Congress moves to tariff the biggest buyers of Russian oil

Overview

Updated Yesterday

Trump signed the Lindsey O. Graham Sanctioning Russia and Iran Act into law on September 18, two days after the House passed it 262-159. The law lets him tariff the five largest buyers of Russian oil and natural gas up to 100% and sanctions Vladimir Putin. The president has 30 days, until October 18, to impose duties on any top-five buyer that keeps buying Russian energy.

China and India face the biggest exposure: together they took 87% of Russian crude exports from December 2022 to August 2026, per the Centre for Research on Energy and Clean Air. Trump sets the rate, from zero to 100%, and can waive penalties by notifying Congress. Reuters reports he may use the law as leverage in his September 24 meeting with Xi Jinping.

Why it matters

The law is in force. Trump can now tariff the biggest buyers of Russian oil up to 100%, raising prices on Chinese and Indian goods.

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Key Indicators

86–11

Senate passage vote

Final Senate tally on August 7, 2026, well past the 60 votes needed to break a filibuster. The bill became law on September 18.

262–159

House passage vote

Final House tally on September 16, 2026, with bipartisan support despite opposition from Democratic leaders. Trump signed the bill two days later.

100%

Maximum tariff on top buyers

The law lets the president set a tariff anywhere from 0% to 100% on the five largest buyers of Russian energy.

Top buyers exposed

Tariffs can target the five largest importers of Russian crude oil or natural gas by volume. China and India are the top two; the rest depend on current import data.

15%

Natural gas exemption threshold

Countries that import less than 15% of Russia's natural gas exports and have taken steps to cut purchases can escape the tariffs.

50% / 37%

China and India share of Russian crude exports

China took 50% of Russian crude exports from December 2022 to August 2026 and India 37%, per the Centre for Research on Energy and Clean Air. The two are the main targets of the tariff law.

Days to tariff decision

The law gives the president 30 days from enactment, to October 18, to impose duties on any top-five Russian oil buyer that makes new purchases. The rate is his choice, up to 100%.

Voices

Curated perspectives — historical figures and your fellow readers.

Ever wondered what historical figures would say about today's headlines?

People Involved

Lindsey Graham

Late U.S. Senator (R-South Carolina), bill's author and namesake

Died July 11, 2026, at age 71

Richard Blumenthal

U.S. Senator (D-Connecticut), Democratic co-author

Bill became law September 18; watching for tariff decisions

Donald Trump

U.S. President

Signed the bill into law September 18, 2026

John Thune

Senate Majority Leader (R-South Dakota)

Scheduled and won the floor votes

Rand Paul

U.S. Senator (R-Kentucky), lead Republican opponent

Voted no

Mike Johnson

Speaker of the House (R-Louisiana)

Oversaw House passage; bill signed into law September 18

United States House of Representatives

Lower chamber of Congress

Passed the Graham sanctions act; signed into law September 18

Organizations Involved

United States Senate

Legislative body

Passed the bill and sent it to the House

The upper chamber of Congress passed the Graham sanctions act 86-11 and forwarded it to the House.

U.S. House of Representatives

Legislative body

Passed the Graham sanctions act; signed into law September 18

The lower chamber of Congress passed the Russia and Iran sanctions bill, sending it to the president.

Timeline

April 2025 September 2026

7 events Latest: 6 days ago

Tap a bar to jump to that date

September 2026
House passes Graham sanctions act, 262-159
Latest Vote

The House approves the Senate bill, sending it to President Trump for signature. 58 Democrats and 7 Republicans break with their party leadership.
6 days ago
August 2026
Senate passes the bill, 86-11
Vote

The Senate gives final approval and sends the measure to the House, which returns from recess in September.
August 7th, 2026
July 2026
Senate advances the bill on funeral day
Vote

Hours after Graham's funeral, the Senate votes 86-12 to move the bill forward. Rand Paul is the lone Republican opposed.
July 28th, 2026
Revised bill introduced and renamed for Graham
Legislation

Senators file the Lindsey O. Graham Sanctioning Russia and Iran Act, giving the president discretion to set tariffs from 0% to 100%.
July 14th, 2026
Lindsey Graham dies at 71
Death

Graham dies of an aortic dissection hours after returning from Kyiv, where he said a deal had been struck to advance the bill.
July 11th, 2026
June 2026
House passes its own Ukraine and Russia measure
Legislation

The House approves Ukraine aid and Russia sanctions, defying Trump and Republican leaders and adding pressure on the Senate.
June 4th, 2026
April 2025
Graham and Blumenthal introduce the sanctions bill
Legislation

The bipartisan pair unveils a bill calling for tariffs of at least 500% on countries buying Russian oil, gas, and uranium.
April 1st, 2025

Scenarios

Trump signs the Graham act into law by year's end

Possible Resolves by End of 2026

Discussed by: NPR, CBS News, and Speaker Mike Johnson's own comments

The House takes up the Senate bill after returning in September and passes it unchanged. With Johnson supportive and Trump signaling agreement after the tariff-discretion deal, the president signs it. The law's teeth then depend on whether he actually uses the tariff power.

Law passes but the tariffs never land

Uncertain Resolves by Aug 7, 2027

Discussed by: Axios and analysts at CDM warning the bill could complicate Trump's talks with Putin

Even if the bill becomes law, the president holds full discretion over the rate and a waiver. He could keep tariffs at zero to preserve leverage in negotiations with Moscow, leaving China and India untouched. The measure would exist on paper without changing what buyers pay.

House rewrites the bill, forcing another Senate vote

Possible Resolves by End of 2026

Discussed by: The Hill and reporting on House-Senate differences over Ukraine measures

The House, which passed its own version in June, amends the Senate text rather than accepting it. Any changes would send the bill back to the Senate, delaying final passage and reopening fights over the tariff mechanism and Iran provisions.

Bill dies without becoming law

Unlikely Resolves by Jan 3, 2027

Discussed by: Coverage noting the House recess and past executive resistance to mandatory sanctions

The House never brings the bill to a final vote, or negotiations collapse over the tariff terms. The measure stalls and expires when the 119th Congress adjourns, forcing supporters to start over in the next Congress.

India pushes back against tariff threat

Possible Resolves by Q2 2027

Discussed by: Hindustan Times, Indian Ministry of External Affairs

India's foreign ministry said it would 'take all necessary measures to protect its trade and economic interests' after the House passed the bill. New Delhi has already signaled it will not cut Russian oil purchases without alternative supply, and could retaliate with its own tariffs or seek a waiver from Washington.

Tariffs stay at zero through the November midterms

Likely Resolves by Nov 3, 2026

Discussed by: Reuters

Reuters reports the law's immediate impact may be limited because Trump is reluctant to push consumer prices higher before the November midterm elections. He can keep the tariff at zero and use the threat as leverage in talks with Moscow, Beijing, and New Delhi.

Trump sets a token tariff to satisfy the law

Possible Resolves by Oct 18, 2026

Discussed by: RFE/RL, noting the law gives Trump discretion over the rate

To meet the October 18 deadline without raising consumer prices, Trump could impose a low-rate tariff, perhaps 10-15%, on goods from China and India. That would satisfy the law while leaving room for negotiation with Moscow, Beijing, and New Delhi.

Trump uses the law as leverage in the Xi meeting

Possible Resolves by Sep 24, 2026

Discussed by: Reuters via Meduza

Trump meets Xi Jinping on September 24. Reuters reports the signing may be timed to give Trump additional leverage in that meeting. He could offer to keep tariffs at zero in exchange for Chinese concessions on trade or Ukraine. The law's 30-day deadline would still loom.

Historical Context

3 moments from history that rhyme with this story — and how they unfolded.

January 1975

Jackson-Vanik Amendment (1974)

Congress tied normal trade relations with the Soviet Union to its treatment of Jewish citizens seeking to emigrate. Lawmakers overrode the White House's preference for quiet diplomacy and wrote the condition into law.

Then

The Soviet Union canceled a trade deal in protest, straining relations.

Now

The provision stayed on the books for decades and became a model for Congress using trade as a lever over foreign conduct.

Why this matters now

It shows Congress reaching into trade policy to shape another country's behavior, the same instinct behind tariffs on Russian oil buyers.

December 2011

Menendez-Kirk Iran oil sanctions (2011-2012)

Congress attached sanctions to the annual defense bill that targeted foreign banks dealing with Iran's central bank over oil purchases. The aim was to force countries like China, India, and Japan to cut how much Iranian crude they bought.

Then

Major buyers reduced Iranian oil imports to keep access to the U.S. financial system.

Now

The pressure helped push Iran toward the 2015 nuclear talks and set the template for using secondary sanctions to change third countries' behavior.

Why this matters now

The Graham bill uses the same logic against Russia: punish the buyers, not just the seller. China and India are again the main targets.

July-August 2017

CAATSA Russia sanctions (2017)

Congress passed the Countering America's Adversaries Through Sanctions Act, which forced new sanctions on Russia over election interference and Ukraine. The Senate vote was 98-2, enough to override a veto. President Trump signed it while calling it flawed.

Then

Trump signed the bill but issued a statement objecting that it limited his diplomatic flexibility.

Now

His administration was later criticized for slow-walking parts of the law, showing how a president can drag his feet even on mandatory sanctions.

Why this matters now

The same tension is back: Congress wants tough penalties on Russia, while the White House wants control over how and when they are applied. This time senators wrote in that discretion up front.