Washington (CNN) America's two top defense officials presented a dismal outlook on the situation in Iraq Wednesday during testimony before the House Armed Services Committee, even addressing possible U.S. policy if the country's current borders dissolve.

Defense Secretary Ashton Carter conceded that the U.S. did not move quickly enough to arm Iraqi Security Forces in their struggle against ISIS, and disclosed that the U.S. will train just 7,000 of the 24,000 Iraqi troops it had expected to by the fall due to a lack of recruits. Meanwhile, Gen. Martin E. Dempsey, the chairman of the Joint Chiefs of Staff, cautioned skeptical committee members that there are limits to what America can do to stabilize a country torn by sectarian strife and the advances of ISIS, also known as ISIL.

Children stand next to a burnt vehicle during clashes between Iraqi security forces and ISIS militants in Mosul on Tuesday, June 10.

Children stand next to a burnt vehicle during clashes between Iraqi security forces and ISIS militants in Mosul on Tuesday, June 10.

A Syrian rebel fighter lies on a stretcher at a makeshift hospital in Douma, Syria, on Wednesday, July 9. He was reportedly injured while fighting ISIS militants.

A Syrian rebel fighter lies on a stretcher at a makeshift hospital in Douma, Syria, on Wednesday, July 9. He was reportedly injured while fighting ISIS militants.

A Baiji oil refinery burns after an alleged ISIS attack in northern Selahaddin, Iraq, on Thursday, July 31.

A Baiji oil refinery burns after an alleged ISIS attack in northern Selahaddin, Iraq, on Thursday, July 31.

Thousands of Yazidi and Christian people flee Mosul on Wednesday, August 6, after the latest wave of ISIS advances.

Thousands of Yazidi and Christian people flee Mosul on Wednesday, August 6, after the latest wave of ISIS advances.

Thousands of Yazidis are escorted to safety by Kurdish Peshmerga forces and a People's Protection Unit in Mosul on Saturday, August 9.

Thousands of Yazidis are escorted to safety by Kurdish Peshmerga forces and a People's Protection Unit in Mosul on Saturday, August 9.

Aziza Hamid, a 15-year-old Iraqi girl, cries for her father while she and some other Yazidi people are flown to safety Monday, August 11, after a dramatic rescue operation at Iraq's Mount Sinjar. A CNN crew was on the flight, which took diapers, milk, water and food to the site where as many as 70,000 people were trapped by ISIS. But only a few of them were able to fly back on the helicopter with the Iraqi Air Force and Kurdish Peshmerga fighters.

Aziza Hamid, a 15-year-old Iraqi girl, cries for her father while she and some other Yazidi people are flown to safety Monday, August 11, after a dramatic rescue operation at Iraq's Mount Sinjar. A CNN crew was on the flight, which took diapers, milk, water and food to the site where as many as 70,000 people were trapped by ISIS. But only a few of them were able to fly back on the helicopter with the Iraqi Air Force and Kurdish Peshmerga fighters.

Displaced Iraqis receive clothes from a charity at a refugee camp near Feeshkhabour, Iraq, on Tuesday, August 19.

Displaced Iraqis receive clothes from a charity at a refugee camp near Feeshkhabour, Iraq, on Tuesday, August 19.

Kurdish Peshmerga fighters fire at ISIS militant positions from their position on the top of Mount Zardak, east of Mosul, Iraq, on Tuesday, September 9.

Kurdish Peshmerga fighters fire at ISIS militant positions from their position on the top of Mount Zardak, east of Mosul, Iraq, on Tuesday, September 9.

A elderly man is carried after crossing the Syria-Turkey border near Suruc on Saturday, September 20.

A elderly man is carried after crossing the Syria-Turkey border near Suruc on Saturday, September 20.

Syrian Kurds wait near a border crossing in Suruc as they wait to return to their homes in Kobani on Sunday, September 28.

Syrian Kurds wait near a border crossing in Suruc as they wait to return to their homes in Kobani on Sunday, September 28.

A Kurdish Peshmerga soldier who was wounded in a battle with ISIS is wheeled to the Zakho Emergency Hospital in Duhuk, Iraq, on Tuesday, September 30.

A Kurdish Peshmerga soldier who was wounded in a battle with ISIS is wheeled to the Zakho Emergency Hospital in Duhuk, Iraq, on Tuesday, September 30.

Alleged ISIS militants stand next to an ISIS flag atop a hill in Kobani on Monday, October 6.

Alleged ISIS militants stand next to an ISIS flag atop a hill in Kobani on Monday, October 6.

Kiymet Ergun, a Syrian Kurd, celebrates in Mursitpinar, Turkey, after an airstrike by the U.S.-led coalition in Kobani on Monday, October 13.

Kiymet Ergun, a Syrian Kurd, celebrates in Mursitpinar, Turkey, after an airstrike by the U.S.-led coalition in Kobani on Monday, October 13.

Cundi Minaz, a female Kurdish fighter, is buried in a cemetery in the southeastern Turkish town of Suruc on Tuesday, October 14. Minaz was reportedly killed during clashes with ISIS militants in nearby Kobani.

Cundi Minaz, a female Kurdish fighter, is buried in a cemetery in the southeastern Turkish town of Suruc on Tuesday, October 14. Minaz was reportedly killed during clashes with ISIS militants in nearby Kobani.

Heavy smoke rises in Kobani following an airstrike by the U.S.-led coalition on October 18.

Heavy smoke rises in Kobani following an airstrike by the U.S.-led coalition on October 18.

Kurdish fighters walk to positions as they combat ISIS forces in Kobani on Sunday, October 19.

Kurdish fighters walk to positions as they combat ISIS forces in Kobani on Sunday, October 19.

ISIS militants stand near the site of an airstrike near the Turkey-Syria border on Thursday, October 23. The United States and several Arab nations have been bombing ISIS targets in Syria to take out the militant group's ability to command, train and resupply its fighters.

ISIS militants stand near the site of an airstrike near the Turkey-Syria border on Thursday, October 23. The United States and several Arab nations have been bombing ISIS targets in Syria to take out the militant group's ability to command, train and resupply its fighters.

Iraqi special forces search a house in Jurf al-Sakhar, Iraq, on Thursday, October 30, after retaking the area from ISIS.

Iraqi special forces search a house in Jurf al-Sakhar, Iraq, on Thursday, October 30, after retaking the area from ISIS.

A picture taken from Turkey shows smoke rising after ISIS militants fired mortar shells toward an area controlled by Syrian Kurdish fighters near Kobani on Monday, November 3.

A picture taken from Turkey shows smoke rising after ISIS militants fired mortar shells toward an area controlled by Syrian Kurdish fighters near Kobani on Monday, November 3.

Fighters from the Free Syrian Army and the Kurdish People's Protection Units join forces to fight ISIS in Kobani on Wednesday, November 19.

Fighters from the Free Syrian Army and the Kurdish People's Protection Units join forces to fight ISIS in Kobani on Wednesday, November 19.

Smoke billows behind an ISIS sign during an Iraqi military operation to regain control of the town of Sadiyah, about 95 kilometers (60 miles) north of Baghdad, on Tuesday, November 25.

Smoke billows behind an ISIS sign during an Iraqi military operation to regain control of the town of Sadiyah, about 95 kilometers (60 miles) north of Baghdad, on Tuesday, November 25.

An elderly Yazidi man arrives in Kirkuk after being released by ISIS on Saturday, January 17. The militant group released about 200 Yazidis who were held captive for five months in Iraq. Almost all of the freed prisoners were in poor health and bore signs of abuse and neglect, Kurdish officials said.

An elderly Yazidi man arrives in Kirkuk after being released by ISIS on Saturday, January 17. The militant group released about 200 Yazidis who were held captive for five months in Iraq. Almost all of the freed prisoners were in poor health and bore signs of abuse and neglect, Kurdish officials said.

ISIS militants are seen through a rifle's scope during clashes with Peshmerga fighters in Mosul, Iraq, on Wednesday, January 21.

ISIS militants are seen through a rifle's scope during clashes with Peshmerga fighters in Mosul, Iraq, on Wednesday, January 21.

Junko Ishido, mother of Japanese journalist Kenji Goto, reacts during a news conference in Tokyo on Friday, January 23. ISIS would later kill Goto and another Japanese hostage, Haruna Yukawa.

Junko Ishido, mother of Japanese journalist Kenji Goto, reacts during a news conference in Tokyo on Friday, January 23. ISIS would later kill Goto and another Japanese hostage, Haruna Yukawa.

Collapsed buildings are seen in Kobani on January 27 after Kurdish forces took control of the town from ISIS.

Collapsed buildings are seen in Kobani on January 27 after Kurdish forces took control of the town from ISIS.

Kurdish people celebrate in Suruc, Turkey, near the Turkish-Syrian border, after ISIS militants were expelled from Kobani on Tuesday, January 27.

Kurdish people celebrate in Suruc, Turkey, near the Turkish-Syrian border, after ISIS militants were expelled from Kobani on Tuesday, January 27.

A Kurdish marksman looks over a destroyed area of Kobani on Friday, January 30, after the city had been liberated from the ISIS militant group. The Syrian city, also known as Ayn al-Arab, had been under assault by ISIS since mid-September.

A Kurdish marksman looks over a destroyed area of Kobani on Friday, January 30, after the city had been liberated from the ISIS militant group. The Syrian city, also known as Ayn al-Arab, had been under assault by ISIS since mid-September.

Safi al-Kasasbeh, right, receives condolences from tribal leaders at his home village near Karak, Jordan, on Wednesday, February 4. Al-Kasasbeh's son, Jordanian pilot Moath al-Kasasbeh, was burned alive in a video that was recently released by ISIS militants. Jordan is one of a handful of Middle Eastern nations taking part in the U.S.-led military coalition against ISIS.

Displaced Assyrian women who fled their homes due to ISIS attacks pray at a church on the outskirts of Damascus, Syria, on Sunday, March 1. ISIS militants abducted at least 220 Assyrians in Syria.

Displaced Assyrian women who fled their homes due to ISIS attacks pray at a church on the outskirts of Damascus, Syria, on Sunday, March 1. ISIS militants abducted at least 220 Assyrians in Syria.

Iraqi Shiite fighters cover their ears as a rocket is launched during a clash with ISIS militants in the town of Al-Alam, Iraq, on Monday, March 9.

Iraqi Shiite fighters cover their ears as a rocket is launched during a clash with ISIS militants in the town of Al-Alam, Iraq, on Monday, March 9.

The parents of 19-year-old Mohammed Musallam react at the family's home in the East Jerusalem Jewish settlement of Neve Yaakov on Tuesday, March 10. ISIS released a video purportedly showing a young boy executing Musallam, an Israeli citizen of Palestinian descent who ISIS claimed infiltrated the group in Syria to spy for the Jewish state. Musallam's family told CNN that he had no ties with the Mossad, Israel's spy agency, and had, in fact, been recruited by ISIS.

On April 1, Shiite militiamen celebrate the retaking of Tikrit, which had been under ISIS control since June. The push into Tikrit came days after U.S.-led airstrikes targeted ISIS bases around the city.

On April 1, Shiite militiamen celebrate the retaking of Tikrit, which had been under ISIS control since June. The push into Tikrit came days after U.S.-led airstrikes targeted ISIS bases around the city.

People in Tikrit inspect what used to be a palace of former President Saddam Hussein on April 3.

People in Tikrit inspect what used to be a palace of former President Saddam Hussein on April 3.

A Yazidi woman mourns for the death of her husband and children by ISIS after being released south of Kirkuk on April 8. ISIS is known for killing dozens of people at a time and carrying out public executions, crucifixions and other acts.

A Yazidi woman mourns for the death of her husband and children by ISIS after being released south of Kirkuk on April 8. ISIS is known for killing dozens of people at a time and carrying out public executions, crucifixions and other acts.

Kurdish Peshmerga forces help Yazidis as they arrive at a medical center in Altun Kupri, Iraq, on April 8.

Kurdish Peshmerga forces help Yazidis as they arrive at a medical center in Altun Kupri, Iraq, on April 8.

Yazidis embrace after being released by ISIS south of Kirkuk, Iraq, on Wednesday, April 8. ISIS released more than 200 Yazidis , a minority group whose members were killed, captured and displaced when the Islamist terror organization overtook their towns in northern Iraq last summer, officials said.

Thousands of Iraqis cross a bridge over the Euphrates River to Baghdad as they flee Ramadi on Friday, April 17.

Thousands of Iraqis cross a bridge over the Euphrates River to Baghdad as they flee Ramadi on Friday, April 17.

A member of Afghanistan's security forces stands at the site where a suicide bomber on a motorbike blew himself up in front of the Kabul Bank in Jalalabad, Afghanistan, on Saturday, April 18. ISIS claimed responsibility for the attack. The explosion killed at least 33 people and injured more than 100 others, a public health spokesman said.

A member of Afghanistan's security forces stands at the site where a suicide bomber on a motorbike blew himself up in front of the Kabul Bank in Jalalabad, Afghanistan, on Saturday, April 18. ISIS claimed responsibility for the attack. The explosion killed at least 33 people and injured more than 100 others, a public health spokesman said.

Iraqi soldiers fire their weapons toward ISIS group positions in the Garma district, west of the Iraqi capital of Baghdad, on Sunday, April 26. Pro-government forces said they had recently made advances on areas held by Islamist jihadists.

Iraqi soldiers fire their weapons toward ISIS group positions in the Garma district, west of the Iraqi capital of Baghdad, on Sunday, April 26. Pro-government forces said they had recently made advances on areas held by Islamist jihadists.

People search through debris after an explosion at a Shiite mosque in Qatif, Saudi Arabia, on Friday, May 22. ISIS claimed responsibility for the attack, according to tweets from ISIS supporters, which included a formal statement from ISIS detailing the operation.

Residents examine a damaged mosque after an Iraqi Air Force bombing in the ISIS-seized city of Falluja, Iraq, on Sunday, May 31. At least six were killed and nine others wounded during the bombing.

Residents examine a damaged mosque after an Iraqi Air Force bombing in the ISIS-seized city of Falluja, Iraq, on Sunday, May 31. At least six were killed and nine others wounded during the bombing.

Syrians wait near the Turkish border during clashes between ISIS and Kurdish armed groups in Kobani, Syria, on Thursday, June 25. The photo was taken in Sanliurfa, Turkey. ISIS militants disguised as Kurdish security forces infiltrated Kobani on Thursday and killed "many civilians," said a spokesman for the Kurds in Kobani.

Syrians wait near the Turkish border during clashes between ISIS and Kurdish armed groups in Kobani, Syria, on Thursday, June 25. The photo was taken in Sanliurfa, Turkey. ISIS militants disguised as Kurdish security forces infiltrated Kobani on Thursday and killed "many civilians," said a spokesman for the Kurds in Kobani.

People in Ashmoun, Egypt, carry the coffin for 1st Lt. Mohammed Ashraf, who was killed when the ISIS militant group attacked Egyptian military checkpoints on Wednesday, July 1. At least 17 soldiers were reportedly killed, and 30 were injured.

Protesters in Istanbul carry anti-ISIS banners and flags to show support for victims of the Suruc suicide blast during a demonstration on Monday, July 20.

Protesters in Istanbul carry anti-ISIS banners and flags to show support for victims of the Suruc suicide blast during a demonstration on Monday, July 20.

Mourners in Gaziantep, Turkey, grieve over a coffin Tuesday, July 21, during a funeral ceremony for the victims of a suspected ISIS suicide bomb attack. That bombing killed at least 31 people in Suruc, a Turkish town that borders Syria. Turkish authorities blamed ISIS for the attack.

Saudi officials and investigators check the inside of the mosque on August 6.

Saudi officials and investigators check the inside of the mosque on August 6.

The governor of the Asir region in Saudi Arabia, Prince Faisal bin Khaled bin Abdulaziz, left, visits a man who was wounded in a suicide bombing attack on a mosque in Abha, Saudi Arabia, on August 6. ISIS claimed responsibility for the explosion, which killed at least 13 people and injured nine others.

Buildings reduced to piles of debris can be seen in the eastern suburbs of Ramadi on August 6.

Buildings reduced to piles of debris can be seen in the eastern suburbs of Ramadi on August 6.

Smoke rises as Iraqi security forces bomb ISIS positions in the eastern suburbs of Ramadi, Iraq, on August 6.

Smoke rises as Iraqi security forces bomb ISIS positions in the eastern suburbs of Ramadi, Iraq, on August 6.

An ISIS fighter poses with spoils purportedly taken after capturing the Syrian town of al-Qaryatayn.

An ISIS fighter poses with spoils purportedly taken after capturing the Syrian town of al-Qaryatayn.

In this image taken from social media, an ISIS fighter holds the group's flag after the militant group overran the Syrian town of al-Qaryatayn on Thursday, August 6, the London-based Syrian Observatory for Human Rights reported. ISIS uses modern tools such as social media to promote reactionary politics and religious fundamentalism. Fighters are destroying holy sites and valuable antiquities even as their leaders propagate a return to the early days of Islam.

Iraqi men look at damage following a bomb explosion that targeted a vegetable market in Baghdad on Thursday, August 13. ISIS claimed responsibility for the attack.

Iraqi men look at damage following a bomb explosion that targeted a vegetable market in Baghdad on Thursday, August 13. ISIS claimed responsibility for the attack.

Smoke rises above a damaged building in Ramadi, Iraq, following a coalition airstrike against ISIS positions on Saturday, August 15.

Smoke rises above a damaged building in Ramadi, Iraq, following a coalition airstrike against ISIS positions on Saturday, August 15.

Shiite fighters, fighting alongside Iraqi government forces, fire a rocket at ISIS militants as they advance toward the center of Baiji, Iraq, on Monday, October 19.

Shiite fighters, fighting alongside Iraqi government forces, fire a rocket at ISIS militants as they advance toward the center of Baiji, Iraq, on Monday, October 19.

An explosion rocks Kobani, Syria, during a reported car bomb attack by ISIS militants on Tuesday, October 20.

An explosion rocks Kobani, Syria, during a reported car bomb attack by ISIS militants on Tuesday, October 20.

Members of the Egyptian military approach the wreckage of a Russian passenger plane Sunday, November 1, in Hassana, Egypt. The plane crashed the day before, killing all 224 people on board. ISIS claimed responsibility for downing the plane, but the group's claim wasn't immediately verified.

Syrian government troops walk inside the Kweiras air base on Wednesday, November 11, after they broke a siege imposed by ISIS militants.

Syrian government troops walk inside the Kweiras air base on Wednesday, November 11, after they broke a siege imposed by ISIS militants.

Smoke rises over the northern Iraqi town of Sinjar on November 12. Kurdish Iraqi fighters, backed by a U.S.-led air campaign, retook the strategic town, which ISIS militants overran last year. ISIS wants to create an Islamic state across Sunni areas of Iraq and Syria.

Emergency personnel and civilians gather at the site of a twin suicide bombing in Beirut, Lebanon, on Thursday, November 12. The bombings killed at least 43 people and wounded more than 200 more. ISIS appeared to claim responsibility in a statement posted on social media.

Wounded people are helped outside the Bataclan concert hall in Paris following a series of coordinated attacks in the city on Friday, November 13. The militant group ISIS claimed responsibility for the attacks, which killed at least 130 people and wounded hundreds more.

Investigators check the scene of a mosque attack Friday, November 27, in northern Bangladesh's Bogra district. ISIS has claimed responsibility for the attack that left at least one person dead and three more wounded.

Yemenis check the scene of a car bomb attack Sunday, December 6, in Aden, Yemen. Aden Gov. Jaafar Saad and six bodyguards died in the attack , for which the terror group ISIS claimed responsibility.

Syrian pro-government forces gather at the site of a deadly triple bombing Sunday, January 31, in the Damascus suburb of Sayeda Zeynab . ISIS claimed responsibility for the attack, according to a statement circulating online from supporters of the terrorist group.

Syrians gather at the site of a double car bomb attack in the Al-Zahraa neighborhood of the Homs, Syria, on February 21, 2016. Multiple attacks in Homs and southern Damascus kill at least 122 and injure scores, according to the state-run SANA news agency. ISIS claimed responsibility.

Wounded passengers are treated following a suicide bombing at the Brussels Airport on March 22, 2016. The attacks on the airport and a subway killed 32 people and wounded more than 300. ISIS claims its "fighters" launched the attacks in the Belgian capital.

"I would not recommend that we put U.S. forces in harm's way simply to stiffen the spine of local forces," Dempsey said. "If their spine is not stiffened by the threat of ISIL or their way of life, nothing we do is going to stiffen their spine."

Carter and Dempsey delivered their outline of the Obama administration's strategy for countering ISIS as it contributes to an increasingly unstable Iraq, 12 years after the launch of the Iraq War. They also discussed training Sunni tribes' fighters as part of the decision announced last week to send 450 additional U.S. forces to the country.

In explaining why Iraqi forces were not equipped more quickly, Carter said the process was "sometimes delayed by bureaucracy in Baghdad, but occasionally also in Washington."

"That is why we are now expediting delivery of essential equipment and material, like anti-tank capabilities and counter-IED equipment, to the Iraqi security forces -- including Kurdish and Sunni tribal forces," Carter said.

Carter also said that the U.S. has not been receiving the help it needs from the Iraqi government, repeating a critique he made last month that Iraqi forces showed "no will to fight" during the fall of Ramadi to ISIS forces.

Dempsey, who is retiring shortly, said that a number of factors, including the various regional governments struggling to establish legitimacy, have contributed to the instability which has slowly dragged the U.S. back into the Iraq conflict.

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But, Dempsey said, "Enduring stability cannot be imposed from the outside in. Stability must be cultivated from the inside out."

'Are we winning?'

Carter addressed what would happen if a "multi-sectarian Iraq" -- a country where Sunnis, Shiites and Kurds live together -- is not possible.

"If that government can't do what it's supposed to do, then we will still try to enable local ground forces, if they're willing to partner with us, to keep stability in Iraq," he said. "But there will not be a single state of Iraq."

At one point, an exchange between Dempsey and Minnesota Republican Rep. John Kline became contentious over the situation.

"Where are we in Iraq today?" Kline asked. "Are we winning? Are we losing? Is it a stalemate? Is it a quagmire? What is Iraq today?"

A testy Dempsey pushed back against what he said was the congressman's use of "the personal pronoun 'we,'" saying it was up to the Iraqis, not the U.S., to prevail in the country.

"This has to be them, right? So if you're asking, 'Is the United States winning?' that's the wrong question," the general replied.

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He went on to highlight the "lily pad" strategy announced last week that could require opening multiple outposts at Iraqi bases near the front lines to build what he said Wednesday would be "a network of regional stakeholders to confront this threat, because, frankly, that's the only way it will be resolved."

Kline, however, was unconvinced.

"We really don't have a strategy. You've articulated a piece of what would be sort of a strategy," he said.

Washington Rep. Adam Smith, the panel's top Democrat, asked aloud if a unified Iraq was still salvageable.

"The cow has left the barn," Smith said. "You can make a pretty powerful argument that Iraq is no more."

At one point, a protester who affiliated herself with Code Pink interrupted the proceedings.

"We need a political solution," she shouted. "Not a military solution."