Russia sanctions bill 2026: Sen. Lindsey Graham's legacy and a new strategy
On July 14, a bipartisan group of lawmakers in the U.S. Senate introduced the Sanctioning Russia Act of 2026, a package of revised sanctions and tariffs that would squeeze Moscow's war finances and address concerns that had stalled previous versions of the bill.
The bill, which already has more than 26 bipartisan sponsors and supporters expect that number to quickly grow, has taken on added political significance following the sudden death of Sen. Lindsey Graham of South Carolina, one of the bill's key architects, over the weekend.
Political implications of Senator Graham's death
Democratic Senator Chuck Schumer from New York called for a vote on the floor, saying the bill should pass "on Lindsey's honor", while Republican Senator John Thune from South Dakota said he "hopes we can do it".
The bill is the result of more than a year of bipartisan negotiations, with Graham announcing just a day before his death that lawmakers had reached an agreement with the White House on key provisions after months of discussion. According to colleagues, Graham returned to Ukraine shortly before his death and spoke with US President Donald Trump about the sanctions package, expressing optimism that the administration had finally agreed.
"He was extremely excited," Democratic Sen. Richard Blumenthal of Connecticut, Graham's main Democratic partner on the bill, said of their final conversation. "I've never heard him so excited." Blumenthal said he supported naming the bill after Graham, calling it "part of his legacy."
Strategy change: Focus on large Russian energy buyers
The revised bill significantly reshapes an earlier proposal that faced criticism from lawmakers and American allies over the scope of its tariff provisions. Instead of applying a blanket 500% tariff to countries buying Russian energy, the new version allows tariffs of up to 100% targeting the top five buyers of Russian oil and gas, a group that sponsors say includes China and India.
| Compare versions of the Russia sanctions bill | |
|---|---|
| Old version | New version (2026) |
| A common 500% tariff for all countries buying Russian energy | Tariffs of up to 100% target the top 5 buyers |
| There are no exemptions | Exemption from reserves for countries importing less than 15% of Russian gas if they are reducing their dependence |
| Sanctions are conditional on peaceful negotiations | Many sanctions became mandatory |
The bill also creates exemptions for countries that import less than 15% of Russia's annual natural gas exports, as long as they are taking "substantial steps" to reduce their dependence on Russian energy. Advocates say the changes are designed to minimize unwanted economic consequences for America's allies while maintaining pressure on the Kremlin's most important source of revenue.
“The majority of Russia's revenue, especially that used for the aggressive war in Ukraine, comes from Russian oil and gas exports,” a Senate aide said, describing the bill as selectively designed to target the industry.
Sanctions expand
In addition to tariffs, the bill calls for sanctions to be imposed within 30 days of enactment on Russian President Vladimir Putin, senior political and military leaders, state-owned enterprises, financial institutions, energy projects, oligarchs, and foreign companies supporting Russia's defense industrial base.
The bill also expands sanctions on Russia's "shadow" fleet, which includes old tankers reflagged to circumvent current restrictions on Russian energy exports. Compared to previous versions, the new bill also removes language that made sanctions contingent on Russia's participation in peace talks, making many penalties mandatory.
Compromise with the White House: Presidential Flexibility
A key element in negotiations with the Trump administration is preserving presidential flexibility. The revised version of the bill gives the president immunity from sanctions under certain circumstances, reflecting White House concerns that the executive branch still has room to act when doing so serves America's national interests.
At the same time, Democratic negotiators secured stricter oversight provisions, requiring the administration to notify Congress and justify any sanctions waivers. This compromise comes after months of negotiations involving Graham, Blumenthal, Democratic Senator Jeanne Shaheen from New Hampshire, and senior administration officials, including Treasury Secretary Scott Bessent.
Trump on July 14 said the bill had a "good chance" of passing, although he suggested adding sanctions targeting Iran and Hezbollah. Blumenthal objected to reopening negotiations, arguing that the bill already had White House approval and should move forward without further changes.
Pressure on the Kremlin's war machine
Supporters argue that the bill directly targets the financial underpinnings of Russia's invasion of Ukraine by attacking revenues from oil and gas exports.
“If the Kremlin can fund its war machine through oil and gas sales, it will continue,” Shaheen said. "It will stop those purchases. It will make it clear that those purchases come at a real cost."
Blumenthal described the proposal as imposing "sledgehammer sanctions" on Russia and its backers, while Republican Sen. Katie Britt of Alabama said Graham believes the measure would become "the most important thing" he has achieved in his Senate career. Senators who accompanied Graham to Ukraine last week said he saw the bill as a watershed moment that could strengthen Kyiv's position both on the battlefield and in any future peace talks.
| Main goals of the 2026 Russia sanctions bill | |
|---|---|
| Tariffs | Up to 100% for the top 5 Russian energy buyers |
| Personal punishment | Putin, political/military leader, oligarchs |
| Punish the organization | State-owned enterprises, financial institutions, energy projects |
| Transportation sanctions | Russia's "shadow" fleet |
| Exemption clause | The country imports less than 15% of Russian gas if it reduces its dependence |
Daniel Fried, former US assistant secretary of state for Europe and Eurasia who served under seven administrations, said the revised bill's greatest strength lies in its sharper focus on Russian energy exports. "The strongest provision is Section 113, which targets Russian oil and gas exports," Fried told RFE/RL. "That item is more practical than the original version, but could prove a challenge in implementation. Still, its passage could be beneficial at the right time, putting pressure on Russia to end the war."
Opposition in the House: First legislative hurdle
Despite strong momentum in the Senate, the proposal faces criticism in the House. Representative Gregory Meeks of New York, the leading foreign policy figure in the House, argued that the bill gives Trump excessive tariff powers instead of mandating automatic sanctions against Moscow.
"This is not a sanctions bill but a massive implicit authorization for President Trump to impose more tariffs, including on our European allies," Meeks said. He warned that final sanctions still depend on the president's decision and urged lawmakers instead to pursue a bipartisan bill that builds on the Ukraine Support Act passed by the House earlier this year.
The criticism underscores that while Senate advocates believe they are close to winning enough votes, the bill could still face significant debate before it reaches Trump's desk. However, Blumenthal expressed confidence that the bill is close to being passed.
"This bill has been negotiated for almost two years, painfully, sometimes painfully," he said. "I believe we have enough votes."
By RFE/RL