It comes from the fact that the Russian Olympic Committee is not banned, only a single federation. Even then the Russian athletics federation is not completely suspended as some athletes are allowed to compete. To the IOC, because the IAAF is allowing some Russians to compete this is more like a heavy suspension where the name, officials and the vast majority of athletes are banned.
In other words the IOC is using a previous rule to prevent suspended federations from competing independently. It is either be fully banned or limited participation under the Russia flag.