Ukraine Support Act
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The Ukraine Support Act would authorize continued and expanded U.S. assistance to Ukraine — including a reconstruction trust fund, revived lend-lease authority through 2028, extended security assistance through 2027, and support for Baltic militaries — while directing sanctions against Russia if it continues its war.
It would also require the President to periodically determine whether Russia is waging aggression or refusing to negotiate in good faith, and if so, to impose mandatory sanctions on Russian officials, banks, and industries and a 500% tariff on Russian imports, making U.S. support and pressure on Russia largely automatic rather than discretionary.
What this bill would do
What it would do
The bill would authorize a broad package of assistance to Ukraine and Eastern European allies, including a new Ukraine Reconstruction Trust Fund, a Special Coordinator for Ukrainian reconstruction, vessel war-risk insurance for Ukraine-related shipping, and an "Insurance for Ukraine Initiative" at the State Department. It would revive presidential lend-lease authority for defense articles through fiscal year 2028, extend Defense Department security-assistance and intelligence-support authority for Ukraine through 2027, authorize up to $8 billion in direct loans and financing for Ukraine and NATO allies, and fund capacity-building for Baltic militaries and border forces. The bill would also require the President to determine periodically whether Russia is waging aggression against Ukraine, refusing to negotiate sincerely, or violating a peace agreement. If so, it would mandate sanctions on named Russian banks, oil and mining companies, Rosatom, and senior officials, plus a minimum 500% tariff on Russian imports, sanctions tied to Russia-North Korea cooperation, and export controls, subject to presidential waiver and congressional review procedures.
Key provisions
- 1Would establish a Ukraine Reconstruction Trust Fund funded by revenue from a related tax, for reconstruction, humanitarian aid, and governance support in Ukraine.
- 2Would revive and extend presidential lend-lease authority to loan or lease defense articles to Ukraine and affected Eastern European countries through fiscal year 2028.
- 3Would authorize up to $8 billion in direct loans and foreign military financing for Ukraine and NATO allies through fiscal year 2026.
- 4Would extend the Ukraine Security Assistance Initiative's authorization through December 31, 2027, and add $300 million each for FY2026 and FY2027.
- 5Would require periodic presidential determinations on whether Russia is waging aggression, refusing to negotiate, or violating a peace deal with Ukraine.
- 6Would mandate property- and visa-blocking sanctions on named Russian banks, oil/mining companies, Rosatom, and senior officials if a trigger determination is made.
- 7Would require a minimum 500% tariff on all goods and services imported from Russia following an affirmative sanctions-trigger determination.
Who would be affected
The Ukrainian government and reconstruction sector, U.S. and allied shipping and insurance companies, the U.S. International Development Finance Corporation, Baltic country militaries and border forces, named Russian banks and companies (including Rosatom), Russian government officials subject to sanctions, and U.S. importers of Russian goods facing new tariffs.
Why it matters
If enacted, Ukraine and its allies would gain guaranteed multiyear U.S. military, financial, and reconstruction support, while Russia would face largely automatic economic and diplomatic penalties tied to its battlefield conduct rather than case-by-case presidential discretion. U.S. companies trading with Russia and financial institutions handling sanctioned entities would face new compliance burdens and steep tariffs.
What would change
Changes to existing law
Amends Better Utilization of Investments Leading to Development Act of 2018 (BUILD Act) (Sec. 104)
Requires the Development Finance Corporation to prioritize support for Ukraine and exempts Ukraine from certain existing restrictions.
Amends Ukraine Democracy Defense Lend-Lease Act of 2022 (Sec. 201)
Extends lend-lease authority from fiscal years 2022-2023 to 2022 through 2028 and adds a reporting requirement.
Amends Arms Export Control Act (Sec. 202)
Authorizes up to $8 billion in direct loans for Ukraine and NATO allies notwithstanding an existing loan cap provision.
Reauthorizes National Defense Authorization Act for Fiscal Year 2016 (Ukraine Security Assistance Initiative) (Sec. 204)
Adds $300 million in funding for each of FY2026 and FY2027 and extends the authority's expiration to December 31, 2027.
Creates Internal Revenue Code of 1986 (Sec. 110)
Adds a new Section 9512 establishing the Ukraine Reconstruction Trust Fund funded by a related tax's revenues.
Amends Ending Importation of Russian Oil Act (Sec. 315)
Adds a new section banning imports of energy products refined from Russian-origin crude oil, even at non-Russian refineries.
Agencies directed to act
Effective dates
- Vessel war risk insurance eligibility for Ukraine-related cargo
- Lend-lease authority for defense articles to Ukraine and Eastern Europe
- Direct loans and foreign military financing authority
- Ukraine Security Assistance Initiative authority extension
- First presidential sanctions-trigger determination on Russia
- Radio Free Europe/Radio Liberty appropriation
Funding and costs
- $250,000,000
Radio Free Europe/Radio Liberty operations
- $30,000,000
U.S.-European nuclear energy cooperation and countering Russian influence in nuclear sector
- $8,000,000,000
Direct loans and foreign military financing for Ukraine and NATO allies
- $30,000,000
Foreign Military Financing grants for each Baltic country
- $4,000,000
Nonproliferation, Anti-terrorism, Demining, and Related programs for each Baltic country
- $300,000,000
Ukraine Security Assistance Initiative funding for fiscal year 2026
- $300,000,000
Ukraine Security Assistance Initiative funding for fiscal year 2027
How implementation would work
The bill's assistance provisions largely run through existing agency channels — State Department grant and loan programs, Defense Department security assistance authorities, and the Development Finance Corporation — with new reporting requirements to congressional committees on spending, reconstruction fund use, and intelligence cooperation. Its sanctions regime is trigger-based: the President must periodically determine whether Russia is waging aggression, and an affirmative finding starts fixed clocks (often 15-30 days) for imposing specific sanctions, tariffs, and export controls, with waiver authority and a formalized joint-resolution process for Congress to review any later termination or waiver of those measures.
Legislative status & sources
Latest action
Received in the Senate.
Official CRS summary
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Ukraine Support Act
This bill addresses the war between Russia and Ukraine by (1) providing assistance to Ukraine and certain European countries, and (2) establishing penalties for Russia and certain foreign persons (individuals and entities).
Assistance provided under the bill includes
- establishing a reconstruction trust fund for Ukraine,
- requiring the U.S. International Development Finance Corporation to prioritize support for Ukraine,
- reviving the President’s authority to lend or lease defense articles to Ukraine or Eastern European countries affected by the war through FY2028,
- extending through 2027 the Department of Defense’s authority to provide security assistance and intelligence support to Ukrainian forces, and
- requiring the Department of State to take certain actions to build the capacity of the militaries and border forces of Baltic countries.
Additionally, the President must periodically determine if the Russian government or any proxy is waging a war of aggression against Ukraine, refusing to sincerely negotiate a peace agreement with Ukraine, or acting in violation of a negotiated peace agreement with Ukraine. If the President makes such a determination, the President must impose certain penalties including
- property- and visa-blocking sanctions on certain Russian officials;
- property-blocking sanctions on Russian companies in the oil and mining sectors, Rosatom (Russia's state-owned nuclear enterprise) and its subsidiaries, and certain Russian financial institutions; and
- increasing the rate of duty on all goods and services imported from Russia into the United States to at least 500% relative to the value of such goods and services.
Legislative subjects
Alliances; Broadcasting, cable, digital technologies; Child safety and welfare; Conflicts and wars; Congressional oversight; Detention of persons; Diplomacy, foreign officials, Americans abroad; Economic development; Europe; Federal officials; Foreign aid and international relief; Foreign and international banking; Foreign property; Government trust funds; Human rights; Intelligence activities, surveillance, classified information; International Affairs; Lease and rental services; Licensing and registrations; Life, casualty, property insurance; Marine and inland water transportation; Military assistance, sales, and agreements; Mining; North Korea; Nuclear power; Oil and gas; Presidents and presidential powers, Vice Presidents; Reconstruction and stabilization; Sanctions; Tariffs; Trade restrictions; U.S. International Development Finance Corporation; Ukraine; Visas and passports