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Updated October 5, 2023
U.S. Security Assistance to Ukraine
The United States has been a leading provider of security
Ukraine also has received assistance pursuant to DOD’s
assistance to Ukraine, particularly since Russia launched its
security cooperation authorities, notably Building Partner
renewed and expanded invasion of Ukraine on February 24,
Capacity (10 U.S.C. §333) and Defense Institution Building
2022. From 2014, when Russia first invaded Ukraine,
(10 U.S.C. §332), as well as International Military
through October 5, 2023, the United States has committed
Education and Training, which has provided professional
more than $46.7 billion in security assistance “to help
military education at U.S. defense institutions for Ukrainian
Ukraine preserve its territorial integrity, secure its borders,
military officers. Other State Department- and DOD-funded
and improve interoperability with NATO,” according to the
security assistance has supported conventional weapons
State Department. Of this amount, the Biden
destruction, border security, law enforcement training, and
Administration has committed more than $43.9 billion in
counter-weapons of mass destruction capabilities.
security assistance since February 2022.
Table 1. Presidential Drawdowns for Ukraine,
FY2022 and FY2023 security assistance packages were
FY2021-FY2023 (in millions of dol ars)
mostly funded via $48.7 billion in supplemental
FY
Auth.
PDA #
Value
appropriations. This amount included $25.93 billion to
2021
Aug.
1
60.0
replenish Department of Defense (DOD) equipment stocks
Dec.
2
200.0
sent to Ukraine via presidential drawdown authority; $18
Feb.
3
350.0
billion for DOD’s Ukraine Security Assistance Initiative
(USAI; P.L. 114-92, §1250); and $4.73 billion in Foreign
Mar.
4, 5
1,000.0
Military Financing (FMF; 22 U.S.C. §2763) for Ukraine
Apr.
6, 7, 8
1,700.0
and “countries impacted by the situation in Ukraine.”
2022
May
9, 10
250.0
Another $300 million per year was provided for USAI in
regular FY2022 and FY2023 appropriations.
June
11, 12, 13
1,500.0
July
14, 15, 16
625.0
On August 10, 2023, the Administration submitted to
Aug.
17, 18, 19
2,325.0
Congress a request for nearly $24 billion in FY2024
supplemental funding for Ukraine and other international
Sept.
20, 21
1,275.0
needs. The request includes $10.5 billion in security
Oct.
22, 23, 24
1,625.0
assistance to Ukraine and other countries affected by the
Nov.
25, 26
800.0
war, including $4.5 billion to replenish DOD stocks, $5
billion for USAI, and $1 billion in FMF.
Dec.
27, 28
1,275.0
Jan.
29, 30
5,350.0
Prior supplemental appropriations included funds for U.S.
Feb.
31, 32
875.0
European Command operations and related support for the
U.S. military. See CRS Insight IN12107, Department of
Mar.
33, 34
750.0
2023
Defense Supplemental Funding for Ukraine: A Summary.
Apr.
35, 36
825.0
Overview of Programs Since 2014
May
37, 38, 39
975.0
The United States has used security assistance programs
June
40, 41
825.0
and authorities to help build the defensive capacity of the
July
42, 43
1,200.0
Ukrainian Armed Forces (UAF) through train, equip, and
Aug.
44, 45
450.0
advise efforts across multiple spending accounts.
Sept.
46, 47
500.0
Especially since 2021, the United States has been providing
Total: 24,735.0
defense items to Ukraine via Presidential Drawdown
Authority (PDA), by which the President can authorize the
Sources: Department of State and Department of Defense press
immediate transfer of articles and services from U.S.
releases through October 5, 2023.
stocks, up to a funding cap established in law, in response
Through the Joint Multinational Training Group-Ukraine,
to an “unforeseen emergency” (22 U.S.C. §2318(a)(1)).
established in 2015, the U.S. Army and National Guard,
Since August 2021, the Biden Administration has
together with military trainers from U.S. allies, provided
authorized 47 drawdowns initially valued at nearly $25
training, mentoring, and doctrinal assistance to the UAF
billion (Table 1). Recently, the PDA packages underwent a
before the war. This training mission was suspended at the
revaluation, which restored $6.2 billion that the State
outset of Russia’s invasion. Subsequently, DOD and U.S.
Department said may be used to fulfill future PDA
allies resumed training Ukrainian personnel, outside
packages. On October 3, 2023, DOD confirmed that $5.4
Ukraine, both to operate weapon systems and at the
billion remained available in PDA authority.
collective unit level. Separately, U.S. Special Operations
USAI and FMF procurement packages have included
Forces have trained and advised Ukrainian special forces.
equipment, training, and advisory efforts to enhance
Ukraine’s defensive capabilities (see Table 2).
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 Initiative (USAI)
226.5
148.6
195.5
214.8
256.7
275.7
6,300.0 12,300.0
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 October 5, 2023.
a. FMF assistance from FY2022-FY2023 Ukraine supplemental appropriations also has been provided to other European al ies and partners.
Provision of Defense Equipment
Recent Legislation
After Russia first invaded Ukraine in 2014, the Obama
Prior to and immediately following Russia’s renewed
Administration provided Ukraine nonlethal security
invasion of Ukraine, Congress authorized or proposed
assistance. In 2017, the Trump Administration announced
increased funding levels for existing security assistance
U.S. readiness to provide lethal weapons to Ukraine.
authorities. Congress increased the PDA funding cap (22
U.S.C. §2318(a)(1)) from $100 million up to $11 billion for
According to DOD, USAI packages prior to FY2022
FY2022 via P.L. 117-128 and up to $14.5 billion for
provided sniper rifles, rocket-propelled grenade launchers,
FY2023 via P.L. 117-328. The Administration’s FY2024
counter-artillery radars, Mark VI patrol boats, electronic
supplemental request proposes a cap of $1.1 billion.
warfare detection and secure communications, satellite
imagery and analysis capability, counter-unmanned aerial
P.L. 117-328 continues provisions from P.L. 117-128 that
systems (UAS), air surveillance systems, night vision
require the Secretaries of State and Defense to report on
devices, and equipment to support military medical
measures taken to account for the end-use of U.S. weapons
treatment and combat evacuation procedures.
transferred to Ukraine. The act also continues a requirement
for monthly descriptions of U.S. security assistance
Since 2018, Ukraine also has used FMF, as well as some of
provided to Ukraine since February 24, 2022. In addition,
its national funds, to procure U.S. defense equipment,
P.L. 117-328 appropriated $6 million for the DOD
including Javelin anti-armor missiles and Mark VI patrol
Inspector General to carry out reviews of DOD activities to
boats purchased through the Foreign Military Sales (FMS)
execute funds in the bill.
system. In addition, Ukraine has purchased firearms;
ammunition; ordnance; and other equipment directly from
The Continuing Appropriations Act, 2024 (P.L. 118-15),
U.S. suppliers via Direct Commercial Sales.
did not include security assistance funding for Ukraine. The
House-passed version of the Department of Defense
Since 2022, the United States has provided more advanced
Appropriations Act, 2024 (H.R. 4365), removed $300
defense equipment to Ukraine, as well as greater amounts
million for USAI prior to passage. At the same time, the
of previously provided equipment. According to DOD, U.S.
House included $300 million in a standalone Ukraine
security assistance committed to Ukraine as of September
Security Assistance and Oversight Supplemental
21, 2023, has included the following:
Appropriations Act, 2024 (H.R. 5692).
• 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
• 31 Abrams tanks, 45 T-72B tanks and 186 Bradley
providing capabilities that Ukraine’s domestic defense
infantry fighting vehicles;
industry cannot produce, as well as those that can be
• 300 M113 and 189 Stryker Armored Personnel Carriers;
immediately deployed on the battlefield to increase the
• 2,000+ Stinger anti-aircraft systems;
UAF’s resilience and ability to sustain offensive combat
•
operations. In addition to advanced rocket and missile
10,000+ Javelin and 80,000+ other anti-armor systems;
•
systems, these include protected mobility assets (such as
Phoenix Ghost, Switchblade, and other UAS;
armored vehicles), artillery and ammunition,
• 198 155 mm and 72 105 mm Howitzers and artillery;
communication, and intelligence support.
• 237 mortar systems;
•
Ukrainian officials have sought to acquire other advanced
Remote Anti-Armor Mine (RAAM) Systems;
systems, including more Western battle tanks, fighter
• 7,000+ Tube-Launched, Optically-Tracked, Wire-
aircraft, long-range missiles, and additional air defense
Guided (TOW) missiles, high-speed anti-radiation
capabilities. Increasingly, the provision of security
missiles (HARMs), and laser-guided rocket systems;
assistance to Ukraine is focused on improving the UAF’s
• 35,000+ grenade launchers and small arms;
medium- to long-term capabilities, including for
• communications, radar, and intelligence equipment; and
sustainment and transitioning toward more NATO-standard
•
weaponry. Debate continues about the prospects for
training, maintenance, and sustainment.
Ukraine’s counter-offensive, potential for escalation, and
In addition, the Administration has approved or expressed a
the ability of the U.S. defense industrial base to supply
willingness to approve third-party transfers of U.S.-origin
growing demands.
defense articles and equipment, including F-16 aircraft,
Christina L. Arabia, Analyst in Security Assistance,
from several NATO and EU members to Ukraine. NATO
Security Cooperation and the Global Arms Trade
and EU members and other allies state they have committed
more than $30 billion in security assistance to Ukraine.
Andrew S. Bowen, Analyst in Russian and European
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 28 · UPDATED