Putin’s New Nationalities Strategy Seeks To Erase Ukrainian Identity

While he accuses Kyiv of repressing Russian identity and language in Ukraine, Russian President Vladimir Putin is working to erase Ukrainian identity in Ukrainian territories he has illegally annexed. On November 25, Putin signed the “State National Policy Strategy of the Russian Federation until 2036,” ordering governing bodies and civil society institutions to “strengthen the historic unity and integrity of the Russian Federation” by “harmonizing inter-ethnic relations.” Though framed as a technocratic roadmap for managing Russia’s numerous ethnic groups, the strategy treats the absorption and “re-education” of occupied Ukrainian regions as central to building a single, Russified civic identity.

Engineering an All-Russian Identity

Ukraine’s foreign intelligence agency said that under the new strategy, “Russia plans to launch large-scale propaganda programs” in the occupied territories, aimed at “accelerating the Russification of the population and aggressively displacing Ukrainian identity.” This would build on Moscow’s long-standing efforts to erase the Ukrainian language and heritage, aligned with Putin’s oft-repeated belief that Ukraine is an “artificial state” and Ukrainians and Russians are “one people.”

Russia uses “nationality” to mean ethnic identity, separate from the more common usage linked to citizenship. Framed in terms of national security, the strategy laments the “erosion of traditional Russian spiritual-moral and cultural-historical values” as well as “growing Russophobia” abroad and subversive efforts within Russia by “unfriendly countries.”  The strategy seeks to unite Russia under a “common cultural (civilizational) code, based on the preservation and development of Russian culture and language.” The strategy sets lofty and highly specific goals. By 2036, at least 85 percent of Russian citizens must have positive views of other ethnicities, and at least 90 percent should report a lack of discrimination based on nationality and language. Most importantly, at least 95 percent should identify as Russian first, ahead of any ethnic-minority affiliation.

Erasing Ukrainian Identity in the Occupied Territories

While the new strategy applies to all of Russia’s approximately 190 recognized ethnic groups, it asserts that Russia’s occupation of Ukrainian land has “created conditions for restoring the unity of the historical territories of the Russian state.” In keeping with a favorite theme of Kremlin propaganda, the strategy claims that Russia’s mission in these “reunified” territories is to “protect” the Russian-speaking population there and “liberate” it from Ukraine’s “neo-Nazi leadership.”

In the occupied territories, Russia has been removing the study of the Ukrainian language from school curricula and, in September, banned it outright in elementary and secondary schools. That month, a Yale University research group documented at least 210 sites in Russia and occupied parts of Ukraine where Ukrainian children — including war orphans and children separated from their parents — are held. In at least 130 of these sites, the report identified “activities constituting re-education,” including “cultural, patriotic, or military programming that aligns with pro-Russia narratives.”

By aligning these policies with a strategy that runs through 2036, the Kremlin affirmed its long-term plans not just to hold territory but to raise generations of Ukrainians indoctrinated to embrace Russia and demonize Ukrainian independence.

Putin’s Double Standard for Ukraine

Putin has used trumped-up allegations of Ukrainian government repression targeting the Russian language, identity, and church to justify Russia’s 2014 and 2022 invasions. As part of its maximalist demands for a peace settlement, Moscow insists that Kyiv grant legal protections for those vehicles of Russian influence.

Unfortunately, U.S. envoy Steve Witkoff’s original 28-point peace plan legitimized these allegations in point 20. Despite calling for both countries to take measures to promote “understanding and tolerance of different cultures,” the plan called for Ukraine to “adopt EU rules on religious tolerance and the protection of linguistic minorities,” while imposing no parallel obligations on Russia. The Kremlin likely will insist on language that more directly addresses its demands.

While it is uncertain whether this requirement remains in the administration’s current plan, which was revised based on Ukrainian input, the United States should promote balanced obligations as part of any ceasefire and lend no legitimacy to Putin’s cultural imperialism.

Dmitriy Shapiro is a research analyst and editor at the Foundation for Defense of Democracies (FDD), where Keti Korkiya is a research analyst. For more analysis from the authors and FDD, please subscribe HERE. Follow Dmitriy on X @dmitriyshapiro. Follow FDD on X @FDD. FDD is a Washington, DC-based, nonpartisan research institute focusing on foreign policy and national security.