Ukraine Project

Russian President Vladimir Putin approved a new Russian Foreign Policy Concept on March 31 that likely aims to support the Kremlin’s attempts to promote a potential anti-Western coalition. The new Foreign Policy Concept paints the West as an anti-Russian and internationally destabilizing force to a far greater extent than Russia’s previous 2016 Foreign Policy Concept and explicitly states that the US and its “satellites” have unleashed a hybrid war aimed at weakening Russia. The new document also heavily stresses Russia's goal of creating a multipolar world order and subordinates under that goal Russia’s broad foreign policy objectives, which include ending the United States’ supposed dominance in world affairs. The document asserts that most of humanity is interested in constructive relations with Russia and that a desired multi-polar world will give opportunities to non-Western world powers and regional leading countries. Putin previously used meetings with Chinese President Xi Jinping on March 20 through 22 to increase attempts to rhetorically rally the rest of the world against the West, and the new document likely aims to support the Kremlin’s attempts to intensify proposals to non-aligned countries to form a more coherent anti-Western bloc. ISW assessed that Putin’s proposal to form an anti-Western bloc during Xi’s visit to Moscow was not positively received as Xi refused to align China with Putin’s envisioned geopolitical conflict with the West. Russia’s declining economic power and degraded military effort in Ukraine continue to offer little incentive to countries to express serious interest in the proposal. The Kremlin likely decided to release the new Foreign Policy Concept on the eve of assuming the presidency of the United Nations Security Council (UNSC) in order to set informational conditions for future rhetorical efforts at the UN aimed at forming an anti-Western coalition. ISW previously assessed that Russia will likely weaponize its presidency of the UNSC as a method of Russian power projection.

Russian President Vladimir Putin signed a decree on March 30 authorizing Russia’s semiannual spring conscription which will induct 147,000 Russians between April 1 and July 15. Russia conducts two conscription cycles per year with the spring conscription cycle usually conscripting 134,000 Russian men. Russia may use Belarus’ training capacity to support the increase of 13,000 conscripts from previous years. A Ukrainian military official reported on March 4 that Russian personnel training in Belarus do not exceed 9,000 to 10,000 at a time, and ISW previously observed Russian forces training up to 12,000 troops in Belarus. Satellite imagery indicates that Russian forces training in Belarus at the Obuz-Lesnovsky Training Ground recently redeployed to Russia in mid-March, freeing up space for new Russian trainees. The new conscripts will not increase Russian combat power in the short term, as Russian conscripts must undergo months of training and service before they see combat.

Iranian Foreign Affairs Minister Hossein Amir Abdollahian met with Russian Foreign Minister Sergei Lavrov in Moscow on March 29 to review strategic and long-term cooperation agreements that will likely intensify Russia and Iran’s bilateral security relationship. Abdollahian stated that Russian and Iranian officials are in the final stage of signing a cooperation agreement. Lavrov promoted Iran’s “Hormoz Peace Plan” for security in the Persian Gulf and the Gulf of Oman and stated that the Kremlin demands an immediate return to the Joint Comprehensive Plan of Action (JCPOA). Abdollahian and Lavrov likely discussed continued Russian efforts to procure Iranian weapon systems for use in Ukraine and a finalized agreement for Russia to provide Iran with Su-35 attack aircraft. The Ukrainian Resistance Center reported on March 29 that Iranian Pouya Air Transport resumed regular flights between Tehran and Moscow on March 13 likely to support weapons transfers. The Ukrainian Resistance Center also reported that Iranian officials are planning to deliver Shahed-131 drones to Wagner Group personnel and that Wagner personnel have started training to operate the drones, although ISW has not observed confirmation that Wagner Group personnel have used Iranian-made drones in Ukraine. ISW previously assessed that Russia is relying on Iran for military and technological support in Ukraine and that some Iranian personnel are likely in Ukraine directly supporting Russian attacks on Ukrainian infrastructure. Iran is likely attempting to solidify a bilateral security relationship with Russia in which the two are more equal partners and will likely increase weapons transfers to Russia in pursuit of this goal.

Wagner Group forces have likely taken the AZOM industrial complex in northern Bakhmut and continue to make gains within the city. Russian milbloggers widely claimed on March 28 that Wagner fighters have captured the AZOM complex and are working to clear the area of remaining Ukrainian forces. These claims are relatively consistent with available visual evidence of Russian presence in the AZOM complex. Geolocated footage posted on March 26 shows a military correspondent from Russian outlet RIA Novosti moving around the territory of the complex with apparent ease, indicating that Wagner likely controls enough of the plant to host media personalities in relative safety. RIA Novosti correspondent Sergei Shilov additionally visited AZOM on March 28 and indicated that fighting has now moved to the industrial zone south of AZOM. Several Russian milbloggers also claimed on March 28 that Wagner fighters have advanced closer to Bakhmut’s city center, taken control of the city market, and reached the Palace of Culture. These claims are plausible considering geolocated visual evidence of Wagner’s advances towards the city center posted on March 28, as well as combat footage of Ukrainian infantry engaging in small arms exchanges with Russian forces near the Palace of Culture and central market area in Bakhmut city’s center. Wagner is likely working to consolidate gains in northern and central Bakhmut to push towards the city center and expand its zone of control into western Bakhmut. ISW assesses that Russian forces have advanced into an additional five percent of Bakhmut in the last seven days and that they currently occupy roughly 65 percent of the city.

Rumors about the dismissal of Russian Eastern Group of Forces (Eastern Military District) Commander Colonel General Rustam Muradov on March 27 generated a muted and cynical response in the Russian information space. The milbloggers claimed that Russian military authorities dismissed Muradov from his position as Eastern Group of Forces commander, but ISW cannot currently verify these claims. Muradov took command of the Russian Eastern Military District (EMD) on October 6, 2022, and has overseen a series of disastrous offensive operations led by EMD elements in western Donetsk Oblast over the past five months. One milblogger claimed that Muradov is on “vacation,” which the milblogger noted is tantamount to resignation. Others claimed that Muradov’s removal is a positive step but stated that Muradov’s replacement is more important than his removal. Some milbloggers noted that Muradov was responsible for significant Russian military failures in western Donetsk Oblast, including the high casualties suffered in the assault against Pavlivka in October-November 2022 and the prolonged and failed effort to take Vuhledar. Independent Russian investigative outlet Vazhnye Istorii (iStories), citing sources close to the Russian General Staff, reported that the Russian General Staff accused Muradov of being inept due to battlefield failures and significant losses in western Donetsk Oblast, including the near obliteration of the Tatarstan ”Alga” volunteer battalion. One prominent milblogger claimed that military authorities are also considering dismissing Western Military District Commander Colonel General Yevgeny Nikiforov, whose forces operate along the Kupyansk-Svatove-Kreminna line in eastern Ukraine.

ISW is publishing an abbreviated campaign update today, March 26. This report discusses Russian President Vladimir Putin’s continued efforts to seek complete victory in Ukraine, which he appears confident that he can attain over time. Putin seems to reject the idea increasingly prevalent in Western discourse that the current military realities require or support a negotiated resolution of the conflict. Neither Ukraine nor the West has persuaded him that he must consider accepting any sort of off-ramp or compromise settlement. Putin instead remains focused on achieving his initial war aims through protracted conflict in which he wins either by imposing his will on Ukraine by force or by breaking Ukraine’s will following the West’s abandonment of Kyiv. Multiple successful Ukrainian counter-offensives are almost certainly necessary but not sufficient either to persuade Putin to negotiate on acceptable terms or to create military conditions on the ground favorable enough to Ukraine and the West that continued or renewed Russian attacks pose acceptable threats to Ukraine or NATO.

Russian President Vladimir Putin launched the predictable next information operation to discourage Ukrainian resistance and disrupt Western support for Ukraine as Russian offensives culminate and Ukraine prepares to launch counter-offensives in an interview with a state-owned Russian news channel on March 25.

Putin claimed that the West cannot sustain weapons provisions to Ukraine and exaggerated Russia’s potential to mobilize its own defense industrial base (DIB) to create the false impression that further Ukrainian resistance and Western support to Ukraine is futile. Putin claimed that Ukrainian forces expend up to 5,000 shells a day, while the United States produces an average of 14,000–15,000 shells a month. Putin alleged that planned Western defense production increases will not match Russian planned increases. Putin announced that Russia will build over 1,600 new tanks by the end of 2023 and that Russia will have more than three times the number of tanks as Ukraine at that time. Putin likely seized the opportunity to advance this narrative based on The Financial Times’s March 19 report that European arms manufacturers are “hobbled” by an explosives shortage. Putin argued that continued Western weapons provisions to Ukraine are merely an attempt to prolong the war.

Prominent voices in the Russian information space are increasingly setting information conditions to prepare for a potential Ukrainian counteroffensive. Russian Security Council Deputy Head Dmitry Medvedev emphasized on March 24 that the Russian General Staff is aware that Kyiv is preparing for offensive operations and that the Russian General Staff is considering its own decisions and responses to prepare for a Ukrainian offensive. A prominent Russian milblogger claimed that Ukrainian actors are disseminating disinformation about plans for a Ukrainian attack towards Belgorod Oblast, in order to draw Russian troops to border areas and allow Ukrainian troops to launch attacks on other sectors of the front, partially echoing Wagner Group financier Yevgeny Prigozhin’s prior warnings about a Ukrainian push on Belgorod Oblast. Another Russian milblogger warned that Ukrainian forces will likely try to launch a counteroffensive before the Russian defense industrial base (DIB) gains the capacity to increase production and bolster Russian defensive potential. Wagner Group financier Yevgeny Prigozhin similarly claimed on March 23 that he knows of plans for an extensive Ukrainian counteroffensive, as ISW previously reported. The wider Russian spring offensive appears to be culminating, and the Russian information space appears to be responding to the slow-down of Russian operations and potential for Ukraine to regain the initiative with substantial anxiety. Russian military command will need to commit a significant number of forces to the frontline to either prevent culmination or launch renewed offensive operations, and it is unlikely that such forces exist at sufficient scale to do either.

Wagner Group financier Yevgeny Prigozhin has softened his rhetoric towards the Russian Ministry of Defense (MoD) likely out of fear of completely losing his mercenary force in Bakhmut. Prigozhin emphasized his concerns about a possible Ukrainian counteroffensive in eastern Ukraine during a 23-minute interview on March 23. Prigozhin claimed that Ukraine has 200,000 reserves concentrating to attack along the entire eastern frontline, into Belgorod Oblast, and in Bakhmut. Prigozhin also claimed that the Ukrainians currently have 80,000 troops in Bakhmut, Slovyansk, and Kostyantynivka to counterattack Bakhmut – a claim that former Russian officer Igor Girkin observed was dubious. Prigozhin‘s exaggerated statements about the imminent threat to Russian forces are likely an attempt to secure more supplies and reinforcements from the Russian MoD to save his forces in Bakhmut. Prigozhin made several positive statements about the Russian MoD, even acknowledging that Russian MoD forces are fighting alongside Chechen units in Bilohorivka, Luhansk Oblast. Prigozhin also surprisingly promoted both Russian MoD-controlled volunteer recruitment efforts and recruitment into Wagner, instead of only advertising service with Wagner formations as he has usually done. Prigozhin expressed some generalized criticism of the Russian military bureaucracy – namely the defense industrial base (DIB) - but such criticisms echo the current state propaganda narrative. Prigozhin had been an avid critic of the Russian military command, and the softening of his rhetoric may indicate that he may be attempting to partially appease the Russian MoD to gain supplies or reinforcements for Wagner forces in Bakhmut.

Russian forces conducted a limited drone and missile strike campaign in Ukraine overnight on March 21-22, indicating that Russian forces continue struggling with precision missile shortages. The Ukrainian General Staff reported that Russian forces conducted 21 drone strikes targeting residential and infrastructure areas in Kyiv, Zhytomyr, Zaporizhia, and Odesa oblasts, and Ukrainian forces shot down 16 of the drones. Ukrainian officials stated that Russian forces struck two residential high-rise buildings in Zaporizhzhia City, killing at least one civilian and injuring 33. Russian forces conducted more intensive and wider-ranging strikes during the fall 2022 air and missile campaign, suggesting that Russian forces may now be rationing their use of high-precision munitions for these strike campaigns or may simply lack the necessary munitions to sustain strike campaigns at their earlier pace and intensity. Head of the Ukrainian Joint Coordination Press Center of the Southern Forces Nataliya Humenyuk stated that the Russian missile strike threat remains high but that Russian forces would likely only conduct a limited campaign.