Because contrary to popular opinion, Putin is not a dictator or supreme master of the Russia. There are several power centers in Russia and Putin has to tread

Because contrary to popular opinion, Putin is not a dictator or supreme master of the Russia. There are several power centers in Russia and Putin has to tread carefully with them. There are entire blocks of government that are not doing what they are supposed to do, and forcing them directly is not going to work without upsetting their cover up the food chain. Just like you said, it is the same in every country with powerful ruling class.