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Updated March 14, 2022
U.S. Security Assistance to Ukraine
In advance of Russia’s attack on Ukraine, the Biden
Administration previously authorized a $60 million
Administration and the 117th Congress had boosted security
drawdown in August 2021 and a $200 million drawdown in
assistance to Ukraine and continue to consider further
December 2021.
options. Since Russia launched its invasion in February
Ukraine also has received assistance pursuant to DOD’s
2022, the Biden Administration has authorized a total of
$550 million to provide immediate security assistance “to
security cooperation authorities, notably 10 U.S.C. §333
and 10 U.S.C. §332. Section 333 authorizes training,
help Ukraine meet the armored, airborne, and other threats
equipping, and small-scale military construction for specific
it is facing.”
types of operations. Section 332 promotes civilian control
In addition, the Ukraine Supplemental Appropriations Act,
of the military and places civilian advisors from DOD in
2022 (H.R. 2471, Division N) includes $3.5 billion to
Ukraine’s Ministry of Defense.
replenish Department of Defense (DOD) equipment stocks
that have been or are to be sent to Ukraine, $300 million for
Since 2014, Ukraine also has received International
DOD’s Ukraine Security Assistance Initiative (USAI
Military Education and Training (IMET) assistance, which
), and
$650 million in Foreign Military Financing (FMF) for
has provided professional military education at U.S.
defense institutions for junior, mid-level, and senior
Ukraine and “countries impacted by the situation in
Ukrainian military officers.
Ukraine.”
Through the Joint Multinational Training Group-Ukraine,
Even prior to the start of the war, Ukraine was a leading
recipient of U.S. military aid in Europe and Eurasia. From
established in 2015, the U.S. Army and National Guard,
together with military trainers from U.S. allied states,
2014, when Russia first invaded Ukraine, through February
2022, the United States committed more than $3 billion in
provided training, mentoring, and doctrinal assistance to the
UAF before the war (at a western Ukrainian training facility
State Department- and DOD-funded security assistance “to
help Ukraine preserve its territorial integrity, secure its
that was the target of a Russian missile strike in March
2022). The U.S. military also conducts joint military
borders, and improve interoperability with NATO.”
exercises with Ukraine. Separately, U.S. Special Operations
Overview of Programs Since 2014
Forces have trained and advised Ukrainian special forces.
Other State Department- and DOD-funded security
The United States has used a variety of security assistance
assistance has supported conventional weapons destruction,
programs and authorities to help build the defensive
border security, law enforcement training, and counter-
capacity of the Ukrainian Armed Forces (UAF) through
weapons of mass destruction capabilities.
train, equip, and advise efforts across multiple spending
accounts. Two of the primary mechanisms are the State
Provision of Defense Equipment
Departmen’s FMF (22 U.S.C. §2763) and DOD’s Ukraine
Security Assistance Initiative (USAI; P.L. 114-92, §1250)
After Russia first invaded Ukraine in 2014, the Obama
Administration provided Ukraine nonlethal security
(see Table 1).
assistance, such as body armor, helmets, vehicles, night and
USAI packages have included training, equipment, and
thermal vision devices, heavy engineering equipment,
advisory efforts to enhance Ukraine’s defensive capabilities
advanced radios, patrol boats, rations, tents, counter-mortar
such as maritime domain awareness; operational safety and
radars, uniforms, medical kits, and other related items. In
capacity of air force bases; and the lethality, command and
2017, the Trump Administration announced U.S.
control, and survivability of the UAF. USAI also supports
willingness to provide lethal weapons to Ukraine.
cyber defense and strategic communications to counter
Russian cyberattacks and misinformation. A large portion
Since 2018, Ukraine has used FMF, as well as some of its
national funds, to procure U.S. defense equipment,
of annual USAI funds is contingent on DOD and the State
Department certifying Ukraine’s progress on key defense
including Javelin anti-armor missiles and Mark VI patrol
boats, through the Foreign Military Sales (FMS) system.
reforms.
Ukraine also has used a combination of FMF and national
The Presidential Drawdown Authority (PDA), in which the
funds to refurbish former U.S. Coast Guard Island-class
President can authorize the immediate transfer of articles
patrol boats provided through the Excess Defense Articles
and services from U.S. stocks without congressional
(EDA; 22 U.S.C. §2321j) program. In addition, Ukraine has
approval in response to an “unforeseen emergency,” also
purchased firearms, ammunition, ordnance, and other laser,
has provided defense items to Ukraine (Foreign Assistance
imaging, or guidance equipment directly from U.S.
Act, §506(a)(1)). In February and March 2022, the Biden
suppliers via the Direct Commercial Sales process.
Administration authorized drawdowns of, respectively,
$350 million and $200 million. In addition, the
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 millions of dol ars)
FY2015 FY2016
FY2017
FY2018
FY2019
FY2020
FY2021
FY2022
Foreign Military Financing
47.0
85.0
99.0
95.0
115.0
115.0
115.0 (est.)
115.0 (req.)
Ukraine Security Assistance Initiative
-
226.5
148.6
195.5
214.8
256.7
275.0 (est.)
300.0 (appr.)
Sources: State Department Congressional Budget Justifications, Defense Department Budget Requests, and H.R. 2471.
Notes: Amount does not include security and nonproliferation assistance periodical y provided via other accounts.
According to DOD, USAI packages have provided sniper
The H.R. 6367 version of the GUARD Act also would
rifles, rocket-propelled grenade launchers, counter-artillery
temporarily allow for certain privileges, such as shorter
radars, Mark VI patrol boats, electronic warfare detection
congressional review periods and higher dollar thresholds
and secure communications, satellite imagery and analysis
in the FMS process. The GUARD Act also would require
capability, counter-unmanned aerial systems, air
the Secretaries of State and Defense to submit a strategy for
surveillance systems to monitor sovereign airspace, night
encouraging third countries to donate excess defense
vision devices, and equipment to support military medical
equipment to Ukraine. Additionally, H.R. 6367 would
treatment and combat evacuation procedures.
require the strategy to include steps to reimburse or
otherwise incentivize third countries to donate excess
The 2021 and 2022 PDA packages included Javelins and
defense equipment to Ukraine. The H.R. 6742 version of
other anti-armor systems, small arms, various calibers of
the NYET Act would include provisions to temporarily
ammunition, and other essential nonlethal equipment. The
expedite the congressional review of arms sales to Ukraine.
first 2022 package of $350 million also included Stinger
anti-aircraft weapons. In addition, the Biden Administration
DUSA would also require the State Department to report on
notified Congress of its intent to redirect Mi-17 helicopters
plans to retransfer defense articles previously allocated for
originally for Afghanistan through the EDA program.
Afghanistan. The Ukraine Emergency Appropriations Act
of 2022 (S. 3724) would appropriate $1 billion to transfer
Several NATO and European Union (EU) members also
small arms and light weapons previously allocated for the
have provided weapons and other military assistance to
Afghan security forces, as well as additional U.S. defense
Ukraine either immediately prior to or following Russia’s
equipment, to Ukraine.
invasion. In addition, the Biden Administration has
authorized third-party transfers of U.S. defense articles and
DUSA and the NYET Act urge the U.S. government to
equipment from NATO and EU members to Ukraine.
utilize its lease authority, including no-cost leases. The
Discussion on Future Assistance
Ukraine Democracy Defense Lend-Lease Act of 2022 (S.
3522; H.R. 6753) would modify provisions in the Lease of
Since 2014, U.S. policy increasingly emphasized
Defense Articles authority (22 U.S.C. §2796) to exclude
supporting the UAF’s ability to deter Russia and defend its
Ukraine from certain requirements such as reimbursement.
territorial integrity. Much of U.S. assistance has been
focused on providing systems and capabilities that
The NYET Act would establish a Ukraine resistance fund
Ukraine’s domestic defense industry cannot produce, as
to provide U.S. defense items and training to Ukraine’s
well as on increasing UAF resilience and ability to sustain
security forces and “appropriately vetted Ukrainian groups
combat operations. Before the war, the U.S. government
and individuals.” The Supplying Ukraine with Provisions to
had sent teams to evaluate Ukrainian abilities and needs.
Protect against Ongoing Russian Threats (SUPPORT) Act
U.S. officials have continued, since the start of the war, to
(H.R. 6777) would expand U.S. security assistance and
receive requests from Ukraine for greater assistance.
intelligence sharing to a Ukrainian insurgency.
Ukrainian officials have expressed interest in acquiring
Potential Considerations for Congress
advanced systems, including fighter aircraft, anti-ship, and
Some factors that could affect the speed of transfers include
additional air defense and anti-missile capabilities.
procurement type, equipment availability and location, and
Recent Legislation
logistical, transportation, and technology release
Prior to and immediately following Russia’s attack on
considerations. Additionally, as some of the bills discussed
Ukraine, Congress has authorized or proposed increased
above address, higher dollar value thresholds and shorter or
funding levels for existing security assistance authorities
waived congressional review periods could potentially
and introduced multiple bills aimed at bolstering Ukraine’s
speed up the delivery of equipment.
defensive capabilities.
Congress may consider what weapon systems Ukrainian
In addition to the Ukraine Supplemental Appropriations
forces are using most effectively and their ability to rapidly
Act, recently proposed legislation prioritizes Ukraine within
utilize new or more advanced systems. New systems can
existing mechanisms for the transfer, expedited
require time to train personnel, integrate into operational
procurement, and lease of defense items. The Defending
plans, deploy, and maintain. Congress also may consider
Ukraine Sovereignty Act (DUSA) (S. 3488; H.R. 6470)
the risks of further military escalation, including the
would prioritize Ukraine over other countries for the
potential for Russia to attack NATO member states to
transfer of defense articles through EDA in FY2022. The
prevent support from reaching Ukraine.
Never Yielding Europe’s Territory (NYET) Act of 2022 (S.
3652; H.R. 6742) and the Guaranteeing Ukrainian
Christina L. Arabia, Analyst in Security Assistance,
Autonomy by Reinforcing its Defense (GUARD) Act (S.
Security Cooperation and the Global Arms Trade
3407; H.R. 6367) would add Ukraine to the list of priority
Andrew S. Bowen, Analyst in Russian and European
countries for EDA during FY2022-FY2023 and FY2022-
Affairs
FY2026, respectively.
Cory Welt, Specialist in Russian and European Affairs
https://crsreports.congress.gov
U.S. Security Assistance to Ukraine
IF12040
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https://crsreports.congress.gov | IF12040 · VERSION 3 · UPDATED