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USAID/Belarus 

Operational Plan 

FY 2006 

June 13, 2006 
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Please Note: 

The attached RESULTS INFORMATION is from the FY 2006 Operational Plan and was assembled 

and analyzed by the country or USAID operating unit identified on the cover page. 

The Operational Plan is a "pre-decisional" USAID document and does not reflect results stemming 

from formal USAID review(s) of this document. 

Related document information can be obtained from: 

USAID Development Experience Clearinghouse 

8403 Colesville Road, Suite 210 

Silver Spring, MD 20910 

Telephone: (301) 562-0641 

Fax: (301) 588-7787 

Email: docorder@dec.cdie.org 

Internet: http://www.dec.org 

Portions released on or after July 1, 2006 
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Program Performance Summary FY 2005: I. Democratic Reform 

A. Country Situation: 

The 2004 referendum that allows Alexander Lukashenko to stand for reelection indefinitely demonstrated 

a steady regress in the country’s commitment to reform. According to the Freedom House Nations in 

Transit 2005 report, Belarus’s rating for electoral process has dropped from 6.75 to 7.00 because of the 

executive branch's increasing control over the electoral process. The referendum marked the start of the 

incumbent’s reelection campaign, which will culminate in elections in March 2006. His main message is 

that “prosperous” Belarus is an island of stability in a turbulent world, and that a change of government 

would put an end to this stability and lower living standards. At the same time, authorities have stepped 

up their pressure on critics, and tightened laws governing the activity of political parties, NGOs, and think 

tanks. 

Unable to fulfill the Ministry of Justice’s directive to move their offices from residential to office buildings, 

pro-democracy parties this year were forced to liquidate a number of their regional branches. This years’ 

edition of the Law on Political Parties placed further restrictions on parties’ activities, and empowered the 

authorities to suspend political parties for up to six months. The law also obliges parties to register their 

unions and associations with the Ministry of Justice, which is a de facto ban on activities of any coalitions 

as the Ministry has not registered a single new party over the past several years. 

The GOB also tightened control over independent polls. After closing down one of the most reputable 

think tanks in Belarus, the Council of Ministers issued a directive for all pollsters conducting public opinion 

surveys on national referenda, elections, and the political situation in the country, to apply for 

accreditation to a special panel, which retained a right to revoke accreditation if it detected irregularities in 

the pollster’s activities or if released poll results were “biased and unreliable”. 

Several new legal acts also negatively affected the environment for NGOs. Now NGOs are required to 

register every conference and seminar organized with donor funding, as well as register all NGO unions, 

associations, and public initiatives. NGO activities may be suspended for up to six months through court 

proceedings; misuse of gratuitous foreign aid and a single violation of a regulation governing mass events 

may lead to liquidation. This environment forces many NGOs to resort to survival tactics. In spite of the 

extremely harsh environment for indigenous organizations, NGO activists remained commitment to 

continue their work and prevent the complete extinction of civil society in Belarus. 

While the government does much to prevent any form of self-organization, the leading pro-democracy 

forces have managed to consolidate, unify, and elect their common contender for the 2006 presidential 

election. Members of the two largest coalitions -- Five Plus and the European Coalition -- pro-democracy 

NGOs, independent media, and other political actors established a Permanent Council of Pro-Democracy 

Forces in order to conduct a presidential campaign with one candidate, one common political platform, 

and one election team. In the spring and summer of 2005, democratic forces held a number of 

conferences throughout Belarus to elect over 800 delegates who later elected their single presidential 

candidate, Alexander Milinkevich. At the same time, there is no overall unity among all the opposition 

forces: some prominent opposition figures who were not a part of the common process announced their 

presidential ambitions, and others established a new coalition. 

B. U. S. Assistance Priorities: 

The focus of U.S. assistance in addressing key challenges was to support indigenous civil society 

institutions: NGOs and public initiatives; pro-democracy political parties and civic groups; and 

independent media outlets. 

C. Program Performance: 

In 2005, the government persisted with its policy of controlling alternative viewpoints and information 

sources, imposing fines and limiting the distribution of independent publications. USAID supported 
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independent newspapers through technical services. Pre-publication analysis of articles from a legal 

standpoint, and free legal hotline consultations ensured that fewer independent print publications were 

brought to trial. Due to the independent media’s increased professionalism in providing objective and 

quality information, the level of public trust in the independent media continues to be high despite 

interrupted publication and the closure of these newspapers. 

Paradoxically, after the closure in 2004 of a successful USAID-funded program implemented by 

Counterpart International, the government registered grants awarded through this program to local NGOs 

earlier. Eleven grant projects were successfully implemented. USAID worked with 18 local communities 

and around 30 NGOs. To foster increased citizens’ involvement in community initiatives, 55 training 

workshops were conducted for more than 300 NGO and community activists. Seven study tours to other 

Eastern Europe countries were conducted for 82 leaders of NGO partners and representatives of local 

government and local businesses to learn best practices from neighboring countries. The program also 

contributed to information dissemination by local media, and managed to produce and broadcast 35 

television programs in talk-show format on social, economic, and civic issues. Talk shows were 

broadcasted in seven towns with a combined population of 1,400,000 people. 

USAID continued to provide assistance to NGO lawyers. As a part of NGO Legal Advocacy, USAID 

supported development of a web site for NGOs, a valuable resource on current legal regulations on NGO 

activity, and assisted the NGO Assembly in conducting a roundtable for 70 NGO lawyers on rendering 

legal aid in a new working environment. This year, USAID and its local partners started a Legal 

Advocacy Initiative, analyzing the impact of mandatory short-term employment contracts on employee 

rights. As a result, guidelines in the form of pamphlets were developed and distributed throughout the 

country. Also, the NGOs conducted a public legal education campaign on the issue of mandatory shortterm contracts. USAID sponsored 12 seminars attended by 365 people. Consequently, 18 attendees 

brought successful lawsuits against their employers for violation of labor rights through mandatory shortterm contracts. 

II. Economic Reform Assistance 

A. Country Situation: 

The Belarus economy has been relatively stable over the last years due to a favorable external economic 

environment, and growing domestic demand. However, the situation is very different from other transition 

economies: the state dominates production and exports, and interferes in the operations of both state 

enterprises and private companies; the tax burden is high, and the budget is redistributed to support 

traditional producers and employment. According to the World Bank 2005 Country Economic 

Memorandum for the Republic of Belarus, nine years of economic growth have not been backed up by 

sound and consistent macroeconomic policies, structural and institutional reforms. Belarus’ economy is 

highly dependent on a single and unstable Russian market (about 50% of all exports) and oil prices. The 

GOB has been delaying adjustments to market energy prices, because according to the WB, this 

adjustment could bring costs as high as 6% GDP per year. Belarus has managed to maintain moderate 

budget deficits and debt levels, however, inflation remains significant. Despite declarations, GOB policy 

has not been able to attract foreign direct investment as the investment legislation and environment are 

not favorable in comparison to other transition economies. According to the EBRD, Belarus showed the 

least amount of progress among all transition economies in such reform areas as enterprise restructuring, 

large-scale privatization and infrastructure reform. The private sector in Belarus is relatively weak and 

disadvantaged; the playing field for private companies is uneven as the government continues to support 

loss-making companies based on ideological premises. 

B. U.S. Assistance Priorities: 

Belarus’ economic indicators are strong for the region, but mask a lack of willingness to initiate structural 

reforms. At the same time, the share of the economy in the private sector is among the lowest in the 

region. Under these circumstances, USAID programs should focus on strengthening the weak SME 

sector; providing economic/business education and stimulating a public dialogue on reform. 
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C. Program Performance: 

The Belarus Economic Education Project launched in April 2005 provided unbiased economic information 

through economic education and accounting training. As a catalyst for dialogue among government 

officials, business, academia and civil society on regional economic development, integration and 

economic reform, five regional roundtables and one national conference were conducted. The project 

also worked to bring financial reporting in compliance with international standards by launching 

CAP/CIPA world-class, Russian language professional accountancy certification program. This year 

several groups of professionals, mostly from the private sector, benefited from training in financial 

accounting, managerial accounting, tax and law. The first ever CAP/CIPA exams in the country included 

57 examinees in financial accounting and 48 examinees in managerial accounting, and resulted in the 

highest pass rate (over 80%) in all of the Newly Independent States. USAID also provided technical 

assistance to a local private economic research institution and a public association of accountants and 

auditors. As a result of these efforts, the association revitalized its activity, and became an associate 

member of the Eurasian Council of Certified Accountants and Auditors. USAID also supported EBRD’s 

Microlending Program. Two EBRD partner banks developed their regional micro-lending network through 

the establishment of four new specialized micro-lending units within existing bank branch offices. USAID 

assistance also helped to expand the team of loan officers and consultants by 24 members for newly 

established micro-lending units. Regular training and seminars for consultants, loan officers and newly 

selected trainees were carried out. 

Increase Agricultural Sector Productivity. The agriculture activity’s focus area is in increasing farmers’ 

incomes by improving the performance of privatized collective farms throughout Belarus. During FY05, 

Agribusiness Volunteer Program in Belarus assisted privatized collective farms that are most committed 

to innovation. The project benefited 934 farm workers (more than 3,000 counting family members). 

During FY05, eight host organizations benefited from 19 volunteer assignments. As a result of this 

assistance, host organizations improved production and increased sales, which led to a 34% increase in 

net income and a 19% increase in average employee monthly payroll in comparison with 2004. 

III. Social Reform and Humanitarian Assistance 

A. Country Situation: 

The GOB’s social protection policies are used as its main tool for ensuring public support. However, 

according to UNDP’s National Human Development Report 2004-2005, Belarus may face serious social 

and economic consequences if it delays transition changes. Poverty remains relatively high: more than 

27% live below the official poverty line, and the ratio of the population living on less than the minimum 

subsistence level varies significantly between regions and urban and rural areas, reaching to 45.6% in 

some rural areas. The demographic situation is marked by a fast decline in fertility and a rapid rise in 

mortality, particularly among the working-age male population. Since 1993, Belarus’s population 

decreased by 434,500. According to the 2005 World Population Data Sheet of the Population Reference 

Bureau (PRB), Belarus is among the countries with lowest fertility rates worldwide. PBR projects that if 

the trend continues, by 2050 the population may decrease by 13%. The average life expectancy is 69 

years (63 for men and 75 for women). 

Major social and health problems include heavy drinking, a quickly-developing HIV/AIDS problem, high 

tuberculosis (TB), and syphilis rates, increased cancer rates especially in Chernobyl-contaminated 

territories, abortions among adolescents, and drug dependence. The GOB has acknowledged the 

mounting problems of HIV/AIDS and TB. Last year the country was awarded a $17.37 million grant from 

the U.N. Global Fund to Fight AIDS, TB and Malaria (GFATM) for an HIV/AIDS treatment and prevention 

project in Belarus. Belarus also applied for a similar grant to fight TB. 

Belarus has about 32,000 institutionalized children, 86% of whom were reportedly abandoned by their 

parents. The government recognizes the problem, and works on measures to discourage parents from 

abandoning their children. A new law this year requires the parents of abandoned children to pay in full 
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for food, clothes, and other essentials. At the same time, the GOB has put a freeze on foreign adoptions 

following a presidential directive. 

B. U.S. Assistance Priorities 

Activity implementation in this area has just begun. The major implementation challenges have 

concerned the GOB’s reluctance to accept U.S. and international technical assistance, and the country’s 

burdensome bureaucratic registration procedures. USAID/Belarus is still waiting for official approvals to 

unfold a training activity for medical professionals in providing anti-retroviral (ARV) treatment to HIV/AIDS 

patients. Assistance in the area of health seems to be the hardest to deliver as every proposal is 

scrutinized by the Ministry of Health, which is primarily interested in receiving equipment and medications. 

C. Program Performance: 

Over the past year, USAID designed three new activities in the area of social reform - two in the area of 

health (HIV/AIDS treatment and prevention), and one to support orphans and vulnerable children. USAID 

HIV assistance focused on complementing the Global Fund activities. One of our newly-launched 

activities will improve the technical, organizational, and networking capacity of HIV/AIDS NGOs. The 

other HIV-related project designed this year -- training medical professionals in ARV treatment and antistigma and discrimination towards HIV/AIDS patients -- is pending official approval. The new USAID 

project to assist orphans and vulnerable children will work with families, community service providers, 

social workers, and institutionalized children and youth to reduce the number of children in institutions 

and increase the number of those who return to their natural families or alternative family care. 

IV. Other Programs of Significance: Anti-trafficking. 

A. Country Situation: 

The 2005 Trafficking in Persons Report rated Belarus as a tier two country, meaning it is not meeting the 

minimum standards to combat trafficking, but making significant efforts to do so. According to the report, 

Belarus continued to increase its law enforcement efforts, but lacked adequate funding for victim 

protection and trafficking prevention. One deficiency in anti-trafficking legislation was a definition of 

victim’s rights. In 2005 the GOB made some progress in detecting human trafficking cases and passing 

anti-trafficking legislation. The detection rate has tripled; during 2005, 574 offenses in human trafficking 

were detected against only 400 during all previous years. The August 2005 edict “On Preventing the 

Effects of TIP” is was first comprehensive legislative act that specified actual protection for TIP victims by 

the government. It defines the status of trafficking victims, mandates measures to provide protection and 

medical care, and guarantees social security to these victims. However, if a TIP victim interferes with the 

investigation or prosecution of a case, any protection activities already administered will be terminated. 

The edict gives no definition of what such interference may constitute. The March, 2005 decree “On 

Combating TIP” introduced tougher regulations on trips abroad for employment, training, and marriage 

purposes. In order to receive training in a foreign country, a student should now obtain permission from 

the Ministry of Education. Fighting illegal migration and trafficking is one area where the GOB welcomes 

foreign assistance. In November 2005, Belarus was granted membership in the International 

Organization for Migration. 

B. U.S. Assistance Priorities 

As in the rest of the region, trafficking in persons is a severe problem in Belarus, but one where USG and 

other donors have achieved some degree of cooperation with working level authorities. USAID has 

focused its efforts on trafficking prevention and victim protection. 

C. Program Performance 

In 2005, USAID developed and launched a $1 million project to build on its successful pilot activity on 
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women's economic empowerment. This activity is the only donor project targeting one of the underlying 

causes of trafficking - poverty and lack of job opportunities. The opening roundtable in August 2005 

gathered 60 participants, current or potential NGOs-partners. NGOs that had previously participated in 

the USAID successful pilot project in 2003-2004 shared positive experiences and recommendations. 

However, the actual provision of technical assistance through the IOM is pending registration with various 

agencies. 
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FY 2006 Program 

SO: 113-0210 Increased Citizen Participation in Democratic Practices 

Address Other Health Vulnerabilities 

Address Other Health Vulnerabilities ($500,000 FSA). USAID will address the needs of orphans and 

vulnerable children by reducing the number of children dependent on state-administered orphanages and 

boarding schools for services. Chernobyl Rehabilitation CORE Program will assist Belarusians in the 

most affected areas in fighting the effects of the Chernobyl nuclear accident. The focus will be on 

independent information and education on radiation levels, environment, and health. Implementers: 

Christian Children’s Fund and United Nations Development Program (both prime). 

Establish & Ensure Media Freedom & Freedom Of Information 

Establish & Ensure Media Freedom & Freedom of Information ($1,604,000 FSA, $396,000 FSA 

carryover). Assistance will focus on strengthening media capacity to provide Belarusian citizens with 

objective, unbiased information. Implementer: Contractor/grantee: International Research and Exchanges 

Board (IREX). 

Improve Economic Policy and the Business Environment 

Improve Economic Policy and the Business Environment ($1,550,000 FSA). USAID will provide unbiased 

economic information and accounting training, and foster development of small and medium businesses 

through business education, entrepreneurship training, policy dialogue, and access to market and 

finance. It will also expand micro and small enterprise lending operations through the European Bank for 

Reconstruction and Development (EBRD). Implementer: Development Alternatives Inc. (prime) and TBD. 

Prevent & Control Infectious Diseases Of Major Importance 

Prevent & Control Infectious Diseases of Major Importance ($500,000 FSA). Funds will be used to 

develop a project to improve diagnosis and treatment of tuberculosis (TB). Implementer: TBD. 

Program Support 

Program Support ($395,000 FSA, $73,359 FSA carryover, $3,977 FSA prior year recoveries). Funds will 

support program administration and development, including strategy design, needs and sector 

assessments in selected sectors. 

Strengthen Civil Society 

Strengthen Civil Society ($2,605,000 FSA, $172,260 FSA carryover supplemental). USAID will advance 

civil society development by providing technical and financial support to local civil society, media and 

human rights non-government organizations (NGOs). USAID will promote rule of law by training local 

lawyers, activists, and NGOs. It will work with faculty-based legal clinics at local universities to build the 

capacity of clinical programs at law schools. The Community Connections program will provide Belarusian 

entrepreneurs, professionals, and NGO leaders with valuable exchange opportunities to break the 

increasing self-isolation of the country, and promote mutual understanding through exposure to U.S. 

society. The European Humanities University International (EHUI) will receive assistance for the 

education of university students in Belarus. Currently, EHUI is operating “in exile” in Vilnius, primarily 

through distance learning, due to the Belarus government’s closure of the university campus in Belarus. 

Implementers: American Bar Association/Central European and Eurasian Law Initiative (ABA/CEELI), 
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Eurasia Foundation (EF), PACT, German Marshall Fund, World Learning, and EHU (all prime). 

Strengthen Democratic Political Parties 

Strengthen Democratic Political Parties ($830,000 FSA, $320,000 FSA carryover). Support will be 

provided to develop political party-building, campaign planning and management, media relations and 

coalition building skills. Implementers: International Republican Institute (IRI) and National Democratic 

Institute (NDI) - both prime. 

FY 2007 Program 

SO: 113-0210 Increased Citizen Participation in Democratic Practices 

Establish & Ensure Media Freedom & Freedom Of Information 

Establish & Ensure Media Freedom & Freedom of Information ($1,000,000 FSA). Assistance will focus on 

strengthening media capacity to provide Belarusian citizens with objective unbiased information. 

Implementer: Contractor/grantee: IREX. 

Improve Economic Policy and the Business Environment 

Improve Economic Policy and the Business Environment ($1,100,000 FSA). USAID will support the 

sustainability and competitiveness of the private sector through business education, entrepreneurship 

training, improvement of the regulatory framework, and access to market and finance and will expand 

micro and small enterprise lending operations. Private business activities will be supported through grantmaking. Implementer: EBRD, EF (both prime) and TBD. 

Program Support 

Program Support ($317,740 FSA). Program support will fund program administration and development 

costs, including sector assessments and project evaluations. 

Strengthen Civil Society 

Strengthen Civil Society ($3,954,260 FSA). USAID will expand the civil society program through NGO 

development and provide basic support to independent media through professional training for non-state 

media managers, publishers, and journalists. A Community Connections program tailored to Belarusian 

professional or business interests will contribute to Belarusian economic and democratic reform. 

Implementers: PACT and World Learning (both prime). 

Strengthen Democratic Political Parties 

Strengthen Democratic Political Parties ($800,000 FSA). USAID will work with pro-democracy political 

parties and groups. USAID will continue a long-term capacity-building program for pro-democracy 

parties, with a focus on internal governance, party-building, and membership recruitment. Implementers: 

IRI and NDI (both prime). 
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Results Framework 

113-0210 Increased Citizen Participation in Democratic Practices 

Program Title: Citizen Participation in Democratic Practices 

 2.1.1: Increased effectiveness of democratically oriented NGOs 

 2.1.2: Increased responsiveness of political parties to public needs 

 2.1.3: Enhanced public access to objective and substantive information