promotion; and 

13 (9) urges the President to work with the people 

14 and Government of Yemen, the international commu15 nity, and the international organizations to imple16 ment the strategy submitted pursuant to paragraph 

17 (8). 


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Calendar No. 313 

111TH CONGRESS 

2D SESSION S. RES. 400 

RESOLUTION 

Urging the implementation of a comprehensive 

strategy to address the instability in Yemen. 

MARCH 11, 2010 

Reported with an amendment and an amendment to the 

preamble 


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