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When the lend lease bill went through congress it was deliberately left open as to which countries could receive it. This was partly foresight and partly luck by the FDR administration as they knew about possible attack on the USSR, and feared anti-communists in congress would add country restrictions.

So assume a change in circumstances. US intelligence does not expect an attack on the USSR. FDR is struggling for votes to get the bill passed. A few more congressmen can be persuaded to vote for it provided it says no lend-lease to the USSR, so the administration agrees to put this provision in the bill...
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