Chapter Twelve

Politics in Russia

Comparative Politics Today, 9/e Almond, Powell, Dalton & Strøm

Pearson Education, Inc. publishing as Longman © 2008

Country Bio: Russia Country Bio: Russia

§ Population: § 142.4 million

§ Territory: § 6.593 sq. miles

§ Year of Independence: § 1991

§ Year of Current Constitution: § 1993

§ Head of State: § President Vladimir Vladimirovich Putin

§ Head of Government: § Premier Mikhail Efimovich Fradkov

§ Population: § 142.4 million

§ Territory: § 6.593 sq. miles

§ Year of Independence: § 1991

§ Year of Current Constitution: § 1993

§ Head of State: § President Vladimir Vladimirovich Putin

§ Head of Government: § Premier Mikhail Efimovich Fradkov

§ Language: § Russian, other languages of ethnic

nationalities § Religion:

§ Russian Orthodox 70­80%; Other Christian 1­2%; Muslim 8­9%; Buddhist 0.6%; Jewish 0.3%

§ Language: § Russian, other languages of ethnic

nationalities § Religion:

§ Russian Orthodox 70­80%; Other Christian 1­2%; Muslim 8­9%; Buddhist 0.6%; Jewish 0.3%

Background: Rebuilding the Russian State Background: Rebuilding the Russian State

§ Sustainability of Russia’s great power status is tenuous.

§ Putin’s policies § Diminishing the realm of free association outside the state

§ “resource curse” § High levels of corruption, low accountability, and low investment in human capital

§ Severe demographic crisis § Mortality rates, particularly among adult males § Low birthrates § Net loss of close to a million people per year § Grave threat to Russia’s national security and economic viability

§ Sustainability of Russia’s great power status is tenuous.

§ Putin’s policies § Diminishing the realm of free association outside the state

§ “resource curse” § High levels of corruption, low accountability, and low investment in human capital

§ Severe demographic crisis § Mortality rates, particularly among adult males § Low birthrates § Net loss of close to a million people per year § Grave threat to Russia’s national security and economic viability

Current Policy Challenges Current Policy Challenges

§ Putin elected March 2000 § Undertook a steady effort to rebuild state power § Attacked the power of the so­called oligarchs § Weakened the independence of the chief executives of the country’s regions (the governors) establishing new federal districts overseen by presidentially appointed representatives

§ Secured power to dismiss governors for violations of the law § Removing them as ex­officio members of the upper chamber of the parliament

§ High levels of support early for his “managed democracy”

§ Putin elected March 2000 § Undertook a steady effort to rebuild state power § Attacked the power of the so­called oligarchs § Weakened the independence of the chief executives of the country’s regions (the governors) establishing new federal districts overseen by presidentially appointed representatives

§ Secured power to dismiss governors for violations of the law § Removing them as ex­officio members of the upper chamber of the parliament

§ High levels of support early for his “managed democracy”

Current Policy Challenges Current Policy Challenges

§ But now referenced by some as “sovereign democracy” § Chain of command § Accountability § May conflict with state sovereignty

§ But now referenced by some as “sovereign democracy” § Chain of command § Accountability § May conflict with state sovereignty

Current Policy Challenges Current Policy Challenges

§ Only partially successful in achieving his goals § Role of oil has helped § Some of his actions (suppression of the independent media and the state’s takeover of the assets of the oil company Yukos) have discouraged business investment and fueled capital flight. § Reliance on intimidation/removal of rivals § End result: has undercut democratic checks and balances on central power; over­centralization

§ Only partially successful in achieving his goals § Role of oil has helped § Some of his actions (suppression of the independent media and the state’s takeover of the assets of the oil company Yukos) have discouraged business investment and fueled capital flight. § Reliance on intimidation/removal of rivals § End result: has undercut democratic checks and balances on central power; over­centralization

Historical Legacies Historical Legacies

§ The Tsarist Regime § The Communist Revolution and the Soviet Order § Lenin § Stalin § Mikhail Gorbachev § Glasnost

§ Political institutions of the transition period: Demise of the USSR § Political institutions of the transition period: Russia 1990­1993

§ The Tsarist Regime § The Communist Revolution and the Soviet Order § Lenin § Stalin § Mikhail Gorbachev § Glasnost

§ Political institutions of the transition period: Demise of the USSR § Political institutions of the transition period: Russia 1990­1993

The Contemporary Constitutional Order The Contemporary Constitutional Order

§ 1993 constitution combined elements of presidentialism and parliamentarism § Separation of executive, legislative, and judicial branches § Federal division of power between the central and regional levels of government § Gave the president wide power

§ 1993 constitution combined elements of presidentialism and parliamentarism § Separation of executive, legislative, and judicial branches § Federal division of power between the central and regional levels of government § Gave the president wide power

The Contemporary Constitutional Order: The Presidency The Contemporary Constitutional Order: The Presidency

§ President appoints the prime minister and the rest of government § Has the right to issue presidential decrees, which have the force of law § Prime minister primarily responsible for economic and social policy § President directly oversees the ministries and other bodies concerned with coercion, law enforcement, and state security

§ President appoints the prime minister and the rest of government § Has the right to issue presidential decrees, which have the force of law § Prime minister primarily responsible for economic and social policy § President directly oversees the ministries and other bodies concerned with coercion, law enforcement, and state security

The Contemporary Constitutional Order: The Presidency The Contemporary Constitutional Order: The Presidency

§ President can dissolve parliament or dismiss the government

§ Head of state and commander of chief § Security Council – chaired by the president § Formulates policy in foreign & defense areas and more

§ State Council – heads of regional governments § Public Chamber­ created by Putin in 2005 § Made up of 126 members from selected civic, sports, artistic, and other NGOS

§ Purpose to deliberate on matters of public policy § May, along with other “councils” diminish the role of Parliament

§ President can dissolve parliament or dismiss the government

§ Head of state and commander of chief § Security Council – chaired by the president § Formulates policy in foreign & defense areas and more

§ State Council – heads of regional governments § Public Chamber­ created by Putin in 2005 § Made up of 126 members from selected civic, sports, artistic, and other NGOS

§ Purpose to deliberate on matters of public policy § May, along with other “councils” diminish the role of Parliament

The Contemporary Constitutional Order: The Government The Contemporary Constitutional Order: The Government

§ Refers to the senior echelon of leadership in the executive branch § Charged with formulating the main lines of national policy § Especially economic and social § Corresponds to the Cabinet in Western parliamentary systems § Not a party government

§ President Putin appoint Fradko, a relatively obscure figure as prime minister

§ Refers to the senior echelon of leadership in the executive branch § Charged with formulating the main lines of national policy § Especially economic and social § Corresponds to the Cabinet in Western parliamentary systems § Not a party government

§ President Putin appoint Fradko, a relatively obscure figure as prime minister

The Contemporary Constitutional Order: The Parliament The Contemporary Constitutional Order: The Parliament

§ Federal Assembly is bicameral § Lower house: State Duma § Upper house: Federation Council

§ Legislation originates in the Duma § Federal Council can then only pass it, reject it, or reject it and call for the formation of an agreement commission to iron out differences. § If the Duma rejects the upper house’s changes, it can override the Federation Council by a two­ thirds vote and send the bill directly to the president.

§ Federal Assembly is bicameral § Lower house: State Duma § Upper house: Federation Council

§ Legislation originates in the Duma § Federal Council can then only pass it, reject it, or reject it and call for the formation of an agreement commission to iron out differences. § If the Duma rejects the upper house’s changes, it can override the Federation Council by a two­ thirds vote and send the bill directly to the president.

The Contemporary Constitutional Order: The Parliament The Contemporary Constitutional Order: The Parliament

§ When the bill has cleared parliament, it goes to the president for signature. § If the president refuses to sign the bill, it returns to the Duma.

§ The Duma may pass it with his amendments or it may override the president’s veto with a two­thirds vote.

§ The Federation Council must then also approve the bill, by a simple majority if it approves the president’s amendments or by a two­thirds vote if it chooses to override the president.

§ Legislative elections § Pro­Putin party: United Russia

§ When the bill has cleared parliament, it goes to the president for signature. § If the president refuses to sign the bill, it returns to the Duma.

§ The Duma may pass it with his amendments or it may override the president’s veto with a two­thirds vote.

§ The Federation Council must then also approve the bill, by a simple majority if it approves the president’s amendments or by a two­thirds vote if it chooses to override the president.

§ Legislative elections § Pro­Putin party: United Russia

The Contemporary Constitutional Order: The Parliament The Contemporary Constitutional Order: The Parliament

§ Committees § Federal Council: designed as an instrument of federalism § Executive­legislative relations § Yeltsin years § Putin: power shifted away from parliament

§ Committees § Federal Council: designed as an instrument of federalism § Executive­legislative relations § Yeltsin years § Putin: power shifted away from parliament

The Contemporary Constitutional Order: The Constitutional Court The Contemporary Constitutional Order: The Constitutional Court

§ 1993 Constitution provides for judicial review by the Constitutional Court § Under Putin, the court has taken care to avoid crossing the president.

§ Putin wishes to move the seat of the Court to St. Petersburg. § Goal to marginalize it politically

§ Central Government and regions § Ethnic republic guard their special status § Chechnia­independence § Beslan § 20 other ethnic republics; accord with Russia

§ Municipalities

§ 1993 Constitution provides for judicial review by the Constitutional Court § Under Putin, the court has taken care to avoid crossing the president.

§ Putin wishes to move the seat of the Court to St. Petersburg. § Goal to marginalize it politically

§ Central Government and regions § Ethnic republic guard their special status § Chechnia­independence § Beslan § 20 other ethnic republics; accord with Russia

§ Municipalities

Russian Political Culture in the Post­ Soviet Period Russian Political Culture in the Post­ Soviet Period § Produce of centuries of autocratic rule § Rapid, but uneven improvement in education and living standards

§ Exposure to Western standards of political life § Result: contradictory bundle of values in contemporary political culture § Sturdy core of democratic values § Firm belief in the need for a strong state § Disillusionment with democratization and market reform in Russia § Support individual rights, but less so for unpopular minorities § Nostalgia for the old order and aspirations for a better future § Surveys suggest the citizens have little faith in the current political system

§ Putin

§ Produce of centuries of autocratic rule § Rapid, but uneven improvement in education and living standards

§ Exposure to Western standards of political life § Result: contradictory bundle of values in contemporary political culture § Sturdy core of democratic values § Firm belief in the need for a strong state § Disillusionment with democratization and market reform in Russia § Support individual rights, but less so for unpopular minorities § Nostalgia for the old order and aspirations for a better future § Surveys suggest the citizens have little faith in the current political system

§ Putin

Russian Political Culture in the Post­ Soviet Period Russian Political Culture in the Post­ Soviet Period

§ Political socialization § Education § Ideological content has changed

§ Church § Mass media § Overall, much less subject to direct state control than it was in the Soviet era

§ Political socialization § Education § Ideological content has changed

§ Church § Mass media § Overall, much less subject to direct state control than it was in the Soviet era

Political Participation Political Participation

§ The importance of social capital § Scare in Russia § Participation in civic activity has been extremely limited. § Weakness of intermediate associations § Since the late 1980s, political participation, apart from voting, has seen a brief, intense surge followed by a protracted ebb.

§ Not psychologically disengaged or socially isolated § Half the Russian population reports reading national newspapers regularly or sometimes and discussing problems of the country with friends. § Vote in high proportions § Prize the right not to participate

§ Shattering of expectations for change

§ The importance of social capital § Scare in Russia § Participation in civic activity has been extremely limited. § Weakness of intermediate associations § Since the late 1980s, political participation, apart from voting, has seen a brief, intense surge followed by a protracted ebb.

§ Not psychologically disengaged or socially isolated § Half the Russian population reports reading national newspapers regularly or sometimes and discussing problems of the country with friends. § Vote in high proportions § Prize the right not to participate

§ Shattering of expectations for change

Political Participation Political Participation

§ Elite recruitment § Refers to the institutional processes in a society by which people gain access to positions of influence and responsibility § Soviet regime: Communist Party, nomenklatura § Today, mixture of career types

§ Elite recruitment § Refers to the institutional processes in a society by which people gain access to positions of influence and responsibility § Soviet regime: Communist Party, nomenklatura § Today, mixture of career types

Interest Articulation: Between Statism and Pluralism Interest Articulation: Between Statism and Pluralism

§ NGOs § Elements of corporatism § Three examples of associational groups § The Russian Union of Industrialists and Entrepreneurs § The League of Committees of Soldiers’ Mothers § The Federation of Independent Trade Unions of Russia

§ New Sectors of Interest § Many new associations § More collective action by business and other sectors § More open bargaining over the details of policy

§ NGOs § Elements of corporatism § Three examples of associational groups § The Russian Union of Industrialists and Entrepreneurs § The League of Committees of Soldiers’ Mothers § The Federation of Independent Trade Unions of Russia

§ New Sectors of Interest § Many new associations § More collective action by business and other sectors § More open bargaining over the details of policy

Parties and the Aggregation of Interests Parties and the Aggregation of Interests

§ Elections and party development § The 1989 and 1990 elections § The 1993 and 1995 elections § The 1996 presidential election § The 1999 election § Putin and the 2000 presidential race § The 2003 and 2004 elections

§ Party strategies and the social bases of party support § Evolution of the party system § Hampered by institutional factors such as the powerful presidency

§ Sponsoring shadow leftist or nationalist parties to divide the opposition

§ Elections and party development § The 1989 and 1990 elections § The 1993 and 1995 elections § The 1996 presidential election § The 1999 election § Putin and the 2000 presidential race § The 2003 and 2004 elections

§ Party strategies and the social bases of party support § Evolution of the party system § Hampered by institutional factors such as the powerful presidency

§ Sponsoring shadow leftist or nationalist parties to divide the opposition

The Politics of Economic Reform: The Dual Transition The Politics of Economic Reform: The Dual Transition

§ Stabilization § Shock therapy

§ From communism to capitalism § Heavy commitment of resources to military production in the Soviet Union complicated the task of reform; so does the size of the country

§ Stabilization § Shock therapy

§ From communism to capitalism § Heavy commitment of resources to military production in the Soviet Union complicated the task of reform; so does the size of the country

The Politics of Economic Reform: The Dual Transition The Politics of Economic Reform: The Dual Transition § Privatization § “Loans for shares”

§ Consequences of privatization § Unsustainable debt trap § No strong institutional framework to support it; no real market economy in place

§ Social conditions § Small minority became wealthy in the 1990s § Most people suffered a net decline § Unemployment

§ Privatization § “Loans for shares”

§ Consequences of privatization § Unsustainable debt trap § No strong institutional framework to support it; no real market economy in place

§ Social conditions § Small minority became wealthy in the 1990s § Most people suffered a net decline § Unemployment

Rule Adjudication: Toward the Rule of Law Rule Adjudication: Toward the Rule of Law

§ Gorbachev’s goal: make the Soviet Union a law­governed state § The Procuracy § Comparable to the system of federal and state prosecuting attorneys in the United States § Has more wide­ranging responsibilities and is organized as a centralized hierarchy headed by the procurator­general

§ Gorbachev’s goal: make the Soviet Union a law­governed state § The Procuracy § Comparable to the system of federal and state prosecuting attorneys in the United States § Has more wide­ranging responsibilities and is organized as a centralized hierarchy headed by the procurator­general

Rule Adjudication: Toward the Rule of Law Rule Adjudication: Toward the Rule of Law

§ The Judiciary § Bench has been relatively week § Lip service to judicial independence § Unitary hierarchy: all courts of general jurisdiction are federal courts

§ Commercial courts § Supreme Commercial Court is both the highest appellate court for its system of courts as well as the source of instruction and direction to lower commercial courts. § Judges nominated by the president and confirmed by the Federation Council

§ Ministry of Justice oversees the court system; lacks any direct authority over the procuracy

§ The Judiciary § Bench has been relatively week § Lip service to judicial independence § Unitary hierarchy: all courts of general jurisdiction are federal courts

§ Commercial courts § Supreme Commercial Court is both the highest appellate court for its system of courts as well as the source of instruction and direction to lower commercial courts. § Judges nominated by the president and confirmed by the Federation Council

§ Ministry of Justice oversees the court system; lacks any direct authority over the procuracy

Rule Adjudication: Toward the Rule of Law Rule Adjudication: Toward the Rule of Law

§ The Bar § “Advocates” § Comparable to defense attorneys in the U.S. § Role has expanded considerably with the spread of the market economy

§ Constitutional Adjudication § Court established for constitutional review of the official acts of government § Again, challenge of presidential authority § Under Putin, the court has not issued any rulings restricting the president’s power.

§ The Bar § “Advocates” § Comparable to defense attorneys in the U.S. § Role has expanded considerably with the spread of the market economy

§ Constitutional Adjudication § Court established for constitutional review of the official acts of government § Again, challenge of presidential authority § Under Putin, the court has not issued any rulings restricting the president’s power.

Rule Adjudication: Toward the Rule of Law Rule Adjudication: Toward the Rule of Law

§ Obstacles to the Rule of Law § Abuse of legal institutions by political authorities § Corruption § Bribery

§ Obstacles to the Rule of Law § Abuse of legal institutions by political authorities § Corruption § Bribery

Russia and the International Community Russia and the International Community

§ Russia has not fully embraced integration into the international community. § Expanded military presence in several former Soviet republics § Chechnia § Post­communist transition has been difficult and incomplete.

§ Russia has not fully embraced integration into the international community. § Expanded military presence in several former Soviet republics § Chechnia § Post­communist transition has been difficult and incomplete.