DEFENSE MINISTER'S OFFER OF RESIGNATION FUELS

C O N F I D E N T I A L SECTION 01 OF 02 MOSCOW 004628 SIPDIS SIPDIS E.O. 12958: DECL: 09/19/2017 TAGS: PGOV PREL MARR PINR RS SUBJECT: DEFENSE MINISTER'S OFFER OF RESIGNATION FUELS DEBATE OVER PUTIN'S INTENTIONS REF: MOSCOW 4483 Classified By: Ambassador William J. Burns. Reasons 1.4(b)(d) ¶1. (C) Summary. Acting Minister of Defense Anatoly Serdyukov tendered his resignation late September 18 due to his relationship to new Prime Minister Viktor Zubkov, who is his father-in law. Many question whether Putin will accept Serdyukov's resignation, noting that he had just begun his efforts to clean up the Defense Ministry and transform it into a civilian-led, post-Soviet, modern entity. Most experts expect Putin to appoint another civilian as Serdyukov's replacement, if he does go. Serdyukov's resignation is viewed through the succession prism, but observers differ over whether First Deputy Prime Minister Ivanov is the winner or the loser. The one thing everyone agreed on, however, is that Putin is driving the process. The MFA informally told us that this decision should not affect the timing or make-up of the 2 2 conference in October, even hinting that the MOD does not expect Serdyukov to leave his position. More Cabinet reshuffling is expected by September 21, particularly among the economic ministries. End Summary. -------------- No Nepotism Permitted -------------- ¶2. (C) Zubkov announced Serdyukov's resignation following a meeting with Putin in Sochi late September 18. Sergey Ryakhovskiy of the Public Chamber told us that Serdyukov had told him prior to the announcement that he expected to be asked to resign because he is married to Zubkov's daughter. According to news reports citing Russian law, an official cannot remain in a job if he is directly subordinate to or controlled by a family member, including the parent of a spouse. Alexander Belkin, Deputy Director of the Council on Foreign and Defense Policy, told us this was the ethically correct action to take, given the relationship, and noted that it would set an example that nepotism would not be accepted. -------------- But Will Serdyukov Really Go? -------------- ¶3. (C) All the experts said they found the resignation surprising and unexpected. Aleksey Venediktov, Editor-in-chief of Ekho Moskvy told us he believed that either Putin would not accept Serdyukov's resignation, or he would name him to take over the Security Council. Well-connected business and political party leaders echoed this analysis, arguing that this could be a gesture showing that the nepotism question had been taken into consideration, but that continuity in the MOD reform process was more important than family considerations. Defense analyst Aleksandr Golts of the Weekly Journal noted that Putin had supported Serdyukov's reform efforts, but that Serdyukov had few friends in the armed forces. Golts speculated it was possible Serdyukov was a victim of bureaucratic fights within the Ministry. -------------- Succession and the Kremlin Power Struggle? -------------- ¶4. (C) Ivan Safranchuk, Director of the World Security Institute, was amongst those who argued that since Serdyukov belonged to the group that opposed former Defense and First Deputy Prime Minister Sergey Ivanov, he believed the resignation was an element of a larger struggle within the Kremlin between Ivanov's supporters and those who opposed him. He noted, however, that Serdyukov had not been able to fire some of the people he wished to and may have felt he was not getting adequate support from the Kremlin for his reforms. Yabloko party chief Grigoriy Yavlinsky echoed the latter point, saying Serdyukov may have been promoted beyond his competency and feeling uncomfortable with his role as Defense Minister, may have viewed the nepotism issue as an easy way out. ¶5. (C) A prominent oligarch told the Ambassador that he believed the removal of Serdyukov was a further sign that PM Zubkov may be staying around longer than expected, since few would expect a Defense Ministry reshuffle for a caretaker Prime Minister. The perception among the elite, according to the oligarch, was that the appointment of Zubkov and developments with Serdyukov were a set-back for Ivanov, MOSCOW 00004628 002 OF 002 reflecting Putin's broader dissatisfaction (expressed during his visit to Kamchatka) over the perceived failure of officials to follow through on projects. ¶6. (C) As was the case with the Zubkov appointment, most observers here emphasize that they are reading the tea leaves. One oligarch noted that even Presidential Deputy Chief of Staff Surkov had called him to ask for information on possible government changes, reflecting the fact that Putin alone was calling the shots. The oligarch pointed to Presidential Deputy Chief of Staff Sechin's role in fanning rumors that proved to be false of Zubkov's appointment to the Federation Council as additional evidence that no one was in the know. -------------- Defense Reforms Barely Started -------------- ¶7. (C) In defense terms, experts told us the most important facet of Serdyukov's potential resignation was the fact that he had just begun needed reforms and personnel changes within the Ministry. Pavel Felgenhauer, Defense analyst for Novaya Gazeta, emphasized that Serdyukov was appointed seven months ago to root out graft and corruption within the Ministry. According to Felgenhauer, the recent dismissals of senior military officials, including Air Force Chief Vladimir Mikhailov, and his Deputy Boris Cheltsov, Navy Chief Vladimir Masorin, and Deputy Defense Minister Alexander Belousov, were part of Serdyukov's mission to clean up the Ministry. Part of Serdyukov's success, Golts said, was seen in the resistance of senior officials in the Ministry, who did not appreciate efforts to establish control over their activities. Belkin said that Serdyukov was trying to restructure the old Soviet Ministry into something capable of dealing with the myriad problems in the military, and it was unfortunate that he may not be given the chance to finish. -------------- Successor Unknown; No Change to 2 2 -------------- ¶8. (C) While many questioned whether Putin would accept Serdyukov's resignation, few would hazard a guess on a likely successor, which was a Putin call. ¶9. (C) In response to our question, the MFA informally said they do not expect Serdyukov's resignation to derail the 2 2 meeting scheduled for mid-October. The MOD informed the MFA that Serdyukov would likely participate in the 2 2 talks, hinting that Serdyukov could stay in his position for the foreseeable future. -------------- Comment -------------- 10 (C) The Serdyukov resignation, while putatively driven by legal necessity, has kept the elite off-balance. Speculation over other Cabinet changes continues to focus on the economic ministries, with Minister of Economic Trade and Development Gref widely viewed as a likely target. Zubkov has until Friday, September 21, to finalize his government and bring a welcome end to the feverish speculation that consumes Kremlin watchers here. Burns