April 1 (legislative day, March 31), 2025
Mr. Graham (for himself, Mr. Blumenthal, Mr. Sullivan, Mr. Durbin, Mrs. Britt, Mr. Whitehouse, Mr. Young, Mr. King, Mr. Ricketts, Mr. Kaine, Mr. Cramer, Ms. Klobuchar, Mr. Curtis, Mr. Schatz, Mr. Cotton, Ms. Hassan, Mrs. Fischer, Ms. Alsobrooks, Ms. Ernst, Ms. Hirono, Mr. Wicker, Mrs. Shaheen, Mr. Tillis, Mr. Welch, Mr. Mullin, Mr. Coons, Mr. Sheehy, Mrs. Gillibrand, Ms. Murkowski, Mr. Kelly, Mr. Husted, Ms. Slotkin, Mr. Grassley, Mr. Hickenlooper, Mr. Cornyn, Mr. Bennet, Mrs. Capito, Mr. Gallego, Mr. Hoeven, Mr. Fetterman, Mr. Boozman, Mr. Van Hollen, Mr. Lankford, Mr. Heinrich, Mr. Scott of Florida, Mr. Schiff, Mr. Justice, Ms. Warren, Mr. Daines, Mr. Reed, Mr. Kennedy, and Mr. Barrasso) introduced the following bill; which was read twice and referred to the Committee on Banking, Housing, and Urban Affairs
To impose sanctions and other measures with respect to the Russian Federation if the Government of the Russian Federation refuses to negotiate a peace agreement with Ukraine, violates any such agreement, or initiates another military invasion of Ukraine, and for other purposes.
Section 1. Short title; table of contents
(a) Short title
This Act may be cited as the Sanctioning Russia Act of 2025
.
(b) Table of contents
The table of contents for this Act is as follows:
Sec. 2. Sense of Congress
It is the sense of Congress that—
(1)
if the Government of the Russian Federation is refusing to engage in good faith negotiations for a lasting peace with Ukraine, the Russian Federation should be subject to maximum sanctions as allowed under United States law; and
(2)
in order to prevent another military invasion or act that undermines the sovereignty of Ukraine following a negotiated peace, it should be the policy of the United States to provide sustainable levels of security assistance to Ukraine to provide a credible defensive and deterrent capability.
Sec. 3. Definitions
In this Act:
(1) Account; correspondent account; payable-through account
The terms account, correspondent account, and payable-through account have the meanings given those terms in section 5318A of title 31, United States Code.
(2) Admission; admitted; alien
The terms admission, admitted, and alien have the meanings given those terms in section 101 of the Immigration and Nationality Act (8 U.S.C. 1101).
(3) Armed Forces of the Russian Federation
The term Armed Forces of the Russian Federation includes—
(A)
the Aerospace Forces of the Russian Federation;
(B)
the Airborne Forces of the Russian Federation;
(C)
the Ground Forces of the Russian Federation;
(D)
the Navy of the Russian Federation;
(E)
the Special Operations Command of the Russian Federation;
(F)
the Strategic Rocket Forces of the Russian Federation;
(G)
the General Staff of the Armed Forces of the Russian Federation;
(H)
the Main Directorate of the General Staff of the Armed Forces of the Russian Federation; and
(I)
any successor entities or proxies of the entities described in subparagraphs (A) through (H).
(4) Covered determination
The term covered determination means a determination by the President as described in section 4.
(5) Critical infrastructure
(A) In general
The term critical infrastructure, with respect to Ukraine, means systems and assets, whether physical or virtual, so vital to Ukraine that the incapacity or destruction of such systems and assets would have catastrophic regional or national effects on public health or safety, economic security, or national security.
(B) Included sectors
The term critical infrastructure includes assets in the following sectors:
(i)
Biotechnology.
(ii)
Chemical.
(iii)
Commercial facilities.
(iv)
Communications.
(v)
Critical manufacturing.
(vi)
Dams.
(vii)
Defense industrial base.
(viii)
Emergency services.
(ix)
Energy.
(x)
Financial services.
(xi)
Food and agriculture.
(xii)
Government facilities.
(xiii)
Healthcare and public health.
(xiv)
Information technology.
(xv)
Materials and waste.
(xvi)
Nuclear reactors.
(xvii)
Space.
(xviii)
Transportation systems.
(xix)
Water and wastewater systems.
(6) Financial institution
The term financial institution means a financial institution specified in subparagraph (A), (B), (C), (D), (E), (F), (G), (H), (I), (J), (M), or (Y) of section 5312(a)(2) of title 31, United States Code.
(7) Foreign person
The term foreign person means an individual or entity that is not a United States person.
(8) Knowingly; knows
The terms knowingly and knows, with respect to conduct, a circumstance, or a result, means that a person had actual knowledge, or should have known, of the conduct, the circumstance, or the result.
(9) Military invasion
The term military invasion includes—
(A)
a ground operation or assault;
(B)
an amphibious landing or assault;
(C)
an airborne operation or air assault;
(D)
an aerial bombardment or blockade;
(E)
missile attacks, including rockets, ballistic missiles, cruise missiles, and hypersonic missiles;
(F)
a naval bombardment or armed blockade;
(G)
a cyber attack; and
(H)
an attack by a country on any territory controlled or administered by any other independent, sovereign country, including offshore islands controlled or administered by that country.
(10) 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; or
(B)
an entity organized under the laws of the United States or any jurisdiction within the United States, including a foreign branch of such an entity.
Sec. 4. Covered determination
(a) In general
Not later than 15 days after the date of the enactment of this Act, and every 90 days thereafter, the President shall determine if any of the following actors has engaged, is engaging, or is planning to engage in an act described in subsection (b):
(1)
The Government of the Russian Federation.
(2)
Any proxy of the Government of the Russian Federation.
(3)
Any individual or entity controlled by or acting at the direction of the Government of the Russian Federation.
(4)
Any person described in section 5 or 6.
(b) Acts described
An act described in this subsection is any of the following:
(1)
Refusing to negotiate a peace agreement with Ukraine.
(2)
Violating any negotiated peace agreement.
(3)
Initiating another military invasion of Ukraine.
(4)
Overthrowing, dismantling, or seeking to subvert the Government of Ukraine.
Sec. 5. Imposition of sanctions on certain persons affiliated with or supporting the Government of the Russian Federation
(a) In general
Not later than 15 days after making a covered determination, and every 90 days thereafter, the President shall—
(1)
impose the sanctions described in subsection (c) with respect to the persons described in subsection (b); and
(2)
prohibit any United States person from engaging in any transaction with a person described in subsection (b).
(b) Persons described
The persons described in this subsection are the following:
(1)
The following officials of the Government of the Russian Federation:
(A)
The President of the Russian Federation.
(B)
The Prime Minister of the Russian Federation.
(C)
The Minister of Defense of the Russian Federation.
(D)
The Chief of the General Staff of the Armed Forces of the Russian Federation.
(E)
The Deputy Ministers of Defense of the Russian Federation.
(F)
The Commander-in-Chief of the Land Forces of the Russian Federation.
(G)
The Commander-in-Chief of the Aerospace Forces of the Russian Federation.
(H)
The Commander of the Airborne Forces of the Russian Federation.
(I)
The Commander-in-Chief of the Navy of the Russian Federation.
(J)
The Commander of the Strategic Rocket Forces of the Russian Federation.
(K)
The Commander of the Special Operations Forces of the Russian Federation.
(L)
The Commander of Logistical Support of the Armed Forces of the Russian Federation.
(M)
The commanders of the Russian Federation military districts.
(N)
The Minister of Foreign Affairs of the Russian Federation.
(O)
The Minister of Transport of the Russian Federation.
(P)
The Minister of Finance of the Russian Federation.
(Q)
The Minister of Industry and Trade of the Russian Federation.
(R)
The Minister of Energy of the Russian Federation.
(S)
The Minister of Agriculture of the Russian Federation.
(T)
The Director of the Foreign Intelligence Service of the Russian Federation.
(U)
The Director of the Federal Security Service of the Russian Federation.
(V)
The Director of the Main Directorate of the General Staff of the Armed Forces of the Russian Federation.
(W)
The Director of the National Guard of the Russian Federation.
(X)
The Federal Guard Service of the Russian Federation.
(2)
Any foreign person that—
(A)
knowingly sells, supplies, transfers, markets, or provides defense articles, equipment, goods, services, technology, or materials to the Armed Forces of the Russian Federation;
(B)
knowingly conducts a transaction with the Armed Forces of the Russian Federation;
(C)
has engaged in or attempted to engage in activities that—
(i)
materially undermine the military readiness of Ukraine;
(ii)
seek to overthrow, dismantle, or subvert the Government of Ukraine;
(iii)
debilitate the critical infrastructure of Ukraine;
(iv)
debilitate cybersecurity systems through malicious electronic attacks or cyberattacks on Ukraine;
(v)
undermine the democratic processes of Ukraine; or
(vi)
involve committing serious human rights abuses against citizens of Ukraine, including forceful transfers, enforced disappearances, unjust detainment, or torture;
(D)
operates or has operated in the energy, commodities, telecommunications, banking, industrial, transportation, or manufacturing sectors of the economy of the Russian Federation;
(E)
is an oligarch (as defined and identified by the President);
(F)
is responsible for or complicit in, or has directly or indirectly engaged or attempted to engage in, for or on behalf of, or for the benefit of, directly or indirectly, the Government of the Russian Federation—
(i)
transnational corruption, bribery, extortion, or money laundering;
(ii)
assassination, murder, or other unlawful killing of, or infliction of other bodily harm against, a United States person or a citizen or national of an ally or partner of the United States;
(iii)
activities that undermine the peace, security, political stability, or territorial integrity of the United States or an ally or partner of the United States; or
(iv)
deceptive or structured transactions or dealings to circumvent the application of any sanctions imposed by the United States, including through the use of digital currencies or assets or the use of physical assets.
(3)
Any person or agent of any person described in paragraph (1) or (2) if the sanctioned person transferred property or an interest in property to the person—
(A)
after the date on which the President imposed sanctions with respect to the sanctioned person; or
(B)
before that date, if the sanctioned person did so in an attempt to evade the imposition of sanctions.
(c) Sanctions described
The sanctions described in this subsection to be imposed with respect to a person described in subsection (b) are the following:
(1) Blocking of property
(A) In general
The President shall exercise all of the powers granted by the International Emergency Economic Powers Act (50 U.S.C. 1701 et seq.) to block and prohibit all transactions in all property and interests in property of the 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.
(B) Inapplicability of national emergency requirement
The requirements of section 202 of the International Emergency Economic Powers Act (50 U.S.C. 1701) shall not apply for purposes of this section.
(2) Ineligibility for visas, admission, or parole
(A) Visas, admission, or parole
An alien described in subsection (b) 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 subsection (b) 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.
Sec. 6. Imposition of sanctions with respect to financial institutions affiliated with the Government of the Russian Federation
(a) In general
Not later than 15 days after making a covered determination, and every 90 days thereafter, the Secretary of the Treasury shall—
(1)
impose the sanctions described in subsection (b) with respect to—
(A)
the Central Bank of the Russian Federation (Bank of Russia);
(B)
Sberbank;
(C)
VTB Bank;
(D)
Gazprombank;
(E)
any other financial institution organized under the laws of the Russian Federation and owned in whole or part by the Government of the Russian Federation;
(F)
any subsidiary of, or successor entity to, any of the financial institutions described in subparagraphs (A) through (E); and
(G)
any financial institution that engages in transactions with any of the financial institutions described in subparagraphs (A) through (F);
(2)
impose the sanctions described in section 5(c) with respect to any directors of, officers of, officials of, and shareholders with an interest in, a financial institution described in paragraph (1); and
(3)
prohibit any United States person from engaging in any transaction with a financial institution described in paragraph (1).
(b) Sanctions described
The sanctions described in this subsection to be imposed with respect to a financial institution described in subsection (a)(1) are the following:
(1) Blocking of property
(A) In general
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 financial institution 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.
(B) Inapplicability of national emergency requirement
The requirements of section 202 of the International Emergency Economic Powers Act (50 U.S.C. 1701) shall not apply for purposes of this section.
(2) Restrictions on correspondent and payable-through accounts
The President shall prohibit the opening, and prohibit or impose strict conditions on the maintaining, in the United States, of a correspondent account or payable-through account by the financial institution.
Sec. 7. Imposition of sanctions with respect to other entities owned by or affiliated with the Government of the Russian Federation
(a) In general
Not later than 15 days after making a covered determination, and every 90 days thereafter, the Secretary of the Treasury shall impose the sanctions described in subsection (b) with respect to any entity that—
(1)
the Government of the Russian Federation has an ownership interest in; or
(2)
is otherwise affiliated with the Government of the Russian Federation.
(b) Blocking of property
(1) In general
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 an entity described in 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.
(2) Inapplicability of national emergency requirement
The requirements of section 202 of the International Emergency Economic Powers Act (50 U.S.C. 1701) shall not apply for purposes of this section.
Sec. 8. Prohibition on transfers of funds involving the Russian Federation
(a) In general
Except as provided by subsection (b), not later than 15 days after a covered determination is made, a depository institution (as defined in section 19(b)(1)(A) of the Federal Reserve Act (12 U.S.C. 461(b)(1)(A))) or a broker or dealer in securities registered with the Securities and Exchange Commission under the Securities Exchange Act of 1934 (15 U.S.C. 78a et seq.) may not process transfers of funds—
(1)
to or from the Russian Federation; or
(2)
for the direct or indirect benefit of officials of the Government of the Russian Federation.
(b) Exception
A depository institution, broker, or dealer described in subsection (a) may process a transfer described in that subsection if the transfer—
(1)
arises from, and is ordinarily incident and necessary to give effect to, an underlying transaction that is authorized by a specific or general license; and
(2)
does not involve debiting or crediting an account affiliated with the Russian Federation or held by a Russian person.
(c) Russian person defined
In this section, the term Russian person means—
(1)
a citizen or national of the Russian Federation; or
(2)
an entity organized under the laws of the Russian Federation or otherwise subject to the jurisdiction of the Government of the Russian Federation.
Sec. 9. Prohibition on listing or trading of Russian entities on United States securities exchanges
(a) In general
Not later than 15 days after a covered determination is made, the Securities and Exchange Commission shall prohibit the securities of an issuer described in subsection (b) from being traded on a national securities exchange.
(b) Issuers
An issuer described in this subsection is an issuer that is—
(1)
an official of or individual affiliated with the Government of the Russian Federation; or
(2)
an entity that—
(A)
the Government of the Russian Federation has an ownership interest in; or
(B)
is otherwise affiliated with the Government of the Russian Federation.
(c) Definitions
In this section:
(1) Issuer; security
The terms issuer and security have the meanings given those terms in section 3(a) of the Securities Exchange Act of 1934 (15 U.S.C. 78c(a)).
(2) National securities exchange
The term national securities exchange means an exchange registered as a national securities exchange in accordance with section 6 of the Securities Exchange Act of 1934 (15 U.S.C. 78f).
Sec. 10. Prohibition on investments by United States financial institutions that benefit the Government of the Russian Federation
(a) In general
Not later than 15 days after a covered determination is made, the Secretary of the Treasury shall prohibit any United States financial institution from making any investment described in subsection (b).
(b) Investments described
An investment described in this subsection is a monetary investment in or to—
(1)
an entity owned or controlled by the Government of the Russian Federation; or
(2)
the Armed Forces of the Russian Federation.
(c) United states financial institution defined
In this section, the term United States financial institution—
(1)
means any financial institution that is a United States person; and
(2)
includes an investment company, private equity company, venture capital company, or hedge fund that is a United States person.
Sec. 11. Prohibition on energy exports to, and investments in energy sector of, the Russian Federation
(a) Prohibition on exports
(1) In general
Not later than 15 days after a covered determination is made, the Secretary of Commerce shall prohibit, under the Export Control Reform Act of 2018 (50 U.S.C. 4801 et seq.), the export, reexport, or in-country transfer to or in the Russian Federation of any energy or energy product produced in the United States.
(2) Definitions
In this subsection, the terms export, in-country transfer, and reexport have the meanings given those terms in section 1742 of the Export Control Reform Act of 2018 (50 U.S.C. 4801).
(b) Prohibition on investments
On and after the date on which a covered determination is made, a United States person may not make an investment in the energy sector of the Russian Federation.
(c) Sanctions
The President shall—
(1)
impose the sanctions described in section 5(c) with respect to any foreign person that the President determines knowingly sells, supplies, transfers, markets, or provides goods, services, technology, information, or other support that facilitates the maintenance or expansion of the production of oil, uranium, natural gas, petroleum, petroleum products, or petrochemical products for use by any person subject to sanctions under section 5 or 6; and
(2)
prohibit any United States person from engaging in any transaction with a person described in paragraph (1).
Sec. 12. Prohibition on purchases of sovereign debt of the Russian Federation by United States persons
On and after the date that is 15 days after a covered determination is made, the purchase of sovereign debt of the Government of the Russian Federation by any United States person is prohibited.
Sec. 13. Prohibition on provision of services to sanctioned financial institutions by international financial messaging systems
Not later than 15 days after making a covered determination, and every 90 days thereafter, the President shall impose sanctions pursuant to the International Emergency Economic Powers Act (50 U.S.C. 1701 et seq.) with respect to—
(1)
any global financial communications services provider that does not terminate the provision of financial communications services to, and the enabling and facilitation of access to such services for, any financial institution subject to sanctions under section 6 or any other provision of this Act; and
(2)
the directors of, officers of, and shareholders with a interest in, the provider.
Sec. 14. Prohibition on importing, and sanctions with respect to, uranium from the Russian Federation
(a) Prohibition
Not later than 15 days after making a covered determination, the President shall prohibit the importation of uranium from—
(1)
the Russian Federation, including the importation of any uranium from Rosatom State Corporation or any subsidiary or successor entity; and
(2)
any country that has uranium that was originally sourced from the Russian Federation, Rosatom State Corporation, or any subsidiary or successor entity.
(b) Sanctions
Not later than 15 days after making a covered determination, and every 90 days thereafter, the President shall impose sanctions described in section 5(c) with respect to—
(1)
any directors of, officers of, and shareholders with an interest in, Rosatom State Corporation or any subsidiary or successor entity; and
(2)
any foreign government or foreign person that has knowingly sold, supplied, transferred, or purchased uranium originally sourced from the Russian Federation, Rosatom State Corporation, or any subsidiary or successor entity.
Sec. 15. Increases in duties on goods and services imported from the Russian Federation
(a) In general
Not later than 15 days after making a covered determination, the President shall, notwithstanding any other provision of law, increase the rate of duty for all goods and services, including oil, natural gas, petroleum, petroleum products, and petrochemical products, imported into the United States from the Russian Federation to a rate of not less than the equivalent of 500 percent ad valorem.
(b) Recommendations for higher rate
The United States Trade Representative, in consultation with the Secretary of the Treasury, the Secretary of Commerce, and the heads of other relevant Federal agencies, shall provide recommendations to the President with respect to goods and services described in subsection (a) that should be subject to a rate of duty that exceeds the equivalent of 500 percent ad valorem.
(c) Duty rate in addition to antidumping and countervailing duties
The rate of duty required under subsection (a) with respect to a good or service described in that subsection shall be in addition to any antidumping or countervailing duty applicable with respect to the good or service under title VII of the Tariff Act of 1930 (19 U.S.C. 1671 et seq.).
Sec. 16. Imposition of CAATSA sanctions
Not later than 15 days after making a covered determination, and every 90 days thereafter, the President shall impose all sanctions described in section 235 of the Countering America’s Adversaries Through Sanctions Act (22 U.S.C. 9529) that are not already applicable with respect to—
(1)
the Russian Federation; and
(2)
any person described in section 5 or 6.
Sec. 17. Duties on countries that purchase Russian-origin oil, uranium, and petroleum products
(a) In general
Not later than 15 days after making a covered determination, and every 90 days thereafter, the President shall, notwithstanding any other provision of law, increase the rate of duty for all goods or services imported into the United States from a country described in subsection (b) to a rate of not less than the equivalent of 500 percent ad valorem.
(b) Countries described
A country is described in this subsection if the country knowingly sells, supplies, transfers, or purchases oil, uranium, natural gas, petroleum products, or petrochemical products that originated in the Russian Federation.
(c) Duty rate in addition to antidumping and countervailing duties
The rate of duty required under subsection (a) with respect to a good or service described in that subsection shall be in addition to any antidumping or countervailing duty applicable with respect to the good or service under title VII of the Tariff Act of 1930 (19 U.S.C. 1671 et seq.).
(d) Waiver
(1) In general
The President may waive the application of subsection (a) one time for a period of not more than 180 days with respect to a country, a good, or a service if the President determines that such a waiver is in the national security interests of the United States.
(2) Prohibition on waivers for certain countries
The President may not waive the application of subsection (a) with respect to—
(A)
a country the government of which the Secretary of State has determined has repeatedly provided support for acts of international terrorism (commonly referred to as a state sponsor of terrorism
), for purposes of—
(i)
section 1754(c)(1)(A)(i) of the Export Control Reform Act of 2018 (50 U.S.C. 4813(c)(1)(A)(i));
(ii)
section 620A of the Foreign Assistance Act of 1961 (22 U.S.C. 2371);
(iii)
section 40(d) of the Arms Export Control Act (22 U.S.C. 2780(d)); or
(iv)
any other provision of law; or
(B)
a country specified in section 4872(f)(2) of title 10, United States Code.
Sec. 18. Exceptions
(a) Support for people of the Russian Federation
This Act shall not apply with respect to the provision of humanitarian assistance (including medical assistance) to the people of the Russian Federation.
(b) Exception for intelligence activities
This Act shall not apply with respect to activities 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.
(c) Exception To comply with international obligations
Sanctions under this Act shall not apply to the admission of an alien if the admission of that alien is necessary to comply with United States obligations under the Agreement between the United Nations and the United States of America regarding the Headquarters of the United Nations, signed at Lake Success June 26, 1947, and entered into force November 21, 1947, under the Convention on Consular Relations, done at Vienna April 24, 1963, and entered into force March 19, 1967, or under other international agreements.
Sec. 19. Implementation; penalties
(a) Implementation
The President may exercise all authorities provided under sections 203 and 205 of the International Emergency Economic Powers Act (50 U.S.C. 1702 and 1704) to carry out this Act.
(b) Penalties
A person that violates, attempts to violate, conspires to violate, or causes a violation of this Act or any regulation, license, or order issued to carry out this Act 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.
Sec. 20. Termination authority; reimposition of sanctions
(a) In general
The President may terminate the application of sanctions, prohibitions, restrictions, duties, and penalties under this Act if the President certifies to Congress that—
(1)
all actors described in subsection (a) of section 4 have verifiably ceased engaging in acts described in subsection (b) of that section; and
(2)
the Government of the Russian Federation has entered into a peace agreement with Ukraine.
(b) Reimposition
If, after the submission of a certification described in subsection (a), an actor described in subsection (a) of section 4 engages in an act described in subsection (b) of that section, the President shall immediately reimpose all previously terminated sanctions, prohibitions, restrictions, duties, and penalties imposed under this Act, in addition to new sanctions, prohibitions, restrictions, duties, and penalties under this Act.