RFS0009

Written evidence submitted by

State Capture: Research and Action and the Independent Anti-Corruption Commission (Ukraine)

Closing the sanctions net around Russia’s military industrial complex

Introduction and summary

The following evidence is submitted jointly by State Capture: Research and Action and the Independent Anticorruption Commission (Ukraine) (the “submitting organisations”) in response to the Treasury Committee’s Call for Evidence: Are the UK’s Russia Financial Sanctions Working?
State Capture: Research and Action (“SC:RA”) is a non-profit foundation registered in the Netherlands (Stichting). Its focus is on investigating and countering state capture and associated activities across the globe. We envision a global society where states exist to serve their people, and where elites are unable to bend laws and institutions to serve their own interests. We convene and support investigators, civil society, data analysts, policy experts, academics and legal professionals to conduct research, undertake policy advocacy and initiate legal proceedings to promote a deeper understanding of and counter state capture. Since the outbreak of Russia’s full-scale invasion of Ukraine in February 2022, SC:RA has supported and coordinated a network of investigators, data analysts and lawyers to collect and analyse evidence on institutions, entities, schemes, and individuals that enable and/or profit from Russia’s aggression – using this data to pursue legal action and policy advocacy.
The Independent Anticorruption Commission (“NAKO”) is a non-profit, non-partisan Ukrainian organisation that tackles corruption in Ukraine's defence sector by conducting thorough research, engaging in effective advocacy, and increasing public awareness through targeted campaigns. Since Russia’s full-scale invasion of Ukraine, NAKO has focused on activities that undermine the Russian war effort. NAKO, with its civil society partners, has previously provided evidence that Western components continue to enable and support Russia’s unlawful war against Ukraine [1]. In cooperation with Ukrainian and international partners, NAKO also monitors sanctions introduced in response to Russia’s aggression, informs Ukrainian and foreign authorities about observed trends and gaps in the design, implementation and enforcement of sanctions frameworks, and submits sanctions proposals targeting key players in Russia’s military-industrial complex.
This submission responds to the first area of interest identified by the Committee: (1) whether financial sanctions instituted by the UK on Russia, are complete and effective in terms of the entities that have been designated, and the entities which have to comply with the rules. The submission specifically focuses on UK sanctions against entities involved in or enabling the Russian military-industrial complex - highlighting gaps in designations and recommending a more systematic approach to sanctions in this critical sector.
In summary, despite the significant number of designations that have been made by the UK Government (“UKG”) since February 2022, the defence sector of the Russian Federation remains largely unaffected by UK sanctions. This is mainly because the UKG has focused its designations on apex Russian military enterprises but has by and large ignored key intermediaries both in and outside Russia that play crucial roles in supplying the Russian military industrial complex with western goods and technology.
The submitting organisations contend that, for the existing designations to be more effective, and for the UK’s sanctions regime to achieve its goal of undermining the Russian war effort, a threefold solution is required:

Firstly, a more strategic and comprehensive approach must be taken to ensure that all key Russian military-industrial complex actors, including their intermediaries and proxies are designated and therefore cut from global supply chains;
Secondly, third-country suppliers and intermediaries must be proactively targeted to further increase the cost of and difficulty in procuring critical components by Russia’s arms industry; and
Thirdly, due diligence obligations on UK companies that export critical military and dual-use goods must be tightened to reflect the impact of this trade.

The issue: Russia’s military industrial complex remains largely unaffected by UK sanctions

The stated aim of UK sanctions is to deter future malign activity, to disrupt current malign activity, and to demonstrate the readiness to defend international norms.[2] The UK’s targeted sanctions regime relating to Russia has the specific purpose of “encouraging Russia to cease actions destabilising Ukraine or undermining or threatening the territorial integrity, sovereignty or independence of Ukraine”.[3] The submitting organisations’ analysis of UK sanctions against the Russian military industrial complex reveal that, to date, UK sanctions have fallen well short of achieving these aims.
Russia's expenditure on defence has dramatically increased since the start of the war – now estimated to be around 7.5% of GDP.[4] Critically, supply chains have been restructured in order to circumvent sanctions and export controls, and to secure access to crucial western goods, technology and software.[5] Factories that manufacture ammunition, vehicles, and equipment are operating 24/7, often working at full capacity.[6] These factories are being supplied with western components through a complex web of Russian and foreign intermediaries.[7] To date, UK sanctions have focused almost exclusively on companies at the apex of Russia’s military industrial complex – i.e. those that directly supply the Russian Armed Forces. However, sanctioning these companies but not their suppliers, intermediaries and foreign proxies has very little, if any, impact on Russia’s ability to procure western goods and technology. With Russia’s economy now on a permanent war footing – a more comprehensive approach to sanctions is required.

UK sanctions target the tip of the Russian military complex iceberg

As of the end of 2023, the UK had designated 1,681 individuals and 129 entities (of which only 53 are believed to be involved in the military industrial complex [8]) under the Russia (Sanctions) (EU Exit) Regulations 2019.[9] The Russian defence sector consists of an estimated 1,355 legal entities.[10] Within the Russian defence sector, UK designations are almost exclusively aimed at “apex” companies – enterprises that sell directly to the Russian Ministry of Defence.[11] Conversely, the UK has sanctioned only a fraction of key subsidiaries and intermediaries that play pivotal roles in defence sector supply chains. According to NAKO analysis, there are 118 key defence contractors operating under the umbrella of the Rostec Corporation and the Federal Agency for State Property Management.[12] To date, the UK has sanctioned a mere 1.6% of the 118 companies.[13] By comparison, the European Union has sanctioned 39% of the same companies, the US – 50%.[14] Whilst sanctioning the “apex” companies is important and symbolic, these enterprises are no longer involved in direct imports of western goods and technology. Without designating key subsidiaries, intermediaries and enablers that operate the new supply chains, UK sanctions have little, if any, impact on Russia’s military industrial complex.

ii. Case study: UK sanctions have little impact on Russian fighter jet makers

NAKO’s analysis of Russian fighter jet components reveals that Russian jets are manufactured using western-made components listed in the Common High Priority Items List.[15] In 2023, Russia is estimated to have imported $4,2 billion USD worth of these components,[16] of which $11,156,601.26 were manufactured by UK companies.[17]
These key components are supplied to Russia by hundreds of intermediaries – mainly from China. NAKO has identified the top 119 intermediaries based on types and volumes of products shipped (see Annex 3).[18] Of these 119 top intermediaries, only one has been sanctioned by the UKG.[19]
Further, NAKO has identified 56 Russian companies that play critical roles in importing critical components for Russian fighter jet production.[20] Of these 56 companies, only five have been sanctioned by the UKG.[21] By contrast, the United States has sanctioned 34 out of 56, while the EU has sanctioned 10.[22]
For example – according to Russian import data, $380,000 USD worth of British optics have been supplied to JSC Production Association «Ural Optical and Mechanical Plant» (part of Shvabe Holding within the State-owned Rostec Corporation).[23] It is highly likely that these components are being used in the production of bomb aiming systems, laser distance measuring systems and optical laser systems for fighter jets, including Su-27s.[24] These products were initially bought by a Kyrgyz company, and then re-exported to Russia via Thailand.[25]
These findings are corroborated by another case study reported in March 2024 by Important Stories. According to this report, in 2023, over £3 million GBP worth of equipment from the UK manufacturer Renishaw was imported into Russia.[26] Renishaw manufactures precise measuring systems which are crucial for ensuring accuracy in the production of military equipment.[27] Renishaw stresses that it has ceased all direct sales to Russia and “tries to control any attempts to purchase products by alternative means”.[28] Of the five top importers of Renishaw products into Russia identified by Important Stories,[29] only one has been sanctioned by the UKG.[30]

Proposed solution: more systematic targeting of supply chains and better due diligence

The submitting organisations contend that, for the existing designations to be more effective, and for the UK’s sanctions regime to achieve its goal of undermining the Russian war effort, a threefold solution is required:

Firstly, a more strategic and comprehensive approach must be taken to ensure that all key Russian military-industrial complex actors, including their intermediaries and proxies are designated and therefore cut from global supply chains;
Secondly, third-country suppliers and intermediaries must be proactively targeted to further increase the cost of and difficulty in procuring critical components by Russia’s arms industry; and
Thirdly, due diligence obligations on UK companies that export critical military and dual-use goods must be tightened to reflect the impact of this trade.

Specifically, we call on the UKG to sanction: (a) all Russian weapons manufacturers; (b) all Russian companies importing western-made components necessary for the manufacture of weapons and military equipment; and (c) all third-country suppliers and intermediaries that supply western components and technology to Russian importers. Whilst it may be argued that it would be impossible to target all intermediaries as new entities can be set up in response to sanctions, the goal should be to raise the cost of circumvention to a point at which it would become unviable. The only way to achieve this is to target all known links in the supply chain in and outside Russia, swiftly and exhaustively.
Finally, it is becoming increasingly clear that western (including UK) dual use goods play a major role in the Russian war effort. Without the ability to import these goods and technology through back channels, Russia’s capacity to manufacture fighter jets, drones and other complex weapons systems would be seriously undermined. In addition to tackling intermediaries that operate the back channels, it is also incumbent on the producers of these goods to conduct better due diligence and know-your-client investigations. To this end, the submitting organisations call on the UKG to tighten due diligence obligations on manufacturers of goods on the Common High Priority Items List.[31] Whilst improved due diligence standards may not catch all forms of circumvention, it would significantly reduce opportunities for circumvention and prevent UK companies from becoming unwitting supporters of the Russian war effort.

Respectfully submitted.

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March 2024

[2] Deter, Disrupt and Demonstrate – UK sanctions in a contested world. UK Sanctions strategy, 2024, available at https://assets.publishing.service.gov.uk/media/65d720cd188d770011038890/Deter-disrupt-and-demonstrate-UK-sanctions-in-a-contested-world.pdf

[10] Based on NAKO analysis using pre-2018 data and external estimates (e.g.: FOI, “Russia’s Military R&D Infrastructure – A Primer”, 2021, p. 10, available at https://foi.se/rest-api/report/FOI-R--5124--SE). As of 2018, the identity of companies operating in the military industrial sector is officially classified.

[11] E.g.: JSC Kalashnikov Concern (ID15305), Rostec (ID14185), Almaz Antey Corporation (ID13076).

[15] List of Common High Priority Items (Version of February 2024), available at https://finance.ec.europa.eu/system/files/2023-09/list-common-high-priority-items_en.pdf

[16] This assessment is estimated based on import value of the seven High Priority items according to the Russian 2023 customs data.

[17] This assessment was made on available export data for components from the Highest Priority List in 2023

[18] The analysis is based on the Russian customs data. The list of top entities includes the companies that shipped the goods from at least two of seven main High Priority items identified in the Russian aircraft.

[20] This assessment is based on the following criteria: (1) the company features in the top importer list in Russian import data for at least two of the seven main critical component HS Codes in 2023; (2) the company has already been sanctioned by at least one leading jurisdiction for sanctions evasion.

[21] SMT ILOGIC LLC (ID 160052), LLC TESTKOMPLEKT (ID 16055), LLC STAUT (ID 16054), AO NPP TOPAZ (ID 15730), JSC RADIOTECHKOMPLEKT (ID 16265).

[24] Based on Russian import data showing import of such components by manufacturers of Russian fighter jets - data can be confidentially provided to the Committee on request.

[25] Further evidence to support these findings can be confidentially provided to the Committee on request.

[29] NPK Fotonika, Testkomplekt, Mir Stanochnika, Algoritm Tochnosti and Vektor Etalon.

[31] List of Common High Priority Items (Version of February 2024), available at https://finance.ec.europa.eu/system/files/2023-09/list-common-high-priority-items_en.pdf