S. 2592 — Supporting Ukraine Act of 2025

This section states the sense of Congress that—(1) U.S. security assistance to Ukraine benefits both Ukraine and U.S. national security interests; (2) procuring such assistance spurs U.S. manufacturing for military contingencies, including in the Indo-Pacific, and counters U.S. adversaries; (3) congressional appropriations provide a demand signal for industry to support U.S. and allied needs; (4) U.S. assistance to Ukraine is not charity and must be coordinated with other contributions; and (5) the U.S. should continue support using all available sources, including (A) U.S. funds to backfill and procure assistance, (B) frozen Russian assets, (C) seized illicit weapons transfers, (D) capitalizing the Ukraine Reconstruction Investment Fund through security assistance to generate taxpayer returns, and (E) selling arms and materiel to allies that provide them to Ukraine.

This section authorizes the United States International Development Finance Corporation to implement the Agreement between the Government of Ukraine and the Government of the United States of America on the Establishment of a United States-Ukraine Reconstruction Investment Fund, done at Washington on April 30, 2025 (commonly known as the “Ukraine-United States Mineral Resources Agreement”). It provides that U.S. security assistance to Ukraine, including under this Act, counts toward U.S. capital contributions to the fund, with the assessed value of new military assistance (e.g., donated weapons systems, ammunition, technology, or training) deemed an increase in such contributions pursuant to section 5 of Article VI of the agreement. It further requires the President to submit to the appropriate congressional committees, within 180 days of enactment and annually thereafter for two years, an unclassified report (with a possible classified annex) describing U.S. capital contributions, including any donated weapon systems and other materiel.

This section establishes a U.S. policy to provide, consistent with federal law, weapons systems and components seized from sanctioned Iranian entities to Ukraine for use in its war against Russia. It (1) directs the Department of Defense and other agencies to share relevant information with the Department of Justice to support forfeiture actions for such items potentially useful to Ukraine; (2) authorizes the Attorney General, in coordination with the Secretary of State and other agencies, to transfer needed items to Ukraine or its armed forces; (3) permits the Secretary of Defense, after consultation with Ukraine and U.S. European Command, to sell unneeded items as surplus under existing law and reserve proceeds for Ukraine support; and (4) requires the Secretary of Defense and Attorney General, in coordination with the Secretary of State, to submit unclassified reports (with classified annexes if needed) to specified Senate and House Armed Services and Judiciary Committees not later than 180 days after enactment and every 180 days thereafter detailing use of these authorities, items transferred, and proceeds used.

This section directs the President, not later than 90 days after enactment, to either effectuate the seizure or transfer of immobilized Russian sovereign assets under U.S. jurisdiction (including accrued interest) to the Ukraine Support Fund established under the REPO for Ukrainians Act or submit to specified congressional committees a strategy for generating additional revenue from such assets (e.g., through reinvestment in higher-yield asset classes or taxation of asset income), including specified elements such as revenue projections, implementation timelines, and plans for using generated funds to procure security assistance for Ukraine. This section further requires the Secretary of State, in coordination with the Secretary of the Treasury, to submit an initial report on the strategy's implementation not later than 30 days after its submission and additional reports every 180 days thereafter for three years, detailing revenue generated, further steps, and uses of funds for Ukraine. This section amends sec. 104(f)(2) of the REPO for Ukrainians Act by adding permissible uses of the Ukraine Support Fund for (D) procuring weapons intended for transfer to Ukraine and (E) backfilling defense articles, services, and training provided to Ukraine through Presidential Drawdown Authority (PDA) under sec. 506(a)(1) of the Foreign Assistance Act of 1961 (22 U.S.C. 2318(a)). (PDA authorizes the President to draw down up to $100 million annually in defense articles from Department of Defense stocks for unforeseen emergencies requiring immediate military assistance and up to an additional $200 million aggregate value for specified national interest purposes, such as disaster and narcotics control assistance; thus, backfilling restores depleted U.S. stocks.)

This section expresses the sense of Congress welcoming the July 14, 2025, announcement by President Trump and NATO Secretary General Mark Rutte for NATO allies in Europe and Canada to fund procurement of U.S.-origin weapons for Ukraine. The section states that such purchases (1) demonstrate burden sharing building upon $180 billion in EU aid to Ukraine since February 2022 (including $65 billion in military assistance), (2) support U.S. defense production, (3) reassure U.S. taxpayers of a balanced transatlantic partnership, and (4) require new U.S. funding for Ukraine's remaining military needs.

This section directs the Attorney General, in coordination with the Secretaries of State and the Treasury, to reconstitute Task Force KleptoCapture within 15 days of enactment, consistent with its purpose when launched by the Department of Justice on March 2, 2022, to disrupt Russia's ability to fund its war against Ukraine by targeting sanctions evasion by Russian elites. The task force must (1) enforce U.S. and allied sanctions, export restrictions, and economic countermeasures responding to Russia's invasion of Ukraine; (2) target enforcement actions against Russian officials and individuals aiding or concealing their unlawful conduct; (3) coordinate information sharing and enforcement with like-minded governments on Russia-related sanctions, export restrictions, or corruption by Russian elites and oligarchs; and (4) determine whether seized assets are subject to forfeiture. Within 60 days of enactment, the Attorney General must submit to the appropriate congressional committees and specified committees of jurisdiction (Senate Judiciary; Senate Banking, Housing, and Urban Affairs; House Judiciary; and House Financial Services) a report on the task force's operations over the prior 180 days, current staffing, and dedicated resources, including ally coordination efforts.

This section appropriates $30 billion in emergency funding for FY2025 to “Operations and Maintenance, Defense-Wide,” available until September 30, 2026, to respond to the situation in Ukraine, of which (1) $15 billion, available until September 30, 2027, is for the Ukraine Security Assistance Initiative (USAI)—a program enabling the Department of Defense to procure and provide defense articles and services directly to Ukraine under specified terms—and (2) $15 billion, available until September 30, 2025, is transferable to “Operation and Maintenance,” “Procurement,” and “Revolving and Management Funds” accounts for replenishing Department stocks or reimbursing aid provided to Ukraine or its supporters (with 15-day prior notice to congressional defense committees and authority to transfer unused funds back). Subsection (b) directs that funds for Ukraine prioritize specific capabilities, including air defense systems (e.g., PATRIOT, NASAMS), man-portable missiles (e.g., Javelin, Stinger), aircraft and munitions, artillery systems (e.g., HIMARS, 155mm rounds), tanks, coastal defenses (e.g., Harpoon), and other equipment. This section further appropriates $2 billion in emergency funding for FY2025, available until September 30, 2027, transferable to “Operations and Maintenance,” “Procurement,” and “Revolving and Management Funds” accounts to backfill aircraft, tanks, munitions, and anti-air and anti-tank weaponry provided by Poland, Lithuania, Latvia, Estonia, and other NATO members to Ukraine (with similar transfer, notice, and revert provisions).

This section appropriates $500 million to the Department of State for International Disaster Assistance to address humanitarian needs in Ukraine due to Russia's invasion, for FY2025 and available until expended.

This section appropriates $3 billion for the Foreign Military Financing Program (FMF)—which provides grants and loans to foreign countries for purchases of U.S. defense articles and services—for assistance to Ukraine and countries impacted by the situation in Ukraine, and related expenses, for FY2025, to remain available through FY2027. The section also makes such funds available for costs of loans and loan guarantees authorized under section 2606 of the Ukraine Supplemental Appropriations Act, 2022 (division N of P.L. 117-103), including loan guarantees financed by the Federal Financing Bank notwithstanding statutory limits on the percentage of principal guaranteed; permits FMF funds for Ukraine to procure defense articles, services, or design and construction services not sold by the U.S. government under the Arms Export Control Act; and provides up to $10 million for Department of State administration of military assistance and sales. The amounts are designated as an emergency requirement pursuant to section 251(b)(2)(A)(i) of the Balanced Budget and Emergency Deficit Control Act of 1985.

This section designates all amounts appropriated by the Act as an emergency requirement pursuant to section 4(g) of the Statutory Pay-As-You-Go Act of 2010 (2 U.S.C. 933(g)), subsections (a) and (b) of section 4001 of S. Con. Res. 14 (117th Congress, the FY2022 budget resolution), and House FY2025 budget enforcement legislation. (Thus, such amounts are exempt from Statutory PAYGO scoring and enforcement and from specified congressional budget enforcement mechanisms.)

This section increases the limit on defense articles, defense services, and military education and training that the President may draw down from Department of Defense stocks for an unforeseen emergency to $6 billion (from $100 million) in any fiscal year during FY2025 through FY2027. (As background, this Presidential Drawdown Authority requires a determination that immediate military assistance to a foreign country or international organization cannot be met under the Arms Export Control Act or other law, with a report to Congress.)

This section appropriates $750 million for FY2026 to the Bureau of International Narcotics and Law Enforcement Affairs (INL) for Ukraine support. Specifically, it provides (1) $600 million for equipment—including small arms, armored vehicles, anti-mining and demining equipment, surveillance and reconnaissance unmanned aerial systems, and personal protective equipment—for the National Police of Ukraine and State Border Guard Service of Ukraine (including units supporting the Armed Forces), to be provided to mobile firing teams protecting civilian, residential, energy, and other critical infrastructure; (2) $100 million for rule of law, good governance, and anti-corruption measures, including training for judges, prosecutors, and anti-corruption agencies such as the National Anti-Corruption Bureau of Ukraine and Specialized Anti-Corruption Prosecutor's Office, assistance to civil society and intergovernmental organizations such as the International Organization for Migration and United Nations High Commissioner for Refugees, and training for the Economic Security Bureau of Ukraine and State Customs Service to combat tax fraud, money laundering, and financial crimes; and (3) $50 million to assist the Prosecutor General of Ukraine and National Police in investigating and prosecuting war crimes committed by Vladimir Putin's regime, including training for evidence collection, forensic equipment and DNA analysis, and information sharing from the Secretary of State on attacks against civilians.

This section directs the Secretaries of Defense and State, in collaboration with Ukraine and Taiwan, to establish a trilateral research, development, and production initiative for unmanned air, marine, and underwater autonomous and semi-autonomous systems—including drones—and countermeasures, utilizing private and parastatal entities as appropriate. The section appropriates $1,050,000,000 to the Secretary of State for FY2025, to remain available until September 30, 2027.

This section establishes a joint interagency Ukraine Lessons Learned Task Force, led by the Secretary of State in coordination with the Secretary of Defense and the Chairman of the Joint Chiefs of Staff, not later than 60 days after enactment. The Task Force's purposes include (1) identifying and evaluating Ukraine's battlefield innovations, operational practices, and defense strategies against Russian aggression; (2) assessing their relevance to U.S. military doctrine, training, logistics, acquisition, and planning; (3) recommending changes or pilot programs; (4) identifying U.S. system vulnerabilities highlighted by Ukraine's experience, including Operation Spider Web; and (5) coordinating with NATO allies and Ukrainian counterparts. The section directs annual reports to the Senate and House Committees on Foreign Relations/Affairs, Armed Services, and Appropriations—not later than 180 days after enactment and for five subsequent years—summarizing Task Force findings and assessments, recommendations for doctrine/training/acquisition/organizational changes, implementation actions or pilot programs, and a classified annex; an unclassified public version must be posted online. It requires the Secretary of Defense and Chairman to integrate relevant findings into professional military education (e.g., National Defense University, service academies, war colleges), training exercises, war games, and future operational concepts; directs coordination with NATO allies to share lessons, promote interoperability, and explore a multilateral Defense Innovation Lessons Hub; and sunsets the provision five years after enactment.

This section restricts acceptance into Department of Defense (DoD) stocks of equipment procured under the Ukraine Security Assistance Initiative (USAI)—authorized by section 1250(a) of the National Defense Authorization Act for Fiscal Year 2016—to equipment that either (1) has not been transferred to Ukraine and is no longer needed for the program or (2) has been transferred to Ukraine and returned to the United States. Requires the Secretary of Defense to notify Congress at least 15 days prior to such acceptance, describing how the conditions were met.

This section defines the "territory of Ukraine" to include all internationally recognized sovereign territory, including Crimea and areas claimed by Russia in Kherson, Zaporizhzhia, Donetsk, and Luhansk Oblasts, and directs the Secretary of Defense to provide continuous intelligence support—including information, intelligence, and imagery collection under title 10, U.S. Code—to Ukraine's government for military operations to defend and retake that territory. The Secretary must notify specified Senate and House committees on Foreign Relations (or Affairs), Armed Services, and Intelligence at least 10 days before any pause in such support, including a justification. The section sunsets five years after enactment or upon presidential certification to those committees of a complete and durable cessation of Russian hostilities and a negotiated agreement between Ukraine and Russia.

This section requires the Secretary of Defense to expend not less than 15% of amounts appropriated for the International Security Cooperation Program (ISCP)—which funds security cooperation activities such as training and equipment transfers to build partner-nation military capacity—for United States European Command (EUCOM) operations in each of FY2025 through FY2027.