[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 C