Updated December 10, 2021
Belarus: An Overview
Since August 2020, authorities in Belarus have engaged in a
protests that many observers characterized as “leaderless”
political, media, and civil society crackdown that human
and that sometimes attracted hundreds of thousands.
rights monitors have called “unprecedented” and
“catastrophic.” More than 37,000 Belarusians reportedly
Tsikhanouskaya left Belarus after she was detained and
have been detained or imprisoned; more than 900 are
threatened with imprisonment. From neighboring Lithuania,
considered political prisoners. Several have been killed or
she formed a Coordination Council to help lead the
have died under suspicious circumstances. In addition to
opposition. Kalesnikava was abducted and dispatched to the
persecuting opposition members and protest participants,
Belarus-Ukraine border. She was imprisoned after she
authorities have intensified repression against independent
refused to leave the country. In September 2021,
media and civil society organizations, journalists, and
Kalesnikava and another council member, Maksim Znak,
human rights defenders. The United States, the European
were sentenced to 11 and 10 years in prison, respectively.
Union (EU), and others have called for an end to the
crackdown and for the government to hold free and fair
The opposition has organized various actions to increase
presidential elections. The U.S. Congress has passed
pressure on the government of Belarus and to secure
legislation supporting democracy in Belarus.
international attention. A network of former law
enforcement officials who seek to expose alleged
The crackdown in Belarus emerged in response to the rise
government crimes has supported the opposition. Members
of a mass opposition movement, on a scale unseen since
of Belarus’s once-burgeoning information and
Belarus became independent in 1991 (Belarus previously
communications technology industry, many of whom have
was part of the Soviet Union). The movement arose out of
left the country, also have supported the opposition.
protests against seemingly widespread electoral fraud in the
wake of an August 2020 presidential election, during which
Figure 1. Belarus at a Glance
opposition candidate Sviatlana Tsikhanouskaya mounted an
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
Sources: World Bank; Trade Data Monitor
after two prominent potential candidates also were denied
Forced Air Diversion and Migrant Crisis
registration. One of them, banker Viktar Babaryka, was
arrested on charges of bribery and money laundering that
In addition to engaging in human rights abuses, Belarusian
observers considered politically motivated. In July 2021,
authorities have taken controversial actions internationally.
Babaryka was sentenced to 14 years in prison.
In May 2021, authorities alleged a bomb threat against
Ryanair Flight 4978 (en route from Athens to Vilnius) and
On the campaign trail, Tsikhanouskaya pledged to be a
required the plane to land in Minsk with a military escort.
transitional figure who would reintroduce democracy to
An EU official referred to the seemingly fake threat as an
Belarus. Babaryka’s campaign manager, Mariya
“act of state piracy.” The evident purpose of the diversion
Kalesnikava, and the spouse of another denied candidate
was to capture passenger Raman Pratasevich, cofounder of
joined her on the campaign. The three women attracted tens
a popular Belarusian online news channel that had
of thousands to demonstrations.
facilitated 2020 postelection protests. Belarusian authorities
arrested Pratasevich and his companion, Russian national
Given Lukashenko’s authoritarian rule, observers did not
Sofia Sapega, after the plane landed in Minsk. The United
expect Tsikhanouskaya to win the election. However, the
Nations’ International Civil Aviation Organization is
official pronouncement that Lukashenko won with an
investigating the incident. In June 2021, authorities
evidently exaggerated 80% of the vote quickly led to
transferred Pratasevich and Sapega to house arrest.
protests. A brutal crackdown that followed led to larger
https://crsreports.congress.gov
Belarus: An Overview
Subsequently, European and U.S. officials accused
note). Among other things, the act states it is the policy of
Belarusian authorities of facilitating migration flows—
the United States to reject the “invalid results” of the 2020
mainly from Iraq but also from Syria, Afghanistan, and
presidential elections. The Belarus Democracy Act of 2004,
elsewhere—to Belarus and on to Belarus’s borders with
as amended, grants the President authority to impose
neighboring EU member states Lithuania and Poland (and,
sanctions on persons in Belarus for human rights abuses
to a lesser extent, Latvia). Many observers contend
and for undermining democracy. In the 117th Congress, the
Belarusian authorities have taken these actions in response
House of Representatives agreed to H.Res. 124, supporting
to Western sanctions. Responding to European accusations
the people of Belarus and their democratic aspirations.
of “hybrid warfare,” Lukashenko said the EU had “put us in
such conditions that we have to react. And we are reacting
Since 2008, the United States has had no ambassador and a
... in the best way we can.” Several thousand migrants
limited diplomatic presence in Belarus, originally due to
remain in Belarus, and many reportedly continue to seek to
restrictions imposed by Minsk. In 2020, the Senate
cross the border. For more, see CRS In Focus IF11983,
confirmed the appointment of Julie D. Fisher as the first
Migrant Crisis on the Belarus-Poland Border.
U.S. ambassador to Belarus in more than a decade.
Belarusian authorities reportedly did not grant Ambassador
Relations with Russia
Fisher a visa to enter Belarus and, in August 2021, revoked
Belarus’s closest partner is Russia. Belarus is a member of
their consent to her appointment. In July 2021, President
the Russia-led Collective Security Treaty Organization, and
Biden, Secretary of State Antony Blinken, and Members of
the two countries share an air defense system. Belarus also
Congress met with opposition leader Tsikhanouskaya.
is a member of the Russia-led Eurasian Economic Union
and relies heavily on Russian subsidized natural gas and oil
In recent years, U.S. assistance to Belarus has focused on
and on Russian (and Chinese) loans. In addition, Belarus
independent media and civil society, private sector
and Russia are members of a largely aspirational bilateral
development, and vulnerable populations. For FY2021, the
“union state” that formally came into effect in 2000.
State Department allocated $10.2 million in aid to Belarus.
The President’s FY2022 State and Foreign Operations
Observers suggest that Russian authorities have used the
budget request includes $15 million “to support the
political crisis in Belarus to deepen the two countries’
democratic aspirations of the Belarusian people.”
integration, something Lukashenko previously sought to
avoid. The Russian government has provided or promised
U.S. and EU Sanctions
Belarus with new loans worth more than a billion dollars.
The United States and the EU have imposed sanctions in
Military cooperation between Belarus and Russia has
response to Belarusian authorities’ human rights abuses and
increased, including the establishment of joint military
international violations. As of December 9, 2021, the U.S.
training centers and air border patrols. Russia and Belarus
Department of the Treasury had imposed sanctions on 84
have committed to deepening their economic integration
individuals, 51 entities, and 3 aircraft pursuant to Executive
within the “union state” framework.
Order (E.O.) 14038 of August 9, 2021, which established
sanctions on those who engage in human rights abuses,
About half of Belarus’s merchandise trade is with Russia.
electoral fraud, corruption, and other harmful activities in
In 2019, Russia began to reduce subsidies for Belarus’s
Belarus, or E.O. 13405 of June 16, 2006, which established
crude oil imports from Russia, leading to a decline in
sanctions in response to similar activities. The EU has
Belarus’s revenues from its own refined oil exports.
imposed sanctions on 183 individuals and 26 entities.
The EU as a whole is Belarus’s second-largest trade
Individuals 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 product companies. The State
products (9%), and motor vehicles and parts (8%).
Department has imposed visa restrictions on several dozen
other individuals, as well. The EU has imposed sectoral
Relations with the United States and
sanctions that, among other restrictions, prohibit certain
Europe
kinds of trade in petroleum products and potash. The United
The United States, the EU, and others have condemned the
States, the EU and other European states have imposed
crackdown in Belarus, the Ryanair flight diversion, and the
restrictions on air travel to and from Belarus.
manufactured migrant crisis. U.S. officials have conveyed
support for the Belarusian people’s “right to free and fair
Among other responses, Belarusian authorities have
elections” and have called on authorities to “engage in
reduced the number of permitted staff at the U.S. Embassy
meaningful dialogue with the Coordination Council and
in Belarus, revoked permission for the U.S. Agency for
Belarusian civil society.” The European Council, composed
International Development to work in Belarus, suspended
of the leaders of EU member states, stated the EU does “not
participation in the EU’s Eastern Partnership program, and
recognize the results” of the 2020 election.
imposed sanctions on some EU and U.S. food imports.
The Belarus Democracy, Human Rights, and Sovereignty
Cory Welt, Specialist in Russian and European Affairs
Act of 2020 (P.L. 116-260, Division FF, Title III) amends
IF10814
the Belarus Democracy Act of 2004 (22 U.S.C. §5811
https://crsreports.congress.gov
Belarus: An Overview
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https://crsreports.congress.gov | IF10814 · VERSION 21 · UPDATED