INSIGHTi
Russia’s War Against Ukraine: European
Union Responses and U.S.-EU Relations
Updated March 27, 2024
The 27-member European Union (EU) has implemented various 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 13 packages of sanctions—or restrictive measures—intended
to reduce Russia’s ability to finance the war against Ukraine, to enact costs on Russia’s elites, and to
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 419 entities (including key banks) and 1,706 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).
• Expanding and tightening export controls on dual-use goods and technologies to Russia,
and to selected entities in China, India, Kazakhstan, and elsewhere directly supporting
Russia’s military-industrial complex.
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• Banning certain exports in the aviation, maritime, and technology sectors (e.g.,
semiconductors) and the export of drone engines and luxury goods to Russia.
• 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 to reduce
Russia’s oil revenues while keeping global energy markets stable).
• Banning EU exports of oil refining technologies.
• Prohibiting Russian coal imports.
In December 2023, the EU strengthened a new anti-circumvention tool to combat sanctions evasion in
other countries and tightened implementation of the oil price cap.
EU Assistance to Ukraine
According to EU data, EU and member state support to Ukraine as of late March 2024 totaled nearly €81
billion in military, financial, humanitarian, and emergency assistance; when €17 billion in EU funding to
help Ukrainian refugees in member states is added, total EU support reaches almost €98 billion. (U.S.
dollar figures are slightly higher at the current €1:$1.08 exchange rate.)
Financial and Other Aid. Since 2022, the EU, its member states, and European financial institutions
have collectively made available €47.9 billion in financial, humanitarian, and emergency aid 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).
• €12.2 billion from member states.
In February 2024, EU leaders approved €50 billion in new financial assistance (€33 billion in loans and
€17 billion in grants) for the 2024-2027 period, provided through a new Ukraine Facility (the first €4.5
billion was disbursed in March 2024). The EU also coordinates the delivery of in-kind emergency
supplies to Ukraine.
Military Assistance. Through its European Peace Facility (EPF), the EU has committed €11.1 billion to
date in military assistance financing for Ukraine, including
• A new €5 billion Ukraine Assistance Fund (approved in March 2024).
• €3.6 billion (consisting of €3.1 billion for lethal equipment and €380 million for
nonlethal supplies) between February 2022 and February 2023.
• €2 billion for 1 million rounds of ammunition (either from member state stocks or
through joint procurement, but production challenges exist).
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The EU also established a training mission for Ukraine’s armed forces. As of March 2024, the EU
estimates members’ bilateral military support to Ukraine is around €22 billion.
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. According to the EU, the share of Russia’s pipeline gas in EU
imports decreased from over 40% in 2021 to about 8% in 2023, although this decrease reflects in part
Russia’s decision to reduce deliveries. EU statistics also indicate imports of Russian liquefied natural gas
(LNG) have increased somewhat since 2022.
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.
EU policymakers regard sustained U.S. support for Ukraine as “indispensable” and are concerned about
the status of continued U.S. funding for Ukraine. The EU is seeking to boost its military support for
Ukraine, including by possibly using financial proceeds (of up to €3 billion per year) generated by
immobilized Russian sovereign assets (of over €200 billion) held in the EU. U.S. and EU officials are
engaged in G7 discussions on options for using immobilized Russian assets for Ukraine, but the EU has
legal and economic concerns about seizing the underlying assets. Some in Congress may be interested in
monitoring EU responses to Russia’s aggression in Ukraine and implications for other aspects of U.S.-EU
relations, including
• Security and Defense. The war in Ukraine has prompted debate on improving EU
military capabilities and strengthening the NATO-EU partnership.
• Energy and Climate. Russia’s actions have accelerated 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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This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff
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IN11897 · VERSION 23 · UPDATED