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议员称特朗普的俄罗斯柴油交易“违反”法律,法律专家如是说Lawmakers Argue Trump's Russia Diesel Deal 'Violates' the Law. Here's What Legal Experts Say

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特朗普总统因计划从俄罗斯进口柴油而面临日益增长的反对声浪,一些共和党和民主党议员坚持认为,这笔有争议的交易“违反”了法律。

President Donald Trump is facing growing backlash over his plan to import diesel from Russia, with some Republican and Democratic lawmakers insisting that the controversial deal “violates” the law.

四年前,国会通过了《终止进口俄罗斯石油法案》,该法案禁止美国进口《协调关税制度》第27章所列的俄罗斯原产能源产品,其中包括柴油。该法案的主要发起人、得克萨斯州民主党众议员劳埃德·多格特周一表示,特朗普正通过“解除制裁以允许自该法案生效以来首次将俄罗斯柴油进口到美国,且未满足该法案要求的特定法律条件”,从而“直接违反了该法律”。

Congress four years ago passed the Ending Importation of Russian Oil Act, which prohibits U.S. imports of Russian-origin energy products covered by Chapter 27 of the Harmonized Tariff Schedule, including diesel. Democratic Rep. Lloyd Doggett of Texas, the bill's chief sponsor, argued Monday that Trump is “directly violating that law” by “lifting sanctions to permit the first Russian diesel imports into the United States since the law took effect, without satisfying the specific legal conditions it requires.”

他指出,特朗普与普京的交易缺乏国会监督,使其成为非法行为,并强调该计划凸显了华盛顿的急剧转变,因为就在几周前,特朗普刚签署了一项旨在针对俄罗斯金融机构和能源产业的广泛制裁法案——而能源产业主要为乌克兰冲突提供资金。该制裁法案以已故共和党参议员林赛·格雷厄姆命名,他在生命最后一年致力于推动该法案的通过。

He suggested the lack of congressional oversight on Trump’s deal with Putin renders it unlawful, and noted how the plan showcases a sharp turn from Washington, as it comes just weeks after Trump signed a sweeping Russia sanctions bill intended to target the country's financial institutions and the energy industry, which has largely financed the assault on Ukraine. The sanctions bill was named after Lindsey Graham, the late Republican Senator who spent the final year of his life building support for the measure.

“特朗普违反了联邦法规的具体条款后,俄罗斯现在可以向美国出口化石燃料,”多格特周二在向《时代》杂志发表的声明中表示。“虽然这对美国人几乎没有好处,但这一非法行为将为普京的战争机器提供大量新资金,以继续杀害乌克兰平民。”

“Russia can [now] export fossil fuel to the U.S. after Trump violated the specific provisions of a federal statute,” Doggett said on Tuesday in a statement to TIME. “While offering little benefit for Americans, this unlawful action will provide substantial new funding for Putin‘s war machine to continue murdering Ukrainian civilians.”

多格特的担忧与北卡罗来纳州共和党参议员汤姆·蒂利斯的担忧相呼应,蒂利斯在周末接受NBC《Meet the Press》节目采访时表示,他认为“总统不遵守法律这一说法是有正当依据的”。蒂利斯是周日公开敦促政府“立即扭转”周五宣布的协议的七名参议员之一,他认为该协议违背了2022年的法律。

Doggett’s concerns match those of Republican Sen. Thom Tillis of North Carolina, who told NBC’s Meet the Press over the weekend that he believes “there’s a legitimate case for saying the President’s not following the law.”Tillis was one of seven Senators who publicly urged the Administration on Sunday to “immediately reverse course” on the agreement announced Friday, arguing that it goes against the 2022 law.

“国会于2022年明确禁止俄罗斯能源进口,以防止美国资金资助普京对乌克兰发动的残酷战争,”阿拉斯加州共和党参议员丽莎·默尔科斯基、缅因州共和党参议员苏珊·柯林斯、北卡罗来纳州共和党参议员汤姆·蒂利斯、犹他州共和党参议员约翰·柯蒂斯,以及新罕布什尔州民主党参议员珍妮·沙希恩、俄勒冈州民主党参议员罗恩·怀登、康涅狄格州民主党参议员理查德·布卢门撒尔共同签署的声明中写道。

“Congress explicitly banned Russian energy imports in 2022 to prevent American dollars from financing Putin’s brutal war against Ukraine,” read the statement co-signed by Republican Senators Lisa Murkowski of Alaska, Susan Collins of Maine, Thom Tillis of North Carolina, and John Curtis of Utah, alongside Democratic Senators Jeanne Shaheen of New Hampshire, Ron Wyden of Oregon, and Richard Blumenthal of Connecticut.

“特朗普总统允许俄罗斯柴油进口到美国的决定,直接违背了该法律。政府还未就此事与国会协商,也未按法律规定提交任何解释来证明其决定的合理性,”他们说。

“President Trump’s decision to allow Russian diesel imports to the U.S. runs directly counter to that law. The Administration has also failed to consult with Congress or submit any explanation to justify its decision as required by statute,” they said.

周二,蒂利斯、柯林斯和默尔科斯基致信特朗普,信中还得到了肯塔基州共和党参议员米奇·麦康奈尔、得克萨斯州共和党参议员约翰·科宁、俄克拉荷马州共和党参议员阿兰·阿姆斯特朗以及六名民主党参议员的联署。他们告诉总统,这项协议“是对我们敌人的馈赠,也是对我们盟友的背叛[,] 应该被撤销。”该信件是在特朗普当天公开驳回来自其党内批评的一天后发出的。

In a letter sent to Trump on Tuesday, Tillis, Collins, and Murkowski, were joined by fellow Republican Senators Mitch McConnell of Kentucky, John Cornyn of Texas, and Alan Armstrong of Oklahoma alongside six Democratic Senators as they told the President the deal “is a gift to our adversary and a betrayal of our Allies [and] should be rescinded.”The letter came a day after Trump publicly dismissed the criticism stemming from within his own party.

“这些共和党人根本不可能真的认真,”他在白宫对记者说。“任何有助于我们农民、牧场主的事情,我都支持。”特朗普计划“立即”向美国和全球市场供应30万吨柴油的交易,正值他在11月中期选举前夕面临日益增长的政治压力之际。能源成本飙升已成为选民的关键担忧,威胁着削弱共和党在国会保持多数的努力。金融动荡意味着特朗普可能失去对农村地区的控制。然而,鉴于霍尔木兹海峡的中断导致供应紧张,专家们对俄罗斯燃油的大量涌入是否能为困难中的美国人带来缓解持怀疑态度。

"Well, I think these are Republicans that can't really be serious," he told reporters at the White House. “Anything that could help our farmers, our ranchers, I like.”Trump’s deal to "immediately" supply 300,000 tons of diesel to American and global markets comes as he faces growing political pressure ahead of the November midterms. Spiraling energy costs have become a key concern for voters, threatening to undermine Republican efforts to maintain their majorities in Congress. The financial upheaval has meant that Trump risks losing his hold on farm country. However, experts are skeptical that an influx of Russian fuel will bring relief to struggling Americans, given how short the supply is due to the disruption in the Strait of Hormuz.

虽然一些立法者也预测对美国消费者的影响将很小,但对许多人来说,关键的争议点在于特朗普与普京的柴油协议是否违反了2022年法律,一些共和党人和民主党人坚持认为特朗普正在推动总统权力的边界。以下是关于这场辩论的要点,以及法律专家对此事的立场。

While some lawmakers also predict the impact on American consumers will be slight, the key sticking point for many centers on whether Trump’s diesel deal with Putin violates the 2022 law, with some Republicans and Democrats insisting that Trump is pushing the limits of presidential authority. Here’s what to know about the debate—and where legal experts stand on the matter.

根据2022年法律,要解除对俄罗斯柴油的进口禁令必须满足什么条件?

According to the 2022 law, what must happen for the import ban on Russian diesel to be lifted?

哈佛法学院法学教授克里斯滕·艾兴塞尔表示,虽然总统通常拥有广泛的豁免制裁的权力,但国会在2022年4月的立法中对该权力设定了具体限制。

While Presidents typically have broad authority to waive sanctions, Congress placed specific limits on that power in the April 2022 legislation, says Kristen Eichensehr, a professor of law at Harvard Law School.

她对《时代》杂志表示:“在许多制裁权限中,总统拥有广泛的权力来豁免制裁的实施,或发放基本提供制裁例外的许可证。‘[2022法案]’是一项不寻常的法律,鉴于国会在规定总统缺乏这种灵活性方面非常谨慎和具体。”根据该立法的第3条,总统必须首先咨询众议院税收委员会和外交事务委员会,以及参议院财政委员会和外交关系委员会,并在提供所需认证之前至少提前45天提交一份报告。立法者们认为,政府未能遵循这一流程。

“In many sanctions authorities, the President has broad authority to waive imposition of the sanctions or to issue licenses that basically provide an exception to the sanctions,” she tells TIME. “The [2022 act] is an unusual law, given how careful and specific Congress was in providing that the President lacks that flexibility.”Under Section 3 of the legislation, the President must first consult with the House Ways and Means and Foreign Affairs Committees, along with the Senate Finance and Foreign Relations Committees, and submit a report at least 45 days before providing the required certification. Lawmakers have argued that the Administration has failed to follow this process.

艾兴塞尔指出,总统必须在解除禁令之前向国会提前提供认证,她引用了法律措辞中规定的具体标准。

“The President has to provide a certification to Congress in advance before lifting the prohibition,” says Eichensehr, pointing to the specific criteria set out in the wording of the law.

该法律要求总统向国会作出认定:俄罗斯联邦已撤军并停止乌克兰接受的敌对行动;不对任何北约成员国构成直接威胁;并承认乌克兰人民自由、独立选择自身政府的权利。

The law requires a determination by the President to Congress that the Russian Federation has withdrawn and ceased hostilities accepted by Ukraine; poses no immediate threat to any NATO member; and recognizes the right of the Ukrainian people to freely and independently choose their own government.

但艾兴塞尔坚持认为,这些“总统目前无法作出的认证”,因为“这些事情尚未发生,而这是法律的主要限制。”即使满足所有这些条件,该立法仍要求总统在进口禁令终止生效前再等待额外的90天,在此期间,国会可以通过一项反对的联合决议。

But Eichensehr insists that these are “not certifications that the President could make at the current moment” because “none of those things have happened, and that's the main restriction in the law.”Even if all these conditions were met, the legislation would still require the President to wait an additional 90 days before the termination of the import ban could take effect, during which, Congress could enact a joint resolution of disapproval.

“就实质而言,总统作为事实问题无法作出这些认证,因为俄罗斯仍在对乌克兰发动攻击,”艾兴塞尔说。“就程序而言,(据报道他尚未咨询国会),他未遵循法律规定的程序。”

“On the substance, the President cannot, as a factual matter, make the certifications because Russia is still attacking Ukraine,” says Eichensehr. “As a procedural matter, [because he reportedly has not consulted Congress], he hasn't followed the process that the law sets out.”

乔治华盛顿大学法学院研究教授爱德华·斯韦恩认为,这些限制的设立是为了确保“当总统和财政部长认为情况已经改变时,他们会回去向国会说明,并通知国会,以便其可以表示反对。”

Edward Swaine, a research professor at George Washington University Law School, suggests these restrictions were put in place to ensure that “when the President and the Treasury Secretary decide that circumstances have changed, they go back and explain this to Congress, and give it notice so that it can disagree.”

“总统应当作出认定,即俄罗斯已撤出其军队,且不再构成任何进一步的侵略威胁。这些标准相当严格,”他对《时代》杂志表示,并指出该法案“为国会提供了充分的通知,以便其能够提出反对的联合决议。”“他们不希望总统能够凭一时兴起就改变这一制度,因此我设想国会会审视这一行动,并正当地认为这与既定政策不一致,”他补充道。

“The President is supposed to make this determination that Russia has withdrawn its forces and doesn't pose any further threat of aggression. These are fairly high standards,” he tells TIME, noting that the statue provides “Congress with adequate notice to allow it to generate a joint resolution of disapproval.”“They don't want the President to be able to change this regime on a whim, and so I imagine Congress looking at this action and justifiably thinking that this is inconsistent,” he adds.

财政部表示,柴油交易正在财政部长斯科特·贝森特所主张的法律权限范围内进行。贝森特坚持认为,特朗普政府正在其现有法律权限范围内行事,以帮助降低能源价格。

Treasury says the diesel deal is being carried out within the legal authorities Treasury Secretary Scott Bessent has defended the legality of the agreement, insisting that the Trump Administration is acting within its existing legal authority to help bring energy prices down.

“我们正在利用我们所拥有的所有法律权限来做这件事,因此国会里任何人说——无论是旧法案还是目前的林赛·格雷厄姆法案——禁止我们这样做,都是错的,”他周日对福克斯新闻说,但未详细说明他所指的法律权限是什么。

“We’re doing it with all the legal authorities we have, so anyone in Congress who says that—whether it’s an old bill or the current Lindsey Graham bill—prohibits us from doing it, is wrong,” he told Fox News on Sunday, without elaborating on which legal authorities he was referring to.

周五,财政部海外资产控制办公室(OFAC)发布了一项临时一般许可证,授权涉及俄罗斯柴油燃料的交易,包括其进口,直至2027年4月7日。

On Friday, the Treasury Department’s Office of Foreign Assets Control (OFAC) issued a temporary general license authorizing transactions involving Russian diesel fuel, including its importation, until April 7, 2027.

斯韦恩表示,政府可能会辩称:“这个一般许可证不是[对]法定禁止的终止;而是一种暂停。”

Swaine says that the Administration could argue that “the general license isn't [a] termination of the statutory prohibition; it's a suspension.”

“[财政部]部长可以说这并不等同于终止进口禁令,只是将其暂停到4月,”斯韦恩说。“政府可能提出的第二点是,这并不适用于所有受影响的产品,仅适用于柴油燃料这一子类别,因此[可能]存在总统终止整个项目所需的行动与财政部长在此采取的行动之间的差异。”针对社交媒体上关于贝森特和白宫违法的指控,财政部下属的反恐及金融情报副部长办公室坚称政府已遵循既定程序。

“The [Treasury] Secretary could say this isn't the same thing as ending the prohibition on imports, it's just suspending it until April,” says Swaine. “The second thing [the Administration] could say is that it doesn't apply to all affected products, just a subcategory concerning diesel fuel, so there's [potentially] a difference between the actions that are required for the President to terminate the entire program and the actions that the Secretary is taking here.”Responding to claims on social media that Bessent and the White House had broken the law, the Office of the Under Secretary for Terrorism and Financial Intelligence, part of the Treasury, insisted that the Administration had followed established procedures.

“此一般许可证的授予与OFAC之前采取的类似行动一致,并且符合所有适用法律,”该办公室周末表示。

“The granting of this general license is consistent with similar actions previously taken by OFAC and is in compliance with all applicable laws,” the office said over the weekend.

OFAC已允许涉及俄罗斯石油和石油产品的交易,这些货物已装载在船舶上,包括之前曾受美国制裁的船舶,以运往印度港口;该办公室还曾在8月允许特定钻石的进口,这些钻石在先前行政命令设定的截止日期之前已位于俄罗斯境外。《时代》杂志已联系白宫和财政部以获取评论。

The OFAC permitted transactions involving Russian oil and petroleum products already loaded on vessels, including from vessels previously under U.S. sanctions, to Indian ports in March; the office had also allowed the entry of specified diamonds in August that had been outside Russia before set cutoff dates under a previous Executive Order. TIME has reached out to the White House and Treasury Department for comment.

国会如何挑战特朗普的柴油交易 议员可寻求国会监督及其他政治手段以挑战政府决定。

How Congress could challenge Trump's diesel deal Lawmakers could pursue congressional oversight and other political measures to challenge the Administration’s decision.

宾夕法尼亚州共和党众议员布莱恩·菲茨帕特里克已宣布计划提出“两党立法,阻止任何及所有俄罗斯石油采购”,该立法名为拟议的“罗纳德·里根通过实力求和平法案”。内布拉斯加州共和党众议员唐·培根曾在其他高调问题上与特朗普交锋,他表示同意联合发起该法案,因为“国会必须表明立场”。然而,专家告诉《时代》杂志,国会能做的可能仅限于更多象征性展示,而非任何能扭转局势的举措。

Republican Rep. Brian Fitzpatrick of Pennsylvania has already announced plans to introduce “bipartisan legislation to block any and all purchases of Russian oil” under the proposed “Ronald Reagan Peace Through Strength Act.”Rep. Don Bacon of Nebraska, a Republican who has clashed with Trump on other high-profile issues, said he has agreed to co-sponsor the bill, because “Congress must make a stand.”However, experts tell TIME what Congress is able to do may be limited to more of a symbolic display rather than anything that can move the needle.

“除了通过立法并以政治方式施压外,国会几乎无能为力,”斯韦恩表示,并建议如果事态升级到那一步,可采用“扣留资金、拨款和听证会”等手段。

“There's limited ability of Congress to do much besides pass legislation and politically enforce that,” says Swaine, suggesting that methods such as “withholding money, appropriations, and hearings” could be used if the situation escalated to that point.