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Updated March 28, 2022
U.S. Security Assistance to Ukraine
In advance of Russia’s attack on Ukraine, the Biden
the 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
$1.35 billion 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 (P.L. 117-103, 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 and $650 million
Since 2014, Ukraine also has received International
Military Education and Training (IMET) assistance, which
in Foreign Military Financing (FMF) for Ukraine and
“countries impacted by the situation in Ukraine.” Defense
has provided professional military education at U.S.
appropriations also include $300 million for DOD’s
defense institutions for junior, mid-level, and senior
Ukrainian military officers.
Ukraine Security Assistance Initiative (USAI).
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 March
2022, the United States has committed more than $4 billion
provided training, mentoring, and doctrinal assistance to the
UAF before the war (at a western Ukrainian training facility
in 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
Department’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, $200 million, and $800 million. In addition,
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
countries for EDA during FY2022-FY2023 and FY2022-
rifles, rocket-propelled grenade launchers, counter-artillery
FY2026, respectively.
radars, Mark VI patrol boats, electronic warfare detection
The H.R. 6367 version of the GUARD Act also would
and secure communications, satellite imagery and analysis
capability, counter-unmanned aerial systems, air
temporarily allow for certain privileges, such as shorter
congressional review periods and higher dollar thresholds
surveillance systems to monitor sovereign airspace, night
vision devices, and equipment to support military medical
in the FMS process, and would require the Administration
to submit a strategy to encourage, reimburse, or otherwise
treatment and combat evacuation procedures.
incentivize third countries to donate excess defense
According to the White House, recent PDA packages have
equipment to Ukraine. The H.R. 6742 version of the NYET
included Javelins and other anti-armor systems, Stinger
Act would include provisions to temporarily expedite the
anti-aircraft systems, tactical unmanned aerial systems,
congressional review of arms sales to Ukraine.
grenade launchers, small arms, various calibers of
ammunition, and other essential nonlethal equipment. In
DUSA would also require the State Department to report on
plans to retransfer defense articles previously allocated for
addition, the Biden Administration notified Congress of its
intent to redirect Mi-17 helicopters originally for
Afghanistan. The Ukraine Emergency Appropriations Act
of 2022 (S. 3724) would appropriate $1 billion to transfer
Afghanistan through the EDA program.
small arms and light weapons previously allocated for the
Several NATO and European Union (EU) members also
Afghan security forces, as well as additional U.S. defense
have provided weapons and other military assistance to
equipment, to Ukraine.
Ukraine either immediately prior to or following Russia’s
DUSA and the NYET Act urge the U.S. government to
invasion. In addition, the Biden Administration has
authorized third-party transfers of U.S. defense articles and
utilize its lease authority, including no-cost leases. The
Ukraine Democracy Defense Lend-Lease Act of 2022 (S.
equipment from NATO and EU members to Ukraine.
3522; H.R. 6753) would modify provisions in the Lease of
Discussion on Future Assistance
Defense Articles authority (22 U.S.C. §2796) to exclude
Ukraine from certain requirements such as reimbursement.
Since 2014, U.S. policy increasingly emphasized
supporting the UAF’s ability to deter Russia and defend its
The NYET Act would establish a Ukraine resistance fund
territorial integrity. Much of U.S. assistance has been
to provide U.S. defense items and training to Ukraine’s
focused on providing systems and capabilities that
security forces and “appropriately vetted Ukrainian groups
Ukraine’s domestic defense industry cannot produce, as
and individuals.” The Supplying Ukraine with Provisions to
well as on increasing UAF resilience and ability to sustain
Protect against Ongoing Russian Threats (SUPPORT) Act
combat operations. Before the war, the U.S. government
(H.R. 6777) would expand U.S. security assistance and
had sent teams to evaluate Ukrainian abilities and needs.
intelligence sharing to a Ukrainian insurgency.
U.S. officials have continued, since the start of the war, to
Potential Considerations for Congress
receive requests from Ukraine for greater assistance.
Ukrainian officials have expressed interest in acquiring
Some factors that could affect the speed of transfers include
advanced systems, including fighter aircraft, anti-ship, and
procurement type, equipment availability and location, and
additional air defense and anti-missile capabilities.
logistical, transportation, and technology release
considerations. Additionally, as some of the bills discussed
Recent Legislation
above address, higher dollar value thresholds and shorter or
Prior to and immediately following Russia’s attack on
waived congressional review periods could potentially
Ukraine, Congress has authorized or proposed increased
speed up the delivery of equipment.
funding levels for existing security assistance authorities
and introduced multiple bills aimed at bolstering Ukraine’s
Congress may consider what weapon systems Ukrainian
defensive capabilities.
forces are using most effectively and their ability to rapidly
utilize new or more advanced systems. New systems can
In addition to the Ukraine Supplemental Appropriations
require time to train personnel, integrate into operational
Act, recently proposed legislation prioritizes Ukraine within
plans, deploy, and maintain. Congress also may consider
existing mechanisms for the transfer, expedited
whether providing more sophisticated weaponry risks
procurement, and lease of defense items. The Defending
further military escalation, including the potential for
Ukraine Sovereignty Act (DUSA) (S. 3488; H.R. 6470)
Russia to attack NATO member states to prevent support
would prioritize Ukraine over other countries for the
from reaching Ukraine.
transfer of defense articles through EDA in FY2022. The
Never Yielding Europe’s Territory (NYET) Act of 2022 (S.
Christina L. Arabia, Analyst in Security Assistance,
3652; H.R. 6742) and the Guaranteeing Ukrainian
Security Cooperation and the Global Arms Trade
Autonomy by Reinforcing its Defense (GUARD) Act (S.
Andrew S. Bowen, Analyst in Russian and European
3407; H.R. 6367) would add Ukraine to the list of priority
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 5 · UPDATED