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Updated December 7, 2022
U.S. Security Assistance to Ukraine
The United States has been a leading provider of security
military education at U.S. defense institutions for Ukrainian
assistance to Ukraine, particularly since Russia launched its
military officers. Other State Department- and DOD-funded
renewed and expanded invasion of Ukraine on February 24,
security assistance has supported conventional weapons
2022. From 2014, when Russia first invaded Ukraine,
destruction, border security, law enforcement training, and
through November 23, 2022, the United States has provided
counter-weapons of mass destruction capabilities.
approximately $21.8 billion in security assistance “to help
Table 1. Presidential Drawdowns for Ukraine,
Ukraine preserve its territorial integrity, secure its borders,
FY2021-FY2023
and improve interoperability with NATO.” Of this amount,
(in millions of dol ars)
the Biden Administration has committed more than $19
billion in security assistance since the start of the 2022 war.
#
Authorized
Value
#
Authorized
Value
FY2022 and FY2023 security assistance packages are
1
Aug. 27, 2021 60.0
14
July 1, 2022
50.0
mostly being funded via almost $28 billion in supplemental
2
Dec. 28, 2021 200.0
15
July 8, 2022
400.0
appropriations. FY2022 and FY2023 appropriations include 3
Feb. 25, 2022
350.0
16
July 22, 2022
175.0
a total of $14.05 billion to replenish Department of Defense 4
Mar. 12, 2022 200.0
17
Aug. 1, 2022
550.0
(DOD) equipment stocks sent to Ukraine via presidential
5
Mar. 16, 2022 800.0
18
Aug. 8, 2022
1,000.0
drawdown authority; $9.3 billion for DOD’s Ukraine
6
Apr. 5, 2022
100.0
19
Aug. 19, 2022 775.0
Security Assistance Initiative (USAI; P.L. 114-92, §1250);
and $4.65 billion in Foreign Military Financing (FMF; 22
7
Apr. 13, 2022
800.0
20
Sept. 8, 2022
675.0
U.S.C. §2763) for Ukraine and “countries impacted by the
8
Apr. 21, 2022
800.0
21
Sept. 15, 2022 600.0
situation in Ukraine.”
9
May 6, 2022
150.0
22
Oct. 4, 2022
625.0
10
May 19, 2022
100.0
23
Oct. 14, 2022 725.0
On November 15, 2022, President Biden submitted to
11
June 1, 2022
700.0
24
Oct. 28, 2022 275.0
Congress a fourth request for Ukraine-related emergency
12
June 15, 2022
350.0
25
Nov. 10, 2022 400.0
supplemental funds including almost $15 billion in new
security assistance. Supplemental appropriations also have
13
June 23, 2022
450.0
26
Nov. 23, 2022 400.0
included funds for U.S. European Command operations and
Total
11,710.0
related support for the U.S. military.
Sources: Department of State and Department of Defense press
Overview of Programs Since 2014
releases through December 7, 2022.
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 26 drawdowns valued at $11.7 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. readiness
support, supplies, and services; salaries and stipends;
to provide lethal weapons to Ukraine.
sustainment; weapons replacement; and intelligence
support. Prior to FY2022, a portion of annual USAI funds
According to DOD, USAI packages prior to FY2022
was contingent on DOD and the Department of State
provided sniper rifles, rocket-propelled grenade launchers,
certifying Ukraine’s progress on key defense reforms.
counter-artillery radars, Mark VI patrol boats, electronic
warfare detection and secure communications, satellite
Ukraine also has received assistance pursuant to DOD’s
imagery and analysis capability, counter-unmanned aerial
security cooperation authorities, notably Building Partner
systems (UAS), air surveillance systems, night vision
Capacity (10 U.S.C. §333) and Defense Institution Building
devices, and equipment to support military medical
(10 U.S.C. §332), as well as International Military
treatment and combat evacuation procedures.
Education and Training, which has provided professional
https://crsreports.congress.gov
link to page 2 link to page 2 U.S. Security Assistance to Ukraine
Table 2. Selected U.S. Security Assistance to Ukraine, FY2016-FY2023
(selected account al ocations, in millions of dol ars)
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.)a
1,000.0 (obl.)a
—
Ukraine Security Assistance
226.5 148.6 195.5 214.8 256.7 275.7
300.0 (obl.)
5,995.0 (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. Table data valid through December 7, 2022.
a. P.L. 117-103 included $650 mil ion in FMF for Ukraine and other countries, of which about $322 mil ion was obligated for Ukraine. P.L.
117-128 included $4 bil ion in FMF for Ukraine and other countries, of which $1 bil ion to date has been obligated for Ukraine.
Since 2018, Ukraine also has used FMF, as well as some of
authorities. For FY2022, Congress increased the PDA
its national funds, to procure U.S. defense equipment,
funding cap (22 U.S.C. §2318(a)(1)) from $100 million up
including Javelin anti-armor missiles and Mark VI patrol
to $200 million via P.L. 117-70; up to $300 million via P.L.
boats purchased through the Foreign Military Sales (FMS)
117-86; up to $3 billion via P.L. 117-103; and up to $11
system. Ukraine also has used a combination of FMF and
billion via P.L. 117-128. For FY2023, Congress established
national funds to refurbish former U.S. Coast Guard Island-
a PDA funding cap of $3.7 billion via P.L. 117-180.
class patrol boats provided through the Excess Defense
Articles (EDA; 22 U.S.C. §2321j) program. In addition,
P.L. 117-128 requires the Secretaries of State and Defense
to report on measures being taken to account for the end-
Ukraine has purchased firearms; ammunition; ordnance;
and other laser, imaging, or guidance equipment directly
use of U.S. weapons transferred to Ukraine. The act also
requires monthly descriptions of U.S. security assistance
from U.S. suppliers via Direct Commercial Sales.
provided to Ukraine since February 24, 2022, including a
In 2022, the United States has provided more advanced
comprehensive list of the defense articles and services
defense equipment to Ukraine, as well as greater amounts
provided, as well as the associated authority and funding.
of previously provided equipment. According to DOD, U.S.
Additionally, the Ukraine Democracy Defense Lend-Lease
security assistance committed to Ukraine as of November
Act of 2022 (P.L. 117-118) modifies provisions in the FAA
23, 2022, has included the following:
and Arms Export Control Act to bypass bureaucratic
38 High Mobility Artillery Rocket Systems (HIMARS)
barriers for leasing or lending U.S. defense articles to
and ammunition;
Ukraine and neighboring countries.
8 National Advanced Surface-to-Air Missile Systems
Discussion on Future Assistance
(NASAMS);
U.S. policy increasingly has recognized the UAF’s ability
45 T-72B tanks;
to employ and operate advanced weaponry, including
1,600+ Stinger anti-aircraft systems;
systems capable of supporting offensive operations to
8,500+ Javelin anti-armor systems and 38,000+ other
liberate Ukrainian territory. Much of U.S. assistance has
anti-armor systems;
been focused on providing systems and capabilities that
Ukraine’s domestic defense industry cannot produce, as
1,800+ Phoenix Ghost Tactical UAS, 700+ Switchblade
Tactical UAS, and other UAS;
well as those that can be immediately deployed on the
battlefield to increase the UAF’s resilience and ability to
142 155 mm and 36 105 mm Howitzers with more than
sustain combat operations. In addition to advanced rocket
1 million artillery rounds;
and missile systems, these include protected mobility assets
20 120 mm mortar systems and 135,000 mortar rounds;
(such as armored vehicles), artillery and ammunition,
1,500 Tube-Launched, Optically-Tracked, Wire-Guided
communication, and intelligence support.
(TOW) missiles, high-speed anti-radiation missiles
(HARMs), and laser-guided rocket systems;
Ukrainian officials have sought to acquire other advanced
systems, including fighter aircraft, anti-ship, and additional
20 Mi-17 helicopters;
air defense and anti-missile capabilities. Increasingly, the
hundreds of Armored Humvee Vehicles and 440 mine
provision of security assistance to Ukraine also is focused
resistant vehicles;
on improving the UAF’s medium- to long-term capabilities,
200 M113 Armored Personnel Carriers;
including transitioning towards more NATO-standard
11,000+ grenade launchers and small arms; and
weaponry and improving the UAF’s ability to service and
communications, radar, and intelligence equipment.
repair defense equipment provided.
In addition, the Biden Administration has authorized third-
Concerns remain about the potential for escalation. In June
party transfers of U.S. defense articles and equipment from
2022, the Biden Administration first announced the
several NATO and EU members to Ukraine. According to
provision to Ukraine of more advanced HIMARS systems
the State Department, NATO and EU members and other
but without their longest-range rockets. The Administration
allies have committed more than $13 billion worth of
reportedly received Ukrainian assurances that the UAF will
military assistance to Ukraine (and some countries do not
not use these weapons to attack Russian territory.
fully disclose their military assistance).
Christina L. Arabia, Analyst in Security Assistance,
Recent Legislation
Security Cooperation and the Global Arms Trade
Prior to and immediately following Russia’s renewed
Andrew S. Bowen, Analyst in Russian and European
invasion of Ukraine, Congress authorized or proposed
Affairs
increased funding levels for existing security assistance
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 17 · UPDATED