This could undermine efforts for more radical reform, thus a programme of nationalism, moderate authoritarian centralism and economic liberalisation seems likely to continue. In September 1999 Russian forces invaded Chechnya, in a bid to reimpose Moscow's control over the region. Although the majority of the country was occupied with comparative ease, capturing Grozny proved a harder task, and forced the Russians to close with Chechen fighters and accept the inevitable losses. It is hard to see the eventual seizure of this ruined city having more than a transitory political significance as many of the Chechen fighters were able to pass through the porous Russian blockade of the city into the southern highlands. The destruction caused to Russian outposts by several suicide bombs during that period indicated that the Chechen resistance remained determined to drive Russian forces from its territory.
Ethnic separatism provides a constant irritant to the central Russian leadership.
Putin strengthened control over regions in an attempt to prevent a repetition of September 1999's guerrilla activity in Dagestan. This clampdown forced separatist leaders to revise their tactics - rather than directly confront the Russian military, figures such as Shamil Basayev and Khattab have resorted to guerrilla tactics and extend operations to the wider northern Caucasus. Faced with severe economic decline, a widespread sense that central government is impotent or uncaring and thus a crisis in the very legitimacy of the state, the role of local, city and regional authority is becoming increasingly important. However, Putin attempted to 'strengthen the unity of the Russian state' in May 2000 by issuing a decree that divided Russia into seven federal administrative districts, each to be overseen by an appointed government representative. The decree aimed to restore greater central order within Russia, bypassing the power currently held by provisional governors, many of whom run their territories as if they were personal fiefdoms.