INSIGHTi
Russia’s War Against Ukraine: European
Union Responses and U.S.-EU Relations
Updated September 26, 2023
The 27-member European Union (EU) has implemented a range of policy responses to Russia’s war
against Ukraine. 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
Since February 2022, the EU has imposed 11 packages 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 245 entities (including key banks) and 1,551 individuals (primarily
Russian officials and elites), to whom travel bans also apply.
• Restricting transactions with Russia’s central bank and blocking access to its reserve
holdings.
• Imposing debt and equity restrictions on certain banks and companies.
• 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.
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• Prohibiting imports of steel, spirits, seafood, gold, asphalt, and synthetic rubber (among
other items) from Russia.
• Closing EU airspace, seaports, and roads to Russian aircraft, ships, and freight operators,
respectively.
• Suspending broadcasting activities of 13 Russian media outlets (including subsidiaries).
• Approving measures to combat sanctions evasion by other countries.
EU energy dependence on Russia has made targeting its energy sector challenging. The EU has not
prohibited Russian natural gas imports but 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. Exemptions allow EU companies to provide such services
for Russian crude oil and petroleum products sold to non-EU countries at or below agreed
price caps (established in cooperation with the Group of Seven [G7] price cap coalition
and aimed at reducing Russia’s oil revenues while keeping global energy markets stable).
• Banning EU exports of oil refining technologies.
• Prohibiting Russian coal imports.
EU Assistance to Ukraine
According to EU data as of September 2023, EU and member state support to Ukraine totals roughly €64
billion in military, financial, humanitarian, and emergency assistance and reaches €81 billion when EU
funding to help Ukrainian refugees is included.
Military Assistance. Through its European Peace Facility (EPF), the EU has committed €5.6 billion to
date in military assistance financing for Ukraine, including €3.1 billion for lethal equipment, €380 million
for nonlethal supplies, and €2 billion to provide Ukraine with 1 million rounds of ammunition (either
from existing EU member state stocks or through joint procurement). Member states may be reimbursed
from the EPF for assistance provided. The EU also has established a training mission for Ukraine’s armed
forces. The EU estimates that members’ bilateral military support to Ukraine is more than €19 billion.
Financial and Other Aid. The EU, its member states, and European financial institutions have
collectively committed €38.8 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).
• €7.8 billion from member states.
The EU also coordinates the delivery of in-kind emergency supplies to Ukraine. An EU temporary
protection mechanism provides Ukrainian nationals who have fled with immediate residency rights and
access to benefits throughout the bloc; the EU has made available up to €17 billion to help care for the
needs of Ukrainians in member states. The EU also is considering up to €50 billion in financial assistance
to Ukraine (in loans and grants) for the 2023-2027 period and possibilities for using frozen Russian assets
to support Ukraine’s reconstruction.
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Addressing Energy Dependence
Following Russia’s invasion of Ukraine in early 2022, the EU pledged to phase out all Russian fossil fuel
imports—including natural gas—before 2030. By the end of 2022, pipeline gas from Russia accounted
for roughly 8% of EU gas imports (down from 40% in early 2022), although this decrease reflects in part
Russia’s decision to reduce deliveries. EU statistics indicate further decreases in Russia’s share of EU
coal, oil, and pipeline gas imports in the first half of 2023 and a marginal decline in liquefied natural gas
(LNG) imports.
U.S.-EU Cooperation and Congressional Interests
The U.S. government 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 on
enforcing sanctions, suspending Russia’s preferential trade treatment under World Trade Organization
rules, formulating the G7 price cap on Russian oil exports, and ensuring accountability for war crimes.
The Biden Administration also committed to help the EU reduce its dependency on Russian gas, in part
by boosting LNG shipments to the EU.
Future U.S.-EU cooperation on Ukraine could be challenged by increasing strains on EU solidarity,
including a dispute over EU imports of Ukrainian grain, and by possible “donor fatigue” and political
divisions in the United States. Some in Congress may be interested in monitoring the extent of EU
assistance to Ukraine and other aspects of U.S.-EU relations affected by the war in Ukraine:
• Security and Defense. The war has prompted debate on EU efforts to improve its
military capabilities and on strengthening the NATO-EU partnership.
• Energy and Climate Policies. Russia’s actions could accelerate the EU’s energy
transition and present opportunities for U.S.-EU energy cooperation, although some U.S.-
EU tensions over U.S. subsidies for green technologies persist.
• EU Enlargement. Traditionally, 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 also are official candidates). Joining the EU typically
takes many years.
Author Information
Kristin Archick
Specialist in European Affairs
Disclaimer
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