Zolotov, Putin’s Praetorian
The idea of creating a National Guard (NG) for Russia bringing together public security forces under a single command has been raised periodically and always abandoned for very good reasons, not least the lack of any apparent need to have a Praetorian Guard on steroids. In 2012, for example, I didn’t think it likely: it would upend the balance of power within the security agencies, create a monster, and not really meet any true security need.
So what does it say that Putin today announced that such a natsgvardiya was going to be formed? After a meeting with security luminaries include MVD Interior Troops commander (and new NG head) Viktor Zolotov – a trusted ex-bodyguard – he announced [my translation]:
Decisions have been made: we are creating a new federal executive body on the basis of the Interior Troops – creating the National Guard, which will handle the fight against terrorism, the fight against organised crime, and in close cooperation with the Ministry of Internal Affairs, will continue to perform those functions which are [currently] performed by the OMON (riot police), SOBR (SWAT) and so on.
We will arrange, as we discussed with the Interior Minister [Vladimir Kolokoltsev], not only in the decree, but in a future federal law, so that there will be no discord in order to get everything working smoothly and clearly. I hope very much that the troops of the National Guard will effectively perform their tasks, as has been the case up now, and that they will strengthen the work on the areas that are considered priorities.
The NG will thus also take over the OMON and SOBR, making it a powerful paramilitary security force, with elements right across the country.
Meanwhile, the Federal Drugs Control Service (FSKN) and Federal Migration Service (FMS) will be brought under the MVD (Ministry of Internal Affairs), albeit remaining separate services. (Again, an idea which had been mooted before.) This may be a consolation prize for Kolokoltsev but appears, unsurprisingly, to have been a bitter pill for FSKN chief Viktor Ivanov, moving from independent director to ministerial subordinate.
The creation of a National Guard is a big deal. We await details, but here are a few first observations:
1. No discussion, no lead time. As with so many crucial decisions, this came essentially unheralded, underlining the extent to which policy comes from a small, tight circle around Putin. It is not just that they have good operational security; they also clearly see no reason to prepare the public in advance. This is just the way politics goes these days.
2. Big worries in a little circle. There is no real reason for creating the NG out of the Interior Troops (VV) and other forces unless you have a serious worry about public unrest. Let’s be clear, whatever Putin says the militarised security forces of the VV and now NG have little real role fighting crime or terrorism; they are public security forces, riot and insurrection control and deterrence assets. The OMON and SOBR do play a certain role, but detaching them from the investigations elements of the MVD actually reduces their value in fighting crime. (And the MVD will likely have to recreate some kind of SWAT forces of its own.)
3. Putin’s Own. The NG, as a federal agency, will be directly subordinated to the government, without a minister in the way. With Zolotov at its head, then it is even more clearly a personal, presidential Praetorian force, under a maximalist loyalist. This may not only be a force to keep the masses in check, but also the elite.
4. Upsetting the power ministry balance. In the past, there was a key desire to retain a degree of balance between the various security agencies. The MVD has now been weakened (and having the FMS and FSKN is by no means enough of a recompense), and the Federal Security Service (FSB) has a more direct rival in the domestic security stakes.