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Updated October 21, 2022
U.S. Security Assistance to Ukraine
The United States has been a leading provider of security
security assistance has supported conventional weapons
assistance to Ukraine, particularly since Russia launched its
destruction, border security, law enforcement training, and
renewed and expanded invasion of Ukraine on February 24,
counter-weapons of mass destruction capabilities.
2022. From 2014, when Russia first invaded Ukraine,
through October 14, 2022, the United States has provided
Table 1. Presidential Drawdowns for Ukraine,
more than $20.3 billion in security assistance “to help
FY2021-FY2023
Ukraine preserve its territorial integrity, secure its borders,
(in millions of dollars)
and improve interoperability with NATO.” Of this amount,
#
Authorized
Value
#
Authorized
Value
the Biden Administration has committed about $17.6 billion
in security assistance since the start of the 2022 war.
1
Aug 27, 2021
60.0 13
June 23, 2022
450.0
2
Dec 28, 2021
200.0 14
July 1, 2022
50.0
FY2022 and FY2023 security assistance packages are
3
Feb 25, 2022
350.0 15
July 8, 2022
400.0
mostly being funded via almost $28 billion in supplemental
appropriations (P.L. 117-103, Div. N; P.L. 117-128; and
4
Mar 12, 2022
200.0 16
July 22, 2022
175.0
P.L. 117-180, Div. B). FY2022 and FY2023 appropriations
5
Mar 16, 2022
800.0 17
Aug 1, 2022
550.0
include a total of $14.05 billion to replenish Department of
6
Apr 5, 2022
100.0 18
Aug 8, 2022
1,000.0
Defense (DOD) equipment stocks sent to Ukraine via
7
Apr 13, 2022
800.0 19
Aug 19, 2022
775.0
presidential drawdown authority; $9.3 billion for DOD’s
8
Apr 21, 2022
800.0 20
Sep 8, 2022
675.0
Ukraine Security Assistance Initiative (USAI; P.L. 114-92,
§1250); and $4.65 billion in Foreign Military Financing
9
May 6, 2022
150.0 21
Sep 15, 2022
600.0
(FMF; 22 U.S.C. §2763) for Ukraine and “countries
10
May 19, 2022
100.0 22
Oct 4, 2022
625.0
impacted by the situation in Ukraine.” Supplemental
11
June 1, 2022
700.0 23
Oct 14, 2022
725.0
appropriations also have included funds for U.S. European
12
June 15, 2022
350.0
Command operations and related support for the U.S.
Total
10,635.0
military.
Sources: Department of State and Department of Defense.
Overview of Programs Since 2014
The United States has used a variety of security assistance
Through the Joint Multinational Training Group-Ukraine,
programs and authorities to help build the defensive
established in 2015, the U.S. Army and National Guard,
capacity of the Ukrainian Armed Forces (UAF) through
together with military trainers from U.S. allies, provided
train, equip, and advise efforts across multiple spending
training, mentoring, and doctrinal assistance to the UAF
accounts.
before the war. This training mission was suspended at the
outset of Russia’s invasion. In April 2022, DOD announced
Especially since 2021, the United States has been providing
it would resume training Ukrainian personnel, outside
defense items to Ukraine via Presidential Drawdown
Ukraine, specifically to operate U.S. and allied systems.
Authority (PDA), by which the President can authorize the
Separately, U.S. Special Operations Forces have trained and
immediate transfer of articles and services from U.S.
advised Ukrainian special forces.
stocks, up to a funding cap established in law, in response
to an “unforeseen emergency” (22 U.S.C. §2318(a)(1)).
Provision of Defense Equipment
Since August 2021, the Biden Administration has
After Russia first invaded Ukraine in 2014, the Obama
authorized 23 drawdowns valued at $10.6 billion (Table 1).
Administration provided Ukraine nonlethal security
assistance, such as body armor, helmets, vehicles, night and
USAI and FMF packages have included training,
thermal vision devices, heavy engineering equipment,
equipment, and advisory efforts to enhance Ukraine’s
advanced radios, patrol boats, rations, tents, counter-mortar
defensive capabilities (see Table 2). FY2022 appropriations
radars, uniforms, medical kits, and other related items. In
also directed that USAI funds be provided for logistics
2017, the Trump Administration announced U.S.
support, supplies, and services; salaries and stipends;
willingness to provide lethal weapons to Ukraine.
sustainment; weapons replacement; and intelligence
support. Prior to FY2022, a portion of annual USAI funds
Since 2018, Ukraine has used FMF, as well as some of its
was contingent on DOD and the Department of State
national funds, to procure U.S. defense equipment,
certifying Ukraine’s progress on key defense reforms.
including Javelin anti-armor missiles and Mark VI patrol
Ukraine also has received assistance pursuant to DOD’s
boats purchased through the Foreign Military Sales (FMS)
security cooperation authorities, notably Building Partner
system. Ukraine also has used a combination of FMF and
Capacity (10 U.S.C. §333) and Defense Institution Building
national funds to refurbish former U.S. Coast Guard Island-
(10 U.S.C. §332), as well as International Military
class patrol boats provided through the Excess Defense
Education and Training, which has provided professional
Articles (EDA; 22 U.S.C. §2321j) program. In addition,
military education at U.S. defense institutions for Ukrainian
Ukraine has purchased firearms; ammunition; ordnance;
military officers. Other State Department- and DOD-funded
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U.S. Security Assistance to Ukraine
and other laser, imaging, or guidance equipment directly
from U.S. suppliers via Direct Commercial Sales.
Table 2. Selected U.S. Security Assistance to Ukraine, FY2016-FY2022
(selected account allocations, in millions of dollars)
FY22
FY22
FY23
FY16 FY17 FY18 FY19 FY20 FY21 (P.L. 117-103)
(P.L. 117-128)
(P.L. 117-180)
Foreign Military Financing (FMF) 85.0
99.0
95.0 115.0 115.0 115.0
322.0 (obl.)*
1,000.0 (obl.)*
—
Ukraine Security Assistance
226.5 148.6 195.5 214.8 256.7 275.7
300.0 (obl.)
5,595.0 (obl.),
3,000.0 (appr.)
Initiative (USAI)
out of 6,000.0 (appr.)
Sources: State Department congressional budget justifications, Department of Defense budget requests, P.L. 117-103, P.L. 117-128, P.L. 117-
180.
Notes: *P.L. 117-103 included $650 million in FMF for Ukraine and other countries, of which about $322 million was obligated for Ukraine.
P.L. 117-128 included $4 billion in FMF for Ukraine and other countries, of which $1 billion to date has been obligated for Ukraine.
According to DOD, USAI packages prior to FY2022
funding cap (22 U.S.C. §2318(a)(1)) from $100 million up
provided sniper rifles, rocket-propelled grenade launchers,
to $200 million via P.L. 117-70; up to $300 million via P.L.
counter-artillery radars, Mark VI patrol boats, electronic
117-86; up to $3 billion via P.L. 117-103; and up to $11
warfare detection and secure communications, satellite
billion via P.L. 117-128. For FY2023, Congress established
imagery and analysis capability, counter-unmanned aerial
a PDA funding cap of $3.7 billion via P.L. 117-180.
systems (UAS), air surveillance systems, night vision
devices, and equipment to support military medical
Similarly, for FY2022, Congress increased a special
treatment and combat evacuation procedures.
authority (22 U.S.C. §2364) used to overcome PDA caps
from $250 million to $500 million via P.L. 117-103 and up
In 2022, the United States has provided more advanced
to $1 billion via P.L. 117-128.
defense equipment to Ukraine, as well as greater amounts
of previously provided equipment. According to DOD, U.S.
P.L. 117-128 requires the Secretaries of State and Defense
security assistance committed to Ukraine as of October 14,
to report on measures being taken to account for the end-
2022, has included the following:
use of U.S. weapons transferred to Ukraine. The act also
requires monthly descriptions of U.S. security assistance
20 High Mobility Artillery Rocket Systems (HIMARS)
provided to Ukraine since February 24, 2022, including a
and ammunition (+18 more via longer-term
comprehensive list of the defense articles and services
procurement);
provided, as well as the associated authority and funding.
2 National Advanced Surface-to-Air Missile Systems
Additionally, the Ukraine Democracy Defense Lend-Lease
(NASAMS) (+6 more via longer-term procurement);
Act of 2022 (P.L. 117-118) modifies provisions in the FAA
1,400+ Stinger anti-aircraft systems;
and Arms Export Control Act to bypass bureaucratic
8,500+ Javelin anti-armor systems and 32,000+ other
barriers for leasing or lending U.S. defense articles to
anti-armor systems;
Ukraine and neighboring countries.
700+ Phoenix Ghost Tactical UAS, 700+ Switchblade
Discussion on Future Assistance
Tactical UAS, and other UAS;
U.S. policy increasingly has recognized the UAF’s ability
142 155 mm and 36 105 mm Howitzers with more than
to employ and operate advanced weaponry, including
1 million artillery rounds;
systems capable of supporting offensive operations to
20 120 mm mortar systems and 115,000 mortar rounds;
liberate Ukrainian territory. Much of U.S. assistance has
1,500 Tube-Launched, Optically-Tracked, Wire-Guided
been focused on providing systems and capabilities that
(TOW) missiles, high-speed anti-radiation missiles
Ukraine’s domestic defense industry cannot produce, as
(HARMs), and laser-guided rocket systems;
well as those that can be immediately deployed on the
20 Mi-17 helicopters;
battlefield to increase the UAF’s resilience and ability to
sustain combat operations. In addition to advanced rocket
hundreds of Armored Humvee Vehicles and 440 mine
and missile systems, these include protected mobility assets
resistant vehicles;
(such as armored vehicles), artillery and ammunition,
200 M113 Armored Personnel Carriers;
communication, and intelligence support.
10,000+ grenade launchers and small arms; and
Ukrainian officials have sought to acquire other advanced
communications and intelligence equipment.
systems, including fighter aircraft, anti-ship, and additional
In addition, the Biden Administration has authorized third-
air defense and anti-missile capabilities. Increasingly, the
party transfers of U.S. defense articles and equipment from
provision of security assistance to Ukraine also is focused
several NATO and EU members to Ukraine. According to
on improving the UAF’s medium- to long-term capabilities,
the Kiel Institute’s Ukraine Support Tracker, NATO allies,
including transitioning towards more NATO-standard
EU members, and the EU have committed at least $13.5
weaponry and improving the UAF’s ability to service and
billion worth of military assistance to Ukraine (and some
repair defense equipment provided.
countries do not fully disclose their military assistance).
Concerns remain about the potential for escalation. In June
Recent Legislation
2022, the Biden Administration first announced the
Prior to and immediately following Russia’s renewed
provision to Ukraine of more advanced HIMARS systems
invasion of Ukraine, Congress authorized or proposed
but without their longest-range rockets. The Administration
increased funding levels for existing security assistance
reportedly received Ukrainian assurances that the UAF will
authorities. For FY2022, Congress increased the PDA
not use these weapons to attack Russian territory.
https://crsreports.congress.gov
U.S. Security Assistance to Ukraine
Andrew S. Bowen, Analyst in Russian and European
Christina L. Arabia, Analyst in Security Assistance,
Affairs
Cory Welt, Specialist in Russian and European Affairs
Security Cooperation and the Global Arms Trade
IF12040
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