If you have started from the 1918 scenario, Russia is no more at war So it's not controlled by you, it's communist! That's why you see the locker... you cannot access the Politics window.
PhilThib wrote:What does the tooltip says? Send us a screenshot please... you're in May 1919 ?
Here is a zip file of the screen. I was incorrect, its not Russia but Serbia. The window shows a padlock and (32 +1) , two player campaign started Aug 1914. Current time is May 1919(I am the allieds).
The locker is displayed because Serbia is a minor power, so you cannot access the Political Actions window, because Serbia has no political option to play.
Minor nations have a NW value, that is the maximum (40) almost always. This is just to "reproduce" the NW combat bonus, only for this reason.