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Updated June 24, 2022
U.S. Security Assistance to Ukraine
The United States has been a leading provider of security
Table 1. Presidential Drawdowns for Ukraine,
assistance to Ukraine, both before and after Russia renewed
FY2021-FY2022
its invasion of Ukraine on February 24, 2022. From 2014,
when Russia first invaded Ukraine, through June 23, 2022,
#
Date Authorized
Amount
the United States has provided more than $8.7 billion in
1
August 27, 2021
$60,000,000
security assistance “to help Ukraine preserve its territorial
2
December 28, 2021
$200,000,000
integrity, secure its borders, and improve interoperability
3
February 25, 2022
$350,000,000
with NATO.” Since the start of the 2022 war, the Biden
4
March 12, 2022
$200,000,000
Administration has committed a total of more than $6.1
billion in security assistance to “provide Ukraine the
5
March 16, 2022
$800,000,000
equipment it needs to defend itself.”
6
April 5, 2022
$100,000,000
7
April 13, 2022
$800,000,000
FY2022 security assistance packages are being funded via
more than $23 billion in regular and supplemental
8
April 21, 2022
$800,000,000
appropriations, including the Ukraine Supplemental
9
May 6, 2022
$150,000,000
Appropriations Act, 2022 (P.L. 117-103, Division N), and
10
May 19, 2022
$100,000,000
the Additional Ukraine Supplemental Appropriations Act,
11
June 1, 2022
$700,000,000
2022 (P.L. 117-128). In total, FY2022 appropriations
12
June 15, 2022
$350,000,000
include $12.55 billion to replenish Department of Defense
(DOD) equipment stocks sent to Ukraine via presidential
13
June 23, 2022
$450,000,000
drawdown authority; $6.3 billion for DOD’s Ukraine
Total
$5,060,000,000
Security Assistance Initiative (USAI); and $4.65 billion in
Source: Department of State and Department of Defense.
Foreign Military Financing (FMF) for Ukraine and
“countries impacted by the situation in Ukraine.”
Ukraine also has received assistance pursuant to DOD’s
FY2022
supplemental appropriations also have included funds for
security cooperation authorities, notably Building Partner
additional U.S. troop deployments to Europe.
Capacity (10 U.S.C. §333) and Defense Institution Building
(10 U.S.C. §332), and International Military Education and
Overview of Programs Since 2014
Training (IMET), which has provided professional military
The United States has used a variety of security assistance
education at U.S. defense institutions for Ukrainian military
programs and authorities to help build the defensive
officers. Other State Department- and DOD-funded security
capacity of the Ukrainian Armed Forces (UAF) through
assistance has supported conventional weapons destruction,
train, equip, and advise efforts across multiple spending
border security, law enforcement training, and counter-
accounts. Prior to the 2022 war, the two primary accounts
weapons of mass destruction capabilities.
were the State Department’s FMF (22 U.S.C. §2763) and
DOD’s USAI (P.L. 114-92, §1250) (see Table 2).
Through the Joint Multinational Training Group-Ukraine,
established in 2015, the U.S. Army and National Guard,
USAI packages have included training, equipment, and
together with military trainers from U.S. allied states,
advisory efforts to enhance Ukraine’s defensive
provided training, mentoring, and doctrinal assistance to the
capabilities. FY2022 appropriations also directed that USAI
UAF before the war (at a training facility in western
funds be provided for logistics support, supplies, and
Ukraine that was targeted by a Russian missile strike in
services; salaries and stipends; sustainment; weapons
March 2022). This training mission was suspended at the
replacement; and intelligence support. Prior to FY2022, a
outset of Russia’s invasion. In April 2022, DOD announced
portion of annual USAI funds was contingent on DOD and
it would resume training Ukrainian personnel, outside
State certifying Ukraine’s progress on key defense reforms.
Ukraine, specifically to operate U.S. and allied systems.
Separately, U.S. Special Operations Forces have trained and
The United States also has been providing defense items to
advised Ukrainian special forces.
Ukraine via Presidential Drawdown Authority (PDA), by
which the President can authorize the immediate transfer of
Provision of Defense Equipment
articles and services from U.S. stocks without congressional
After Russia invaded Ukraine in 2014, the Obama
approval in response to an “unforeseen emergency” (22
Administration provided Ukraine nonlethal security
U.S.C. §2318(a)(1)). Since August 2021, the Biden
assistance, such as body armor, helmets, vehicles, night and
Administration has authorized 13 drawdowns valued at
thermal vision devices, heavy engineering equipment,
$5.06 billion (see Table 1).
advanced radios, patrol boats, rations, tents, counter-mortar
radars, uniforms, medical kits, and other related items. In
2017, the Trump Administration announced U.S.
willingness to provide lethal weapons to Ukraine.
https://crsreports.congress.gov
U.S. Security Assistance to Ukraine
Table 2. Selected U.S. Security Assistance to Ukraine, FY2016-FY2022
(selected account allocations, in millions of dollars)
FY22
FY22
FY16
FY17
FY18
FY19
FY20
FY21
(P.L. 117-103)
(P.L. 117-128)
Foreign Military Financing (FMF)
85.0
99.0
95.0
115.0
115.0
115.0
322.0 (obl.)*
4,000.0 (appr.)*
Ukraine Security Assistance
226.5
148.6
195.5
214.8
256.7
275.0
300.0 (obl.)
6,000.0 (appr.),
Initiative (USAI)
of which 650.0 (obl.)
Sources: State Department Congressional Budget Justifications, Defense Department Budget Requests, P.L. 117-103, and P.L. 117-128
Notes: *P.L. 117-103 includes $650 million in FMF for Ukraine and other countries, of which about $322 million was to be obligated for
Ukraine. P.L. 117-128 includes $4 billion in FMF for Ukraine and other countries.
Recent Legislation
Since 2018, Ukraine used FMF, as well as some of its
national funds, to procure U.S. defense equipment,
Prior to and immediately following Russia’s renewed
including Javelin anti-armor missiles and Mark VI patrol
invasion of Ukraine, Congress authorized or proposed
boats purchased through the Foreign Military Sales (FMS)
increased funding levels for existing security assistance
system. Ukraine also used a combination of FMF and
authorities. Congress increased the PDA (22 U.S.C.
national funds to refurbish former U.S. Coast Guard Island-
§2318(a)(1)) funding cap from $100 million up to $200
class patrol boats provided through the Excess Defense
million via P.L. 117-70; up to $300 million via P.L. 117-86;
Articles (EDA; 22 U.S.C. §2321j) program. On April 24,
up to $3 billion via P.L. 117-103; and up to $11 billion via
2022, the State Department notified Congress of a potential
P.L. 117-128. Similarly, Congress increased a special
FMS sale of up to $165 million for nonstandard
authority (22 U.S.C. §2364) used to overcome PDA caps
ammunition for Ukraine. In addition, Ukraine has
from $250 million to $500 million via P.L. 117-103 and up
purchased firearms, ammunition, ordnance, and other laser,
to $1 billion via P.L. 117-128.
imaging, or guidance equipment directly from U.S.
P.L. 117-128 requires the Secretaries of State and Defense
suppliers via Direct Commercial Sales.
to report on measures being taken to account for the end-
According to DOD, USAI packages prior to FY2022
use of U.S. weapons transferred to Ukraine. The act also
provided sniper rifles, rocket-propelled grenade launchers,
requires the Secretaries to provide monthly descriptions of
counter-artillery radars, Mark VI patrol boats, electronic
U.S. security assistance provided to Ukraine since February
warfare detection and secure communications, satellite
24, 2022, including a comprehensive list of the defense
imagery and analysis capability, counter-unmanned aerial
articles and services provided, as well as the associated
systems (UAS), air surveillance systems to monitor
authority and funding.
sovereign airspace, night vision devices, and equipment to
Additionally, the Ukraine Democracy Defense Lend-Lease
support military medical treatment and combat evacuation
Act of 2022 (P.L. 117-118) modifies provisions in the FAA
procedures.
and Arms Export Control Act to bypass bureaucratic
In 2022, the United States has provided more advanced
barriers for leasing or lending U.S. defense articles to
defense equipment to Ukraine, as well as greater amounts
Ukraine and neighboring countries.
of previously provided equipment. According to DOD, U.S.
Discussion on Future Assistance
security assistance committed to Ukraine as of June 17,
Since 2014, U.S. policy increasingly emphasized support
2022 has included the following:
for the UAF’s ability to deter Russia and defend its
High Mobility Artillery Rocket Systems (HIMARS) and territorial integrity. Much of U.S. assistance has been
ammunition;
focused on providing systems and capabilities that
Ukraine’s domestic defense industry cannot produce
1,400+ Stinger anti-aircraft systems;
, as
well as on increasing UAF resilience and ability to sustain
6,500+ Javelin anti-armor systems and 20,000+ other
combat operations.
anti-armor systems;
121 Phoenix Ghost Tactical UAS and 700+ Switchblade
Ukrainian officials have sought to acquire advanced
Tactical UAS;
systems, including fighter aircraft, anti-ship, and additional
126 155 mm Howitzers with 260,000 artillery rounds;
air defense and anti-missile capabilities. Increasingly, the
provision of security assistance to Ukraine includes a
20 Mi-17 helicopters;
greater focus on transitioning the UAF to NATO standard
hundreds of Armored Humvee Vehicles;
weaponry and training. This takes time but could
200 M113 Armored Personnel Carriers;
significantly improve UAF capabilities.
7,000+ small arms and 50+ million rounds of
Concerns remain about the potential for escalation. In June
ammunition;
2022, the Biden Administration announced the provision to
laser-guided rocket systems; and
Ukraine of more advanced HIMARS systems but without
other essential nonlethal equipment, including
their longest-range rockets. The Administration reportedly
communications and intelligence equipment.
received Ukrainian assurances that the UAF will not use
these weapons to attack Russian territory.
Several NATO and European Union (EU) members also
have provided weapons and military assistance to Ukraine.
Christina L. Arabia, Analyst in Security Assistance,
In addition, the Biden Administration authorized third-party
Security Cooperation and the Global Arms Trade
transfers of U.S. defense articles and equipment from
several NATO and EU members to Ukraine.
Andrew S. Bowen, Analyst in Russian and European
Affairs
Cory Welt, Specialist in Russian and European Affairs
https://crsreports.congress.gov
U.S. Security Assistance to Ukraine
IF12040
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