Updated May 5, 2021
Belarus: An Overview
Since 2020, Belarusian politics and society have undergone
Given Lukashenko’s authoritarian rule, observers did not
a transformation many observers view as both tragic and
expect Tsikhanouskaya to win the election. However, the
inspiring. Before Belarus’s August 2020 presidential
official pronouncement that Lukashenko won with an
election, opposition candidate Sviatlana Tsikhanouskaya
evidently exaggerated 80% of the vote (to 10% for
mounted an unexpectedly strong campaign against
Tsikhanouskaya) quickly led to protests. The brutal
Aleksandr Lukashenko, who has ruled Belarus for more
crackdown that followed led to larger protests that many
than 26 years (Belarus was part of the Soviet Union until
observers characterized as “leaderless” and sometimes
1991). Protests against allegedly widespread electoral fraud
attracted hundreds of thousands. Protests subsequently
and a brutal crackdown on protestors led to the rise of a
dwindled in frequency and size, but activists adopted new
mass opposition movement, on a scale unseen since Belarus
methods of protest and engagement.
became independent in 1991.
Figure 1. Belarus at a Glance
Human rights activists and monitors report that more than
33,000 Belarusians have been temporarily detained or
imprisoned and that currently 360, including more than 45
women, are political prisoners. At least 10 demonstrators
and others have been killed or died in custody or under
suspicious circumstances.
The United States, the European Union (EU), the U.N.
Human Rights Council, and others have called for an end to
the crackdown and for the government to conduct a
dialogue with the opposition and hold free and fair
presidential elections.
Political Background
In past years, observers debated whether Lukashenko could
Sources: World Bank; Trade Data Monitor.
be encouraged to preside over a “softer” and more
development-oriented authoritarian regime, but political
Exile, imprisonment, and persecution have imposed
openings in Belarus were modest and short-lived. Prior to
challenges for the opposition. Tsikhanouskaya left Belarus
the 2020 election, Lukashenko appeared to be interested in
after she was detained and threatened with imprisonment.
tightening Belarus’s authoritarian system. In 2019 elections,
In exile, Tsikhanouskaya formed a Coordination Council to
pro-government candidates won all 110 seats in the lower
help lead the opposition. Five of the council’s seven senior
house of the legislature. In 2020, Lukashenko appointed an
members were detained after it was established. In
official from the security sector as prime minister.
September 2020, former campaign manager Kalesnikava
was abducted and dispatched to the Belarus-Poland border.
From May 2020, Belarusian authorities tried, but failed, to
She was imprisoned after she refused to leave the country.
suppress an unexpectedly energetic electoral opposition.
Kalesnikava and another council member, Maxim Znak,
Tsikhanouskaya was a political novice who entered the race
remain in prison. Others have left Belarus.
after her spouse, Siarhei Tsikhanousky, a popular anti-
government video blogger, was denied candidate
The opposition has organized various actions to increase
registration when he and dozens of other government critics
pressure on the government of Belarus and to secure
were in temporary detention. After his initial release,
international attention. The opposition has been supported
Siarhei Tsikhanousky was arrested again while collecting
by a network of former law enforcement officials who
signatures for his wife’s candidacy; he remains in prison.
reportedly quit their jobs in protest (or were dismissed) and
who seek to expose alleged government crimes, including
Tsikhanouskaya became the united opposition candidate
against opposition figures and protesters. The opposition
after two prominent potential candidates were denied
also has been supported by members of Belarus’s once-
registration. On the campaign trail, Tsikhanouskaya
burgeoning information and communications technology
pledged to be a transitional figure who would reintroduce
(ICT) industry, many of whom have left the country
democracy to Belarus. One denied candidate’s campaign
together with several ICT companies.
manager, Mariya Kalesnikava, and the spouse of another
denied candidate, Veranika Tsapkala, joined her on the
Relations with the West
campaign. The three women attracted tens of thousands to
The United States, the EU, and others have condemned
demonstrations.
state-sponsored violence against protestors and detainees in
Belarus and the widening crackdown. U.S. officials have
https://crsreports.congress.gov
Belarus: An Overview
conveyed support for the Belarusian people’s “right to free
Lukashenko, pursuant to E.O. 13405. These individuals
and fair elections” and called on authorities to “engage in
remain subject to sanctions.
meaningful dialogue with the Coordination Council and
Belarusian civil society.” The European Council, composed
The EU also has imposed sanctions in response to the
of the leaders of EU member states, stated the EU does “not
current crackdown in Belarus on 88 individuals, including
recognize the results” of the 2020 election.
Lukashenko, and seven entities. In 2016, the EU lifted
many of its previous sanctions for human rights abuses and
In December 2020, the 116th Congress passed and the
undermining democracy in Belarus.
President signed into law the Belarus Democracy, Human
Rights, and Sovereignty Act of 2020 (P.L. 116-260,
Relations with Russia
Division FF, Title III). The act amends the Belarus
Belarus’s closest security and economic partner is Russia.
Democracy Act of 2004 (22 U.S.C. §5811 note). Among
Belarus is a member of the Russia-led Collective Security
other things, the act states it is the policy of the United
Treaty Organization. Russia and Belarus share an air
States to reject the “invalid results” of the 2020 presidential
defense system and frequently hold joint military exercises .
elections. The Belarus Democracy Act of 2004, as
Belarus also is a member of the Russia-led Eurasian
amended, grants the President authority to impose sanctions
Economic Union and relies heavily on Russian subsidized
on persons in Belarus for human rights abuses and for
natural gas and oil and on Russian (and Chinese) loans. In
undermining democracy. In the 117th Congress, the House
addition, Belarus and Russia are members of a largely
of Representatives agreed to H.Res. 124, supporting the
aspirational bilateral “union state” that formally came into
people of Belarus and their democratic aspirations.
effect in 2000.
Since 2008, the United States has had no ambassador and a
Tensions between Belarus and Russia have increased in
limited diplomatic presence in Belarus, originally due to
recent years, with the two countries at odds over energy,
restrictions imposed by Minsk. In December 2020, the
debt, trade, and transit. Lukashenko also has rejected
Senate confirmed the appointment of Julie D. Fisher to be
Russian efforts to secure an airbase in Belarus.
the first U.S. ambassador to Belarus in more than a decade.
As of April 2021, Ambassador-Designate Fisher had not yet
Observers have speculated that Russian authorities are
presented her credentials to the government of Belarus.
using the political crisis in Belarus to deepen the two
countries’ integration, something Lukashenko has sought to
The Belarus Democracy, Human Rights, and Sovereignty
avoid. Since August 2020, the Russian government
Act of 2020 expresses the sense of Congress that foreign
reportedly has provided Belarus with a few billion dollars’
aid to Belarusian civil society “should be reevaluated and
worth of new loans. Russian media and propaganda
increased” and the U.S. Agency for Global Media should
workers were deployed to support Belarusian state media
boost U.S. broadcasting to Belarus. In recent years, U.S.
when employees went on strike in support of the protests.
assistance to Belarus has focused on independent media and
Military cooperation between Belarus and Russia has
civil society, private sector development, and vulnerable
increased, including a March 2021 announcement regarding
populations. From FY2015 to FY2019, the United States
the establishment of joint military training centers.
provided a total of about $49 million in obligated foreign
assistance to Belarus. For FY2020, the State Department
Many observers believe Moscow’s preference is for a
allocated $9.67 million in aid to Belarus.
weakened Lukashenko to stay in power and remain
dependent on Russia. Some believe Moscow might be
Sanctions
satisfied by a political change in Belarus that would not
The United States and the EU have imposed sanctions on
reduce Russia’s influence.
those they consider responsible for violence, repression,
and election fraud. The U.S. Department of the Treasury
About half of Belarus’s merchandise trade is with Russia.
has designated nine officials and four entities for sanctions
In 2019, Russia began to reduce subsidies for Belarus’s
pursuant to Executive Order (E.O.) 13405 of June 16, 2006,
crude oil imports from Russia, leading to a decline in
which established sanctions on those who engage in human
Belarus’s revenues from its own refined oil exports.
rights abuses, corruption, or the undermining of democracy
Although the dispute was eventually resolved, Belarus
in Belarus. The State Department also has imposed visa
began to seek alternative suppliers to supplement oil
restrictions on at least 109 Belarusian officials pursuant to
imports from Russia.
Presidential Proclamation 8015 of May 15, 2006.
The EU as a whole is Belarus’s second-largest trading
On April 19, 2021, the U.S. Department of the Treasury
partner, making up 20% of its merchandise trade in 2020.
announced the revocation of a Belarus -related general
Less than 1% of Belarus’s total trade is with the United
license that had authorized U.S. persons “to engage in
States. Belarus’s main exports are mineral fuels (mainly
certain transactions with nine sanctioned Belarusian state-
refined oil products, 14%), potassium fertilizers (potash,
owned enterprises,” including a major petrochemical
11%), dairy products (9%), and motor vehicles and parts
company, Belneftekhim, and several subsidiaries. The
(8%).
licenses was granted after the Belarusian government
Cory Welt, Specialist in Russian and European Affairs
released several political prisoners in 2015. Prior to 2020,
the United States also designated 16 Belarusians, including
IF10814
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Belarus: An Overview
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