Federalism and Local Politics in Russia

5 Putin and the election of regionalgovernorsDarrell SliderPerhaps the most significant change made by Vladimir Putin to the Russianpolitical system was his decision in September 2004 to end the popularelection of regional executives. The consequences of this decision are potentiallyfar-reaching and represent nothing less than the dismantling of whatlittle remained of Russian federalism and democracy.Putin announced his decision in the immediate aftermath of the Beslanschool tragedy, in which over 300 hostages lost their lives. On 13 September2004 Putin spoke before the Russian government and leaders of the regionsand argued that terrorists sought to bring about the collapse of Russia andits government. Citing article 77 of the 1993 Constitution, Putin called forthe creation of a ‘unified system of authority’, which should function as asingle, integral hierarchy. This new ‘executive vertical’ would require replacingpopular elections with a process that would involve both national andregional organs in the selection of regional executives. Putin proposed thatthis should be achieved through the election of governors by regionalassemblies, with the candidate or candidates to be nominated by the Russianpresident. 1The law implementing this decision was passed by the Duma andFederation Council in December 2004. 2 When the law was adopted itbecame clear that the assemblies would not have a choice of candidatesselected by the president; they could either accept or reject his single nominee.Furthermore, if the regional assembly voted against his choice twice, thepresident had the power to dissolve the assembly and name an acting governor.In essence, then, the system of popular elections was replaced by presidentialappointment of governors. 3 Regional legislatures were put in theposition of approving Putin’s candidate or face dissolution.Regional elections 1991–2004The first elections to regional executive posts sanctioned by Boris Yeltsintook place in 1991, at the same time as the election of Yeltsin as president ofthe Russian federation. As an ‘experiment’ mayors were elected in the twolargest Russian cities, Moscow and Leningrad. 4 Both cities were firmly in the