Report to Congress on Russian Military Performance
U.S. Naval Institute Staff
May 29, 2025 8:54 AM
The following is the May 28, 2025 Congressional Research Service In Focus report, Russian Military Performance and Outlook.
From the report
Despite the advantages of a larger recruitment base and defense industrial capacity, the Russian military has not been able to decisively defeat the Ukrainian Armed Forces (UAF) since Russia’s February 2022 invasion of Ukraine. The Russian military has suffered significant losses in personnel and equipment. Its performance has been hindered by a rigid command and control structure, a weakened corps of trained and professional units, and a reliance on tactics that have contributed to high casualty rates. The Russian military, however, appears to remain a resilient and capable adversary and is likely to sustain its operational tempo in the near term.
Since 2022, Congress has supported Ukraine’s defense against Russia’s renewed invasion through enacting five supplemental appropriations measures that have provided assistance to Ukraine. Members may consider the Russian military’s condition and performance as they evaluate the state of the war, assess the effectiveness of U.S. sanctions on Russia, evaluate the Russian military’s prospective reconstitution and longer-term threat to U.S. and European security, and deliberate about whether to appropriate further military or other assistance for Ukraine.
Command and Control
Despite attempted reforms to increase lower-level leadership and autonomy, the Russian military continues to operate with a Soviet-style centralized command. This centralized command style at the tactical level has contributed to the types of inflexible operations that led to previous failures and casualties.
In May 2024, Russian President Vladimir Putin replaced longtime Defense Minister Sergei Shoigu with a former economic official, Andrei Belousov. This change came after persistent poor Russian military performance. Some observers assess that Belousov’s appointment reflected the Russian leadership’s recognition that the war in Ukraine is a longer-term challenge and that managing economic and defense industrial resources is key to sustaining Russia’s war effort.
Some observers argue that Russia’s leadership prioritizes the political loyalty of officers over their battlefield effectiveness. Multiple Russian military leaders, including some reported to be highly competent, have been relieved of command (and in some cases imprisoned), seemingly for perceived criticism of or insufficient loyalty to Russian political leaders.
Nevertheless, the Russian military leadership appears to remain a cohesive force. It has gradually consolidated various semi-independent security force units and organizations fighting for Russia and brought them under central command. Additionally, the military leadership has proven capable of adopting changes to force structure, operations, and equipment since the 2022 invasion. Observers continue to debate the speed and breadth of these changes. Some reforms appear to address specific problems, remain isolated to specific units, or have been implemented only after extended debate.
Personnel
https://news.usni.org/2025/05/29/report-to-congress-on-russian-military-performance
