INSIGHTi
Russia’s War Against Ukraine: European
Union Responses and U.S.-EU Relations
Updated February 6, 2023
The 27-member European Union (EU) has implemented a wide range of policy responses to Russia’s war
against Ukraine, launched in 2022. EU actions and coordination with the United States are of interest to
Congress given the EU’s role as an important U.S. partner. (Also see CRS In Focus IF12277, Russia’s
War on Ukraine: U.S. Policy and the Role of Congress.)
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.
To date, EU sanctions on Russia’s government and financial, business, defense, technology, and media
sectors include
Freezing the assets of 171 entities (including key banks) and 1,386 individuals (primarily
Russian officials and elites), to whom travel bans also apply.
Imposing debt and equity restrictions on certain banks and companies.
Restricting transactions with Russia’s central bank and blocking access to its reserve
holdings.
Banning transactions with certain Russian state-owned military-industrial enterprises.
Disconnecting 10 leading Russian financial institutions—including Sberbank, Russia’s
largest bank—from SWIFT (the world’s dominant international financial messaging
system).
Broadening export controls on dual-use goods and technologies.
Banning certain exports in the aviation, maritime, and technology sectors (e.g.,
semiconductors) and the export of drone engines and luxury goods to Russia.
Congressional Research Service
https://crsreports.congress.gov
IN11897
CRS INSIGHT
Prepared for Members and
Committees of Congress
Congressional Research Service
2
Prohibiting imports of steel and other raw materials, spirits, seafood, and gold from
Russia.
Closing EU airspace, seaports, and roads to Russian aircraft, ships, and freight operators,
respectively.
Suspending the broadcasting activities of nine Russian state-owned media outlets.
EU energy dependence on Russia has made targeting its energy sector challenging, but the EU has
approved progressively tougher sanctions, including
Prohibiting most imports of Russian crude oil and petroleum products, with an exemption
for crude oil delivered by pipeline. The EU expects these sanctions, which began taking
effect in December 2022, to apply to around 90% of Russian oil imports.
Banning oil transport services. An exemption finalized in December 2022 allows EU
companies to provide such services for Russian crude oil sold to non-EU countries at or
below a price cap of $60 a barrel. In February 2023, the EU set price caps for Russian
petroleum products. EU caps are established in cooperation with the Group of Seven (G7)
price cap coalition (aimed at reducing Russia’s oil revenues while keeping global energy
markets stable).
Banning EU exports of oil refining technologies.
Prohibiting Russian coal imports.
Although the EU has not prohibited Russian natural gas imports, it is working to end its reliance on
Russian energy (see below). The EU is planning additional sanctions on Russia and considering using
frozen Russian assets to support Ukraine. (Also see CRS Insight IN11869, Russia’s War Against Ukraine:
Overview of U.S. Sanctions and Other Responses.)
Military Assistance
Through its European Peace Facility (EPF), the EU has committed €3.6 billion to date in military
assistance financing for Ukraine, including for lethal equipment (€3.1 billion) and nonlethal supplies
(€380 million). Member states may be reimbursed from the EPF for assistance provided since the start of
2022. The EU also has established a training mission for Ukraine’s armed forces. The EU estimates that
members’ bilateral military support to Ukraine is over €8 billion (similar to estimates by outside experts).
Financial and Other Aid
As of February 2023, the EU, its member states, and European financial institutions have collectively
mobilized €37.8 billion in financial, humanitarian, and emergency assistance for Ukraine, including
€11.6 billion provided or guaranteed by the EU budget in 2022;
€18 billion in EU financial assistance for 2023 (in the form of favorable loans); and
€7.8 billion from member states.
The EU also coordinates the delivery of in-kind emergency supplies to Ukraine. A temporary protection
mechanism provides Ukrainian nationals who have fled with immediate residency rights and access to
benefits throughout the EU. (Also see CRS Insight IN11882, Humanitarian and Refugee Crisis in
Ukraine.)
Congressional Research Service
3
Addressing Energy Dependence
Russia’s war in Ukraine has heightened long-standing concerns about EU dependence on Russian energy
imports, particularly natural gas. Russia substantially reduced gas pipeline deliveries to the EU in 2022.
By the end of 2022, pipeline gas from Russia accounted for roughly 9% of EU gas imports (down from
40% in early 2022), although EU imports of Russian liquefied natural gas (LNG) increased somewhat
during the same period. The EU has pledged to phase out Russian fossil fuel imports before 2030.
U.S.-EU Cooperation and Congressional Interests
The United States and the EU have cooperated closely in responding to Russia’s aggression against
Ukraine. Many sanctions are identical or substantively similar. The two partners have worked together to
establish a task force on sanctions enforcement, to suspend Russia’s preferential trade treatment under
World Trade Organization rules, and to formulate the G7 price cap on Russian oil exports. The United
States also has committed to help the EU reduce its dependency on Russian gas, in part by boosting LNG
shipments to the EU.
Although U.S.-EU unity on Ukraine remains strong, energy costs and economic difficulties could put
pressure on EU policies in the longer term—potentially affecting sanctions on Russia, increasing calls for
negotiations, or impeding EU financial support to Ukraine. EU financial aid disbursements faced some
delays in 2022, but disbursements have accelerated and appear on schedule in 2023. Some in Congress
may be interested in monitoring the extent of EU assistance to Ukraine and U.S.-EU coordination.
Russia’s invasion of Ukraine also has implications for several EU initiatives of possible interest to
Congress:
Security and Defense. The war has prompted debate on EU efforts to improve its
military capabilities and could strengthen the NATO-EU partnership.
Energy and Climate Policies. Russia’s actions could accelerate the EU’s energy
transition, bolster the European Green Deal, and present opportunities for U.S.-EU clean
energy cooperation. The EU worries, however, that new U.S. subsidies for green
technologies could divert trade and investment away from the EU. A U.S.-EU task force
is seeking to address EU concerns.
EU Enlargement. Traditionally, strong bipartisan support has existed in Congress for EU
enlargement. The EU declared Ukraine and Moldova official candidates for membership
in June 2022 (six other countries are recognized as official candidates also). Joining the
EU typically takes many years.
Author Information
Kristin Archick
Specialist in European Affairs
Disclaimer
Congressional Research Service
4
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 10 · UPDATED