The overall human rights, democracy and rule of law situation in Belarus significantly deteriorated in the run-up, conduct and aftermath of the 9 August 2020 presidential elections, which the EU recognises as neither free nor fair. In the context of brutal repression against peaceful protesters that followed the falsified elections of August 2021, on 12 October 2020, the EU Foreign Affairs Council adopted new Conclusions on Belarus. In line with these Conclusions, the EU scaled down bilateral cooperation with the Belarusian authorities at the central level, increased its support for the Belarusian people and civil society, and recalibrated its bilateral financial assistance to the maximum possible extent away from the central authorities and towards non-state, local and regional actors, including through cross-border cooperation programmes. The EU made immediately available additional financial resources for victims of violence, civil society organisations and independent media in the aftermath of the August 2020 elections.

The Conclusions also clearly specified the conditions, under which the EU would be ready again to substantially step up its political engagement, sectoral cooperation and financial assistance to Belarus. Such improvement is possible provided the Belarusian authorities respect principles of democracy, the rule of law and human rights and:

a) Stop all repression and abuses of the human rights of persons engaged in the pro-democracy movement, independent media and representatives of the civil society;

 b) Release, rehabilitate and financially compensate political prisoners;

c) Provide safe conditions for return of those in political and forced exile;

d) Promote a serious, credible and inclusive political process resulting in free and fair elections under the OSCE/ODIHR’s observation;

e) Provide guarantees for the respect for human rights, including the freedoms of opinion and expression, information, assembly and association, as well as the freedom of media.

In view of the election falsification and subsequent mass repression of peaceful protesters, civil society and media, the EU progressively imposed restrictive measures against Belarus. On 2 October 2020, 40 persons identified as responsible for repression and intimidation against peaceful demonstrators, opposition members and journalists in the wake of the 2020 presidential election, as well as for misconduct of the electoral process, were added to the existing restrictive measures. Further, on 6 November 2020 the Council added 15 members of the Belarusian authorities, including Alexander Lukashenko as well as his son and National Security Adviser Viktor Lukashenko, to the list. As the human rights situation and the rule of law continued to deteriorate, a further 36 listings were added to the sanctions list, including 7 entities supporting the regime and benefitting from it.

On 21 June 2021, in view of the escalation of serious human rights violations as well as the forced and unlawful landing of a Ryanair flight in Minsk, Belarus, on 23 May 2021, the Council imposed restrictive measures against 78 Belarusian individuals and 8 entities. New targeted economic measures, which includes trade in certain goods, and access to capital markets were also introduced on 24 June

In retaliation Belarus suggested that the Head of the EU Delegation should leave the country for consultations in Brussels (he subsequently left Belarus on 1 July 2021 and remains in Brussels now), announced the withdrawal from the Eastern Partnership and the suspension of the Readmission Agreement with the EU.

Over the summer 2021, Lithuania, Poland and Latvia have experienced an unprecedented increase in irregular border crossings from Belarus. There has been evidence that the Belarus authorities have encouraged irregular border crossings of non-EU nationals into the EU for political purposes. The EU and its member states condemned firmly the instrumentalisation of migrants and refugees by the Belarusian regime. In the declaration of 30 July 2021 and of 10 November 2021they stressed that using human beings in need to advance political goals violates fundamental European values and principles.

On 15 November, the EU amended its sanctions regime and broadened the listing criteria to enable targeting individuals and entities organising or contributing to activities that facilitate illegal crossing of the EU's external borders. On 2 December 2021, the EU adopted the fifth package of sanctions over continued human rights abuses and the instrumentalisation of migrants. Restrictive measures were imposed on additional 17 individuals and 11 entities, targeting prominent members of the judicial branch and propaganda outlets that contribute to the continued repression of civil society, democratic opposition, independent media outlets and journalists, and high-ranking political officials and companies that have helped incite and organise illegal border crossing for political purposes.

In addition, the EU proposed a new instrument preventing and restricting the activities of transport operators that engage in or facilitate smuggling or trafficking of people into the EU. The new legal framework will allow EU to adopt targeted measures against transport operators of any mode of transport (land, air, inland waterways and sea), that engage in or facilitate smuggling or trafficking of people into the EU.

Altogether 42 Belarusian officials (Ministry of Defence employees, military and local authority officials) were designated on 25 February and 2 March in respect of actions undermining or threatening the territorial integrity, sovereignty and independence of Ukraine. On 2 March 2022, the EU introduced further restrictions to the trade of goods used for the production or manufacturing of tobacco products, mineral products, potash, wood products, cement products, iron and steel products and rubber products. The new measures also prohibit the export to Belarus or for use in Belarus of dual-use goods and technology, export of goods and technology which might contribute to Belarus’s military, technological, defence and security development, and exports to machinery, together with restrictions on the provision of related services.

On 9 March 2022, the EU adopted further measures targeting the Belarusian financial sector. The measures ban a range of financial interactions and transactions with Belarus.

In light of Russia’s continuing war of aggression against Ukraine, a ban on any Russian and Belarusian road transport was introduced on 8 April, undertaking preventing them from transporting goods by road within the EU, including in transit. Derogations are nonetheless granted for a number of products, such as pharmaceutical, medical, agricultural and food products, including wheat, and for road transport for humanitarian purposes.

To-date, the EU has adopted sanctions against a total of 235 individuals and 34 entities. In order to increase the efficacy and impact of sanctions, the EU has worked together with its like-minded partners, who have adopted similar measures.  In line with the EU’s gradual approach, the EU stands ready to adopt further restrictive measures.

The European Union has always taken the situation regarding human rights and democracy in Belarus very seriously. For long, the EU has called on Belarus to adhere to its international commitments regarding the respect of fundamental freedoms, in particular freedom of assembly and association and freedom of speech and media.   Belarus is also the only country in Europe where the death penalty is still in use. The European Union has an unequivocal stance regarding the death penalty, which violates the right to life and is a cruel, inhuman and degrading punishment. The remaining death sentences should be commuted and a moratorium introduced as a first step towards its abolition.

The EU repeatedly raised human rights issues, including the death penalty, with the Belarusian authorities. The EU-Belarus Human Rights Dialogue, with the participation of the Belarusian civil society, took place annually since 2015, with the last dialogue held in June 2019. The EU has since stood ready to hold another dialogue; however, it has remained halted due to the Belarusian authorities’ refusal to continue such dialog.

Belarus had participated in the multilateral formats of the Eastern Partnership (EaP). In line with the October 2020 Council Conclusions, the EU took a decision to maintain cooperation with Belarus within the Eastern Partnership multilateral framework at non-political level and intensify cooperation with key non-state Belarusian stakeholders. On 28 June 2021, Belarusian authorities took a unilateral decision to withdraw its participation from the EaP. Despite this decision, the EU continues working with the Belarusian people to strengthen the bonds, foster regional cooperation and tackle joint challenges. In this context and ahead of the Sixth Eastern Partnership Summit which took place in Brussels on 15 December 2021, EU High Representative/ Vice President Borrell hosted  a meeting with representatives of a democratic opposition to reiterate the EU commitment to people of Belarus. The meeting was also attended by President of the European Council Michel held

Negotiations on the EU-Belarus Partnership Priorities (PPs) started in 2016 and are currently on hold. The EU-Belarus Coordination Group was established in 2016 to provide a forum for policy dialogue at the level of senior officials with participation of the civil society. Following the review of EU-Belarus relations undertaken following the falsified elections in 2020, the meetings of the Coordination Group were also put on hold until further notice.

Before 2020, the EU had been the largest grant donor in Belarus. Between 2016 and 2020, the EU’s financial allocation for Belarus amounted to annual assistance of around €30 million, aiming to improve the quality of life of Belarusian citizens in a tangible and visible manner. This support was funded from the European Neighbourhood Instrument (ENI) for the period 2014-2020.

On 11 December 2020, the European Commission adopted a €24 million assistance package, to directly benefit the Belarusian people – in particular civil society, youth and small and medium-sized enterprises (SMEs) – and to improve health capacities. This programme came in addition to €3.7 million EU emergency support immediately mobilised for the victims of repression and independent media after the Belarus presidential elections held in August. Further support to facilitate SMEs’ access to finance, worth €6 million, was also mobilised.

On 12 December 2021, the President of the European Commission, Ursula von der Leyen, announced that the EU will mobilise an additional €30 million to strengthen its support to the people of Belarus, and complement and expand the already existing EU assistance for youth, independent media, small and medium-sized enterprises in exile, and culture. This would bring the overall assistance the EU is providing to the people of Belarus since August 2020 to close to €65 million. Once Belarus embarks on a democratic transition, the EU is also ready to launch a €3 billion comprehensive plan of economic support for a democratic Belarus to help stabilise its economy, unlock growth potential, and create jobs.

For more information on financial cooperation, please see here: Belarus Page of DG NEAR (European Neighbourhood Policy and Enlargement Negotiations)

The EU is committed to strengthening the engagement with Belarusian people and civil society and in recent years has stepped up support to Belarus in education, mobility, youth and the facilitation of people-to-people contacts.

The EU-Belarus Visa Facilitation and Readmission Agreements entered into force on 1 July 2020, paving the way for improved mobility of citizens, contributing to closer people-to-people contacts between the EU and its Eastern Partnership neighbours, and facilitating the swift return of irregular migrants.

The visa facilitation agreement made it easier for Belarusian citizens to acquire visas to come to the European Union. For all citizens of Belarus, regardless of their travel purpose or type of passport, the visa fee was reduced to €35, the service fee was lowered to €30 and the deadline for consulates to take a decision on a visa application was shortened to no more than 10 days. In addition, for some categories of travellers, such as businesspeople, journalists, representatives of civil society organisations, members of official delegations and several others, the visa fee was altogether waived, there are less documents requested as evidence for purpose of travel, and they are eligible for multiple-entry visas for a longer duration (up to 5 years).

The readmission agreement established, on the basis of reciprocity, procedures for the safe and orderly return of persons who reside irregularly in the EU or Belarus, in full respect of their rights under international law. On 28 June 2021, the Belarusian authorities took a unilateral decision to suspend this agreement and a law suspending the readmission agreement was passed by the parliament on 4 October.

In light of the Lukashenko regime's attempts to destabilise the EU and its Member States by facilitating irregular migration for political purposes, as well as its decision to suspend the EU–Belarus readmission agreement, the Council of the European Union adopted on 9 November 2021 a decision partially suspending the application of the EU-Belarus visa facilitation agreement. The suspension covers the provisions that waive requirements for documentary evidence, regulate the issuing of multiple entry visas and reduce visa application fees as they apply to officials of the Belarus regime. This decision will not affect ordinary citizens of Belarus, who will continue to enjoy the same benefits under the visa facilitation agreement as they do currently.

Young Belarusians also continue to benefit from education, training and youth exchanges under the  Erasmus+ and EU4Youth programmes and the European School for the Eastern Partnership in Georgia.

Before the current low point of the EU-Belarus bilateral relations, the European Union was Belarus' 2^nd trading partner with a share of almost a fifth of the country's overall trade. EU-Belarus bilateral trade in goods reached €12.9 billion in 2020.. Belarus' exports to the EU were dominated by mineral fuels, wood and base metals, while the EU exports mainly machinery, transport equipment and chemicals to Belarus. However, since Russia’s unjustified and unprovoked invasion of Ukraine, with support from the Lukashenko regime, the EU has imposed further sanctions on Belarus, which include bans on the import into the EU of potash, mineral fuels and oils, wood, iron and steel, cement and rubber tyres; and the export to Belarus of dual-use goods (with certain limited exceptions), certain types of machinery and certain items used for the production of tobacco products. Details of the sanctions can be found here.

The EU and Belarus had previously established a formal Trade Dialogue, which gathered twice a year until the political and humanitarian crisis that followed the falsified elections of 2020 in order to exchange views and information on a regular basis, including on domestic regulations and other trade concerns. The EU had also previously supported Belarus’ WTO accession process, including the requirements to introduce domestic reforms leading to the creation of a more predictable and stable business environment in the country, which is a necessary condition to attract investors and diversify the Belarusian economy. In this context, the European Union had provided technical assistance to help with this process through the TAIEX twinning instrument. However, in light of Russia’s unjustified and unprovoked military aggression against Ukraine on 24 February 2022, and the Lukashenko regime’s complicity in this invasion, many WTO members, including the EU, took a decision to stop any further consideration of Belarus’s application for accession.

In recent years, the lending mandate of the European Investment Bank (EIB) was extended to include Belarus, while the financing activities of the European Bank for Reconstruction and Development (EBRD) were extended. From 2016 until the political and humanitarian crisis of 2020, the EIB committed €530 million to support private sector and small and medium enterprises, key infrastructure and climate action projects. However, further to the EU’s review of its relations with Belarus, the European Investment Bank (EIB) also carried out the review of its operations in Belarus. The EU Member States coordinated their positions accordingly also within the European Bank for Reconstruction and Development (EBRD) Board of Directors. The EU stands ready substantial scaling up of EIB and EBRD operations.

Prior to the political and human rights crisis which worsened in 2020, sectoral dialogues on economic and financial issues as well as environment and climate action had taken place on an annual basis. The EU had stepped up the implementation of a number of measures that would enhance EU-Belarus relations in several fields related to the economy, trade, and energy. The Strengthening Private Initiative Growth in Belarus (SPRING) Programme backs private local economic initiatives in order to develop the private sector, increase job creation, and promote economic growth in Belarus. EU remains ready to support also a large-scale business consultancy programme implemented by the EBRD and a project supporting the development of employment-generating strategies and eco-systems to support SMEs and entrepreneurship at the local level, implemented by the UNDP, should the conditions for granting such support be in place.

Other EU initiatives such as the Covenant of Mayors East – Phase II and Mayors for Economic Growth projects offered grant support to local authorities most active in adopting pilot measures in energy efficiency and job creation, reinforcing the roles of local authorities in economic development.

On 19 June 2017, Belarus joined the Eastern Europe Energy Efficiency and Environment Partnership (E5P) (link is external) (link is external) (link is external). This Trust Fund, managed by the EBRD, supports loans for municipal sector projects across the Eastern Partnership countries on energy efficiency and the environment.

Belarus used to be one of the strongest-performing Eastern Partnership countries in the Horizon 2020 programme for research and innovation. In the 2018-2020 Work Programme for Horizon 2020, almost €200 million had been allocated to a series of calls focusing on energy and resource efficiency in the process industry ("SPIRE") with a particular geographical focus on the Eastern Partnership countries. However, Belarus participation in this programme has been reviewed in the context of the worsening human rights situation following the August 2020 elections. For the same reason, Belarus’ participation in the EU new Horizon Europe programme has been halted.

The respect of the highest nuclear safety standards is a key priority for the EU.. In 2018, the European Nuclear Safety Regulators Group (ENSREG) carried out a peer review of Belarus’s nuclear safety stress test report for the Astravets  (link is external) (link is external) nuclear power plant. ENSREG experts carried out a peer review of Belarus’s nuclear safety stress test action plan, and endorsed its report in November 2021. However, as a result of Belarus’s complicity with Russia’s invasion of Ukraine, ENSREG decided to suspend Belarus’s participation in its activities until further notice. The EU has been supporting the Belarusian nuclear regulatory authority Gozatomnadzor via technical assistance since 2013, under the Instrument for Nuclear Safety Cooperation (INSC). This cooperation was considered important to assist Belarus with regard to its nuclear power plant constructed in Astravets, put into operation in late 2020. As a result of Belarus’ complicity with Russia’s invasion of Ukraine, this cooperation was suspended until further notice on 24 February 2022.

As stated in the 12 October Council Conclusions, the EU would be ready to support Belarus, should such a transition take place, and upon the request by the Belarusian government. The EU will use a variety of instruments in line with the Eastern Partnership policy. The following would i.a. be considered:

a) Entering into negotiations on a EU-Belarus framework agreement;

b) Strengthening of sectoral cooperation and increasing participation in EU programmes and cooperation with EU agencies.

c) Launch of a comprehensive plan of economic support for democratic Belarus including:

·       Substantial financial and technical assistance for institutional reforms and economic development within the multiannual financial framework;

·       Resumption of talks on further reforms needed to enable EU’s macro-financial assistance;

·       Substantial scaling up of EIB and EBRD operations; 

The EU would also further support Belarus in its accession to the World Trade Organization.