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Updated August 25, 2023
U.S. Security Assistance to Ukraine
The United States has been a leading provider of security
(10 U.S.C. §332), as well as International Military
assistance to Ukraine, particularly since Russia launched its
Education and Training, which has provided professional
renewed and expanded invasion of Ukraine on February 24,
military education at U.S. defense institutions for Ukrainian
2022. From 2014, when Russia first invaded Ukraine,
military officers. Other State Department- and DOD-funded
through August 22, 2023, the United States has committed
security assistance has supported conventional weapons
more than $46 billion in security assistance “to help
destruction, border security, law enforcement training, and
Ukraine preserve its territorial integrity, secure its borders,
counter-weapons of mass destruction capabilities.
and improve interoperability with NATO,” according to the
Table 1. Presidential Drawdowns for Ukraine,
State Department. Of this amount, the Biden
FY2021-FY2023 (in millions of dol ars)
Administration has committed more than $43 billion in
FY
Auth.
PDA #
Value
security assistance since February 2022.
2021
Aug.
1
60.0
FY2022 and FY2023 security assistance packages are
Dec.
2
200.0
mostly being funded via $48.7 billion in supplemental
Feb.
3
350.0
appropriations. This amount includes $25.93 billion to
replenish Department of Defense (DOD) equipment stocks
Mar.
4, 5
1,000.0
sent to Ukraine via presidential drawdown authority; $18
Apr.
6, 7, 8
1,700.0
billion for DOD’s Ukraine Security Assistance Initiative
2022
May
9, 10
250.0
(USAI; P.L. 114-92, §1250); and $4.73 billion in Foreign
Military Financing (FMF; 22 U.S.C. §2763) for Ukraine
June
11, 12, 13
1,500.0
and “countries impacted by the situation in Ukraine.”
July
14, 15, 16
625.0
Aug.
17, 18, 19
2,325.0
On August 10, 2023, the Administration submitted to
Congress a request for nearly $24 billion in FY2024
Sept.
20, 21
1,275.0
supplemental funding for Ukraine and other international
Oct.
22, 23, 24
1,625.0
needs. The request includes $10.5 billion in security
Nov.
25, 26
800.0
assistance to Ukraine and other countries affected by the
war, including $4.5 billion to replenish DOD stocks, $5
Dec.
27, 28
1,275.0
billion for USAI, and $1 billion in FMF.
Jan.
29, 30
5,350.0
Feb.
31, 32
875.0
Supplemental appropriations also include funds for U.S.
European Command operations and related support for the
2023
Mar.
33, 34
750.0
U.S. military. See CRS Insight IN12107, Department of
Apr.
35, 36
825.0
Defense Supplemental Funding for Ukraine: A Summary.
May
37, 38, 39
975.0
Overview of Programs Since 2014
June
40, 41
825.0
The United States has used security assistance programs
July
42, 43
1,200.0
and authorities to help build the defensive capacity of the
Aug.
44
200.0
Ukrainian Armed Forces (UAF) through train, equip, and
advise efforts across multiple spending accounts.
Total: 23,985.0
Sources: Department of State and Department of Defense press
Especially since 2021, the United States has been providing
releases through August 18, 2023.
defense items to Ukraine via Presidential Drawdown
Authority (PDA), by which the President can authorize the
Through the Joint Multinational Training Group-Ukraine,
immediate transfer of articles and services from U.S.
established in 2015, the U.S. Army and National Guard,
stocks, up to a funding cap established in law, in response
together with military trainers from U.S. allies, provided
to an “unforeseen emergency” (22 U.S.C. §2318(a)(1)).
training, mentoring, and doctrinal assistance to the UAF
Since August 2021, the Biden Administration has
before the war. This training mission was suspended at the
authorized 44 drawdowns initially valued at nearly $24
outset of Russia’s invasion. Subsequently, DOD and U.S.
billion (the PDA packages underwent a revaluation, which
allies resumed training Ukrainian personnel, outside
restored $6.2 billion that the State Department said may be
Ukraine, both to operate weapon systems and at the
used to fulfill future PDA packages) (Table 1).
collective unit level. Separately, U.S. Special Operations
Forces have trained and advised Ukrainian special forces.
USAI and FMF procurement packages have included
training, equipment, and advisory efforts to enhance
Provision of Defense Equipment
Ukraine’s defensive capabilities (see Table 2).
After Russia first invaded Ukraine in 2014, the Obama
Administration provided Ukraine nonlethal security
Ukraine also has received assistance pursuant to DOD’s
assistance. In 2017, the Trump Administration announced
security cooperation authorities, notably Building Partner
U.S. readiness to provide lethal weapons to Ukraine.
Capacity (10 U.S.C. §333) and Defense Institution Building
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
1,317.6a
—
Ukraine Security Assistance
226.5 148.6 195.5 214.8 256.7 275.7
6,300.0 (obl.)
11,700.0 (obl.)
Initiative (USAI)
out of 12,300.0 (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 August 18, 2023.
a. FMF assistance from FY2022 Ukraine supplemental appropriations also has been provided to other European al ies and partners.
According to DOD, USAI packages prior to FY2022
increased funding levels for existing security assistance
provided sniper rifles, rocket-propelled grenade launchers,
authorities. Congress increased the PDA funding cap (22
counter-artillery radars, Mark VI patrol boats, electronic
U.S.C. §2318(a)(1)) from $100 million up to $11 billion for
warfare detection and secure communications, satellite
FY2022 via P.L. 117-128 and up to $14.5 billion for
imagery and analysis capability, counter-unmanned aerial
FY2023 via P.L. 117-328. The Administration’s FY2024
systems (UAS), air surveillance systems, night vision
supplemental request proposes a cap of $1.1 billion.
devices, and equipment to support military medical
P.L. 117-328 continues provisions from P.L. 117-128 that
treatment and combat evacuation procedures.
require the Secretaries of State and Defense to report on
Since 2018, Ukraine also has used FMF, as well as some of
measures taken to account for the end-use of U.S. weapons
its national funds, to procure U.S. defense equipment,
transferred to Ukraine. The act also continues a requirement
including Javelin anti-armor missiles and Mark VI patrol
for monthly descriptions of U.S. security assistance
boats purchased through the Foreign Military Sales (FMS)
provided to Ukraine since February 24, 2022, including a
system. In addition, Ukraine has purchased firearms;
comprehensive list of provided defense articles and
ammunition; ordnance; and other equipment directly from
services, as well as associated authorities and funding.
U.S. suppliers via Direct Commercial Sales.
In addition, P.L. 117-328 appropriated $6 million for the
Since 2022, the United States has provided more advanced
DOD Inspector General to carry out reviews of DOD
defense equipment to Ukraine, as well as greater amounts
activities to execute funds in the bill. The Ukraine
of previously provided equipment. According to DOD, U.S.
Democracy Defense Lend-Lease Act of 2022 (P.L. 117-
security assistance committed to Ukraine as of August 14,
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
• 12 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 Ukraine’s counter-offensive
defense systems;
operations. Much of U.S. assistance has been focused on
•
providing capabilities that Ukraine’s domestic defense
31 Abrams tanks, 45 T-72B tanks and 186 Bradley
infantry fighting vehicles;
industry cannot produce, as well as those that can be
•
immediately deployed on the battlefield to increase the
300 M113 and 189 Stryker Armored Personnel Carriers;
•
UAF’s resilience and ability to sustain offensive combat
2,000+ Stinger anti-aircraft systems;
operations. In addition to advanced rocket and missile
• 10,000+ Javelin anti-armor systems and 80,000+ other
systems, these include protected mobility assets (such as
anti-armor systems;
armored vehicles), artillery and ammunition,
• Phoenix Ghost Tactical, Switchblade Tactical, and other
communication, and intelligence support.
UAS;
•
Ukrainian officials have sought to acquire other advanced
198 155 mm and 72 105 mm Howitzers and artillery;
systems, including more Western battle tanks, fighter
• 182 mortar systems;
aircraft, long-range missiles, and additional air defense
• Remote Anti-Armor Mine (RAAM) Systems;
capabilities. Increasingly, the provision of security
• 7,000+ 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
•
improving the UAF’s ability to service and repair defense
35,000+ grenade launchers and small arms;
•
equipment provided.
communications, radar, and intelligence equipment; and
• training, maintenance, and sustainment.
Debate continues about the prospects for Ukraine’s counter-
offensive, potential for escalation, and the ability of the
In addition, the Administration has approved or
U.S. defense industrial base to supply growing demands.
preliminarily approved third-party transfers of U.S.-origin
The Biden Administration reportedly has received
defense articles and equipment, including F-16 aircraft,
Ukrainian assurances that the UAF will not use U.S.-
from several NATO and EU members to Ukraine. NATO
provided long-range weapons to attack Russian territory.
and EU members and other allies state they have committed
at least $30 billion in security assistance to Ukraine.
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
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 26 · UPDATED