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Updated August 2, 2022
U.S. Security Assistance to Ukraine
The United States has been a leading provider of security
(10 U.S.C. §332), and International Military Education and
assistance to Ukraine, both before and after Russia renewed
Training (IMET), which has provided professional military
its invasion of Ukraine on February 24, 2022. From 2014,
education at U.S. defense institutions for Ukrainian military
when Russia first invaded Ukraine, through August 1, 2022,
officers. Other State Department- and DOD-funded security
the United States has provided about $11 billion in security
assistance has supported conventional weapons destruction,
assistance “to help Ukraine preserve its territorial integrity,
border security, law enforcement training, and counter-
secure its borders, and improve interoperability with
weapons of mass destruction capabilities.
NATO.” Since the start of the 2022 war, the Biden
Administration has committed a total of more than $8.1
Table 1. Presidential Drawdowns for Ukraine,
billion in security assistance to “provide Ukraine the
FY2021-FY2022
equipment it needs to defend itself.”
#
Date Authorized
Amount
FY2022 security assistance packages are being funded via
1
August 27, 2021
$60,000,000
more than $23 billion in regular and supplemental
2
December 28, 2021
$200,000,000
appropriations, including the Ukraine Supplemental
3
February 25, 2022
$350,000,000
Appropriations Act, 2022 (P.L. 117-103, Division N), and
4
March 12, 2022
$200,000,000
the Additional Ukraine Supplemental Appropriations Act,
2022 (P.L. 117-128). In total, FY2022 appropriations
5
March 16, 2022
$800,000,000
include $12.55 billion to replenish Department of Defense
6
April 5, 2022
$100,000,000
(DOD) equipment stocks sent to Ukraine via presidential
7
April 13, 2022
$800,000,000
drawdown authority; $6.3 billion for DOD’s Ukraine
8
April 21, 2022
$800,000,000
Security Assistance Initiative (USAI); and $4.65 billion in
9
May 6, 2022
$150,000,000
Foreign Military Financing (FMF) for Ukraine and
“countries impacted by the situation in Ukraine.” FY2022
10
May 19, 2022
$100,000,000
supplemental appropriations also have included funds for
11
June 1, 2022
$700,000,000
additional U.S. troop deployments to Europe.
12
June 15, 2022
$350,000,000
Overview of Programs Since 2014
13
June 23, 2022
$450,000,000
The United States has used a variety of security assistance
14
July 1, 2022
$50,000,000
programs and authorities to help build the defensive
15
July 8, 2022
$400,000,000
capacity of the Ukrainian Armed Forces (UAF) through
16
July 22, 2022
$175,000,000
train, equip, and advise efforts across multiple spending
17
August 1, 2022
$550,000,000
accounts. Prior to the 2022 war, the two primary accounts
Total
$6,235,000,000
were the State Department’s FMF (22 U.S.C. §2763) and
DOD’s USAI (P.L. 114-92, §1250) (see Table 2).
Source: Department of State and Department of Defense.
USAI packages have included training, equipment, and
Through the Joint Multinational Training Group-Ukraine,
advisory efforts to enhance Ukraine’s defensive
established in 2015, the U.S. Army and National Guard,
capabilities. FY2022 appropriations also directed that USAI
together with military trainers from U.S. allied states,
funds be provided for logistics support, supplies, and
provided training, mentoring, and doctrinal assistance to the
services; salaries and stipends; sustainment; weapons
UAF before the war. This training mission was suspended
replacement; and intelligence support. Prior to FY2022, a
at the outset of Russia’s invasion. In April 2022, DOD
portion of annual USAI funds was contingent on DOD and
announced it would resume training Ukrainian personnel,
State certifying Ukraine’s progress on key defense reforms.
outside Ukraine, specifically to operate U.S. and allied
systems. Separately, U.S. Special Operations Forces have
The United States also has been providing defense items to
trained and 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 first 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 17 drawdowns valued at
thermal vision devices, heavy engineering equipment,
$6.24 billion (see Table 1).
advanced radios, patrol boats, rations, tents, counter-mortar
radars, uniforms, medical kits, and other related items. In
Ukraine also has received assistance pursuant to DOD’s
2017, the Trump Administration announced U.S.
security cooperation authorities, notably Building Partner
willingness to provide lethal weapons to Ukraine.
Capacity (10 U.S.C. §333) and Defense Institution Building
https://crsreports.congress.gov
U.S. Security Assistance to Ukraine
Table 2. Selected U.S. Security Assistance to Ukraine, FY2016-FY2022
(selected account al ocations, in millions of dol ars)
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 1,515.0 (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 mil ion in FMF for Ukraine and other countries, of which about $322 mil ion was to be obligated for
Ukraine. P.L. 117-128 includes $4 bil ion 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, air surveillance systems, night vision devices, and
authority and funding.
equipment to support military medical treatment and
Additionally, the Ukraine Democracy Defense Lend-Lease
combat evacuation procedures.
Act of 2022 (P.L. 117-118) modifies provisions in the FAA
In 2022, the United States has provided more advanced
and Arms Export Control Act to bypass bureaucratic
defense equipment to Ukraine, as well as greater amounts
barriers for leasing or lending U.S. defense articles to
of previously provided equipment. According to DOD, U.S.
Ukraine and neighboring countries.
security assistance committed to Ukraine as of August 1,
Discussion on Future Assistance
2022, has included the following:
Since 2014, U.S. policy increasingly emphasized support
2 National Advanced Surface-to-Air Missile Systems;
for the UAF’s ability to deter Russia and defend its
territorial integrity. Much of U.S. assistance has been
16 High Mobility Artillery Rocket Systems (HIMARS)
focused on providing systems and capabilities that
and ammunition;
Ukraine’s domestic defense industry cannot produce, as
1,400+ Stinger anti-aircraft systems;
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;
Ukrainian officials have sought to acquire advanced
700+ Phoenix Ghost Tactical UAS and 700+
systems, including fighter aircraft, anti-ship, and additional
Switchblade Tactical UAS;
air defense and anti-missile capabilities. Increasingly, the
126 155 mm Howitzers with 486,000 artillery rounds;
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
significantly improve UAF capabilities.
200 M113 Armored Personnel Carriers;
10,000+ small arms and 59+ 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
their longest-range rockets. The Administration reportedly
other essential nonlethal equipment, including
received Ukrainian assurances that the UAF will not use
communications and intelligence equipment.
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
Andrew S. Bowen, Analyst in Russian and European
several NATO and EU members to Ukraine.
Affairs
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 13 · UPDATED