Federal Law 145-FZ on Document Legalization: Complete Guide 2026 | Global Docs Pro
Federal Law 145-FZ on Document Legalization: Complete Guide 2026
Federal Law No. 145-FZ of June 22, 2024 “On the Legalization of Russian and Foreign Official Documents and on the Requesting of Personal Documents” entered into force on January 1, 2025. It is the first unified normative act in Russian history to systematize the rules for handling official documents used abroad. Before its adoption, the rules on legalization and requesting were scattered across dozens of disparate legal acts — from the Decree of the Presidium of the Supreme Soviet of the USSR of 1983 to the 1991 USSR Law “On the Procedure for the Export, Sending, and Requesting of Personal Documents Abroad” and departmental orders, many of which were hopelessly outdated. Law 145-FZ largely incorporated and systematized pre-existing rules, brought them to a single standard, filled legal gaps, and established transparent, uniform procedures for all participants in the process.
Over the year and a half since the law came into force, a certain body of law-enforcement practice has formed. Territorial bodies of the Russian MFA have actually started accepting documents for consular legalization, the procedure for requesting personal documents has become more predictable, and the lifting of the ban on exporting certain important documents abroad has significantly simplified life for Russians abroad. In this article, we will analyze in detail all the key provisions of the law, the practice of its application, and answer the most frequent questions.
What Law 145-FZ Regulates and What It Does Not
It is important from the very beginning to understand the subject of regulation of Law 145-FZ. The law establishes the procedure for consular legalization of documents — a procedure that applies to countries that are not parties to the 1961 Hague Convention. Such countries include, in particular, the UAE, Qatar, Kuwait, Thailand, Vietnam, and a number of other states with which Russia does not have an agreement on simplified recognition of documents.
Apostille — another procedure that applies to countries party to the Hague Convention — is regulated by separate legislation. In Russia, apostille is affixed in accordance with Federal Law No. 330-FZ of November 28, 2015, and international arrangements within the framework of the Hague Convention. Law 145-FZ does not cancel or change the procedure for affixing apostille — these two mechanisms exist in parallel for different categories of countries.
Thus, if you are sending a document to a Hague Convention country (Germany, Spain, USA, China, and more than 120 other states), you need an apostille. If the country is not a party to the convention, you need consular legalization under the rules of Law 145-FZ.
Important exception: some documents are not subject to either apostille or consular legalization — if there is a bilateral or multilateral treaty between Russia and the destination country that abolishes or simplifies legalization. First and foremost, this is the 1993 Minsk Convention and the 2002 Kishinev Convention on Legal Assistance and Legal Relations in Civil, Family, and Criminal Matters between CIS member states: for participating countries (Armenia, Belarus, Kazakhstan, Kyrgyzstan, Moldova, the Russian Federation, Tajikistan, Turkmenistan, Uzbekistan, Ukraine), official documents issued with an official seal are recognized without any additional certification. Similar bilateral treaties exist with a number of non-CIS countries. Check whether such a treaty is in effect with your destination country before paying for legalization.
Document Legalization: What Has Changed in Practice
Territorial Bodies of the MFA: The Main Innovation
Before Law 145-FZ entered into force, Russian official documents could only be legalized at the central apparatus of the Ministry of Foreign Affairs in Moscow — the Consular Department of the MFA of Russia at the address: Moscow, 1st Neopalimovsky Pereulok, 12. This created significant difficulties for residents of the regions and for those who could not physically come to the capital.
Law 145-FZ (Article 4) vested the territorial bodies of the Russian MFA with authority over the consular legalization of Russian official documents. In practice, this means that documents for legalization can be submitted to MFA representations in the constituent entities of the Russian Federation — their list is published on the official MFA website (mid.ru). Territorial bodies are also authorized to legalize foreign official documents drawn up by consular institutions of foreign states on the territory of Russia.
It is important to understand the limitations: territorial bodies of the MFA accept documents for consular legalization, but not for affixing apostille. Apostille on Ministry of Internal Affairs documents is affixed by the Ministry of Justice, on civil registry (ZAGS) documents — by the ZAGS body of the constituent entity of the Russian Federation, on education documents — by the regional education authority. Territorial bodies of the MFA deal specifically with consular legalization for countries outside the Hague Convention.
Electronic Form: Direct Prohibition
One of the fundamental provisions of Law 145-FZ is that consular legalization of documents in electronic form is not carried out (paragraph 4 of Article 4). This is directly stated in the text of the law and means that to undergo consular legalization, a paper original of the document with genuine signatures and seals is required. An electronic criminal record certificate from the State Services portal, a scan of a diploma, or a PDF file with an electronic signature cannot be legalized — they must first be converted into paper form.
This restriction applies specifically to consular legalization, not to apostille. For apostille, there is a separate e-Apostille procedure that the Russian Ministry of Justice is developing in a pilot mode: a unified electronic register of apostilles already exists, but the full-fledged issuance of digital e-Apostille (an electronic stamp on an initially electronic document) for cross-border document flow is still at the pilot stage with strict limitations. Most recipient countries still require a paper original of the apostille on a paper document. e-Apostille and consular legalization are different mechanisms for different situations, and they should not be confused.
Foreign Documents: Two Legalization Channels
Law 145-FZ establishes two channels for legalizing foreign official documents for their use on the territory of Russia (Article 6). The first channel is legalization on the territory of a foreign state, carried out by consular officials of Russia abroad. The second channel is legalization on the territory of Russia, carried out by territorial bodies of the MFA. This is relevant for foreign documents issued by foreign consulates in Russia that do not have an apostille or other form of international recognition.
Lifting the Ban on Exporting Documents
One of the most significant practical changes associated with the adoption of Law 145-FZ is the lifting of the ban on exporting certain categories of documents outside Russia. Previously, there was a ban on exporting identity documents, military IDs, and employment record books, established by the Rules for Exporting Documents from the Russian Federation approved by Decree of the Government of the Russian Federation No. 275 of April 7, 2016.
In practice, this created an absurd situation: a person leaving for permanent residence abroad could not legally take out their own employment record book or military ID, although these documents were necessary for arranging pensions, confirming length of service, or obtaining citizenship abroad. Many exported them illegally, risking fines and confiscation at the border.
Law 145-FZ eliminated this contradiction. Now Russians can legally export abroad identity documents, military IDs, and employment record books. This is especially important for those arranging citizenship or a residence permit in another country and who must provide a full package of documents confirming their biography and length of service.
Requesting Personal Documents: New Rules
A separate chapter of Law 145-FZ (Articles 9–14) is devoted to the requesting of personal documents — the procedure for obtaining repeated documents from Russian ZAGS bodies, archives, and other institutions for citizens located outside Russia. Before the law was adopted, this procedure was regulated fragmentarily and often depended on the discretion of a particular department.
Which Documents Can Be Requested
The law defines an exhaustive list of personal documents subject to requesting. These include repeated certificates of state registration of civil status acts (birth, marriage, divorce, death, adoption, establishment of paternity, name change), certificates from archival bodies, extracts from registers of records of civil status acts, as well as other documents directly specified in the law.
Procedure for Submitting an Application
An application for requesting personal documents from the territory of a foreign state is submitted in the form approved by Order No. 26686/377 of December 20, 2024. The application can be submitted to a consular institution of the Russian Federation abroad or to a territorial body of the MFA on the territory of Russia. The period for considering the application and sending the document is up to 3 months from the moment of registration of the request at the consular institution or territorial body of the MFA (with the possibility of extension by another 1 month in exceptional cases for archival requests) — according to Article 11 of Federal Law No. 145-FZ. Important: this statutory period covers only the consideration of the request and the dispatch of the document — it does not include the time of international mailing, which can add another 2–4 weeks. In practice, the actual time the applicant receives the document usually exceeds 3 months.
Requesting Documents from Russia for Citizens Abroad
For citizens located abroad and needing to obtain documents from Russian authorities, the law provides two main paths. The first is to apply to the Russian consulate in the country of residence, which will send a request to the relevant Russian authority. The second is to execute a power of attorney for a representative in Russia, who will obtain the document independently through an MFC (Multifunctional Center) or ZAGS. In practice, the second option is usually faster, since it eliminates international mailing, which can take from several weeks to several months.
Education Documents: Special Procedure
Education documents are singled out as a separate category, since the procedure for affixing apostille on them changed even before Law 145-FZ entered into force. From September 1, 2024 (earlier than the main law), new rules came into effect: apostille on education documents, academic degrees, and titles is affixed by executive authorities of the constituent entities of the Russian Federation exercising the transferred powers in the sphere of education.
The state fee for affixing an apostille on an education document is 2,500 rubles (Article 333.33 of the Tax Code of the Russian Federation, subparagraph 41 of paragraph 1). It is also important to consider that Decree of the Government of the Russian Federation No. 1865 of November 4, 2023, approved the creation of the federal information system “Federal Register of Apostilles Affixed on Education Documents.” This is the first step toward a full-fledged electronic register of apostilles, but it covers only educational documents.
Which Education Documents Are Subject to Apostille
- Diplomas of higher and secondary vocational education
- Certificates of secondary general education
- Certificates of awarding academic degrees
- Certificates of awarding academic titles
- Academic transcripts and diploma supplements
Competent Authorities: Who Is Responsible for What
One of the key problems solved by Law 145-FZ is the clear definition of competent authorities for each type of document. Previously, this information was scattered across various regulatory acts, and only a specialist could determine exactly where to apply. Now the law systematizes these rules.
| Document Type | Competent Authority for Apostille | For Consular Legalization |
|---|---|---|
| MIA documents (criminal record certificates) | Ministry of Justice of Russia | MFA of Russia (Consular Department + territorial bodies) |
| ZAGS documents (certificates) | ZAGS body of the constituent entity of the Russian Federation | MFA of Russia |
| Education documents (diplomas) | Education authority of the constituent entity of the Russian Federation | MFA of Russia |
| Notarized documents | Ministry of Justice of Russia | MFA of Russia |
| Court documents | Ministry of Justice of Russia | MFA of Russia |
| Military documents | Ministry of Justice of Russia | MFA of Russia |
Please note: for the same type of document, in different situations, different agencies are competent — depending on what exactly you need. For example, for a birth certificate: if you need an apostille (for a Hague Convention country), you apply to the ZAGS body of the constituent entity of the Russian Federation; if you need consular legalization (for a non-convention country), you apply to the MFA. That is, the same document in one situation is certified by one body, and in another situation by a completely different one. Apostille is affixed by the Ministry of Justice, ZAGS bodies, and education authorities; consular legalization is carried out only by the MFA (central apparatus or territorial bodies). This distinction is key, and not understanding it often leads applicants to the wrong agency.
Timeframes and Cost: The Complete Picture
Consular Legalization
Consular legalization is a multi-stage procedure, and each stage takes time. The total duration depends on the number of instances and can range from 2 to 6 weeks. The cost also consists of several components.
| Stage | Timeframe | Cost |
|---|---|---|
| Notarized certification of copy or translation | 1 day | 1,000–2,500 rubles |
| Affixing apostille (if needed for notarized copy) | up to 5 working days | 2,500 rubles state fee |
| Legalization at the MFA of Russia | 3–5 working days | 350 rubles state fee per document |
| Legalization at the consulate of the destination country | 1–7 working days | Consular fee (depends on the country) |
Total: from 2 to 6 weeks, from 5,000 to 15,000 rubles (depending on the country and complexity). For comparison, a single apostille is 2,500 rubles in state fees and up to 5 working days (standard timeframe under Federal Law 330-FZ).
Requesting Documents
| Stage | Timeframe | Cost |
|---|---|---|
| Submitting application to consulate | 1 day | Consular fee (depends on the country) |
| Reviewing request and obtaining document | up to 3 months | Free (state fee for a repeated ZAGS certificate — 700 rubles since 01/01/2025) |
| Mailing document abroad | 2–4 weeks | Cost of international delivery |
Practical Application: A Year and a Half Later
Law 145-FZ has been in effect since January 1, 2025 — enough time has passed to assess the real impact of the innovations on the practice of working with documents. Below are observations based on experience working with clients from more than 90 countries.
What Has Actually Improved
The ability to submit documents for consular legalization at territorial bodies of the MFA has been a real relief for residents of major regional centers — Yekaterinburg, Novosibirsk, Kazan, Rostov-on-Don. Previously, they had to either travel to Moscow or send documents by courier, which increased timeframes and risks. Now the entire process can be completed in their home city.
The lifting of the ban on exporting employment record books and military IDs has eliminated a long-standing injustice. Clients applying for citizenship in Germany, Spain, and Israel can now provide a full package of documents without legal tricks. This is especially important for repatriation programs that require confirmation of biography and length of service.
Clear regulation of the document requesting procedure has made it more predictable. Previously, the timeframes for obtaining repeated ZAGS certificates from remote regions could stretch over months without any legal basis for acceleration. Now the law defines maximum timeframes and a procedure for appealing delays.
What Still Causes Difficulties
Despite the expansion of the powers of territorial MFA bodies, their number is limited. Not every constituent entity of the Russian Federation has an MFA representation, and residents of small towns still have to travel to the regional center or to Moscow. In addition, advance appointments for document submission at some territorial bodies are booked weeks ahead.
Consular legalization remains a significantly more complex and lengthy procedure compared to apostille. If for Hague Convention countries one stamp for 2,500 rubles and up to 5 working days is sufficient, then for countries outside the convention (UAE, Qatar), passing through 3–4 instances is required, with total costs from 10,000 rubles and timeframes from 2 weeks.
The absence of an electronic format for consular legalization means that for citizens located abroad, the process is inevitably associated with mailing paper documents. In an era of digitalization, this creates artificial barriers and increases processing timeframes.
Frequently Asked Questions
What is the difference between apostille and consular legalization?
An apostille is a single stamp affixed for countries party to the 1961 Hague Convention (129 states as of 2026). Consular legalization is a multi-stage procedure required for countries not party to the convention. An apostille is affixed within up to 5 working days and costs 2,500 rubles in state fees; consular legalization takes 2–6 weeks and costs significantly more.
Can an apostille be affixed instead of consular legalization?
If the destination country is a party to the Hague Convention — yes, you need an apostille, not consular legalization. If the country is not a party to the convention, the apostille will not be recognized, and you will need full consular legalization. Check the current status of the country on the HCCH website (hcch.net).
Where can I submit documents for consular legalization?
At the central apparatus of the MFA of Russia (Moscow, 1st Neopalimovsky Pereulok, 12) or at territorial bodies of the MFA in the constituent entities of the Russian Federation. Admission to the Consular Department of the MFA is by preliminary appointment only through the electronic queue system.
Can a document be legalized in electronic form?
No. Law 145-FZ directly establishes that consular legalization of documents in electronic form is not carried out (paragraph 4 of Article 4). A paper original with genuine signatures and seals is required.
Has the ban on exporting an employment record book abroad been lifted?
Yes. Law 145-FZ eliminated the legal grounds for the ban on exporting outside Russia identity documents, military IDs, and employment record books. Now these documents can be legally exported abroad.
How long does requesting documents take?
By law — up to 3 months from the moment of registration of the request at the consulate or territorial body of the MFA (with the possibility of extension by 1 month for archival requests), according to Article 11 of Federal Law No. 145-FZ. In practice, timeframes depend on the region of document issuance, the workload of the ZAGS body, and the speed of international mailing. A realistic forecast is from 4 to 12 weeks including mailing.
How We Can Help
Global Docs Pro specializes in obtaining and legalizing Russian documents for citizens living abroad. We work with the rules established by Law No. 145-FZ on a daily basis and know all the nuances of the procedure — from determining the required type of legalization to interacting with territorial bodies of the MFA.
Our team can obtain documents from Russian ZAGS bodies for you through the requesting procedure, affix an apostille on any type of document, arrange full consular legalization for countries outside the Hague Convention, perform a notarized translation, and deliver the finished documents to anywhere in the world. We offer free consultations, transparent pricing without hidden fees, and personal support at every stage. Contact us via WhatsApp or Telegram — we will sort out your specific situation and propose an optimal solution.