President Putin is stating that the United States are governed not by one Power, but two. The first is composed of the elected members of Congress and the Presidency, the second is illegitimate and sometimes more powerful.
"And it is not only the position of the President of the United States which counts. It’s the position of the institution which pretends to be the state, the ruling class in the wider sense of the term. I hope that the realisation that this policy has no future will one day become clear to our partners, and that we will then be able to cooperate in a normal fashion"