Updated September 17, 2021
Belarus: An Overview
Since August 2020, authorities in Belarus have engaged in a
protests that many observers characterized as “leaderless”
wide-ranging political, media, and civil society crackdown
and that sometimes attracted hundreds of thousands.
that human rights monitors have called “unprecedented”
and “catastrophic.” About 35,000 Belarusians reportedly
Tsikhanouskaya left Belarus after she was detained and
have been detained or imprisoned; about 675 are considered
threatened with imprisonment. From neighboring Lithuania,
political prisoners. Several have been killed or have died
she formed a Coordination Council to help lead the
under suspicious circumstances. In addition to persecuting
opposition. Kalesnikava was abducted and dispatched to the
opposition members and protest participants, authorities
Belarus-Poland border. She was imprisoned after she
have intensified repression against independent media and
refused to leave the country. In September 2021,
civil society organizations (including U.S.-funded Radio
Kalesnikava and another council member, Maksim Znak,
Free Europe/Radio Liberty), journalists, and human rights
were sentenced to 11 and 10 years in prison, respectively.
defenders. The United States, the European Union (EU),
and others have called for an end to the crackdown and for
The opposition has organized various actions to increase
the government to hold free and fair presidential elections.
pressure on the government of Belarus and to secure
international attention. A network of former law
The crackdown in Belarus emerged in response to the rise
enforcement officials who seek to expose alleged
of a mass opposition movement, on a scale unseen since
government crimes has supported the opposition. Members
Belarus became independent in 1991 (Belarus previously
of Belarus’s once-burgeoning information and
was part of the Soviet Union). The movement arose out of
communications technology industry, many of whom have
protests against allegedly widespread electoral fraud in the
left the country, also have supported the opposition.
wake of an August 2020 presidential election, during which
opposition candidate Sviatlana Tsikhanouskaya mounted an
Figure 1. Belarus at a Glance
unexpectedly strong campaign against Aleksandr
Lukashenko, who has ruled Belarus for more than 27 years.
Political Background
In past years, observers debated whether Lukashenko could
be encouraged to preside over a “softer” regime, but
political openings in Belarus were modest and short-lived.
From May 2020, Belarusian authorities tried but failed to
suppress an unexpectedly energetic electoral opposition.
Tsikhanouskaya was a political novice who entered the race
after her spouse, a popular anti-government video blogger,
was denied candidate registration and imprisoned.
Tsikhanouskaya became the united opposition candidate

after two prominent potential candidates also were denied
Sources: World Bank; Trade Data Monitor.
registration. One of them, banker Viktar Babaryka, was
arrested on charges of bribery and money laundering that
Forced Flight Diversion and Irregular
Migrant Flows
observers considered politically motivated. In July 2021,
Babaryka was sentenced to 14 years in prison.
Belarusian authorities have taken aggressive actions
internationally. On May 23, 2021, authorities alleged a
On the campaign trail, Tsikhanouskaya pledged to be a
bomb threat against Ryanair Flight 4978 (en route from
transitional figure who would reintroduce democracy to
Athens to Vilnius) and required the plane to land in Minsk
Belarus. Babaryka’s campaign manager, Mariya
with a military escort. A senior EU official referred to the
Kalesnikava, and the spouse of another denied candidate
seemingly fake threat as an “act of state piracy.” The
joined her on the campaign. The three women attracted tens
evident purpose of the diversion was to capture passenger
of thousands to demonstrations.
Raman Pratasevich, cofounder of a popular Belarusian
online news channel that had facilitated 2020 postelection
Given Lukashenko’s authoritarian rule, observers did not
protests. Belarusian authorities arrested Pratasevich and his
expect Tsikhanouskaya to win the election. However, the
companion, a Russian national, after the plane landed in
official pronouncement that Lukashenko won with an
Minsk. The United Nations’ International Civil Aviation
evidently exaggerated 80% of the vote quickly led to
Organization launched an investigation of the incident. In
protests. A brutal crackdown that followed led to larger
June 2021, authorities transferred Pratasevich and Sapega to
house arrest.
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Belarus: An Overview
In summer 2021, authorities from Lithuania, Latvia, and
sanctions on persons in Belarus for human rights abuses
Poland accused Belarus of launching a campaign to send
and for undermining democracy. In the 117th Congress, the
illegal migrants from Iraq and other countries to Belarus
House of Representatives agreed to H.Res. 124, supporting
and across EU borders. Responding to European
the people of Belarus and their democratic aspirations.
accusations of “hybrid warfare,” Lukashenko said the EU
had “put us in such conditions that we have to react. And
Since 2008, the United States has had no ambassador and a
we are reacting ... in the best way we can.”
limited diplomatic presence in Belarus, originally due to
restrictions imposed by Minsk. In 2020, the Senate
Relations with Russia
confirmed the appointment of Julie D. Fisher as the first
Belarus’s closest partner is Russia. Belarus is a member of
U.S. ambassador to Belarus in more than a decade.
the Russia-led Collective Security Treaty Organization, and
Belarusian authorities reportedly have not granted
the two countries share an air defense system. Belarus also
Ambassador Fisher a visa to enter Belarus and, in August
is a member of the Russia-led Eurasian Economic Union
2021, revoked their consent to her appointment. In July
and relies heavily on Russian subsidized natural gas and oil
2021, President Biden, Secretary of State Antony Blinken,
and on Russian (and Chinese) loans. In addition, Belarus
and Members of Congress met with opposition leader
and Russia are members of a largely aspirational bilateral
Tsikhanouskaya in Washington, DC.
“union state” that formally came into effect in 2000.
In recent years, U.S. assistance to Belarus has focused on
Observers speculate that Russian authorities are using the
independent media and civil society, private sector
political crisis in Belarus to deepen the two countries’
development, and vulnerable populations. For FY2021, the
integration, something Lukashenko has sought to avoid.
State Department allocated $10.2 million in aid to Belarus.
The Russian government has provided Belarus with new
The President’s FY2022 State and Foreign Operations
loans worth hundreds of millions of dollars. Russian media
budget request includes $15 million “to support the
workers were deployed to support Belarusian state media
democratic aspirations of the Belarusian people.”
when employees went on strike in support of the protests.
Military cooperation between Belarus and Russia has
U.S. and EU Sanctions
increased, including the establishment of joint military
The United States and the EU have imposed sanctions in
training centers and air border patrols.
response to state-sponsored violence, repression, and
election fraud in Belarus. As of September 17, 2021, the
About half of Belarus’s merchandise trade is with Russia.
U.S. Department of the Treasury had designated 64
In 2019, Russia began to reduce subsidies for Belarus’s
individuals and 39 entities for sanctions pursuant to
crude oil imports from Russia, leading to a decline in
Executive Order (E.O.) 14038 of August 9, 2021, which
Belarus’s revenues from its own refined oil exports.
established sanctions on those who engage in human rights
Although the dispute was eventually resolved, Belarus
abuses, electoral fraud, corruption, and other harmful
began to seek alternative suppliers to supplement oil
activities in Belarus, and E.O. 13405 of June 16, 2006,
imports from Russia.
which established sanctions in response to similar activities.
The EU as a whole is Belarus’s second-largest trade
Persons and entities subject to U.S. sanctions include
partner, with 20% of its merchandise trade in 2020. Less
Lukashenko, who already was subject to sanctions prior to
than 1% of Belarus’s total trade is with the United States.
2020; other officials and businesspeople; and state-owned
Belarus’s main exports are mineral fuels (mainly refined oil
companies, including major petrochemical, potash
products, 14%), potassium fertilizers (potash, 11%), dairy
(fertilizer), and tobacco companies. The State Department
products (9%), and motor vehicles and parts (8%).
has imposed visa restrictions on several dozen other
individuals, as well.
Relations with the United States and
Europe
In addition to sanctions in response to the Ryanair flight
The United States, the EU, and others have condemned the
diversion, the United States has banned air travel to
crackdown in Belarus, the Ryanair flight diversion, and the
Belarus. Among other responses, Belarusian authorities
campaign of irregular migrant flows. U.S. officials have
have reduced the number of permitted staff at the U.S.
conveyed support for the Belarusian people’s “right to free
Embassy in Belarus and revoked permission for the U.S.
and fair elections” and have called on authorities to “engage
Agency for International Development to work in Belarus.
in meaningful dialogue with the Coordination Council and
Belarusian civil society.” The European Council, composed
As of September 17, 2021, the EU had imposed sanctions
of the leaders of EU member states, stated the EU does “not
on 166 individuals and 15 entities in Belarus. The EU also
recognize the results” of the 2020 election.
had imposed sectoral sanctions that, among other
restrictions, prohibit certain kinds of trade in petroleum
The Belarus Democracy, Human Rights, and Sovereignty
products and potash. The EU and other European states
Act of 2020 (P.L. 116-260, Division FF, Title III) amends
have prohibited Belarusian airline carriers from overflights
the Belarus Democracy Act of 2004 (22 U.S.C. §5811
of their airspace and access to their airports. The EU
note). Among other things, the act states it is the policy of
Aviation Safety Agency has called on member states to
the United States to reject the “invalid results” of the 2020
restrict flights through Belarusian airspace.
presidential elections. The Belarus Democracy Act of 2004,
as amended, grants the President authority to impose
Cory Welt, Specialist in Russian and European Affairs
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Belarus: An Overview

IF10814


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https://crsreports.congress.gov | IF10814 · VERSION 18 · UPDATED

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