[Congressional Bills 119th Congress]
[From the U.S. Government Publishing Office]
[S. 2904 Introduced in Senate (IS)]
<DOC>
119th CONGRESS
1st Session
S. 2904
To impose sanctions with respect to the shadow fleet of the Russian
Federation, and for other purposes.
_______________________________________________________________________
IN THE SENATE OF THE UNITED STATES
September 18 (legislative day, September 16), 2025
Mr. Risch (for himself, Mrs. Shaheen, Mr. Cotton, Mr. Whitehouse, Mr.
Ricketts, Mr. Blumenthal, Mr. Coons, Mr. Graham, and Mr. Kaine)
introduced the following bill; which was read twice and referred to the
Committee on Foreign Relations
_______________________________________________________________________
A BILL
To impose sanctions with respect to the shadow fleet of the Russian
Federation, and for other purposes.
Be it enacted by the Senate and House of Representatives of the
United States of America in Congress assembled,
SECTION 1. SHORT TITLE; TABLE OF CONTENTS.
(a) Short Title.--This Act may be cited as the ``Sanctioning
Harborers And Dodgers Of Western Sanctions Act of 2025'' or the
``SHADOW Fleet Sanctions Act of 2025''.
(b) Table of Contents.--The table of contents for this Act is as
follows:
Sec. 1. Short title; table of contents.
TITLE I--SANCTIONS WITH RESPECT TO THE RUSSIAN FEDERATION
Sec. 101. Definitions.
Subtitle A--Sanctions With Respect to Russian Shadow Fleet
PART I--Imposition of Sanctions
Sec. 111. Imposition of sanctions with respect to vessels suspected of
participation in or support of the Russian
shadow fleet.
Sec. 112. Imposition of sanctions with respect to foreign persons that
support Russian illicit shipping with
vessels subject to United States sanctions.
Sec. 113. Imposition of sanctions with respect to port terminals
accepting oil from Russian shadow fleet
vessels.
PART II--Disclosures, Publications, and Reports
Sec. 121. Alignment of designation authorities with European Union and
United Kingdom regarding Russian shadow
fleet.
Sec. 122. Support of efforts of the Joint Expeditionary Force.
Sec. 123. Database of vessels involved in sabotage and other illicit
activities.
Sec. 124. Report on specific licenses granted under Executive Order
14024.
PART III--Flag States Requirements and Strategy
Sec. 131. Minimum standards for operating as a flag state registry and
assessment of efforts to prevent the
circumvention of sanctions and other
crimes.
Sec. 132. Strategy for countries that do not make sufficient efforts to
comply with minimum standards for operating
as a flag state.
PART IV--Denying Access to United States Markets for Russian-Origin Oil
Sec. 141. International efforts to enforce price cap on oil exports
from the Russian Federation.
Sec. 142. Report on crude oil price cap.
PART V--Other Matters
Sec. 151. International efforts to identify vessels transporting
Russian-origin oil.
Subtitle B--Sanctions With Respect to Russian-Origin Energy Products
Sec. 161. Imposition of sanctions with respect to persons with certain
interests in Russian energy projects.
Sec. 162. Modifications of Protecting Europe's Energy Security Act of
2019.
Sec. 163. Report on exports of Russian-origin petroleum products.
Sec. 164. Strategy to counter role of the People's Republic of China in
evasion of sanctions with respect to
Russian-origin petroleum products.
Subtitle C--Sanctions With Respect to Russian Defense Industrial Base
Sec. 171. Imposition of sanctions with respect to persons that sell,
lease, or provides good or services
relating to the defense industrial base of
the Russian Federation.
Subtitle D--General Provisions
Sec. 181. Sanctions described.
Sec. 182. Exceptions; waivers.
Sec. 183. Implementation.
TITLE II--OTHER MATTERS
Sec. 201. Determination with respect to Russian military actions in
support of Russian shadow fleet.
Sec. 202. Resources for sanctions implementation at the Department of
State.
Sec. 203. Modification of limitation on military cooperation between
the United States and the Russian
Federation.
Sec. 204. Emergency appropriations for the Countering Russian Influence
Fund.
Sec. 205. Report on presidential drawdown authority and Ukraine
Security Assistance Initiative.
Sec. 206. Support for Ukraine arms sales.
TITLE I--SANCTIONS WITH RESPECT TO THE RUSSIAN FEDERATION
SEC. 101. DEFINITIONS.
In this title:
(1) Adequate maritime insurance.--The term ``adequate
maritime insurance''--
(A) means verified documentation evidencing
protection and indemnity insurance with audited
financial statements of the insurer; and
(B) does not include insurance provided by--
(i) an insurer organized under the laws of
the Russian Federation; or
(ii) an insurer that continues to provide
insurance to any vessel designated for the
imposition of sanctions under the laws of the
United States, the European Union, or the
United Kingdom.
(2) Admitted; alien; lawfully admitted for permanent
residence.--The terms ``admitted'' and ``alien'', and
``lawfully admitted for permanent residence'' have the meanings
given those terms in section 101 of the Immigration and
Nationality Act (8 U.S.C. 1101).
(3) Appropriate congressional committees.--The term
``appropriate congressional committees'' means--
(A) the Committee on Foreign Relations and the
Committee on Banking, Housing, and Urban Affairs of the
Senate; and
(B) the Committee on Foreign Affairs and the
Committee on Financial Services of the House of
Representatives.
(4) Beneficial owner.--The term ``beneficial owner'' means,
with respect to a vessel, any individual who, directly or
indirectly, through any contract, arrangement, understanding,
relationship, or otherwise--
(A) exercises substantial control over the vessel;
or
(B) owns not less than 25 percent of the vessel.
(5) Crude oil price cap.--The term ``crude oil price cap''
means the price cap for crude oil and petroleum products that
originated in the Russian Federation established by the Price
Cap Coalition.
(6) Foreign person.--The term ``foreign person'' means an
individual or entity that is not a United States person.
(7) Foreign vessel.--The term ``foreign vessel'' means a
vessel that is not owned or operated by a United States person.
(8) Knowingly.--The term ``knowingly'', with respect to
conduct, a circumstance, or a result, means that a person has
actual knowledge, or should have known, of the conduct, the
circumstance, or the result.
(9) Petroleum product.--The term ``petroleum product''
means oil of any kind or in any form, gasoline, diesel fuel,
aviation fuel, fuel oil, kerosene, any product obtained from
refining or processing of crude oil, liquefied petroleum gases,
natural gas liquids, petrochemical feedstocks, condensate,
waste or refuse mixtures containing any of such oil products,
and any other liquid hydrocarbon compounds.
(10) Price cap coalition.--The term ``Price Cap Coalition''
means the international coalition made up of Australia, New
Zealand, Canada, the European Union, France, Germany, Italy,
Japan, the United Kingdom, and the United States and known as
the ``Price Cap Coalition''.
(11) Russian-origin petroleum product.--The term ``Russian-
origin petroleum product'' means a petroleum product extracted,
refined, processed, or otherwise produced in the Russian
Federation.
(12) Russian person.--The term ``Russian person'' means--
(A) a citizen or national of the Russian
Federation; or
(B) an entity organized under the laws of the
Russian Federation or otherwise subject to the
jurisdiction of the Government of the Russian
Federation.
(13) Russian shadow fleet.--The term ``Russian shadow
fleet'' means any foreign vessel or vessels used or directed by
the Russian Federation to move oil, arms, and other goods for
the purpose of circumventing international sanctions.
(14) Sabotage activities.--The term ``sabotage activities''
means actions, or preparations for actions, taken with the
intent to cause defective production, operation, or damage to
critical undersea infrastructure, including energy pipelines,
offshore energy facilities, or subsea power lines and
telecommunications cables and associated landing stations and
facilities.
(15) United states person.--The term ``United States
person'' means--
(A) a United States citizen or an alien lawfully
admitted for permanent residence to the United States;
(B) an entity organized under the laws of the
United States or of any jurisdiction within the United
States, including a foreign branch of such an entity;
or
(C) a person in the United States.
Subtitle A--Sanctions With Respect to Russian Shadow Fleet
PART I--IMPOSITION OF SANCTIONS
SEC. 111. IMPOSITION OF SANCTIONS WITH RESPECT TO VESSELS SUSPECTED OF
PARTICIPATION IN OR SUPPORT OF THE RUSSIAN SHADOW FLEET.
(a) In General.--Not later than 90 days after the date of the
enactment of this Act, the President shall impose the sanctions
described in section 181 with respect to any Russian shadow fleet
vessel that, on or after the date of the enactment of this Act,
transports crude oil, arms, or other goods for the purpose of
circumventing sanctions imposed by the United States or other
countries, including--
(1) any foreign vessel the owner or operator of which
knowingly--
(A) exhibits or engages in unsafe or nonstandard
maritime behavior in furtherance of the transportation
of Russian-origin petroleum products or uranium or coal
that originated in the Russian Federation;
(B) lacks adequate maritime insurance for the
transport of goods described in subparagraph (A); or
(C) evades compliance with the crude oil price cap;
and
(2) any foreign person that the President determines
knowingly--
(A) owns, operates, or manages a vessel described
in paragraph (1);
(B) provides underwriting services or insurance or
reinsurance necessary for such a vessel;
(C) facilitates deceptive or structured
transactions to support a vessel described in paragraph
(1);
(D) provides services or facilities for technology
upgrades or installation of equipment for, or
retrofitting or tethering of, a vessel described in
paragraph (1) for the purpose of evading sanctions;
(E) provided services for the testing, inspection,
or certification for a vessel described in paragraph
(1) for the purpose of evading sanctions;
(F) serves as a captain or senior leadership of the
crew of such a vessel; or
(G) transfers to the Russian Federation any foreign
vessel designed to transport Russian-origin petroleum
products or uranium or coal.
(b) Vessels Subject to Sanctions by the United Kingdom or the
European Union.--In determining whether a foreign vessel or foreign
person is described in subsection (a), the President may use as prima
facie evidence that the foreign vessel or foreign person is subject to
sanctions imposed by the United Kingdom, the European Union, the Group
of 7, or a member of the Five Eyes intelligence alliance.
(c) Indicators of Unsafe or Nonstandard Maritime Behavior.--In
determining under subsection (a)(1)(A) if a vessel is exhibiting or
engaged in unsafe or nonstandard maritime behavior, the President may
use as prima facie evidence that the vessel is exhibiting or engaged in
such behavior if the vessel has exhibited 3 or more indicators of such
behavior, including the following:
(1) Has refused to take on a pilot in accordance with best
practices of the International Maritime Organization.
(2) Does not respond when hailed by appropriate maritime
authority.
(3) Turns off the Automatic Identification System of the
vessel without explanation or report to the appropriate
maritime authority within a reasonable period of time.
(4) Engages in unsafe maritime maneuvers with another
vessel.
(5) Is uninsured or underinsured, including any vessel that
is insured by an insurance company organized under the laws of
the Russian Federation or the Islamic Republic of Iran.
(6) Is single-hulled contrary to standards of the
International Maritime Organization.
(7) Has changed ownership or flag registry more than once
in the previous year.
(8) Has a history of deliberately losing power or turning
off transmitters without a compelling security need.
(9) Has not been properly maintained, based on credible
evidence.
(10) Has been involved in a recent maritime or
environmental incident.
(11) Is escorted by the military of the Russian Federation.
(12) Has engaged in sabotage activities.
(d) Report.--Not later than 120 days after the date of the
enactment of this Act, and every 90 days thereafter, the President
shall submit to the appropriate congressional committees a report that
describes any sanctions imposed under this section, including a brief
description of each foreign person and foreign vessel with respect to
which sanctions are imposed and the justification for such sanctions.
SEC. 112. IMPOSITION OF SANCTIONS WITH RESPECT TO FOREIGN PERSONS THAT
SUPPORT RUSSIAN ILLICIT SHIPPING WITH VESSELS SUBJECT TO
UNITED STATES SANCTIONS.
(a) In General.--Not later than 180 days after the date of the
enactment of this Act, the President shall impose the sanctions
described in section 181 with respect to a foreign person if the
President determines that the foreign person, on or after the date of
the enactment of this Act, has engaged in a transaction described in
subsection (b) with a Russian shadow fleet vessel that is subject to
sanctions imposed by the United States.
(b) Transactions Described.--A transaction described in this
subsection is any of the following:
(1) The conduct of any ship-to-ship transfer involving
Russian-origin petroleum products, uranium, or coal products
with a Russian shadow fleet vessel.
(2) The provision of significant goods or services,
including crew or maintenance services, in support of a Russian
shadow fleet vessel with the knowledge that the vessel is
subject to sanctions imposed by the United States.
(3) In the case of the owner or operator of a foreign port,
allowing a Russian shadow fleet vessel to port or otherwise
receive services at the foreign port.
(4) In the case of a foreign person that is the owner or
operator of a refinery, knowingly engaging in a transaction to
process, refine, or otherwise deal in any Russian Federation-
origin petroleum products that were transported on a Russian
shadow fleet vessel.
SEC. 113. IMPOSITION OF SANCTIONS WITH RESPECT TO PORT TERMINALS
ACCEPTING OIL FROM RUSSIAN SHADOW FLEET VESSELS.
Beginning on the date that is 15 days after the date of the
enactment of this Act, the President may impose the sanctions described
in section 181 with respect to any foreign person that owns or operates
a port in the People's Republic of China or the Republic of India that
accepts oil from--
(1) foreign vessels transporting Russian-origin crude oil
for sale at a price higher than the maximum price agreed to by
the Price Cap Coalition or any related price cap established by
the United States; or
(2) foreign vessels with respect to which the United States
has imposed sanctions.
PART II--DISCLOSURES, PUBLICATIONS, AND REPORTS
SEC. 121. ALIGNMENT OF DESIGNATION AUTHORITIES WITH EUROPEAN UNION AND
UNITED KINGDOM REGARDING RUSSIAN SHADOW FLEET.
(a) Report.--
(1) In general.--Not later than 180 days after the date of
the enactment of this Act, and every 180 days thereafter, the
Secretary of State, through the head of the Office of Sanctions
Coordination and in coordination with the Secretary of the
Treasury and the Director of the Office of Foreign Assets
Control of the Department of the Treasury, shall submit to the
appropriate congressional committees a report that includes a
list of each foreign vessel subject to sanctions imposed by the
European Union or the United Kingdom that is determined to
operate as part of the Russian shadow fleet.
(2) Justification.--For any vessel listed in a report under
paragraph (1) that is not subject to sanctions imposed by the
United States, the report shall include the justification
provided by the European Union or the United Kingdom, as the
case may be, for designation of the vessel and a brief
justification of the reason provided by the European Union or
the United Kingdom.
(b) Strategy.--Not later than 180 days after the date of the
enactment of this Act, the Secretary of State, through the head of the
Office of Sanctions Coordination and in coordination with the Secretary
of the Treasury and the Director of the Office of Foreign Assets
Control, shall produce a strategy for enhancing alignment of sanctions
designation authorities of the United States regarding vessels
supporting the Russian shadow fleet with those authorities of the
European Union and the United Kingdom.
SEC. 122. SUPPORT OF EFFORTS OF THE JOINT EXPEDITIONARY FORCE.
(a) Sense of Congress.--It is the sense of Congress that the United
States supports the efforts of the Joint Expeditionary Force to track,
monitor, deter, and if necessary, respond to operations and illicit
activities of the Russian shadow fleet.
(b) Statement of Policy.--It shall be the policy of the United
States to use relevant maritime elements of the United States
Government to support and amplify the authorized efforts of the Joint
Expeditionary Force.
SEC. 123. DATABASE OF VESSELS INVOLVED IN SABOTAGE AND OTHER ILLICIT
ACTIVITIES.
(a) In General.--The Secretary of State, in coordination with the
heads of relevant Federal agencies, shall establish and maintain a
public database of foreign vessels suspected of being involved in
sabotage activities or other illicit activities in support of the
Russian shadow fleet that includes credible, open-source information
collected regarding activities described in section 111(a).
(b) Coordination.--Whenever possible, the Secretary of State shall
coordinate with Australia, New Zealand, Canada, France, Germany, Italy,
Japan, the United Kingdom, and the European Union, if any such country
or jurisdiction is imposing sanctions with respect to the Russian
shadow fleet, to coordinate information sharing on data regarding
foreign vessels suspected of engaging in sabotage activities or other
illicit activities described in subsection (a), including credible,
open-source information collected regarding activities described in
section 111(a).
SEC. 124. REPORT ON SPECIFIC LICENSES GRANTED UNDER EXECUTIVE ORDER
14024.
(a) In General.--Not later than 90 days after the date of the
enactment of this Act, and every 90 days thereafter, the Secretary of
State, in coordination with the Secretary of the Treasury, shall submit
to the appropriate congressional committees a report listing any
specific license granted or in effect under Executive Order 14024 (50
U.S.C. 1701 note; relating to blocking property with respect to
specified harmful foreign activities of the Government of the Russian
Federation).
(b) Form.--Each report required under subsection (a) shall be
submitted in classified form.
PART III--FLAG STATES REQUIREMENTS AND STRATEGY
SEC. 131. MINIMUM STANDARDS FOR OPERATING AS A FLAG STATE REGISTRY AND
ASSESSMENT OF EFFORTS TO PREVENT THE CIRCUMVENTION OF
SANCTIONS AND OTHER CRIMES.
It is the policy of the United States that the government of a
country is complying with the minimum standards required by the United
States for maintaining an open flag registry if, on balance, the
government--
(1) has enacted and implemented laws and established
government structures, policies, and practices that prohibit
and generally deter the use of its flag registry as a mechanism
to circumvent sanctions imposed by the United States, the
United Kingdom, the European Union, or other Group of 7
countries, including prohibiting its flag to continue to fly on
vessels that are subject to sanctions imposed by any such
country or jurisdiction;
(2) has enacted and implemented laws and established
government structures, policies, and practices that prohibit
and generally deter the use of its flag registry to avoid
detection of illicit activities, including drug trafficking,
illicit arms shipments, human trafficking, and illegal,
unreported, and unregulated fishing activities;
(3) enforces the laws described in paragraphs (1) and (2)
by punishing any person found, through a fair judicial process,
to have violated those laws;
(4) takes steps to ensure ships flying its flag comply with
well-established industry standards and best practices relating
to maritime activities, including adhering to resolutions and
warnings promulgated by the International Maritime
Organization, such as Resolution A.1192(33) (December 6, 2023)
relating to urging member states and all relevant stakeholders
to promote actions to prevent illegal operations in the
maritime sector by the ``dark fleet'' or ``shadow fleet'';
(5) responds to credible reports from other countries and
private entities warning of vessels flying its flag engaging in
maritime behavior that poses safety risks, such as not allowing
pilot access or turning off Automatic Identification Systems
without adequate justification;
(6) takes steps to ensure vessels flying its flag adhere to
measures that lawfully prohibit and regulate ship-to-ship
transfers of oil or petroleum products subject to sanctions;
(7) takes steps to ensure vessels flying its flag possess
adequate and credible insurance to cover the costs of maritime
accidents;
(8) takes steps to ensure vessels are operating under
transparent ownership structures, including by verifying the
beneficial ownership and management of vessels; and
(9) takes steps to ensure vessels do not avoid flag state
or port state control inspections or avoid commercial
screenings and inspections.
SEC. 132. STRATEGY FOR COUNTRIES THAT DO NOT MAKE SUFFICIENT EFFORTS TO
COMPLY WITH MINIMUM STANDARDS FOR OPERATING AS A FLAG
STATE.
Not later than one year after the date of the enactment of this
Act, and annually thereafter through 2030, the Secretary of State, in
consultation with the heads of appropriate Federal agencies, shall--
(1) conduct an assessment of countries that do not meet the
minimum standards for operating as a flag state registry in
compliance with United States policy, including the standards
described in section 131; and
(2) submit to the appropriate congressional committees a
strategy for identifying and engaging with those countries.
PART IV--DENYING ACCESS TO UNITED STATES MARKETS FOR RUSSIAN-ORIGIN OIL
SEC. 141. INTERNATIONAL EFFORTS TO ENFORCE PRICE CAP ON OIL EXPORTS
FROM THE RUSSIAN FEDERATION.
The Secretary of State, in coordination with the Secretary of the
Treasury, shall--
(1) fully monitor international compliance with the crude
oil price cap within the jurisdiction of the United States;
(2) engage, advise, and assist foreign governments in
joining and implementing efforts to enforce the crude oil price
cap;
(3) engage with the governments of countries that import or
facilitate the transport of crude oil of Russian Federation
origin or refined petroleum products made from such oil to
identify entities evading the crude oil price cap and deploy
resources aimed at enforcement and compliance; and
(4) consider which countries play a significant role in
exporting such oil or petroleum products or in evading
sanctions when selecting locations to assign Treasury Financial
Attaches under section 316 of title 31, United States Code.
SEC. 142. REPORT ON CRUDE OIL PRICE CAP.
(a) In General.--Not later than 180 days after the date of the
enactment of this Act, and every 2 years thereafter, the Secretary of
State, in coordination with the Secretary of the Treasury, the
Secretary of Commerce, and the Secretary of Energy, shall submit to the
appropriate congressional committees a report that includes the
following and all related material information:
(1) A determination of whether crude oil of Russian
Federation origin or refined petroleum products made from such
oil are entering the United States and, if so, at what volume.
(2) A description of efforts undertaken by the executive
branch to monitor and prevent the importation of such oil and
petroleum products.
(3) A description and assessment of efforts undertaken by
the Department of State to engage countries, individuals,
entities, port stakeholders, and other organizations involved
in the maritime oil trade to promote responsible practices,
uphold environmental and safety standards, prevent and disrupt
trade in goods subject to sanctions imposed by the United
States, and enhance compliance with the crude oil price cap.
(4) An assessment of income derived by the Russian
Federation from individuals, entities, and organizations
involved in the acquisition, transport, sale, and delivery of
such oil or petroleum products in excess of the crude oil price
cap, including through entities beneficially owned by the
Government of the Russian Federation between January 2022 and
the date of the report.
(5) An estimate of income described in paragraph (4)
projected to be derived by the Russian Federation from calendar
year 2025 through the calendar year following submission of the
report.
(6) An assessment of the extent to which the Russian
Federation benefits financially from the sale of such oil or
petroleum products exported in compliance with the crude oil
price cap.
(b) Termination.--The requirement to submit reports under
subsection (a) shall terminate on the earlier of--
(1) January 1, 2030; or
(2) the date that is 90 days after the termination of the
prohibition on importation of energy products of the Russian
Federation under section 3 of the Ending Importation of Russian
Oil Act (Public Law 117-109; 22 U.S.C. 8923 note).
PART V--OTHER MATTERS
SEC. 151. INTERNATIONAL EFFORTS TO IDENTIFY VESSELS TRANSPORTING
RUSSIAN-ORIGIN OIL.
It shall be the policy of the United States--
(1) to fully promote the recommendations made by Resolution
A.1192(33) of the International Maritime Organization, adopted
on December 6, 2023;
(2) to use the voice and vote of the United States in
international organizations and engage other relevant
multilateral bodies, such as the North Atlantic Treaty
Organization and the European Union, to strongly encourage the
governments of all countries to adopt those recommendations,
including the recommendation that a port state, when the state
becomes aware of a vessel intentionally taking measures to
avoid detection, such as switching off its Automatic
Identification System or long-range identification and tracking
system transmissions or concealing its actual identity, should,
following an initial investigation to verify that the vessel
has not stopped transmitting signals for legitimate reasons--
(A) subject the vessel to enhanced inspections as
authorized through relevant mechanisms of the port
state; and
(B) notify the flag administration of the vessel,
as appropriate; and
(3) to encourage governments of all countries to deny
access to ports and services for any vessel that, following an
initial investigation, is found to have turned off its
transponder or entered false information for the purpose of
conducting a transfer of or transaction for crude oil of
Russian Federation origin or refined petroleum products made
from such oil in violation of the crude oil price cap.
Subtitle B--Sanctions With Respect to Russian-Origin Energy Products
SEC. 161. IMPOSITION OF SANCTIONS WITH RESPECT TO PERSONS WITH CERTAIN
INTERESTS IN RUSSIAN ENERGY PROJECTS.
(a) In General.--Not later than 30 days after the date of enactment
of this Act, and every 180 days thereafter, the President shall impose
the sanctions described in section 181 with respect to any foreign
person the President determines is, on or after such date of enactment,
a leader, official, senior executive officer, or member of the board of
directors of, or principal shareholder with a controlling or majority
interest in, any of the following Russian energy projects:
(1) The Yamal Liquified Natural Gas Product or a successor
project.
(2) The Arctic 1, 2, and 3 Liquified Natural Gas Projects
or a successor project.
(3) Any project in the Arctic region or the Russian Far
East carried out after the date of the enactment of this Act.
(b) Sense of Congress.--It is the sense of Congress that--
(1) countries that rely on Russian energy projects,
including Sakhalin-1 and Sakhalin-2, TurkStream 1 and 2, and
the Druzhba pipeline, should work to expeditiously end their
dependence on such projects and diversify their sources of
energy to exports from other countries, including the United
States; and
(2) the European Union should remain committed to firm
deadlines set forth in the RePowerEU Roadmap for the phasing
out of energy exported from the Russian Federation.
SEC. 162. MODIFICATIONS OF PROTECTING EUROPE'S ENERGY SECURITY ACT OF
2019.
Section 7503 of the Protecting Europe's Energy Security Act of 2019
(title LXXV of Public Law 116-92; 22 U.S.C. 9526 note) is amended--
(1) in subsection (a)(1)(B)(v), by striking ``the Nord
Stream 2 pipeline'' and inserting ``the Nord Stream 1 pipeline,
the Nord Stream 2 pipeline, or a successor to either such
pipeline'';
(2) in subsection (e)--
(A) by striking paragraph (4); and
(B) by redesignating paragraphs (5) and (6) as
paragraphs (4) and (5), respectively;
(3) by amending subsection (f) to read as follows:
``(f) National Security Waiver.--
``(1) In general.--The President may waive the application
of sanctions under this section if--
``(A) the President--
``(i) determines such a waiver is in the
national security interests of the United
States; and
``(ii) not later than 30 days before the
waiver takes effect, submits to the appropriate
congressional committees a report on the waiver
and the reasons for the waiver; and
``(B) a joint resolution prohibiting the waiver is
not enacted into law during the 30-day period described
in subparagraph (A)(ii).
``(2) Consideration of joint resolutions.--
``(A) In general.--A joint resolution described in
paragraph (1)(B) introduced in either House of Congress
shall be considered in accordance with the provisions
of section 601(b) of the International Security
Assistance and Arms Export Control Act of 1976 (Public
Law 94-329; 90 Stat. 765), except that the resolution
shall be subject to germane amendments.
``(B) Consideration of veto messages.--If joint
resolution described in paragraph (1)(B) is vetoed by
the President, the time for debate in consideration of
the veto message on the resolution shall--
``(i) in the Senate, be limited to 20
hours; and
``(ii) in the House of Representatives, be
determined in accordance with the Rules of the
House.''; and
(4) in subsection (h)--
(A) by striking paragraph (2);
(B) by striking ``terminate'' and all that follows
through ``the date on which'' and inserting ``terminate
on the date on which'';
(C) by redesignating subparagraphs (A) and (B) as
paragraphs (1) and (2), respectively, and by moving
such paragraphs, as so redesignated, 2 ems to the left;
and
(D) in paragraph (2), as redesignated, by striking
``; or'' and inserting a period.
SEC. 163. REPORT ON EXPORTS OF RUSSIAN-ORIGIN PETROLEUM PRODUCTS.
(a) In General.--Not later than 120 days after the date of the
enactment of this Act, and annually thereafter until the date described
in subsection (e), the President shall submit to the appropriate
congressional committees a report describing exports of Russian-origin
petroleum products.
(b) Elements.--Each report required by subsection (a) shall include
the following:
(1) An analysis of the export and sale of Russian-origin
petroleum products by the Russian Federation during 2018 and
each calendar year thereafter, including--
(A) an estimate of the revenue received by the
Russian Federation from such exports and sales;
(B) an estimate of that revenue attributable to the
People's Republic of China;
(C) the number of barrels of crude oil exported
from the Russian Federation;
(D) the number of such barrels exported to the
People's Republic of China;
(E) the number of such barrels exported to
countries other than the People's Republic of China;
(F) the average price for each such barrel; and
(G) the average price for each such barrel exported
to the People's Republic of China.
(2) An analysis of the labeling practices of the Russian
Federation for exports of Russian-origin petroleum products.
(3) A description of entities involved in the exportation
and sale of Russian-origin petroleum products.
(4) A description of vessels involved in such exportation
and sale.
(5) A description of ports involved in such exportation and
sale.
(c) Form.--Each report required by subsection (a) shall be
submitted in unclassified form but may include a classified annex.
(d) Publication.--The unclassified portion of each report required
by subsection (a) shall be posted on a publicly available website of
the Energy Information Administration.
(e) Termination.--The requirement to submit reports under this
section shall terminate on the date that is 5 years after the date of
the enactment of this Act.
SEC. 164. STRATEGY TO COUNTER ROLE OF THE PEOPLE'S REPUBLIC OF CHINA IN
EVASION OF SANCTIONS WITH RESPECT TO RUSSIAN-ORIGIN
PETROLEUM PRODUCTS.
(a) In General.--Not later than 120 days after the date of the
enactment of this Act, the Secretary of State, in consultation with the
heads of other appropriate Federal agencies, shall submit to the
appropriate congressional committees a written strategy, and provide to
those committees an accompanying briefing, on the role of the People's
Republic of China in evasion of sanctions imposed by the United States
with respect to Russian-origin petroleum products that includes an
assessment of options--
(1) to strengthen the enforcement of such sanctions; and
(2) to expand sanctions designations targeting the
involvement of the People's Republic of China in the
production, transportation, storage, refining, and sale of
Russian-origin petroleum products.
(b) Elements.--The strategy required by subsection (a) shall
include--
(1) a description and assessment of the use of sanctions in
effect before the date of the enactment of this Act to target
individuals and entities of the People's Republic of China that
are directly or indirectly associated with smuggling of
Russian-origin petroleum products;
(2) an assessment of--
(A) Russian-owned entities operating in the
People's Republic of China and involved in petroleum
refining supply chains;
(B) the People's Republic of China's role in
Russian petroleum refining supply chains;
(C) how the People's Republic of China leverages
its role in Russian petroleum supply chains to achieve
political objectives; and
(D) what percent of the energy consumption of the
People's Republic of China is linked to imported
Russian-origin petroleum products;
(3) a detailed plan for--
(A) monitoring the maritime domain for sanctionable
activity related to smuggling of Russian-origin
petroleum products;
(B) identifying the individuals, entities, and
vessels engaging in sanctionable activity related to
Russian-origin petroleum products, including--
(i) vessels--
(I) transporting petrochemicals
subject to sanctions;
(II) conducting ship-to-ship
transfers of such petrochemicals;
(III) with deactivated automatic
identification systems; or
(IV) that engage in ``flag
hopping'' by changing national
registries;
(ii) individuals or entities--
(I) storing petrochemicals subject
to sanctions; or
(II) refining or otherwise
processing such petrochemicals; and
(iii) through the use of port entry and
docking permission of vessels subject to
sanctions;
(C) deterring individuals and entities from
violating sanctions by educating and engaging--
(i) insurance providers;
(ii) parent companies; and
(iii) vessel operators;
(D) collaborating with allies and partners of the
United States engaged in the Northern Europe, including
through standing or new maritime task forces, to build
sanctions enforcement capacity through assistance and
training to defense and law enforcement services; and
(E) using public communications and global
diplomatic engagements to highlight the role of
smuggling of Russian-origin petroleum products in
bolstering the Russian Federation's war efforts in
Ukraine and support for other malign activity; and
(4) an assessment of--
(A) the total number of vessels smuggling Russian-
origin petroleum products;
(B) the total number of vessels smuggling such
products destined for the People's Republic of China;
(C) interference by the People's Republic of China
with attempts by the United States, the United Kingdom,
or the European Union to investigate or enforce
sanctions with respect to Russian-origin petroleum
products;
(D) the effectiveness of the use of sanctions with
respect to insurers of entities that own or operate
vessels involved in smuggling Russian-origin petroleum
products;
(E) the personnel and resources needed to enforce
sanctions with respect to Russian-origin petroleum
products; and
(F) the impact of smuggled Russian-origin petroleum
products on global energy markets.
(c) Form.--The strategy required by subsection (a) shall be
submitted in unclassified form but may include a classified index.
Subtitle C--Sanctions With Respect to Russian Defense Industrial Base
SEC. 171. IMPOSITION OF SANCTIONS WITH RESPECT TO PERSONS THAT SELL,
LEASE, OR PROVIDE GOODS OR SERVICES RELATING TO THE
DEFENSE INDUSTRIAL BASE OF THE RUSSIAN FEDERATION.
(a) Report Required.--Not later than 60 days after the date of the
enactment of this Act, and every 90 days thereafter, the Secretary of
State, in consultation with the Secretary of the Treasury, shall submit
to the appropriate congressional committees a report that identifies,
for the period covered by the report each foreign person that the
Secretary of State, in consultation with the Secretary of the Treasury
and the Secretary of Commerce, determines has knowingly--
(1) sold, leased, provided, or facilitated selling,
leasing, or providing goods or services relating to the defense
industrial base of the Russian Federation, including--
(A) computer numerical control (CNC) tools and
associated machinery, software, and maintenance or
upgrade services;
(B) lubricant additives;
(C) semiconductors and associated manufacturing
equipment;
(D) items on the Common High Priority Items List
maintained by the Bureau of Industry and Security of
the Department of Commerce;
(E) nitrocellulose, wood cellulose, and associated
additives and components necessary for the production
of propellant or energetics for munitions;
(F) fiber optic cables with military applications
and associated technologies needed to manufacture such
cables;
(G) advanced sensors; and
(H) any additional items identified by the
Secretary of State, in consultation with the Secretary
of Commerce, that are critical to the defense
industrial base of the Russian Federation; or
(2) facilitated deceptive or structured transactions to
provide the goods and services described by paragraph (1).
(b) Ineligibility for Visas, Admission, or Parole of Identified
Persons and Corporate Officers.--
(1) In general.--
(A) Visas, admission, or parole.--An alien
described in paragraph (2) shall be--
(i) inadmissible to the United States;
(ii) ineligible to receive a visa or other
documentation to enter the United States; and
(iii) otherwise ineligible to be admitted
or paroled into the United States or to receive
any other benefit under the Immigration and
Nationality Act (8. U.S.C. 1101 et seq.).
(B) Current visas revoked.--
(i) In general.--The visa or other entry
documentation of an alien described in
paragraph (2) shall be revoked, regardless of
when such visa or other entry documentation is
or was issued.
(ii) Immediate effect.--A revocation under
clause (i) shall--
(I) take effect immediately; and
(II) automatically cancel any other
valid visa or entry documentation that
is in the possession of the alien.
(2) Aliens described.--An alien described in this paragraph
is an alien who is--
(A) identified in a report required by subsection
(a);
(B) a corporate officer of a foreign entity
identified in that report; or
(C) a principal shareholder with a controlling
interest in a foreign entity described in subparagraph
(A).
(c) Blocking of Property of Identified Persons.--The President
shall exercise all powers granted to the President by the International
Emergency Economic Powers Act (50 U.S.C. 1701 et seq.) to the extent
necessary to block and prohibit all transactions in all property and
interests in property of any person identified in a report required by
subsection (a) if such property and interests in property are in the
United States, come within the United States, or are or come within the
possession or control of a United States person.
(d) Wind-Down Period.--The President may not impose sanctions under
this section with respect to a person identified in the first report
submitted pursuant to subsection (a) if the President certifies in such
report that the person has, not later than 30 days after the date of
the enactment of this Act, engaged in good faith efforts to wind down
operations that would otherwise subject the person to the imposition of
sanctions under this section.
Subtitle D--General Provisions
SEC. 181. SANCTIONS DESCRIBED.
The sanctions described in this section to be imposed with respect
to a foreign person are the following:
(1) Blocking of property.--The President shall exercise all
of the powers granted to the President under the International
Emergency Economic Powers Act (50 U.S.C. 1701 et seq.) to the
extent necessary to block and prohibit all transactions in
property and interests in property of the foreign person if
such property and interests in property are in the United
States, come within the United States, or are or come within
the possession or control of a United States person.
(2) Ineligibility for visas, admission, or parole.--
(A) Visas, admission, or parole.--A foreign person
that is an alien is--
(i) inadmissible to the United States;
(ii) ineligible to receive a visa or other
documentation to enter the United States; and
(iii) otherwise ineligible to be admitted
or paroled into the United States or to receive
any other benefit under the Immigration and
Nationality Act (8 U.S.C. 1101 et seq.).
(B) Current visas revoked.--
(i) In general.--A foreign person that is
an alien is subject to revocation of any visa
or other entry documentation regardless of when
the visa or other entry documentation is or was
issued.
(ii) Immediate effect.--A revocation under
clause (i) shall take effect immediately and
automatically cancel any other valid visa or
entry documentation that is in the alien's
possession.
SEC. 182. EXCEPTIONS; WAIVERS.
(a) Exceptions.--
(1) Exception relating to importation of goods.--
(A) In general.--A requirement to block and
prohibit all transactions in all property and interests
in property under this title shall not include the
authority or a requirement to impose sanctions on the
importation of goods.
(B) Good.--In this paragraph, the term ``good''
means any article, natural or manmade substance,
material, supply, or manufactured product, including
inspection and test equipment, and excluding technical
data.
(2) Exception to comply with united nations headquarters
agreement and law enforcement activities.--Sanctions under this
title shall not apply with respect to the admission of an alien
to the United States if admitting or paroling the alien into
the United States is necessary--
(A) to permit the United States to comply with the
Agreement regarding the Headquarters of the United
Nations, signed at Lake Success June 26, 1947, and
entered into force November 21, 1947, between the
United Nations and the United States, or other
applicable international obligations of the United
States; or
(B) to carry out or assist authorized law
enforcement activity in the United States.
(3) Exception to comply with intelligence activities.--
Sanctions under this title shall not apply to any activity
subject to the reporting requirements under title V of the
National Security Act of 1947 (50 U.S.C. 3091 et seq.) or any
authorized intelligence activities of the United States.
(4) Humanitarian assistance.--
(A) In general.--Sanctions under this title shall
not apply to--
(i) the conduct or facilitation of a
transaction for the provision of agricultural
commodities, food, medicine, medical devices,
humanitarian assistance, or for humanitarian
purposes; or
(ii) transactions that are necessary for or
related to the activities described in clause
(i).
(B) Definitions.--In this paragraph:
(i) Agricultural commodity.--The term
``agricultural commodity'' has the meaning
given that term in section 102 of the
Agricultural Trade Act of 1978 (7 U.S.C. 5602).
(ii) Medical device.--The term ``medical
device'' has the meaning given the term
``device'' in section 201 of the Federal Food,
Drug, and Cosmetic Act (21 U.S.C. 321).
(iii) Medicine.--The term ``medicine'' has
the meaning given the term ``drug'' in section
201 of the Federal Food, Drug, and Cosmetic Act
(21 U.S.C. 321).
(5) Exception for safety of vessels and crew.--Sanctions
under this title shall not apply with respect to a person
providing provisions to a vessel otherwise subject to sanctions
under this title if such provisions are intended for the safety
and care of the crew aboard the vessel, the protection of human
life aboard the vessel, or the maintenance of the vessel to
avoid any environmental or other significant damage.
(6) Annual report.--Not later than 1 year after the date of
the enactment of this Act, and annually thereafter, the
President shall submit to the appropriate congressional
committees a report that describes each activity that would be
sanctionable under this title if not covered by an exception
under this subsection.
(b) Waiver.--
(1) In general.--The President may, on a case-by-case basis
and for periods not to exceed 180 days each, waive the
application of sanctions imposed with respect to a foreign
vessel or a foreign person under this title if the President
certifies to the appropriate congressional committees, not
later than 15 days after such waiver is to take effect, that
the waiver is in the national security interests of the United
States.
(2) Certification.--The President shall not be required to
impose sanctions under this title with respect to a foreign
person who has engaged in activity subject to sanctions under
this title if the President certifies in writing to the
appropriate congressional committees that the foreign person--
(A) is no longer engaging in such activities; or
(B) has taken and is continuing to take
significant, verifiable steps toward permanently
terminating such activities.
(c) Rule of Construction.--Nothing in this section shall be
construed to affect the availability of any existing authorities to
issue waivers, exceptions, exemptions, licenses, or other
authorization.
SEC. 183. IMPLEMENTATION.
(a) Implementation.--The President may exercise all authorities
under sections 203 and 205 of the International Emergency Economic
Powers Act (50 U.S.C. 1702 and 1704) for purposes of carrying out this
title.
(b) Penalties.--A person that violates, attempts to violate,
conspires to violate, or causes a violation of this title or any
regulation, license, or order issued to carry out this title shall be
subject to the penalties set forth in subsections (b) and (c) of
section 206 of the International Emergency Economic Powers Act (50
U.S.C. 1705) to the same extent as a person that commits an unlawful
act described in subsection (a) of that section.
(c) Regulations.--
(1) Deadline for regulations.--Not later than 180 days
after the date of the enactment of this Act, the President
shall prescribe such regulations as may be necessary for the
implementation of this title.
(2) Notification to congress.--Not later than 10 days
before the prescription of regulations under paragraph (1), the
President shall brief and provide written notification to the
appropriate congressional committees regarding--
(A) the proposed regulations; and
(B) the specific provisions of this title that the
regulations are implementing.
TITLE II--OTHER MATTERS
SEC. 201. DETERMINATION WITH RESPECT TO RUSSIAN MILITARY ACTIONS IN
SUPPORT OF RUSSIAN SHADOW FLEET.
(a) In General.--The President shall determine, at such times as
are required under subsection (b), whether--
(1) the Government of the Russian Federation, including
through any of its proxies, is engaged in or knowingly
supporting an escalation of military measures in the Gulf of
Finland, the Baltic Sea, or the Straits of Denmark, including
to deter members of the North Atlantic Treaty Organization from
inspecting vessels transporting Russian-origin petroleum
products or posing a threat to undersea infrastructure to
ensure such vessels are adhering to accepted maritime
standards; and
(2) if the President makes a positive determination under
paragraph (1), whether that escalation--
(A) has the aim or effect of undermining sanctions
enforcement; or
(B) increases the risk of an incident at sea,
including damage to undersea cable infrastructure.
(b) Timing of Determinations.--The President shall make the
determination described in subsection (a)--
(1) not later than 15 days after the date of the enactment
of this Act;
(2) after the first determination under paragraph (1), not
less frequently than every 30 days (or more frequently as
warranted) during the 1-year period beginning on such date of
enactment; and
(3) after the end of that 1-year period, not less
frequently than every 90 days.
(c) Report Required.--Upon making a determination under subsection
(a), the President shall submit a report on the determination to--
(1) the committees specified in subsection (d);
(2) the majority leader and the minority leader of the
Senate; and
(3) the Speaker and the minority leader of the House of
Representatives.
(d) Committees Specified.--The committees specified in this
subsection are--
(1) the Committee on Foreign Relations, the Committee on
Armed Services, and the Select Committee on Intelligence of the
Senate; and
(2) the Committee on Foreign Affairs, the Committee on
Armed Services, and the Permanent Select Committee on
Intelligence of the House of Representatives.
SEC. 202. RESOURCES FOR SANCTIONS IMPLEMENTATION AT THE DEPARTMENT OF
STATE.
(a) Sense of Congress.--It is the sense of Congress that sanctions
are a vital foreign policy and national security tool, and as such, it
is critical that the Department of State and other agencies with
responsibilities relating to sanctions across the executive branch--
(1) are fully staffed, including through the prompt
confirmation by the Senate of a qualified head of the Office of
Sanctions Coordination of the Department of State; and
(2) have the resources and infrastructure necessary for the
successful development and implementation of sanctions.
(b) Increasing Resources and Improving Modernization for Sanctions
Implementation.--The head of the Office of Sanctions Coordination shall
take steps to modernize the sanctions infrastructure and increase
resources dedicated to implementing sanctions, including by--
(1) ensuring the Department of State has necessary
subscriptions and access to open-source databases for purposes
of making determinations to support the designation of persons
for the imposition of sanctions;
(2) equipping bureaus involved in drafting and reviewing
evidentiary packages to support such designations with
sufficient technical resources to do so, including an adequate
number of workstations that can be used to review classified
information; and
(3) increasing the number of personnel dedicated to making
and reviewing such designations.
(c) Report on Modernization Efforts.--Not later than 180 days after
the date of the enactment of this Act, the head of the Office of
Sanctions Coordination shall submit to the Committee on Foreign
Relations of the Senate and the Committee on Foreign Affairs of the
House of Representatives a report describing steps the Department of
State is taking to address challenges in the ability of the Department
to support the designation of persons for the imposition of sanctions.
(d) Authorizations of Appropriation.--
(1) Office of sanctions coordination.--There is authorized
to be appropriated to the Office of Sanctions Coordination for
each of fiscal years 2026 and 2027 $15,000,000 to carry out
this section.
(2) Office of foreign assets control.--There is authorized
to be appropriated to the Office of Foreign Assets Control of
the Department of the Treasury for each of fiscal years 2026
and 2027 $15,000,000 to carry out this section.
SEC. 203. MODIFICATION OF LIMITATION ON MILITARY COOPERATION BETWEEN
THE UNITED STATES AND THE RUSSIAN FEDERATION.
Section 1232 of the National Defense Authorization Act for Fiscal
Year 2017 (Public Law 114-328; 130 Stat. 2488) is amended--
(1) by striking subsections (c) and (d); and
(2) by redesignating subsections (e) and (f) as subsections
(c) and (d), respectively.
SEC. 204. EMERGENCY APPROPRIATIONS FOR THE COUNTERING RUSSIAN INFLUENCE
FUND.
(a) Emergency Appropriations.--
(1) Authorization of appropriation.--There is authorized to
be appropriated, out of any money in the Treasury not otherwise
appropriated, $200,000,000 to the Secretary of State for fiscal
years 2026 and 2027 for the Countering Russian Influence Fund
to provide additional support to Ukraine and allies of the
United States in Central and Eastern Europe in the wake of
aggression by the Russian Federation, including assistance
combating Russian Federation information operations, sabotage
activities, cyber threats, and security threats.
(2) Emergency designation.--
(A) In general.--The amounts provided under
paragraph (1) are designated as an emergency
requirement pursuant to section 4(g) of the Statutory
Pay-As-You-Go Act of 2010 (2 U.S.C. 933(g)).
(B) Designation in the senate and the house of
representatives.--This subsection is designated as an
emergency requirement pursuant to subsections (a) and
(b) of section 4001 of S. Con. Res. 14 (117th
Congress), the concurrent resolution on the budget for
fiscal year 2022.
(b) Report Required.--
(1) In general.--Not later than 90 days after the date of
the enactment of this Act, and every 180 days thereafter, the
Secretary of State shall submit to the appropriate committees
of Congress a report that contains a description of the
activities carried out pursuant to this section.
(2) Form.--The strategy required by paragraph (1) shall be
submitted in unclassified form, but may include a classified
annex if necessary.
(c) Appropriate Committees of Congress Defined.--In this section,
the term ``appropriate committees of Congress'' means--
(1) the Committee on Foreign Relations and the Committee on
Appropriations of the Senate; and
(2) the Committee on Foreign Affairs and the Committee on
Appropriations of the House of Representatives.
SEC. 205. REPORT ON PRESIDENTIAL DRAWDOWN AUTHORITY AND UKRAINE
SECURITY ASSISTANCE INITIATIVE.
(a) In General.--Not later than 30 days after the date of the
enactment of this Act, and every 30 days thereafter, the Secretary of
State and the Secretary of Defense shall jointly submit to the
appropriate committees of Congress a report that includes--
(1) the status of remaining amounts available for Ukraine
under the Presidential drawdown authority provided in the
Additional Ukraine Supplemental Appropriations Act, 2022
(Public Law 117-128; 136 Stat. 1211) and the Ukraine Security
Supplemental Appropriations Act (Public Law 118-50; 138 Stat.
905);
(2) a description of all defense articles and services
provided to Ukraine under Presidential drawdown authority,
Foreign Military Financing, and the Ukraine Security Assistance
Initiative under section 1250 of the National Defense
Authorization Act for Fiscal Year 2016 (Public Law 114-92; 129
Stat. 1068); and
(3) a description of the readiness requirements,
valuations, and replenishment calculations used to determine
the availability of inventory to transfer to Ukraine.
(b) Appropriate Committees of Congress Defined.--In this section,
the term ``appropriate committees of Congress'' means--
(1) the Committee on Foreign Relations, the Committee on
Armed Services, and the Committee on Appropriations of the
Senate; and
(2) the Committees on Foreign Affairs, the Committee on
Armed Services, and the Committee on Appropriations of the
House of Representatives.
SEC. 206. SUPPORT FOR UKRAINE ARMS SALES.
For any letter of offer to sell or license to export defense
articles or defense services to Ukraine that would require a numbered
certification to Congress required by section 36 of the Arms Export
Control Act (22 U.S.C. 2776), the President shall not offer such letter
of offer or issue such license until 15 days have elapsed from the time
such numbered certification is provided to Congress, notwithstanding
the requirements of such section for 30 days, and any joint resolution
of disapproval shall be eligible for a motion to discharge from the
Committee on Foreign Relations of the Senate 5 days after introduction.
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