Why It Matters

A recent Congressional Research Service (CRS) report, published Aug. 11, details the escalating threat of Russian hybrid warfare across Europe, documenting at least 151 incidents of reported Russian operations from February 2022 to March 2026. The findings raise urgent questions about how Congress and the Trump Administration should respond to tactics that blur the line between war and peace, combining military and non-military tools to destabilize U.S. allies.

The volume and variety of Russian operations pose a direct challenge to NATO cohesion and European security. One study found the number of Russian hybrid attacks in Europe quadrupled from 2023 to 2024, signaling an acceleration that demands immediate policy attention. These are not isolated incidents but a coordinated strategy that tests the resolve of individual nations and the alliance as a whole.

For Congress, the trend underscores the limits of existing sanctions regimes and suggests that current diplomatic and military deterrence frameworks may be insufficient. For the administration, it raises questions about how to balance deterrence with other foreign policy priorities.

The Big Picture

Russian hybrid warfare encompasses sabotage, assassinations, political interference, cyberattacks, airspace violations, undersea cable cutting, drone incursions, GPS jamming, and weaponized migration; the tactics vary by target and region. Baltic States have faced distributed denial-of-service attacks on critical infrastructure, arson, and cable sabotage. Romania recorded 29 unauthorized drone incursions since 2022 and, along with Bulgaria, experienced GPS jamming in the Black Sea. Poland saw attacks on 30 energy facilities in December 2025 and Russian drones shot down in September 2025. Poland, Lithuania, Latvia, and Finland have absorbed tens of thousands of migrants funneled through Belarus as part of a broader destabilization effort.

Three Russian agencies drive these operations: the Foreign Intelligence Service (SVR), the Main Directorate of General Staff (GU/GRU), and the Federal Security Service (FSB). The GU/GRU is the most aggressive, linked to sabotage and assassinations. The FSB focuses primarily on internal security, but it has expanded its foreign reach into cyber and information operations.

European officials have characterized these actions as a coherent and escalating campaign. In an October 2025 speech, European Commission President Ursula von der Leyen stated that Russian actions constitute a coherent and escalating campaign to unsettle citizens, test resolve, divide the Union, and weaken support for Ukraine. General Alexus G. Grynkewich, Commander of U.S. European Command, told Congress in March 2026 that the United States observes robust Russian hybrid and asymmetric activities, including information operations and sabotage, with several incidents occurring in the Baltics and Poland in the months prior.

Congress has responded with legislative action. The 2026 National Defense Authorization Act directs the Secretary of State to establish a Countering Russian Influence Fund Unit to counter Russian aggression and hybrid activities. Section 1618 in H.R. 3838 would direct the Director of National Intelligence to coordinate with the Secretary of Defense on a report about Russian active measures, H.R. 7632 would call on the Secretary of State to appoint a coordinator for hybrid warfare accountability and assess hybrid warfare threats, and S. 4784, Section 1225 would instruct the Secretary of Defense to notify appropriate congressional committees of gray zone activities carried out by the Russian Federation against a NATO ally.

The Bottom Line

The scale and sophistication of Russian hybrid operations have outpaced the policy response. While sanctions remain in place under existing authorities, Russia has adapted by outsourcing to proxies and for-hire agents, increasing deniability while potentially reducing operational effectiveness. Congress is moving to close gaps in oversight and coordination, but whether these measures will deter further escalation remains unclear, particularly as diplomatic channels remain open to Russian overtures.

Access the Legis1 platform for comprehensive political news, data, and insights.

Spot something wrong? Report an issue with this article