PJSC Aeroflot, 1 Arbat St., 119019, Moscow, Russia; Order Renewing Temporary Denial of Export Privileges

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Published

September 17, 2026

Issuing agencies

Commerce DepartmentIndustry and Security Bureau

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<title>Federal Register, Volume 91 Issue 179 (Thursday, September 17, 2026)</title>
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[Federal Register Volume 91, Number 179 (Thursday, September 17, 2026)]
[Notices]
[Pages 58840-58843]
From the Federal Register Online via the Government Publishing Office [<a href="http://www.gpo.gov">www.gpo.gov</a>]
[FR Doc No: 2026-19020]

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DEPARTMENT OF COMMERCE

Bureau of Industry and Security

PJSC Aeroflot, 1 Arbat St., 119019, Moscow, Russia; Order
Renewing Temporary Denial of Export Privileges

Pursuant to Section 766.24 of the Export Administration
Regulations, 15 CFR parts 730-774 (``EAR'' or ``the Regulations''),\1\
I hereby grant the request of the Office of Export Enforcement
(``OEE'') to renew the temporary denial order (``TDO'') issued in this
matter on September 16, 2025. I find that renewal of this order is
necessary in the public interest to prevent an imminent violation of
the Regulations and that renewal for an extended period is appropriate
because PJSC Aeroflot (``Aeroflot'') has engaged in a pattern of
repeated, ongoing and/or continuous apparent violations of the EAR.
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\1\ On August 13, 2018, the President signed into law the John
S. McCain National Defense Authorization Act for Fiscal Year 2019,
which includes the Export Control Reform Act of 2018, 50 U.S.C.
4801-4852 (``ECRA''). Section 4820(a)(5) of ECRA authorizes the
issuance of temporary denial orders. 50 U.S.C. 4820(a)(5).

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[[Page 58841]]

I. Procedural History

On April 7, 2022, the then-Assistant Secretary of Commerce for
Export Enforcement (``Assistant Secretary'') signed an order denying
Aeroflot export privileges for a period of 180 days on the grounds that
issuance of the order was necessary in the public interest to prevent
an imminent violation of the Regulations. The order was issued ex parte
pursuant to Section 766.24(a) of the Regulations and was effective upon
issuance.\2\ This temporary denial order was subsequently renewed in
accordance with Section 766.24(d) of the Regulations.\3\ The renewal
order was issued on October 3, 2022,\4\ and was effective upon
issuance. Subsequent renewal orders were issued on March 29, 2023,
September 23, 2023, September 20, 2024, and September 16, 2025
respectively, and were also effective upon issuance.\5\
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\2\ The TDO was published in the Federal Register on April 12,
2022 (87 FR 21611).
\3\ At the time of the renewal, Section 766.24(d) provides that
BIS may seek renewal of a temporary denial order for additional 180-
day renewal periods, if it believes that renewal is necessary in the
public interest to prevent an imminent violation. Renewal requests
are to be made in writing no later than 20 days before the scheduled
expiration date of a temporary denial order.
\4\ The October 3, 2022 renewal order, which was effective upon
issuance, was published in the Federal Register on October 7, 2022
(87 FR 60985).
\5\ The March 29, 2023 renewal order was published in the
Federal Register on April 3, 2023 (88 FR 19609). The September 23,
2023 renewal order was published in the Federal Register on
September 28, 2023 (88 FR 66807). The September 20, 2024 renewal
order was published in the Federal Register on September 25, 2024
(89 FR 78283). The September 16, 2025 renewal order was published in
the Federal Register on September 19, 2025 (90 FR 45178).
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On August 3, 2026, BIS, through OEE, submitted a written request
for renewal of the TDO that was issued on September 16, 2025. The
written request was made more than 20 days before the TDO's scheduled
expiration and, given the temporary suspension of international mail
service to Russia, OEE has attempted to deliver a copy of the renewal
request to Aeroflot by alternative means in accordance with Sections
766.5 and 766.24(d) of the Regulations. No opposition to the renewal of
the TDO has been received.

II. Renewal of the TDO

A. Legal Standard

Pursuant to Section 766.24, BIS may issue an order temporarily
denying a respondent's export privileges upon a showing that the order
is necessary in the public interest to prevent an ``imminent
violation'' of the Regulations, or any order, license or authorization
issued thereunder. 15 CFR 766.24(b)(1) and 766.24(d). ``A violation may
be `imminent' either in time or degree of likelihood.'' 15 CFR
766.24(b)(3). BIS may show ``either that a violation is about to occur,
or that the general circumstances of the matter under investigation or
case under criminal or administrative charges demonstrate a likelihood
of future violations.'' Id. As to the likelihood of future violations,
BIS may show that the violation under investigation or charge ``is
significant, deliberate, covert and/or likely to occur again, rather
than technical or negligent[.]'' Id. A ``lack of information
establishing the precise time a violation may occur does not preclude a
finding that a violation is imminent, so long as there is sufficient
reason to believe the likelihood of a violation.'' Id.
If BIS believes that renewal of a denial order is necessary in the
public interest to prevent an imminent violation, it may file a written
request for renewal, with any modifications if appropriate. 15 CFR
766.24(d)(1). The written request, which must be filed no later than 20
days prior to the TDO's expiration, should set forth the basis for
BIS's belief that renewal is necessary, including any additional or
changed circumstances. Id. ``In cases demonstrating a pattern of
repeated, ongoing and/or continuous apparent violations, BIS may
request the renewal of a temporary denial order for an additional
period not exceeding one year.'' \6\ Id.
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\6\ 88 FR 59791 (Aug. 30, 2023).
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B. The TDO and BIS's Request for Renewal

Effective February 24, 2022, BIS imposed controls on aviation-
related (e.g., Commerce Control List Categories 7 and 9) items to
Russia, including a license requirement for the export, reexport or
transfer (in-country) to Russia of any aircraft or aircraft parts
specified in Export Control Classification Number (``ECCN'') 9A991
(Section 746.8(a)(1) of the EAR).\7\ BIS will review any export or
reexport license applications for such items under a policy of denial.
See Section 746.8(b). Effective March 2, 2022, BIS excluded any
aircraft registered in, owned, or controlled by, or under charter or
lease by Russia or a national of Russia from being eligible for license
exception Aircraft, Vessels, and Spacecraft (``AVS'') (Section 740.15
of the EAR).\8\ Any U.S.-origin aircraft or foreign aircraft that
includes more than 25% controlled U.S.-origin content, and that is
registered in, owned, or controlled by, or under charter or lease by
Russia or a national of Russia, is subject to a license requirement
before it can travel to Russia.
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\7\ 87 FR 12226 (Mar. 3, 2022). Additionally, BIS published a
final rule effective April 8, 2022, which imposed licensing
requirements on items controlled on the Commerce Control List
(``CCL'') under Categories 0-2 that are destined for Russia or
Belarus. Accordingly, now all CCL items require export, reexport,
and transfer (in-country) licenses if destined for or within Russia
or Belarus. 87 FR 22130 (Apr. 14, 2022).
\8\ 87 FR 13048 (Mar. 8, 2022).
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OEE's request for renewal for a period of one year is based upon
the facts underlying the issuance of the initial TDO and the renewal
orders subsequently issued in this matter, as well as other evidence
developed during this investigation. These facts and evidence
demonstrate that Aeroflot has continued, and continues, to disregard
U.S. export controls and the terms of previously issued TDOs.
Specifically, the initial TDO, issued on April 7, 2022, was based on
evidence that Aeroflot engaged in conduct prohibited by the Regulations
by operating multiple aircraft subject to the EAR and classified under
ECCN 9A991.b on flights into Russia after March 2, 2022 from
destinations including, but not limited to, Beijing, China, Delhi,
India, and Dubai, United Arab Emirates, without the required BIS
authorization.\9\ Further evidence submitted by BIS indicated that
Aeroflot was continuing to operate aircraft subject to the EAR
domestically on flights within Russia, potentially in violation of
Section 736.2(b)(10) of the Regulations.
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\9\ Publicly available flight tracking information shows that on
March 6, 2022, serial number (SN) 65309 flew from Beijing, China to
Moscow, Russia, and SN 41690 flew from Dubai, UAE to Moscow, Russia.
In addition, on March 7, 2022, SN 63511 flew from Delhi, India to
Moscow, Russia.
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As discussed in the prior renewal orders, evidence presented by BIS
indicated that, after the initial order was issued, Aeroflot continued
to operate aircraft subject to the EAR and classified under ECCN
9A991.b on flights both into and within Russia, in violation of the
Regulations and the TDO itself.\10\ Specifically, the October 3, 2022
renewal order detailed flights into and out of Russia from/to Minsk,
Belarus, Delhi, India, and Istanbul, Turkey, as well as within
Russia.\11\ The March 29, 2023 renewal order detailed flights into and
out of Russia from/to Yerevan, Armenia, Shanghai, China, Bangkok,

[[Page 58842]]

Thailand, and Urgench, Uzebekistan, as well as within Russia.\12\ The
September 23, 2023 renewal order detailed flights into and out of
Russia from/to Beijing, China, Delhi, India, and Antalya, Turkey.\13\
The September 20, 2024 renewal order detailed flights into and out of
Russia from/to Antalya, Turkey, Tashkent, Uzbekistan, and Sharm el-
Sheikh, Egypt.\14\ Additionally, the September 16, 2025 renewal order
detailed flights into and out of Russia from/to Cairo, Egypt, Antalya,
Turkey, and Phuket, Thailand, as well as within Russia.\15\
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\10\ Engaging in conduct prohibited by a denial order violates
the Regulations. 15 CFR 764.2(a) and (k).
\11\ Publicly available flight tracking information shows that
SN 41690 flew from Istanbul, Turkey to Moscow, Russia on September
20, 2022 and from Delhi, India to Moscow, Russia on September 23,
2022. In addition, on September 1, 2022, SN 41214 flew from Minsk,
Belarus to Moscow, Russia. On September 13, 2022, SN 41214 flew from
Moscow, Russia to Sochi, Russia.
\12\ Publicly available flight tracking information shows that
SN 41214 flew from Yerevan, Armenia to Moscow, Russia on February
16, 2023 and from Urgench, Uzbekistan to Moscow, Russia on March 1,
2023. In addition, on March 2, 2023, SN 41214 flew from Moscow,
Russia to Sochi, Russia. On February 4, 2023, SN 41690 flew from
Bangkok, Thailand to Moscow, Russia. On March 5, 2023 and March 19,
2023, respectively, SNs 65309 and 41690 flew from Shanghai, China to
Moscow, Russia.
\13\ Publicly available flight tracking information shows that
on August 31, 2023, SN 41690 flew from Beijing, China to Moscow
Russia. On September 19, 2023, SN 65309 flew from Delhi, India to
Moscow, Russia. On September 17, 2023, SN 65307 flew from Antalya,
Turkey to Moscow, Russia.
\14\ Publicly available flight tracking information shows that
on September 10, 2024, SN 41214 flew from Nizhny Novgorod, Russia to
Antalya, Turkey. On August 14, 2024, SN 41214 flew from Moscow,
Russia to Tashkent, Uzbekistan and on August 9, 2025 SN 41214 flew
from Sharm el-Sheikh, Egypt to Moscow, Russia.
\15\ Publicly available flight tracking information shows that
on August 17, 2025, SN 41214 flew from Cairo, Egypt to Moscow,
Russia. On July 25, 2025, SN 65309 flew from Antalya, Turkey to
Moscow, Russia. On August 8, 2025, SN 65307 flew from Phuket,
Thailand to Moscow, Russia and flew from Moscow, Russia to Yuzhno-
Sakhalinsk, Russia on August 14, 2025.
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Since that time, Aeroflot has continued to engage in conduct
prohibited by the applicable TDO and Regulations. In its August 3, 2026
request for renewal of the TDO, BIS submitted evidence that Aeroflot is
operating aircraft subject to the EAR and classified under ECCN
9A991.b, both on flights into and within Russia, in violation of the
September 19, 2025 renewal order and/or the Regulations. Specifically,
BIS's evidence and related investigation demonstrates that Aeroflot
continued to operate aircraft subject to the EAR, including, but not
limited to, on flights into and out of Russia from/to Minsk, Belarus;
Cairo, Egypt; Antalya, Turkey; and Phuket, Thailand, as well as
domestically within Russia. Information about those flights includes,
but is not limited to, the following:

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Departure/arrival
Tail No. Serial No. Aircraft type cities Dates
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RA-73126....................... 41214 737-8LJ (B738)... Antalya, TR/ July 16, 2026.
Novosibirsk, RU.
RA-73126....................... 41214 737-8LJ (B738)... Yekaterinburg, RU/ July 8, 2026.
Hurghada, EG.
RA-73126....................... 41214 737-8LJ (B738)... Sharm el-Sheikh, July 7, 2026.
EG/
Yekaterinburg,
RU.
RA-73126....................... 41214 737-8LJ (B738)... Moscow, RU/ July 6, 2026.
Makhachkala, RU.
RA-73126....................... 41214 737-8LJ (B738)... Antalya, TR/ July 5, 2026.
Moscow, RU.
RA-73144....................... 41690 777-3M0 (ER) Phuket, TH/ July 14, 2026.
(B77W). Vladivostok, RU.
RA-73144....................... 41690 777-3M0 (ER) Moscow, RU/Male, July 7, 2026.
(B77W). MV.
RA-73144....................... 41690 777-3M0 (ER) Vladivostok, RU/ July 5, 2026.
(B77W). Moscow, RU.
RA-73144....................... 41690 777-3M0 (ER) Khabarovsk, RU/ July 3, 2026.
(B77W). Moscow, RU.
RA-73144....................... 41690 777-3M0 (ER) Bangkok, TH/ June 30, 2026.
(B77W). Moscow, RU.
RA-73146....................... 65309 777-300 (ER) Bangkok, TH/ July 13, 2026.
(B77W). Moscow, RU.
RA-73146....................... 65309 777-300 (ER) Moscow, RU/ July 7, 2026.
(B77W). Vladivostok, RU.
RA-73146....................... 65309 777-300 (ER) Petropavlovsk- July 5, 2026.
(B77W). Kamchatsky, RU/
Moscow, RU.
RA-73146....................... 65309 777-300 (ER) Bangkok, TH/ June 22, 2026.
(B77W). Moscow, RU.
RA-73146....................... 65309 777-300 (ER) Moscow, RU/ June 21, 2026.
(B77W). Bangkok, TH.
RA-73150....................... 65307 777-3M0 (ER) Male, MV/Moscow, July 12, 2026.
(B77W). RU.
RA-73150....................... 65307 777-3M0 (ER) Moscow, RU/ July 5, 2026.
(B77W). Vladivostok, RU.
RA-73150....................... 65307 777-3M0 (ER) Moscow, RU/Male, July 3, 2026.
(B77W). MV.
RA-73150....................... 65307 777-3M0 (ER) Male, MV/Moscow, July 2, 2026.
(B77W). RU.
RA-73150....................... 65307 777-3M0 (ER) Phuket, TH/ June 9, 2026
(B77W). Vladivostok, RU.
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III. Findings

Under the applicable standard set forth in Section 766.24 of the
Regulations and my review of the entire record, I find that the
evidence presented by BIS convincingly demonstrates that Aeroflot has
acted in violation of the Regulations and the TDO; that such violations
have been significant and deliberate; and that given the foregoing and
the nature of the matters under investigation, there is a likelihood of
imminent violations. Moreover, I find that renewal for an extended
period is appropriate because Aeroflot has engaged in a pattern of
repeated, ongoing and/or continuous apparent violations of the EAR.
Therefore, renewal of the TDO for one year is necessary in the public
interest to prevent imminent violation of the Regulations and to give
notice to companies and individuals in the United States and abroad
that they should avoid dealing with Aeroflot, in connection with export
and reexport transactions involving items subject to the Regulations
and in connection with any other activity subject to the Regulations.

IV. Order

It is therefore ordered:
First, PJSC Aeroflot, 1 Arbat St., 119019, Moscow, Russia, when
acting for or on their behalf, any successors or assigns, agents, or
employees may not, directly or indirectly, participate in any way in
any transaction involving any commodity, software or technology
(hereinafter collectively referred to as ``item'') exported or to be
exported from the United States that is subject to the EAR, or in any
other activity subject to the EAR including, but not limited to:
A. Applying for, obtaining, or using any license (except directly
related to safety of flight), license exception, or export control
document;
B. Carrying on negotiations concerning, or ordering, buying,
receiving, using, selling, delivering, storing, disposing of,
forwarding, transporting, financing, or otherwise servicing in any way,
any transaction involving any item exported or to be exported from the
United States that is subject to the EAR except directly related to
safety of flight and authorized by BIS pursuant to Section 764.3(a)(2)
of the Regulations, or engaging in any other activity subject to the
EAR except directly related to safety of flight and authorized by BIS
pursuant to Section 764.3(a)(2) of the Regulations; or
C. Benefitting in any way from any transaction involving any item
exported or to be exported from the United States

[[Page 58843]]

that is subject to the EAR, or from any other activity subject to the
EAR except directly related to safety of flight and authorized by BIS
pursuant to Section 764.3(a)(2) of the Regulations.
Second, that no person may, directly or indirectly, do any of the
following:
A. Export, reexport, or transfer (in-country) to or on behalf of
Aeroflot any item subject to the EAR except directly related to safety
of flight and authorized by BIS pursuant to Section 764.3(a)(2) of the
Regulations;
B. Take any action that facilitates the acquisition or attempted
acquisition by Aeroflot of the ownership, possession, or control of any
item subject to the EAR that has been or will be exported from the
United States, including financing or other support activities related
to a transaction whereby Aeroflot acquires or attempts to acquire such
ownership, possession or control except directly related to safety of
flight and authorized by BIS pursuant to Section 764.3(a)(2) of the
Regulations;
C. Take any action to acquire from or to facilitate the acquisition
or attempted acquisition from Aeroflot of any item subject to the EAR
that has been exported from the United States except directly related
to safety of flight and authorized by BIS pursuant to Section
764.3(a)(2) of the Regulations;
D. Obtain from Aeroflot in the United States any item subject to
the EAR with knowledge or reason to know that the item will be, or is
intended to be, exported from the United States except directly related
to safety of flight and authorized by BIS pursuant to Section
764.3(a)(2) of the Regulations; or
E. Engage in any transaction to service any item subject to the EAR
that has been or will be exported from the United States and which is
owned, possessed or controlled by Aeroflot, or service any item, of
whatever origin, that is owned, possessed or controlled by Aeroflot if
such service involves the use of any item subject to the EAR that has
been or will be exported from the United States except directly related
to safety of flight and authorized by BIS pursuant to Section
764.3(a)(2) of the Regulations. For purposes of this paragraph,
servicing means installation, maintenance, repair, modification, or
testing.
Third, that, after notice and opportunity for comment as provided
in section 766.23 of the EAR, any other person, firm, corporation, or
business organization related to Aeroflot by ownership, control,
position of responsibility, affiliation, or other connection in the
conduct of trade or business may also be made subject to the provisions
of this Order.
In accordance with the provisions of Sections 766.24(e) of the EAR,
Aeroflot may, at any time, appeal this Order by filing a full written
statement in support of the appeal with the Office of the
Administrative Law Judge, U.S. Coast Guard ALJ Docketing Center, 40
South Gay Street, Baltimore, Maryland 21202-4022.
In accordance with the provisions of Section 766.24(d) of the EAR,
BIS may seek renewal of this Order by filing a written request not
later than 20 days before the expiration date. A renewal request may be
opposed by Aeroflot as provided in Section 766.24(d), by filing a
written submission with the Assistant Secretary of Commerce for Export
Enforcement, which must be received not later than seven days before
the expiration date of the Order.
A copy of this Order shall be provided to Aeroflot, and shall be
published in the Federal Register.
This Order is effective immediately and shall remain in effect for
one year.

Dated: September 11, 2026.
David A. Peters,
Assistant Secretary of Commerce Secretary for Export Enforcement.
[FR Doc. 2026-19020 Filed 9-16-26; 8:45 am]
BILLING CODE 3510-DT-P

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