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Updated January 3, 2024
U.S. Security Assistance to Ukraine
The United States has been a leading provider of security
USAI and FMF procurement packages have included
assistance to Ukraine, particularly since Russia launched its
equipment, training, and advisory efforts to enhance
renewed and expanded invasion of Ukraine on February 24,
Ukraine’s defensive capabilities (see Table 2).
2022. From 2014, when Russia first invaded Ukraine,
Ukraine also has received assistance pursuant to DOD’s
through December 27, 2023, the United States committed
more than $47 billion in security assistance to support
security cooperation authorities, notably Building Partner
“Ukraine’s efforts to defend itself against Russia’s
Capacity (10 U.S.C. §333) and Defense Institution Building
aggression, secure its borders, and improve interoperability
(10 U.S.C. §332), as well as International Military
Education and Training, which has provided professional
with NATO,” according to the U.S. Department of State. Of
this amount, the Biden Administration has committed about
military education at U.S. defense institutions for Ukrainian
military officers. Other State Department- and DOD-funded
$44.2 billion in security assistance since February 2022.
security assistance has supported conventional weapons
FY2022 and FY2023 security assistance packages were
destruction, border security, law enforcement training, and
mostly funded via $48.7 billion in supplemental
counter-weapons of mass destruction capabilities.
appropriations. This amount included $25.93 billion to
Table 1. Presidential Drawdowns for Ukraine,
replenish U.S. Department of Defense (DOD) equipment
FY2021-FY2024 (in millions of dol ars)
stocks sent to Ukraine via Presidential Drawdown
Month
Announced Committed
Authority (PDA; 22 U.S.C. §2318); $18 billion for DOD’s
FY Authorized PDA #
Value
Authority
Ukraine Security Assistance Initiative (USAI; P.L. 114-92,
2021
Aug.
1
60.0
60.0
§1250); and $4.73 billion in Foreign Military Financing
(FMF; 22 U.S.C. §2763) for Ukraine and “countries
Dec.
2
200.0
impacted by the situation in Ukraine.” Another $300
Feb.
3
350.0
million per year was provided for USAI in regular FY2022
Mar.
4, 5
1,000.0
and FY2023 appropriations and via FY2024 continuing
Apr.
6, 7, 8
1,700.0
appropriations.
2022
May
9, 10
250.0
On October 20, 2023, the Administration submitted to
June
11, 12, 13
1,500.0
Congress a request for $106 billion in FY2024 emergency
supplemental funding for Ukraine, Israel, border security,
July
14, 15, 16
625.0
and other purposes. The request includes $18 billion to
Aug.
17, 18, 19
2,325.0
replenish DOD stocks, $12 billion for USAI, and $1.7
Sept.
20, 21
1,275.0
9,225.0
billion in FMF. DOD Comptroller Michael McCord
informed Congress of the intent to obligate the remaining
Oct.
22, 23, 24
1,625.0
FY2023 replenishment funds by the end of December 2023.
Nov.
25, 26
800.0
Congress continues to consider the supplemental request.
Dec.
27, 28
1,275.0
Prior supplemental appropriations included funds for U.S.
Jan.
29, 30
5,350.0
European Command operations and related support for the
Feb.
31, 32
875.0
U.S. military. See CRS Insight IN12107, Department of
Mar.
33, 34
750.0
Defense Supplemental Funding for Ukraine: A Summary.
2023
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
Ukrainian Armed Forces (UAF) through train, equip, and
July
42, 43
1,200.0
advise efforts across multiple spending accounts.
Aug.
44, 45
(450.0)
Especially since 2021, the United States has been providing
Sept.
46, 47 128.0|(372.0)
14,628.0
defense items to Ukraine via PDA, by which the President
Oct.
48, 49
(350.0)
can authorize the immediate transfer of articles and services
2024
Nov.
50, 51
(225.0)
from U.S. stocks, up to a funding cap established in law, in
response to an “unforeseen emergency” (22 U.S.C.
Dec.
52, 53, 54
(625.0)
§2318(a)(1)). Since August 2021, the Biden Administration
Total:
23,913.0
has authorized 54 PDA drawdowns valued at $23.9 billion
Sources: Department of State and Department of Defense press
(Table 1). Most PDA packages since August 2023 have
releases through December 27, 2023.
used previously authorized authority after a DOD review of
PDA overvaluations restored up to $6.2 billion in FY2022
Note: Since August 2023, most PDA packages (in parentheses) have
and FY2023 authority.
used previously authorized Presidential Drawdown Authority.
https://crsreports.congress.gov
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Table 2. Selected U.S. Security Assistance to Ukraine, FY2016-FY2024
(selected account al ocations, in millions of dol ars)
FY16
FY17
FY18
FY19
FY20
FY21
FY22
FY23
FY24
Foreign Military Financing (FMF)
85.0
99.0
95.0
115.0
115.0
115.0
1,317.6a 325.0b
Ukraine Security Assistance Initiative (USAI)
226.5
148.6
195.5
214.8
256.7
275.7
6,300.0 12,300.0 300.0c
Sources: State Department congressional budget justifications, Department of Defense budget requests, and Department of State and
Department of Defense press releases. Table data valid through December 27, 2023.
a. FMF assistance from FY2022-FY2023 Ukraine supplemental appropriations also was provided to other European al ies and partners.
b. As announced by the Department of State; FY2023 FMF amounts are not final.
c. As announced by the Department of Defense; available under FY2024 continuing appropriations.
Through the Joint Multinational Training Group-Ukraine,
DOD, NATO and EU members and other allies have
established in 2015, the U.S. Army and National Guard,
committed about $35 billion in security assistance to
together with military trainers from U.S. allies, provided
Ukraine.
training, mentoring, and doctrinal assistance to the UAF
Recent Legislation
before the war. This training mission was suspended at the
Prior to and immediately following Russia’s renewed
outset of Russia’s invasion. Subsequently, DOD and U.S.
invasion of Ukraine, Congress authorized or proposed
allies resumed training Ukrainian personnel, outside
increased funding levels for existing security assistance
Ukraine, both to operate weapon systems and at the
authorities. Congress increased the PDA funding cap (22
collective unit level.
U.S.C. §2318(a)(1)) from $100 million up to $11 billion for
Provision of Defense Equipment
FY2022 via P.L. 117-128 and up to $14.5 billion for
After Russia first invaded Ukraine in 2014, the Obama
FY2023 via P.L. 117-328. The Administration’s October
Administration provided Ukraine nonlethal security
2023 supplemental request proposes an FY2024 cap of $7
assistance. In 2017, the Trump Administration announced
billion.
U.S. readiness to provide lethal weapons to Ukraine.
P.L. 117-328 continued provisions from P.L. 117-128 that
According to DOD, USAI packages prior to FY2022
require the Secretaries of State and Defense to report to
provided sniper rifles, rocket-propelled grenade launchers,
Congress on measures taken to account for the end-use of
counter-artillery radars, Mark VI patrol boats, electronic
U.S. weapons transferred to Ukraine. The act also
warfare detection and secure communications, satellite
continued a requirement for monthly descriptions of U.S.
imagery and analysis capability, counter-unmanned aerial
security assistance provided to Ukraine since February 24,
systems (UAS), air surveillance systems, night vision
2022. In addition, P.L. 117-328 appropriated $6 million for
devices, and equipment to support military medical
the DOD Inspector General to carry out reviews of DOD
treatment and combat evacuation procedures. Since 2018,
activities to execute funds in the bill.
Ukraine also has used FMF, as well as some of its national
Discussion on Future Assistance
funds, to procure U.S. defense equipment.
U.S. policy increasingly has recognized the UAF’s ability
According to DOD, U.S. security assistance committed to
to employ and operate advanced weaponry, including
Ukraine since the start of Russia’s full-scale invasion
systems capable of supporting Ukraine’s counter-offensive
through December 27, 2023, has included the following:
operations. Much of U.S. assistance has been focused on
providing capabilities that Ukraine’s domestic defense
• 39 High Mobility Artillery Rocket Systems (HIMARS);
industry cannot produce, as well as those that can be
• 12 National Advanced Surface-to-Air Missile Systems
immediately deployed on the battlefield to increase the
(NASAMS); 1 Patriot air defense battery; other air
UAF’s resilience and ability to sustain offensive combat
defense systems; and 21 air surveillance radars;
operations. In addition to advanced rocket and missile
• 31 Abrams tanks, 45 T-72B tanks and 186 Bradley
systems, these include protected mobility assets (such as
infantry fighting vehicles;
armored vehicles), artillery and ammunition,
• 300 M113 and 189 Stryker Armored Personnel Carriers;
communication, and intelligence support.
• 2,000+ Stinger anti-aircraft missiles;
Ukrainian officials have sought to acquire other advanced
• 10,000+ Javelin and 90,000+ other anti-armor systems;
systems, including more Western battle tanks, fighter
• Phoenix Ghost, Switchblade, and other UAS;
aircraft, long-range missiles, and additional air defense
•
capabilities. Increasingly, the provision of security
198 155 mm and 72 105 mm Howitzers and artillery;
•
assistance to Ukraine has focused on improving the UAF’s
227 mortar systems;
medium- to long-term capabilities, including for
• Remote Anti-Armor Mine (RAAM) Systems;
sustainment and transitioning toward more NATO-standard
• 9,000+ Tube-Launched, Optically-Tracked, Wire-
weaponry, and on helping develop Ukraine’s domestic
Guided (TOW) missiles;
defense industry. Debate continues about U.S. assistance to
•
Ukraine, Ukraine’s future warfighting
High-speed anti-radiation missiles (HARMs) and laser-
prospects, potential
guided rocket systems;
for escalation, and the ability of the U.S. defense industrial
•
base to supply growing demands.
35,000+ grenade launchers and small arms;
• communications, radar, and intelligence equipment; and
Christina L. Arabia, Analyst in Security Assistance,
• training, maintenance, and sustainment.
Security Cooperation and the Global Arms Trade
Andrew S. Bowen, Analyst in Russian and European
In addition, the Administration has approved third-party
Affairs
transfers of U.S.-origin defense articles and equipment from
several NATO and EU members to Ukraine. According to
Cory Welt, Specialist in Russian and European Affairs
https://crsreports.congress.gov
U.S. Security Assistance to Ukraine
IF12040
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https://crsreports.congress.gov | IF12040 · VERSION 29 · UPDATED