[Congressional Bills 119th Congress]
[From the U.S. Government Publishing Office]
[S. 2904 Reported in Senate (RS)]
<DOC>
Calendar No. 326
119th CONGRESS
2d 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, Mr. Kaine, Mr. Wicker,
Mr. Curtis, Ms. Duckworth, Mr. Cornyn, and Mr. Gallego) introduced the
following bill; which was read twice and referred to the Committee on
Foreign Relations
February 10, 2026
Reported by Mr. Risch, with an amendment
[Strike out all after the enacting clause and insert the part printed
in italic]
_______________________________________________________________________
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,
<DELETED>SECTION 1. SHORT TITLE; TABLE OF CONTENTS.</DELETED>
<DELETED> (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''.</DELETED>
<DELETED> (b) Table of Contents.--The table of contents for this Act
is as follows:</DELETED>
<DELETED>Sec. 1. Short title; table of contents.
<DELETED>TITLE I--SANCTIONS WITH RESPECT TO THE RUSSIAN FEDERATION
<DELETED>Sec. 101. Definitions.
<DELETED>Subtitle A--Sanctions With Respect to Russian Shadow Fleet
<DELETED>PART I--Imposition of Sanctions
<DELETED>Sec. 111. Imposition of sanctions with respect to vessels
suspected of participation in or support of
the Russian shadow fleet.
<DELETED>Sec. 112. Imposition of sanctions with respect to foreign
persons that support Russian illicit
shipping with vessels subject to United
States sanctions.
<DELETED>Sec. 113. Imposition of sanctions with respect to port
terminals accepting oil from Russian shadow
fleet vessels.
<DELETED>PART II--Disclosures, Publications, and Reports
<DELETED>Sec. 121. Alignment of designation authorities with European
Union and United Kingdom regarding Russian
shadow fleet.
<DELETED>Sec. 122. Support of efforts of the Joint Expeditionary Force.
<DELETED>Sec. 123. Database of vessels involved in sabotage and other
illicit activities.
<DELETED>Sec. 124. Report on specific licenses granted under Executive
Order 14024.
<DELETED>PART III--Flag States Requirements and Strategy
<DELETED>Sec. 131. Minimum standards for operating as a flag state
registry and assessment of efforts to
prevent the circumvention of sanctions and
other crimes.
<DELETED>Sec. 132. Strategy for countries that do not make sufficient
efforts to comply with minimum standards
for operating as a flag state.
<DELETED>PART IV--Denying Access to United States Markets for Russian-
Origin Oil
<DELETED>Sec. 141. International efforts to enforce price cap on oil
exports from the Russian Federation.
<DELETED>Sec. 142. Report on crude oil price cap.
<DELETED>PART V--Other Matters
<DELETED>Sec. 151. International efforts to identify vessels
transporting Russian-origin oil.
<DELETED>Subtitle B--Sanctions With Respect to Russian-Origin Energy
Products
<DELETED>Sec. 161. Imposition of sanctions with respect to persons with
certain interests in Russian energy
projects.
<DELETED>Sec. 162. Modifications of Protecting Europe's Energy Security
Act of 2019.
<DELETED>Sec. 163. Report on exports of Russian-origin petroleum
products.
<DELETED>Sec. 164. Strategy to counter role of the People's Republic of
China in evasion of sanctions with respect
to Russian-origin petroleum products.
<DELETED>Subtitle C--Sanctions With Respect to Russian Defense
Industrial Base
<DELETED>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.
<DELETED>Subtitle D--General Provisions
<DELETED>Sec. 181. Sanctions described.
<DELETED>Sec. 182. Exceptions; waivers.
<DELETED>Sec. 183. Implementation.
<DELETED>TITLE II--OTHER MATTERS
<DELETED>Sec. 201. Determination with respect to Russian military
actions in support of Russian shadow fleet.
<DELETED>Sec. 202. Resources for sanctions implementation at the
Department of State.
<DELETED>Sec. 203. Modification of limitation on military cooperation
between the United States and the Russian
Federation.
<DELETED>Sec. 204. Emergency appropriations for the Countering Russian
Influence Fund.
<DELETED>Sec. 205. Report on presidential drawdown authority and
Ukraine Security Assistance Initiative.
<DELETED>Sec. 206. Support for Ukraine arms sales.
<DELETED>TITLE I--SANCTIONS WITH RESPECT TO THE RUSSIAN
FEDERATION</DELETED>
<DELETED>SEC. 101. DEFINITIONS.</DELETED>
<DELETED> In this title:</DELETED>
<DELETED> (1) Adequate maritime insurance.--The term
``adequate maritime insurance''--</DELETED>
<DELETED> (A) means verified documentation
evidencing protection and indemnity insurance with
audited financial statements of the insurer;
and</DELETED>
<DELETED> (B) does not include insurance provided
by--</DELETED>
<DELETED> (i) an insurer organized under the
laws of the Russian Federation; or</DELETED>
<DELETED> (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.</DELETED>
<DELETED> (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).</DELETED>
<DELETED> (3) Appropriate congressional committees.--The
term ``appropriate congressional committees'' means--</DELETED>
<DELETED> (A) the Committee on Foreign Relations and
the Committee on Banking, Housing, and Urban Affairs of
the Senate; and</DELETED>
<DELETED> (B) the Committee on Foreign Affairs and
the Committee on Financial Services of the House of
Representatives.</DELETED>
<DELETED> (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--</DELETED>
<DELETED> (A) exercises substantial control over the
vessel; or</DELETED>
<DELETED> (B) owns not less than 25 percent of the
vessel.</DELETED>
<DELETED> (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.</DELETED>
<DELETED> (6) Foreign person.--The term ``foreign person''
means an individual or entity that is not a United States
person.</DELETED>
<DELETED> (7) Foreign vessel.--The term ``foreign vessel''
means a vessel that is not owned or operated by a United States
person.</DELETED>
<DELETED> (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.</DELETED>
<DELETED> (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.</DELETED>
<DELETED> (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''.</DELETED>
<DELETED> (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.</DELETED>
<DELETED> (12) Russian person.--The term ``Russian person''
means--</DELETED>
<DELETED> (A) a citizen or national of the Russian
Federation; or</DELETED>
<DELETED> (B) an entity organized under the laws of
the Russian Federation or otherwise subject to the
jurisdiction of the Government of the Russian
Federation.</DELETED>
<DELETED> (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.</DELETED>
<DELETED> (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.</DELETED>
<DELETED> (15) United states person.--The term ``United
States person'' means--</DELETED>
<DELETED> (A) a United States citizen or an alien
lawfully admitted for permanent residence to the United
States;</DELETED>
<DELETED> (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</DELETED>
<DELETED> (C) a person in the United
States.</DELETED>
<DELETED>Subtitle A--Sanctions With Respect to Russian Shadow
Fleet</DELETED>
<DELETED>PART I--IMPOSITION OF SANCTIONS</DELETED>
<DELETED>SEC. 111. IMPOSITION OF SANCTIONS WITH RESPECT TO VESSELS
SUSPECTED OF PARTICIPATION IN OR SUPPORT OF THE RUSSIAN
SHADOW FLEET.</DELETED>
<DELETED> (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--</DELETED>
<DELETED> (1) any foreign vessel the owner or operator of
which knowingly--</DELETED>
<DELETED> (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;</DELETED>
<DELETED> (B) lacks adequate maritime insurance for
the transport of goods described in subparagraph (A);
or</DELETED>
<DELETED> (C) evades compliance with the crude oil
price cap; and</DELETED>
<DELETED> (2) any foreign person that the President
determines knowingly--</DELETED>
<DELETED> (A) owns, operates, or manages a vessel
described in paragraph (1);</DELETED>
<DELETED> (B) provides underwriting services or
insurance or reinsurance necessary for such a
vessel;</DELETED>
<DELETED> (C) facilitates deceptive or structured
transactions to support a vessel described in paragraph
(1);</DELETED>
<DELETED> (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;</DELETED>
<DELETED> (E) provided services for the testing,
inspection, or certification for a vessel described in
paragraph (1) for the purpose of evading
sanctions;</DELETED>
<DELETED> (F) serves as a captain or senior
leadership of the crew of such a vessel; or</DELETED>
<DELETED> (G) transfers to the Russian Federation
any foreign vessel designed to transport Russian-origin
petroleum products or uranium or coal.</DELETED>
<DELETED> (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.</DELETED>
<DELETED> (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:</DELETED>
<DELETED> (1) Has refused to take on a pilot in accordance
with best practices of the International Maritime
Organization.</DELETED>
<DELETED> (2) Does not respond when hailed by appropriate
maritime authority.</DELETED>
<DELETED> (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.</DELETED>
<DELETED> (4) Engages in unsafe maritime maneuvers with
another vessel.</DELETED>
<DELETED> (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.</DELETED>
<DELETED> (6) Is single-hulled contrary to standards of the
International Maritime Organization.</DELETED>
<DELETED> (7) Has changed ownership or flag registry more
than once in the previous year.</DELETED>
<DELETED> (8) Has a history of deliberately losing power or
turning off transmitters without a compelling security
need.</DELETED>
<DELETED> (9) Has not been properly maintained, based on
credible evidence.</DELETED>
<DELETED> (10) Has been involved in a recent maritime or
environmental incident.</DELETED>
<DELETED> (11) Is escorted by the military of the Russian
Federation.</DELETED>
<DELETED> (12) Has engaged in sabotage activities.</DELETED>
<DELETED> (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.</DELETED>
<DELETED>SEC. 112. IMPOSITION OF SANCTIONS WITH RESPECT TO FOREIGN
PERSONS THAT SUPPORT RUSSIAN ILLICIT SHIPPING WITH
VESSELS SUBJECT TO UNITED STATES SANCTIONS.</DELETED>
<DELETED> (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 transact