特朗普签行政令叫停对俄新制裁 援引国家利益平抑国内柴油成本Trump Waives Sweeping Russia Energy Sanctions Under Graham Act to Ease Diesel Costs

按照美国国会上月以两党广泛共识通过的《格雷厄姆法案》，原定于周日全面生效的制裁措施对俄罗斯能源外销施加了严苛限制。该法案原计划针对俄罗斯石油和天然气的前五大进口国征收最高达100%的惩罚性关税，涵盖中国、印度和土耳其等主要采购方，仅对俄天然气进口占比低于15%且采取减采措施的国家设定了例外。此外，法案还规定对俄罗斯商品征收500%关税，并对俄金融机构、参与绕过禁运的“影子舰队”油轮以及包括总统普京在内的多名俄方高官施加资产冻结与交易禁令。

Under the bipartisan Graham Act signed last month, the sanctions slated to take full effect on Sunday established stringent trade barriers targeting Russian fossil fuel revenues. The legislation directed the executive branch to levy tariffs of up to 100% on goods imported from the five largest buyers of Russian crude oil and natural gas, prominently affecting major purchasers such as China, India, and Turkey, while carving out exemptions only for countries where Russian gas comprises less than 15% of imports and active reduction steps are underway. The statutes also mandated a 500% tariff on Russian goods alongside sanctions aimed at Russian financial institutions, senior officials including President Vladimir Putin, and the shadow fleet of tankers circumventing energy embargoes.

特朗普通过白宫周五发布的行政命令正式援引法案内部的豁免条款，向国会出具书面认证，声称暂停这些惩罚措施符合美国的国家利益。白宫文本并未具体说明作出此项判定的详细论据，但明确豁免将持续有效，直至行政当局确定采取进一步行动是适当的为止。与此同时，该命令要求联邦政府部门继续对采购俄罗斯能源以及涉嫌规避制裁的国家实施监测，从而在制裁生效倒计时的最后48小时内，完成了对该法案核心惩处机制的程序性冻结。

Exercising statutory waiver powers, Trump notified Congress through formal certification on Friday night that issuing the waiver serves the national interests of the United States. The executive order did not disclose specific underlying justifications for the national interest determination, stipulating instead that the waiver will stay in effect until the administration determines that further action is appropriate. The directive simultaneously instructed federal officials to monitor nations importing Russian energy or evading sanctions, executing a last-minute procedural halt to the law's central punitive apparatus just 48 hours before enactment.

白宫叫停惩罚性关税的直接驱动力来自美国本土的物价与选情考量。距离11月中期选举不足三周，选民对生活成本的担忧已成为头号议题。自今年2月伊朗战争爆发以来，全球柴油价格累计上涨近70%，这种关键工业与物流燃料的上涨直接推高了整体运输成本与通胀压力。特朗普在公开表态中淡化了中东战事对油市的影响，转而将燃料成本飙升归咎于乌克兰对俄罗斯境内油气基础设施的频繁袭击，并认定法案原定的高额关税将加剧国内能源供给紧缩。

The decision to waive punitive tariffs reflects domestic political and economic pressures confronting the White House less than three weeks before the midterm elections. With voter anxiety centered on the cost of living, diesel prices have risen nearly 70% since the outbreak of war in Iran in February. Because diesel powers freight transport and agriculture, the price surge has heightened broader inflationary strain. President Donald Trump has minimized the Iran conflict's role in volatile energy markets, blaming Ukraine's strikes on Russian oil infrastructure for elevating retail fuel expenses and arguing that mandatory import tariffs would compound domestic supply strains.

为压低燃油成本，特朗普在签署该豁免令的前一周，已与俄罗斯总统普京达成协议，允许俄方分阶段向国际市场投放480万吨柴油。尽管白宫希望借此平抑价格，但能源市场专家对该协议的平价效力持保留意见。国际能源署前官员尼尔·阿特金森与经济学者谢尔盖·阿列克萨申科等行业分析人士指出，480万吨配额仅相当于全球单日消费量或美国约十天的消耗，规模过小不足以明显压低零售价格，俄罗斯财政每月从中获得的直接增收也极为有限，但此举实质上已为俄罗斯缓解了制裁压力。

The waiver also builds directly upon a bilateral arrangement reached the preceding week, in which Trump agreed with Russian President Vladimir Putin to release 4.8 million metric tons of Russian diesel onto global markets. While the administration targeted cheaper domestic fuel, energy analysts questioned whether the transaction would move prices. Experts including former International Energy Agency official Neil Atkinson and economist Sergey Aleksashenko noted that the total volume equals merely one day of global demand or roughly ten days of U.S. consumption. Analysts concluded the volume is too negligible to lower consumer costs significantly, providing minimal direct budgetary revenue to Moscow while granting it substantial sanctions relief.

豁免令发布后，俄罗斯主权财富基金负责人兼俄总统特使基里尔·德米特里耶夫在社交平台发文称赞该决定，称其代表了两国经济对话的“重要且真正历史性的时刻”。他表示这些被搁置的制裁措施原本会对美国本土及全球市场造成严重损害，恢复美俄经济合作符合双方共同利益，并表态两国的经济对话与和平努力仍将继续。

Following the announcement of the executive order, Kirill Dmitriev, head of Russia's sovereign wealth fund and special envoy for President Vladimir Putin, commended the waiver on social media as an important and truly historic moment for bilateral ties. Dmitriev argued that the suspended Graham Act sanctions would have inflicted serious damage primarily on the United States and broader global markets. He asserted that economic cooperation serves the interests of both nations and pledged that bilateral economic dialogue and peacemaking efforts would continue under the revised sanctions posture.

在华盛顿，这一行政决定迅速引发国会两党的公开批评。法案共同起草人、民主党参议员理查德·布卢门撒尔发表声明谴责该举措是“懦弱行为”，认为豁免与国家安全毫无关联。民主党参议员伊丽莎白·沃伦将其定性为可预见的领导层失败，并强调国会两党对乌克兰的支持坚定。民主党众议员唐·拜尔直言这是向莫斯科妥协，违背了惩治侵略的明确立法原意，呼吁国会修正法案以阻止进一步让步。作为乌克兰坚定理性支持者的共和党众议员唐·培根同样公开指责，认为总统此举正在拖延而非结束战争。

The executive intervention encountered immediate and vocal condemnation from lawmakers across both parties on Capitol Hill. Senator Richard Blumenthal, the Connecticut Democrat who co-drafted the original bipartisan legislation, issued a statement denouncing the waiver as craven and cowardly, asserting that the decision had nothing to do with national security. Democratic Senator Elizabeth Warren termed the suspension an abject and predictable failure in leadership, citing resilient cross-party backing for Kyiv. Representative Don Beyer, Democrat of Virginia, criticized the administration for capitulating to Moscow and defying clear legislative intent designed to penalize Russia, urging Congress to amend the flawed statute to prevent further surrenders. Republican Representative Don Bacon of Nebraska also challenged the order, stating publicly that the president is prolonging the war rather than ending it.

华盛顿与基辅之间的摩擦随该制裁豁免的出台而加剧。白宫此前持续向乌克兰施加压力，要求其停止对俄罗斯境内炼油厂和石油设施的无人机打击。乌克兰此前曾短暂答应暂停，但随后恢复了袭击行动，而俄罗斯整周内亦持续轰炸乌克兰本土的能源设施。特朗普公开批评乌克兰总统泽连斯基未能与俄罗斯达成协议，并称泽连斯基比普京“更难打交道”。泽连斯基随后在布鲁塞尔对欧盟领导人发表讲话时暗讽称，很高兴能与“真正的领导人”站在一起，并向记者警告柴油协议将开创恶性先例，制裁松绑在天然气之后将逐步蔓延至其他领域、银行系统乃至化工业。

Frictions between Washington and Kyiv intensified following the sanctions waiver. The White House had mounted pressure on Ukraine to halt drone strikes against Russian oil refineries, as the administration sought to suppress fuel prices. Although Ukraine briefly complied with the request, it subsequently resumed cross-border operations, while Russian forces continued pounding Ukrainian power plants throughout the week. Donald Trump publicly faulted Ukrainian President Volodymyr Zelenskyy for failing to broker a deal with Russia, asserting that Zelenskyy was more difficult to deal with than Russian President Vladimir Putin. Zelenskyy countered at an EU summit in Brussels, quipping to European counterparts that it was reassuring to be surrounded by real leaders, while warning journalists that diesel compromises would establish a slippery slope unraveling penalties on banking, chemicals, and individuals.

除外交层面的争吵外，关键军事技术支持的受限直接波及战场。知情官员透露，白宫内部下令限制了SpaceX为乌克兰提供的“星盾”军用通信服务，太空探索技术公司首席执行官马斯克亦表示美国政府对网络限制负有最终责任。乌克兰官员披露，因网速受限，乌军无法有效击落部分俄方无人机，本周还失去了盟友对俄方弹道导弹的提前预警并造成平民丧生。乌克兰基础设施部门官员谢尔盖·杰尔卡奇指出，美方限制战地通信让俄方加大了打击力度；战略学者玛丽亚·斯涅戈娃亚等分析人士亦指出，若白宫借军援和情报共享为杠杆压制乌方的炼油厂打击，将严重削弱乌克兰打击俄战争经济的能力。

Beyond diplomatic disputes, practical curbs on critical technological assistance directly impacted combat operations. Officials familiar with the decision reported that the directive to restrict SpaceX's Starshield military satellite capability originated inside the White House, with SpaceX chief executive Elon Musk stating that the administration retains final authority over network parameters. Ukrainian officials stated that throttled connectivity impaired defenses against Russian drones, while a parallel lack of early warning for incoming ballistic missiles caused civilian fatalities. Serhiy Derkach, Ukraine's first deputy minister for infrastructure, said battlefield communication curbs emboldened Moscow to strike civilian targets. Analysts including CSIS senior fellow Maria Snegovaya warned that leveraging intelligence access to restrain Ukrainian refinery strikes threatens Kyiv's ability to impair Russia's wartime economy.