There is a chill in the air in Moscow that has nothing
to do with the onset
of winter. President Vladimir Putin's decisions to arrest Mikhail
Khodorkovsky, Russia's richest man, and seize his stake in the Yukos oil
company have sent shivers of fear through the city.
The public demonstration of the powers of the state prosecutors carries
unmistakeable echoes of Communist times.
Trying to work out precisely what has happened has sparked a frenzy
of
speculation about Mr Putin and his advisers and possible splits in the
Kremlin. But one conclusion can safely already be drawn: last week's
developments confirm that Russia is charting its own course on the long
road from communism. It is not following Poland and other central European
states in a rapid transition from Marxism to liberal democracy and the
market economy. It is instead showing every sign of evolving into an
authoritarian state in which the Kremlin, and the huge administrative
machine on which it rests, dominates political power.
"We are now living in a different country," says Lilia Shevtsova,
an
analyst with the Moscow Carnegie Centre, a think tank. "We will see
the
growing role of bureaucracy, with more corruption and less pluralism.
The
new reality will be pretty tough: there will not be repression, but a
creeping bureaucratic coup."
There is no suggestion of a return to communism. Nor does the 51-year-old
Mr Putin seem to be deliberately constructing a totalitarian state. Rather,
as a former KGB man and bureaucrat he instinctively responds to challenges
by reaching for the levers of administrative power - whether they are
the
public prosecutors, the security services or the tax inspectors.
There are those brave enough to warn Mr Putin not to go too far, notably
Mikhail Kasyanov, the prime minister, who on Friday expressed "deep
concern" about the Yukos investigation. However, the effects of last
week
will not be easily reversed. From the Baltic Sea to the Pacific, the
Kremlin is recharging a machine that is rolling with increasing speed
towards authoritarian rule.
This does not make Mr Putin into Stalin. There have been many far less
extreme models of authoritarian rule. Nor is authoritarianism incompatible
either with openness to foreign investment or diplomatic co-operation
with
the west.
To understand where Mr Putin might go next, it is necessary to consider
where he has come from. Communism's demise destroyed the rules that had
held together Soviet society, starting with the authority of the party
itself. Boris Yeltsin encouraged the process, knowing that political
fragmentation was the best defence against the threats of a communist
revanche, a military coup or civil war. The main beneficiaries of this
chaos were those businessmen, including Mr Khodorkovsky, who managed to
grab control of lucrative natural resources. Through controversial
privatisation deals, about a dozen men built empires worth billions of
dollars.
In the state administration, a few officials became very rich through
their
corrupt co-operation with the oligarchs. The rest were enraged to see
the
world they had dominated through their paperwork collapse around them.
The
KGB, which had seen itself as the elite of the old order, felt this change
especially keenly. "The KGB was the biggest loser in the process
of Russian
privatisation," says Olga Kryshtanovskaya, a sociologist.
When he took power in 2000, Mr Putin made a priority of rebuilding the
Kremlin's shattered authority - to widespread acclaim at home and abroad.
He tamed the governors of Russia's 89 regions by squeezing their budgets,
removing their ex-officio rights to seats in the Federation Council, the
upper house of the federal parliament, and appointing seven mega-region
super-governors - five of them former security service or military generals.
In Moscow, Mr Putin struck a deal with the oligarchs: if they stayed
out of
politics, he would allow them to keep their controversially-acquired
fortunes. Most accepted the offer. Two who did not - the flamboyant media
tycoons Boris Berezovsky and Vladimir Gusinsky - were forced to leave
the
country for well-heeled exile.
Meanwhile, Mr Putin allowed economic reformers headed by German Gref,
the
economy minister, to work on a modernisation programme, including a popular
13 per cent flat rate tax.
As global oil prices surged, so did Russia's exports and economic output
and government tax revenues. Foreign investors, frightened off by the
1998
financial crisis, returned cautiously. Mr Putin's domestic standing soared.
So did his international reputation, especially after he backed the US-led
war on global terrorism.
However, from the outset Mr Putin's democratic credentials have been
suspect. Serving as prime minister in the months before he became
president, Mr Putin launched an offensive in Chechnya, the troubled
province on Russia's southern border. His political enemies accuse him
of
doing so deliberately to fan nationalist emotions in advance of the
presidential elections, which he won with a landslide in early 2000. Mr
Putin has repeatedly opted for force in pursuing the Chechen separatists
in
a war which has now cost tens of thousands of lives. International
observers condemned recent elections as a sham.
Equally worrying for political liberals has been the approach to the
media.
NTV, Mr Gusinsky's television station which had been critical of the
government, was taken over by the state-backed gas monopoly Gazprom.
Pressure has been applied to television stations to avoid criticising
the
Kremlin.
Control over the media has been combined with a stifling of opposition
in
the parliament, or Duma. The belligerent sessions of the Yeltsin years
have
given way to a quiescent Duma in which the president's party United Russia
has established a big majority. "I can't think of a single law that
the
Kremlin has wanted which has not been approved," says Boris Nemtsov,
head
of the liberal Union of Right Forces party.
Even in the economy, Mr Putin could not resist the pursuit of control.
While he has pushed through some liberalising reforms, he has repeatedly
postponed efforts to loosen the government's grip on banking - where
reforms have been extremely modest - and in electricity. In gas, Mr Putin
has grabbed back control of Gazprom, the gas monopoly.
Encouraged by these developments, state officials and security services
officers have been imbued with a new confidence. The KGB itself was broken
up in the early 1990s into different organisations but its former officers
have spread through the government. Together with present and former
officers from the army and other security services, they have coalesced
into a loose force now popularly called the siloviki. Ms Shevtsova says:
"For the first time, these different agents of power have started
to act as
one force."
Mr Putin has always allowed a measure of political dissent. As Grigory
Yavlinsky, leader of Yabloko, the small liberal party, says, the president
runs "a managed democracy". But he hates a real threat to his
power, especially as Duma elections approach next month and presidential
polls next March.
This is why he has reacted so strongly to the challenge from Mr
Khodorkovsky. With his $8bn personal fortune, the ruthless Yukos chief
is
perhaps the only man in Russia able to mount an independent political
attack on the president - and courageous enough to try it.
Mr Khodorkovsky has irritated Mr Putin for some time. He, or Yukos
shareholders, have funded opposition parties including liberals and
communists. He has proved extremely effective at lobbying, winning the
support of MPs and using his contacts to block, for example, tax
legislation unfavourable to Yukos. He has sponsored charities and
think-tanks in Russia and abroad. He has even ventured opinions in foreign
affairs, taking a more pro-US stance than Mr Putin.
Mr Khodorkovsky also made little secret of the fact that he planned
to
withdraw from business in 2007, just before the 2008 presidential
elections, and go into politics.
The struggle between Mr Putin and Mr Khodorkovsky turned into a crisis
this
summer when the prosecutors started investigating Yukos - with far-reaching
effects on Mr Khodorkovsky, on other Russian oligarchs, on foreign
investors, on the Russian economy and on Russia as a whole.
Mr Khodorkovsky shows every sign of wanting to fight Mr Putin all the
way.
He almost certainly knew that he was courting arrest by refusing to back
down or leave Russia. Mr Berezovsky says: "He is a very brave man.
I might
have been prepared to go to prison in Switzerland or in Britain, but not
in
Russia."
Yukos is putting a brave face on events, even though the detention of
its
main shareholder has complicated negotiations on at least two competing
bids by western oil majors that were considering taking strategic stakes:
ExxonMobil and ChevronTexaco. But Mr Khodorkovsky is now playing for much
higher stakes than the future of his business. What he seems to be
interested in is the future of Russia.
A question for many in Moscow is whether the attack on Mr Khodorkovsky
will
be extended to other oligarchs. Mr Berezovsky, who is himself wanted on
fraud charges in Russia, says it will: "The oligarchs must recognise
that
they all could go to jail." But others think not. Mikhail Fridman,
head of
the Alfa grouping, said before the arrests of Yukos figures: "It
seems that
this [investigation] is connected with the political activity of Yukos
shareholders."
Mr Putin himself may think that by making an example of the one oligarch
who made an egregious attempt to break into politics he can silence the
rest. Anatoly Chubais, the head of UES, says: "Business is not going
to go
on strike or come out on the streets, but it will vote with its feet and
money will fly out of Russia."
However, the president may have started a juggernaut that he cannot
stop.
Across Russia, there are officials who believe they have their own scores
to settle with business people, small and large. Last week the FSB raided
Novosibirskenergo, a regional subsidiary of UES, possibly as a warning
to
Mr Chubais. Meanwhile politicians loyal to Mr Putin have demanded
investigations of other companies, including Sibneft, the oil group
controlled by the tycoon Roman Abramovich, which is currently merging
with
Yukos.
Attacking oligarchs is politically popular. According to opinion polls,
a
great majority of Russians think that all the very rich men in their
country acquired their money through criminal means and should be
prosecuted. Mr Putin may want to use this emotion to boost his ratings
in
advance of the elections, although the state television channels have
all
but ignored the Yukos investigations.
If an anti-oligarch campaign gains momentum it may prove difficult to
stop.
Not for nothing have wealthy Russians accelerated transfers of capital
overseas. After importing capital on a net basis in the first half of
this
year for the first time since the fall of Communism, investors are moving
money out again, according to estimates by the World Bank. Mr Abramovich
has been the most high-profile example, extracting substantial profits
over
the last few months in the form of dividends from his company Sibneft
and
selling it to Yukos this spring. A few weeks ago he cut by half his stake
in Russian Aluminium, the metals giant.
Aware of the dangers of destabilising investment, both Mr Kasyanov and
Alexei Kudrin, the reformist finance minister, late last week quietly
urged
restraint in the legal proceedings against oligarchs. But the business
lobby in the Kremlin has been weakened by the departure of Alexander
Voloshin as chief of the presidential administration. Mr Voloshin, a
survivor from the Yeltsin era, is closely linked with business allies
of
the Yeltsin family, including Mr Abramovich and Oleg Deripaska, the
controlling shareholder in Russian Aluminium.
The oligarchs may take heart from the fact that Mr Voloshin's successor
is
no ex-KGB man but Dmitry Medvedev, a young official Mr Putin has brought
to
Moscow from St Petersburg. But whether he can be as effective as Mr
Voloshin as a political counterweight to the security services' factions
seems doubtful.
The immediate impact upon business of recent events has been negative.
Markets have proved turbulent, important mergers and acquisitions have
been
put on hold, and bond issues have been delayed or cancelled. "It
would be
tricky for any Russian company to tap the international bond markets at
present," said one foreign banker in Moscow.
But once the dust has settled, the underlying trend of growing foreign
investment - from a very low base - may pick up again. BP, which this
summer finalised a $14bn joint venture with the Russian oil group TNK,
thinks so. Most of the big deals under study involve oil companies - which
are well used to dealing with authoritarian regimes around the world.
Some
may even prefer closer involvement by the Kremlin as a guarantor of big
investments. But all will have to be more careful about their local partners.
Many countries have managed to combine authoritarian government with
strong
economic growth, including Japan and South Korea. This is particularly
common in resources-based economies like Russia.
But such a system brings heavy costs. Widespread bribery, favour-seeking
and corruption risk sharply reducing efficiency and creating distortions.
Russia was in any case handicapped by this combination of over-regulation
and rent-seeking behaviour. The European Bank for Reconstruction and
Development, the region's multilateral bank, has repeatedly urged more
liberalisation and transparency. But as one Moscow investment banker puts
it following the replacement of Mr Voloshin: "We are definitely entering
another phase now, with more administrative control and more bureaucracy,
creating greater scope for corruption. Russia needs reform desperately,
but
we may now go through a period of stagnation for the next four years."
In Moscow there are some signs of support for Mr Khodorkovsky. But it
seems
unlikely that they will crystallise into any serious political force.
Given
the reach of the Kremlin, combined with Mr Putin's genuinely widespread
domestic popularity, another strongly sympathetic parliamentary majority
in
December - followed by his own re-election in March - seems all but assured.
In the long term, Russia is not a country that will easily resist
authoritarian rule. There are no deep democratic traditions, but rather
an
acceptance of authority and a fear of the knock on the door. "The
fact is
that Stalinism as a mentality continues to exist in today's Russia,"
says
Sergei Grigorians, head of the Glasnost Fund, a liberal think-tank.
However, much depends on the sort of authoritarianism that Mr Putin
and his
allies follow. If they broadly control public life, while more or less
respecting private rights and property, that is not the worst future for
Russia, given that in the 1990s there were genuine fears of civil war.
It is a future that the west would probably tolerate - especially if
Mr
Putin continues to co-operate on big foreign policy questions. If western
governments have been prepared to mute their criticism of Moscow over
Chechnya, they will are unlikely to make serious protests over Mr
Khodorkovsky's arrest. Senior US diplomats say their overall assessment
of
the relationship with Russia remains "positive", although the
US State
department this weekend said the freezing of Yukos' assets raised "serious
questions", sparking an angry response from a Russian spokesman.
But in Russia, given the history of political violence, benign
authoritarianism is not a foregone conclusion. The hardline approach in
Chechnya has brutalised and further legitimised important parts of the
security apparatus and underlined a resurgent nationalism.
Mr Putin may know exactly where he wants to draw the line. The danger
is
that some of his allies may already be pushing him further than he wants
to
go. And the president may be unable to stop them.
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