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September 2020 Population and Economics 4(3):1-32
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Citation: Donets EV, Chudinovskikh OS (2020) Russian policy on assistance to the resettlement of compatriots against the background of international experience. Population and Economics 4(3): 1-32. https://doi. Abstract The article is devoted to the assessment of the conceptual framework and results of the implementation of the State Program of assistance to voluntary resettlement to the Russian Federation of compatriots living abroad in the context of international practice. Programs aimed at returning compatriots are practiced by a number of states wishing to attract ethnically and culturally related migrants or restore historical justice in relation to certain ethno-confessional groups. Typically, they exist along with other immigration programs, providing repatriates with almost unfettered admission to the country. Since 2006, the only program in this field in Russia is the State Program of assistance to voluntary resettlement of compatriots. The originally formulated principles place it in a special position when compared with other repatriation programs. Based on the evaluation of the experience of the Russian program and international experience in the establishment and application of ethnic repatriation programs, it was concluded that in some cases the additional requirements for compatriots are hardly compatible with the main humanitarian task of a repatriation program, which affects its final effectiveness.
Number of resettlers to Germany and their family members, 1950-2018, thousand people. Source: (BVA 2020).
Number of Jews and their families who moved to Israel from the USSR and the countries of the former USSR, 1970-2018, thousand people. Source: Compiled according to data (Tolts 2019).
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Russian policy on assistance to the resettlement
ofcompatriots against the backgr ound
Ekaterina V . Donets 1 , Olga S. Chudinovskikh 2
1 Independent R esearcher , Moscow, 105568, Russia
2 Lomonosov Mosco w State U niversity , Moscow , 119991, Russia
Donets EV , Chudinovskikh OS (2020) Russian policy on assistance to the resettlement of com patriots
against the background of interna tional experience. Population and Eco nomics 4(3): 1–32. https://doi.org/10.3897/
e article is devoted to the assessment of the concep tual framework and results of the im plemen -
tation of the State Pr ogram of assistance to volun tary resettlement to the Russian Federa tion of
compatriots living abr oad in the context of interna tional practice. Programs aimed at r eturning
compatriots are practiced by a n umber of states wishing to a ttract ethnically and culturally relat -
ed migrants or restore his torical justice in relation to certain ethno-confessio nal groups. T ypically ,
they exist along with other immigration programs, p roviding repatriates wi th almost unfettered
admission to the country . Since 2006, the only program in this eld in Ru ssia is the State Program
of assistance to volun tary resettlement of compatriots. e originally fo rmulated principles place
it in a special position when compared with other repa triation programs. Based on the evaluation
of the experience of the Russian program an d international experience in the establishment a nd
application of ethnic repa triation programs, it was co ncluded that in some cases the additional re -
quirements for com patriots are hardly co mpatible with the main huma nitarian task of a repatriation
program, which aects its nal eectiveness.
citizenship, com patriots, ethnocultural commonality , migration, repatriation, resettlement
In the Russian Federa tion, despite the recognized urgen t need for immigrants, only a single
comprehensi ve immigration program has been in place un til now . is is the State Pro -
Population and Economics 4(3): 1–32
Donets EV, Chudinovskikh OS: R ussian policy on assistance to the resettlement of compatriots against...
gram of assistance to volun tary resettlement to the Russian F ederation of compa triots living
abroad (hereinaer r eferred to as the State Progra m). According to a n umber of criteria,
it can be attributed to special program es supporting repatriation as a type of immigra tion.
Such programs, varying in scale, are being sup ported in many countries aro und the world.
At the same time, successful pr ograms are not commo n. Programs tend to be based on
ideas of ethnocultural proximity to the titula r people of the country of immigration and/or
desire to restore his torical justice to representa tives of certain ethnocultural groups associ -
ated with the country of future residence . e state Program occupies a special place amo ng
repatriation program s. e purpose of this article is to assess the conceptual framework
and results of the implem entation of the Rus sian State Program in the co ntext of interna -
e most well-known and eective pr ograms, the participants of which should be select-
ed on an ethnocultural basis, are the programs tha t are or were in fo rce and legally support-
ed in Germany , Israel, Kazakhstan and a n umber of other countries, the positive o r negative
experience of which provides grounds to addi tional conclusions a bout Russia.
The paper analyzes the policies of Russia and a n umber of other countries on as -
sistance to the resettlement of migran ts with ethnocultural closeness or historical ties
with the population of the host coun try. Based on the analysis of the legal and r egu -
latory framework and available s tatistical data, the weakest sides of the state Pr ogram
are shown as well as the reason s for its low effectiveness. A conc lusion is made about
internal contradictions of the Sta te Program, the necessity of libera ting it from the
function of regulating skilled labour migration and giving i t an exclusively r epatriation
State Program of assist ance to voluntary rese ttlement
ofcompatriots to the Russian Federation
The State Program was a pproved b y the Decree of the Russian Presiden t of 22.06.2006
№637. One of the priorities of R ussia ’ s migration policy– attracting people who direct -
ly or indirectly have histo rical links to our country and ethnocultural closeness with
its population –was enshrined in its title i tself. Established from the very beginning,
the principle of territorial distributio n of future immigrants was t o play a key role in
addressing regional developm ent problems. The ma in objectives of the Program were:
to stimulate and or ganize the process of volun tary resettlement of compatriots f or per -
manent residence in the Rus sian Federation; to pr omote socio-economic developmen t
of regions; to solve demogra phic problems, primarily in the territ ories of priority sett -
lement (Decree of the President... 2012). F rom the outset, the target pop ulation of the
Program received an expanded in terpretation, including cult ural and linguistic commu -
Before the start of the State Progra m, after the collapse of the USSR, in the 1990s
and to a lesser extent in the first half of the 2000s, return migra tion to Russia, the
volumes of which were grea t, was of the nature o f ethnic repatriation. Direct evidence
is the ethnic composition of migrants o f that period (Vishnevsky 2013), mainly o f
Russian origin or their descendants, wi th the proportion of Russian s in almost all
years (since 1992) being 85% or more (excep t 2003 –80%). Post-Soviet immigration
was largely of a for ced nature. As the flow weaken ed by the mid-2000s, the need to
Population and Economics 4(3): 1 –32 3
create a new impulse to sustain i t, using a Program encouraging vo luntary resettle -
One of the main goals outlined in the State P rogram was to solve the demographic
problem (compensa tion for the natural popula tion loss), but in the context o f the Pro -
gram, the socio-economic considerations wer e apparent. Th e State Program (section
IV) assumed the decision of potential immigrants to m ove on the basis of informed
choice of place of residence a nd work (Rossiyskaya Gazeta 2006) (in a mor e recent
revision– also places of study). At the same time, the scope of state guaran tees and
social support differentiated depending on the territo ry of settlement. In the first years
only 12regions of Rus sia participated in the State Program. Over time, the n umber of
territories has changed and has n ow reached 76 (as of Ja nuary 1, 2020) (MIA of Rus sia
2019a), but preferen tial settlement of eastern depressed region s in dire need of labour
has been an unchanging direction for a lo ng time. Thus, from the very beginning of
the Program the first restriction manifested itself– conditionally free cho ice of place
Since its launch, the Stat e Program has undergone no table changes in terms of expa nding
the list of regions and op portunities for participation of di erent catego ries of migrants.
Amendments were repeat edly made to the conditions for the acq uisition of Russian ci tizen-
ship by immigrants. H owever , until recently it was true that the ma jority of migrants in the
current period seek citizenship through the State Pr ogram, since only it has rela tively clear
rules for admitting foreigners t o Russia for residence an d accelerated citizenship (Denisenko
Since the establishment of the S tate Program, over 899 tho usand people were able to
move to their historical homela nd (data of the Federal migration service (FMS) of Rus -
sia and the Main Directorat e for Migration Is sues (MDMI) of the Ministry of Internal
Affairs of Russia, form 1-RD). After the ra pid growth in the number of new participan ts
during the Ukrainian crisis in recent years, the flow o f new immigrants does not exceed
110 thousand people per year (MIA of R ussia 2019c; 2020b). This represen ts less than
half of the net migration required to ma intain the current size of the popula tion of
Russia (the required estimat e is 300 to 304 thousand migrants per year (Y umaguzin &
Thus, taking into account the r ole actually assigned to the Program as the main chan -
nel of immigration, it can be noted tha t it has not yet fulfilled its tasks. The reasons
include the problem of i ts administration. Accor ding to the special representativ e of
the State Duma on issues of migra tion and citizenship K. Zatulin, regio ns sabotage the
Program by determining the regional q uota for resettlement. A t the same time, they
act according to their needs in the labour market, which actually turns the P rogram of
voluntary resettlement int o a Program of recruitment o f labour resources by the regio ns
At the regional level, this fact also has direct evidence. In a n umber of regions, the re-
settlement Program for co mpatriots is a part of the labour for ce development pr ograms.
us, in the Magadan Oblast, the Pr ogram of assistance to volun tary resettlement of com-
patriots is ocially recognized as a subprogram o f the State Program «Labour reso urces
of the Magadan Oblast» (Resolution o f Magadan Oblast... 2013), in the Republic o f Sakha
(Y akutia) it is the seventh subprogram of the State Pr ogram «Development of the labour
market and pro motion of emplo yment of the population of the Rep ublic of Sakha (Y akutia)
for 2018–2022» (Decree of the Head of the Repub lic of Sakha... 2017).
Donets EV, Chudinovskikh OS: R ussian policy on assistance to the resettlement of compatriots against...
The concept of repatriation i s extensive in its conten t and does not yet have a single in terpre -
tation. Most often, there ar e differences in criteria of eligibility to participat e in the process.
But what remains uncha nged is understanding repatriatio n as a process that implemen ts the”
personal right “ of a participant to return to his o r her country (under the conditions set out in
international documents (IOM 2019)), tha t is in the modern sense is a country of citizenship,
residence or origin. In the extended interna tional interpretation, repa triation is the return to
the country of nationality , p ermanent residence or origin of persons who a re (due to different
circumstances) on the territory of another stat e (Shurshalova 2019). Thus, no t only emigrants
themselves but also their descendants, may participa te in the process. The definition takes into
account the possibility of repatria tion after the events that caused asylum seeking and/o r emi -
gration. This is the most common versio n of the interpretation in the an alysis of repatriation,
Approaches deve loped with regard to the return of refug ees remain applicable to r epatriates, in -
cluding: responsibility o f the countries of origin to establish condi tions for safe and decent r eturn;
the obligation of all states to agree to the r eturn of their citizens; an appeal to all states to p romote
conditions facilitatinig the return o f refugees and support their sustainable r eintegration (Stein
However , the term «repatriation» in its o riginal sense (as a return) has increasingly been applied
conventionally . Both descendants of people who le the country earlier, and those who found
themselves outside the country without mo ving anywhere, due to the border cha nges, become repa-
triates. us, ethnocultural identication most o en becomes the condition of return. And the term
«repatriation» is even proposed to be replaced by o ther terms, for example, r esettlement or impatria-
tion (this and other objections to the use of the term are con sidered by M. Kovalev on the exam ple of
the Polish repatriation (K ovalev 2009)). Since there is some commo n historical conditionality in all
these cases, quite oen, the process, including i ts current stage, is interpr eted broadly as repatriation.
e eectiveness of the Program turned ou t to be dierent in certain periods, the Pro -
gram clearly responded to external condi tions. us, in the mid-2010s the current geo -
political situation contrib uted to the expansion of the con tingent mainly at the expense
of refugees from Ukraine. F orced migrants arriving en masse on the territ ory of Russia
needed quick assistance. In order t o resolve their status as soon as possible, a s pecial pro -
cedure for processing a pplications fo r temporary asylum was introduced, and soon b y the
Decree of the President of R ussia amendments were made t o the conditions for admis -
sion to the State Progra m (Decree of the President... 2014). Indi viduals who were granted
temporary asylum were able to immedia tely apply fo r participation in the State Pr ogram.
is measure allowed tens of thousan ds of people to settle in Russia quickly and acq uire
citizenship in a simplied manner . is circumstance, rather than objective expansion of
the State Program zone of inuence together with increased inter est in it from compa -
triots, were the main reasons for the s harp increase in its indicators in 2014–2015. e
increased interest in the State P rogram since 2010 was also enforced to some exten t: the
conditions of access to R ussian citizenship became mor e complicated fo rcing applican ts
to turn to other channels that ga ve an opportunity to q uickly obtain Russian passport
Population and Economics 4(3): 1 –32 5
Legislative framework of the State Program
e developed regulatory framework of the Stat e Program is constan tly being adjusted ta-
king into account the emerging p roblems and circumsta nces. e main document govern-
ing the resettlement process, the Sta te Program, has been repeatedly adju sted (18 times, the
latest change was ado pted in May 2020).
e main advantage of r eturnees over other catego ries of immigrants has been the pro-
vision of a number of pr eferences for movin g and obtaining citizenship . Participan ts of the
State Program wer e provided with compensa tion for several expenses, payments and bene-
ts (see below in a separate paragraph). A com patriot who becomes a member of the Stat e
Program is issued a certicate. U pon expiry of the certicate, the compatriot an d his or her
family members lose their status: it is assum ed that all problems of settlemen t in the country
must be solved by that poin t. An increase in the term of validity of the certicate from three
to ve years means facilitatio n of the conditions of the migran ts, giving additional time
for documents processing (Decree of the Pr esident... 2020b). Participan ts are granted the
right to obtain a temporary residence permit (TRP) beyond quo tas, to obtain a permanent
residence permit (PRP) and to acquire R ussian citizenship in a simp lied manner. A n appli-
cation can be submitted while being outside R ussia, through foreign r epresentations o f the
Ministry of Internal Aairs (and pr eviously , the FMS of Russia).
Initially , the Program was limited to the period from 2007 to 2012, divided int o three
phases, but from December 31, 2012, the Program became unlimited. I n 2012, the State
Program was amended. e rights of participan ts and their family members during r eset-
tlement are dened, including the righ t to work as a paid emplo yee, to receive pro fessional
education, to engage in in vestment, entrepr eneurial and agricultural activities, agricultural
production, to manage a personal subsidia ry farm. Provision is made for com pensation of
the costs of visa registration, moving a nd transporting personal property to the place of reg-
istration at the place of sta y . Amendments have been made to the pr ovision on the procedur e
for consideration o f issues of citizenship of R ussia.
e two main directions of chan ges in the State Program wer e:
• clarication of the peculiarities of the territorial distribution of immigrants;
• specication of the target contingent of participants and the conditions for their par -
e rst version of the Sta te Program assumed the possibility of r esettlement to specic
regions divided into three cat egories with dierent pr eferences for immigran ts: A– predo-
minantly strategically importan t border areas with declining populatio n size; B– territories
with positive socio-economic development d ynamics, where major in vestment projects are
being implemented, requirin g widespread involvem ent of settlers due to the lack of labour
supply in the territorial labour mark et and relatively lo w migration burden; C– territories
with sustainable socio-economic developmen t with a decline in total population an d/or mi-
At the end of 2012 (from 31 December) (Decree of the P resident... 2012) the division
of regions changed: p riority areas (initially included territories fro m group A) and other
territories had been allocated. e rst limitation was the r eduction in 2013 of the list
of strategically important bor der areas where the Program participan ts could expect the
maximum volume of p references. In accor dance with the Decree of the President of the
Donets EV, Chudinovskikh OS: R ussian policy on assistance to the resettlement of compatriots against...
Russian Federatio n (Decree of the President... 2013), only com patriots who received a
participant’ s certicate before 01.01.2013 and
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