Questions and answers on the EU Roadmap to phase out Russian energy imports 

This article is brought to you in association with the European Commission.

Why is the Commission now proposing to fully phase out Russian energy imports? 

Since Russia’s unjustified aggression on Ukraine started, the EU has significantly reduced dependencies and energy imports from Russia. As a result of the coordinated action between the Commission and Member States under the REPowerEU Plan launched in 2022, and the enhanced EU energy diplomacy with international partners, gas imports (both LNG and pipeline) from Russia have decreased significantly from 45% in 2021 to 19% in 2024. They have been replaced by supplies from more reliable sources as well as from an increase of cleaner energy in our system coupled with coordinated efforts to reduce unnecessary energy use. Projections point to a further fall to 13% in 2025 with the end of the Russian gas transit via Ukraine. Thanks to EU sanctions, Russian oil imports have also shrunk, from 27% at the beginning of 2022 to 3% now. Moreover, sanctions have completely banned imports of Russian coal to the EU and prohibited the reloading of cargoes in EU ports carrying liquified natural gas (LNG) from Russia. As regards nuclear, utilities operating Russian-designed nuclear reactors have signed contracts for nuclear fuel produced by suppliers alternative to Russia.

Despite this significant progress achieved under the REPowerEU Plan and sanctions, Russian gas, oil, and nuclear supplies remain part of the EU’s energy mix. This poses risks to our security, as well as competitiveness. In 2024, the EU imported 52 billion cubic meters of Russian gas (32 bcm via pipeline and 20 bcm via LNG), as well as 13 million tonnes of crude oil and more than 2800 tonnes of equivalent uranium in enriched or fuel form. Last year, ten Member States imported Russian natural gas, three Member States imported Russian oil, and six Member States imported enriched uranium or uranium services from Russia.  

Albeit reduced, energy exports to the EU represent a source of income for the Russian state and can be used to sponsor its brutal war actions. For this reason, further EU action is needed to advance on the EU’s independence from Russia. By reducing risks of Russia’s weaponisation of energy supplies, the proposed phaseout of oil, gas and nuclear energy from Russia will further boost the EU’s energy security and help stabilise energy markets and prices.

What are the concrete measures proposed and when will they be adopted?

The Roadmap sets out nine concrete actions for a coordinated and step-wise approach to the phase out of Russian energy supplies. It will be followed next month by legislative proposals covering oil, gas and nuclear energy.

Regarding gas, the upcoming legislation will boost transparency on the energy markets by ensuring the traceability of Russian gas. It will then tackle remaining Russian gas imports into the EU in a gradual manner. First, it will introduce a ban on all imports of Russian gas (both pipeline and LNG) under new contracts and existing spot contracts, which would take effect by the end of 2025. This measure will ensure that already by the end of this year, the EU will reduce by one third the remaining supplies of Russian gas. Second, it will aim to tackle all the remaining imports of Russian gas (both pipeline and LNG) with a view to phase them out by the end of 2027. The Commission will involve the concerned Member States and ensure that the proposals will be based on an adequate assessment of legal and economic impacts to give the necessary certainty to companies.

As regards nuclear, the proposals will include measures on Russian imports of enriched uranium as well as restrictions on new supply contracts co-signed by the Euratom Supply Agency (ESA) for uranium, enriched uranium and other nuclear materials deriving from Russia. A new initiative to secure the supply of medical radioisotopes and boosting domestic production is also envisaged.

Finally, as regards oil, the Roadmap sets out new actions to tackle the shadow fleet through which Russia is circumventing sanctions and the international oil price cap. The Commission will step up its diplomatic efforts as well as cooperation with the International Maritime Organisation and start working on maritime missions under the EU Common Security and Defence Policy.

Member States will be required to prepare national plans for the EU-wide phase out of Russian gas, nuclear and oil within specific timelines. These plans will allow to take into account the national specificities and diversification needs of each Member State so that the phaseout occurs in a coordinated and well-managed manner. 

What will be the impact on the EU’s security of supply and on energy prices? 

Russia’s weaponisation of energy supplies has directly impacted European households and businesses causing unprecedented security risks and instability on the energy markets.

The actions presented in the Roadmap will be deployed gradually over time and in a coordinated manner with the Member States, taking into account the national specificities in terms of supply needs and alternatives. Such an approach will help minimise the impact on prices, stabilise markets through secure and predictable alternative supplies and provide legal certainty. All the measures proposed will be accompanied by sustained efforts at ensuring alternative supplies, including via demand aggregation, and optimising the use of existing gas infrastructure. They will also be underpinned by the EU’s clean transition objectives.

The close coordination between the Commission and Member States to prepare for the end of the Russian gas transit agreement via Ukraine in December 2024 has proved that coordinated preparatory actions, diversification efforts and a gradual approach in phasing out Russian imports are essential to preserve security of supply and guarantee price stability, and market predictability.