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Updated February 27, 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 February 27, 2023, the United States has
(in millions of dol ars)
committed about $34 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 $31.7
1
Aug. 27, 2021
60.0 17 Aug. 1, 2022
550.0
billion in security assistance since the start of the 2022 war.
2
Dec. 28, 2021
200.0 18 Aug. 8, 2022
1,000.0
3
Feb. 25, 2022
350.0 19 Aug. 19, 2022
775.0
FY2022 and FY2023 security assistance packages are
4
Mar. 12, 2022
200.0 20 Sept. 8, 2022
675.0
mostly being funded via $48.7 billion in supplemental
5
Mar. 16, 2022
800.0 21 Sept. 15, 2022
600.0
appropriations. This amount includes $25.93 billion to
6
Apr. 5, 2022
100.0 22 Oct. 4, 2022
625.0
replenish Department of Defense (DOD) equipment stocks
sent to Ukraine via presidential drawdown authority; $18
7
Apr. 13, 2022
800.0 23 Oct. 14, 2022
725.0
billion for DOD’s Ukraine Security Assistance Initiative
8
Apr. 21, 2022
800.0 24 Oct. 28, 2022
275.0
(USAI; P.L. 114-92, §1250); and $4.73 billion in Foreign
9
May 6, 2022
150.0 25 Nov. 10, 2022
400.0
Military Financing (FMF; 22 U.S.C. §2763) for Ukraine
10
May 19, 2022
100.0 26 Nov. 23, 2022
400.0
and “countries impacted by the situation in Ukraine.”
11
June 1, 2022
700.0 27 Dec. 9, 2022
275.0
12
June 15, 2022
350.0 28 Dec. 21, 2022
1,000.0
Supplemental appropriations also include funds for U.S.
European Command operations and related support for the
13
June 23, 2022
450.0 29 Jan. 6, 2023
2,850.0
U.S. military. For more, see CRS Insight IN12107,
14
July 1, 2022
50.0 30 Jan. 19, 2023
2,500.0
Department of Defense Supplemental Funding for Ukraine: 15
July 8, 2022
400.0 31 Feb. 3, 2023
425.0
A Summary.
16
July 22, 2022
175.0 32 Feb. 20, 2023
460.0
Overview of Programs Since 2014
Total
19,220.0
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 February 27, 2023.
capacity of the Ukrainian Armed Forces (UAF) through
Through the Joint Multinational Training Group-Ukraine,
train, equip, and advise efforts across multiple spending
established in 2015, the U.S. Army and National Guard,
accounts.
together with military trainers from U.S. allies, provided
training, mentoring, and doctrinal assistance to the UAF
Especially since 2021, the United States has been providing
before the war. This training mission was suspended at the
defense items to Ukraine via Presidential Drawdown
outset of Russia’s invasion. In April 2022, DOD announced
Authority (PDA), by which the President can authorize the
it would resume training Ukrainian personnel, outside
immediate transfer of articles and services from U.S.
Ukraine, both to operate weapon systems and at the
stocks, up to a funding cap established in law, in response
to an “unforeseen emergency” (22 U.S.C. §2318(a)(1)).
collective unit level. Separately, U.S. Special Operations
Forces have trained and advised Ukrainian special forces.
Since August 2021, the Biden Administration has
authorized 32 drawdowns valued at $19.2 billion (Table 1).
Provision of Defense Equipment
After Russia first invaded Ukraine in 2014, the Obama
USAI and FMF packages have included training,
Administration provided Ukraine nonlethal security
equipment, and advisory efforts to enhance Ukraine’s
assistance, including body armor, helmets, vehicles, night
defensive capabilities (see Table 2). FY2022 appropriations
and thermal vision devices, heavy engineering equipment,
also directed that USAI funds be provided for logistics
advanced radios, patrol boats, rations, tents, counter-mortar
support, supplies, and services; salaries and stipends;
radars, uniforms, medical kits, and other related items. In
sustainment; weapons replacement; and intelligence
2017, the Trump Administration announced U.S. readiness
support.
to provide lethal weapons to Ukraine.
Ukraine also has received assistance pursuant to DOD’s
According to DOD, USAI packages prior to FY2022
security cooperation authorities, notably Building Partner
provided sniper rifles, rocket-propelled grenade launchers,
Capacity (10 U.S.C. §333) and Defense Institution Building
counter-artillery radars, Mark VI patrol boats, electronic
(10 U.S.C. §332), as well as International Military
warfare detection and secure communications, satellite
Education and Training, which has provided professional
imagery and analysis capability, counter-unmanned aerial
military education at U.S. defense institutions for Ukrainian
systems (UAS), air surveillance systems, night vision
military officers. Other State Department- and DOD-funded
devices, and equipment to support military medical
security assistance has supported conventional weapons
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.)
5,000.0 (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 February 27, 2023.
a. 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
FY2022 via P.L. 117-128 and up to $14.5 billion for
its national funds, to procure U.S. defense equipment,
FY2023 via P.L. 117-328.
including Javelin anti-armor missiles and Mark VI patrol
boats purchased through the Foreign Military Sales (FMS)
P.L. 117-328 continues provisions from P.L. 117-128 that
require the Secretaries of State and Defense to report on
system. Ukraine also has used a combination of FMF and
national funds to refurbish former U.S. Coast Guard Island-
measures taken to account for the end-use of U.S. weapons
transferred to Ukraine. The act also continues a requirement
class patrol boats provided through the Excess Defense
Articles (EDA; 22 U.S.C. §2321j) program. In addition,
for monthly descriptions of U.S. security assistance
provided to Ukraine since February 24, 2022, including a
Ukraine has purchased firearms; ammunition; ordnance;
and other laser, imaging, or guidance equipment directly
comprehensive list of provided defense articles and
from U.S. suppliers via Direct Commercial Sales.
services, as well as associated authorities and funding.
Since 2022, the United States has provided more advanced
In addition, P.L. 117-328 appropriated $6 million for the
DOD Inspector General to carry out reviews of DOD
defense equipment to Ukraine, as well as greater amounts
of previously provided equipment. According to DOD, U.S.
activities to execute funds in the bill. Additionally, the
Ukraine Democracy Defense Lend-Lease Act of 2022 (P.L.
security assistance committed to Ukraine as of February 27,
117-118) provides means to bypass bureaucratic barriers for
2023, has included the following:
leasing or lending U.S. defense articles to Ukraine.
38 High Mobility Artillery Rocket Systems (HIMARS)
Discussion on Future Assistance
and ammunition;
U.S. policy increasingly has recognized the UAF’s ability
8 National Advanced Surface-to-Air Missile Systems
to employ and operate advanced weaponry, including
(NASAMS); 1 Patriot air defense battery; and other air
systems capable of supporting offensive operations to
defense systems;
liberate Ukrainian territory. Much of U.S. assistance has
31 M1 Abrams tanks, 45 T-72B tanks and 109 Bradley
been focused on providing capabilities that Ukraine’s
infantry fighting vehicles;
domestic defense industry cannot produce, as well as those
300 M113 and 90 Stryker Armored Personnel Carriers;
that can be immediately deployed on the battlefield to
1,600+ Stinger anti-aircraft systems;
increase the UAF’s resilience and ability to sustain
8,500+ Javelin anti-armor systems and 54,000+ other
offensive combat operations. In addition to advanced rocket
anti-armor systems;
and missile systems, these include protected mobility assets
(such as armored vehicles), artillery and ammunition,
1,800+ Phoenix Ghost Tactical UAS, 700+ Switchblade
communication, and intelligence support.
Tactical UAS, and other UAS;
160 155 mm and 72 105 mm Howitzers and artillery;
Ukrainian officials have sought to acquire other advanced
30 120 mm mortar systems;
systems, including more Western battle tanks, fighter
aircraft, long-range missiles, and additional air defense
Remote Anti-Armor Mine (RAAM) Systems;
capabilities. Increasingly, the provision of security
2,500+ Tube-Launched, Optically-Tracked, Wire-
assistance to Ukraine also is focused on improving the
Guided (TOW) missiles, high-speed anti-radiation
UAF’s medium- to long-term capabilities, including
missiles (HARMs), and laser-guided rocket systems;
transitioning towards more NATO-standard weaponry and
13,000+ grenade launchers and small arms;
improving the UAF’s ability to service and repair defense
communications, radar, and intelligence equipment; and
equipment provided.
training, maintenance, and sustainment.
Concerns remain about the potential for escalation as well
In addition, the Biden Administration has authorized third-
as the ability of the U.S. defense industrial base to supply
party transfers of U.S. defense articles and equipment from
growing demands. In June 2022, the Biden Administration
several NATO and EU members to Ukraine. NATO and EU
first announced the provision to Ukraine of more advanced
members and other allies state they have committed about
HIMARS systems but without their longest-range rockets.
$17 billion in security assistance to Ukraine (and some
The Administration reportedly received Ukrainian
countries do not fully disclose such assistance).
assurances that the UAF will not use these weapons to
attack Russian territory.
Recent Legislation
Prior to and immediately following Russia’s renewed
Christina L. Arabia, Analyst in Security Assistance,
invasion of Ukraine, Congress authorized or proposed
Security Cooperation and the Global Arms Trade
increased funding levels for existing security assistance
Andrew S. Bowen, Analyst in Russian and European
authorities. Congress increased the PDA funding cap (22
Affairs
U.S.C. §2318(a)(1)) from $100 million up to $11 billion for
Cory Welt, Specialist in Russian and European Affairs
https://crsreports.congress.gov
U.S. Security Assistance to Ukraine
IF12040
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