U.S. Security Assistance to Ukraine

U.S. Security Assistance to Ukraine

link to page 1 link to page 2

Updated February 15, 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 February 13, 2024, the Senate passed the National
June
11, 12, 13
1,500.0
Security Act, 2024 (H.R. 815, as amended), by a vote of 70-
29. If enacted, Division A of the act would provide
July
14, 15, 16
625.0
approximately $60 billion for Ukraine-related activities out
Aug.
17, 18, 19
2,325.0
of $95.3 billion in total funding. This amount includes at
Sept.
20, 21
1,275.0
9,225.0
least $13.4 billion to replenish DOD stocks that are to be
transferred to Ukraine, $13.8 billion for USAI, and $1.6
Oct.
22, 23, 24
1,625.0
billion in FMF for Ukraine and other affected countries.
Nov.
25, 26
800.0
The act, like prior Ukraine supplemental appropriations,
Dec.
27, 28
1,275.0
also would include funds for U.S. European Command
Jan.
29, 30
5,350.0
operations and related support for the U.S. military. See
Feb.
31, 32
875.0
CRS Insight IN12107, Department of Defense
Mar.
33, 34
750.0
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

link to page 2 link to page 2 link to page 2 link to page 2 U.S. Security Assistance to Ukraine
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 FY24a
Foreign Military Financing (FMF)
85.0
99.0
95.0
115.0
115.0
115.0
1,317.6b 325.0c

Ukraine Security Assistance Initiative (USAI)
226.5
148.6
195.5
214.8
256.7
275.7
6,300.0 12,300.0 300.0d
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. Does not include funding that would be provided in the Senate-passed National Security Act, 2024 (H.R. 815, as amended).
b. FMF assistance from FY2022-FY2023 Ukraine supplemental appropriations also was provided to other European al ies and partners.
c. As announced by the Department of State; FY2023 FMF amounts are not final.
d. 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 had
the U.S. Army and National Guard, together with military
committed $35 billion in security assistance to Ukraine
trainers from U.S. allies, provided training, mentoring, and
through November 2023.
doctrinal assistance to the UAF before the war. This
Recent Legislation
training mission was suspended at the outset of Russia’s
Prior to and immediately following Russia’s renewed
invasion. Subsequently, DOD and U.S. allies resumed
invasion of Ukraine, Congress authorized or proposed
training Ukrainian personnel, outside Ukraine, both to
increased funding levels for existing security assistance
operate weapon systems and at the collective unit level.
authorities. Congress increased the PDA funding cap (22
Provision of Defense Equipment
U.S.C. §2318(a)(1)) from $100 million up to $11 billion for
After Russia first invaded Ukraine in 2014, the Obama
FY2022 via P.L. 117-128 and up to $14.5 billion for
Administration provided Ukraine nonlethal security
FY2023 via P.L. 117-328. The Senate-passed National
assistance. In 2017, the Trump Administration announced
Security Act, 2024, would establish a cap for FY2024 of
U.S. readiness to provide lethal weapons to Ukraine.
$7.8 billion.
According to DOD, USAI packages prior to FY2022
P.L. 117-328 continued provisions from P.L. 117-128 that
provided sniper rifles, rocket-propelled grenade launchers,
require the Secretaries of State and Defense to report to
counter-artillery radars, Mark VI patrol boats, electronic
Congress on measures taken to account for the end-use of
warfare detection and secure communications, satellite
U.S. weapons transferred to Ukraine. The act also
imagery and analysis capability, counter-unmanned aerial
continued a requirement for monthly descriptions of U.S.
systems (UAS), air surveillance systems, night vision
security assistance provided to Ukraine since February 24,
devices, and equipment to support military medical
2022. In addition, P.L. 117-328 appropriated $6 million for
treatment and combat evacuation procedures. Since 2018,
the DOD Inspector General to carry out reviews of DOD
Ukraine also has used FMF, as well as some of its national
activities to execute funds in the bill.
funds, to procure U.S. defense equipment.
Discussion on Future Assistance
According to DOD, U.S. security assistance committed to
U.S. policy increasingly has recognized the UAF’s ability
Ukraine since the start of Russia’s full-scale invasion
to employ and operate advanced weaponry, including
through December 27, 2023, has included the following:
systems capable of supporting Ukraine’s counter-offensive
•
operations. Much of U.S. assistance has been focused on
39 High Mobility Artillery Rocket Systems (HIMARS);
providing capabilities that Ukraine’s domestic defense
• 12 National Advanced Surface-to-Air Missile Systems
industry cannot produce, as well as those that can be
(NASAMS); 1 Patriot air defense battery; other air
immediately deployed on the battlefield to increase the
defense systems; and 21 air surveillance radars;
UAF’s resilience and ability to sustain offensive combat
• 31 Abrams tanks, 45 T-72B tanks and 186 Bradley
operations. In addition to advanced rocket and missile
infantry fighting vehicles;
systems, these include protected mobility assets (such as
• 300 M113 and 189 Stryker Armored Personnel Carriers;
armored vehicles), artillery and ammunition,
•
communication, and intelligence support.
2,000+ Stinger anti-aircraft missiles;
• 10,000+ Javelin and 90,000+ other anti-armor systems;
Ukrainian officials have sought to acquire other advanced
• Phoenix Ghost, Switchblade, and other UAS;
systems, including more Western battle tanks, fighter
•
aircraft, long-range missiles, and additional air defense
198 155 mm and 72 105 mm Howitzers and artillery;
•
capabilities. Increasingly, the provision of security
227 mortar systems;
assistance to Ukraine has focused on improving the UAF’s
• Remote Anti-Armor Mine (RAAM) Systems;
medium- to long-term capabilities, including for
• 9,000+ Tube-Launched, Optically-Tracked, Wire-
sustainment and transitioning toward more NATO-standard
Guided (TOW) missiles;
weaponry, and on helping develop Ukraine’s domestic
• High-speed anti-radiation missiles (HARMs) and laser-
defense industry. Debate continues about U.S. assistance to
Ukraine, Ukraine’s future warfighting
guided rocket systems;
prospects, potential
•
for escalation, and the ability of the U.S. defense industrial
35,000+ grenade launchers and small arms;
•
base to supply growing demands.
communications, radar, and intelligence equipment; and
• training, maintenance, and sustainment.
Christina L. Arabia, Analyst in Security Assistance,
Security Cooperation and the Global Arms Trade
In addition, the Administration has approved third-party
Andrew S. Bowen, Analyst in Russian and European
transfers of U.S.-origin defense articles and equipment from
Affairs
several NATO and EU members to Ukraine. According to
https://crsreports.congress.gov

U.S. Security Assistance to Ukraine

IF12040
Cory Welt, Specialist in Russian and European Affairs

Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.

https://crsreports.congress.gov | IF12040 · VERSION 32 · UPDATED