The White House is pressing Sen. Lindsey Graham (R-SC) to significantly revise the Sanctioning Russia Act of 2025, which currently commands broad bipartisan support in the Senate. With 82 co-sponsors—more than enough to override a veto—the bill proposes sweeping sanctions on Russian officials and industries, as well as penalties on countries engaging in trade with Moscow.
According to The Wall Street Journal, the Trump administration is urging Graham to weaken mandatory provisions in the legislation. Specifically, administration officials have asked Graham to replace binding sanctions language—such as “shall”—with discretionary terms like “may,” and to add waivers enabling President Trump to control implementation. Congressional aides warned that such changes would “render Graham’s bill toothless,” noting the president already has authority to impose sanctions unilaterally.
President Trump, speaking alongside German Chancellor Friedrich Merz in the Oval Office Thursday, reiterated his opposition to moving forward on sanctions without his approval: “They’ll be guided by me. That’s how it’s supposed to be,” he said, describing the measure as a “harsh bill.”
Sen. Richard Blumenthal (D-CT), the lead Democratic co-sponsor, confirmed ongoing negotiations with the administration but declined to elaborate, stating only, “We’re moving ahead and the White House is included in our conversations.”
Graham acknowledged that revisions are underway. He plans to add exemptions for countries aiding Ukraine militarily or economically, in response to concerns about the bill’s 500% tariff provision targeting nations that purchase Russian commodities. Still, Graham has not publicly endorsed the broader revisions requested by the White House.
“I feel good about it,” Graham said Thursday. “We’re working with the White House and our Democratic colleagues and the House,” though he declined further comment.
• 500% Tariffs: The bill mandates a 500% tariff on imports from countries that continue to purchase Russian-origin oil, gas, uranium, and other petroleum products. This measure is designed to economically isolate Russia by targeting its energy trade partners. 
• Sanctions on Russian Officials and Entities: The legislation imposes sanctions on key Russian government officials, financial institutions, and entities affiliated with the Russian Federation. This includes freezing assets and prohibiting transactions with U.S. persons. 
• Restrictions on Financial Transactions: The bill prohibits U.S. financial institutions from investing in Russian sovereign debt and restricts transfers of funds involving the Russian Federation. 
• Export and Investment Bans: It bans U.S. exports of energy products to Russia and prohibits investments in Russia’s energy sector. 
• Secondary Sanctions: Countries that continue to engage in significant transactions with Russian energy sectors may face secondary sanctions, including the aforementioned tariffs. 
The bill does provide for limited exemptions through national security waivers as determined by the president. A narrow national security waiver (Section 17(d)) permits the president to exempt certain countries, goods, or services for up to 180 days if such exemption serves U.S. security interests. This waiver is one-time and limited in scope, applying only to Section 17’s tariff provision and not to broader investment or financial restrictions.
The bill mandates full enforcement of all applicable sanctions under the Countering America’s Adversaries Through Sanctions Act (CAATSA), reinforcing existing authorities and eliminating discretion over implementation.
The Trump administration has expressed concerns over the bill’s potential impact on diplomatic relations with Moscow. Administration officials have reportedly urged Senator Graham to modify the bill by:
• Inserting Waivers: Allowing the President discretion over who or what gets sanctioned. 
• Altering Language: Changing mandatory terms like “shall” to discretionary terms like “may,” thereby reducing the obligatory nature of the sanctions.
President Trump has indicated that the bill should not proceed without his explicit approval, stating, “They’ll be guided by me. That’s how it’s supposed to be,” and referring to the measure as a “harsh bill.” 
In a June 3, Client Alert, Brownstein's DC team says EU coordination is expected, but Hungary and Slovakia may object to secondary sanctions. The EU’s forthcoming 18th sanctions package may seek aligned actions while securing exemptions for critical sectors. Japan is likely to seek leniency due to its reliance on Russian LNG. India will likely oppose secondary sanctions, arguing economic harm and potentially accelerating efforts to bypass the U.S. financial system.
Despite the White House’s reservations, the bill’s strong bipartisan support in the Senate suggests a high likelihood of passage. A companion bill (H.R.2548) has been introduced in the House by Rep. Brian Fitzpatrick (R-PA).
Senator Graham has proposed adding provisions to exempt countries providing military or economic assistance to Ukraine from the imposed tariffs.
Senate Majority Leader John Thune (R-SD) noted a “high level of interest” in advancing the sanctions, while House Speaker Mike Johnson (R-LA) has expressed support for strong action against Russia. 
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