Competing Visions in Washington: NDAA vs. National Security Strategy on Ukraine and Europe

Written By Vlada Tolochyna

More Mixed Signals From Washington

Two recent documents highlight how divided Washington’s approach to Ukraine has become — one reinforcing support, the other signaling a strategic shift that could undermine it.

Congress Reasserts Its Support: The 2026 NDAA

Despite an administration reluctant to provide large-scale assistance to Ukraine, Congress has inserted significant pro-Ukraine provisions into the new National Defense Authorization Act (NDAA). As summarized by Razom’s Doug Klain, the key sections include:

1. Security and Policy Provisions

  • Sec. 1241 — Russia Threat Assessment:

    Congress requires the administration to produce a formal assessment of the threat Russia poses to the U.S. and its allies — a clear sign lawmakers still see Moscow as a major adversary.

  • Sec. 1242 — No Recognition of Russian Sovereignty Over Occupied Ukraine:

    This extends long-standing U.S. policy and prevents any U.S. funds from supporting recognition of Russian control over occupied territory.

2. Military Assistance and Oversight

  • Sec. 1243 — Ukraine Security Assistance Initiative (USAI):

    Authorizes $400 million for this year and next, usable until 2029. This is especially relevant because direct military aid (PDA) and USAI funding have been mostly unused this year by the administration.

  • New rules to prevent diversion of Ukraine-bound weapons:

    After the Pentagon seized 20,000 anti-drone munitions originally produced for Ukraine, Congress added language to ensure seized equipment must be replaced for Ukraine.

  • Sec. 1244 — Protection of Intelligence Sharing:

    Requires immediate congressional notification if the administration attempts to suspend intelligence support to Ukraine.

  • Sec. 1245 — Oversight of Arms Sales (PURL):

    Congress wants transparency on how the administration uses the Prioritized Ukraine Requirements List. The goal:

    • prevent double-charging Europeans for weapons already paid for by Congress,

    • ensure Ukraine receives what Congress intended.

3. Humanitarian and Justice Measures

  • Sec. 8363 — Abducted Ukrainian Children Recovery and Accountability Act:

    A major bipartisan win to support operations aimed at returning Ukrainian children abducted by Russia.

4. The Bottom Line on the NDAA

This is the first — and likely only — major pro-Ukraine legislation of 2025. It cannot force the administration to actively arm Ukraine, but it limits the potential damage and preserves key tools for support.

A Conflicting Vision: The 2025 National Security Strategy (NSS)

Released on December 4, 2025, the new NSS outlines an America that is more inward-facing and far more skeptical of Europe.

Key Themes in the NSS:

  • Europe portrayed as a declining, unstable region

    The document describes European nations as facing “civilizational erasure” due to migration, demographic pressures, or political fragmentation.

  • Russia is downplayed as a long-term threat

    Unlike previous strategies, Russia is not framed as a central adversary but instead as a country the U.S. seeks “strategic stability” with.

  • Ukraine war addressed through a call for “expeditious cessation of hostilities”

    Language hinting that the administration may favor negotiated outcomes over continued military support.

  • A shift away from multilateral commitments

    The strategy is rooted in an “America First” approach that prioritizes the Western Hemisphere and bilateral deals over alliances.

Implications for Ukraine

  • U.S. support becomes more conditional, political, and transactional.

  • Military assistance — even funds authorized by Congress — may face delays or non-execution.

  • Russia may see the NSS rhetoric as an opening to pressure both Ukraine and Europe.

Rubio vs. Witkoff: The Split Made Visible

These competing visions are also embodied by key figures:

  • Sen. Marco Rubio — representing the traditional Republican national-security wing. He supports robust aid, argues Russia must be contained, and warns against abandoning Ukraine or NATO allies.

  • Steven Witkoff — a close Trump ally shaping policy rhetoric. He echoes themes of the NSS:

    • Europe is unstable;

    • the U.S. must prioritize domestic strength;

    • and long-term confrontation with Russia is unnecessary.

Their clash reflects the broader fracture inside the GOP: Geopolitical conservatives vs. America-First retrenchment advocates.

Conclusion: A Washington Divided

The NDAA shows Congress trying to safeguard Ukraine policy.
The NSS shows the White House redefining America’s strategic worldview — in ways that could undermine Europe and benefit Russia.

For Ukraine, this means navigating two Washingtons at once:
one still committed to deterrence and support, and another questioning long-standing alliances and seeking a reset with Moscow.

The signals are mixed — and the stakes are enormous.

Resources & Further Reading

NDAA & Ukraine Assistance

National Security Strategy (NSS)

Context & Expert Discussion

  • Background on PURL system and arms sales: Various congressional reports and think-tank analyses (CSIS, RAND).

  • Commentary reflecting Rubio’s position: Speeches/interviews on Senate Foreign Relations Committee platforms.

  • Witkoff statements mirroring NSS themes: Public remarks during policy advisory events and interviews.

Vlada Tolochyna
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