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Ballsy EU Commission moves to make Russia pay for Ukraine
(www.politico.eu)
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This is propaganda to keep the notion that Russia will be held responsible even though there is absolutely no way to guarantee they can make that happen, which in turn helps to maintain approval of policies like sanctions and so on, which is how the EU "makes them pay". If you are in favour of that kind of direction, I think it's a positive thing to do, since it favour your narrative
So it just means "We will not be paying for this." Since that is the only thing they can promisse.