The Russian Federation has a highly centralized, authoritarian political system dominated by President Vladimir Putin. The bicameral Federal Assembly consists of a directly elected lower house (State Duma) and an appointed upper house (Federation Council), both of which lack independence from the executive. The 2016 State Duma elections and the 2018 presidential election were marked by accusations of government interference and manipulation of the electoral process, including the exclusion of meaningful opposition candidates.
The Ministry of Internal Affairs, the Federal Security Service (FSB), the Investigative Committee, the Office of the Prosecutor General, and the National Guard are responsible for law enforcement. The FSB is responsible for state security, counterintelligence, and counterterrorism as well as for fighting organized crime and corruption. The national police force, under the Ministry of Internal Affairs, is responsible for combating all crime. The National Guard assists the FSB Border Guard Service in securing borders, administers gun control, combats terrorism and organized crime, protects public order, and guards important state facilities. The National Guard also participates in armed defense of the country’s territory in coordination with Ministry of Defense forces. Except in rare cases, security forces generally reported to civilian authorities. National-level civilian authorities, however, had, at best, limited control over security forces in the Republic of Chechnya, which were accountable only to the head of Chechnya, Ramzan Kadyrov.
The country’s occupation and purported annexation of Ukraine’s Crimean Peninsula continued to affect the human rights situation there significantly and negatively. The Russian government continued to arm, train, lead, and fight alongside Russia-led forces in eastern Ukraine. Credible observers attributed thousands of civilian deaths and injuries, as well as numerous abuses, to Russia-led forces in Ukraine’s Donbas region (see the Country Reports on Human Rights Practices for Ukraine). Authorities also conducted politically motivated arrests, detentions, and trials of Ukrainian citizens in Russia, many of whom claimed to have been tortured.
Significant human rights issues included: extrajudicial killings, including of lesbian, gay, bisexual, transgender, and intersex (LGBTI) persons in Chechnya by local government authorities; enforced disappearances; pervasive torture by government law enforcement personnel that sometimes resulted in death and occasionally involved sexual violence or punitive psychiatric incarceration; harsh and life-threatening conditions in prisons; arbitrary arrest and detention; political prisoners; severe arbitrary interference with privacy; severe suppression of freedom of expression and media, including the use of “antiextremism” and other laws to prosecute peaceful dissent; violence against journalists; blocking and filtering of internet content and banning of online anonymity; severe suppression of the right of peaceful assembly; severe suppression of freedom of association, including overly restrictive laws on “foreign agents” and “undesirable foreign organizations”; severe restrictions of religious freedom; refoulement of refugees; severe limits on participation in the political process, including restrictions on opposition candidates’ ability to seek public office and conduct political campaigns, and on the ability of civil society to monitor election processes; widespread corruption at all levels and in all branches of government; coerced abortion and sterilization; trafficking in persons; and crimes involving violence or threats of violence against persons with disabilities, LGBTI persons, and members of ethnic minorities.
The government failed to take adequate steps to prosecute or punish most officials who committed abuses, resulting in a climate of impunity.
Section 2. Respect for Civil Liberties, Including:
a. Freedom of Expression, Including for the Press
While the constitution provides for freedom of expression, including for the press, the government increasingly restricted this right. During the year the government instituted several new laws restricting both freedom of expression and of the press, particularly in regards to online expression. Regional and local authorities used procedural violations and restrictive or vague legislation to detain, harass, or prosecute persons who criticized the government or institutions it favored, such as the Russian Orthodox Church. The government exercised editorial control over media, creating a media landscape in which most citizens were exposed to predominantly government-approved narratives. Significant government pressure on independent media constrained coverage of numerous topics, especially of Ukraine and Syria, LGBTI persons, the environment, elections, criticism of local or federal leadership, as well as secessionism or federalism. Censorship and self-censorship in television and print media and on the internet was widespread, particularly regarding points of view critical of the government or its policies. The government used direct ownership or ownership by large private companies with government links to control or influence major national media and regional media outlets, especially television.
Freedom of Expression: Authorities continued to misuse the country’s expansive definition of extremism as a tool to stifle dissent. As of December the Ministry of Justice had expanded its list of extremist materials to include 5,003 books, videos, websites, social media pages, musical compositions, and other items, an increase of more than 450 items from 2018. According to the prosecutor general, authorities prosecuted 1,200 extremism cases in 2018, the majority of which included charges of “extremism” levied against individuals for exercising free speech on social media and elsewhere.
At the same time, in December 2018, President Putin signed legislation that partially decriminalized the expression of “extremist” views, stipulating that speech that “incited hatred or enmity” or denigrated a person or group be treated as an administrative misdemeanor, not a crime, for a first-time offense. Several persons were previously charged with extremism under criminal law for comments and images posted in online forums or social networks. Following the amendment to the antiextremist legislation, however, courts dropped charges against some of the defendants. On January 15, for example, authorities dropped charges against Eduard Nikitin, a doctor in the Khabarovsk region who faced up to five years in prison on extremism charges. He was accused of “liking” an image condemning the country’s aggression in eastern Ukraine posted on the Odnoklassniki social network in 2015.
Although the amendment was expected to have a retroactive effect, not all individuals imprisoned on extremism charges saw charges dropped or sentences commuted. For example, on August 28, a court in the Belgorod region denied a request for parole from 23-year-old doctoral student Aleksandr Kruze. In February 2018, a court in Stariy Oskol sentenced him to 2.5 years in prison for extremism for reposting four nationalist images on social media in 2016. Kruze had been writing a dissertation on radicalization and maintained that the posts had been a part of a research experiment in online discourse around radicalism.
By law authorities may close any organization that a court determines to be extremist, including media outlets and websites. Roskomnadzor, the country’s media oversight agency, routinely issued warnings to newspapers and internet outlets it suspected of publishing extremist materials. Three warnings in one year sufficed to initiate a closure lawsuit.
During the year authorities invoked a 2013 law prohibiting the “propaganda” of “nontraditional sexual relations” to minors to punish the exercise of free speech by LGBTI persons and their supporters. For example, on October 28, the Moscow branch of the Ministry of Internal Affairs opened an administrative case for suspected “propaganda of nontraditional sexual relations to minors” against the producers and participants of a YouTube video in which children interviewed a gay man, Maksim Pankratov, about his life. The video contained no discussion of sex, but included questions on Pankratov’s sexual orientation, how he would like other individuals to treat him, and his vision for his life in the future. On November 2, the Moscow Region Investigative Committee launched a criminal investigation into the video’s producers and participants on suspicion of “violent sexual assault of a minor” younger than age 14, a crime punishable by 12 to 20 years in prison. According to press reports, the parents of the children in the video have experienced pressure from authorities to testify against the video’s producers and received visits from child protective services, which they interpreted as a threat to terminate their parental rights. Pankratov reported receiving threats of physical violence from unknown persons following the opening of the criminal case. As of December Pankratov was in hiding in an undisclosed location in Russia, while the video’s producer, popular online celebrity Victoria Pich, had fled the country.
During the year authorities prosecuted individuals for speech allegedly violating a law that prohibits “offending the feelings of religious believers.” For example, on September 30, a court in Irkutsk sentenced Dmitriy Litvin to 100 hours of community service for social media postings in 2015 of caricatures that allegedly offended the feelings of Orthodox Christians, Roman Catholics, and shamanists.
During the year authorities prosecuted individuals for speech that allegedly violated the law prohibiting the “rehabilitation of Nazism.” For example, on April 5, the Investigative Committee for the Chuvash Republic opened a criminal case against opposition blogger Konstantin Ishutov for material he had posted on social media in 2010 criticizing authorities’ poor maintenance of local cemeteries and contrasting it with the maintenance of cemeteries in Germany. Investigators claimed this material attempted to justify the actions of Nazis during World War II and diminish the significance of the Soviet victory. Ishutov was charged under the same statute in 2018 for posting a photo of a Nazi leaflet with the phrase, “When the Third Reich treats the Soviet people better than Putin treats the Russian people.” As he awaited trial, a court prohibited Ishutov from using the internet, traveling, or leaving his home after 10 p.m. On November 8, the Supreme Court of the Chuvash Republic started reviewing Ishutov’s case. On December 18, the Chuvash Supreme Court found Ishutov guilty of “rehabilitating Nazism” and other charges. He faces up to seven years in prison.
The law bans the display of Nazi symbols and the symbols of groups placed on the government’s list of “extremist” organizations. There was no official register or list of banned symbols. On July 30, a district court in St. Petersburg sentenced Fyodor Belov to five days’ administrative arrest for publicly displaying a tattoo of a swastika.
On March 18, a new law entered into force that stipulated fines of up to 100,000 rubles ($1,570) for showing “disrespect” online for the state, authorities, the public, flag, or constitution. According to the Agora International Human Rights Group, in the first six months after the law’s entry into force, authorities opened 45 cases, 26 of which dealt with insults against President Putin. For example, on April 22, a court in the Novgorod region fined unemployed machinist Yuriy Kartyzhev 30,000 rubles ($471) for posting insulting comments about President Putin on social media.
On March 18, a new law, commonly characterized as a ban on “creating and spreading fake news,” also came into force. It prohibits “incorrect socially meaningful information, distributed under the guise of correct information, which creates the threat of damage to the lives and/or health of citizens or property, the threat of mass disruption of public order and/or public security, or the threat of the creation of an impediment to the functioning of life support facilities, transport infrastructure, banking, energy, industry, or communications.” The fine for violating the law is up to 100,000 rubles ($1,570) for individuals, up to 200,000 rubles ($3,140) for officials, and up to 500,000 rubles ($7,850) for legal entities. In the event of repeated violations or violations with grave consequences, fines may go up to 1.5 million rubles ($23,600).
The law on “fake news” was applied multiple times during the year. For example, on July 29, a court in Nazran, Ingushetia, fined Murad Daskiyev, the head of the Council of Clans of the Ingush People, 15,000 rubles ($236). According to the court, Daskiyev knowingly distributed false information indicating that the head of the Republic of Ingushetia was preparing to sign a border agreement with the neighboring Republic of North Ossetia. Daskiyev maintained that the information he published was true. According to free expression watchdogs, authorities were motivated by a desire to suppress this information, following a large protest movement that emerged in Ingushetia in late 2018 after it signed a border agreement ceding land to the Republic of Chechnya.
During the year authorities enforced a law banning the “propaganda of narcotics” to prosecute or threaten to block independent outlets. For example, on August 19, Roskomnadzor threatened to block access to independent media outlet Meduza unless it deleted an August 8 article debunking myths about drug use, which Roskomnadzor claimed promoted drug use. Meduza restricted access to the article for its users in the country.
During the year authorities enforced a law banning the “propaganda of suicide” to prosecute or threaten to block independent media outlets. In August, Roskomnadzor issued three letters threatening to block access to the independent outlet Batenka, da vy Transformer unless it deleted several articles about the problem of suicide in the country. According to Roskomnadzor, the articles, which discussed the prevalence of and motivations behind suicide, promoted suicide. The outlet complied with the demands.
During the year authorities used a law banning cooperation with “undesirable foreign organizations” to restrict free expression. For example, on June 27, a court in the city of Saransk fined Idris Yusupov 6,000 rubles ($94) for organizing a screening of a film about Anastasiya Shevchenko, an activist under criminal prosecution for purported “cooperation” with the Open Russia movement, which had been declared an “undesirable foreign organization.” The court considered the film screening to be evidence of Yusupov’s own “cooperation” with Open Russia.
Government-controlled media frequently used derogatory terms such as “traitor,” “foreign agent,” and “fifth column” to describe individuals expressing views critical of or different from government policy, leading to a societal climate intolerant of dissent.
Press and Media, Including Online Media: The government continued to restrict press and media freedom. More than 80 percent of country’s mass media was funded by the government or progovernment actors. Government-friendly oligarchs owned most other outlets, which were permitted to determine what they publish within formal or informal boundaries set by the government. In the regions each governor also controlled regional media through funding, either directly or through affiliated structures. The federal government or progovernment individuals completely or partially owned all so-called federal television channels, the only stations with nationwide reach. The 29 most-watched stations together commanded 86 percent of television viewership; all were owned at least in part by the federal or local governments or by progovernment individuals. Government-owned media outlets often received preferential benefits, such as rent-free occupancy of government-owned buildings, and a preferential tax rate. On a regional level, state-owned and progovernment television channels received subsidies from the Ministry of Finance for broadcasting in cities with a population of less than 100,000 and on the creation and production of content. At many government-owned or -controlled outlets, the state increasingly dictated editorial policy. While the law restricts foreign ownership of media outlets to no more than 20 percent, another provision of the ambiguously worded law apparently bans foreign ownership entirely. The government used these provisions to consolidate ownership of independent outlets under progovernment oligarchs and to exert pressure on outlets that retained foreign backers. In its annual report on freedom of the press, Freedom House rated the country “not free.”
By law the Ministry of Justice is required to maintain a list of media outlets that are designated “foreign agents.” As of December there were 10 outlets listed. The decision to designate media outlets as foreign agents may be made outside of court by other government bodies, including law enforcement agencies.
On December 2, President Putin signed a law allowing authorities to label individuals (both Russian and foreign citizens) as “foreign agents” if they disseminate foreign media to an unspecified number of persons and receive funding from abroad. Human rights defenders expressed concern that this situation would further restrict the activities of or selectively punish journalists, bloggers, and social media users. Individuals labeled a “foreign agent” are required to register with the Ministry of Justice, and those living abroad also must create and register a legal entity inside the country in order to publish materials inside the country. All information published by the “foreign agent” individual would also have to be marked as having been produced by a “foreign agent.” Fines for noncompliance with the new law range from 10,000 ($157) and five million rubles ($78,500).
On August 19, the State Duma created a commission to investigate alleged foreign interference into Russian domestic affairs. On September 27, the commission determined that German media outlet Deutsche Welle violated the law by reporting on unauthorized protests in Moscow and allegedly calling on individuals to take part in them. The commission urged the government to revoke Deutsche Welle’s license to operate in Russia, although as of December it continued to operate in the country. The commission also accused other foreign media outlets, such as Radio Liberty, BBC, Voice of America, and others, of violations during the “day of silence” that preceded the Moscow City Duma elections on September 8.
Violence and Harassment: Journalists continued to be subjected to arrest, imprisonment, physical attack, harassment, and intimidation as a result of their reporting. According to the Glasnost Defense Foundation, as of December incidents of violence and harassment against journalists included three killings, 62 attacks, 169 detentions by law enforcement officers, 28 prosecutions, 30 threats, 14 politically motivated firings, and two attacks on media offices. Journalists and bloggers who uncovered government malfeasance or who criticized the government often faced harassment, either in the form of direct threats to their physical safety or threats to their security or livelihood, frequently through legal prosecution.
There were reports of attacks on journalists by government officials and police. According to press reports, on May 5, Sergey Zaytsev, head of the Shirinskiy region of the Republic of Khakasia, shoved and body-slammed Ivan Litoman, a journalist from the state Rossiya-24 television channel. Litoman was interviewing Zaitsev and had asked him about allegedly poor-quality housing provided to persons left homeless by the 2015 wildfires. On May 27, the local Investigative Committee announced it had opened an investigation into the incident.
There were reports of police briefly detaining journalists in order to interfere with or punish them for their reporting. For example, according to the Committee to Protect Journalists, during protests in Moscow on July 27 and August 3, police threatened journalists, obstructed their work, damaged their equipment, and forcefully detained them. According to freedom of assembly monitor OVD-Info, 14 journalists were detained in Moscow on August 3 alone. The Committee to Protect Journalists called these detentions, “a clear attempt to intimidate journalists and censor coverage.”
There were reports of police framing journalists for serious crimes, such as drug possession, in order to interfere with or punish them for their reporting. In one such incident, on June 7, Moscow police detained investigative journalist Ivan Golunov and charged him with possessing and attempting to sell illegal drugs after purportedly finding amphetamines in his backpack. Following his arrest, officers reportedly beat Golunov and denied him access to his lawyer for 14 hours. Police also purportedly found drugs in Golunov’s apartment, which they searched following his arrest. Police posted nine photos of the alleged narcotics, but then took all but one of the photos down after evidence emerged indicating that the photos were taken in places other than Golunov’s apartment. Golunov and human rights advocates maintained that the drugs were planted on him in an attempt to imprison him in retaliation for his coverage of corruption, particularly in the funeral business. Following significant public outcry, police on July 11 dropped charges, released Golunov, and announced an investigation into the fabrication of charges against him. On December 19, during his annual year-end press conference, President Putin announced that five police officers who arrested Golunov were being investigated on felony charges. According to Meduza, the outlet for which Golunov worked, the investigation began on December 18.
There were reports of journalists being fired for their political views or unfavorable reporting about powerful political figures. For example, according to Reporters without Borders (RSF), on May 20, the leadership of the Moscow business daily Kommersant fired journalists Maxim Ivanov and Ivan Safronov for writing an article predicting that the influential speaker of the Federation Council, Valentina Matvienko, would soon be replaced. Eleven other journalists at the newspaper resigned in protest, and more than 200 others issued a joint statement warning that its readers would as of then be denied unbiased coverage. The newspaper denied that its owner, progovernment oligarch Alisher Usmanov, played a role in the decision, but sources that spoke to RSF and other media outlets indicated that Usmanov had made the decision. Human Rights Watch called the firing “the latest episode in the gutting” of the country’s independent media.
There were reports of police raids on the offices of independent media outlets that observers believed were designed to punish or pressure the outlets. For example, on April 18, police raided the St. Petersburg office of the independent news website Rosbalt and seized several computers. According to the newspaper’s lawyer, the search was purportedly in connection with a libel allegation made by Usmanov, although the lawyer maintained that Rosbalt had not published anything about Usmanov. The newspaper’s editor noted that the computers seized were the ones used in a continuing investigation into a crime boss named Young Shakro. Police also searched the home of Rosbalt reporter Aleksandr Shvarev the same day.
There were reports of authorities using “tax inspections” that observers believed were intended to punish or pressure independent outlets. For example, on August 1, the editor of the independent media outlet Dozhd announced that it had received a notice of an unscheduled tax inspection, which she feared may have been in retaliation for the outlet’s extensive coverage of election-related protests in Moscow on July 27.
There were reports of attacks on journalists by unknown persons. On August 9, an unknown assailant in St. Petersburg attacked photojournalist Georgiy Markov, who specialized in photographing opposition protests. The assailant sprayed him with pepper spray and hit him on his head and chest. Law enforcement officials had detained Markov several times while he was photographing opposition protests, beating him at one in May.
There were reports of unidentified individuals or groups of individuals attacking the offices of independent media outlets. For example, on April 1, unknown persons ransacked the office of the newspaper Kommersant in Yekaterinburg, smashed the computers of the chief editor and accountant, took several hard drives, and left a message containing a death threat on the desk of the director of the newspaper. The journalists believed the attack was related to a book published with the participation of the newspaper’s staff about local criminal groups.
Journalists reported threats in connection with their reporting. For example, in late February a relative of Anatoliy Popov, the head of the Dobrovskiy region administration in Lipetsk oblast, threatened local journalist Dmitriy Pashinov over his critical reporting about Popov. On May 11, Pashinov was arrested and charged with “insulting a representative of the state” for allegedly cursing at a regional prosecutor in 2017, remarks Pashinov denied making.
There was no progress during the year in establishing accountability in a number of high-profile killings of journalists, including the 2004 killing of Paul Klebnikov, the 2006 killing of Anna Politkovskaya, and the 2009 killing of Natalia Estemirova.
Censorship or Content Restrictions: The government directly and indirectly censored media, much of which occurred online (also see section 2.a., Internet Freedom, and Academic Freedom and Cultural Events).
There were multiple reports that the government retaliated against those who produced or published content it disliked. For example, on September 24, Izvestiya published online but subsequently removed an article by military reporter Ilya Kramnik critical of Defense Minister Sergey Shoygu. Within two days the newspaper removed Kramnik from its editorial staff and informed him that his contract would not be renewed. The country’s charge d’affaires in Great Britain accused the Ministry of Defense press service of pressuring Izvestiya to fire Kramnik.
There were reports that the government placed restrictions on printing presses to prevent them from printing materials for the political opposition. For example, on August 7, press reports indicated that police in St. Petersburg had distributed notices to local printing presses, informing them that it is unacceptable to fulfill orders for materials that discredit the government or political figures, that offend a person’s honor and dignity, or that promote unsanctioned demonstrations during the pre-electoral period. The printing presses were instructed to turn over orders for any such materials to police.
On January 28, after allegedly receiving information that the business was about to print “extremist” material, police arrived at the St. Petersburg printing house where activist Mikhail Borisov worked. It later became known that Borisov had been preparing to print posters criticizing acting governor Aleksandr Beglov. Police seized four computers but did not detain Borisov since he had not yet printed the posters. The printing house later fired him from his job.
Self-censorship in independent media was also reportedly widespread. For example, on January 21, the Yaroslavl affiliate of the radio station Ekho Moskvy canceled a planned interview with LGBTI activists after receiving threats, including from local officials.
Libel/Slander Laws: Officials at all levels used their authority to restrict the work of and to retaliate against journalists and bloggers who criticized them, including taking legal action for alleged slander or libel, which are criminal offenses. For example, on March 23, the press reported that the head of the federal space agency Roscosmos, Dmitry Rogozin, had filed a libel complaint against two websites with the Prosecutor General’s Office, which referred the matter to the Ministry of Internal Affairs. The ministry opened a criminal libel investigation into the two websites, RusPress and Kompromat-Ural, which had alleged in late 2018 that Rogozin had used money from the Roscosmos budget to pay for public relations campaigns to burnish his personal reputation and had bribed the heads of media outlets to remove unfavorable coverage of him.
National Security: Authorities cited laws against terrorism or protecting national security to arrest or punish critics of the government or deter criticism of government policies or officials.
There were reports that authorities charged journalists with terrorism offenses in retaliation for their reporting. For example, on June 14, security services in Dagestan arrested Abdulmumin Gadzhiev, a journalist and head of the religious affairs section of the independent newspaper Chernovik, at his home. Chernovik had long reported threats, politically motivated prosecutions, and other pressure for its work uncovering corruption and wrongdoing by local officials. In 2012 the newspaper’s editor in chief fled the country after receiving death threats, and its founder was shot 14 times outside the newspaper’s office in 2011, a crime that remained unsolved. Authorities charged Gadzhiev and 10 codefendants with “taking part in the activities of a terrorist organization” and “organizing the financing of a terrorist organization” for purportedly diverting charitable donations to support the Islamic State in Syria. The charges carry up to a 20-year prison term. Human rights defenders emphasized that the charges were entirely based on a confession by a suspect who subsequently maintained that it was false and coerced, that Gadzhiev had written critically of the Islamic State, and that there were other contradictions in the state’s case, and they maintained that the case against him was fabricated. As of December Gadzhiev remained in detention awaiting trial after a court in Makhachkala extended his pretrial detention through January 13, 2020. Memorial declared him to be a political prisoner.
There were reports that critics of the government’s counterterrorism policies were themselves charged with “justifying terrorism.” On September 20, authorities charged Pskov-based Radio Free Europe/Radio Liberty (RFE/RL) contributor Svetlana Prokopyeva with “public justification of terrorism in the media.” She faced up to seven years in jail for comments she made on a local radio station in November 2018 about a suicide bombing at an FSB building in Arkhangelsk. Although she never voiced approval of the bomber’s actions, she suggested that the government’s restrictions on peaceful expressions of dissent may make individuals more likely to resort to violence. In July before these charges were brought, the Federal Financial Monitoring Service (Rosfinmonitoring) added Prokopyeva to its list of terrorists and extremists because of her comments, resulting in the freezing of her bank accounts and the seizure of her passport. According to press reports, in early October officials at the Pskov Investigative Committee summoned for interrogation several journalists and public figures who had spoken out in support of Prokopyeva and forced them to sign nondisclosure agreements about the contents of their conversation.
b. Freedoms of Peaceful Assembly and Association
The government restricted freedoms of peaceful assembly and association.
c. Freedom of Religion
See the Department of State’s International Religious Freedom Report at https://www.state.gov/religiousfreedomreport/.
d. Freedom of Movement
The law provides for freedom of internal movement, foreign travel, emigration, and repatriation, but in some cases authorities restricted these rights.
In-country Movement: Although the law gives citizens the right to choose their place of residence, adult citizens must carry government-issued internal passports while traveling domestically and must register with local authorities after arriving at a new location. To have their files transferred, persons with official refugee or asylum status must notify the Ministry of Internal Affairs in advance of relocating to a district other than the one that originally granted them status. Authorities often refused to provide government services to individuals without internal passports or proper registration, and many regional governments continued to restrict this right through residential registration rules.
Authorities imposed in-country travel restrictions on individuals facing prosecution for political purposes.
Foreign Travel: The law provides for freedom to travel abroad, but the government restricted this right for certain groups. The law stipulates, for example, that a person who violates a court decision does not have a right to leave the country. A court may also prohibit a person from leaving the country for failure to satisfy debts; if the individual is suspected, accused, or convicted of a crime; or if the individual had access to classified material. The law allows for the temporary restriction of the right to leave the country for citizens with outstanding debts. According to press reports citing statistics from the Federal Bailiff Service, approximately 3.5 million citizens are unable to leave the country because of debts.
Since 2014 the government restricted the foreign travel of millions of its employees, prescribing which countries they are and are not allowed to visit. The restriction applies to employees of agencies including the Prosecutor General’s Office, the Ministry of Internal Affairs, the Ministry of Defense, the Federal Prison Service, the Federal Drug Control Service, the Federal Bailiff Service, the General Administration for Migration Issues (GAMI), and the Ministry of Emergency Situations. On June 4, the Supreme Court upheld this policy.
Citizenship: There were reports that the government revoked citizenship on an arbitrary basis. For example, according to human rights groups, on January 29, Sverdlovsk region authorities canceled a 2005 decision to grant citizenship to Blagoveshchensk resident Evgeniy Kim, rendering him stateless since he had given up his Uzbek citizenship earlier. Kim was serving a 3-year, 9-month prison sentence for “extremism” for studying the works of Turkish Muslim theologian Said Nursi and was considered by Memorial to be a political prisoner. Upon his release from prison on April 10, Kim was notified that he was present in the country in violation of migration law. As of September he was held in a migration detention center awaiting deportation to Uzbekistan, the country of his birth, although Uzbek authorities refused to accept him since he no longer held citizenship there.
f. Protection of Refugees
Abuse of Migrants, Refugees, and Stateless Persons: NGOs reported that police detained, fined, and threatened with deportation migrants, refugees, and stateless persons. NGOs also reported racially motivated assaults by civilians.
UNHCR reported it had a working relationship with the government on asylum and refugee problems.
NGOs reported, however, that the government failed to provide protection and assistance to IDPs, refugees, returning refugees, asylum seekers, stateless persons, or other persons of concern. The government considered Ukrainian asylum seekers to be separate from asylum seekers from other countries, such as Afghanistan, Georgia, Syria, and Yemen. In some cases temporary asylum holders who received refugee status from third countries were not granted exit visas or allowed to depart the country.
Refoulement: The concept of nonrefoulement is not explicitly stated within the law. The government provided some protection against the expulsion or return of persons to countries where their lives or freedom would be threatened on account of their race, religion, nationality, membership in a particular social group, or political opinion. The responsible agency, the GAMI, did not maintain a presence at airports or other border points and did not adequately publicize that asylum seekers may request access to the agency. Asylum seekers had to rely on the goodwill of border guards and airline personnel to call immigration officials. Otherwise, they faced immediate deportation to neighboring countries or return to their countries of origin, including in some cases to countries where they may have had a reasonable ground to fear persecution. There were no statistics available on the number of persons subjected to such actions.
Human rights groups continued to allege that authorities made improper use of international agreements that permit them to detain, and possibly repatriate, persons with outstanding arrest warrants from other former Soviet states. This system, enforced by informal ties between senior law enforcement officials of the countries concerned, permitted authorities to detain individuals for up to one month while the Prosecutor General’s Office investigated the nature of the warrants. International organizations reported six cases of refoulement of asylum seekers in 2018, and NGOs cited cases in which officials detained persons (most commonly from Central Asia) and returned them clandestinely to their country of origin. UNHCR reported several cases of refoulement during the year but could not provide data on its extent.
In one example of clandestine detention and repatriation, on February 14, officials arbitrarily detained and forcibly returned to Tajikistan opposition activist Sharofiddin Gadoyev, who had been living as a refugee in the Netherlands since 2015. He traveled to Moscow to attend a conference but claimed authorities acting at the behest of the Tajik government detained him and put him on a plane to Dushanbe. According to Human Rights Watch, Tajik security services were present at his detention, and during the flight they put a bag over his head and beat him. After two weeks in Tajikistan, authorities released Gadoyev and allowed him to return to the Netherlands after the intervention of European governments and human rights activists.
Access to Asylum: The law provides for the granting of asylum or refugee status, and the government has established a system for providing protection to refugees. NGOs reported applicants commonly paid informal “facilitation fees” of approximately 33,000 rubles ($520) to GAMI adjudicators to have their application reviewed. Applicants who did not speak Russian often had to pay for a private interpreter. Human rights organizations noted that nearly all newly arrived refugees and temporary asylum seekers in large cities, particularly Moscow and St. Petersburg, were forced to apply in other regions, allegedly due to full quotas. Except for Ukrainians, GAMI approved a small percentage of applications for refugee status and temporary asylum.
Human rights organizations noted the country’s tendency during the year not to accept more Ukrainian and Syrian applicants for refugee status and temporary asylum. NGOs also reported that authorities encouraged applicants to return to their countries of origin. Authorities reportedly also had blanket authority to grant temporary asylum to Syrians, but local migration experts noted a decrease in the number of Syrians afforded temporary asylum, suggesting that GAMI had not renewed the temporary asylum of hundreds of Syrians and, in some cases, encouraged applicants to return to Syria.
Employment: Employers frequently refused to hire applicants who lacked residential registration. UNHCR reported that employers frequently were not familiar with laws permitting employment for refugees without work permits and refused to hire them.
Access to Basic Services: By law successful temporary asylum seekers and persons whose applications were being processed have the right to work, to receive medical care, and to attend school. NGOs reported authorities provided some services to Ukrainian asylum seekers, but there were instances in which applicants from other countries were denied the same service, including access to medical care and food banks.
While federal law provides for education for all children, regional authorities occasionally denied access to schools to children of temporary asylum and refugee applicants who lacked residential registration. The NGO Civic Action Committee reported that approximately a third of the children of refugees were enrolled in schools. When parents encountered difficulties enrolling their children in school, authorities generally cooperated with UNHCR to resolve the problem.
Temporary Protection: The government also provided temporary protection in the form of temporary asylum to individuals who may not qualify as refugees and provided it to approximately 6,000 persons during the year. A person who did not satisfy the criteria for refugee status, but who for humanitarian reasons could not be expelled or deported, may receive temporary asylum after submitting a separate application. There were reports, however, of authorities not upholding the principle of temporary protection.
Section 3. Freedom to Participate in the Political Process
While the law provides citizens the ability to choose their government in free and fair periodic elections held by secret ballot and based on universal and equal suffrage, citizens could not fully do so because the government limited the ability of opposition parties to organize, to register candidates for public office, to access media outlets, and to conduct political campaigns.
Section 5. Governmental Attitude Regarding International and Nongovernmental Investigation of Alleged Abuses of Human Rights
A variety of domestic and international human rights groups generally operated in the country, investigating and publishing their findings on human rights cases. Government officials were rarely cooperative or responsive to their concerns. Official harassment of independent NGOs continued and in many instances intensified, particularly of groups that focused on election monitoring, exposing corruption, and addressing human rights abuses. NGO activities and international humanitarian assistance in the North Caucasus were severely restricted. Some officials, including the ombudsman for human rights, regional ombudsman representatives, and Mikhail Fedotov, who was the chair of the Presidential Human Rights Council until late October, regularly interacted and cooperated with NGOs.
Authorities continued to use a variety of laws to harass, stigmatize, and in some cases halt the operation of domestic and foreign human rights NGOs (see section 2.b., Freedom of Association).
Officials often displayed hostility towards the activities of human rights organizations and suggested that their work was unpatriotic and detrimental to national security. For example, on May 15, the head of the Federal Prison Service, Gennadiy Kornienko, called human rights defenders who brought cases to the ECHR that involved abuses taking place in prisons “odious persons.”
Authorities continued to apply a number of indirect tactics to suppress or close domestic NGOs, including the application of various laws and harassment in the form of prosecution, investigations, fines, and raids (see sections 1.e. and 2.b.).
Authorities generally refused to cooperate with NGOs that were critical of their activities or listed as a foreign agent. International human rights NGOs had almost no presence east of the Ural Mountains. A few local NGOs addressed human rights problems in these regions but often chose not to work on politically sensitive topics to avoid retaliation by local authorities.
The United Nations or Other International Bodies: Authorities refused to cooperate with the OSCE Moscow Mechanism rapporteur investigating human rights abuses in the Republic of Chechnya in 2018 and did not permit him to visit the country.
Government Human Rights Bodies: Some government institutions continued to promote human rights and intervened in selected abuse complaints, despite widespread doubt as to these institutions’ effectiveness.
Many observers did not consider the 126-member Civic Chamber, composed of government-appointed members from civil society organizations, to be an effective check on the government.
The Presidential Council for Civil Society and Human Rights (HRC) is an advisory body to the president tasked with monitoring systemic problems in legislation and individual human rights cases, developing proposals to submit to the president and government, and monitoring their implementation. The president selects some council members by decree, and not all members operated independently. On October 21, President Putin overhauled the HRC, replacing its head, Mikhail Fedotov, with Valeriy Fadeyev, a senior member of the ruling United Russia party. Officially, Fedotov was dismissed because he had turned 70, the age limit for service in the government. President Putin could have issued a waiver that would have allowed him to stay on, leading human rights activists to speculate that authorities wanted an HRC head who would be more loyal to the president and less critical of restrictions on political freedoms. Some members of the HRC who were well-respected human rights defenders were also dismissed at the same time as Fedotov, compounding observers’ concerns.
Human rights ombudsperson Tatyana Moskalkova was viewed as a figure with very limited autonomy. The country had regional ombudsmen in all its regions with responsibilities similar to Moskalkova’s. Their effectiveness varied significantly, and local authorities often undermined their independence.
Section 6. Discrimination, Societal Abuses, and Trafficking in Persons
Section 7. Worker Rights
a. Freedom of Association and the Right to Collective Bargaining
The law provides that workers may form and join independent unions, bargain collectively, and conduct legal strikes. The law prohibits antiunion discrimination, but it does not require employers to reinstate workers fired due to their union activity. The law prohibits reprisals against striking workers. Unions must register with the Federal Registration Service, often a cumbersome process that includes lengthy delays and convoluted bureaucracy. The grounds on which trade union registration may be denied are not defined and can be arbitrary or unjustified. Active members of the military, civil servants, customs workers, judges, prosecutors, and persons working under civil contracts are excluded from the right to organize. The law requires labor unions to be independent of government bodies, employers, political parties, and NGOs.
The law places several restrictions on the right to bargain collectively. For example, only one collective bargaining agreement is permitted per enterprise, and only a union or group of unions representing at least one-half the workforce may bargain collectively. The law allows workers to elect representatives if there is no union. The law does not specify who has authority to bargain collectively when there is no trade union in an enterprise.
The law prohibits strikes in the military and emergency response services. It also prohibits strikes in essential public-service sectors, including utilities and transportation, and strikes that would threaten the country’s defense, safety, and the life and health of its workers. The law also prohibits some nonessential public servants from striking and imposes compulsory arbitration for railroad, postal, and municipal workers as well as other public servants in roles other than law enforcement.
Laws regulating workers’ strikes remained extremely restrictive, making it difficult to declare a strike but easy for authorities to rule a strike illegal and punish the workers. It was also very difficult for those without a labor contract to go on a legal strike. For example, in October 2018, 99 gold miners in Kamchatka walked off their jobs at Zoloto Kamchatki to protest their poor working conditions and low pay. According to media reports, the governor urged the miners not to speak to journalists, while other miners reported threats from police. After a few weeks, the company agreed to raise salaries but fired 54 of the 99 strikers. The company also initiated a lawsuit to declare the strike illegal. The Federation of Independent Trade Unions of Russia noted that they were unable to do anything since the miners were not unionized.
Union members must follow extensive legal requirements and engage in consultations with employers before acquiring the right to strike. Solidarity strikes and strikes on matters related to state policies are illegal, as are strikes that do not respect the onerous time limits, procedures, and requirements mandated by law. Employers may hire workers to replace strikers. Workers must give prior notice of the following aspects of a proposed strike: a list of the differences of opinion between the parties that triggered the strike; the date and time at which the strike was intended to start, its duration, and the number of anticipated participants; the name of the body that is leading the strike and the representatives authorized to participate in the conciliation procedures; and proposals for the minimum service to be provided during the strike. In the event a declared strike is ruled illegal and takes place, courts may confiscate union property to cover employers’ losses.
The Federal Labor and Employment Service (RosTrud) regulates employer compliance with labor law and is responsible for “controlling and supervising compliance with labor laws and other legal acts which deal with labor norms” by employers. Several state agencies, including the Ministry of Justice, the Prosecutor’s Office, RosTrud, and the Ministry of Internal Affairs, are responsible for enforcing the law. These agencies, however, frequently failed to enforce the law, and violations of freedom of association and collective bargaining provisions were common. Penalties were not sufficient to deter violations.
Employers frequently engaged in reprisals against workers for independent union activity, including threatening to assign them to night shifts, denying benefits, and blacklisting or firing them. Although unions were occasionally successful in court, in most cases managers who engaged in antiunion activities did not face penalties.
For example, in March and April, the medical workers’ union in Anzhero-Sudzhensk led a series of strikes, including a hunger strike by nurses, to protest layoffs and staff transfers. Authorities publicly criticized the striking personnel, with Kemerovo governor Sergey Tsiliyev accusing them of “discrediting the honor of the region.” After the first picket on March 11, police ordered the interrogation of all participants. On April 11, the city’s mayor demanded that nurses give up their union membership.
b. Prohibition of Forced or Compulsory Labor
The law prohibits most forms of forced or compulsory labor but allows for it as a penal sentence, in some cases as prison labor contracted to private enterprises.
The government was generally effective in enforcing laws against forced labor, but gaps remained in protecting migrant laborers, particularly from North Korea who generally earned 40 percent less than the average salary. Migrant forced labor occurred in the construction and service industries, logging industry (timber), textile shops, brick making, and the agricultural sector (see section 7.c.). Migrant workers at times experienced exploitative labor conditions characteristic of trafficking cases, such as withholding of identity documents, nonpayment for services rendered, physical abuse, and extremely poor living conditions.
Under a state-to-state agreement in effect since 2009, North Korean citizens worked in the country in a variety of sectors, including the logging and construction industries in the Far East. In order to comply with the 2017 UN international sanctions prohibiting the employment of North Koreans, the country reduced the number of North Korean laborers who work in the country legally. According to the Foreign Ministry, as of September approximately 4,000 North Koreans were employed in the country legally, a significant drop from 40,000 in 2017. Although the government announced that it intended to return all North Korean workers to their country by December 22, a significant number of North Korean nationals continued to travel to and reside in Russia under student and tourist visas, especially in the Far East.
Authorities failed to screen departing North Korean workers for human trafficking and indications of forced labor.
There were reports of forced labor in the production of bricks and sawmills, primarily in Dagestan. Both men and women were exploited for forced labor in these industries in the Northern Caucasus region; however, victims were primarily male job seekers recruited in Moscow. Media outlet Coda also reported on forced labor in illegal sheep farms in the Stavropol region.
Also see the Department of State’s Trafficking in Persons Report at https://www.state.gov/trafficking-in-persons-report/ and the Department of Labor’s List of Goods Produced by Child Labor or Forced Labor at .
c. Prohibition of Child Labor and Minimum Age for Employment
The law prohibits the employment of children younger than age 16 in most cases and regulates the working conditions of children younger than 18. The law permits children to work at age 14 under certain conditions and with the approval of a parent or guardian. Such work must not threaten the child’s health or welfare. The law lists occupations restricted for children younger than age 18, including work in unhealthy or dangerous conditions, underground work, or jobs that might endanger a child’s health and moral development.
Child labor was uncommon, but it could occur in the informal service, construction, and retail sectors. Some children, both Russian and foreign, were subjected to commercial sexual exploitation and forced participation in the production of pornography (see section 6, Children).
d. Discrimination with Respect to Employment and Occupation
The law does not prohibit discrimination based on sexual orientation, HIV status, gender identity, or disability. Although the country placed a general ban on discrimination, the government did not effectively enforce the law.
Discrimination based on gender in compensation, professional training, hiring, and dismissal was common. Employers often preferred to hire men to save on maternity and child-care costs and to avoid the perceived unreliability associated with women with small children. Such discrimination was often very difficult to prove.
The law prohibits employer discrimination in posting job vacancy information. It also prohibits employers from requesting workers with specific gender, race, nationality, address registration, age, and other factors unrelated to personal skills and competencies. Notwithstanding the law, vacancy announcements sometimes specified gender and age requirements, and some also specified a desired physical appearance.
According to the Center for Social and Labor Rights, courts often ruled in favor of employees filing complaints, but the sums awarded were often seen as not worth the cost and time to take a legal action. In an uncommon case, on September 9, an entrepreneur who refused to hire a 49-year-old woman in Volgograd because of her age was fined up to 100,000 rubles ($1,570). The court ruled that the entrepreneur represented a legal entity, instead of an individual, which stipulated the relatively large fine.
The law restricts women’s employment in jobs with “harmful or dangerous conditions or work underground, except in nonphysical jobs or sanitary and consumer services,” and forbids women’s employment in “manual handling of bulk weights that exceed the limits set for their handling.”
The law includes hundreds of tasks prohibited for women and includes restrictions on women’s employment in mining, manufacturing, and construction. Women were banned from 456 jobs during the year. According to the Ministry of Labor, women on average earned 28.3 percent less than men in 2017.
The law requires applicants to undergo mandatory medical screenings when entering into a labor agreement or when enrolling at educational institutions. The medical commission may restrict or prohibit access to jobs and secondary or higher education if it finds signs of physical or mental problems. Persons with disabilities were subjected to employment discrimination. Companies with 35 to 100 employees have an employment quota of 1 to 3 percent for persons with disabilities, while those with more than 100 employees have a 2 to 4 percent quota. An NGO noted that some companies kept persons with disabilities on the payroll in order to fulfill the quotas but did not actually provide employment for them. Inadequate workplace access for persons with disabilities also limited their work opportunities.
Many migrants regularly faced discrimination and hazardous or exploitative working conditions. Union organizers faced employment discrimination, limits on workplace access, and pressure to give up their union membership.
Employment discrimination based on sexual orientation and gender identity was a problem, especially in the public sector and education. Employers fired LGBTI persons for their sexual orientation, gender identity, or public activism in support of LGBTI rights. Primary and secondary school teachers were often the targets of such pressure due to the law on “propaganda of nontraditional sexual orientation” targeted at minors (see section 6, Acts of Violence, Discrimination, and Other Abuses Based on Sexual Orientation and Gender Identity). On April 9, a St. Petersburg court ruled that a printing house illegally fired Anna Grigoryeva, a transgender woman who had worked there for years as a man. This was the first time that a court ruled in favor of a person fired for their transgender identity.
Persons with HIV/AIDS were prohibited from working in some areas of medical research and medicine. For example, the Ministry of Transport prohibited HIV-positive persons from working as aviation dispatchers until the Supreme Court lifted the ban on September 10.
In September 2018 as part of broader pension reform, amendments to criminal law were adopted to establish criminal liability for employers who dismiss workers due to approaching pension age.
e. Acceptable Conditions of Work
The monthly minimum wage increased to the official “subsistence” level on January 1. Some local governments enacted minimum wage rates higher than the national rate.
Nonpayment of wages is a criminal offense and is punishable by fines, compulsory labor, or imprisonment. Federal law provides for administrative fines of employers who fail to pay salaries and sets progressive compensation scales for workers affected by wage arrears. The government did not effectively enforce the law, and nonpayment or late payment of wages remained widespread. According to Rosstat, as of September 1, wage arrears amounted to approximately 2.6 billion rubles ($40.8 million). As of September 17, the State Unitary Enterprise Chuvashavtotrans had a debt of 39.8 million rubles ($625,000) for 707 employees, one of the largest wage arrears for a single organization.
The law provides for standard workhours, overtime, and annual leave. The standard workweek may not exceed 40 hours. Employers may not request overtime work from pregnant women, workers younger than age 18, and other categories of employees specified by federal law. Standard annual paid leave is 28 calendar days. Employees who perform work involving harmful or dangerous labor conditions and employees in the Far North regions receive additional annual paid leave. Organizations have discretion to grant additional leave to employees.
The law stipulates that payment for overtime must be at least 150 percent for the first two hours and not less than 200 percent after that. At an employee’s request, overtime may be compensated by additional holiday leave. Overtime work may not exceed four hours in a two-day period or 120 hours in a year for each employee.
The law establishes minimum conditions for workplace safety and worker health, but it does not explicitly allow workers to remove themselves from hazardous workplaces without threat to their employment. The law entitles foreigners working to the same rights and protections as citizens.
Occupational safety and health standards were appropriate within the main industries. Government inspectors are responsible for enforcement and generally applied the law in the formal sector. Serious breaches of occupational safety and health provisions are criminal offenses. Experts generally pointed to prevention of these offenses, rather than adequacy of available punishment, as the main challenge to protection of worker rights. The number of labor inspectors was insufficient to enforce the law in all sectors. RosTrud, the agency that enforces the provisions, noted that state labor inspectors needed additional professional training and additional inspectors to enforce consistent compliance.
At the end of 2018, an estimated 14 million persons were informally employed. Employment in the informal sector was concentrated in the southern regions. The largest share of laborers in the informal economy was concentrated in the trade, construction, and agricultural sectors, where workers were more vulnerable to exploitative working conditions. Labor migrants worked in low-quality jobs in construction but also in housing, utilities, agriculture, and retail trade sectors, often informally. Labor law and protections apply to workers in the informal sector.
No national-level information was available on the number of workplace accidents or fatalities during the year. According to Rosstat, in 2018 approximately 25,400 workers were injured in industrial accidents, including 1,140 deaths.