WikiLeaks Document Release http://wikileaks.org/wiki/CRS-RL32662 February 2, 2009

Congressional Research Service Report RL32662 Democracy in Russia: Trends and Implications for U.S. Interests Jim Nichol, Foreign Affairs, Defense, and Trade Division

January 23, 2007

Abstract. assesses Russia’s progress in democratization, including in the areas of elections, media rights, civil society, and federalism. Four scenarios of possible future political developments are suggested - a continuation of the current situation of ”managed democracy,” deepening authoritarianism, further democratization, or a chaotic interlude - and evidence and arguments are weighed for each. Lastly, U.S. policy and implications for U.S. interests, congressional concerns, and issues for Congress are analyzed. http://wikileaks.org/wiki/CRS-RL32662 Foreign Affairs, Defense, andTrade Division Specialist inRussian andEurasian Affairs Trends andImplications Democracy inRussia: Updated January 23,2007 forU.S.Interests Order Code RL32662 Jim Nichol http://wikileaks.org/wiki/CRS-RL32662 Summary government andstrengthening almost in September2004.PresidentPutin that culminatedinthedeathsof hundreds not tosupportoppositionpartiesorothe of Russia’slargest privateoilfirm,Yukos,as scale humanrights abuses interference inelections and then,Ru became presidentin2000.Since Concerns aboutdemocratiza multilateral partner rather than an insu that ademocraticRussiawithfreemark emergedSovi in1991fromthecollapseof of federalsubunits,andasse for the Duma (lower legislative chamber), eliminatingheadsthe direct electionsof The restructuring included integrating security agencies, switching toparty listvoting CRS Report RL33407, effects onbilateralre haveurged others concerns, while strong inRussia,lestsucheffo democratization Russian cooperation.Some U.S.observers stymieincreasingly U.S.- could values democratic adivergence in warning that concerns increased raised has States United the time, same the onTerror.At and sinceSeptember11,2001,theGlobalWar st weapons ofmassdestruction(WMD), security c national Russia onvitalU.S. seek anotherterm. popular electoral “interferen races in2007-2008.Thestakesforvarious influence overelectoral order togainmore moves asfinetuning asyst power.They to came these havecharacterized Putin since moves anti-democratic the otherhand,critics of the re destroying Russia’sterritorialintegrity wouldcounterChechen restructuring the compatible with Russia’s democratization. otherwise implementedby early 2006. organizations.non-governmental Allthe a“PublicChamber”consultativ creating Democratization faced further challenges following terrorist attacks in Russia in attacks terrorist challengesfaced further following Democratization U.S. attention has focused Russia onRussia’s fitfuldemocratizationsince The U.S.AdministrationandCongress Some Russianandinterna Trends andImplicationsforU.S.Interests lations. Thisreport Russia Democracy inRussia: in thebreakaway Chechnya region, andtheforcedbreakup em of “managed democracy,” if not authoritarianism, in authoritarianism, of“managed democracy,”em not if tion progress appeared heig tion progress campaigns, restrictions onfr campaigns, ce” arehigh, sincePutinhasdeclaredthathewillnot rting greater presidential control over civil society by over rting greater presidentialcontrol structuring havebrandedthem , by StuartD.Goldman. federal powerstobe tional observershavesuppor and political and economic and political rategic arms reduction,NATOenlargement,rategic oncerns, including thenon-proliferation of rwise challenge government policy. mayas eventswarrant.Seealso updated be rts harm U.S.-Russian cooperation on vital on rts harmU.S.-Russiancooperation lar andhostile nationa ets would be a cooperative bilateral and ets wouldbeacooperativebilateral e group oflargely government-approved processes ahead of Duma andpresidential processesaheadofDuma They argument haveacceptedPutin’s that er U.S. advocacy, regardless of possible advocacy,er U.S. regardless of school-children in the town of Beslan of of school-childreninthetown ssians havefacedincreasedgovernment withRussia over anti-democratic trends, proposals hadbeenenactedintolawor power groupsavert unwanted to seeking immediately proposedrestructuring the have welcomed so and internationalte et Union.Many observers haveargued an apparent warning to entrepreneurs anapparentwarning to haveurged restra tter countersuchterroristthreats. htened afterVladimirPutin eedom of the media, large- media, ofthe eedom ted therestructuring as the latest inaseriesof me cooperationwith int inadvocating development.On rrorists intenton l security threat. http://wikileaks.org/wiki/CRS-RL32662 Trends in Democratization...... 4Russia’s DemocratizationIntroduction ...... 3 Contents Issues forthe110 Implications for U.S. Interests ...... 31 Implications for Russia ...... 25 How MuchCantheUnitedStates How Significant is Democratization in Russia to U.S. Interests? ...... 41 Democratization Trendsin Democratization The 2003-2004Legislative andPresidentialElectionCycle Member Concernsinthe107th-109thCongresses U.S. DemocratizationU.S.-Russia Relations Assistance...... 35 ...... 31 Scenarios forRussia’s Political Evolution Other Issues of DemocraticCivil DevelopmentFreedom Society...... 10 ...... 19 of the Media ...... 9 in Russia, and What Typesin Russia,andWhat The 2004PresidentialElection The 2003DumaElection Other Debate ...... 38FY2007 Budget Ai andDemocratization FY2006 Budget Ai andDemocratization FY2005 Budget Ai andDemocratization FY2004 Budget Ai andDemocratization A ChaoticDemocratic Interlude?Authoritarianism?Managed Progress? ...... 30 Democracy? ...... 29 ...... 27 ...... 25 FederalismFreedom ...... 22 Independence of AssemblyPolitical Parties ...... 20 ofPublic the JudiciaryCreation OpinionConstraints onNGOs ...... 19 ...... 13 of the Public Chamber...... 12 ...... 1 th Congress ...... 41 ...... 14 Regional Electionsin2005-2007 ...... 10 ...... 5 of SupportareAppropriate? Do to Support Democratization Do toSupportDemocratization ...... 6 ...... 25 d...... 36 d...... 36 d...... 36 d...... 35 ...... 37 ...... 4 ...... 43 ...... 7 http://wikileaks.org/wiki/CRS-RL32662 TableTable 2.The2004PresidentialElectionResults 3. U.S.Table 1.The2003DumaElectionResults Democratization ofTables List Aid to Russia ...... 35 ...... 5 ...... 7 http://wikileaks.org/wiki/CRS-RL32662 approved non-governmental society by creating a“PublicChamber” judiciar overthe control presidential greater of chamber), eliminating directelections agencies, switching topurely proportional terrorist threattoRussia.Theproposed three branchesofgovernment and strength in September 2004.PresidentPutinalmost that culminated inthedeathsofhundreds support oppositionpartiesor largest private oil firm,Yukos,asanappa abuses inthebreakaway Chechnya region, and campaigns, restrictions Setbacks todemocratization have included more government interference in elections progress appeared heightened afterpresident Vladimir in2000. Putinbecame the state and the social sphere.” social andthe state the of structure the in havearisen that imbalances the out as“even[ing] it address hailed been largely implemented,PresidentPutin that hismovescounterChechenandinte as compatiblewithRussia’ 3 2 1 one hand,someRussianandin representative institutions with experience andcultural historical of becauseofadearth part in least at most observers have cautioned that democracy mayeasilybe not attainable inRussia, partner rather than an insular and hostile national security threat. Atthe same time, democratic Russia withfree markets would be a cooperative bilateral and multilateral Uni Soviet the in 1991fromthecollapseof 2004, Doc. No. CEP-92. initiatives were judicial unveiled The later. RichardPipes, Open SourceCenter, CEDR Trends andImplicationsforU.S.Interests Democratization faced further challenges following terrorist attacks in Russia in attacks terrorist following challenges facedfurther Democratization Much controversy has attended thesystem. restructuringpoliticalthe of Onthe f U.S. attentionhasfocusedonRussia’s , May 10,2006,Doc.No. CEP-950166. Foreign Affairs Democracy inRussia? Central Eurasia:DailyReport andmodesofthought. s Theydemocratization. ha on freedom of the media, civil as well as human rights ashuman aswell civil media, ofthe freedom on organizations (NGOs). otherwisechallenge government policy. , May-June 2004. ternational observershave 3 Introduction consultative group of largely government- consultative group oflargely restructuring included integrating security included restructuring rent warning tootherentrepreneursnot to rent ening federalpowersto in his Mayin 2006StateoftheFederation rnational terroristsintentondestroying of school-children inthetownofBeslan of the headsoffedera the y, and achieving morecontrolover civil immediately proposed restructuring all voting for the Duma (lower legislative voting fortheDuma(lower on. Manyon. observershaveargued thata and the forcedliquidationofRussia’s and itful democratization since it emerged 1 Concerns about democratization (hereafter 2 After this restructuring had Afterthisrestructuring ve accepted Putin’s argumentve acceptedPutin’s supported therestructuring CEDR l subunits,asserting bettercounterthe ), September13, http://wikileaks.org/wiki/CRS-RL32662 May 4,2006. to democratic reform.” “could begin toaffectrelati unfairlyand improperly restrict “government has Russia’s that stated He Russia. wasdeepening in authoritarianism Cheney Dick re appearedto President Russia’s territorialintegritypolitical and 5 4 of elections,mediarights, ci democratization. to asthreats measures threat ofterrorisminRussia,andas grave as the affairs,” recognizing not internal Russia’s in as“interfering statements government and state-controlled media have criticized such U.S.Administration effe disapproval, regardless ofpossible U.S. nationalsecurity concerns.Others democratization in Russia, lest such critic election setforMarch2008. Dumaelectionsscheduledfor of State authoritarianism, inorder togain substantial influence over electoral processes ahead asystemtune not if of“managed democracy” fordefinitions), (see below observers, thisdeclarationhasspurredthe constitution, you cannotrun for president thr w “I election, stating that democratic rollbackssincehecametopowerin2000. hand, criticsoftherestructur undermine democracy.” process, andPresidentBush raisedconcer Powell urged Russia nottoallow the fight against terrorism toharm the democratic Putin’sBeslan cooperation. Following eventually could U.S.-Russian harm values democratic adivergence in that United States hasconcerns raised withRussia over anti-democratic trends, warning Wa and sinceSeptember11,2001,theGlobal weapons ofmassdestruction(WMD), st security c national Russia onvitalU.S. Signals’ CauseU.S.To Heritage MonthConcert and Reception White House. Office ofthePress Secretary. Office oftheVicePresident. U.S.ConcernedOver Kremlin PowerGrab, In thewakeofRussia’scutoffga This paperassessesRussia’ Some U.S.observers have incriticizing urged lagging circumspection The U.S.AdministrationandCongress Insensational move,Putindeclaredin a Question Russia Democracy, Democracy, Russia Question 5 4

ons with othercountries.”He ill not changeill the vil society,federalism. and Vice President’sRemarks at the 2006 Vilnius Conference ing moves have branded them ing moveshavebranded ed therights ofherpeople” s progress indemocratiza CRS-2 , September 15,2004.SeealsoBush: ‘Mixed December 2007 and theRussianpresidential 2007 December misrepresenting sensib rategic arms reduction, NATO enlargement, NATO rategic armsreduction, oncerns, including thenon-proliferationof ism harmU.S.-Russiancooperationonvital and economicdevelopment.Ontheother s supplies to Ukraine in earlyin 2006,Vice s suppliestoUkraine flect an Administration consensus that ns about“decisions...inRussiathatcould proposals, then-Secretary ofStateColin maneuvering ofPutin’ssupporterstofine Associated Press cts onbilateral relations. The Putin haveurged U.S.motionsof stronger Remarks by the President attheHispanic President Remarks bythe ee times in a row.”According toseveral have welcomedso April2005thathewouldnotseekre- r on Terror. Atthesametime, on r constitution and in line with the Dow Jones calledforRussiato“return Four scenariosofpossible tion, including intheareas and that suchrestrictions and that , September 14,2004;The asthelatestofPutin’s , May 7,2006. me cooperationwith le counter-terrorism , http://wikileaks.org/wiki/CRS-RL32662 and AuthoritarianRegimes using ideology and coercion to tyrannize the economy andsociety. Linz. Juan government thatisnotinfl of form “sovereign democracy,” they which asaculturally define appropriate and groups tofunctional security, andorder. ideology, citizenryits an authoritarian that itprovidesto safety, regime boasts electorallegitimizing means. Rather itsrule by than appealing toan elaborate strictly limitsoppositionactivitie sphere butinterferes somewhat less ineconomic and social affairs. The government leadershipauthoritarianthestaterules withwide and arbitrary latitudepolitical inthe and the pro-presidential United Russia Pa elections, theyin willnotbedefeated democracy, usegovernment re leaders the Congress areanalyzed. policy and implications forU.S.interests, Lastly, andarguments areweighed foreach. —andevidence interlude chaotic U.S. a of “managed democracy,” deepening aut future political developmentsaresuggested — a continuation ofthe current situation 10 9 8 7 6 democracy.” theydemocracy “managed label and authoritarianism (termed transparency) and the citizenry’s freedom of expression. electorate isassured through the government’s obligation topublicize itsactivities through electionsthatarefreely compet accountability of government of lawisassuredthrough an independe economies, whichdependuponthe atyrannyhence impairing generally ofpower.Democracies havefreemarket byseparated andexercised leaders through popularpar Issues ofDemocracy pp. 11 Kingdom, April 2004. SeealsoThomas Carothers, Review “electoralclanism,” and “oligarchy.”democracy,” SeeNeilRobinson, Mark Smith, Other labels for this hybrid include “partialdemocracy,” “delegative democracy,” “guided Authoritarianism isheredifferentiatedfrom to Ralf Dahrendorf, Ralf

CEDR Some theorists haveSome theorists delineated a political system features withmixed of change democracy peaceful modern agree of the that includes analysts Most ! , Vol. 1,2003,pp.149—166. , Vol. 12; andNikolas Gvosdev, , June 28, 2006, Doc. No. CEP-950012. Andrey Vorobyev, chairman of United of 28, 2006,Doc.No.CEP-950012., June Andrey Vorobyev, chairman Russia After the Presidential Election Russia After thePresidential Journal ofDemocracy 7 , U.S.StateDepa Russia’s Democratization . Boulder,CO:Lynne Rienner,2000. uenced by othercountries. institutions that checkand institutions imited extent. ticipation in elections. Also, political powers are ticipation inelections.Also,politicalpowers officials to the citizenry isassured most importantly Demokratizatsiya s, andcitizensarenotabletochange leadersby rtment, August 2000. rule oflawandprivateproperty rights. Therule CRS-3 although they permitde , Vol. 14,No.4,2003,p. 103;RobertBarker, , Vol. horitarianism, furthe horitarianism, ed and fairlyand conducted.Aninformed ed sources andmanipulation toensurethat sources 9 congressional concerns,andissuesfor congressional Presidential advisor Vladislav Surkov talitarianism, with the nt judicialandlegal system. The rty haveadvocateduseoftheterm Journal ofDemocracy, , Fall2002,pp.488-501. , Defense Academy oftheUnited 10 balance eachothers’powers, r democratization, or r democratization, mocratic institutions 6 latter viewed as rule In contrast,in an 8 Political Studies In a managed January 2002, January (continued...) Totalitarian http://wikileaks.org/wiki/CRS-RL32662 Brookings Institution Press,2003,pp.206-219. Freedom House claims that Russiaunder that Freedom Houseclaims humanresulted rights inwide scale abuses and civilian casualties. democracy, s becausehelaunched least not repressive state. futurepoliticalstabilityto Russia’s and the main danger andwarnsthat freedoms, democratic in among states the post-Soviet major theme for2005was thestate’scontinuing rights, freedoms, andmoral values of citizens.” December 14,2005,Doc. No. CEP-11001. testedthrough themanyand cent rule “tried ExecutiveCentralRussia’sCommittee, hasstatedthatsovereign democracysystema is of rather thanthe consolidationofregular pluralisticprocesses. acting president and then a presidential candida processes, civil society development, andcorruption. electoral including pluralism, of indicators onseveral downgraded Russia NGO further in Russia, demonstrating thatRussia ismoving “managed democracy.” have argued thatthecountry isnotyet fu making decisionsthathavedivertedRu democracy intermsoftheabovedefiniti agree, havehinderedRussiafrombecomin conflict inthebreakaway Chechnya region. President Boris Yeltsin’sviolentface-off President hasfacedmyriad Democratization challenges, dispute. former to including subject ofprogress, however Theextent period. 14 13 12 11 10 democratization during Putin’sleadership. demonstrat 2005-2006 subsequent electionsin the 1990s, andthatthe2003-2004 cycle of legi The 2003-2004Legislative andPr growth. economic may freemarket such a“strong state” with becompatible to sovereigntythreats andte the government’s firstprioritythat He stresses istodeal withterrorism and other Freedom House, Zbigniew Brzezinski, McFaul, Timothy ColtonandMichael (...continued) ColtonandMcFaulargue thatthe1999-2000 Russiahas certainly made some progress indemocratization since the Soviet Most analysts agree that Russia’s analysts agreeMost that democr Other observersagree with Putin that st 13 Nations inTransit2006 Trends inDemocratization Wall StreetJournal 11 Others insistthat he isclearly antagonistic toward rritorial integrity, suchascorruption.Somesuggestthat CRS-4 , June 13,2006.Freedom, June H ssia ssia awayfurther democracy, from they but ( lly authoritarianandma Popular ChoiceandManagedDemocracy on. Someanalysts haveviewedPutinas continued economicgrowth isanoverly with the legislature in1993andrecurring WSJ uries ofRussia’shistory, forprotecting the , and the direction of recent trends, are trends, ofrecent direction , andthe ecurity Chechnya in have operations that 14 furtherfrom theideals of democracy.” The Putin hassufferedthegreatest reversal te) marked the reversal ofdemocratization ability isnecessary tobuilddemocracy. crackdown onallaspectsofpoliticallife Such challenges, virtually allanalystsSuch challenges, atic progress wasune election cycle (during whichPutinwas cycle election g afully-fledged or“consolidated” ), September 20,2004,p.A6. esidential ElectionCycle slative andpresidentialelections e theincreasingly uncertainstatusof Popular Choice ybe describedasa ouse statedthat“the ven atbestduring 12 TheNGO , p.223. , http://wikileaks.org/wiki/CRS-RL32662 Zhirinovskiy’s LiberalDemocr shared by the newly formed pro-Putin MotherlandVladimir bloc ofparties and seats), marking its marginalization in seats), marking itsmarginalization Communist Partyopposition The wonfarfewe United Russiafactioninthe Duma). Oppos Candidates not claiming party affiliation won67district seats (mostlater joined the percent thresholdforparty representation democratic parties few toform aparty faction intheDuma. district votes,giving itatotalof224seats. district Putin-endorsed UnitedRussiaparty wonthe per day,56 of therewasalowturnout 16 15 “aworrisome against suchbias enforcelaws to failure (CEC’s) Commission’s Electoral Central the considered further They party the between state. andthe forcompetingequal treatment parties a opposition parties.Suchfavoritism,they Russia and Motherland and todiscourage s They highlighted“extens government’s the less democratic was concludedrace than the previous that the Duma one in1999. Europe (OSCE)andthePar pro-Putin that wasexpected it s election Public opinionpollsbeforethe partylists. Nearly 1,900candida Duma,225chosenin State the in seats The Union ofRights The Forcesa RobertOrttung, **New raceswere heldin3districtsMarch2004,soseatsdonottotalto225. *4.7% voted “against all.” Source: Election observers from the Organiza the Election observersfrom The 2003Duma Election. oa 0*2525*450 67 32 225** 36 67 225 36 32 52 7 100* — 0 0 224 12 29 — 104 40 36 24.65 9.02 120 Total 12.61 11.45 Independents Other Parties 37.57 Liberal Democratic Motherland Communist United Russia at/lc% Party Party/Bloc CentralElectoralCo Table 1.The2003DumaElectionResults RFE/RL RussianPolitical Weekly (Union ofRight ForcesandYa liamentary Assembly for th List Vote List nd Yabloko won a total of sevenof nd Yablokototal wona parties andcandida atic Party (whichusually mmission, December 19,2003. tes raninthedistricts, On December7,2003,Russiansvoted to fill 450 cent and59.685millionvalidvotescast. The CRS-5 the Duma.Themainoppositionliberal nd candidatesand“blu single-member districtsand225chosenby itSasDistrict List Seats in theDuma,andwerevirtually excluded. howed that Putinwashighlyhowed popular,and upport andpositivemedia ition partiesandcandi ive” aidanduseof media to favor United stated,“undermin 15 tion forSecurity andCooperationin The ultranationalist vote was mainly largest shares of the partythe listand largest sharesof r seats (52)thanithadin1999(113 , June 2,2004. , June tes wouldfare well. Onelection bloko) failedtoreachthefive e Council ofEurope (PACE) Seats and 23 partiesfieldedlists. supportsthe government). seats indistrictraces,too rred the distinction” ed” theprincipleof dates faredpoorly. Total Seats coverage ofthe 16 http://wikileaks.org/wiki/CRS-RL32662 CEP-102; 9,2004,Doc.No. CEP-218. July monetization ofbenefits. August 4,2004.Several pollsindicatedth without having tomake con handily Putin’sinitiatives, but also the two-thirdsvote needed toalter the constitution over300members.Thisgaveto UnitedRussiatheability notonly toapprove independent deputies introduction ofamendmentson introducedfor passing a streamlined government process billsthat precluded the United Russiafactiontookcontrolover nine deputyof speakerships and tothe chairmanships ofall 28committees.The speakersh the assumed leader faction Russia Findings and Conclusions, legislative chamber),whorepr thatcallsintoquestionRussi development 19 18 17 Malyshkin. Th Oleg the party nominated Similarly, theLiberalDemocr nominated aless-knownsurrogate, St his candidacy against Putin.The Communist backing, andGlazyev facedasplitwithin Irina KhakamadaandMotherlandco-headSe contenders todeclinerunagainst him. highby continued Putin’s thevote,and endorsement ofPutin’sc parties intheDumaelecti races (seebelow). gubernatorialelimination of electionsand single member district balloting forDuma Other controversialbills the Putingovernment, asweretheregiona regions. They the to center the of burdenfrom welfare allegedlythe were warned by Manythough therewasnotafulltext. se thatreported some Duma deputiesthroughevenpushed complained was bill that the overwhelmingly approvedinAugust to monetary paymentsofficials (butretaining and deputies)for was them b government Even ahighly unpopular legislation requiring atwo- standards. Communism January 27,2004.SeealsoWilliam2003; FinalReport, Clark, OSCE/PACEInternational ElectionObserv The senators objected even thoughsenators objected president. theythe The areappointeesof Demchenko, Konstantin Before the Duma convenedonDecem Before theDuma The 2004Presidential Election. The Duma ha 2003-2007convocation ofthe 17 , March/April2004.

had affiliatedwith CEDR easily passedby thelegislature in2005-2006included the Russkii kurier Russian FederationElecti ontinued rule. Opposition part ontinued rule.Opposition on were viewed byon wereviewed mostinRussiaasaringing popular thirds majority, including cessions towinthevotesof atic Party leader,Vladimir esent regional interests, rais esent , July 2,2004,Doc.No.CEP-333;, July July 9, 2004, Doc. No. the floorby oppositiondeputies. 2004.TheRussian newspaper ill converting many in-kindsocialentitlements , July 12,2004. , July CRS-6 poll ratings convinced mostmajorpotential ratings poll nators intheFedera the UnitedRussiapartyit swelling faction, UnionofRight Forces party blocco-chair ate Dumadeputy Nikolay Kharitonov. Theoverwhelming su his party bloc frommembersopposedto l leaders, not to oppose the legislation. l leaders,nottoopposethe a’s ...willingness” to at a majorityat a ofthe publicopposedthe ation Mission, Statementation Mission, ofPreliminary ip, and itsmembers agenda-setting forthechamberand e Party ofLife (createdby pro-Putin Partyparty leaderdeclinedtorun.The ber 29,2003,mostofthenominally rgey Glazyev ranwithouttheirparty’s s handily passeds Kremlin-sponsored ons to the State Duma State ons tothe changes tofederal boundaries. other factions.TheUnited Zhirinovskiy, declinedand y leaderswerediscredited ed concernsabouttheshift tion Council(theupper ccesses ofpro-Putin were namedtosix 18 meet international Problems ofPost- Moscow Times Moscow Times , December 8, 19 , http://wikileaks.org/wiki/CRS-RL32662 penciling invotetotalsforlaterpossible one-third of the precincts observed. Irregularitiesproblematicalmost in included OSCEalso reportedin administering that vote-countingthe the election, appeared OSCE. images,the according to pro-Putin contained that appeals vote” the out “get aired campaign might bereflectedin a turnout refusal to debate with other candidates. Concern that the lowpublic interest in the putting acloudovertheircampaigning. gathering by election, before the resolved Glazyev werenot that andKhakamada percentages. The CECinstigated troublin the voteforPutinwerenearlyand 90%or results withoutcounting the votes.In si Presidential Election, 14March2004: criticized the other candidates. Mironov, SpeakeroftheFederation Council. interests in2002tosiphonvotesfromtheCommunistParty)Sergey nominated 20 and alreadyelections havebeenclosely held administration by watched Putin the years. Thelastfourteenregional elec Democratization Trendsin portraying othercandidates. treatment toall candidates,” and displaye OSCE. State-ownedorcontrolledmedia“co 2004, hisgovernment in 14, March OSCE. Office forDemocratic Institutions andHuman Rights. While praising the efficiency of the CEC and lower-level electoral commissions electoral lower-level and efficiencyCEC the praising of the While Several dozen regional legislative elections have taken place in the past two past the in place havetaken elections regional legislative dozen Several Despite pollresults indicating that Putinwouldhandily on winre-election Table 2.The2004PresidentialElectionResults *69.5 million votes were cast. Source: gis l 3.45 0.75 2.02 Against All 3.84 4.1 S. Mironov O. Malyshkin 71.31 13.69 I. Khakamada S. Glazyev N. Kharitonov Putin V. RussianCentralElectoralCommission. Candidate % of Vote* % of Candidate 20 Political debate also was circumscribed by Putin’s terfered with a free and fair race, according to the to terfered withafreeandfairrace,according Election Observation MissionReport tions will takeplacein Regional Electionsin2005-2007 CRS-7 x regions, including Chechnya,x voterturnout above,approaching imp d “clear bias” favoring Putin and negatively and favoring Putin bias” “clear d alteration, and in one less than the required 50percent,theCEC g criminal investigations ofsignature- mprehensively failed Mironov publicly and supportedPutin March-April2007.The case, thereporting of Russian Federation lausible Soviet-era to ...provideequal , June 2,2004. , June http://wikileaks.org/wiki/CRS-RL32662 27189; of obtaining staffsupport. the partyally listwinnerswereforcedto staffers serve them, since they represented constituents whohad voted for them, and responsibilities, thewinnersin single memb fair. According toonereport, when and mediacoverage, whichma backed by theregional governors, the caseshasbeenstrongly most in party cases.This all almost in seats legislative witnessed theUnitedRu have from running. Someobserverscriticizedse power during theplannedDecember 2007 Stat United Russiatoascertainpopularsentiments 23 22 21 Liberal Democratic In these regional contests, United Russiathanbetter performed previously, while the electoralthe authoritiesand tactics Russia willuseUnited inthe that Duma election. many many to racesreflected ofthese analysts, ofthe results the According race. contested by politicalpartiespositioning figures tothe from thereportedturnout support favoredcandidates. election. They raisedconcernsthatadmin constitutional order.”Asmallgroup from been elected in Chechnya.... Thiscomplete daythe afterthe election proclaimed that “a legitimate, representative authority has Candidates notclaiming a party affiliation wonthe remaining seats. President Putin wononeseat. 6, theUnionofRight Forces won4, andtheEurasianUnion United Russia won33 seats (a majority ofthe seats). The CommunistParty gained announced on December3that turnout seats inthe2- 58 registered partiesfor 350 candidates than ran plan 2005, aspartofPutin’s 27, November on reflecting the Putinadministration’s disfa parties, including the Liberal Democratic at least 10% of the votes in order to wi liberal partiescoopera citythe Duma. The CommunistParty remain and all 15 single member constituencies, giving ita majority of28out of 35 seats in December 2005resultedinUnitedRussiawinni

CEDR CEDR CEDR Nine regional legislative electionshe In the formerly breakaway region ofChechnya, were elections legislative held Elections tothe Moscow City Duma (Moscow has federal regional status) in ITAR-TASS , December 7,2005, Doc. No. CEP-11001. , March21,2006,Doc.No. CEP-11001. , November 28,2005,Doc.No.CEP-27150; DecemberNovember 5,2005,Doc.No.CEP- , , November 28,2005. and Communist parties lost and Communistparties ted withYabloko,anditwonthree in single member constituencies and on the listsof eight 22 Other critics charged that a that Other criticscharged ssia Party gainingand votes of thelargest proportion de it difficult to assess whether the vote wasfreeand vote the assesswhether to difficult it de house legislature. Th CRS-8 majority ofwhomare party members. reported winners,hadbeenpredetermined. was 69.6%ofabout600,000votersandthat themselves with thesedeputiesinthehope themselves n seats, resulting in the city duma winners met to divvy up to the citymet dumawinners themselvesforthe December 2007 Duma vor, the Motherland Pa vor, theMotherland ld onOctober8,2006, verely circumscribe Party andtheParty ofLife. Reportedly istrative resources wereusedheavilyistrative resources to s the formallegals procedure ofrestoring er districtsdemandedthatalltheduma topacify andcontroltheregion. More ed viable, winning fourseats.Several the CouncilofEurope evaluatedthe the e Dumaelection.Theseregional races and toworkoutstrategy forretaining ground, andYabloko(whichranin ng nearlyparty 50%ofthe listvote ll aspectsoftheelection, seats. A party hadtoget e ElectoralCommission the eliminationthe of six d electionmonitoring rty wasdisqualified were aggressively 21 23 http://wikileaks.org/wiki/CRS-RL32662 this NGO,“Russi at 147onascalefrom 1(most free; Finland) Borders, groups closeto...Putinbuying upnearly allindependent media outlets.” 25017. base ofnewspapersa The government has tightened its control tele major influenceoverthemajorityof media, butaMinistry ofCulturea these major nationwide television networks Notonlystance. does the government reportedly have controllingover influence investors. Afterthetake been ownedby thegovernment monopol station witha national reach that hadbeen company and some German i Severstal benefits. hadblamedth earlier many voterswho community substantially to outreach and advertising campaign favored partiesandhinder regional electoral decisionsandadministr (after the election,the governors declined their legislative seats). Central and highlighted on the United Russia Party lists,i Babitskiy afterbeing attackedby gove September 2004arrestofRadioFree Eu rescind theoperating licenseofathird over theindependenttelevisi allegedlygovernment useditsdirectori oftheMedia Freedom part noseats.Where won two regions) 26 25 24 theJuly 2004murderof include cases alternative pointsofview,a of thefrequency oflawsuitsandtheimpri journalists, and most cases areunsolved.It years,fifteen behindonly Iraq andAl Russia asthe“thirddeadliestcountry in journalists, and otherwisereported. acted to limitwhat journalists tightened controls over major television networks, harassed and intimidated and seventhelowest).It warnedthat (whereonerepresents six Russia ascoreof mediafrom“PartlyRussia’s Free”to“N

CEDR CEDR Nations in Transit 2006 Nations inTransit The Committee to Protect Journalists, aU.S.-basedNGO,inlate2006listed The CommitteetoProtectJournalists, During Putin’spresidency, Freedom , July 7,2004,Doc. No.CEP-451;, July 23,2004,Doc.No. CEP-239. July , October16,2006,Doc.No.CEP-21007;CEP- November 17,2006,Doc.No. Worldwide PressFreedom Index 2006 24 a continuesslowly butsteadily dism nd periodicalsissmallrelativetothepopulation. over, the newownersimposed ; Freedom intheWorld 2006. nd biased coveragend ofthe non-favored parties. UnitedRussiasuccessfully used non-favored parties. on station NTV, close down another station (TV-6), and (TV-6), station station NTV,closedownanother on nd Mass Communications createdin2004has nd MassCommunications in 2005-2006, theRussiangovernment further CRS-9 (TVS). In 2005, the pro-government steel (TVS). Inpro-government 2005,the geria. The NGO counted 42 murders of geria. TheNGOcounted42murders ndirect ownership shares to tighten control ndirect ownershipsharestotighten nvestors purchasedRe to 168 (least free; North Korea). According to Korea). to 168(leastfree;North rnment airportemployees,alleged the vision advertising andprintdistribution. sonment of journalists, thesuppression of sonment of over thepresseventhough thesubscriber theworldforjournalists”overpast permittedsomeeditori ot Free.”Mostrecently, the NGOgave e party ofsocial forthemonetization hasalso assessed Ru the highest level ofdemocratic progress y listswereused,thegovernors were y UnitedEnergy Systems andprivate , October 23, 2006. This NGO rates Russia NGOrates , October 23, 2006.This ative resources were used tosupport were ative resources Forbes House has lowered itsassessmentof lowered has House ndicating thefavored statusofthe party and other major broadcast andprint broadcast andothermajor rope/Radio Liberty rope/Radio reporterAndrey antling the free media, withindustrial reporterPaulKlebnikov,the ChechnyaProminent conflict. SeealsoReportersWithout apro-government editorial boost itsimage among ssia poorly interms n-TV, atelevision al freedom.It had 25 In 2003,the 26 http://wikileaks.org/wiki/CRS-RL32662 Court overturned anacquittal of two suspects May 3,2004;and burnish Russia’simage abroad. and Politovskaya havenotyet beenresolved. government hoped tohelpthe been enroutetosouthernRussiaduring th of Politovskaya inOctober2006.Babitski Civil Society murder of poisoning inSeptember2004of 29 28 27 NGOs. government’s aimwasforthesegroups to that manyLa oftheNGOsthatmetwith andAccord,tookpart Federation ofPeace in Soviet-era Committeeforth propaganda organizations unde Critics alleged that Lavrov’s callre-create appeared Soviet to tomark efforts as by rebuffing criticismofRussia’shuman NGOs 2004andcalledforthemto in June citizens.” focusing on“sev than interests,” rather foreig receive some NGOs Putin’s criticisminhisMa included have parties andNGOs weakentheirinfluenceove rights NGOsthatlobby forreforms,and government increasingly hasconstraine has society ofcivil Russia status in the Kyrgyzstan, and that such NGOs similarly were subverting the Russian government. Russian the suchNGOssimilarly that weresubverting and Kyrgyzstan, trigger “color revolutions” th administration’s perceptionthatforeig thebillreflectedPutin that funding ofNGOs.Someobserverssuggested monitor and control foreign and domestic to auditing functions ofthe government forbidding foreigners frombelonging to NGObillbanningRussia, thepresenceofbranchesforeign NGOs in draft notallowit.”Inwill November we and for NGOpoliticalactivities,asserting that Committee Journalists, toProtect ClaireBigg, Russia: Moscow Times In July 2005,PresidentPutinre-emphasi After Putin’s address,RussianForeign Mi Constraints onNGOs. 28 Novoe delo Novoe , June 25, 2004. In March 2006, Lavrov reiterated this call for NGOsto for call this 25,2004.In, 2006,LavrovJune March reiterated Deadly News Deadly NGOsSay NewBillThr reporter Magomedzagid Varis n funding and “serve dubiousgroup and commercial , Fall-Winter 2006.InNove negotiate withthecaptors.Themurdersof Klebnikov e DefenseofPeace(its at overthrew governments inGeorgia, Ukraine,and governments at overthrew CEDR According to Freedom According Houseandotherobservers, to r the control of intelligence agencies,of suchasthe r thecontrol World’s Worst PlacestobeaJournalist,Press Release Novaya gazeta Novaya , March13,2006,Doc.No. CEP-27099. CRS-10 Russian-based NGOs, and strengtheningthe Russian-based NGOs,and n-based orforeign-funded NGOshelped ere problemsfacedby thecountry andits d theoperationsandfinancing ofhuman worsened during Putin’s presidency.worsened during Putin’s The 2005,theDumabegan considerationofa e Beslan hostage crisis, where Politovskaya vrov appearednewly created,andthatthe y 2004 state of thefederationaddressthat declining public participation inpolitical declining publicparticipation y andPolitovskaya inSeptember2004had in Klebnikov’sin murder andordered aretrial. crowd out establis crowdout “no self-respecting state willallowthis, “no self-respecting present aunitedfronttotheworld,such rights policiesby th the meeting). They alsoraisedconcerns r government policy. trends Worrisome zed zed his concernsaboutforeign funding 27 eatens Civil Freedom, nister Sergeynister Lavr

reporterAnnaPolitovskaya, the ov in June 2005, and the murder the 2005,and ov inJune successor organization, the mber2006, Russia’sSupreme hed andindependent e CouncilofEurope. ov met withseveral RFE/RL Russian RFE/RL (continued...) 29 , http://wikileaks.org/wiki/CRS-RL32662 improper paperwork. Chechens, was deniedregistration under Initiative,Russian Justice aDutch-ba Political Weekly Freedom, of foreign NGOs to operate in Russia of foreign NGOs tooperateinRussia Public Chamber members) suggested some changes tothe draft topermit branches international NGOsandothers,including U. 32 31 30 29 foundation.” HecalledforRussianbusin onslaught NGOs on the oftheNGOlawhadindicated that execution headhadb downbecauseits closed NGO aimedatfacilitating peaceinChechny 2006theRussian-C October warnings, in used against NGOsnotfavoredby theg July 2006(seealsobelow, im foreignalso organizations.law The FRS may cancel the activities and ban financial transactions by Russian branches of cancallfor the FRS documents, registration order.If activities court a consent or to (FRS) the FederalRegistration Service 2006. signed intolawinDecem and approved was ideology.” foreign from “terrorist by Russia Thebill protect needto the prompted continued toargue that thislegislative ch civil society [and] sends a chilling signal sends civil society [and] “delivers adoubleblow—one closure the articles by separatists.A engaging foreign-based andotherNGOsfrom officials,a toFRS According on NGOs. share itsfate.” “values.” Russian to “harmful” programs deemed that theFRS couldclose downdemocratiza Freedom, “thispurposeisnotdirectly stat U.S. CommissiononInternational bythe as Religious political. Aspointed out 2006. (...continued) Amnesty International, Carl Schreck, Chechnya NGO Denied Registration, Schreck, Chechnya Registration, NGODenied Carl CEDR Following harshcriticismofthedr Instated atameeting January Putin 2007, New definitions of“extremist” activities subject to prosecution were enacted in Potentially worrisome provisionsinthe law include the ability ofofficials from , December 5, 2005, Doc. No. CEP-27094. Commission onInternational Religious Russia Policy Focus Policy Russia 32 , November 23,2005. 31 Press Release ccording to thehumanrightsccording NGOAmnesty International, by the authorities have turned out tobe devoid of any Political Parties , Fall2006. een given for asuspendedsentence , January 23,2007. , January CRS-11 of theNGOdonotmatchthosedescribedin poses onerous annual under certainconditions.PresidentPutin sed NGOproviding legal assistance to the newNGOlaw,allegedly forproviding ange, like others hehadorchestrated,was ed intheNGO law” andraisesthespecter that otherNGOsstepping outoflinecan tion andhumanrights educationandother overnment. Perhaps indicative of such of indicative overnment. Perhaps attendmeetings ofNGOswithouttheir aft NGObillfrommany and Russian esses tocontributeNGOsreplace hechen Friendship Society (RCFS), an to freedom of expr to freedomof legal proceedings against theNGO.The ber 2005andenteredintoforceinApril ) that some observers warnedcouldbe ) thatsomeobservers major goal ofthelawwastoprevent S. officials, President Putin (andmany Putin officials,President S. “thefearssomevoicedoveralikely a and monitoring human rights, was rights, a andmonitoring human inactivitiesthat with NGOsthathismonitoring ofthe 30 The Moscow Times The Moscow In onesuchcase,theStichting reporting requirements ession andanotherto might beconstrued , November27, publishing http://wikileaks.org/wiki/CRS-RL32662 interests. strengthening legislative functions, democracy for instead called advocates some necessity Chamber, ofaPublic stated thatitwouldhelpdivertandam Chamber’s work,deputy chief of the pres stamp legislative bodies. compared ittotheSoviet-era CongressPe of CEP-67. first broachedtheideaofa“publicchamber” inMay 2004. legally, andthatgovernment inspec onerous, so that small groups werebasi small onerous, sothat paperw thatthecostsofpreparing Putin support fromforeign donors.Several NGOs di 36 35 34 33 Appearing tobelie their reputed functi workers to overseetheoperationsofstate the Soviet-era People’sCont of those activities ofNGOs.Somecr allocated forpresidentialprojects,input “real independence”ofthemass media, pub ensu Putin statedthattheChamberwould were headedby PresidentPutin’sappoi overadozenpublic Januaryup 2006.It set businessmen, andreligious leaders.The Members included prominent artists, scientists, singers, editors, lawyers, (re 42 final the selected members 84 these members (representing theheadsofNGOs were appointedby PresidentPutin.Thes opini state grants.public Theinfluenceof that woulddiscussdraftlaws,oversee gove make surethatpublicopinionisheard bind the state together” terrorism wouldinclude tofight strong political parties to create a “Public Chamber.” As urged by Putin on September“mechanisms13, to new fearsinthePutin administration of government, gatherings. Afew observers throughout the authorities endeavoredtomanage the agencies and help the agencies “maintain public order.” public agencies “maintain the agencies andhelp setting upcitizens’groups thatwouldpass No. CEP-73 andDoc.No.CEP-56; 25,2006,Doc.No.CEP-380002. January

Alexey Arbatov, CEDR ITAR-TASS CEDR The 126membersofthePublicChamber we of thePublicChamber. Creation , September 9, 2004, Doc. No. CEP-348;SeptemberNo. Doc. 13,2004,Doc.No.92.Putin , September2004, 9, , January 22,2006,Doc.No.CEP-27036,, January CEP-27 35 , January 11,2007; , January country toma BBC Monitoring CEDR itics comparedsomeofth , November 30,2005,Doc. No.CEP-6001. CEDR ke sure they were anti-terrorist, rather than anti- , September 16, 2004 tions alsoimposedonerouscosts. , January 11,2007,Doc.No.CEP-950355., January CRS-12 rol Committees,whichsupposedly permitted parties, andNGOstorepresentc and a Public Chamber composedofNGOs Chamber and aPublic cally barredfromregi public passions and spurred the proposal to proposal public passionsandspurredthe ons, the Public Chamber’s newly created ons, thePublicChamber’s presenting regionally-based organizations). ople’s DeputiesortheSupreme Soviet, rubber- ork necessary toregister anewNGOwere re popular influenceoverstateinstitutions, re ntees. Addressing thesession,President e 42 members in turn selectedanother42 turn e 42membersin on alsowould be bolst large number ofpublicdemonstrations large number first session of the Chamber was held in held firstsession ofthe Chamber was into law-making, a idential staffVladis agencies and to publicize shortcomings. eliorate public passions. Rejecting the Rejecting eliorate public passions. rnment performance, and possibly allocate rnment performance,andpossibly suggested that the demonstrations raised and other non-profit organizations),and and othernon-profit lic control over the use of budget funds budget lic controlovertheuseof on information tosecurity andpolice on oversight commissions.Virtually all In the wake of the Beslan tragedy, In Beslan wakeofthe the sagreed withthisassessment,telling re selectedinlate2005.One-third ; CEDR ese reputed responsibilities to ese reputed CEDR 34 007, andCEP- A primary architect of the Aprimaryarchitect , December 12,2004,Doc. , May 26,2004,Doc.No. nd oversight overthe lav Surkov,allegedly stering andoperating ered, heclaimed,by 27048. Others 33 itizens’ 36 http://wikileaks.org/wiki/CRS-RL32662 relatively good jobdefending democracy a whichaske Center inNovember2005, the samecoursethat Center concludedfromthepollsthat“mos democra possible successorshouldemphasize economic and social issues,whileonly 12%- ofrespondentsthought th 2006, amajority holding substantial power.According topo politicalthan rights and do not object to the idea of well-liked President Putin past over the two more years rights social value Russians most seem to that indicate democratization. of aspects 23, 2004. Its Critics 21011. 26, 2006,Doc. No.CEP-313002. Commission on Questions ofTolerance Commission onQuestions Public Monitoringfor ofLawCommission Enforcement and Military Structures, the 41 40 39 38 37 political discourse, Russians continue tovalue itsprinciples. 1980s, andthatwhiletheterm“democracy” arguing democracy that conclusions, embraced Pipes’ late Russians to the in objected faltering democratization oncivil society. and autocracy overfreedom. fordemocracy,disdain heargues, reflects that no more than one in ten Russians value democratic liberties and civil rights. The antilibertarianactions”by[and] Putin“are ofpo concluded fromhisexamination has democracy. value Pipes Russians researcherRichard disproving U.S. that government politicalparties— had been those linked tomany memberincluding the PublicChamber.Some administration made thefinaldecisions 500 NGOsforgovernment funding wouldbe Commission onMediaheldmeetings in democracy andhumanrights NGOs had b that NGOshowthey can“c requirement forthe except transparent, werenot the that for selection criteria claimed RichardPipes, LeonidAleksandrovichSedov,Opinions AlexanderLukin, CEDR CEDR Recent pollsseemtoillustratethemix Public Opinion. Chambe Public Inthe September2006, , September 21,2006,Doc.Nos.CEP-9002 andCEP-9007. , February 13,20 , Cambridge: YaleUniversity Foreign Affairs Moscow Times Putin istaking iton.” Polls in Russia have been interpretedprovingboth as and 06, Doc.No. CEP- Several polls by Russia’s privately-owned Levada Center Levada privately-owned Several pollsby Russia’s criticsalleged thatmos 39 , May-June 2004; Richard Pipes, Pipes, Richard , May-June 2004; Otherobserversrejectpl ooperate” withthegovernment. , July 21,2004; ColtonandMcFaul,pp.223,228. , July Press, 2005; Dmitriy Press,2005; Babich, CRS-13 on funding following recommendationsfrom AbouttheCountry and theWorld, lls conductedin2003that“antidemocratic lls February 2006closedtothemedia. d whetherPresidentPutinwasdoing a actually supported”by mostRussians, and Russians’ culturalpredilectionfororder Russians’ t people would like thecountrywould people tofollow t 41 21002; February 17,2006,Doc.No.CEP- Russiananalyst Lukin Alexander has een denied funding. These criticsalso These een deniedfunding. nd human rights, appeared to tap some to nd humanrights, appeared ed attitudes of Russianstowardvarious s ofthePublicChamberortopro- and Freedom ofConscienceandthe e government shouldurgently address selected and th selected However, another pollby theLevadaanother However, lls takenby theLeva r announcedthatproposalsfromover 13% thought thatPresidentPutinor a tization andhumanrights. TheLevada since then has fallenintodisfavorin has since then granted. Reportedly,presidential the tly pro-government NGOs— acing thebulkofblamefor Russian Conservatismand 40 at somenonfavored

Russia Profile 38 da Centerinearly CEDR , August 37 , May http://wikileaks.org/wiki/CRS-RL32662 a two-party system. Russia shouldreturntoaone-p that believed officials. AJuly 2006pollby theLeva political oppos the Levada Center,66%of the popular concernaboutrecenttrends. In th 46 45 44 43 42 and activities. Many observers suggest that the arrest ofVladimir K vote. (see below) and raising the bar togaining seats inthe Duma from5% to7%ofthe regional parties),ma members spread acrossthecountry inorder votes, more parties thathavereceived nominate candidate prerogative to exclusive tosurvive. The changesorder includejoining giving largerin parties parties the changesThese partyareresultingin mergers, withsmall parties joining togetheror systemhe claimsthat willcreate a strong and stable party systemparties.fewer with perhaps reflecting growing re suchelectionsinlate2004,le eliminating changed. Although nearly one-halfof the elimination ofdirect gubernatorial elections, butthisviewpoint may have unacceptable. acceptable forRussianNGOs 2006 pollby theLevada Centerfoundth asacceptable,inpart States countries. However,only aboutone-thir oppose not that one-halfofrespondentsdid Studythe of PublicOpiniononSoci for to trustthecourtsystemprosecutors. or March 2006 poll by theLevada Centerf Although pollssuggest thatRussiansappear aspects ofdemocracypositive attitudes toward among some fraction ofRussians. to thequestionsandissuesaddressed. as doing agood job,but43%

WillRussia Have its Own Elephant andDonkey? CEDR CEDR CEDR CEDR At the same time, the Putin administrationtheAt the hastime, same moved against unfavored parties Political Parties. Several pollsappearedtodocument Popular attitudestowardde , December 15, 2005, Doc. No. CEP-11002; 28, 2006, Doc. July No. CEP-313005. , December 12,2005,Doc. No. CEP-18003. , September 15,2005,Doc.No.CEP-11005. 28,2006,Doc.No.CEP-313005., July 45 ition, and 57% ition, 44 Alate2005poll by thegovern king party list voting theonly methodofelection to the Duma Putin has orchestrated several changes to the electoral changes the several to hasorchestrated Putin because of suspicions about U.S. intentions. Anearly intentions. becauseofsuspicionsaboutU.S. respondents feltthatthereneededtobeaneffective expressed reservations. expressed signation orindifference. felt that the media should scrutinize the conduct of to accept fo mocratization andhumanrightsmocratization candifferaccording CRS-14 al and EconomicQuestions(VtsIOM) found ound that60-61%of 43 da Center found that 32% of respondents of da Centerfoundthat32% d viewedsuchassistancefromtheUnited requiring parties tohaveatleast50,000 According tolate2005national polls by Some specific ques specific Some the initialoppositionofmanyto Russians those polled nation-wide objected to thosepollednation-wideobjected is poll,46%ofrespondentsviewedPutin ss thanone-thirdobjectedinlate2005, democratization assistancefrom democratization foreign to belegally regist reign grants, while42%considered it arty system, while42%favoredatleast s, providing statefunding thatbenefits at 37% of respondents considered it at 37%ofrespondents touniformly trustPresidentPutin,a RIA Novosti RIA ment-financed All-RussiaCenter 42 46 , August 22,2006. respondents tendednot ered (thus eliminating tions haverevealed hodor kovskiy, the http://wikileaks.org/wiki/CRS-RL32662 16, 2006. Council chairmanMironov’sParty Life.of ousteraspartyRogozin’s headinMarch2006. fromparticipatingparty the inmostre Movingservices). against thisdisloyalty, the Putinadministrationallegedly blocked social benefits(thesebene protesters 2005 whenMotherlandsidedwith the Duma.The“opposition”componentapp Kremlin, Motherlandclaimed electoralsupport.Althoug Motherland’s observers speculate that the Putingovern elements oftheCommunistParty andto viewed ashelping tocreatetheMotherla Party ofLife, andthenewgrouping electoral success.In lateOctober2006,the less with of alarger party party asmaller successwith possessing electoral some announced to theparty membersasafaitacco democratic politicalparties, the merger was worked out in secret and was later 2005-2006 projected that United Russia, the Communist Party, and theLiberaland 2005-2006 projectedthatUnitedRussia,theCommunistParty, by the party ofpowerontheprocessestaking by the party would remain the“loyal opposition”and July 28, 2006, Doc.No.CEP-25003. announcement The ofthemerger claimed thatthenew CEDR be betterifdisgruntled citizens voted forthis legislative chamber speaker) in a two-party syst to become the favored “secondleg,” joining United Russia (with each party headed by a administration, Vladislav Surkov, inMarch2006whichhecalledfor theparty eventually released analleged speechtoparty official to includerespectforprivate property andforsmall tomedium-sized business. urgingresisted by thePutinadministration to List Russia) as the “presidential party.” “presidential asthe Russia) during Putin’sfirsttermtobolst support groups havepledged fealty toPutin. businessmen sharply havereducedtheir K member districtraces.Since political influence through s gaining from greater entrepreneurs andother firms) private top ofthe (leaders upcoming Dumaelection.In thisview,Putin ambitions andhissupportfor the democra head of the Yukos oilfirm,inlate2003was 48 47 Eugene Ivanov, Sovereign Democracy: Is itUnitedRussia’sIdeology? CEDR , No.15, January 22, 2007. According toIvanov, UnitedRussia’sbureaucraticbasehas In announced th Motherland July 2006, According tooneAccording scenario, the Putinadministration (and United Russia) in Apparent government manipul , July 27,2006, , July Doc. No. CEP- , March 24, 2006, Doc. No. CEP-950192;CEP-379001;2006, April5,2006,Doc.No. 24, March , fits previouslyor discountedgoods and hadinvolvedfree upport fo that it was a “loyal opposition”tothegovernment in 380001; The Minimal380001; The Minutes, ation ofthe party system r oppos 47 renamed itself the Just RussiaParty.renamed itselftheJust CRS-15 hodorkovskiy’s arrest andimprisonment, hodorkovskiy’sarrest The Putinadministration also was widely donations tooppositionparties,andbusiness s given by thedeputy chiefofthepresidential adopttheideology of“sovereign democracy,” gional elections and orchestrated Dmitri members of small fascistgroups. Some small membersof tic liberaloppositionYablokoPartythe in er theappealofUnity (renamedUnited nd bloc in 2003 to appeal tonationalist nd blocin2003toappeal would “counterbalancetheinfluenceexerted party rather than for“destructive forces.” ment was surprisedbywas ment thestrength of h widely viewedasacreatureofthe ition partiesandforca motivated atleastinpartby his political em. He alsoreputedly statedthatitwould place inthiscountry.” Party The ofLife Pensioners Party alsomerged withthe mpli. Also paradoxical wasthe mergermpli. Alsoparadoxical who wereagainst of themonetization eared tobecomearealityearly during aimed toblockthe 48 at itwouldmerge withFederation Paradoxical to the concept of concept the to Paradoxical included its substantial included its Kommersant so-called oligarchs ndidates insingle- Johnson’s Russia , August http://wikileaks.org/wiki/CRS-RL32662 January 2006,pp.5-21.January single member seats. also argued thatproportionalvoting woul 23; Steven Fish,Str claimed thateliminating single-member dist viewOctober 4,2004.This issupportedby Deciding not to rely on the support of the Decidingof nottorelysupport the on feared seats. thatthe United Russia might fall shortinwinningof two-thirds Democratic Party wouldlikely winseats 52 51 50 49 give moreimportancetominority par party wonnationally.votes each It argu districts intheDumafavorofhaving withKremlinsupport, group oftheCEC, successfully re-registered. Registration ServiceannouncedinlateOc (perhaps withsomecooperationfroma Russia hopetoformasuper-majority in and the Liberal Democratic Pa hopes torelyRussia Russia United onJust administration launched the creation of Party, the Putin determined tofurther reduce the power ofthe Communist members inhalfoftheco everymembers disbursedthroughout fe authoritarianism. parties, while the strong presidency provides groundsfor the growth of Russia’s weak legislature, he argues, discourages citizens fromparticipatingin that the constitutional system plays an important role increatingsituation. a such policy and personnelinthe political system. citizens willlack one ofthe primaryRussian means ina democracy ofinfluencing prevails, situation aslong Heargues asthis that andplatforms. memberships, in turn,harms the development ofstable and legitimate party organizations, highlyand weak vulnerableto manipulati citizens donotbelong topolitical parties included theCommunistParty, Yabl small, or only based in a few regions. legal standing for16previously registered Stephen White, Russians and Their PartySystem, StephenWhite,RussiansandTheir Dmitriy Badovskiy, Mikhail Vinogradov, Kommersant Electing All Duma Members byParty Lists. Following theenactmentofnewrequireme Analyst Stephen White has suggested that because the large majority the ofRussian because hassuggested Analyst that White Stephen , August 30,2004; 50 onger Legislatures, St Gazeta.ru 52 Izvestia AftertheBeslan tragedy, PutininSeptember 2004 included mponents and 250 in the other half—ledtothelossof other mponents and250inthe The requirements that a part The requirementsthat , September 24, 2004;Maksim Glikin, , August 6,2006,in rty and win a number of seats. rtyof number andwina CEDR oko, andtheUnionofRight Forces. CRS-16 , June 4,2004,Doc.No.CEP-366., June ties and regions withsmallpopulations. regions and ties weakened Liberal DemocraticParty). ronger Democracies, in aprospectiveDumaelection2007but Opposition pa all seats determined by the proportion of the by allseatsdetermined Liberal DemocraticPa on by thegovernment. Thismanipulation, ed thatproportionalrepresentationwould ricts would prevent “buying democracy withricts would prevent “buying partiesthatwere d reducethealleged practiceof“buying” CEC chairmanCEC Aleksandr Veshnyakov, who or identify withthem, the parties remain deral component—withatleast500 the pro-government Just RussiaParty.the pro-government Just tober 2006 that 19 out of 35 parties had tober 2006that19outof35parties the Duma in alliance with Just Russia the DumainalliancewithJust to take votes from the Communist Party Communist the to takevotesfrom proposedtoeliminatesingle-member Anotheranalyst, Steven Fish, suggests nts for partynts for registration, theFederal Johnson’s RussiaList Demokratizatsiya y musthavemorethan50,000 rties that were re-registered In August 2004,aworking essentially moribund,too By thismeans, United Journal ofDemocracy rtyin theDuma,and Nezavisimaya gazeta , Winter2006,pp.7- , August 7,2006. (continued...) 49 51 It , , http://wikileaks.org/wiki/CRS-RL32662 City Duma.” liberal candidatesfrom single-seat districts we winners “will ...notbedependentontheexecutive branchofgovernment, ofthe assome in regional electionsheldin2006. Veshnyakov’s assertion, “businessmen” and ot Director ofPoliticalTechnol the December 2005Moscow City Duma election,Aleksey Makarkin, Deputy General dirty money.” popular participation may have been th democratic, according to Russia Party) appeared more committed tomaking Russia’s code electoral less United that brought reformists topower, the Putinadministrationruling (and the dissatisfactionvote-rigging inUkraine with elections wouldstrengthen publicunity countries have taken asuppor enacted inMay 2005. monetization ofsocial benefits. This shift to party list voting inDuma elections was package ofelector his in this proposal 53 52 Virtually all attemptsby andstipul access)forcampaigning, or equal posts, banning theuseof government pr assigned constituents, forbidding legislators fromholdingbranch mostexecutive directing Federation Council not, they had toresign their seats. Seemingly positive elements ofthe law included adhere toparty discipline as members ofparty factions inthe Duma, and ifthey did or the CEC.Appearing tostifle free de electoral observershadtobeinvite foreign preparations for,andconductof that ominously forforeign NGOs,itstated helping from parties orpartisangroups percentage ofinvalid signatures permitted inregistering a candidate, and forbade necessary fora party togain seats inthe Duma the from5%to7%, lowered party Deputies bannedelectoral blocs, strengthening parties and making them better able toarticulate citizens’ interests. legislative elections at political parties.” These observers argue that eliminating single-member district by in manyexperience countries,create that likewiseasserted Konstantin Simonov ofany democracy.” analyst Russian practice political the with line in “quite and is party Europe argued in Rahr analyst that German waspracticed voting Alexander list of thegovernors oroligarchs. asserted thatsingle-member districtcandida Jonathan Riggs Jonathan andPeterSchraeder, (...continued) Rossiyskaya gazeta Other observers familiar withpartydemocratic listvotingin forlegislatures Besides establishing party list voting, the2005Law onElecting StateDuma CEDR CEDR , December 5,2005,Doc. No.CEP-4002. , September 15,2004; Vladimir Ignatov, , June 4,2004, Doc. No. CEP- opposition deputiesintheDumatochange thedraftlawas some critics. Another spur to efforts to to some critics.Anotherspurtoefforts all levels ogy Center, similarly oppositionparty arguedthe list that Johnson’s RussiaList tive orneutralstanceregard and Dumamemberstoend , elections...willnotbetolera Demokratizatsiya will e CRS-17 perfect opportunitiesforthe development of emises andpropertycompensation (without raised the minimumpercentage ofvotes tes for the Duma usually have been “cronies” in the war onterrorism.Afterpopular war inthe al “reforms,”cla bate, the law stated thatdeputieshadto law the bate, e mass protests in d by the president, the FederalAssembly, hers reportedly purchasedslots onparty lists transport voterstothepolls.Perhaps “elections according to partyaccording “elections lists,tested re inpreviousMoscow convocationsthe of resulted in an “orange revolution”there in resulted liminate their efforts“toassistorimpedethe ating days for elections at all levels. daysating all at forelections , September 25,2004.In thecaseof , Spring has 2004. EricKraus nonparty candidates,hence 366. Appearing contrary to ing thenewelectorallaw. Trud iming thatproportional eavor torepresenttheir ted.” It also statedthat early 2005over the , September 15,2004; limit andcontrol limit 53 http://wikileaks.org/wiki/CRS-RL32662 21007; July 12,2006, Doc. No.CEP-21005.21007; July administration equated the threat of te initiated bills. One Russian commentator viewed the law as indicating that the Putin independent “back-bench” deputies, whooften were the sole critics ofgovernment- that the Putingovernment’s main aim was to eliminate the surviving minor party and vote forthe rosterto mobilizedwere ofthe CommunistParty. Some critics claimed dominant party, elections mayresembleSoviet-era cometo elections where citizens eliminate both. CEDR improvevote— the of therepresentative60% natureoftheDuma.that theyleast shareat He has argued thattwoconditionson the 7% rule the originala proposalwasfora10%barrier, Robert Coalson, Russia Party. bysubmitted the Putinadministration were defeated by the pro-governmentUnited 57 56 55 54 anyall.... [A]lmost at criticalstatementaddr any“of Russia todepriveoppositioncandidates Communist Party headGennadiy Zyuganov the UnionofRight Forces wereamong pa theamendments is planning toexamine theyelections, couldifthey nottakein part are judged to be “extremist.” The Duma applicability ofthe extremism law toinclude closing sothat downpolitical parties branded as“extremists.” journalists likewise raised concerns that defamation suitscould result intheir being government individuals disfavoredbythe suchavague of warned that definition ex “prompting” such rioting and acts might be judgedextremist. These politicians as orspeeches appeals public Also, violence.” for calls bydiscord or ofviolence means aswell inciting racial,as ethnic, religious, andjustification social ofterrorism, illegal armed formations, staging ma officials, “undermining the obstructinginclude to the activities of extremism ofgovernment officials, defaming democratic liberalpo widenedthecategorythat of“extremists lists.” accountability fromthe voters to the[govern Veshnyakov hasstatedthathesupportedth Nikolay Petrov, CEDR CEDR In October2006,theFederation Council amendmentstoa2002lawonextremism law into In July 2006,Putinsigned ofthechanges charged that Critics 55 , November 30,2006,Doc.No.CEP-23018. They also raised alarms that, in the condition where United Russia is the is Russia United where condition the in They that, alarms raised also , August 18, 2004, Doc. No.CEP-215; September 5,2005,Doc.No.CEP-379002; , Decem 54 56 RFE/RL Feature Articles Feature RFE/RL ber 14, ber Moscow Times liticians raised concerns about th liticians raisedconcernsabout 2006, Doc.No.CEP-380001; August 3,2006,Doc.No.CEP- 57 country’s security, seizing , September 15, 2004. CRS-18 rrorism to political , October11,2004. in Spring 2007. The CommunistParty and ss unrest, terrorist rties thatdenouncedtheamendments,with tremism could easily be used todisqualify ” subjecttocriminalprosecution.Some nd thatacompromise of7% was worked out. e 5%barrier for winning Duma seats,while essed to the authoritie essed tothe fromparticipating in elections. Some they aimed“toredistribute...deputy ment loyalists] whocompiletheparty —thatatleasttwo partieshave seatsand terming themanotherstepbyterming United proposed amendments expanding the proposed amendmentsexpanding possibilitytakingof partinelections e broadening ofthedefinition or usurping power,forming opposition, and aimed to activ s canbeinterpreted ities, or public http://wikileaks.org/wiki/CRS-RL32662 of poweronly becausethey criticize they partiesandpolitic shouldnot“exclude Veshnyakov,pr alsodenouncedtheproposed decisions andtothink about what it is doing democratic [elections], which forcesthe No. CEP-19002.Doc. Veshnyakov2006, 18, alsost to politicizing thecommissions. Central ElectoralCommission ortoheadre concerns thataDuma billtopermit to serve individuals onthe without legal educations ITAR-TASS CEP-25002; November 30,2006,Doc.Nos.CEP-23005No. andCEP-23018; Doc. than bringing thepeopletoboiling point.” procedures foracandidateto register polls), which was subject to abuse. He also objected to language creatingonerous early voting (balloting before election day,get ostensiblyto unable tothe those for resurrect the practice of Soviet times.”would He objected toone amendment that “we willhaveelecti changeslaw, become as ifthey extremism want.” 62 61 60 59 58 Putin’s presidency has witnessed im Other IssuesofDemocraticDevelopment or ashaving someundesira wasenacted. law In November 2006, theDumadroppedsomeof does notlikewillbe per view that“everythingregulated mustbe when itwasintroducedinearly July 2006.Hestatedthatitreflecteda procedures scant number oftrusted voters would ensure the desired outcome ofthe authorities. this requirementof elimination might contribute toun-advertised elections wherea the Heargued that bevalid. to results forthe district anelectoral in out turn elimination ofthe requirement that a minimumpercentagehadvoters to of of20% blocked popularoppositioncandida argued that this option was insurance against conditions where the authorities had on theballottovoteagainst allcandidate arbitrazh codes,increasedfunding ofthecourts

Reforms include theadoptionandearly stages CEDR ITAR-TASS CEDR CEDR Independence oftheJudiciary. included intheenacted Provisions law Veshnyakovamendm denouncedadraftlawon , NovemberCEP-11015; 10,2006,Doc.Nos.CEP-950009Novemberand 23, 2006, , October27,2006,Doc.No.CEP-25004. , June 28,2006,Doc.No.CEP-11004;, June 12, July 2006, Doc. No. CEP-21005; July , August, 30,2006andNovemberVeshnyakov2007, 23,2006.Inraised January , July 3,2006. , July mitted toparticipateinanelecti ble consequencesincluded th 58 In a surprise move, the head of the CEC, Aleksandr CEC, ofthe head In the move, asurprise CEDR tes from running. Healsofeltunease about the , January 17,2007,Doc.No.CEP-950175., January the existing orderinthecountry.”the existing portant judicialandlegal reforms, and easier grounds forrevoking registration. CRS-19 and inthatway noca gional electoralcommissions might contribute and what it should bring totheelections,rather government torefrainfrom making absurd According tolegal scholar Peter Solomon, s, aholdoverfromtheSovietperiod.He ians fromlistsofcandidatesforpositions ons withoutchoices,asitwasinfact that Veshnyakov viewedasunnecessary and legal salaries,andjury trials.Peter and ofimplementationand ofcriminal, civil ovisions on extremism, asserting ovisions onextremism, that theprovisionsheobjectedtoand ated that “we need ... free and fair and fair ated that“weneed...freeand ents toelectorallawsandcivil on.” He warnedthatifthe e elimination of the option the e eliminationof ndidate thegovernment (continued...) 59 62 butthese 60 61 http://wikileaks.org/wiki/CRS-RL32662 of jurorsandwemustsimply be of U.S.journalistPaulKlebnikov“of murder in January 2007statedthata jury’s acquitta strengthen mustthinkabouthow it.... We trial by jury], notmean butthisdoes we they sothat “organized” donot interfere rendered notguilty judgments. particularly inhigh-profile cases. They intheselectionofjurors interfered have Solomon, of Threats C Judicial Times forTrialby Jury,” Jury TrialsinRussia,” and itsImplications forPolitics andBusinessinRussia Security andCooperation in Eu thelegal system remainsthat corrupt. Commissionand behaveand accordingly,” on He alsoargued that“judges court.” in system continuestheoldpractice of automati instill firm rulesofprocedureandevidence fo “was supposedtoestablishanindependentjudi and thecourtsare“extremely deficient.”He 2005, pp.325-346. reforms havebeenthreatenedby seve 65 64 63 62 beaten by police invarious Russianthe cities” toprevent them fromcoming to Masha Lipmanin reportedthat“morethan100peoplewere totheG-8 run-up circumscribed inthe commit undefined“illegal acts.” and the president’s homes, and permitting th restricting public dem signed by 2004. thepresidentinJune intervene to“propose”somechanges. Th deputie bill, butcomplaintsfromsome bill. After the election of the new Duma, however, United Russia moved toenact the byCo headed a bottled upinacommittee introduced totighten restrictions onpublic assembly. first,the legislationAt was somewhat effective inpersuading the g continuing government legalthe efforts retard establishment, although many ofthecounter-reformefforts and these functions ofjuries establis to reforms haveincludedefforts Analyst Peter Roudik testified in July 2005 th 2005 AnalystJuly PeterRoudikin testified (...continued) Guy Faulconbridge, KristiO’Malley, “Not Guilty until the Supreme Court Finds You Guilty: A Reflection on According tosome reports, freedom of assembly and wereexpression illegally of Assembly.Freedom Reuters Demokratizatsiya onstrations by prohibiting them pressure toconform. Washington Post ounter-Reform inPutin’sRussia, , January 11,2007. , January rope (Helsinki Commission). lection, tenure,andsalaries 64 tter organize theworkofjuries.” Appearing to reflect a view that juries need to be needto juries that aview reflect Appearing to In 2003,opposition partiesandgroups were understand whatdecisionsareexpectedfrom them ral “counter-reform”initiatives. These c CRS-20 , January 1,2006,pp.42-59;, January “In Russia, Trying , October31,2005,p.A12,. with prosecutors’Putin President decisions, summit inMoscowJuly 2006.Analyst Some criticsassessth the progress of reforms,andjuristsface e amendedbillthenwasquickly passedand overnment to modify amendmentsithad overnment tomodify appeal many cases in which juries have juries which many appeal in cases cally convicting almost everyoneappears who r police and prosecutors. However, thecurrent to safeguard the independenceandsecurity safeguard to muststopitswork,wedevelopit, mmunist deputy whoseparty opposed the s andpublicorganiza stated thatthenew criminal procedural court h greater government influenceoverthe , theirdeliberations,andverdicts, l in2006ofindividualscharged withthe ciary,the accused,and increasetherightsof course discreditsth at the newlawsregardingat criminal justice 63 have beensuccessfully resistedby the In the case ofjury trials, prosecutors em to be terminated if participantsif em tobe terminated , July 13,2005. , July in front of court houses, jails, houses, in frontofcourt Briefing: The Affair” “Yukos of judges. Heargues that Demokratizatsiya timidated, harassed or e billasstilloverly e very institution[of tions ledPutinto 65 , June 22, , June ounter- http://wikileaks.org/wiki/CRS-RL32662 35002; markets afterApril2007. Critics government. According tothe law, noforeigners willbe permitted toworkinretail assert ethnic thatmaking itcontributes discrimination to a policy ofthe Russian quotas oneconomicactivitiesperformedby non- limits onthenumberofguest workerspe goods inthemarkets. Georgians, Azerbaijanis, 25002; 25003; October29,2006, Doc.N Freedom Report2006 Focus Policy Russia Moscow toprotestorattendahumanrights 69 68 67 66 “indigenous population.” ethnic Georgians, in OctoberPutin2006 called for a law to protect Russia’s some deport to moves Russian and Russia northern in atown in raceriot Chechen ac accordingracism andxenophobia, tothese Party,Motherland to and contribute its recent andsanctions rhetoric anti-Georgian government’sabus rights long-time human semi-official militiascontributetosucha Human rights activists have allegedRussian police and security that forces and Asians —increasingl Caucasians, Africans,and and otherNorthCaucasians,Romagypsies, acute inrecentyears. Recognizable for mostofthepopulation.” government policy “continued deteriorated forsomeminority risen. The U.S.StateDepartmenthasar media has increased, and that official discrimination against observant Muslimshas the numberofanti-Semiticstat groups,that NGO lawrestrictsforeign donationsforch be toleratedby thegovernment.” The the growing“and influenceofchauvinistic government Putin increasingly the by been threatened within trends authoritarian Religious Freedom, progress inRussia and demonstrations Pamfilova reported toPutinthat bans and restrictions bylocal authorities onrallies tacticsofthe1970s.InSoviet-era U.S. Commission on International Religious Freedom. MashaLipman,

ITAR-TASS CEDR The problem of discrimination against ethnic minorities has appearedethnic The problem ofdiscrimination more against Other CivilRights. Europe: Daily Report Europe: Daily Associated Press , September 4, 2006, Doc.No.CEP- , September 4,2006, , October5,2006. Washington Post wereincreasing. , Fall2006. U.S. Department of State. , September 15,2006. 69 , June 2,2006; , June 68 Tajiks, and Chinese whoco andChinese Tajiks, , September 12, 2006,Doc.No.EUP-342007; Owen Matthews This Law onMigration, enactedinDecember2006,sets According to the U.S. Commission onInternational According tothe U.S.Commission 67 to contribute tothe generally free practice of religion o. CEP-950020; November 10,20 , July 15,2006; of thisbanassertthatit religious groups during 2005-2006,Russian ethnic minorities—including some Chechens 66 Interfax CRS-21 Commission hasraisedconcernsthatthe2006 January 2007,human rights activistElla gued, however,thateventhough conditions buses and are rarely punished.ThePutin es inChechnya, itssupport fortheformer groups inRussiansociety, whichseemto rmitted from various countries and sets rmitted fromvariouscountries 22002; October11,2006, Doc. No.CEP- aritable andotherac ements bythe government officialsand meeting. He likened the repression to meeting.likened He in protecting religious freedomhas , January 11,2007. , January Jews, and foreignersand suchasSouth Jews, tivists. Just afteranethnicRussian- Just tivists. y attacks. racist havebeentargeted in CEDR citizens. Some critics ofthelaw critics citizens. Some Annual Report mmonly sellproduceandother , July 10, 2006, Doc. No. CEP- 10,2006,Doc.No. , July particularly targets ethnic International Religious tivities ofreligious 06, Doc. No. CEP- , May 1, 2006; and (continued...) http://wikileaks.org/wiki/CRS-RL32662 media coverage. Petersburg afteracampaign whereopponents Chechnya. Ma VoterselectedValentina Ingushetia headsin mayoralregional ofthe and raceandelections Petersburg administration appearedtomanipulat candidates whowerenot heldintheregions (in2004ther elections fewerAccording than a dozen toone ofthe estimate, duringterm Putin’sfirst inept,butitbecamemore selective and as wasgenerally elections direct characterized these in interference presidential regional statutes.of During the Yeltsinconstitutions, period, and itwas also part of Russia’s21autonomousrepublics,this permitted toelectgovernors,the country. andin1996-1997across held suchelectionswere the 21 republics and two federalcities remained locally elected). Some regions were governorsto newly createdpostsinRussia’s and AnnaNemtsova, StateofHate, presidents oftheautonomousrepublics au agencies andthe powersofcentral the that eliminatedtheirmembershipinthe centrallegislativegovernorsinfluencein the affairs of by forcing through legislation districts” (groups ofregions) tooversee over theregions by appointing presidential control greater asserted central Putin office, in of term regions. During first the his 73 72 71 70 69 as “an integral, single organism w president andconfirmed by re that proposed gubernatorial elections.He non-favored candidates andunde the “presidential nomination” ofregional heads wouldfacilitate anti-terrorism efforts deputyHis violate theconstitution. chief and “working with”lower-levelgovernments. addition, heproposedthatthesegovernors contributed toPutin’sSeptember2004 (and ethnic-basedrepublic In late 1991, the Russian legislature granted Yeltsinthetemporary powertoappoint Russian In late1991,the (...continued) GordonHahn, CEDR Washington Post In the latter half of the1990s,virtua of In thelatterhalf Federalism. The AppointmentofGovernors. , September 13,2004,Doc.No.CEP-92. Demokratizatsiya 72 , September 16,2004,P.A28. The Putingovernment hass favored by center. the gional legislatures sothat “presidents”) forbudgetary resources may have , Spring 2004,pp.195-234. sired demandsby thesepopul Newsweek ith a clear structur CRS-22 came to beelected came e local elections included the2003St. included e localelections Federation Council.Healsostrengthened 66 regions, territories, and areas(theheadsof thority ofnationallawintheregions. of staff, Vladimir Surkov, explained that of staff,VladimirSurkov,explained tvienko, aPutinproxy, asmayor ofSt. administration. He greatly reduced the administration. Hegreatlyreduced should “exert moreinfluence”informing should “exert , November 6,2006. organized andeffectiveunderPutin. The loss of a few regional electionsto regional few a Thelossof e were89regions) resultedinwinsfor representatives tonewly“super created Beslan proposal to eliminate direct Beslan proposaltoeliminate regional headsbedesignated by the lly allgovernors oftheregions and These“reforms,”he stated, would not complained ofharassmentandbiased principle was enshrinedintheir was principle 71 Primary examples where the Putin the where Primary examples ubstantially reducedtheautonomy the federalsystem functioned esubor of byvote. direct arly-elected governors dination.” 70 In many In 73 In http://wikileaks.org/wiki/CRS-RL32662 will andthrough electedandotherorga citizens by meansofreferendums, elections by exercised is self-government “local that “system power”anddirected ofstate 1993RussianConstitutionstrictlyThe sepa aspects oflocalself-governme Putinadministration, the concerns that their numberandmakethemmo appointed by PresidentPutin(he is also pus regions. governor for considerationby thepresident. for acandidate nominates elections) legislative in votes garners most one that the December 2005.Undertheprocedures, the do governor. He subsequently sent a billtothe Federal Assembly that itapproved in procedures ostensibly giving regions an appointment of governors. According to would give thedominant procedures that State Council(aconclaveof Autonomous Area. racewashe gubernatorial last 2004. The approved thebillanditwas legislature ofthe chambers Both office. ofelected Many term final their werein governors endorsedtheproposalbecause having tosolicitvotes,andtheirdesire ru “professional” than rather proposal, withLuzhkov proclaiming that Mayor Yuriy Luzhkov andTatarstanPres the centralgovernment forfunds.Most by permitting central authorities tofreely cr 75 74 appointed. majorities(80%- voted byoverwhelming have cases,regional legislatures all hasstayed virtually incumbent andin place, in nominee. play thisrole, sothe regional nominee present, UnitedRussia’sleaders, allied w —by controlled not cases at —if party central influenced the In leaders. most appointment. Someofficialsadmitted that (controlled bythe the regional dominantlegislature party) then confirms the officials praisedtheproposalasending th

CEDR Komsomolskaya pravda Moving Against Direct Mayoral Elections. In hisApril2005 StateoftheFederation In the majority of caseswherePresid Inof themajority Indicatingthat theproposalwouldeasily pa , January 20, 2006,Doc.No.CEP-318002., January 74 75 As of early 2007, the majority of Russia’sregional leadershad been of Asofearly 2007,themajority , September 29,2004; signed bysigned PutinandwentintoeffectonDecember15, lers. Besides the possible distaste of these leaders for leaders ofthese distaste possible the Besides lers. federal officials and heads of regions) toconsider federalofficialsandheadsofregions) nt, including by gaining thepowertoappointmayors. re manageable; see below). CRS-23 ns” (Articles12,130). to remainonthePutin“bandwagon,” many indirect means of nominating candidates for candidates indirect meansofnominating some observers,theintentionwastocodify e practiceofgovernor federal subunit leaderssuchasMoscow subunit federal post-Beslan, isseeking toreversesome ith thepresidentialadministration,would also wouldbethepresident’spreferred regional partyregional presidential the in avoice 100%) toconfirmwhomeverPutinhas ack downon“extremist infection” inthe theregional partybe would nomination they wouldnolonger termlimits. face it would endtheelectionof“popular” would it If the president concurs withthischoice, , and other forms of direct expression of other formsofdirectexpression , and hing for the merger ofregions toreduce ent Putinhasappointedgovernors, the ident MintimerShaymiyev hailedthe ld inJanuary 2005intheNenetskiy rated localself-government fromthe Russia Profile address, President Putin calledforthe President address, minant partythe is, (that inaregion ss inthelegislature, pro-Putinparty Someobservershaveraised , October14,2004. s constantly lobbying A1995lawonself- http://wikileaks.org/wiki/CRS-RL32662 concerns elsewhere in theNorthCaucas concerns elsewhere Reported popularprotestsinAdyge against along withplans go representative to from PresidentPu refusedexhortations had involved Adyge S RepublicheadKhazret smaller subunitsby shifting supporttothela mergers also relieve thefe administrationhasofferedeconomic Putin and referendumswillbehe th of theChitaRegionlegislatures and 29034. mistakes ofourdemocratic perestroika years.” administrative re-unification oftheKoryak democratic election ofmayors (or ot democratic election ascodifying havebeenviewed the ofLocalEuropean Charter Self-Government, the Constitutionalof Court,and Russia’s government, ratification ofthe decisions 77 76 subunits from89to84. federal in thesubunits.Themergers thathave local democracy and the civil rights ofethnic minorities that have privileged status asserted that they represent Putin’sfurther assault on Yeltsin-era initiatives toexpand efficiencies administrative andeconomic merging ofsmallfederalsubun leadership andwasnotactedupon. regional capitals mightbe ofthebill.Inexamination late2006,a mayors, andelementswithinthe Putin After thebillwascriticizedby thede mayoral elections,itwouldma outbycarried mayors. Alt functions bill that wouldpermit regional governors“interim” toassume control over many at theinitiativeofsomemembers the mayors. In April2006,some United Russia mayors andabouttheneedtoprotect appear to be more complaintsby central financial independence. direct electionsoflocalc assured cities, called towns,and settlements forlarge-scaleand ofcertain powers During Putin’s presidency, a2004lawonlocalself-government administration). During the referendum vote in Kamchatka Duringin thereferendum Region, the governor vote proclaimed thatthe CEDR The merger effortshaveinvolvedhard Merging Fede concernedabout Observers , November 17,2006,Doc.No.CEP-25017. ral Subunits. ouncils andmayors butproblematically removed muchlocal ld ineachonMarch11,2007. deral government of direct budgetaryderal government of supportforthe appointed ke affectedmayors “figureheads,” according tocritics. its withlargeror regions 77 Most recently, Putinapprovedthepetitionsof democratization trendsha democratization 76 The Putinadministration has advocated the CRS-24 e Aga-Buryat AutonomousAreaonmerging, officialsabout“inc administration, the StateDuma“postponed” been completed have reduced the number of number the been completedhavereduced mocratic liberaloppos hough thisbillwouldnoteliminatedirect to merge Adyge with Krasnodar Territory. her popularly determinedmeansoflocal local citizensfromsuchpopularly-electedlocal presidential administration—introduceda was notendorsed by the United Russia us aboutpossiblemergers andledPutin’s proposal in the Dumathatthemayorsproposal inthe of ovman, who in April 2006allegedwho thathe ovman, area with Kamchatka would“rectifywith the area . Criticsofthemerger proposalshave deputies in the StateDuma—reportedly rger subunits).Onesensationalincident incentivesformergers (although the the alleged merger plan contributed to the alleged merger plancontributed CEDR bargaining among localelites, andthe tin andfromPutin’ssoutherndistrict , October 23, 2005, Doc.No.CEP- , October23,2005, territories toachievegreater ompetent” and“criminal” ve warnedthatthere ition deputies, many ition deputies, http://wikileaks.org/wiki/CRS-RL32662 democratization maydemocratization affect democratization ormore authoritarianism. Implications of includelevel howthe forsome time, orwhetherendure itisa stage onthe way toeither more ofmanaged democracy level current the whether can is scenarios the considering in September 2004. the West—was ‘tossed’intotheRussi in result oftheintriguesthe ofinte as Russia disintegration shocking ofRussia....This administration ... intends to builditspolitical Democracy Journal ofDemocracy that suchelectoralirregularities may beco Journal ofDemocracy States Caucasus. representative toannouncethatthere were 81 80 79 78 resulted indifferentelect —suchasChechny facing Russia problems prevented publicdebate personnel. Those who viewrecentpolitics greater “democracy,”toward processespolitical sometimes leaning toward greater“management” sometimesand according tosomeanalysts, Russiamay re the continuationofcurrentpoliciesthat Scenarios forRussia’s advanced bychanges.)political his Putinas afor justification is deemedby many observersto be less lik down in 2008. (ThebreakupofRussia—also interlude) isa period ofchaotic instability that may occur ifPresident Putinsteps possible Another democracy.” “managed authoritari democratization, major trends orscenarios ofRussia’s future political development, namely authoritarian. Otherswarn Forbackground, seeCRS Report 98-642, Asrelatedby Steven Myers, Steven CEDR Managed Democracy? mayrule be The implications ofPutin’s , by Jim Nichol. , March31,2006,Doc.No.CEP-324005; April5,2006,Doc.No.CEP-950259. 78 , April2002, pp. 21-35. CEDR New York Times York New Moscow gazeta , April 2002,pp. 51-65; Michael McFaul and Nikolai Petrov argue , July 2004,pp.20-32. AlsoseeLarryJuly Diamond, , , April5,2005,Doc.No.CEP-165. Implications forRussia during the2003-2004Dumaand oral choicesandpolicies. that managedthat democracy could the economy andforeign policy. anism, or a middlegrounda thatmany or observersterm anism, butnotleading tofundamentalchanges inpolicyor Scenariosofmanaged , September 1,2004;Steven Levitsky andLucanWay, , “a principle, key thesis,around whichthePutin , “aprinciple, Political Evolution CRS-25 rnational terrorism, supported by certainforces thesis —aboutthepossibledisintegration of Democracy-Building in the New Independent New Democracy-Building inthe mmon states.See democratizing inrecently ely, and is not examined here, but has been has ely,but here, andisnotexamined campaign in2005-2008 ...[isthe]threatof as managed democracy suggest thatPutin sume democratizati an political space by President Putin,” in an politicalspacebyPutin,” President no federal plansformergers intheNorth hinder democratization. Eventually, hinderdemocratization. a and privatization — that might have that — a andprivatization scenario (perhaps considered asan (perhapsconsidered scenario organized intothreeorperhapsfour termedthe“failedstate” scenario — 81 democracy usually envisage persist indefinitely, with presidential electionsof 80 79 on, oritmay become The main question Journal of http://wikileaks.org/wiki/CRS-RL32662 the economygrows,and Putinorhissucce prejudice against free markets —a legacy ofSoviet-era propaganda — will abate as ofmanytypical developing countries. democratization of level hasthe power.In sense,they Russia electoral this claim, ultra-nationalistscaution and that comm beenhave irresistible would ifdemocratic institutionsfunctioned freely.They also re-nationalizing assets, and resurrecting Soviet suggest thatpopulardemandsforprosecutin thatw reforms order topursueeconomic tsarism, bothtypified by rule by whim 1990s. Heargues that Putin’sruleisathrowbacktotheearly 20 Russia’s substantialmoveme state. animperial become hasnot Russia free a respects thanitwasunderYeltsin, President Boris Yeltsin are system overblown, the political isbetter runinseveral asser democratization, a somewhatsimilarargument. Although the NationalInterest Summer 2004,pp.20-26. greater democratization canthreaten economic development. A Normal Country, threaten thisfragile system ofrule. 2008), buteventually activ democratic astandoffcould reforms. Such persist fo them, ratherthanusing thefunds placate generated byrevenues high worldo used groups havebeenstrong impediments toPutin 85 84 83 82 districts. the in elected deputies Duma power grabs by oligarchs, andendcont awaypower from“politicalorder tostrip warlords called governors,” eliminate d Putin’s Beslan proposalstoconcentrate criticism inIraq. ofU.S.operations Analyst Dmitriy Simes has suggested that although differencesonsomeforeign polic onTerror United StatesontheGlobalWar democratization. According tothisview, they arenecessary tocombatterrorism DonaldJensen, AndrewKuchins, “Russia intheAge ofPutin,” Dmitriy Simes, RFE/RL RussianPolitical Weekly Other observers assert that Putinisnecessarily stifling some democratization in In contrast,Analyst Anders Aslund has Some observersargue thatregional, Another view at leastsomewhatsupportiv RFE/RL RussianPoliticalWeekly PBS Newshour Foreign Affairs , October1,2004. tions that Putin is much less much tions thatPutinis nt towarddemocracy andamarketeconomy during the , September 14, 2004. , March-April 2004. Joseph Siegle rejects the thesis that , March-April thethesis Siegle 2004.Joseph rejects , April 28, 2004;Andrey, April Shle 82

CRS-26 without checksandbalances,anoverweening 84 Eventually, according tothisview,popular and donotfundamenta Analyst make appearsto AndrewKuchins to furtherdemocratic 85 rol by regional “corruptstructures”over rol by regional ssors canpermitgreater democratization. ism andeconomicde Russia willcontinueto r some years (even if Putin steps down in r someyearsdown steps (evenifPutin ethnic, economic,bureau ecision-making “makealotofsense,”in Putin’s Belsan proposalshaveweakened

market economy isstilldeveloping, and ould bethreatenedby populism.They unists might havegarnered dangerous il pricesaslargesse tothesegroups to g theoligarchs and otherbusinessmen, y issues may occur,suchasRussia’s yissues -era pricecontrolsandsocialsubsidies and issuessuchasnon-proliferation, SAIS Review ’s exercise ofmorepower.Putin ’s has exercise viewed thePutineraasinterrupting e ofPutin’sBeslan proposals is that , October 1,2004;DanielKimmage, democratic thanformerRussian Harvard International Review , Winter2006, pp.193-197. ifer andDanielTreisman andmarketeconomy lly setback Russian cooperate withthe velopments could cratic, andother th century and In 83 , http://wikileaks.org/wiki/CRS-RL32662 “tranquilized” the Putinadministration, so to theopening inJuly 2006of a Group of Eight (G-8)summitchaired by President control ofallsignificant property.” personified bureaucracy, power,ofthe dominance the great powerideology, andstate challenged, the “principles that holdthe post-communist Russian system together: Lilia ShevtsovaassertsthattheRu found insimilareconomiessuchasVenezuel budgetary and economic revenues growth citizens. under Putin’s rule is linkedtothedeclin corruption ofgovernmental level increasing the that House hasargued similarly Financial Times March 2006, p. 21. the UnitedStatesCanandShould Do Politics nationalist authoritarianismdemocratization or mightcome tothe fore. cannotlong endure,Aslundstat atavism private sector,andforeign investmenta checks andmedia democratic bureaucracy andsecurity apparatus,a 90 89 88 87 86 the trappings ofdemocratic rule — pluralism reduced inevery single area of politics. As a result, Russia isleft only with warning inMarch2006that“underPresiden Foreignof The taskforceoftheCouncil not approacharguewill therule repressiveness such that ofthe former Soviet Union. Russia as marking thedescent toundemocra term they may cling to power). Other numbers ofsuchofficialswilldeclinewith may era,andhence Soviet the careers in and years of managed democracy. formative Many their spent officials current support democracy, sothatgenerational tur United RussiaorZhirinovskiy’s Liberal Democr liberalism.” In the2003-2004elections,these young Russians appeared to support yet committed tothe “basic values ofhuman rights, tolerance, and constitutional may be more worldly than their elders, and value freedom over equality, but are not support fordemocratization,c Imitation Russia, Freedom House,NationsinTransit John Edwards, Jack Kemp, Edwards, Jack andStephen Sestanovich, John Beat Kernan, Sunday Telegraph Several analysts have argued that Russia’s heavy Russia’s argued andgas that onoil for analysts reliance have Several Authoritarianism? Some observerssuggest Russiansaremorelikely thatyounger,educated to , July 2004; 87

East European Quarterly East European , August 24,2004. The American Interest CEDR , March14, , August 4,2006,Doc.No.FEA-26003. Some analysts view current political developments in iting pollssupposedly indicating that younger Russians on his power, Putin has been freer to move against the against move on hispower,Putinhasbeenfreerto 2004, p.25; , Task Force on Russia, Council onForeignRussia, Relations, on , Task Force 88 2006; CouncilonForeign Relations,March2006. their form,butnotcontent.” CRS-27 , March2004,pp.85-107; NadiaDiuk, , November-December 2006. ssia’s energy-based economicboomhas nd rampantcorruption.By constraining observers are more ing accountability ofthegovernment toits nd economic growth will suffer.Putin’s will nd economicgrowth nover eventually willend the current era be attunedbe toauthoritarianism, butthe Relations hasreflectedthisviewpoint, supports managed democracy ofasort es, butitisuncertainwhetherultra- in a decade or so (although inthenear (although so or in adecade that itsimplyha tic ruleinRussia, although they usually a, Azerbaijan,andKa t Putin, power has been centralized and centralized been t Putin,powerhas New York Times York New atic Party rather than liberal parties. Russia’s Wrong Direction:What pessimistic , April21,2004,p.1; s honed,s zakhstan. Analyst 90 Responding 86 rather than about this Freedom Journal of 89 http://wikileaks.org/wiki/CRS-RL32662 cycle of Duma and presidential elections. cycle andpresidential ofDuma will worktoensurethatthey remain pluralismandfreemarketsas view and Kryshtanovskaya alleges. The securitygovernor officialsdonothold variant of a corporatiststateruledby adi maysuggests thatunderPutin,Russia bemoving toward“someoriginal Russian For bolster orhinderdemocratization. culture, also stress that political leaders such as Gorbachev, Yeltsin, and Putinmay are Tsypkin has reportedthatabout one-third many posts.Sheassertsthatabout (the so-called officials havereliedonideologically-kindr this view. and feared democratization receivedtraining orga inSoviet-era or 20% oftheDuma,andover30%govern high percentageto the ofRussianoffici Russia, giving the Security vote-counting in Service andcomputerized chargeis in machines ofvoting except perhaps tovote. affairs, they think thatthey have noinfluenc See Jamestown Foundation, observers have warned thatthe ready fordemocracy. Belarus orundermining democrat using energy aspoliticalleverage ...[a ...wouldnotbe Asia work tokicktheUnitedStatesoutofvitalbasesinCentral end Iran’s nuclearweaponsambitions... beforcefully engaged to efforts in [would] Russia democratic “amore argued that They Russia. in force)urged task of the pushfordemocratization the to G-8 leaders Putin, formervice presidential candidates 95 94 93 92 91 seeka to Russians predispose factors Pain, Vitaliy Yaroshevskiy interview, Riggs Jonathan andPeterSchraeder, “WeNeed tobeTough with Russia,” Onepollsterargues that eventhoughmany Ru Journal ofDemocracy siloviki Analysts lagging whoblame democratiza Another proposed reasonforauthoritarian proposed Another Demokratizatsiya 92 who continue to be paid byag paid their whocontinuetobe Russian sociologist Olga Krysht Russiansociologist siloviki siloviki or“strong ones”)toretainpow , Spring 2001,pp.182-92. 95 CEDR , July 2006,pp.72-86., July But some observers,But while recognizing the influence of finalcontroloverelectionresults. The NISObserved:anAnalytical Review have workedtosubstantially undermineit,according to , August 4,2006, Doc.No.FEA-26003. siloviki siloviki Novaya Gazeta Novaya s inGeorgia andUkraine.” 60% of Putin’s topadvisorsare 60%ofPutin’s increasingly influencestatefinancesandthemedia. Demokratizatsiya vozhd inpowerfollowing theupcoming 2007-2008 International HeraldTribune CRS-28 are attuned toorder are als thatareholdovers ctator, adornedwithSl nizational methods.Theseofficialshave nizational e onpoliticssodo not participate in thisrealm, nd] would not besupporting autocratsin would nd] chaotic, Kryshtanovskaya warns, andthey would not playnot would hosttoHamas...wouldnot ships, many holddeputy governorships, 93 of thedeputy ministersinthegovernment instance, U.S. scholar James Billingtoninstance, U.S.scholarJames ed security, police,andmilitarypersonnel Jack Kemp and John Edwards(co-heads KempandJohn Jack (strong arenot leader), and Russians that Tsypkin hasspeculatedthattheFederal ssians think they shouldparticipateinlocal anovskaya argues thattheseholdover tion inpartontheSovietlegacy point ment officials. Researcher Mikhail Researcher officials. ment encies. At the regional regional the level, At even encies. if , August30-September, 1,2004.Some tendenciesisthatageless cultural , Spring 2004,pp.265-293;Emil er, and have elevated them to them elevated er, andhave and obediencetoauthority 94 from theSovietperiod 91 avophile rhetoric,and

, July 12,2006. , July , June 24,2004. , June siloviki , about http://wikileaks.org/wiki/CRS-RL32662 2006, Doc.No. CEP-318002; Steven Fish, of theWheel—Russian MiddleClass Moving Into Civil Action Phase,” restructure their political system tocreate a more democratic balance ofpower. willrewrite the constitution and otherwise Russians growth ofthe middle class, be broken. Theseanalysts society by suggest civil prompted asthe matures, that the “color revolutions”inGeorgia andUkraine reinforce apoliticalcultu can participation acknowledge that moves by developed andformabasis and communistparty ruleinRussia,some argued thatdespitetheauthoritari has Marsh cultural predispositionsfavor Testimony byDmitri Treni Relations Committee. also Senate Foreign H. Billington, Problems,” in temporary interlude. representing, ineffect,fascismwitha 99 98 97 96 Richard Sakwa.Although thenumbersof elections, “theoveralltrend underdeveloped, someregions remainauthor Although civilsociety is to whichhehasbeenabledominatepolitics. degreedemocracy” the exaggerates “managed term the argue that democratization andu xenophobic are support policiesthat observers warn,however,thatnewly el legislation banning by manipulating political party andgroup some cases,seemedintentadministrationhas tochannel the Putin and constrain them Duma andpresidentialelections.Althoug espousing candidates support forpolitical the andultra-nationalismamong xenophobia rights has been constrained by hasbeenconstrained rights laws. recent countervailing influenceby civilsociety enough to resistbacksliding. it may takenew democracies will be established.They to democracypoint analyst Robert Dahl’s suggestion that progress towarddemocracy,fitful andargue Graeme Gill, Paul Goble, “Window on Eurasia: 1993C PaulGoble, “Window onEurasia: Making Russian DemocracyWork Democracy andItsCritics Those researchers Putinisessentially whomaintain that committed to might deepen inthe political system iftheAuthoritarianism reported rise in Democratic Progress? Johnson’s RussiaList Russia inSearchofItself Perspectives on European Politics and Society, Perspectives onEuropeanPoliticsand parties andcandidate 96 n, MoscowCarnegieCenter , NewHaven, YaleUniversity CT: Press,1989,p.315. is still probablystill is towarddemocracy,”analyst according to 97 for furtherdemocratization. ing all-powerfulleaders change. Analyst Christopher the Putin administration to raise barriers to political around twenty years,mature generation,to orabouta They argue thatarobustcivilsociety will emerge as Some analysts Some urge patience in assessing Russia’s , Lewiston,New York: Edwi , August 24, 2006; Yevgeni, August2006; 24, , WoodrowWilsonCenter,2004. CRS-29 friendly face,”thathehopeswillonly bea Journal ofDemocracy ected deputies and a new president might ected deputiesandanewpresident s from espousing “extremist” views.Some s fromespousing “extremist” advocates of democratization andhuman advocates ofdemocratization such sentiments inthe2007-2008cyclesuch of h appearing tosupportsuch sentiments in onstitution Blamed forRussia’s Leadership siloviki Hearing onRussia: Back tothe Future? culturalaspirationsfordemocracy have formation and activities and by enacting re of passivity, they pointtothepopular as evidence that this vicious circle can circle vicious this that as evidence an legacyyearstsarist ofathousand of itarian, and the Kremlin intervenesin itarian, andtheKremlin that a stable pluralism sooner or later that astablepluralismsooneror ltra-nationalist, pa population isreflectedingreater in top political postshave greatly , June 29,2006. , June 98 Vol. 3,No. Vol. 2, 2002; James While many observers n MeilenPress,2000.See y Gontmakher, “Freedom , January 2006. , January rticularly since CEDR , May 25, 99 http://wikileaks.org/wiki/CRS-RL32662 Intellectuals Say Civil Society Grow policy inthe economic, foreign policy, orregional realms. make they hasargued era,Sakwa to that appear donot Putin during the increased 101 100 obs These runner inapresidentialelection. constitutionally become the acting president and be poised as the Putin-favored front- resigning appointing apremierandthen continuity ofgovernment by following beyond, resulting instalematedpoliticala factions. They may vieforinflue under anewpresident.Thes officials arenowappointed Putin’s personal stamp and lacks strong independent, legitimate institutions.Many does notrunforre-election.Th a period of politicaluncertainty in 2007- many socialbenefitsinkind(mainly fr involved soliciting publicinput,thegovernme not fullydemocratichad institutions functioned. Instead ofa democraticthat process including medicine,utilityand rent, subsidies) by cash subsidies demonstrated that development. new groups, viewedbyen someobserversas andotheryouth b students college Some to abetprotestsand appeared quickly the monetizationreforms during regional andlocalelect reformsandconti monetization Duma blamedregional theand central ministries governments forproblems withthe a moratorium onthe monetization reforms. The United Russia Party faction inthe opposition” MotherlandParty de governments fortheproblemswithm ofdirect gubernatorialthe elimination elections by blaming the sitting regional boosted budgetary funding forcashpayments. monetization reformsbutpostponedelimina Therange. Putingovernment resisted overturning50% time below the the fell shortoftheformerin-kind benefits. in Russia seenin not large-scale protests the monetization reforms, these critics allege. The monetization reforms caused Tim Murphy, Richard Sakwa, A Chaotic Interlude? According tosomecritics,thePutin Protests by many pensione 101 Los AngelesTimes RFE/RL RussianPolitical Weekly galvanized oppositionpoliticalparties,whichmoved rather thanelectedandar Someobservershavewa e officials appear to belong to several bureaucratic several e officialsappeartobelong to oral contestsin2005-2007. nued thismostlydeflecting successfultacticof blame rs, war veterans, students, rs, warveterans, manded theresignations of , January 31,2005, p.A1. , January ing,” August 4,2006,Doc.No.FEA-26003. ey argue thatthecurrentpo nce during the 2007-2008 election cycle and nce during the2007-2008election CRS-30 to gain atleasttemporary popularsupport. Putin’s popularity dippedbriefly forthefirst 2008 andperhapsbeyond ifPresidentPutin tran ee ridesonpublic several years, cashpaymentsseveral becausethe former President Yeltsin’s example of example Yeltsin’s President former ecame involvedintheprotestsandsetup government’s early government’s 2005replacementof onetization reforms.The“constructive onetization nd economic affairs. Putin might seek nd economicaffairs. ervers argue thatafterapossiblyervers chaotic couraging aspects of futurecivilsociety couragingaspects fromoffice.Thispremierwould ting some in-kind benefits andgreatly ting somein-kindbenefits In January 2005,Putin partly justified nt andlegislature toohastily enacted , July 7,2004. , July e concernedabouttheirfate rned that Russia could have rned thatRussiacould and disabledpersonsabout CEDR 100 “liberal ministers” and “liberalministers” litical system bears sportation, butlater , “Analysis:Russian http://wikileaks.org/wiki/CRS-RL32662 to beslowing.” acknowledged that Russia had made progress in democratization, butthatthe“pace seems Craner, remarks, Endowment National President Putin inPress Availability, Camp David. FY2005 Justification totheCongress, is notyet fully Key tetheredtolaw. asp found the essential balance among the...br Izvestia Secretary ofState ColinPowell was more critical, writing inthe Russian newspaper U.S.-Russia Relations authoritarianism, ordemocratization might emerge. st more period ofpoliticalsuccession,a 105 104 103 102 rule oflaw thrive.” world,acount the with and its neighbors, visionforRussia: Putin’s respect President elections, PresidentBush attheSeptem criticized the campaigns and outcomes as notfree and fair). Russia’s efforts to holdelectionsanda c critical ofRussia’shumanrights abusesin Khodorkovskiy’spr arrest,and thecriticized processhasto threats such Administration as statemedia, control over pr some has viewedRussiaashaving made Euro-Atlantic community. opportunities fortradeandi force fordemocratization U.S. and stabilityexpand inthe rest ofEurasia, would and example apowerful provide would aRussia democracy Such andfreemarkets. has “a compellingnational interest” inseeing Russia consolidate itstransition to destruction, andthefutureofNATO.They priorities, including theGlobalWaronTe “overriding interests”in (USAID). Operations, FY2005 Moskovskii komsomolets The WhiteHouse. The Office ofthePressSecretary. Office oftheSecretary ofState. Mikhail Rostovsky, NoMatterWhoBecomes theNextPresident,RussiaisinTrouble, Congressional BudgetJustification Reflecting a positive assessment before the At least until thelastcycle ofelec has States United the haveargued that administrations U.S. Successive in January 2004 that “Russia’s democratic systemdemocratic inJanuary seemsnotyet 2004that“Russia’s tohave Budget JustificationtotheCongress, FY2004 Implications forU.S.Interests , February 10, 2004;U.S.Agency International for Development 105 In the wake of the 2003 Duma election, however,former election, InDuma thewakeof2003 , August 15,2006. cooperating withRussiaon 103 nvestment, andwouldenhan essure on NGOs. While theAdministrationhasbeen While NGOs. on essure , Annex III, p. p. III, Annex , for ForeignOperations, FY2005 Congressional BudgetJustification forForeign CRS-31 tions in 2003-2004,theBush Administration tions forDemocracy, 10,2004.Craner June ects ofcivilsociety ...havenotyet sustained ber 2003 Camp David summitstatedthat“I onstitutional referendumth Chechnya, italsotentatively hassupported ry inwhichdemocracy andfreedom ogress indemocratiza a country atpeacewithinitsborders,with anches ofgovernment. Political power also haveagreed thattheUnitedStates able system ofmanaged democracy, rror, thethreatofweaponsmass 361. Assistant Secret September 27,2003. Remarks bythePresidentand Russian 102 , Annex III, p. p. III, Annex , 2003-2004 cycle ofRussian critical nationalsecurity ce Russia’s ties withthe ties ce Russia’s 104 tion. However,the . USAID. 355. ary ofStateLorne ere (butalsohas Budget http://wikileaks.org/wiki/CRS-RL32662 Varfalomeyev, tobehelpful.”U.S.Departmentwants ofState. and a partner about Russiareturning totheolddays.... [T]h transformationremarkable [inRussia]toade soften thiscriticism by affirming that“what we successor states. concerns about Putin’s commitmenttodemo to interfere inUkraine’s presidential electionAdministration raised additional demo impose its“model”of the re-organization wasaninternalaffair terrorism, non-proliferation,ener 2004 G-8 a June meeting, hailing “my friend President Bush, however, stillappeareddemocraticPutin’s potential tostress during shared incommon,”U.S.-Russiantie an independentpresence.”Healsora 111 110 109 108 107 106 Putin inlateFebruaryPresident 2005,Pres relations.” the protectionofdemocracy inRussiais the sametimeto“continue reiterated thispolicy to“work closely withRussia on common problems,” while at Ja in confirmation hearing balance betweenadvocatin others thatRussia’sdemocr government re-organization heightened c concerns aboutmediafreedominRussia. cares deeply about the people of hiscount Chechnya andinformerSovietrepublics, democracy. and efforts anti-terrorism between bea“properbalance” must there that emphasized that Russiawas“pulling b concerns raised Putin’s goal of enhancing anti-terrorism efforts, then-Secretary Powell the next day Designate Dr. CondoleezzaRice Russia inPhotoOpportunity by Steven Woehrel. Hudson ofReuters[With]Secretary U.S. Senate. CommitteeForeign Relations.on Fordetails,seeCRSReport RL32691, U.S. Department ofState. WhiteHouse. The PressRelease. Izvestia RIA Novosti, RIA Perhaps illustrative ofthisapproach,Perhaps before illustrative a planned summitmeeting with Despite these concerns, the Administration has stressed that itmustmaintain a Putin’s announcementonSeptember13, , January 26, 2004. The next , January 26,2004.The day, however, former Secretary Powell seemed to 111 108

Dispensing withPutin’searlier apparent subtlety, Lavrov retorted that Ekho MoskvyRadio September 15,2004. 110

nuary 2005,Secretary ofStat Washington File. Interview by Arshad Mohammed and Saul , June 8,2004. , June g andU.S. democratization cracy onothercountries. atization mightatization bethreat press the case for democracy and...tomakeclearthat , January 18,2005. , January , January 27,2004. , January gy, Inissues. andotherstrategic testimony ather Colin L.Powell,September 14,2004. Remarks by the President and President Putin of Putin Remarks bythePresidentand CRS-32 Ukraine’s Political Crisis andU.S. PolicyIssues ised “concerns” about Russianactionsin ised “concerns” s “will not achieve achieve s “willnot and that the United Statesshouldnottry to 107 and warned that“wit and oncerns by the U.S. Administration and oncerns by theU.S.Administration ack on some...democraticreforms”and e United Statesviews Russiaasafriendand e mocratic system.... SoI am notconcerned ry,”he although re ident Bush stressed that “for Russia to ident Bush stressedthat“forRussia Vladimir Putin”as“astrong leaderwho cratization at home have seenover thelastfifteenyears is a vital to the future ofU.S.-Russia future the vital to Opening Remarksby 2004, that hewouldlauncha 2004, 109 e-designate Condoleezzae-designate Rice Russia’sefforts in late 2004 ened. Although supporting ened. Although -Russia cooperationonanti- Interview With Vladimir hout basic principles hout basic [their] potential.” [their] portedly also raised and inotherSoviet Secretary ofState- 106 , http://wikileaks.org/wiki/CRS-RL32662 May 17,2001; democratization shouldnot democratization societies. Atthe same time, qualify he seemed to thisassurance by stressing that traditions” butwouldnonethelessbeakin method ofselecting regional debate. PresidentPutincounteredthat raised concerns withPutinabouttherule are builtby Putin that“strong countries with Russiaonnonproliferati butPresiden contention, major issueof economic ties that may “mak[e] China richer and eventually richer may freer.” China that ties economic “mak[e] the United States advocates democratization maintains butnonetheless close where andChina, between States the that United like relationship urge aU.S.-Russia termed Putin’s“absolutesupportfordemocracy inRussia.” government andeconomy. PresidentBush in democracy woul Russia’s that emphasized of law.” standforafreepress,vital we] [that rule of commitment todemocracy andthe nation,th make progress asaEuropean 115 114 113 112 Russia to“returndemocratic to Hereform.” also stated that “no legitimate interest such restrictions“couldbegin toaffectre “government has unfairly and reflected thisperhapslesshopefulviewin months that authoritarianism isdeepenin experts. some according to East, Middle the from Russian shipping fromarcticportswouldbe provide oilandliquifiednaturalgas to economic interests include diversified sources ofenergy. capabilities Russia’s to cooperation” shoul Task Force, “selective cooperationhasbeen“disappoi U.S.-Russia to prom cooperation isseenascentral and preventing terroristsfromacquiring “onanumbe hasargued that Force onRussia engagementcontinued economic and securityin withRussia. The Task interests 26, 2005. Bush’s publicstatements atthesummit. Soft on Mr.Putin, Strong U.S.-RussianPartnership March 2006, p. xi. David Ignatius, CNBCbroadcast, WhiteHouse. The Office ofthePress Secretary. ofBushRemarks Transcript inBelgium, Some observers have discerned a greater Administration recognition in recent in recognition Administration agreater observershavediscerned Some Advocates ofsuchabalancedU.S.re 112 Atthe summit, the status of democratization in Russia appeared tobe a National SecurityStrategy of Washington Post Russia , October 20, 2004. The WhiteHouse. 20, 2004. The October , governors was akin to the U.S. electoral college. He college. governors was akintotheU.S.electoral improperly restrictedtheri on andanti-terrorism.He , February 24,2005. Some observers criticized President interfere withthecreationofastrong Russian , September 17,2004.CouncilonForeignRelations, CRS-33 opposition, the sharing of power, and the rule the and opposition, thesharing ofpower, Russia’s media were free and that the new the that and Russia’s mediawerefree U.S. markets are growing, andproposed U.S.marketsaregrowing, t Bush c emphasized of law,minority rights, and viable political lations with other count lations withother Associated Press g in Russia. Vice President Dick Cheney Dick President Vice g Russia. in weapons ofmassdest the UnitedStates of America, developing strong democracies”andhad MayRussia’s 2006whenhestatedthat oting Americaninterests.”Although d stillbepursuedwherepossible.U.S. law....Wemustalways remindRussia sponse argue that theUnitedStateshas sponse argue that quicker and more andmore quicker secure than shipments e Russiangovernment mustrenewa nting” onmany issues, according to the to those in other “modern, civilized” to thoseinother“modern, d beattunedto“ r of issues—Iran,r energy, HIV/AIDS, turnhailedthisdeclarationofwhathe President andPutinDiscuss 114 Some observers more generallymore Someobservers The Washington Post ghts ofherpeople”andthat , February 21,2005. reported thathehadtold 113 National EnergyPolicy ontinued cooperation our history andour ruction —Russia’s ries.” Hecalledfor 115 April29,2003. , February , http://wikileaks.org/wiki/CRS-RL32662 2006 EU-Russia summit. had claimed thattheir concernsweresoft-p 2006, p.36. American andEuropeanassessments areconverging.” CouncilonForeign Relations,March a broadone,andbecauseitintersectswith May 4,2006. Russia onrespectforhumanrights.Russia Commission President Manuel José Barroso cooperation. AtaEuropeanParlia suchasdemocracy, andcoversenergy oflaw” rule andthe rights human values “common recognizes Agreement that onanewEU-Russia negotiations launch to documents and decisions,including a and documents trends inRussia.EUconcernsaboutde Russia inApril2006and reportedly voiced se shipments toUkraineinJanuary 2006,Germ government shoul warned thattheRussian obliquelythat “comradewolfknow stated who follow“stereotypical bloc President PutinappearedtorespondViceCheney by those criticizing stance have called forenhancing the electoral monitoring activitiesthe European of assets.” economic control ofstrategic outspoken politicalopponent,tointimidateothe the mere pursuitofcriminal justice, to that it appearedthatthePutingovernme byterrorism in centralizing power.PACE July 2006, inlinewithhisdeclaredplannottopublicly “scold”Putin. of democracy inRussia when he attended the Moscow G-8SummitinMoscow in is permitted.”PresidentBush democracy go towhenitcomes...one’sow doesalltherhetoricon one.... Where to no with democratic movements.” can justifyundermine theterrito actionsthat trends inRussia. commitment todemocratization. to affirm its elections, the U.S.Administration has urged the Russian government is servedwhenoilandgas becometool 120 119 118 117 116 European Parliament, PACE.Resolution1418, approved 25,2005. January According totheTask ForceonRussia, “becau Office oftheVicePresident. Deutsche Welle Several U.S.allies As Russia prepares fortheupcoming Russia As 118 (English), July 13,2006. After Putin’s Beslan proposal AfterPutin’sBeslan Press Release have becomeincreasinglycon Inter PressService Vice President’s Remarks at the 2006 Vilnius Conference Remarks atthe2006Vilnius President’s Vice wasreticentin his public 116 -based thought patterns” of the Cold War. Healso oftheColdWar. patterns” -based thought In hisMay 2006Stateof , DecemberSomehuman 18,2006. rightsadvocates 120 ment sessioninDecember2006,European CRS-34 May 2006decisionatanEU-Russiasummit s of intimidationorblackmail.... And no one Some advocates of a united Euro-Atlantic ofaunited advocates Some 119 nt’s arrestofKhodorkovskiy “goes beyond edaled by EU representatives at a November a edaled byat EU representatives 2007-2008 cycle ofDumaandpresidential , November 30,2006. In thewakeofRussia’scutoffgas January 2005 adoptedaresolutionstating include such elements as toweaken an includeelements such mocratization werere mocratization listening and eating is s whomtoeat.He negative inRussian foreign trends policy, d nottry thefailedpolicy ofcombating rial integrity ofaneighbor, orinterfere the needtofight forhumanrights and called for a united EU stance vis-a-vis EUstance foraunited called n interests? It turnsoutthateverythinginterests? n se the authoritarian trend in Russia is such is se theauthoritariantrendinRussia an Chancellor Angela Merkelvisited an Chancellor rious concernsabout r wealthyr individuals andtoregain s, EUCommissionerChrisPatten cerned aboutde statements aboutthestatus the Federation address, the flected in several flected in democratization mocratization 117 , http://wikileaks.org/wiki/CRS-RL32662 e. Includes Freedom Support Act, Child Survival, Military International Education and Training d. Democratization assistance as apercentage of funding for Russia. c. U.S.Department of State.Bureau of European and Eurasian Affairs. FactSheet: U.S.Assistance b. U.S. Department of State. Office of the Coordinator of U.S. Assistance to Europe and Eurasia a. Datareceived from U.S. Office of the CoordinatorEurasia, of U.S.Assistanceand toEurope NGOs. eliminate WMD), andeconomicreformeffort eliminate WMD), (in particular, Comprehensive Threat Reduction initiatives tohelp secure and Mo percent ofallU.S.funding forRussia. Democratiz U.S. Network of ElectionMonitoring Organi 121 dedicated mainly toensuring “alegacy of fewyearsnext fromreceiving FREEDOM institutions. Thebudget requestaverredth itself intoafreemarketdemocracyinte already progress ofthe Russia recognition “in transforming in hasmade” Russia, substan the Administrationcalledfor particularly aidtoNGOs. government programs tosupportforlocal institutions and processes. Mostaid has shifted over the years fromgovernment-to- familiarize Russiancivilian for journalists,adviceonlocalgovernan judicial reforms (such as creating trial by jury and revising criminal codes), training technical advicetoparties Russia, seeCrumbling BeforePutin, Relations, March2006,p. 62. Foranargument Negotiating NewEU—Russia Agreement EuropeanCommission. (Freedom Support FY1992-FY2005 Act and Agency Act and funding requests. funding Anti-Terrorism, Demining, and Non-proliferation, Programs (NADR)(IMET), and Related to Russia FY2006, May 11,2006.Mid-year estimate. U.S. Government Assistance toand Department of State. FY2004 Budget andDemocratizationAid.FY2004 assistancehistor democratization U.S. Budgeted funding) ,9.76.54. 29.78 45.2 62.95 1,097.67 121 7.9% (See also below, below, also (See d Table 3.U.S.DemocratizationAid toRussia a ation Assistance (Freedom Support Act and Agency Act and and electoralboards,grants toNGOs,adviceonlegal and Press Release:European Co Congressional Concerns Budgeted FY2005 funding) .%48 46.6% 4.8% 6.3% and military officials and and militaryofficials (million dollars) The Washington Post b Cooperative Activities with Eurasia CRS-35 tially lessFREEDOM SupportActaidto zations, theOSCE,andRussiandemocracy zations, , IP/06/910, July 3,2006;CouncilonForeign July , IP/06/910, grated intoglobalgrated politicalandeconomic st aid toRussiasupportssecurityst programs sustainable institutions tosupportcivil sustainableinstitutions at Russia would be “graduated” overthe at Russiawould (Freedom Support ce, and exchanges and training that andtraining ce, andexchanges that Europe is tooaccommodatingthat Europe toward ically has accounted for less than 10 ically hasaccountedforlessthan Act and Agency Act and grass-roots civilsociety programs, SupportActaid,withebbing aid s. Democratizati Estimated funding) FY2006 .) Inrequest, budget itsFY2004 , June 19,2006, p.21. , June mmission ApprovesTerms for c others aboutdemocratic on aidhasincluded , January 2006. (Function 150 Requested funding) funding) FY2007 a e . http://wikileaks.org/wiki/CRS-RL32662 government.” nece a and democraticinstitutions “as Duma and presidential elections prosecutions. U.S.democracyaid isplanne continued to commit abuses in Chechnya, and carried out possible political onnati over freeexpression the 2005, Concerns wereraisedthatduring institutions and c democratic country withamarket-basedeconom in stake” it retaineda“deep neighborhood,” about rising corruption,anove concerns “near-term” its despite argued that Administration the forRussia, for aid budgetary decisionsonsocialprograms. between NGOsandregional governors a and government accountability. Anemphasi and factsheetonaidtoRussia,theAdmin and attorneys. training forjournalists, andpartnership independent media,therule Caucasus. U.S. assistanceprograms con NGOs,” andcontinuing human rights abuses into lawinJanuarysignedlegislation the elimination ofdirect elections ofgove Itdemocratization.” raised concernsabout would continue“despite stations, radio,andprintme government supporting independent media,NGOs,localg of Russia’scommitment”todemocratiz the regions, andseeming politicalprosecuti freedom, themanipulationof emphasis reflectedthis concernsAdministration stressed that limitsonmedia that democracy.” market-based to The transition successful a complete seeing Russia Russia’s strategic importance, the United States has a compelling national interest in than emphasis onsupportfordemocratization wasplacing greater averred it to that the onaid Russia, Administration and factsheet below). (seealso forRussia earmarked aid Administration’s leve onTe cooperationintheGlobalWar and to Act andotherFunction 150aid Support religious tolerance,civiceducation,a and ethnic foster grassroots to the level at andexchanges media, independent society anddemocraticinstitutions.” FY2007 BudgetandDemocratizationAid. FY2006 BudgetandDemocratization Aid. FY2005 BudgetandDemocratizationAid. accountab ooperates incombating terrori l ofsupportfordemocratizati ility. Additionally, assistance supported regional television concernsaboutchanges in of law, respect for human ri of law,respectforhuman dia, training for youngdia, training for elections, abuses in Chechnya, abusesin elections, control over increased r-centralization ofpower,r-centralization a onal television, exerted onal television,exerted and on programs tostrengthenand civilsociety, media, nd mediafreedom.However,mostFREEDOM CRS-36 FY2004 aidwasplannedtosupportNGOs, 2006 that“couldseverelyof hinder thework work between Russian and American judges andAmerican work Russian between ssary checkonthepowerofcentral tinued to focus onsupportingto civilsociety,tinued Russiabacksliding onhumanrights and rnors, government pressure onthe media, e. TheFY2005 assistance focused on Russian government gained morecontrol Russia wasfocusedonnon-proliferation istration stated that democracy istration stated support encouraging theemergence ofa“stable, inChechnya andelsewhereintheNorth ons had“calledintoquestionthedepth nd mayorsdesigning andmaking in s was cooperation placed onexpanding d forelectoraltraining intherun-upto overnance, free and fairelections, rror. Congress disagreed with the rror. Congress disagreedwith the year before,stating that“given the y” thatis fully integrated with global sm andthespreadofWMD. on andincreasedtheamountof In itsFY2006 budget request In itsFY2007 budget request In itsFY2005 budget request people andpoliticalleaders, legislative election lawsand ghts, freeand fair elections, more pressure on NGOs, pressure more nd “assertiveness initsown http://wikileaks.org/wiki/CRS-RL32662 made progress in higher than the President’s requests. President’s higher the than to funding levelsforFreedomcontributed de in havebeenevident Russia in trends 2004) thatrecommendedRussiabe deni (Lantos; approved by Relations Committee the onMarch House International 31, introducedonNovember21,2003)andH.Con.Res.336 S.Con.Res. 85(McCain; property rights, and other violations ofthe rule oflaw in Russia. Other billsincluded Democracy Caucus to highlight concernsa Russia Congressional a TomLantos established andChristopherCox Representatives concernaboutKhodorkovskiy’ expressed 258(Lugar;included S.Res. approvedby Member Concerns in the107th-109thCongresses in Concerns Member 123 122 Russia. to democratization teach to presuming Ministry itforunderestimating criticized roots organizations. Responding tothe stressing support forindependentmedia,NGOs law amendedtheForeignthe A provisions, open legal systems, freedomofreligion, a democracywith Russiatostrengthen and strategy. The“senseoftheCongress” wa appeared uncertainwithout fu security interest. It warned,national however, that further liberalization inRussia cooperate withtheUnitedSt democracy orderasafree-market global P.L.2121; 107-246).Thelawstatedthat (H.R. passage oftheRussianDemocracyAct

Congressional Record Associated Press ! Growing concernsinthe108 Actions inthe 108 Major congressional concernswithdemocr programs inRussia.” to used be fundsto these [added] the conferees (H.Rept.108-401)“exp Freedom SupportActaid forRussi the ruleoflaw”inRussia. with the deterioration and systematic dismantlingof democracy and law on January 23,2004)statedthat including foreign operations forFY2004; P.L. 108-199; signed into Conference managers onH.R.2673 democratization. , November 4,2002. , November 21,2003,p.S15400. th Congressregarding democratization trends inRussia ates, making thesuccessofdemocracy inRussiaaU.S. rther assistance,necessitatin 123 th Calling for not lessthan$94millionin and109 CRS-37 of 2002, signed intolawonOctober23,2002 of liberations over foreig support democracysupport and ruleoflaw promote fairandhonest nd respectforhumanrights. Among other the Senate onDecember9,2003),which theSenate Russia’s reformaccomplishmentsandfor Support Act aid for Russia that have been SupportActaidforRussiathathave s that the U.S.government shouldengages that would be less confrontationalandwould less be would passage of the act, the Russian Foreign Russian passage the act, ofthe ssistance Act of 1961 byssistance Actof1961 languageadding bout thedeclineoffreedom media, a, $21 million above the request, a, $21millionabove (Consolidated Appropriations, ed participationin ect[ed] asignificant portionof ect[ed] theywere “gravely concerned th s arrest.Following thearrest, , parties,legal associations, and grass- 122 a Russia that was integrated into the integratedinto aRussiathatwas Congresses about Congresses atic progress in Russia haveincluded Russia in progress atic g a“far-reaching” aid U.S. n assistanceandhave G-8sessionsuntilit businesspractices, democratization http://wikileaks.org/wiki/CRS-RL32662 punishing Russiainresponsetodemocratizati he calledfordeveloping clos couldtake,becauseitwould United States States. with the United opposition” to anti-democratic of anti-democraticactions,” He rule.” autocratic “consolidate to excuse 125 124 face criticalterroristthreats. are Russia in of andRussia concern, States democratization United to the setbacks Royce while Edward that stated Representative against Russia, attacks terrorist aboutpossibleU.S.responses Congress

Congressional Record Congressional Record Other Debate. ! ! December 8,2004;P.L. 108-447). Russia, including political party(signed development intolaw on for Democracy (NED)fordemocracy and human rights programs in request, $3.5millionbema assistance forRussia,$10.5millionabovetheAdministration of $90 the building. Conference managers democracy bolster to onplans andEurasia Europe to Assistance reportThe fromthe Committee Coordinatora for also requested de appropriated ...tosupportfor Administration “to commit commit a greatAdministration “to states, “particularly andurged andBelarus,” Ukraine, the in Russia, successor democracy Soviet some to risks in rights andhuman Committeeraisedconcernsabout for FY2005, theAppropriations Info 4818, H.Rept.108-599onH.R. into lawonNovember14,2005,P.L. 109-102). available toNEDforpolitical party development inRussia (signed above theAdministra million provided aid Freedom SupportAct managers (H.Rept.109-265)reque thestrengthen rule oflaw inRussia. Conferenceprogramsto political processprogramming in Theyyears.” calledformoresupport in subsequentfiscal purposes these for request thebudget increase “to Administration the required tosupportdemocracy build are priority.be aU.S. They resources” “significant that stated danger” tonearby countriesandth warnedCommittee that “an authoritarian Russia presentsgrowing a operations appropriations ofH.R.3057,foreign version In S.Rept.109-96,ontheSenate million inFreedom Support Act aid provided for Putin’sBeslan proposalstriggered debateinthe108 , September 21,2004, p. S9420. , September 13,2004,p.H7011. 125 Representative Curt Weldon the next day thenext RepresentativeCurtWeldon warnedthat andurged that the United 124 er economic and security relations withRussia, sothat movesthatwillreboundto SenatorMcCaincritici de available toth CRS-38 for FY2006, theAppropriations tion request,$4millionbemade mocracy andhumanrights NGOs.” . In introducing H.Res.760,condemning (H.Rept. only boostauthoritarianism there.Instead, Russia and continuedsupportfor characterized asa“long rule string Putin’s at “offsetting this threat”should sted that,ofthe$80millionin reign operations er proportionoftheresources ing effortsinRussia andurged for assistanceRussia,$32 on lapses would be the “worst step” the lapses wouldbethe“worststep” on 108-792) e NationalEndowment States “makeknownourfierce zed Putin’s proposalsasan Putin’s zed lessRussiancooperation , requested that appropriations th http://wikileaks.org/wiki/CRS-RL32662 the G-8.” Senator Lieberman explained that the resolution was inspired by President asgenerally societies of free,democratic suspend Russia’s participation inthe G-8untilitadheres to“the norms and standards in dismantling WMD. had received littleinreturnfor“silence”on silent” aboutdeclining democr inthe Middle East while “beingAdministration foradvocating democratization the Secretary ofStateshoul May these 3,2005.Theresolutions expressed resolution, H.Con.Res.143,wasintroduced was introducedonFebruary 17,2005,inthe109 survive, togrow, andprosper.” would have President Bush 130 129 128 127 126 108 the (mentioned above)in inS.Con.Res.95a had beenraised support wasneededinRussia. to helpthedevelopmentof civil society the governments thatareengageconfront we willspeak deeply concernedabout,and concentration ofpowerinth responded that“someofthis she and others, United Statesmaintainedclosetieswith authoritarian Putingovernment. onRussiawoul view thatRice’sexpertise Condoleeza Rice. Many Membersappeared the hearing andfloordebate and perhapsreducing tiesw strategy towardRussiaby “unambiguously They andNATOEUdemocracies. change to urged leaders Russia Western in foreign policy. Putin’spolicies, th Theythat Putinwasstated reverting also tothe “rhetoric ofmilitarism and empire” warned that Putin’s Beslan proposals“bring insigningand experts aSeptember28, October 4,2004,p.13.

Washington Post Transcript Congressional Record Congressional Record Congressional Record Congressional concernsabout In the109 officials Western Biden joinedover100prominent Joseph and McCain Senators , FederalDocument Clearing 18,2005. House, January th Congress, trendsinRussiandemo , September 29,2004, p. A21; 129 , January 26,2005,p.S518. , January 25,2005,p.S411. , January , September 22,2004,pp.H7430-H7436. At the hearing, Senator Lincoln Chafee asked Rice why Lincoln askedRice Chafee Senator hearing, the the At ith the Putingovernment. d workwithotherdemocra e Kremlin issomething... tobe is arealproblem[and] leverage toconvincePutin“allowdemocracy to th on the confirmation ofSecretary confirmation ofState-designate onthe Congress, andafollow-on resolution,S.Con.Res.14, 130 atization in Russia. He stated that the Administration Hestatedthatthe Russia. in atization 126 128 the suitability of Russiaasamember the G-8 Senator Joseph Biden criticized the Senator Bush Joseph eyjeopardiz concluded, CRS-39 nd H.Con.Res.336inlate2003-early 2004 in opposition,”andsuggestedsuch more that 2004, lettertoNATOandEUleadersthat practiced by every othermember nation of d innondemocraticactiv some authoritariancountriesandnotwith ” supporting democratic groups inRussia this issue, notevenRussia’scooperation this Russia astepclosertoauthoritarianism.” d proveusefulinresponding toa more is amatteroftrendlines,”butthat“the by on RepresentativeChristopherCox to endorse Senator out.” Shealsostatedthat“whilewe October2,2004,p.A20; nse ofCongress thatthePresidentand th Congress. In the House, a similar cratization wereaconcernduring cratization 127 tic members of the G-8to the tic membersof e partnership between Dianne Feinstein’s ities, wealsohave Novaya gazeta , http://wikileaks.org/wiki/CRS-RL32662 energy diplomacy with energy exporters and Security Act,by Senator Lugar in Ukraine were reflected partly inthe of weaknessandinstability, a Putin’s government work against thesego respected, prosperousanddemo statedthat Biden At thehearing, Senator mutualinterestssharedbythe long-term U.S.-Russia energy dialogue ...shouldbe principles oftransparency, ruleoflaw, onenergy Russia with security andsend 2006, Senator Committee inJune Lugar stated Russianon energy hearing a and politics held by the Senate Foreign Relations called forthe Bushcall Administration forRussian tocoordinate a strong and humanrights for“invasive” govern Smith warnedthattheDumabill especia Russia. In in domestic andforeign NGOs that itdidnotseverelyso to be withdrawn orrewritten restrict the activities of and approved onDecember16,2005).Thele and S.Re and and approvedonDecember14,2005) support fordemocratsinRussia. Putin’s effortstounderminedemocracy in 134 133 132 131 H. 2005andin November in were registered in a letter from the Congressional Helsinki Commissiontothe Duma international human rights commitments. Platon Lebedev were politicallyviolatedand motivated the rule oflaw and Russia’s sense oftheSenatethatRussia’simpri introduced by SenatorBiden andappr indicated Russia’s “indifference or hostility Smith statedthatKhodorkovskiy’s trialwas Christopher inRussiaJulyprivatization 2005.OpeningCo-chair thehearing, also heldabriefing ontheimplicationsof legal system.and Russia’s harmed was that prosecution a The selective Commission sentencingth inearlystatement a 2005with February 28,2005,p.S1792. in Russia Commission). U.S.Congress. Commission onSecurity Congressional Record Congressional Record Congressional Record Concerns inthe109 Strong misgivings aboutthelate2005Du CongressionalThe HelsinkiCommission , July13, Briefing : Affair”anditsImplications forPoliticsandBusiness The “Yukos 2005; , March16,2006, pp.S2326-S2327. , December 14,2005,pp. H11621-H11624. , November 18,2006,pp.S13396,S13410. Congressional Record th Congress arising out of Russia’s cutoffofgas Congressof arising suppliesto out Con.Res. 312(intr nd deny Russiaitsrightful cratic state” but that “the current policies ofPresident policies current “the that but state” cratic 131 introduction ofS.2435, the Energy Diplomacy March 2006. The bill called for enhanced U.S. March 2006.Thebillcalledforenhanced CRS-40 sonment of Khodorkovskiy andhis associate andsustainability.current Effortsunderthe oved on November 18, 2005, expressed the 2005,expressed oved onNovember18, ment financialand in support ofU.S.nationalsecurity. lly targeted NGOsdealing withdemocracy the “Yukos affair” on democratization and the“Yukosaffair”ondemocratization expanded and fullyexpanded supported[to sustain] 132 both countriesinstableenergy markets.” “my hopeforRussiaisthatitbecomea als [and may]als [and condemnRussiatoafuture theHouse,RepresentativeChristopher a clear and strong message promoting a clearandstrong message at itappearedtobepolitically motivated Russia and that it was a show of U.S. Russiaandthatitwasashow and Cooperation inEurope(HelsinkiCooperation and reminiscent of Soviet showtrialsand reminiscent ofSoviet oduced by Henry Representative Hyde , February 17,2005,pp.S1685-S1686; s. 339 (introduced by339 s. McCain Senator to the rule of co-chairs reacted to Khodorkovskiy’sco-chairs reactedto ma bill restricting therights ofNGOs tter and resolutionscalledonthebill that “the United States must engagemust that “theUnitedStates place asagreat power.” He other monitoring. law.” S.Res. 322, 133 134 At http://wikileaks.org/wiki/CRS-RL32662 and civilsociety groups inRussia. Ukraine withMembershipActionPlansby attheJulydemocratization 2006 G-8 meetin 137 136 135 democratization inRussia have led successive U.S. administrations to argue that the this capabilities forhostileconfrontation,in States ona range ofeconomic, political, and security issues, rather than use its fr Russia thatisintegrated intoglobal natural resources,armsindus withEurope,Asia,a borders extensive because ofRussia’scapabilities,including threat. They have viewed political developments inRussia as a vital U.S.interest orally friend security astrategic U.S. than a rather be would Russia democratic to U.S. Interests? Significant isDemo How incompatible withG-8 memb gove his day)convene thenext that other leaderstoimpressuponPresidentPu the approved S.Res. 530.As of theG-8wereraised by Senator Bi limited democratic“achie practice.” In supportoftheresolution,Re religious peaceful protect to standards andaccepted recognized internationally asamemberoftheOSCEand Russia minority religious groups inRussiawerebe March 14,2006.Theresolutionra on approved RepresentativeChristopherSmith Russia, full range ofcivil and political rights toitscitizens.” from thegroup unlessitre-embracesdemocra that it faces warnRussia G-8to suspension ofthe members other onthe and called 2006. Congressional 14,2006, pp. S7563-S7564. Record,July Senate Foreign Relations Committee. 29, June HearingFuture? the Back onRussia:to Congressional Record Successive and Congre administrations Continuing congressional c Marking long-standing congressional concerns about religious freedom in Issues forthe110 , March14,2006,pp.H888-H890. vements ofthepastdecadear same day, the resolution ca ership andthathisgovern tries, andstrategic nucl oncerns aboutthesuitabilitya member as ofRussia cratization inRussia 135 den on July 14, 2006, with the introduction of introduction den onJulythe 14,2006,with CRS-41 ee-markets couldcoopera ee-markets nd CentralEurasia),educatedpopulation, rnment’s “anti-democr presentative TomLantos warnedthatthe the chairofG-8touphold“basic, the end of the year, and to support NGOs theendofyear,support to and introduced H.Con.Res. 190, which was introducedH.Con.Res.190,which tin attheG-8summit(whichwasdueto ing increasingly threatenedandcalledon g, to urge NATOtoprovideGeorgia and tization andrespectforhumanrights.tization view. Atthesametime,setbacks to view. its geographical size (including its itsgeographical (including size th sses generally a haveagreed that Congress ised concernsthattherights of 137 ear weapons.A democratic ear ment shouldguarantee “the e being reversed” in Russia e being reversed”in lled onPresidentBush and atic” policiesare te withtheUnited 136 http://wikileaks.org/wiki/CRS-RL32662 October 15,2004.StephenBlank, Gordon Hahn, Andrew Kuchins, and Janusz Bagaiski comments inPeterLavelle, Bagaiski andJanusz Gordon Hahn,AndrewKuchins, pro-Moscow regimes inth States, and neo-imperialistthreaten moves to of arms and WMD technologiesof armsandWMD togovern proliferation stepped-up conceivably posture, might strategic include a hostilenuclear security issues and tourge ittodemocratize. terrorist hands. Apost-Putinleadership in elsewhere inRussia and safeguarding WMDand infrastructure falling from into combating terrorist activitiesat leastin inChechnya somewhat effective and emphasized. Theyrega assertthatPutin, United States should remainengaged with 141 140 139 138 satisfying are assistance Reduction Threat and other prospective recipients ofComprehensive time todecideRussia whether and secureweapons materi today.” He arguedStates facing that the “it United isinU.S.interests toeliminate stressed that“theprolifer assessments. In introducing theb they since policies, security Russia’s accordwith interests. inRussia isoflower pr democratization Global War onTerror isa critical U.S.security interest, while of the issue implemented, wouldthreaten U.S.national security interests. democraticfavor anti-American values foreign andto continue policies that, if security forces tomaintain power. These forces have lagged the mostinadopting argueprospective that a Russian dictator wouldneed torely onthe military and observers These foreign policy its accommodationist. more became democratize, which Russiawasapart)communist, and discourage the Soviet Union(of authoritarianism.when Theythat maintain and foreign policy inRussia, soU.S. policy-makers must try toencourage pluralism Arias-King, Post UPI press inU.S.-Russian relations,namelyComments “thewar onterrorism.”Lavelle, Peter in have “we that argued Herspring Dale Analyst of RichardBurt,pp. of WalterB. Slocombe, byjoined Robert D. Blackwill and Dov S. Zakheim; andtheview cooperation onU.S.strategic interests. Council on Foreign Relations, March2006,views U.S. supportforRussia’s democratization as Some ofthemembers oftheCouncilonFore OnRussia’sattempts to influence the Ukrainian election,seeJackson Diehl, and McFaul,pp.225- Colton MichaelMcFaul, , October15, 2004. , October 25, 2004, p. A19; Mark A19; MacKinnon, , October25,2004,p. In the 110 the In Other observersstressthatRussia’scoope Many observers domestic between argue relationship hasbeenaclose that there Demokratizatsiya, th Congress, S.198(Nunn)hasappear Los AngelesTimes 72-74. DanSimpson, ation of WMD is the number one national security threat isthenumberonenationalsecurity ation ofWMD e formerSovietrepublics. Winter2004,pp.9-12. 229; Strobe Talbott, Talbott, 229; Strobe als ofmassdestruction,”rath Demokratizatsiya ill on September 8, 2007, Senator Sam Nunn Sam ill onSeptember8,2007,Senator , February 2,2003.Seealsonnnn CRS-42 rdless ofhispoliticalorientation,hasbeen ments orgroups unfriendly to the United biggerfreedomthan ofthe fishtofrynow,” various conditions,including respectfor theythese Russia, continue argue, would Pittsburgh Post-Gazette Russia tocooperate it opposed the West, andasitbeganWest, to it opposedthe iority and ifnece Europe and tore-imposeauthoritarian, Europe ign Relationstask forceviewed increased 138 Globe andMail unnecessarily impedingunnecessarily U.S.-Russian ration with the United States inthe ration withtheUnitedStates Financial Times , Spring 2003. 140 ed toreflectsomeofthese 141 er thanspendsubstantial , August 17,2004;Fredo

, September 27,2004; on internationaland ssary, mustbede- 139 , October6,2004. Such policies Such Washington UPI , http://wikileaks.org/wiki/CRS-RL32662 the Middle East and elsewhere in the world. the in andelsewhere East Middle the democracy offostering in rights objective forhuman andrespect Administration’s democratize. They have maintained that such a stancethe is inline with hasares democracy andsolesuperpower, democratization in Chechnya in Russia. in andelsewhere democratization the UnitedStatesshouldworkwithRussiaonly whensolicitedtofoster because they areregarded byo Putinas astheChechnyaactions such conflictar diplomatic and publicexpre Appropriate? are Support Democratization in Ru StatesDotoSupport CantheUnited Much How The conditionsalsoprovidenoeffectivele lengthy delays, he argued,and these delays harm U.S.interests incombating WMD. after areexercised waivers met, arenot conditions In casethat rights. human the 146 145 144 143 142 president inearly 2008. as RussiapreparesforaDumaelectionin aideffort. democratization democra its Russia about diploma U.S. that These observersclaim government. Russian the from threats faceof the ownin onits stand fragiletoo to is against any reductionofsuchaidatthe Russia will ultimately become amorecoope increased. Theseobserverssuggest that beneficial, and that there wouldbe much more ofa positive effect ifthe aid were They Russia. has proven in assistance ofthe some effectiveness argue that gi to standonitsownresources, onTerrorandother War issues. They also U.S.leverage toen reduces aid actually governmentincreasingly regards itonly as interferencethe initsinternalso affairs, challenge. Thosewhoadvocateending at bestbeeffective the margins, gi 2004. Press, 2003; Graham Allison, Mark Brzezinski Gati, andToby T. Power and Purpose: U.S.PolicyToward Russia CouncilonForeign Relations,March2006,p.7;James Goldgeier andMichael McFaul, Sobell, commentary Vlad inPeterLavelle, Dmitri Simes, commentary, Washington Post Congressional Record Others reject the view that U.S. democratization aid can only be of marginal of be canonly aid democratization U.S. that view the reject Others Many observers have maintained that U.S.democratization aid toRussia will , September 15, 2004, pp. A17-A18, A24. The newspaper editorialized newspaper , SeptemberThe 15,2004,pp.A17-A18,A24. , January 8,2007,pp.S237-S238., January 145 They stress that the United States, as the world’s oldest world’s asthe They States, United the that stress ssions ofdisapprovalaboutPu tic policiesshouldbema In particular, they urgest PBS Newshour ssia, andWhatTypes of ven Russia’srecenteconomicgrowth. ven ven limitedfunding andth CRS-43 ffensive andreduceU.S.credibility. Instead, present time, becauseRussia’scivil society courage RussiatocooperateintheGlobal e likewisecounterproductive,they assert, such aid willserveU.S.interestsbecause aid such late2007andanelectiontochooseanew tic andpublicexpre maintain thatcivilsociety shouldbeable verage on Russianbehavior,he stated. ponsibility tourge Russiatocontinue , September 14,2004. UPI 146 such aidpointoutthattheRussian , Washington, D.C.: Brookings Institution rative partnertotheWest.They warn

, October15,2004. epped-up democr 144 tched by anactiveU.S. tin’s Beslan proposals and Moscow Times ssions ofconcernto ssions e large scopeofthe (continued...) atization aid , June 16, , June 143 U.S. 142 http://wikileaks.org/wiki/CRS-RL32662 leverage toencourage democratization inRussia. States and the West, they argue, providing the West withmajor potential economic major ongoing of its andpotentialexports in against Russia for hasalargesanctions and civil stake abuses.Russia rights human security national forminor seearole U.S. but threats and issues, Russia on critical advocacy shouldnotbe ofdemocratization in TheyRussia. U.S. analysts the encourage other agree democratization that with 147 146 Beslan proposalsshouldhave “galva elected president,now itwas apparentthatPutin that while hisdemocratic proclivities might nothave beenclearin2000when hewas first GordonHahn, commentary inPeterLavelle, (...continued) Some observers dismiss the view that the United States has little leveragelittle Some to observershas dismissthe view that the United States nized” Administration condemnation. CRS-44 permittedto endang energy andotherresourcestotheUnited UPI is a “dictator.” It also stated thatthe stated also It isa“dictator.” , October15, 2004. 147 er cooperationwith