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119th CONGRESS
2d Session |
To support Lebanon’s rule of law and democratic institutions through sanctions and support, and for other purposes.
Mrs. Shaheen (for herself and Mr. Lankford) introduced the following bill; which was read twice and referred to the Committee on Foreign Relations
To support Lebanon’s rule of law and democratic institutions through sanctions and support, and for other purposes.
Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled,
(a) Short title.—This Act may be cited as the “Lebanon Sanctions, Stabilization, and Support Act”.
(b) Table of contents.—The table of contents for this Act is as follows:
(a) In general.—The President may impose the sanctions described in subsection (c) with respect to each foreign person, regardless of employment, who the President determines, on or after the date of the enactment of this Act, has knowingly and significantly engaged in any activity described in subsection (b).
(b) Activities described.—A foreign person has engaged in any activity described in this subsection if the foreign person has—
(1) knowingly undertaken actions or policies that provide material support in furtherance of the Government of Iran’s illicit financing and support of armed non-state actors in Lebanon, including Hezbollah;
(2) significantly delayed or impeded the work of the Lebanese Armed Forces and the Internal Security Forces to implement the August 2025 decision to exercise a state monopoly of arms, the September 2025 plan to achieve that monopoly by disarming Hezbollah, the March 2026 decision to ban security and military activities of Hezbollah, or the April 2026 decision to bring weapons in Beirut under government control;
(3) provided material support to Hezbollah; or
(4) taken significant actions to delay or impede the progress of reforms to the banking and financial sectors of Lebanon.
(c) Sanctions described.—The sanctions described in this subsection are the following:
(1) BLOCKING OF PROPERTY.—The President shall exercise all authorities granted under the International Emergency Economic Powers Act (50 U.S.C. 1701 et seq.) to the extent necessary to block and prohibit all transactions in property and interests in property of a foreign person described in subsection (a) if such property and interests in property are in the United States, come within the United States, or come within the possession or control of a United States person.
(2) PROHIBITIONS ON FINANCIAL TRANSACTIONS.—The President may exercise all authorities granted under the International Emergency Economic Powers Act (50 U.S.C. 1701 et seq.) to the extent necessary—
(A) to prohibit any United States financial institution from making loans or providing credit to the applicable foreign person; or
(B) to prohibit any transactions in foreign exchange that are subject to the jurisdiction of the United States and in which such foreign person has any interest.
(3) INELIGIBILITY FOR VISAS, ADMISSION, OR PAROLE.—
(A) VISAS, ADMISSION, OR PAROLE.—An alien described in subsection (a) shall be—
(i) inadmissible to the United States;
(ii) ineligible to receive a visa or other documentation to enter the United States; and
(iii) otherwise ineligible to be admitted or paroled into the United States or to receive any other benefit under the Immigration and Nationality Act (8 U.S.C. 1101 et seq.).
(i) IN GENERAL.—The valid visa or other entry documentation of any alien described in subsection (a) is subject to revocation regardless of the issue date of the visa or other entry documentation.
(ii) EFFECT.—In accordance with section 221(i) of the Immigration and Nationality Act (8 U.S.C. 1201(i)), a revocation authorized under clause (i) shall—
(I) take effect in accordance with established procedures; and
(II) cancel any other valid visa or entry documentation that is in the possession of the alien.
(4) LICENSING.—For any sanctions imposed pursuant to this subsection, the Secretary of the Treasury shall issue such general licenses and public guidance as may be necessary—
(A) to clarify that such sanctions do not apply to any government entity with which the sanctioned person may be officially associated;
(B) to clarify that such sanctions do not apply to any person the sanctioned person owns or controls that contributes to legitimate economic activity in Lebanon, unless the owned person is itself designated based on its behavior; and
(C) to limit adverse impacts to employment, legitimate economic activity, and humanitarian conditions in Lebanon.
(1) HUMANITARIAN ASSISTANCE.—Sanctions under this section may not apply to—
(A) the conduct or facilitation of a transaction for the provision of agricultural commodities, food, medicine, medical devices, humanitarian assistance, or for humanitarian purposes; or
(B) transactions that are necessary for, or ordinarily incident to, the activities described in subparagraph (A).
(2) INTELLIGENCE ACTIVITIES.—Sanctions under this section shall not apply to—
(A) any activity subject to the reporting requirements under title V of the National Security Act of 1947 (50 U.S.C. 3091 et seq.); or
(B) any authorized intelligence activities of the United States.
(3) COMPLIANCE WITH INTERNATIONAL OBLIGATIONS AND LAW ENFORCEMENT ACTIVITIES.—Visa restrictions under subsection (c)(3) shall not apply with respect to the admission or parole of an alien into the United States if admitting or paroling the alien is necessary—
(A) to comply with United States obligations under—
(i) the Agreement between the United Nations and the United States of America regarding the Headquarters of the United Nations, signed at Lake Success June 26, 1947, and entered into force November 21, 1947;
(ii) the Convention on Consular Relations, done at Vienna April 24, 1963, and entered into force March 19, 1967; or
(iii) any other applicable international obligations; or
(B) to carry out or assist law enforcement activity in the United States.
(e) Rulemaking.—The President may prescribe such regulations as are necessary to carry out the provisions of this section (which may include regulatory exceptions), including under section 205 of the International Emergency Economic Powers Act (50 U.S.C. 1704).
(f) Rule of construction.—Nothing in this section may be construed to limit the authorities of the President under the International Emergency Economic Powers Act (50 U.S.C. 1701 et seq.).
(g) Termination.—This section, and any sanctions imposed under this section, shall terminate on the date that is 5 years after the date of the enactment of this Act.
(h) Definitions.—In this section:
(1) ADMISSION; ADMITTED; ALIEN; LAWFULLY ADMITTED FOR PERMANENT RESIDENCE.—The terms “admission”, “admitted”, “alien”, and “lawfully admitted for permanent residence” have the meanings given those terms in section 101 of the Immigration and Nationality Act (8 U.S.C. 1101).
(2) APPROPRIATE COMMITTEES OF CONGRESS.—The term “appropriate committees of Congress” means—
(A) the Committee on Foreign Relations of the Senate; and
(B) the Committee on Foreign Affairs of the House of Representatives.
(3) FOREIGN PERSON.—The term “foreign person” means any individual or entity that is not a United States person.
(4) UNITED STATES PERSON.—The term “United States person” means—
(A) a United States citizen or an alien lawfully admitted for permanent residence to the United States;
(B) an entity organized under the laws of the United States or any jurisdiction within the United States, including a foreign branch of such an entity; or
(C) any person located in the United States.
(a) Humanitarian assistance.—The Secretary of State shall continue to support humanitarian assistance in Lebanon in furtherance of the political and economic stability, sovereignty, and territorial integrity of Lebanon, which is important for regional stability and the national economic and security interests of the United States, including—
(1) health assistance, including logistical and technical assistance to hospitals, ambulances, and health clinics in affected communities, and the provision of basic public health commodities;
(A) protection, food, and shelter;
(B) water, sanitation, and hygiene; and
(C) demining and disposal of unexploded ordinance; and
(3) technical assistance to ensure health, food, and commodities are appropriately selected, procured, targeted, monitored, and distributed.
(b) Incentive Fund for Reconstruction of Lebanese Government Services and Infrastructure.—
(1) IN GENERAL.—There shall be established a fund, to be administered by the Secretary of State, which, subject to the limitations set forth in paragraph (2), shall support—
(A) the reconstruction of services and institutions of the Government of Lebanon and of municipal governments in Lebanon; and
(B) the building and rebuilding of civilian infrastructure in Lebanon.
(2) LIMITATION.—Amounts from the fund established pursuant to paragraph (1) may not be made available for use by the Council for South Lebanon.
(3) NOTICE BEFORE PROVISION OF ASSISTANCE.—
(A) RESTRICTION.—Except as provided in subparagraph (B), not more than 50 percent of the amounts deposited into the fund established pursuant to paragraph (1) may be obligated until the Secretary of State certifies to the Committee on Foreign Relations of the Senate and the Committee on Foreign Affairs of the House of Representatives that—
(i) the Government of Lebanon has declared Hezbollah’s military activities illegal; and
(ii) the Lebanese Armed Forces are implementing directives of the Government of Lebanon regarding—
(I) the establishment of a monopoly of force within Lebanon; and
(II) the disarmament of Hezbollah.
(B) WAIVER.—The Secretary of State may waive the restriction under subparagraph (A) after certifying to the Committee on Foreign Relations of the Senate and the Committee on Foreign Affairs of the House of Representatives that such a waiver is in the national interest of the United States.
(c) Livelihood and scholarship assistance to the Lebanese Armed Forces and the Internal Security Forces.—
(1) IN GENERAL.—There shall be established a fund, to be administered by the Secretary of State, which shall provide for the sustainment of the Lebanese Armed Forces and Internal Security Forces in accordance with paragraph (2).
(2) AUTHORIZATION OF APPROPRIATIONS.—There is authorized to be appropriated to the Department of State, for each of the first 3 fiscal years beginning after the date of the enactment of this Act, $20,000,000, which shall be deposited into the fund established under paragraph (1) and expended for salaries and stipends for members of the Lebanese Armed Forces and Internal Security Forces.
(d) Strategy.—Not later than 60 days after the date of the enactment of this Act, the Secretary of State shall submit a strategy to the Committee on Foreign Relations of the Senate, the Committee on Appropriations of the Senate, the Committee on Foreign Affairs of the House of Representatives, and the Committee on Appropriations of the House of Representatives that details how amounts from the fund established pursuant to this section, in conjunction with funds authorized to be appropriated under section 4, will be used to help support and implement a plan to expand Lebanese state services and increase legitimate political participation in Lebanese communities that are currently dependent on parallel services from Hezbollah.
(a) Authorization of appropriations for security assistance to the Lebanese Armed Forces and the Internal Security Forces.—
(1) IN GENERAL.—There is authorized to be appropriated to the Department of State, for each of the first 5 fiscal years beginning after the date of the enactment of this Act—
(A) $200,000,000 for Foreign Military Financing;
(B) $25,000,000 for International Narcotics Control and Law Enforcement;
(C) $11,500,000 for Non-proliferation, Anti-terrorism, Demining, and Related Programs; and
(D) $3,500,000 International Military Education and Training.
(2) NOTICE BEFORE PROVISION OF ASSISTANCE.—
(A) RESTRICTION.—Except as provided in subparagraph (B), not more than 50 percent of the funds appropriated pursuant to paragraph (1) may be obligated until after the Secretary of State certifies to the Committee on Foreign Relations of the Senate and the Committee on Foreign Affairs of the House of Representatives that—
(i) the Government of Lebanon has declared Hezbollah’s military activities illegal; and
(ii) the Lebanese Armed Forces are implementing directives of the Government of Lebanon regarding—
(I) the establishment of a monopoly of force within Lebanon; and
(II) the disarmament of Hezbollah.
(B) INAPPLICABILITY.—The restriction on obligating funds under subparagraph (A) shall not apply to assistance provided to special operations units and associated enabling forces of the Lebanese Armed Forces.
(3) AUTHORIZATION OF CONTINGENT FUNDING AFTER THE FIRST FISCAL YEAR.—
(A) CONTINGENCY.—Subparagraph (B) shall take effect if a briefing required under subsection (c) during the fiscal year beginning after the date of the enactment of this Act demonstrates meaningful progress, as determined by the Secretary of State—
(i) by the Lebanese Armed Forces and the Internal Security Forces to counter Iranian proxy forces operating in Lebanon, including Hezbollah, Hamas, and Palestinian Islamic Jihad; and
(ii) by the Government of Lebanon to develop and implement a plan to expand state services and increase legitimate political participation in Lebanese communities that are currently dependent on parallel services from Hezbollah.
(B) FUNDING.—Subject to the contingency described in subparagraph (A), in addition to the appropriations authorized under paragraph (1), there is authorized to be appropriated to the Department of State, for the second, third, fourth, and fifth fiscal year beginning after the date of the enactment of this Act—
(i) $50,000,000 for Foreign Military Financing;
(ii) $6,000,000 for International Narcotics Control and Law Enforcement;
(iii) $3,000,000 for Non-proliferation, Anti-terrorism, Demining, and Related Programs; and
(iv) $1,000,000 for International Military Education and Training.
(4) AUTHORIZATION OF ADDITIONAL CONTINGENT FUNDING AFTER THE SECOND FISCAL YEAR.—
(A) CONTINGENCY.—Subparagraph (B) shall take effect if the briefings required under subsection (c) during each of the first 2 fiscal years beginning after the date of the enactment of this Act demonstrate meaningful progress, as determined by the Secretary of State—
(i) by the Lebanese Armed Forces and the Internal Security Forces to counter Iranian proxy forces operating in Lebanon, including Hezbollah, Hamas, and Palestinian Islamic Jihad; and
(ii) by the Government of Lebanon to implement a plan to expand state services and increase legitimate political participation in Lebanese communities that are currently dependent on parallel services from Hezbollah.
(B) FUNDING.—Subject to the contingency described in subparagraph (A), in addition to the appropriations authorized under paragraphs (1) and (3), there is authorized to be appropriated to the Secretary of State, for each of the third, fourth, and fifth fiscal years beginning after the date of the enactment of this Act—
(i) $50,000,000 for Foreign Military Financing;
(ii) $6,000,000 for International Narcotics Control and Law Enforcement;
(iii) $3,000,000 for Non-proliferation, Anti-terrorism, Demining, and Related Programs; and
(iv) $1,000,000 for International Military Education and Training.
(5) USE OF FUNDS.—Amounts appropriated pursuant to authorizations under paragraphs (1)(B), (3)(B), and (4)(B) shall be used by the Secretary of State to build the capacity of the Lebanese Armed Forces and the Internal Security Forces, including by—
(A) countering Iranian proxy forces operating in Lebanon, including Hezbollah, Hamas, and Palestinian Islamic Jihad;
(i) the August 2025 decision to exercise a state monopoly of arms;
(ii) the September 2025 plan to achieve this monopoly by disarming Hezbollah;
(iii) the March 2026 decision to ban Hezbollah security and military activities; and
(iv) the April 2026 decision to bring weapons in Beirut under government control;
(C) fully implementing all relevant United Nations Security Council resolutions;
(D) training and vetting members of the Lebanese Armed Forces and the Internal Security Forces;
(E) countering and interdicting revenue sources for Hezbollah and other malign actors, including revenues derived from financial crimes, Captagon, and other illicit good production and trafficking in Lebanon;
(F) detecting and interdicting trafficking of weapons, materials related to weapons of mass destruction, dual-use goods, and sensitive technologies in Lebanon; and
(G) implementing the program described in subsection (b).
(b) Program To build the capacity of the Lebanese Armed Forces and the Internal Security Forces with respect to Captagon and other illicit goods.—
(1) IN GENERAL.—The Secretary of State shall establish a program to provide assistance to strengthen the capacity of Lebanese security institutions to identify, track, and improve their forensics detection capabilities with respect to financial crimes and production and trafficking of Captagon and other illicit goods that provide a source of revenue for Hezbollah and other malign actors.
(2) PROGRAM REQUIREMENTS.—Recipients of assistance from the program required under paragraph (1)—
(A) shall be limited to Lebanese officials who have expertise and experience or are being trained in matters described in paragraph (1); and
(B) may be carried out, in the case of inbound exchanges, as part of appropriate exchange programs and international visitor programs administered by the Department of State.
(c) Briefing.—Not later than 15 days before the obligation of any funds appropriated pursuant to subsection (a), the Secretary of State shall brief the Committee on Foreign Relations of the Senate, the Committee on Appropriations of the Senate, the Committee on Foreign Affairs of the House of Representatives, and the Committee on Appropriations of the House of Representatives regarding—
(1) the steps taken during the previous year by the Lebanese security institutions to counter Iranian proxy forces operating in Lebanon, including Hezbollah, Hamas, and Palestinian Islamic Jihad;
(2) the steps taken during the previous year by Lebanese security institutions to counter the production and trafficking of Captagon and other illicit goods in Lebanon;
(3) how United States assistance created or augmented the capabilities of the Lebanese Armed Forces and the Internal Security Forces to undertake the steps described in paragraphs (1) and (2);
(4) how the production and trafficking of Captagon and other revenues sources, to include financial crimes and illicit good production and trafficking, has harmed the Lebanese economy and benefitted Hezbollah and other malign actors;
(5) the steps taken by the Lebanese Armed Forces to counter any instances of collusion between the Lebanese Armed Forces and Hezbollah, such as—
(A) promoting the establishment of rapid inspection units;
(B) conducting randomized spot checks;
(C) implementing mechanisms for incentivizing weapons relinquishment;
(D) implementing mechanisms for incentivizing outcome-based performance by Lebanese Armed Forces units and personnel; and
(E) imposing consequences, such as criminal liability, for Lebanese Armed Forces personnel who have colluded with Hezbollah; and
(6) how the assistance authorized under subsection (a) will further improve the capabilities of the Lebanese Armed Forces and the Internal Security Forces to counter Iranian proxy forces operating in Lebanon, including Hezbollah, Hamas, and Palestinian Islamic Jihad.
(a) Oversight of stabilization assistance.—
(1) STRATEGY.—Not later than 90 days after the date of the enactment of this Act, the Secretary of State shall submit an unclassified strategy, with a classified annex, if necessary, to the Committee on Foreign Relations of the Senate and the Committee on Foreign Affairs of the House of Representatives that describes—
(A) how the United States, working with relevant foreign governments, multilateral organizations, and nongovernmental organizations, will support the safe, informed, durable, and voluntary return of Syrian refugees in Lebanon back to their home communities;
(B) the diplomatic efforts carried out by the United States Government to urge contributing countries of the United Nations Interim Force in Lebanon to donate existing equipment, vehicles, and facilities to the Lebanese Armed Forces upon the termination of United Nations Interim Force in Lebanon’s mandate in accordance with United Nations Security Council Resolution 2790 (2025), pursuant to efforts to bolster the capability of the Lebanese Armed Forces in southern Lebanon;
(C) the diplomatic efforts carried out by the United States Government, including by supporting multilateral pledging events and using its positions in international financial institutions, to encourage strategic burden sharing and the coordination of donations with international donors, including foreign governments and multilateral organizations, to advance the provision of humanitarian assistance to the people of Lebanon, especially internally displaced persons; and
(D) how the United States Government is—
(i) overcoming reconstruction challenges in southern Lebanon to counter any role Hezbollah may be playing in reconstruction and provision of social services;
(ii) mitigating risk of diversion or benefit to non-state armed groups in Lebanon, particularly Hezbollah; and
(iii) ensuring effective delivery of assistance.
(2) INITIAL REPORT.—Before obligating any amounts from the fund established pursuant to section 3(b), the Secretary of State shall submit an unclassified report, with a classified annex, if necessary, to the Committee on Foreign Relations of the Senate, the Committee on Appropriations of the Senate, the Committee on Foreign Affairs of the House of Representatives, and the Committee on Appropriations of the House of Representatives that describes—
(A) accounting, monitoring, evaluation or oversight procedures being implemented to prevent the diversion of the United States Government assistance, including assistance from the fund established pursuant to section 3(b), to Hezbollah or other non-state armed groups in Lebanon or their affiliates and to ensure such assistance is being used for the purposes for which it was obligated; and
(B) the diplomatic efforts carried out by the United States Government, including by supporting multilateral pledging events and using its positions in international financial institutions, to encourage strategic burden sharing and the coordination of donations with international donors, including foreign governments and multilateral organizations, to advance the provision of assistance for the reconstruction of services and institutions of the Government of Lebanon and of municipal governments in Lebanon and the building and rebuilding of civilian infrastructure in Lebanon.
(3) RETENTION AND READINESS REPORT.—Not later than 180 days after the date of the enactment of this Act, the Secretary of State shall submit an unclassified report, with a classified annex, if necessary, to the congressional committees referred to in paragraph (2) that describes the effect of the amounts appropriated pursuant to subsections (c) and (d) of section 3 on the retention and readiness of the Lebanese Armed Forces and the Internal Security Forces.
(b) Oversight of support assistance.—Not later than 120 days after the date of the enactment of this Act, and annually thereafter for the following 3 years, the Secretary of State shall submit to the Committee on Foreign Relations of the Senate and the Committee on Foreign Affairs of the House of Representatives an unclassified report, with a classified annex, if necessary, that—
(1) describes the progress made by the Government of Lebanon, the Lebanese Armed Forces, and the Internal Security Forces and any remaining gaps in developing and implementing a plan, with timelines and measurable objectives—
(A) to fully disarm Hezbollah, including with the support of the United States and the international community;
(B) to expand state services and increasing legitimate political participation in Lebanese communities that are currently dependent on parallel services from Hezbollah; and
(i) the August 2025 decision to exercise a state monopoly of arms;
(ii) the September 2025 plan to achieve this monopoly by disarming Hezbollah;
(iii) the March 2026 decision to ban Hezbollah security and military activities; and
(iv) the April 2026 decision to bring weapons in Beirut under government control;
(2) details the Government of Iran’s illicit financing and support of armed non-state actors in Lebanon, including Hezbollah and institutions it controls, such as Al-Qard Al-Hassan;
(3) describes whether and how the political and economic stability, sovereignty, and territorial integrity of Lebanon are important for regional stability and the national economic and security interests of the United States;
(4) (A) describes the efforts led by the United States to coordinate and deconflict between the Lebanese Armed Forces and the Israel Defense Forces;
(B) assesses the steps that should be taken by the Lebanese Armed Forces to increase coordination and deconfliction;
(C) assesses the steps that should be taken by the Israel Defense Forces to increase coordination and deconfliction;
(D) describes additional authorities or tools that may aid these coordination and deconfliction efforts or increase the ability of the United States to provide effective guidance to the Lebanese Armed Forces and Israel Defense Forces; and
(E) describes efforts to build upon the monitoring mechanism led by the United States after the Announcement of a Cessation of Hostilities and Related Commitments on November 27, 2024, to establish a combined intelligence and military coordination body with international partners that sets clear, measurable objectives and time-bound metrics to ensure credibility and transparency in the process of disarming Hezbollah;
(5) identifies the steps the Government of Lebanon is taking to enact reforms to Lebanon’s banking and financial sectors, including—
(A) steps to implement Lebanon’s April 2025 bank secrecy law;
(B) steps to pass and implement a law to restructure Lebanon’s banking sector; and
(C) steps to pass and implement a law to address the allocation of losses in Lebanon’s banking sector;
(6) describes the progress made toward building peaceful relations between the Government of Lebanon and the Government of Israel, including—
(A) steps to pursue negotiations and efforts to impede negotiations;
(B) the advisory and coordination mechanisms set up by the United States and the international community;
(C) progress made as a result of direct negotiations that—
(i) recognize Lebanon’s sovereignty;
(ii) affirm that the Government of Lebanon, rather than any foreign power (such as Iran), is the representative of the Lebanese people;
(iii) undermine Iran’s claims to negotiate for Lebanon; and
(iv) undermine Iran’s attempts to intrude in Lebanon’s domestic affairs and the conduct of its foreign policy; and
(D) steps to suspend the enforcement of, or repeal, Lebanon’s anti-normalization laws, derived from Lebanon Law 1/1955, which was ratified by the Parliament of Lebanon on June 23, 1955, to prohibit any economic, commercial, or personal interactions between the people of Lebanon and the people of Israel, and provisions of the Lebanese Criminal Code and the Lebanese Code of Military Justice; and
(7) describes humanitarian and reconstruction needs and challenges in Lebanon, including—
(A) the immediate state of humanitarian needs and the long-term reconstruction needs in Lebanon, particularly south of the Litani river;
(B) the causes of such challenges;
(C) efforts that have been made to address these challenges;
(D) the effects of not addressing these challenges on the economy and security inside Lebanon; and
(E) the effects of such challenges on regional stability and security if applicable.