# Ukraine: Background, Conflict with Russia, and U.S. Policy

* Informing the legislative debate since 1914
Ukraine: Background, Conflict with Russia, and U.S. Policy
Updated October 5, 2021
Congressional Research Service
https://crsreports.congress.gov
R45008
CRS REPORT Prepared for Members and Commitees of Congress
* SUMMARY
* R45008 October 5, 2021 Cory Welt Specialist in Russian and European Affairs
Ukraine: Background, Conflict with Russia, and U.S. Policy Ukraine has been governed by President Volodymyr Zelensky and his Servant of the People party since 2019. During Zelensky’s presidency, Ukraine has enacted difficult economic and governance reforms, albeit with some resistance and delays, and grappled with the social and economic consequences of the Coronavirus Disease 2019 (COVID-19) pandemic.
Under President Zelensky, Ukraine also has confronted Russia’s ongoing occupation of Ukraine’s Crimea region and parts of eastern Ukraine. Zelensky has attempted to reinvigorate the conflict resolution process with regard to Russia-occupied eastern Ukraine and has drawn greater international attention to the situation in Ukraine’s occupied Crimea region. Russia, however, appears no closer to implementing a permanent ceasefire or to withdrawing its military forces from Ukraine.
The United States supports Ukraine’s sovereignty and territorial integrity within its internationally recognized borders and promotes the implementation of domestic reforms. Since Ukraine’s independence in 1991, and especially after Russia’s 2014 invasion and occupation of Ukrainian territory, Ukraine has been a leading recipient of U.S. foreign and military aid in Europe and Eurasia. From FY2015 to FY2020, State Department and U.S. Agency for International Development (USAID) bilateral aid allocations to Ukraine were about $418 million a year on average, plus a total of more than $350 million in humanitarian aid since 2014. For FY2021, State Department and USAID allocations to Ukraine totaled about $464 million. Since 2014, the United States has provided more than $2.5 billion in security assistance to Ukraine, mainly though the Ukraine Security Assistance Initiative and Foreign Military Financing.
Since 2014, many Members of Congress on a bipartisan basis have condemned Russia’s invasion of Ukraine, promoted sanctions against Russia, and supported increased aid to Ukraine. Key legislation includes the Support for the Sovereignty, Integrity, Democracy, and Economic Stability of Ukraine Act of 2014, as amended (P.L. 113-95; 22 U.S.C. 8901 et seq.); the Ukraine Freedom Support Act of 2014, as amended (P.L. 113-272; 22 U.S.C. 8921 et seq.); the Countering Russian Influence in Europe and Eurasia Act of 2017, as amended (P.L. 115-44, Title II, Countering America’s Adversaries Through Sanctions Act; 22 U.S.C. 9501 et seq.); and the Protecting Europe’s Energy Security Act of 2019, as amended (P.L. 116-92, Title LXXV; 22 U.S.C. §9526 note).
Ukraine-related legislative initiatives in the 117th Congress include the Crimea Annexation Non-recognition Act (H.R. 922), the Ukraine Security Partnership Act of 2021 (S. 814), the Ukraine Religious Freedom Support Act (H.R. 496, S. 1310), and the Restraining Russian Imperialism Act (H.R. 3144). An amendment to the House-passed version of the FY2022 National Defense Authorization Act (H.Amdt. 110 to H.R. 4350) would require the President to impose sanctions related to the planning, construction, or operation of the Nord Stream 2 pipeline. A resolution introduced in the Senate (S.Res. 360) would celebrate the 30th anniversary of Ukraine’s independence and affirm the United States’ “unwavering commitment” to support the Ukrainian government’s efforts to restore Ukraine’s territorial integrity.
For related information, see CRS Report R45415, U.S. Sanctions on Russia; CRS In Focus IF11138, Russia’s Nord Stream 2 Natural Gas Pipeline to Germany; and CRS In Focus IF11862, Ukrainian Armed Forces. ​
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