INSIGHTi

Russia’s Invasion of Ukraine: European Union
Responses and Implications for U.S.-EU
Relations
March 23, 2022
The 27-member European Union (EU) has responded with unprecedented unity and speed to Russia’s
February 2022 invasion of Ukraine. EU policy responses and ongoing coordination with the United
States, especially on sanctions, are of interest to Congress given the EU’s role as a U.S. partner in
addressing Russia’s military aggression against Ukraine.
Key EU Responses
Sanctions
The EU has imposed several rounds of sanctions—or restrictive measures—intended to cripple Russia’s
ability to finance the war against Ukraine, enact costs on Russia’s elites, and diminish Russia’s economic
base. Imposing sanctions requires unanimity among EU members. As of March 15, EU sanctions include
 Freezing the assets of 62 entities and imposing asset freezes and travel bans on 877
Russian officials, legislators, and other elites (Russian President Vladimir Putin and
Foreign Minister Sergei Lavrov are subject only to asset freezes);
 Expanding existing sanctions on Russia’s financial sector and key banks, including
restricting transactions with Russia’s Central Bank and blocking access to its reserve
holdings and cutting seven Russian banks off from SWIFT (the world’s dominant
international financial messaging system, headquartered in Belgium);
 Expanding existing or imposing new sanctions on Russia’s energy, aviation,
transportation, and technology sectors;
 Broadening the scope of export controls on dual-use goods to limit Russia’s access to
crucial technologies, such as semiconductors;
 Banning exports of luxury goods to Russia and certain metals imports from Russia;
 Closing EU airspace to all Russian-owned aircraft; and
Congressional Research Service
https://crsreports.congress.gov
IN11897
CRS INSIGHT
Prepared for Members and
Committees of Congress

---

Congressional Research Service
2
 Expanding sanctions on Belarus for supporting Russia’s invasion of Ukraine.
The EU’s increasingly punitive sanctions are notable given the bloc’s trade and investment ties to Russia,
its reliance on Russian energy imports, and the potential negative economic effects of Russian retaliatory
sanctions or Russian threats to cut off energy supplies. Some member states are critical that the EU has
not disconnected Sberbank (Russia’s largest bank) or Gazprombank (linked to Russia’s energy sector)
from SWIFT or banned energy imports from Russia. (See CRS Insight IN11869, Russia’s Invasion of
Ukraine: Overview of U.S. and International Sanctions and Other Responses; and CRS In Focus
IF12062, New Financial and Trade Sanctions Against Russia.)
Military Assistance
On February 28, the EU announced a total of €500 million (about $550 million) in financing for military
assistance to Ukraine through the European Peace Facility (EPF), which includes—for the first time—
funding for lethal equipment worth €450 million ($495 million); the remaining €50 million ($55 million)
is for nonlethal supplies. On March 21, the EU announced an additional €500 million for Ukraine under
the EPF. Member states are responsible for delivering equipment and may be reimbursed from the EPF
for assistance provided since the start of 2022.
Helping Refugees and Providing Aid
Over 3.5 million people have fled Ukraine, with about 60% of refugees arriving in Poland. The EU has
adopted a temporary protection mechanism to provide Ukrainian nationals and other legal residents of
Ukraine with immediate residency rights and access to benefits throughout the EU (for one year with
extension possible up to three years). EU assistance to date includes €500 million in humanitarian aid for
Ukraine and neighboring countries from the EU’s budget and €107 million (around $118 million) for
emergency supplies through the EU’s Civil Protection Mechanism. (See CRS Insight IN11882,
Humanitarian and Refugee Crisis in Ukraine.)
Tackling Disinformation
The EU has condemned Russia’s disinformation campaign against Ukraine and suspended broadcasting
of Russian state-owned media outlets Russia Today (RT) and Sputnik across all platform types (cable,
satellite, websites, apps, etc.) throughout the EU. The EU also is addressing disinformation targeting
Ukraine through its EUvsDisinfo project.
U.S.-EU Cooperation
Russia’s war against Ukraine has strengthened U.S.-EU ties and transatlantic unity. The United States and
the EU have moved largely in lockstep in terms of the types and timing of sanctions imposed. Many EU
sanctions are identical or substantively similar to U.S.-imposed sanctions, including restrictions on
Russia’s Central Bank and prohibiting access to airspace. With other partners, the EU and the United
States established a transatlantic task force to ensure effective implementation of sanctions against
designated individuals and companies and announced plans to suspend Russia’s preferential trade
treatment under World Trade Organization rules.
The major current divergence between U.S. and EU sanctions centers on Russian energy imports. The
United States has banned imports of Russian crude oil and certain petroleum products, liquefied natural
gas, and coal; the EU, which is far more dependent on Russia for its energy needs than the United States,
has not done so. Although some EU countries reportedly support sanctioning Russian energy imports,
others—including Germany—remain opposed. The EU has pledged to decrease its energy dependence on
Russia and is working on measures to reduce EU demand for Russian gas by two-thirds by the end of

---

Congressional Research Service
3
2022. President Biden is to attend the EU leaders’ summit meeting on March 24 in Brussels to discuss
further U.S.-EU support for Ukraine and responses to Russia.
U.S. and Congressional Interests
Russia’s invasion of Ukraine has galvanized debate on several EU initiatives that could be central to how
the EU as an institution and U.S.-EU relations evolve. Among the most prominent of interest to Congress
are
 Security and Defense. Russia’s actions could prompt greater EU efforts to improve
military capabilities and become a more independent global actor (often referred to as
strategic autonomy). Such ambitions could create some tensions in U.S.-EU relations. At
the same time, Russia’s aggression has reinforced NATO’s importance to European
security and could help ensure that any EU defense initiatives remain tied to NATO.
 Energy and Climate Policies. Russia’s war in Ukraine could accelerate EU energy
diversification efforts, long called for by some in Congress. Reducing EU energy
dependence on Russia, partly by increasing the use of renewables, also could bolster the
European Green Deal to address climate change and other environmental challenges.
 EU Enlargement. Traditionally, strong bipartisan support has existed in Congress for EU
enlargement. Russia’s invasion may be boosting Ukraine’s EU membership prospects,
with the EU agreeing to assess Ukraine’s recent membership application. Joining the EU,
however, typically takes many years, and some EU members remain wary about
Ukraine’s readiness and further antagonizing Russia.

Author Information

Kristin Archick

Specialist in 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.

IN11897 · VERSION 1 · NEW

---