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February 9, 2022
U.S. Security Assistance to Ukraine
In response to Russia’s recent escalation of military
defense institutions for about 370 junior, mid-level, and
pressure on Ukraine, the Biden Administration and the
senior Ukrainian military officers.
117th Congress have considered multiple options to boost
security assistance to Ukraine. Even prior to recent
Through the Joint Multinational Training Group-Ukraine,
established in 2015, the U.S. Army and National Guard,
tensions, Ukraine was a leading recipient of U.S. military
aid in Europe and Eurasia. Since Russia’s 2014 invasion of
together with military trainers from U.S. allied states, have
provided training, mentoring, and doctrinal assistance to the
Ukraine, the United States has committed more than $2.7
billion in State and Defense Department (DOD)-funded
UAF. The U.S. military also conducts joint military
exercises with Ukraine. Separately, U.S. Special Operations
security assistance to help Ukraine defend its territorial
integrity and improve interoperability with the North
Forces have trained and advised Ukrainian Special Forces.
Other State Department and DOD-funded security
Atlantic Treaty Organization (NATO).
assistance has supported conventional weapons destruction,
Overview of Programs Since 2014
border security, law enforcement training, and counter-
weapons of mass destruction capabilities.
The United States has used a variety of security assistance
programs and authorities to help build the defensive
Provision of Defense Equipment
capacity of the Ukrainian Armed Forces (UAF) through
After Russia’s 2014 invasion of Ukraine, the Obama
train, equip, and advise efforts across multiple spending
accounts. Two of the primary mechanisms are State’s
Administration limited its support to Ukraine to nonlethal
security assistance items, such as body armor, helmets,
Foreign Military Financing (FMF; 22 U.S.C. §2763) and
DOD’s Ukraine Security Assistance Initiative (USAI; P.L.
vehicles, night and thermal vision devices, heavy
engineering equipment, advanced radios, patrol boats,
114-92, §1250) (see Table 1).
rations, tents, counter-mortar radars, uniforms, medical kits,
USAI packages have included training, equipment, and
and other related items. In 2017, the Trump Administration
advisory efforts to enhance Ukraine’s defensive capabilities
announced U.S. willingness to provide lethal weapons to
such as maritime domain awareness, operational safety and
Ukraine.
capacity of Air Force bases, and the lethality, command and
control, and survivability of the UAF. USAI also supports
Since 2018, Ukraine has used FMF, as well as some of its
national funds, to procure U.S. defense equipment,
cyber defense and strategic communications to counter
Russian cyberattacks and misinformation. A large portion
including Javelin anti-armor missiles and Mark VI patrol
boats through the Foreign Military Sales (FMS) system.
of annual USAI funds are contingent on DOD and State
Ukraine also has used a combination of FMF and national
certifying Ukraine’s progress on key defense reforms.
funds to refurbish former U.S. Coast Guard Island-class
Ukraine also has received assistance pursuant to DOD’s
patrol boats provided through the Excess Defense Articles
security cooperation authorities, notably 10 U.S.C. §333
(EDA; 22 USC §2321j) program. In addition, Ukraine has
and 10 U.S.C. §332. Section 333 authorizes training,
purchased firearms, ammunition, ordnance, and other laser,
equipping, and small-scale military construction for specific
imaging, or guidance equipment directly from U.S.
types of operations. Section 332 promotes civilian control
suppliers via the Direct Commercial Sales process.
of the military and places civilian advisors from DOD in
Ukraine’s Ministry of Defense.
According to DOD, USAI packages have provided sniper
rifles, rocket-propelled grenade launchers, counter-artillery
The Presidential Drawdown Authority (PDA), in which the
radars, Mark VI patrol boats, electronic warfare detection
President can authorize the transfer of articles and services
and secure communications, satellite imagery and analysis
from U.S. stocks without congressional approval in
capability, counter-unmanned aerial systems, air
response to an “unforeseen emergency,” also has provided
surveillance systems to monitor sovereign airspace, night
defense items to Ukraine since 2014. In August 2021, the
vision devices, and equipment to support military medical
Biden Administration authorized a $60 million drawdown
treatment and combat evacuation procedures.
(Foreign Assistance Act, §506(a)(1)) for the immediate
Both PDA packages in 2021 included Javelins and other
transfer of defense items from DOD stocks. In December
2021, the Administration authorized a $200 million
anti-armor systems, small arms, various calibers of
drawdown after Congress, through passage of P.L. 117-70,
ammunition, and other essential nonlethal equipment.
increased the §506(a)(1) cap from $100 million to $200
According to recent media reports, the State Department
million.
approved export licenses for Estonia, Latvia, and Lithuania
Since 2014, Ukraine also has received International
to retransfer U.S.-provided Stinger anti-aircraft weapons
systems and Javelin missile systems to Ukraine. Through
Military Education and Training (IMET) assistance, which
has provided professional military education at U.S.
the EDA program, the U.S. reportedly redirected Mi-17
helicopters originally intended for Afghanistan.
https://crsreports.congress.gov
U.S. Security Assistance to Ukraine
Table 1. Primary U.S. Security Assistance to Ukraine, FY2015-FY2022
(selected account al ocations, in thousands of dol ars)
FY2015 FY2016 FY2017 FY2018 FY2019 FY2020 FY2021 (est.) FY2022 (req.)
Foreign Military Financing
47,000
85,000
99,000
95,000
115,000 115,000 115,000
115,000
Ukraine Security Assistance Initiative
226,530 148,636 195,450 214,800 256,701 275,000
250,000
Sources: State Department Congressional Budget Justifications and Defense Department Budget Requests.
Notes: Amount does not include security and nonproliferation assistance periodical y provided via other accounts.
Discussion on Future Assistance
DUSA and the GUARD Act urge the U.S. government to
Since 2014, U.S. policy increasingly has emphasized
provide FMF as direct loans to Ukraine in addition to the
supporting the UAF’s ability to deter Russia and defend its
authorized FMF grants. Another recently introduced bill,
territorial integrity. Much of U.S. assistance has been
the Ukraine Democracy Defense Lend-Lease Act of 2022
focused on providing systems and capabilities that
(S. 3522, introduced 1/19/2022), would modify provisions
Ukraine’s domestic defense industry cannot produce, as
in the Lease of Defense Articles authority (22 U.S.C.
well as on increasing UAF resilience and ability to sustain
§2796) to exclude Ukraine from certain requirements and
combat operations. U.S. officials continue to receive
preconditions, such as the five-year limit on leased items
requests from Ukraine for assistance and have sent teams to
and an agreement to pay for all costs incurred by the U.S.
evaluate Ukrainian abilities and needs. Ukrainian officials
government in leasing such articles, including
have expressed interest in acquiring advanced systems,
reimbursement for depreciation of leased items, restoration
including air defense, anti-missile, and anti-ship
costs, or replacement costs.
capabilities.
Potential Considerations for Congress
Recent Legislation
In consideration of increased security assistance funds for
In response to the threat of a new Russian invasion of
Ukraine, some differences exist across authorities. FMF
Ukraine, Congress has authorized or proposed increased
allocates funds for the acquisition of U.S. defense articles
funding levels for existing security assistance authorities
and services through the FMS system, in which the partner
and introduced multiple bills aimed at bolstering Ukraine’s
nation makes the initial request based on its defense needs.
defensive capabilities. The National Defense Authorization
DOD-funded programs, such as USAI and Section 333, are
Act for FY2022 (P.L. 117-81) authorized $300 million for
U.S-initiated and do not involve a partner request, although
USAI, of which $75 million is allotted for lethal assistance.
the partner’s defense needs are defined in consultation with
the partner nation.
The Defending Ukraine Sovereignty Act (DUSA) (S. 3488,
introduced 1/12/2022; H.R. 6470, introduced 1/21/2022)
FMF funds could offer some flexibility as those
would authorize $500 million in emergency supplemental
appropriated funds are multiyear and allow for a wide range
FMF for Ukraine. The Guaranteeing Ukrainian Autonomy
of possible activities. However, FMF is subject to a number
by Reinforcing its Defense (GUARD) Act (S. 3407,
of legal and policy restrictions on its uses. Moreover,
introduced 12/15/2021; H.R. 6367, introduced 1/10/2022)
Ukraine is not eligible to use its FMF for Direct
would authorize an increase in Ukraine’s FY2022 FMF to
Commercial Contracts.
$450 million. In the versions of the GUARD Act, S. 3407
Security assistance funding increases would not necessarily
would set aside $100 million and H.R. 6367 would set aside
result in faster transfers of defense items since many of the
$200 million for Ukrainian air defense capabilities,
authorities discussed are still subject to the annual budget
procurement of naval vessels, and maintenance for
cycle. Some factors that could affect the speed of transfers
equipment provided. Both DUSA and the GUARD Act
include procurement type, equipment availability and
would require a 15-day notice to Congress, including a
location, and logistical, transportation, and technology
description of the types, objectives, budget, and estimated
release considerations. Additionally, as both DUSA and the
timelines of assistance to be provided through FMF.
GUARD Act address, higher dollar value thresholds and
Similarly, the bills would authorize FY2022 IMET funds at
shorter or waived congressional review periods could
$3 million and $4 million, respectively.
potentially speed up the delivery of equipment.
DUSA prioritizes Ukraine within existing mechanisms for
Another consideration is Ukraine’s capacity to absorb any
the transfer, expedited procurement, and lease of defense
uptick in defense transfers, including new and more
items. DUSA also requires the State Department to report
advanced systems. New systems would require time to train
on plans to retransfer defense articles previously allocated
personnel, integrate into operational plans, and finally
for Afghanistan. The GUARD Act would add Ukraine to
deploy. Advanced weapons systems also require significant
the list of priority countries for EDA during FY2022-2026.
resources to maintain and continually train new personnel.
The H.R. 6367 version of the GUARD Act also would
Congress may consider the potential impact that new and
temporarily allow for certain privileges, such as shorter
advanced systems could have on Ukraine’s readiness.
congressional review periods and higher dollar thresholds
Similarly, Congress may consider how to balance Ukraine’s
in the FMS process. Both DUSA and the GUARD Act
urgent and short-term defense needs with the long-term and
would authorize the use of PDA during FY2022, but both
sustainable development of its forces.
versions of the GUARD Act add the phrase “without
diminishing the dollar limitation available ... for such
Christina L. Arabia, Analyst in Security Assistance,
[FY].” It is unclear if the bills would replenish the PDA
Security Cooperation and the Global Arms Trade
account prior to further authorizations in FY2022 and
Andrew S. Bowen, Analyst in Russian and European
whether the dollar cap would be increased.
Affairs
https://crsreports.congress.gov
U.S. Security Assistance to Ukraine
IF12040
Cory Welt, Specialist in Russian and European Affairs
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https://crsreports.congress.gov | IF12040 · VERSION 1 · NEW