INSIGHTi
Russia’s War Against Ukraine: European
Union Responses and U.S.-EU Relations
Updated January 9, 2024
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 12 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 331 entities (including key banks) and 1,612 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, diamonds, and other products from
Russia.
• Closing EU airspace, seaports, and roads to Russian operators.
• Suspending broadcasting activities of 13 Russian media outlets (including subsidiaries).
EU energy dependence on Russia has made targeting its energy sector challenging. The EU has not
prohibited Russian natural gas imports but sanctions include
• Prohibiting most imports of Russian crude oil and petroleum products (applying to
around 90% of Russian oil imports), with an exemption for crude oil delivered by
pipeline.
• Banning EU companies from providing oil transport services, except 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.
The EU also has approved an anti-circumvention tool to combat sanctions evasion in other countries. In
December 2023, the EU agreed to measures tightening implementation of the oil price cap.
EU Assistance to Ukraine
According to EU data as of December 2023, EU and member state support to Ukraine totals nearly €68
billion in military, financial, humanitarian, and emergency assistance and reaches almost €85 billion when
EU funding to help Ukrainian refugees is included. (U.S. dollar figures are slightly higher at the current
€1:$1.09 exchange rate.)
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 member state stocks or through joint procurement, but some production challenges exist). 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 €21 billion.
Financial and Other Aid. The EU, its member states, and European financial institutions have
collectively committed €40.6 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).
• €9.5 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 (up to €17 billion in EU funding helps support Ukrainians in
member states). The EU is considering up to €50 billion in financial assistance and €20 billion in military
aid to Ukraine 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, 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 imports of Russian liquefied natural gas (LNG) increased somewhat
during the same period. In 2023, EU statistics indicate further decreases in Russia’s share of EU coal, oil,
and pipeline gas imports and a marginal decline from 2022 levels in Russia’s share of EU LNG imports.
U.S.-EU Cooperation and Congressional Interests
The U.S. government and the EU have worked together closely in responding to Russia’s aggression
against Ukraine. Cooperation has included devising and enforcing sanctions, suspending Russia’s
preferential trade treatment under World Trade Organization rules, formulating the G7 oil price cap, 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.
Strains on EU solidarity, including a dispute over EU imports of Ukrainian grain and the delay in
approving new EU funding, could pose challenges to future cooperation on Ukraine, as could possible
U.S. “donor fatigue” and political divisions. The EU regards U.S. military and financial support for
Ukraine as “indispensable.” Some in Congress may be interested in monitoring the extent of EU
assistance and other aspects of U.S.-EU relations affected by the war in Ukraine:
• Security and Defense. The war has prompted debate on improving EU military
capabilities and strengthening the NATO-EU partnership.
• Energy and Climate. Russia’s actions could accelerate the EU’s energy transition and
U.S.-EU energy cooperation, despite some tensions over U.S. “green” subsidies.
• EU Enlargement. Traditionally, bipartisan support has existed in Congress for EU
enlargement. The EU declared Ukraine an official candidate for membership in June
2022 (eight other countries, including Moldova and Georgia, also are official candidates).
Joining the EU typically takes many years.
Author Information
Kristin Archick
Specialist in European Affairs
Disclaimer
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