On November 13, 2025, Bulgaria’s National Assembly made headlines by overturning President Rumen Radev’s veto on a controversial bill that paves the way for government control and potential sale of Lukoil’s Burgas oil refinery. This high-stakes legislative move comes as the country races against a looming deadline: U.S. sanctions on Russian oil giants Lukoil and Rosneft, set to take effect on November 21, threaten to disrupt Bulgaria’s fuel supplies during the critical winter months.
The bill, approved by lawmakers the previous week, grants a government-appointed commercial manager sweeping powers to oversee the continued operation of Lukoil’s refinery and, if necessary, to sell the company. According to Reuters, this decision is intended to shield Bulgaria’s largest fuel asset from the direct impact of the U.S. sanctions, which prohibit transactions with Lukoil after November 21. The refinery, located in the Black Sea city of Burgas, is a vital cog in Bulgaria’s energy infrastructure, supplying not just the country but also a network of hundreds of gas stations and fuel storage facilities.
The U.S. Treasury Department’s Office of Foreign Assets Control (OFAC) and the United Kingdom imposed sanctions on Lukoil and Rosneft last month, escalating pressure on Russian President Vladimir Putin to end the war in Ukraine. The sanctions left European countries scrambling for solutions, with Bulgaria’s lawmakers acting with unusual speed. As The Sofia Globe reported, parliament’s energy committee convened late on November 12 to discuss the president’s veto, and the motion to override it was swiftly added to the National Assembly’s agenda for the following day.
The final tally—128 votes in favor, 59 opposed, and no abstentions—reflected a decisive stance by Bulgaria’s legislature. The move clears the way for the Cabinet to appoint a special administrator at the refinery as soon as the bill is published in the State Gazette, which could happen as early as November 14. While the legislation does not mention Lukoil by name, the bill’s sponsors made no secret that the changes were designed with the Russian oil company in mind.
President Radev, who has held office since January 2017 and is no stranger to wielding his limited veto power (this was his 46th veto, with only eight previously upheld), voiced strong opposition to the bill. In his veto statement, Radev warned that the legislation amounted to the indirect nationalization of private companies and opened the door to “arbitrariness and malfeasance,” potentially breaching constitutional and international legal norms. He also expressed concern that the bill lacked adequate safeguards against future financial claims against the Bulgarian state—a worry that resonated with some lawmakers but ultimately failed to sway the majority.
According to UNN and Reuters, Radev’s objections were swiftly dismissed by the National Assembly. The urgency was palpable: with the OFAC deadline for winding down transactions with Lukoil set for November 21, Bulgaria’s government faced the prospect of fuel shortages if the refinery’s operations were disrupted. “Together with the government, we are working so that both the people in the refinery and the refinery itself work well,” former Prime Minister Boyko Borissov, leader of the GERB party that heads the coalition government, told the Bulgarian news agency BTA. Borissov remained optimistic that Bulgaria could secure an extension of the U.S. sanctions deadline, perhaps as early as the following week.
The stakes are high not just for Bulgaria’s energy sector but also for its broader economy. The Burgas refinery is one of the largest in the Balkans, and its uninterrupted operation is crucial for ensuring stable fuel prices and supplies. The specter of winter fuel shortages has prompted anxiety among both policymakers and the public. As Reuters pointed out, the potential for widespread disruption has spurred the government to act decisively, even at the risk of constitutional controversy.
Meanwhile, Lukoil itself has been scrambling to adapt to the new sanctions environment. The company has reportedly sought an extension from Washington to the November 21 deadline, hoping for more time to wind down commitments and entertain offers for its global assets. Three sources familiar with the matter told Reuters that Lukoil is reviewing bids for its worldwide holdings, including infrastructure in other countries. In Iraq, Lukoil declared force majeure at the massive West Qurna-2 oil field and suspended operations. In Moldova, officials have entered talks with Lukoil about purchasing the company’s facilities at Chisinau Airport, including its aviation fuel depot.
The Bulgarian legislation’s rapid passage underscores the broader European scramble to insulate critical energy infrastructure from the ripple effects of Western sanctions on Russia. While Bulgaria’s bill does not explicitly name Lukoil, the intent is clear: to ensure that, come November 21, the refinery remains operational and under Bulgarian control, rather than being forced offline by international restrictions. The government’s new powers include the appointment of a special administrator who can, if necessary, sell the refinery to a third party—a step seen as a last resort to maintain fuel supplies.
President Radev’s warnings about potential constitutional breaches and international legal ramifications have not fallen on deaf ears, but with winter approaching and fuel security at stake, the National Assembly has chosen expedience over caution. According to The Sofia Globe, since Radev took office, the legislature has overridden the vast majority of his vetoes, reflecting both the limited nature of the presidential veto in Bulgaria’s political system and the determination of lawmakers to chart their own course in times of crisis.
For now, all eyes are on the next steps: the appointment of a special administrator, the publication of the bill in the State Gazette, and the outcome of Bulgaria’s request for a sanctions extension from Washington. The coming days will reveal whether Bulgaria’s gamble pays off—or whether the country will have to navigate the winter with its energy supplies hanging in the balance.
As Bulgaria’s government moves swiftly to secure its energy future, the debate over constitutional principles, international law, and national interest continues to simmer. But with the clock ticking toward November 21, the overriding priority remains clear: keep the lights—and the refinery—on.
