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Updated January 26, 2023
U.S. Security Assistance to Ukraine
The United States has been a leading provider of security
destruction, border security, law enforcement training, and
assistance to Ukraine, particularly since Russia launched its
counter-weapons of mass destruction capabilities.
renewed and expanded invasion of Ukraine on February 24,
Table 1. Presidential Drawdowns for Ukraine,
2022. From 2014, when Russia first invaded Ukraine,
FY2021-FY2023
through January 25, 2023, the United States has committed
(in millions of dol ars)
more than $29.9 billion in security assistance “to help
Ukraine preserve its territorial integrity, secure its borders,
#
Authorized
Value
#
Authorized
Value
and improve interoperability with NATO.” Of this amount,
the Biden Administration has committed more than $27.1
1
Aug. 27, 2021
60.0 16 July 22, 2022
175.0
billion in security assistance since the start of the 2022 war.
2
Dec. 28, 2021
200.0 17 Aug. 1, 2022
550.0
3
Feb. 25, 2022
350.0 18 Aug. 8, 2022
1,000.0
FY2022 and FY2023 security assistance packages are
4
Mar. 12, 2022
200.0 19 Aug. 19, 2022
775.0
mostly being funded via $48.7 billion in supplemental
5
Mar. 16, 2022
800.0 20 Sept. 8, 2022
675.0
appropriations. This amount includes $25.93 billion to
6
Apr. 5, 2022
100.0 21 Sept. 15, 2022
600.0
replenish Department of Defense (DOD) equipment stocks
sent to Ukraine via presidential drawdown authority; $18
7
Apr. 13, 2022
800.0 22 Oct. 4, 2022
625.0
billion for DOD’s Ukraine Security Assistance Initiative
8
Apr. 21, 2022
800.0 23 Oct. 14, 2022
725.0
(USAI; P.L. 114-92, §1250); and $4.73 billion in Foreign
9
May 6, 2022
150.0 24 Oct. 28, 2022
275.0
Military Financing (FMF; 22 U.S.C. §2763) for Ukraine
10
May 19, 2022
100.0 25 Nov. 10, 2022
400.0
and “countries impacted by the situation in Ukraine.”
11
June 1, 2022
700.0 26 Nov. 23, 2022
400.0
12
June 15, 2022
350.0 27 Dec. 9, 2022
275.0
Supplemental appropriations also include funds for U.S.
European Command operations and related support for the
13
June 23, 2022
450.0 28 Dec. 21, 2022
1,000.0
U.S. military.
14
July 1, 2022
50.0 29 Jan. 6, 2023
2,850.0
Overview of Programs Since 2014
15
July 8, 2022
400.0 30 Jan. 19, 2023
2,500.0
Total
18,335.0
The United States has used a variety of security assistance
Sources: Department of State and Department of Defense press
programs and authorities to help build the defensive
releases through January 19, 2023.
capacity of the Ukrainian Armed Forces (UAF) through
train, equip, and advise efforts across multiple spending
Through the Joint Multinational Training Group-Ukraine,
accounts.
established in 2015, the U.S. Army and National Guard,
together with military trainers from U.S. allies, provided
Especially since 2021, the United States has been providing
training, mentoring, and doctrinal assistance to the UAF
defense items to Ukraine via Presidential Drawdown
before the war. This training mission was suspended at the
Authority (PDA), by which the President can authorize the
outset of Russia’s invasion. In April 2022, DOD announced
immediate transfer of articles and services from U.S.
it would resume training Ukrainian personnel, outside
stocks, up to a funding cap established in law, in response
Ukraine, specifically to operate U.S. and allied systems.
to an “unforeseen emergency” (22 U.S.C. §2318(a)(1)).
Separately, U.S. Special Operations Forces have trained and
Since August 2021, the Biden Administration has
advised Ukrainian special forces.
authorized 30 drawdowns valued at $18.3 billion (Table 1).
Provision of Defense Equipment
USAI and FMF packages have included training,
After Russia first invaded Ukraine in 2014, the Obama
equipment, and advisory efforts to enhance Ukraine’s
Administration provided Ukraine nonlethal security
defensive capabilities (see Table 2). FY2022 appropriations
assistance, such as body armor, helmets, vehicles, night and
also directed that USAI funds be provided for logistics
thermal vision devices, heavy engineering equipment,
support, supplies, and services; salaries and stipends;
advanced radios, patrol boats, rations, tents, counter-mortar
sustainment; weapons replacement; and intelligence
radars, uniforms, medical kits, and other related items. In
support.
2017, the Trump Administration announced U.S. readiness
Ukraine also has received assistance pursuant to DOD’s
to provide lethal weapons to Ukraine.
security cooperation authorities, notably Building Partner
According to DOD, USAI packages prior to FY2022
Capacity (10 U.S.C. §333) and Defense Institution Building
provided sniper rifles, rocket-propelled grenade launchers,
(10 U.S.C. §332), as well as International Military
counter-artillery radars, Mark VI patrol boats, electronic
Education and Training, which has provided professional
warfare detection and secure communications, satellite
military education at U.S. defense institutions for Ukrainian
imagery and analysis capability, counter-unmanned aerial
military officers. Other State Department- and DOD-funded
systems (UAS), air surveillance systems, night vision
security assistance has supported conventional weapons
devices, and equipment to support military medical
treatment and combat evacuation procedures.
https://crsreports.congress.gov
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)
FY16 FY17 FY18 FY19 FY20 FY21
FY22
FY23
Foreign Military Financing (FMF) 85.0
99.0
95.0 115.0 115.0 115.0
1,547.0 (obl.)a
—
Ukraine Security Assistance
226.5 148.6 195.5 214.8 256.7 275.7
6,300.0 (obl.)
1,250.0 (obl.)
Initiative (USAI)
out of 12,000.0 (appr.)
Sources: State Department congressional budget justifications, Department of Defense budget requests, P.L. 117-103, P.L. 117-128, P.L. 117-
180, P.L. 117-328. Table data valid through January 19, 2023.
a. Foreign Military Financing (FMF) assistance from FY2022 Ukraine supplemental appropriations also has been provided to other European
al ies and partners.
Since 2018, Ukraine also has used FMF, as well as some of
funding cap (22 U.S.C. §2318(a)(1)) from $100 million up
its national funds, to procure U.S. defense equipment,
to $11 billion via P.L. 117-128. For FY2023, Congress
including Javelin anti-armor missiles and Mark VI patrol
established a PDA funding cap of $14.5 billion via P.L.
boats purchased through the Foreign Military Sales (FMS)
117-328.
system. Ukraine also has used a combination of FMF and
P.L. 117-328 continues provisions from P.L. 117-128 that
national funds to refurbish former U.S. Coast Guard Island-
class patrol boats provided through the Excess Defense
require the Secretaries of State and Defense to report on
measures taken to account for the end-use of U.S. weapons
Articles (EDA; 22 U.S.C. §2321j) program. In addition,
Ukraine has purchased firearms; ammunition; ordnance;
transferred to Ukraine. The act also continues a requirement
for monthly descriptions of U.S. security assistance
and other laser, imaging, or guidance equipment directly
provided to Ukraine since February 24, 2022, including a
from U.S. suppliers via Direct Commercial Sales.
comprehensive list of provided defense articles and
In 2022, the United States has provided more advanced
services, as well as associated authorities and funding.
defense equipment to Ukraine, as well as greater amounts
In addition, P.L. 117-328 appropriated $6 million for the
of previously provided equipment. According to DOD, U.S.
security assistance committed to Ukraine as of January 25,
DOD Inspector General to carry out reviews of DOD
activities to execute funds in the bill. Additionally, the
2023, has included the following:
Ukraine Democracy Defense Lend-Lease Act of 2022 (P.L.
38 High Mobility Artillery Rocket Systems (HIMARS)
117-118) provides means to bypass bureaucratic barriers for
and ammunition;
leasing or lending U.S. defense articles to Ukraine.
8 National Advanced Surface-to-Air Missile Systems
Discussion on Future Assistance
(NASAMS);
U.S. policy increasingly has recognized the UAF’s ability
1 Patriot air defense battery and munitions;
to employ and operate advanced weaponry, including
31 M1 Abrams tanks, 45 T-72B tanks and 109 Bradley
systems capable of supporting offensive operations to
infantry fighting vehicles;
liberate Ukrainian territory. Much of U.S. assistance has
300 M113 and 90 Stryker Armored Personnel Carriers;
been focused on providing systems and capabilities that
Ukraine’s domestic defense industry cannot produce, as
1,600+ Stinger anti-aircraft systems;
well as those that can be immediately deployed on the
8,500+ Javelin anti-armor systems and 50,000+ other
battlefield to increase the UAF’s resilience and ability to
anti-armor systems;
sustain combat operations. In addition to advanced rocket
1,800+ Phoenix Ghost Tactical UAS, 700+ Switchblade
and missile systems, these include protected mobility assets
Tactical UAS, and other UAS;
(such as armored vehicles), artillery and ammunition,
160 155 mm and 72 105 mm Howitzers with more than
communication, and intelligence support.
1.5 million artillery rounds;
Ukrainian officials have sought to acquire other advanced
30 120 mm mortar systems and 166,000 mortar rounds;
systems, including more Western battle tanks, fighter
Remote Anti-Armor Mine (RAAM) Systems;
aircraft, and additional air defense and anti-missile
2,590 Tube-Launched, Optically-Tracked, Wire-Guided
capabilities. Increasingly, the provision of security
(TOW) missiles, high-speed anti-radiation missiles
assistance to Ukraine also is focused on improving the
(HARMs), and laser-guided rocket systems;
UAF’s medium- to long-term capabilities, including
13,000+ grenade launchers and small arms; and
transitioning towards more NATO-standard weaponry and
communications, radar, and intelligence equipment.
improving the UAF’s ability to service and repair defense
equipment provided.
In addition, the Biden Administration has authorized third-
party transfers of U.S. defense articles and equipment from
Concerns remain about the potential for escalation. In June
several NATO and EU members to Ukraine. According to
2022, the Biden Administration first announced the
the State Department, NATO and EU members and other
provision to Ukraine of more advanced HIMARS systems
allies have committed more than $13 billion worth of
but without their longest-range rockets. The Administration
military assistance to Ukraine (and some countries do not
reportedly received Ukrainian assurances that the UAF will
fully disclose their military assistance).
not use these weapons to attack Russian territory.
Recent Legislation
Christina L. Arabia, Analyst in Security Assistance,
Prior to and immediately following Russia’s renewed
Security Cooperation and the Global Arms Trade
invasion of Ukraine, Congress authorized or proposed
Andrew S. Bowen, Analyst in Russian and European
increased funding levels for existing security assistance
Affairs
authorities. For FY2022, Congress increased the PDA
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 21 · UPDATED