From Policy to Practice: Analyzing Russia’s Experience in Building World-Class Universities via Policy Documents

Abstract

Since the 21st century, Russia has pursued the construction of world-class universities as a core reform goal in higher education, aiming to address the inadequacies of its post-Soviet higher education system in adapting to international competition. This study systematically examines the historical evolution, strategic framework, key characteristics, and practical challenges of Russia’s efforts over more than two decades. Russia’s practice has gone through three distinct stages: foundational construction (2003–2012), marked by joining the Bologna Process and establishing federal and national research universities; in-depth advancement (2012–2020), driven by initiatives such as the “5–100 Plan,” Global Education Program, and regional flagship universities; and adjustment and optimization (2020–present), represented by the “Priority-2030” plan. These efforts have formed a strategic framework centered on system construction, internationalization, balanced development, and operational support. Key characteristics of Russia’s practice include the integration of strategic stability and tactical flexibility, the complementarity of tiered and classified development, and the coordination of government leadership and university autonomy. However, challenges persist, such as underperformance in global rankings, insufficient funding, uneven resource distribution, and severe talent drain.

1. Introduction

Russia’s efforts to build world-class universities have unfolded as part of a break from the higher education system framework established during the Soviet era. Although the Soviet Union left Russia with abundant higher education resources, its higher education system struggled to adapt to the increasingly intense international competition in higher education. Meanwhile, amid the severe social and political upheavals of the 1990s, Russian higher education faced challenges such as a sharp reduction in government funding, a significant loss of faculty, and a disconnect between teaching and research activities, leading to a substantial decline in educational quality. The release of the 2003 Academic Ranking of World Universities (ARWU) by the Shanghai Ranking provided an important benchmark for comparative analysis among universities worldwide. Russia’s universities performed poorly in global rankings, which significantly impacted both the Russian government and the higher education sector. Shortly thereafter, Russia implemented a series of reform measures, including joining the Bologna Process, establishing new types of universities, the “5–100 Plan,” and the “Priority-2030” initiative, aimed at building world-class universities and enhancing the international competitiveness of Russian higher education. After over 20 years of exploration and practice, Russia has achieved certain results in building world-class universities, but there are still some pressing issues that need to be addressed.

This study aims to analyze and examine the historical process and practical measures of Russia’s efforts to build world-class universities. To this end, we employ a historical analysis method, utilizing historical context and institutional text analysis to systematically trace the over 20-year journey of Russia’s efforts to advance the development of world-class universities. Specifically, this study divides this process into three major developmental stages: the foundational phase (2003–2012), the intensive advancement phase (2012–2020), and the adjustment and optimization phase (2020 to present). It reveals the core strategic framework underlying this process, including system construction, internationalization, balanced development, and operational assurance strategies; it analyzes the fundamental characteristics of this process, such as the unity of strategic stability and tactical flexibility, the complementary nature of tiered development and categorized construction, and the synergy between government leadership and university autonomy; and it explores the current challenges faced, such as difficulties in improving rankings, insufficient funding, unequal resource allocation, and talent loss. Russia’s pursuit of improving university international rankings aims to strengthen its capabilities in knowledge innovation and talent cultivation, viewed as a key strategy to secure international resources, enhance global influence, and break out of marginalization; the breakthrough and reconstruction of the Soviet Union’s rigid higher education system aim to establish a more adaptive and internationally attractive higher education system. This study analyzes the evolutionary logic of Russia’s world-class university development strategy to reveal the deep connection between this process and the nation’s “sustainability.”

2. Literature Review

Building world-class universities is one of the core strategic objectives of global higher education development. Existing research has provided valuable insights into Russia’s efforts to build world-class universities, with a particular focus on in-depth analyses of its flagship national initiatives—the “5–100 Program” and the “Priority-2030 Program.” [1,2]. These studies have thoroughly examined the policy context, specific objectives, university selection mechanisms, funding allocation models, implementation outcomes, and challenges faced by these initiatives, revealing their significant role in enhancing the international competitiveness of Russian universities and driving systemic reforms in higher education. Additionally, some studies have focused on specific areas, such as the implementation of internationalization strategies, the construction and operation of higher education quality assurance systems, the relationship between autonomy and accountability in university governance, and the issue of uneven regional distribution of higher education resources [3,4,5].

However, existing research still has obvious limitations in terms of comprehensiveness and depth. First, the time span of the research often focuses on key national programs after 2012, lacking a systematic review of the complete historical context of Russia’s efforts to build world-class universities. In particular, it overlooks the key starting point of Russia’s accession to the Bologna Process in 2003 and its subsequent impacts (such as the modernization of the degree system), as well as innovative practices aimed at promoting regional balanced development, such as the construction of local pillar universities during the in-depth implementation phase. Second, while existing research has touched on specific aspects such as internationalization and quality assurance, it has failed to establish an integrated strategic framework to systematically explain the core logic behind Russia’s development over the past two decades. Specifically, this is reflected in insufficient in-depth analysis of the funding mechanisms and multi-tiered, specialized institutional designs within the operational support strategy (such as the three-tier management system of the “5–100 Plan,” the two-tier committee system of the “Priority-2030 Plan,” and the integrated quality assurance system combining internal and external elements); discussions on the internationalization strategy lack a comprehensive examination of its multidimensional and systematic practices in areas such as aligning with the education system, optimizing faculty and student structures, innovating curriculum design, and expanding international cooperation models; and there is insufficient exploration of the intrinsic logic underlying balanced development and system construction (the hierarchical pyramid system comprising top-tier universities, federal universities, national research universities, regional pillar universities, and general higher education institutions). Finally, research on the fundamental characteristics of the Russian model for building world-class universities, derived from an in-depth analysis of historical processes and strategic practices, lacks focus, limiting understanding of the unique operational mechanisms of the Russian model.

3. Research Method

This study employs historical analysis to systematically trace the evolutionary logic of Russia’s policies aimed at building world-class universities. This method focuses on long-term institutional change, analyzing policy texts to reveal the formation mechanisms of strategic frameworks and their deep connections with national sustainable development goals.

3.1. Data Sources and Types

The data sources for this study are based on official policy documents, international agreements, and academic literature. Official policy documents include presidential decrees and government resolutions that directly reflect national strategic intentions, such as the 2008 Decree on the Special Status of Lomonosov Moscow State University and St. Petersburg State University, the 2013 Measures for State Support to Enhance the Global Competitiveness of Russia’s Leading Universities in Science and Education (“5–100 Plan”), and the 2013 Priority-2030 Plan; The official website of the Federal Ministry of Science and Education provides program guidelines, evaluation reports (such as the annual progress report of the “5–100 Plan”), and standards for the construction of regional pillar universities; specialized program platforms, such as the official websites of the “5–100 Plan” and the “Priority-2030 Plan,” allow for tracking the implementation dynamics of these programs. International agreements include the “Bologna Declaration” signed by Russia and the detailed regulations of the European Credit Transfer System (ECTS). Russian university ranking data integrates historical data from the QS/THE/ARWU rankings. Academic literature primarily comes from the Web of Science database, offering unique insights into the characteristics and strategies of Russia’s top university development.

3.2. Analysis Process

This study completes the analysis process of Russia’s top-tier university development through three stages: key temporal anchoring, cross-stage strategic comparison, and sustainable correlation analysis. First, evolutionary stages are divided based on major institutional turning points, such as Russia’s accession to the Bologna Process in 2003, the “5–100 Plan” in 2012, and the “Priority-2030 Plan” in 2020. Next, strategic frameworks were extracted through cross-period comparisons of projects, such as contrasting the “regional radiation” function of federal universities with the “balanced correction” mission of local pillar universities, thereby refining the pyramid-tiered structure within the institutional development strategy; and identifying collaborative characteristics between government-led initiatives and university autonomy across various policy regulations. Finally, existing issues in the development of Russia’s top-tier universities were diagnosed from an economic-social-environmental three-dimensional perspective.

4. Results

Through a diachronic comparative analysis of Russia’s development process, this study systematically reveals the core strategies and structural characteristics of its world-class university construction process.

4.1. Historical Process

Since President Putin took office in 1999, he has actively advocated for Russia’s integration into European integration and multilateral cooperation. On 18 September 2003, the Minister of Science and Higher Education of the Russian Federation signed the Bologna Declaration. The following day, at the meeting of higher education ministers from Bologna Process member countries held in Berlin, Russia’s application for membership was accepted, marking Russia’s formal accession to the Bologna Process [6]. This marked the beginning of a new era in Russia’s participation in European educational integration reforms and the start of Russia’s efforts to build world-class universities. Since then, in response to new international circumstances and development environments, the Russian government has led the implementation of a series of major higher education reform strategies and initiatives, with the construction of world-class universities being one of its key objectives. This study, based on the significant reform measures and typical strategies implemented by the Russian government, divides the historical process of Russia’s efforts to build world-class universities into three major development stages: foundational construction (2003–2012), in-depth advancement (2012–2020), and adjustment and optimization (2020–present).

4.1.1. Foundational Construction (2003–2012)

Since joining the Bologna Process, Russia has implemented a series of higher education reform measures, including modernizing the degree system, modernizing the management system, and establishing new types of universities, laying an important foundation for building world-class universities. From 2003 to 2022, Russia remained a member of the Bologna Process. At the LXXX meeting of the Bologna Follow-up Group (BFUG) held in Strasbourg on 11–12 April 2022, the group suspended Russia’s representation in the Bologna Process [7], marking Russia’s withdrawal from the Bologna Process.

• Join the Bologna Process

The Bologna Declaration was launched on 19 June 1999, marking a major reform in European higher education. It aimed to establish a “European Higher Education Area” by 2010 based on the principles of academic independence and autonomy. Following the dissolution of the Soviet Union, Russia’s higher education system suffered severe setbacks. To align with domestic higher education reform needs, on 18 September 2003, the Minister of Science and Higher Education of the Russian Federation signed the Bologna Declaration [1], announcing Russia’s participation in the Bologna Process and outlining plans for higher education system reform [8]. The reform primarily encompassed four key areas. First, the adoption of Europe’s dual-track degree system, where the traditional “specialist-candidate of sciences-doctorate” training model coexists with the internationally recognized “bachelor’s-master’s-doctorate” degree system. Second, the introduction of the European Credit Transfer System (ECTS), where ‘credits’ replace the traditional “credit hours” as the new unit for measuring learning outcomes. Third, improving the higher education quality assurance system, with universities implementing the ISO 9001:2000 international quality standards internally and introducing an independent evaluation system for educational activities externally [9]. In 2014, the Russian National Accreditation Center joined the European Association for Quality Assurance in Higher Education (ENQA), strengthening external oversight of universities. Fourth, there is a strong emphasis on international exchange between faculty and students. Universities are increasing opportunities for faculty and students to study in European countries, such as revising curricula to align with European university standards and collaborating with other countries on mutual recognition of higher education certificates and degrees.

2.

Creating a New Type of University

On 5 September 2005, Russian President Vladimir Putin proposed the Priority National Projects in Education [10]. Faced with the urgent need for modernization in higher education, the government established federal universities and national research universities, which became an important pillar in Russia’s efforts to build world-class universities.

In November 2006, Russia officially launched the Federal University Construction Project. Federal universities are autonomous institutions engaged in education, scientific research, and innovative activities across a wide range of disciplines, bearing the mission of regional economic development and the important task of building first-class universities domestically. The development goal of the Federal University is to enter the top 10 universities in Russia within 5–6 years of its establishment and to enter the top 100 universities in the world by 2020. The Federal University is generally formed by the merger of several universities within the same region. The universities applying for a merger must be strong, industry-specific universities. After being examined and approved by the Federal Ministry of Science and Education in terms of regional, comprehensive, and industry-specific aspects, the Federal University was established with the signature of the President. The Federal University is directly administered by the Federal Ministry of Science and Education. For example, from a regional perspective, Russia has established federal universities centered around Moscow State University and St. Petersburg State University, extending their influence to the Siberian, Southern, Northern, and Far Eastern regions. Russia prioritizes the development of research fields where universities within a region have disciplinary advantages. By the end of 2007, the Siberian Federal University and the Southern Federal University were officially established, becoming the first two federal universities and regarded as successful pilot projects. Subsequently, the Russian government continued to establish federal universities nationwide, forming a network of 10 federal universities by 2014, including the Northern (Arctic) Federal University, thereby advancing the development of Russia’s higher education system [4].

On 7 October 2008, to further leverage the important role of education in scientific and technological innovation, the Russian government proposed the establishment of National Research Universities (NRUs) as educational institutions integrating education and scientific research to conduct basic and applied research. On the same day, Russian President Dmitry Medvedev issued the “Order on the Implementation of the Pilot Project for the Creation of National Research Universities” [11], selecting the Moscow Institute of Engineering Physics and the Moscow Institute of Steel and Alloys as pilot universities to establish the National Nuclear Research University and the National Research Technical University. On 13 July 2009, the Russian government issued the “Decree on the Selection of National Research Universities Through University Development Plans,” clarifying that universities would compete openly to obtain the status of National Research University. Participating universities must be under the jurisdiction of the Russian Federation, possess the capability for basic and applied scientific research, and effectively implement higher vocational education and post-university vocational education curricula. The Federal Ministry of Science and Education selects universities based on their development status over the past three years and the development plans they submit. In 2009 and 2010, 110 and 128 universities, respectively, applied to participate in the competition, with 27 universities ultimately selected as National Research Universities. Together with two pilot universities and two top-tier universities (Lomonosov Moscow State University and St. Petersburg State University), a total of 31 universities were designated as National Research Universities. The status of a national research university is valid for 10 years. Universities must regularly report on the implementation of their development plans. If the university’s development fails to meet the expected goals, the Federal Ministry of Science and Education may revoke its status as a national research university.

4.1.2. In-Depth Advancement (2012–2020)

After exploring and building up the basics, Russia has made some progress in building world-class universities. But there are still some real issues that haven’t changed, like universities not ranking well internationally, not being competitive enough in scientific research, and not being very international. So, the Russian government has rolled out a bunch of big initiatives, like the “5–100 Plan,” the Global Education Program, and building a regional flagship university, to push forward with building world-class universities.

• Promote the “5–100 Plan”

On 7 May 2012, Russian President Vladimir Putin signed Presidential Decree No. 599, “On Measures to Implement State Policy in the Fields of Education and Science,” which for the first time set the goal in the education sector of having “at least five Russian universities ranked among the top 100 leading universities in the world by 2020” [12]. On October 29 of the same year, the Russian government issued Government Decree No. 2006, “On the Approval of the Action Plan for the Development of World-Class Universities” [13], which is considered the first policy document in Russia to explicitly propose the construction of world-class universities. On 16 March 2013, Putin signed Government Decree No. 211 [14], “Measures for State Support to Enhance the Competitiveness of Russia’s Leading Universities in Science and Education,” approving the “5–100 Plan” and formally implementing it.

The “5–100 Plan” aims to rapidly enhance the competitiveness of Russia’s top universities in the global higher education system. The specific goal is for the 21 participating universities to achieve the following by 2020: at least five universities ranked among the top 100 in the world (as the “5–100 Plan” does not specify a particular world university ranking, this study selected the QS, THE, and ARWU rankings as references); the proportion of international students is no less than 15% of the total number of students; the proportion of international faculty members is no less than 10% of the total number of faculty members.

The “5–100 Plan” adopts a free and open competitive approach, establishing a three-tier management system responsible for the entire process of selection, evaluation, and supervision [15]. The Federal Ministry of Science and Education serves as the highest management and decision-making body, overseeing the macro-level implementation of the program; The Committee on the Competitiveness of Leading Universities (referred to as the Competitiveness Committee) acts as a permanent expert assessment and advisory body supporting the highest management and decision-making body, holding significant functions and authority. It is responsible for compiling the national list of supported universities, calculating project funding allocations, reviewing progress reports on program implementation, and providing professional consultations to participating universities; The National Autonomous Scientific Institution “Sociology Research Center” is the primary executive body under the Federal Ministry of Science and Education, responsible for organizing progress report meetings on the plan’s implementation, tracking changes in world university rankings and project university rankings, developing and maintaining the “5–100 Plan” official website and the Russian student recruitment website (study in russia.ru), as well as preparing analytical materials, summary reports, and commentary articles for relevant meetings.

The Competitiveness Committee evaluates participating universities based on three dimensions, i.e., foundational indicators, development potential, and development plans, with a scoring ratio of 2:3:5. The Federal Ministry of Science and Education determines the final list of winning universities based on the Competitiveness Committee’s evaluation results. After two rounds of selection in 2013 and 2015, a total of 21 universities were selected for the “5–100 Plan.” The Competitiveness Committee also calculates the allocation coefficients and amounts for budget subsidies for winning universities, as well as the average allocation amount for universities under the “5–100 Plan” in 2013. It should be noted that Russia’s two top universities, Lomonosov Moscow State University and St. Petersburg State University, already receive special support and therefore do not occupy spots under the “5–100 Plan.”

2.

Implementing Global Education Programs

The Global Education Program (GEP) is a talent development initiative established by the Russian government to implement the presidential decree “On Measures to Develop the Human Resource Potential of the Russian Federation” issued on 28 December 2013 [16]. On 20 June 2014, the Federal Ministry of Science and Education officially launched the program, aiming to provide outstanding graduate students in fields such as engineering, science, medicine, education, and social management with opportunities to pursue advanced studies at world-class universities. The program’s objectives include supplying high-quality managerial talent to employers (including organizations registered in regions with developed social and economic conditions in the Far East and Siberia), curbing the outflow of talent, and accelerating the nation’s modernization process. The GEP provides competitive funding for at least 718 Russian citizens to pursue further education abroad and ensures that an equal number of graduates are employed by employers. Program participants must be citizens of the Russian Federation enrolled in full-time study in Russian higher education programs (master’s degree programs, graduate science and scientific education personnel training programs, and residency programs). The grant covers transportation, medical expenses, accommodation, meals, and academic materials, with a maximum funding limit of 27.636 million rubles per person. Program participants must return to Russia after completing their studies and work at the employer for at least three years according to the agreement [17]. As of 4 April 2025, the program had 693 participants, with 668 employed.

To ensure transparency in the implementation of the Global Education Program activities and effective management of the program, the federal government established the Global Education Program Supervisory Board [17], comprising representatives from government departments, the business sector, academia, public institutions, and employer associations. Its primary functions include selecting and determining the list of program participants, establishing quota allocation and funding usage standards, dynamically monitoring the implementation outcomes of the program, and coordinating collaboration mechanisms among program operators, participants, and employers to continuously optimize policy design. During the program implementation period, employers are required to publish vacant positions and job requirements for program participants and provide employment opportunities to ensure their employment. Employers refer to Russian higher education institutions, scientific and medical institutions, social organizations, and high-tech companies registered within the Russian Federation. The list of employers is approved and determined by the Supervisory Board.

3.

Developing Regional Flagship Universities

Decree No. 497 of the Government of the Russian Federation of 23 May 2015 In October 2015, the Federal Ministry of Science and Education opened a project on the construction of local pillar universities, aiming to establish higher education institutions in each constituent part of the Russian Federation that can compete on equal footing with educational institutions in the capital [18]. The project seeks to make regional flagship universities a driving force for regional innovation and development, creating a new landscape where higher education institutions drive regional economic, social, and environmental development. Olga Vasilyeva, Minister of Science and Higher Education of the Russian Federation, stated that regional flagship universities must become regional centers for science, talent cultivation, and social and cultural development [19]. Regional flagship universities are joint development projects between the central and local governments. The distinction from federal universities lies in the fact that the federal government only establishes a few federal universities within federal districts, which cannot cover the vast territory of Russia. Regional flagship universities, however, are established within federal districts to address the imbalance in the regional distribution of universities in Russia and cultivate high-quality talent conducive to regional economic development.

In 2015, Dmitry Livanov, Minister of Science and Education of the Russian Federation, announced the launch of a large-scale higher education reform, with plans to merge small regional universities into multidisciplinary regional flagship universities. In October 2015, the regional flagship university competition began. Participating universities were required to submit a five-year development roadmap to the Federal Ministry of Science and Education and establish constructive partnerships with local governments and industries. Universities located in Moscow or St. Petersburg, federal universities, universities participating in the “5–100 Plan” project, and universities in cities already home to one or more leading universities were ineligible to participate in the regional flagship university competition. The evaluation panel included representatives from local governments, employer associations, and professional associations. The support attitude of local governments toward the development roadmap played a crucial role in the competition results. The strategic projects included in the development roadmap must have practical significance for regional development, including the creation of competitive industrial and agricultural, biological, and medical technologies, the development of digital technologies and new materials, support for talent and youth innovation and entrepreneurship, and the construction of urban cultural systems [19]. In May 2016, 11 regional flagship universities were selected, followed by 22 in April of the following year, including 6 in the Central Federal District, 8 in the Volga Federal District, 6 in the Northwestern Federal District, 2 in the Ural Federal District, 5 in the Southern Federal District, and 6 in the Siberian Federal District. If a regional flagship university fails to meet the regional demand for high-quality talent, it may lose its status as a regional flagship university.

4.1.3. Adjustment and Optimization (2020–Present)

On 21 July 2020, the Russian government issued the “Executive Order on Russia’s National Development Goals for 2030” (referred to as the “July Presidential Decree”), replacing the “Executive Order on Russia’s National Development Goals for 2024” (referred to as the “May Presidential Decree”) issued on 7 May 2018 [20], revising development goals and requirements in areas such as the economy, education, social services, and population to better align with current socio-economic conditions. In the field of education, the July Presidential Decree proposes to provide more opportunities for talent development and self-realization, establishing a ten-year development strategy and aiming to rank among the top 10 globally in terms of educational quality. Additionally, 2020 was the year to assess the effectiveness of the “5–100 Plan,” but none of the 21 selected universities made it into the top 100 of the three major global university rankings, meaning the goals of the “5–100 Plan” were not achieved as planned. In light of this, on December 31, 2020, the Russian government issued the “Strategic Academic Leadership Program ‘Priority-2030 Plan’” (referred to as the “Priority-2030 Plan”) [21] to implement the educational development plan outlined in the July Presidential Decree. This plan serves as an alternative and optimization of the “5–100 Plan” and has become the latest strategic guideline for Russia’s efforts to reform and develop higher education and build world-class universities.

The primary objectives of the “Priority-2030 Program” are to support the development of Russian higher education institutions, contribute to achieving the national development goals of the Russian Federation by 2030; balance territorial development across the country; and enhance the quality of higher education in Russian regions. The core of the “Priority-2030 Program” lies in establishing a large-scale, highly innovative group of universities to lead scientific, technological, and innovative advancements in Russia’s economic and social sectors. The “Priority-2030 Program” is committed to promoting collaboration between universities and research institutions, ensuring that education produces high-level talent to meet the needs of society, the economy, and industry. Funding priorities include collaborative programs, research projects, and talent development. Additionally, the “Priority-2030 Program” encourages breakthrough scientific research, innovations, and the development of the humanities and social sciences, emphasizing their application in the socio-economic sphere. In terms of funding models, the “Priority-2030 Program” no longer relies solely on the federal budget but requires federal entities and regional government agencies to also provide financial support to selected universities. National funding is divided into a basic component and a specialized component. The former ensures the comprehensive enhancement of university capabilities, while the latter supports universities with research leadership or regional/industry leadership to promote regional economic development and improve the quality of higher education in the region.

The “Priority-2030 Program” continues to select universities through a competitive process. On 13 May 2021, the Russian government issued Resolution No. 729, which detailed four sets of selection criteria [22]. Universities that meet any one of these criteria may apply, as shown in

Table 1. Selection Criteria for Universities under the “Priority-2030 Plan”.

Group	Selection Criteria
group 1	Number of students: at least 4000 full-time higher education students; Financial support: at least 1 billion rubles in total; Research and development income: at least 5% of total income.
group 2	First-year enrollment rate: at least 60%; Founder’s letter of recommendation: Recommend participation in the selection process and explain potential.
group 3	Eligibility criteria: At least two criteria in Group 1 must be met. Deadline for meeting criteria: All criteria in Group 1 must be met within two years of selection (by 31 December 2023). Financial support: Authorities or institutions must provide support at least equal to the base portion of the grant until the university meets the criteria.
group 4	Eligibility criteria: Meet at least two criteria in Group 1. Merger certification: Have a decision document regarding a merger (joining) with another university or scientific organization. Reorganization period: All criteria in Group 1 must be met within two years after selection (by 31 December 2023).

Data source: Government of the Russian Federation.

. Universities of all levels, types, regions, and rankings may apply, including leading universities, regional and specialized universities (medicine, transportation, agriculture, and education), as well as cultural and artistic universities. In terms of selection and evaluation criteria, the requirements for world university rankings and the proportion of foreign students and international education have been relaxed. The focus is on the contribution of university development plans to national and regional development, as well as university research and innovation, and collaboration and interaction between universities, between universities and enterprises, and between universities and other associations. Universities applying for the program must prepare a university development plan. The Federal Ministry of Science and Education will support the development plans of universities through budget subsidies based on the results of independent expert evaluations [23].

On 13 May 2021, to ensure the implementation of the “Priority-2030 Plan,” the Russian government issued Resolution No. 730, “On the Committee for Supporting the Development of Higher Education Institutions as Part of the Strategic Academic Leadership Plan ‘Priority-2030 Plan,’” concurrently establishing the Selection Committee for the “Priority-2030 Plan” (hereinafter referred to as the Selection Committee) and the Committee for Supporting the Development of Higher Education Institutions (hereinafter referred to as the Support Committee). The Selection Committee is responsible for the selection, elimination, review, and supervision of universities for the grant’s basic component; the Support Committee serves as the permanent advisory body for the “Priority-2030 Plan,” responsible for the selection and evaluation of universities receiving the grant’s specialized component [24]. The evaluation criteria for these two categories of universities differ.

In 2022, the Federal Ministry of Science and Education conducted a selection process for 187 applicant universities. The selection committee chose 106 universities on 27 September 2022, which will receive the grant’s base portion, amounting to 100 million rubles per university. Moscow and St. Petersburg have 28 and 11 universities selected, respectively, while the remaining 67 universities are located in 47 cities across Russia [25]. On 6 October 2022, the Support Committee selected 46 universities from 54 applicants for the grant’s specialized portion. These universities were divided into three groups based on their leadership in research, regional, or industry sectors, each receiving different amounts of funding [26].

4.2. Strategic Framework

Over the past 20 years of promoting the development of world-class universities in Russia, a series of important reform strategies and measures have been implemented, forming a strategic framework centered on system construction, internationalization, balanced development, and operational support.

4.2.1. System Construction Strategy

The strategy for building a world-class university system is to establish a strategic tier of world-class universities and lay a solid foundation for their development. This is one of the core strategies for Russia’s advancement of world-class university construction. The Russian world-class university system exhibits a typical pyramid structure, divided into five layers from the apex to the base, each composed of different universities and bearing distinct missions and responsibilities. The apex of the Russian world-class university system, the first layer, consists of Lomonosov Moscow State University and Saint Petersburg State University, serving as benchmarks for the development of Russian higher education and guiding the direction and progress of Russia’s efforts to build world-class universities. On 9 September 2008, Russian President Medvedev signed a presidential decree titled “On the Special Status of Lomonosov Moscow State University and Saint Petersburg State University,” formally establishing the leading role of these two national universities in Russia’s higher education sector. The second tier consists of federal universities with federal-level autonomy. These universities are typically formed by the merger of several universities within a region, and after rigorous review and approval by the Federal Ministry of Science and Education, they are established by presidential decree. They not only bear the special mission of regional development but also enjoy government funding preferences like the two top-tier universities; The third tier consists of national research universities, which must apply independently and be established after review by the Federal Ministry of Science and Education. Both these universities and federal universities represent innovative efforts by Russia to build world-class universities and are important pillars in Russia’s pursuit of world-class higher education; The fourth tier consists of state- and city-affiliated comprehensive universities, which typically possess strong faculty and abundant educational resources, capable of cultivating professionals across multiple disciplines and providing robust support for local socio-economic development; The base, or fifth tier, comprises a large number of general higher education institutions, primarily focused on cultivating bachelor’s degree talent while also producing a certain number of master’s degree graduates. Regional flagship universities also fall under the category of general higher education institutions, but they stand out in terms of discipline development, research capabilities, and policy support, making them an important force in serving local socio-economic development. From the perspective of the strategic tiers for building world-class universities, while Russia’s efforts to build world-class universities are influenced by global university rankings, they do not blindly pursue higher rankings at the expense of domestic socio-economic development. Instead, Russia focuses on building a world-class university system. In general, the top three tiers represent universities that the Russian government prioritizes for concentrated resource allocation, serving as the core force for enhancing the international competitiveness and influence of higher education in Russia and bearing the important mission of building world-class universities. The bottom two tiers form the foundation of Russia’s higher education system, providing a solid foundation for socio-economic development, regional balance, and educational equity.

4.2.2. Internationalization Strategy

Internationalization is a key indicator of a world-class university, and the internationalization development strategy is also one of the key strategies for Russia to build world-class universities. Russia enhances the international standing and academic strength of its universities by attracting global high-quality educational resources and promoting the internationalization of its domestic education system. In terms of its education system, Russia actively participates in the Bologna Process, adopting a dual-track system of three-year associate doctorate degrees and traditional five-year specialist degrees, and introducing the European Credit Transfer System (ECTS), laying a solid foundation for the internationalization of Russian higher education. In terms of faculty and student structure, the plan invites internationally renowned scholars to join teaching teams, participate in lectures, and engage in research projects. The “5–100 Plan” also explicitly sets the proportion of international students and foreign faculty as a key indicator for measuring internationalization levels. Additionally, the composition of educational management bodies reflects internationalization trends, such as the Competitiveness Committee, which includes several Nobel laureates and top scholars, including 2011 Nobel Prize in Chemistry laureate Dan Shechtman (D. Shechtshan) and Nobel Prize in Economics laureate Eric S. Maskin, providing intellectual support and an international perspective for the internationalization of Russian higher education [13]. In terms of curriculum design, Russian universities prioritize alignment with international standards, significantly increasing the proportion of English-taught courses and foreign faculty. Under the “Priority-2030 Initiative,” universities emphasize the “digital transformation” of their curricula. Moscow State University of Science and Technology has developed a digital platform encompassing student registration, service management, teaching processes, administrative organization, and online learning, creating 40 online courses that have collectively served over 450,000 learners [23]. In terms of international cooperation and exchange, Russian universities actively collaborate with global education technology (EdTech) companies to develop online education products across higher education, language training, and other fields. Such collaborations have not only driven Russian education technology overseas revenue to exceed 13 million USD (surpassing higher education tuition exports) but also opened new pathways for internationalization [27]. Additionally, the Federal Law on the Legal Status of Foreign Citizens in the Russian Federation, amended on 6 February 2020, simplifies the procedures for foreign citizens to enter the country and enroll in higher education institutions, attracting foreign citizens to Russian higher education institutions. By 2024, the proportion of foreign professionals in Russia’s research and development and high-tech sectors is expected to reach 4% [28]. To strengthen the implementation of this policy, the Russian Federation Government adopted Resolution No. 2150 in December 2020, clearly setting education quotas for foreign citizens: increasing to 18,000 in 2021, reaching 23,000 in 2022, and expanding to 30,000 in 2023, systematically increasing the scale of international students [5,29,30].

4.2.3. Balanced Development Strategy

Promoting balanced development is one of the key objectives of Russia’s higher education reform and development, as well as a fundamental strategy for building world-class universities in Russia. The balanced development strategy aims to advance the construction of world-class universities in Russia by coordinating regional development, optimizing disciplinary layout, and allocating resources efficiently, while simultaneously driving the overall improvement of Russia’s higher education standards. Russia is a vast country with eight federal districts, but due to historical and economic reasons, there are significant regional disparities. Western regions such as Moscow and St. Petersburg hold an absolute advantage in the allocation of higher education resources, while regions like the Siberian Federal District and the Far Eastern Federal District, due to their remote geographical locations, have lagged in development. To address this highly uneven development, Russia has adopted a merger and restructuring strategy in its efforts to build world-class universities, integrating high-quality educational resources, encouraging collaboration among educational institutions through digitalization, and optimizing the regional distribution structure of universities [31], while also promoting balanced regional higher education development. For example, Siberian Federal University and Southern Federal University were both formed by merging four universities of different levels within their respective regions. By 2014, except for Baltic Federal University, which was directly transformed from Kirov State University, the other nine federal universities were all established through mergers and reorganizations. In the 2024 QS World University Rankings, Kazan Federal University and Ural Federal University ranked 396th and 473rd, respectively, demonstrating the international competitiveness of federal universities. To further support balanced regional development, the Russian government has also established regional flagship universities to cultivate high-quality talent for local socio-economic development. Additionally, the Russian government emphasizes the balanced development of university types and provides support for some specialized universities. From the distribution of universities under the “5–100 Plan,” 50% of the universities are concentrated in Moscow and St. Petersburg. The selection of universities only considers comprehensive strength and ignores university characteristics and development potential. The “Priority-2030 Plan” has removed restrictions on university rankings, regions, and levels when selecting universities, encouraging small but excellent universities to apply. A specialized subcommittee under the selection committee is responsible for the selection and expert support of art universities. Five art universities—the Vaganova Ballet Academy, the Russian Academy of Theatre Arts, the All-Russian State Institute of Cinematography, the Russian Gnesin Academy of Music, and the Boris Shchukin Theatre Academy—were selected in 2021. The “Priority-2030 Program” is currently Russia’s largest-scale educational funding policy, supporting 152 universities. It has, to some extent, narrowed regional and university development gaps and promoted balanced regional development.

4.2.4. Operational Support Strategy

Operational support is the foundation for advancing the construction of world-class universities and is one of the core strategic pillars for Russia’s efforts to build world-class universities. The construction of world-class universities is a complex systemic endeavor. Russia has implemented funding investments and institutional reforms to ensure the sustainability of such initiatives, thereby establishing an operational support strategy for the construction of world-class universities. In terms of financial support, the Russian government has significantly increased investments in higher education with unprecedented intensity, ensuring that each university receives stable and adequate funding. Since 2011, the federal government has allocated 1.5 billion rubles annually to federal universities to support their long-term development over 10 years. Meanwhile, national research universities have emerged as leaders in intense competition, with each university securing up to 1.8 billion rubles in development funds. Additionally, universities participating in the “5–100 Plan” have received special government support, with funding reaching 10 billion rubles since 2014. The total financial support for the Global Education Program amounts to 42.336 billion rubles, including 14.7 billion rubles in 2014, 13.23 billion rubles in 2015, and 14.406 billion rubles in 2016. By the end of 2017, regional flagship universities had received funding from the budgets of the constituent entities of the Russian Federation and local budgets, totaling 3.6 billion rubles. The “Priority-2030 Program” is the largest and most heavily funded education development strategy of the Russian government, with funding expanded to 106 universities receiving the grant’s basic component and 46 universities receiving the grant’s specialized component. In 2022, the total funding exceeded 47 billion rubles, with over 21 billion rubles allocated to the grant’s basic component and over 26 billion rubles to the grant’s specialized component. These investments not only improved university infrastructure but also enhanced teaching and research standards, laying a solid foundation for Russia’s ambition to build world-class universities. In terms of institutional mechanisms, Russia’s efforts to build world-class universities have demonstrated high flexibility and innovation, resulting in the formation of numerous distinctive institutional frameworks. For example, during the implementation of the “5–100 Plan,” Russia creatively established a three-tier management system comprising the Federal Ministry of Science and Education, the Competitiveness Committee, and the Sociological Research Center, ensuring the smooth implementation of the plan. During the implementation of the “Priority-2030 Plan,” a two-tier management system was established, comprising a Selection Committee and a Support Committee, to manage the grant foundation portion and the specialized portion, respectively, ensuring the smooth progress of Russia’s efforts to build world-class universities. Additionally, Russia has established a relatively comprehensive higher education quality assurance system. Externally, it has formulated the “National Educational Standards for Higher Education,” implemented comprehensive university evaluations, and established a university development monitoring system. Internally, it has established and improved university-based quality assurance systems, strengthened teaching quality and academic evaluations, and emphasized the process and quality of talent cultivation.

4.3. Basic Characteristics

Looking back and analyzing the historical process and strategic measures of Russia’s efforts to build world-class universities, we can see that they are characterized by the organic integration of strategic stability and flexible tactics, the complementary nature of tiered development and classified construction, and the coordinated advancement of government leadership and university autonomy.

4.3.1. The Organic Integration of Strategic Stability and Tactical Flexibility

Since the beginning of the 21st century, Russia has been committed to building world-class universities while flexibly adjusting its construction strategies according to actual conditions at different historical stages. This has resulted in the characteristic feature of the organic integration of strategic stability and tactical flexibility.

In terms of strategic stability, after joining the Bologna Process, Russia has continued to steadily advance the construction of world-class universities. First, it has reformed its domestic higher education system, gradually aligning its degree systems, teaching methods, and curriculum with international standards to enhance the international recognition of its scholars; Second, it has established new types of university organizations, such as federal universities, national research universities, and regional flagship universities, effectively fostering competition among universities and stimulating the vitality of higher education development, thereby continuously advancing and improving the construction of a world-class university system; Finally, it has formulated long-term education development plans, with the “5–100 Plan” and the “Priority-2030 Plan” as the two core plans for higher education reform and development. These plans have outlined a clear blueprint for the long-term development of Russian higher education, clearly defined the goals and pathways for building world-class universities, and provided comprehensive support and guarantees in terms of funding, policies, and talent, thereby establishing a stable strategic plan for advancing the construction of world-class universities.

In terms of strategic flexibility, the Russian government adjusts its construction strategies flexibly according to the progress of world-class university development. The upgrade and improvement of the “5–100 Plan” under the “Priority-2030 Plan” fully demonstrate the flexibility of construction strategies. After identifying the shortcomings of the “5–100 Plan,” the Russian government promptly advanced new educational initiatives. The Federal Ministry of Science and Education adjusted and optimized the plan based on issues and deficiencies exposed during its implementation, while retaining the university competition mechanism and exit mechanism from the “5–100 Plan.” In terms of development objectives, the “Priority-2030 Plan” shifted from a focus on global rankings to a strategy-driven approach, de-emphasizing attention on global university rankings and the proportion of international students and foreign faculty. Instead, it emphasizes the contribution of universities to the achievement of national goals, prioritizes the alignment of university development objectives with national development objectives, and enhances universities’ sense of social responsibility. In terms of selection criteria, the requirement for participating universities to have a certain world ranking has been removed, encouraging smaller, specialized universities to participate in the selection process and expanding the scope and scale of the plan’s support. In terms of evaluation criteria, the “5–100 Plan” applied a uniform evaluation standard to all participating universities, while the “Priority-2030 Plan” abandoned the “one-size-fits-all” approach, implementing categorized evaluations based on different types of universities and disciplinary characteristics to enhance the precision and effectiveness of evaluations. In terms of personnel composition, the committees of the “Priority-2030 Program” are more localized. While foreign experts and scholars account for 42% of the total members of the “5–100 Plan” committees, both committees of the “Priority-2030 Program” consist solely of domestic scholars, enhancing the targeting and executability of decision-making. Overall, Russia’s approach of combining a stable strategic framework with flexible and optimized tactics in its efforts to build world-class universities not only ensures the continuity and stability of the initiative but also enhances its flexibility and adaptability.

4.3.2. The Complementary Nature of Tiered Development and Classified Construction

Russia’s efforts to build world-class universities have consistently adhered to the principle of combining tiered development with classified construction, integrating this principle throughout the entire process of university selection, funding, and evaluation, thereby contributing to the construction of a world-class university system.

During the selection phase, the Russian government balances the development of comprehensive universities and specialized universities. Among the universities participating in the “5–100 Plan,” institutions such as Lomonosov Moscow State University and St. Petersburg State University are comprehensive universities, while St. Petersburg Peter the Great Polytechnic University and Moscow State Sechenov First Medical University are specialized universities. The group of universities participating in the “Priority-2030 Program” has been further expanded, with universities of all specializations and sizes eligible to apply, including many newly added art universities. In terms of funding, all universities receive grant support from Russia’s overall higher education development plan, with the level of funding linked to the university’s tier—the higher the tier, the greater the grant. Federal universities and national research universities receive 1 billion and 1.5 billion rubles annually for construction funds, respectively; regional flagship universities each receive 1–1.5 billion rubles in state funding; the “5–100 Plan” adopts a tiered funding approach, with each tier comprising seven universities. The first tier receives approximately 9 billion rubles, the second tier approximately 4–5 billion rubles, and the third tier approximately 1.2–1.5 billion rubles; The “Priority-2030 Program” provides funding based on the university’s development direction, with amounts ranging from 100 million to 1 billion rubles, reflecting precise support for universities with different development directions. In the evaluation phase, the “Priority-2030 Program” has abandoned the previous “one-size-fits-all” evaluation model and adopted a categorized evaluation approach. For universities receiving basic funding, evaluations primarily focus on their basic research capabilities, the development of young faculty teams, student diversification, revenue-generating capacity, and the cultivation of information technology skills. For universities receiving specialized funding for research leadership, the focus is on their leadership in scientific research, particularly high-quality paper publications, the cultivation of young researchers, patent income, and the development of high-level talent. For universities receiving specialized funding for regional leadership, the evaluation primarily focuses on their role and contributions to regional development, including the commercialization of research outcomes, technical service revenue, targeted training, and the proportion of international students. It is precisely because Russia has consistently adhered to the philosophy of tiered development and categorized construction as a complementary approach to building world-class universities that it has gradually established a world-class university system, forming a higher education system with distinct Russian characteristics, thereby laying the foundation for Russia’s socio-economic development through higher education.

4.3.3. The Coordinated Advancement of Government Leadership and University Autonomy

In the process of building world-class universities in Russia, the government plays a dominant role. At the same time, under the government’s absolute dominance, the role of university autonomy has gradually become more prominent, thereby forming a framework for the construction of world-class universities characterized by the coordinated advancement of government leadership and university autonomy.

In the process of building world-class universities in Russia, the government’s leading role is fully realized, and this is primarily reflected in the following aspects: first, the Russian government directly designates Lomonosov Moscow State University and St. Petersburg State University as top-tier universities through presidential decrees, granting them special treatment and implementing special management; second, federal universities and national research universities must be established after being reviewed by the Federal Ministry of Science and Education, authorized by the president’s signature, and directly administered by the Federal Ministry of Science and Education; third, the selection and evaluation of universities under the “5–100 Plan” and “Priority-2030 Program” are overseen by the Federal Ministry of Science and Education, which is responsible for implementing the overall plan. If a university fails to complete its assigned tasks during the construction period, the Federal Ministry of Science and Education has the authority to revoke its status as a project university. Fourth, the funding for building world-class universities in Russia, including the funding for various project universities, primarily comes from government allocations. It should be noted that in the process of building world-class universities in Russia, the government’s leading role is primarily implemented through the Federal Ministry of Science and Higher Education. It can be seen that the policy formulation, funding sources, and effectiveness evaluation of building world-class universities in Russia are all handled by the government, with government leadership pervading throughout the entire process of building world-class universities in Russia.

In the process of the Russian government leading the construction of world-class universities, the role of university autonomy has also gradually become evident, primarily manifested in the significant expansion of universities’ autonomy in academic, administrative, and financial matters. First, in terms of academic autonomy, the “Federal Law on Higher and Post-Secondary Vocational Education” grants teaching staff the freedom to teach, researchers the freedom to conduct research, and students the freedom to learn, thereby gradually expanding universities’ academic autonomy; second, in terms of administrative autonomy, the appointment system for university presidents has been replaced by an election system, marking an expansion of administrative autonomy. At the university level, a governance structure has emerged where the board of directors, academic committee, and president collaborate to manage the institution. At the organizational level, universities generally implement a three-tier management system comprising colleges, departments, and research units [32]. Third, in terms of financial autonomy, universities operate on a self-sustaining basis, managing their finances. Universities can independently allocate state-allocated budget funds and allow surplus funds to be carried over to the next fiscal year. They can also independently manage extra-budgetary income, using it for reinvestment in educational institutions or other reasonable expenditures. In summary, the gradual expansion and implementation of university autonomy have injected new vitality into Russia’s efforts to advance toward world-class universities.

5. Discussion

Russia’s higher education reform has undergone a strategic evolution from “institutional alignment” to “domestic restructuring”: during the foundational phase, faced with the dual pressures of higher education stagnation following the dissolution of the Soviet Union and marginalization in the 2003 ARWU rankings, Russia promoted institutional modernization by joining the Bologna Process and established a domestic elite tier through the creation of federal universities and national research universities; during the deepening phase, due to the failure to reverse the international disadvantage in the previous phase, the focus shifted to the “5–100 Plan” to implement indicator-based catch-up strategies; during the adjustment and optimization phase, due to the failure to meet the targets of the “5–100 Plan,” the “Priority-2030 Plan” was launched to promote a transition away from ranking-based systems, emphasizing the construction of a resilient domestic higher education ecosystem, and completing the transformation from passive alignment to active reconstruction. The strategic framework and characteristics of Russia’s world-class university development have been shaped by the interplay between historical legacy and current constraints. Universities inherited from the Soviet Union faced the dilemma of being “large but not strong,” prompting the government to establish a pyramid-shaped system structure: top universities lead international ranking competitions, federal universities integrate regional institutions to address the “small and scattered” issue, and regional pillar universities fill coverage gaps in remote areas like the Far East, achieving resource intensification. In response to regional imbalances stemming from the vastness of the territory, the government implemented a balanced development strategy, combining the Soviet tradition of centralized planning with academic innovation through a model of “government top-down design plus university autonomy in execution.”

After more than 20 years of exploration and practice, Russia has achieved certain results in terms of subject rankings and other aspects in its efforts to build world-class universities. However, it still faces many practical problems in terms of university rankings, financial support, resource allocation, and talent loss, which are in significant tension with the country’s sustainable development goals.

5.1. Existing Issues

In the course of building world-class universities, Russia faces systematic and intertwined multiple dilemmas. Despite the huge investment and implementation of national strategies such as the “5–100 Program” and the “Priority-2030 Program”, the number and international ranking of its top universities have not only failed to achieve the expected significant leap in recent years but have even been on the decline. An in-depth analysis of their predicament is mainly reflected in four aspects, which are discussed below.

5.1.1. Poor University Rankings

While Russian universities have achieved relatively outstanding results in the development of certain disciplines, the number of universities recognized as world-class institutions has not only failed to increase significantly but has instead shown a noticeable downward trend in recent years. Russia is one of the countries most influenced by global university rankings. The government has invested substantial funds through strategic initiatives such as the “5–100 Plan” and the “Priority-2030 Plan” to improve university international rankings, but the results have been disappointing, failing to achieve the expected goal of having five universities enter the world’s top 100. Of course, federal universities have also failed to achieve the goal of entering the top 100 by 2020. Based on the three major global university rankings—QS, THE, and ARWU—a statistical analysis was conducted on the number of Russian universities entering the top 500 between 2013 and 2024. It can be observed that the number of Russian universities entering the top 500 worldwide showed an overall upward trend from 2013 to 2021, but there was a significant gap between the quality and expectations. Only a few universities have ever entered the top 100, and some universities’ performance has been unstable. Since 2022, the number of universities entering the top 500 has shown a significant decline. Additionally, the performance of the two leading universities in Russia’s efforts to build world-class universities has also been unstable. Moscow State University has maintained its position in the top 100 of the QS rankings since 2018, breaking Russia’s long-standing embarrassment of having no universities consistently ranked in the top 100 globally. However, its rankings in the THE and ARWU rankings have fluctuated significantly, and it even fell out of the top 100 in the ARWU rankings in 2024. In contrast, the performance of Saint Petersburg State University is even more concerning, as it ranked outside the top 300 in all three major rankings—QS, THE, and ARWU—in 2024, starkly contrasting with its government-designated status as a top-tier university.

5.1.2. Insufficient Funding Support

Building world-class universities is a complex, systemic endeavor that requires substantial and sustained financial investment. Insufficient funding is one of the practical challenges Russia faces in its efforts to establish world-class universities. Although the Russian government has increased its investment in higher education year by year, the actual amount invested, when converted into US dollars, has not reached the expected level. Furthermore, government allocations account for only 1.8% of total education investment. Take the “5–100 Plan” as an example. As the largest government-funded education project at the time, government funding for the program in universities from 2014 to 2020 was only around 100 billion rubles, which is very low compared to education investments in other countries during the same period. France is also one of the countries most affected by the impact of global university rankings. In 2008, France’s funding for the University of Paris-Saclay reached 850 million euros, and by 2014, it had increased to 950 million euros—117 times the highest funding amount allocated by Russia to project universities during the same period. The “Priority-2030 Plan” allocated over 47 billion rubles in funding in 2022, with the highest funding for a single university amounting to only 994 million rubles. The significant increase in the number of universities receiving funding has led to higher education funding costs, which the government cannot afford, resulting in some universities still facing funding shortages. Additionally, some universities received funding amounts that did not meet their expected targets. For example, as of 2020, St. Petersburg State University of Information Technology, Mechanics, and Optics had only received 62.7% of the 92 billion rubles it had estimated it needed. On the other hand, sanctions imposed by Western countries on various aspects of Russia’s economic development have led to domestic inflation and the depreciation of the ruble, further reducing the funding available to project universities. This situation is unlikely to change in the short term.

5.1.3. Uneven Distribution of Resources

In addition to insufficient construction funds, Russia also faces the practical problem of uneven distribution of resources in its efforts to build world-class universities. From a horizontal perspective, there are significant disparities in economic development levels across different regions of Russia. Political and economic advantages are concentrated in the Central and Northwestern Federal Districts, with a substantial portion of higher education institutions concentrated in Moscow and St. Petersburg, the two largest cities in Russia. In contrast, the Ural Federal District, Siberian Federal District, and Far Eastern Federal District, which are farther from the European center, appear relatively isolated and underdeveloped [33], with significant differences in quality, scale, and scope. Universities funded by the “Priority-2030 Plan” foundation grants are also predominantly located in western regions, with only three project universities in the Far Eastern Federal District, highlighting the issue of regional concentration of educational resources. The uneven distribution of educational resources not only hinders the development of a world-class university system but also exacerbates issues such as talent flight and regional economic stagnation. Additionally, government funding for universities is unevenly distributed. Some universities under the “5–100 Plan” receive special support as both federal universities and research universities, and this overlapping support exacerbates the development gap between different universities, leading to a polarization trend. From a vertical perspective, both the “5–100 Plan” and the “Priority-2030 Plan” adopt a tiered funding model, with stronger universities receiving higher funding. This tiered funding model is a common practice among countries striving to build world-class universities. However, the funding disparities between different tiers of universities in Russia are excessively significant. For example, the budgetary funding for universities in the first tier of the “5–100 Plan” is 6–7 times that of the third tier, while the special grants for the first group in the “Priority-2030 Plan” are 7 times those of the third group. This extreme inequality in resource allocation inevitably leads to a situation where the strong get stronger and the weak get weaker. Universities ranked lower in the tiers struggle to achieve comprehensive reforms and transformations with limited funds, thereby negatively impacting Russia’s progress and outcomes in building world-class universities.

5.1.4. Severe Talent Drain

The loss of human capital, particularly the outflow of highly educated talent, is a serious challenge facing the development of higher education in Russia and a practical obstacle to its efforts to build world-class universities. In 2020, the number of research and development personnel stood at 662,700, and the number of researchers at 340,100, representing decreases of 25.35% and 20.16%, respectively, compared to the year 2000. According to foreign immigration statistics [34], approximately 100,000 people leave Russia each year. In 2020, 43,660 citizens with higher education left Russia, including 116 PhDs and 188 candidates of science. The phenomenon of talent migration has exacerbated labor shortages in industries requiring highly skilled experts. Taking the scientific sector as an example, the total number of workers in Russia’s scientific sector decreased by 35,500 between 2013 and 2020. Crowley-Vigneaude et al. [2] conducted an in-depth analysis of the outflow of highly skilled talent, identifying two key factors. First, graduates of higher education institutions face employment difficulties, struggling to find jobs matching their specializations and being unable to realize their full potential. Second, the state does not prioritize safeguarding teachers’ rights. For instance, the monthly average salary of teachers at higher education institutions in Russia is less than 20,000 rubles (approximately 300 USD) in the Altai and North Caucasus regions, while state university professors earn approximately 38,700 rubles (about 600 USD) per month, which is only one-thirty-seventh of the salary for a professor at Harvard University. However, Russian teachers bear an academic workload that is two to three times higher than that of teachers in other countries, and their involvement in university decision-making is relatively low [35]. This severe mismatch between capabilities and salaries undoubtedly further exacerbates the brain drain of highly skilled talent within Russia.

5.2. Sustainability Impact

A decline in university international rankings can diminish a nation’s global reputation in higher education, weaken its ability to attract top international scholars and engage in high-level research collaborations, and gradually marginalize its influence in key cutting-edge technology fields. The excessive pursuit of ranking metrics has led to a decline in Russia’s budget allocation for basic research, from 18% in 2010 to 12% in 2020. Additionally, the decline in international reputation weakens the appeal to overseas students and faculty, as high-quality students and teachers flow to countries with higher rankings, making it difficult for domestic universities to form a diverse and open academic ecosystem and constraining cross-cultural collaborative innovation. Insufficient funding and unequal resource allocation may pose multifaceted challenges to the country’s sustainable development. From an economic perspective, limited funding may constrain universities’ investments in basic research and strategic disciplines, potentially weakening core technological R&D capabilities and thereby impacting the momentum for industrial upgrading. From a social perspective, disparities in resource allocation between regions and imbalances in funding acquisition among universities may exacerbate regional development gaps and potentially affect the fairness of educational opportunities. The loss of talent, particularly the outflow of research talent at this stage, continues to impact the national innovation ecosystem, industrial resilience, and governance capabilities, weakening its ability to accumulate core capital in global knowledge economy competition and posing a severe challenge to the intrinsic driving force of sustainable development. Russia’s current talent crisis is the core factor hindering the implementation of its national sustainable development strategy due to systemic issues in its higher education system.

6. Conclusions

This paper adopts a historical institutionalist analytical perspective to systematically analyze the strategic evolution of Russia’s efforts to build world-class universities and their deep-seated connection with the country’s sustainable development goals. The study indicates that Russia has adopted a three-phase dynamic development model to advance the construction of world-class universities. During the infrastructure construction phase, the focus was on restructuring the higher education system through participation in the Bologna Process. During the in-depth implementation phase, the core initiative was the implementation of the “5–100 Plan,” aimed at improving global rankings. In the adjustment and optimization phase, the strategic focus shifted to the “Priority-2030 Plan,” prioritizing services aligned with national development needs. In this historical process, four core strategic frameworks have been established: first, a systematic strategy to establish a multi-tiered university system, including top-tier universities, federal universities, national research universities, and regional pillar universities; second, an internationalization strategy, based on European standards, implementing a dual-track degree system and the European Credit Transfer System (ECTS), and establishing global education programs to promote academic mobility; third, a balanced development strategy to alleviate spatial imbalances in higher education resources through the regional layout of federal universities and the construction of regional pillar universities; fourth, an institutionalization strategy to establish a three-tier management system and a tiered funding allocation mechanism to ensure policy implementation. These strategies exhibit three prominent characteristics in practice: the long-term stability of national strategy and the flexible adjustment of implementation strategy complement each other; the tiered development of the university system and classification assessment are advanced in tandem; and government leadership at the macro level and institutional autonomy form a mutually beneficial mechanism. Although disciplines such as physics and astronomy, and control science and engineering have cultivated advantages that rank among the top 100 globally, systemic challenges such as stagnant international rankings, imbalanced resource allocation, and the continued outflow of talent remain unresolved. These challenges are eroding the foundational pillars of the nation’s sustainable development across three dimensions: economically, they weaken the potential for new productive forces; socially exacerbating regional development imbalances; and environmentally disrupting the intergenerational transmission of human resources. Russia urgently needs to transcend the single-minded pursuit of international rankings and incorporate sustainable core indicators such as technology localization rates, regional talent retention rates, and mechanisms supporting the development of young scholars into the framework for building world-class universities. By combining a global perspective with local needs, the higher education system can truly become a solid foundation supporting the nation’s long-term development.