Between International Cooperation and Disengagement: How Belarus Deals with Nuclear Governance Issues in the Context of Authoritarian Consolidation

In 2020, Belarus inaugurated the Astravets Nuclear Power Plant (NPP), situated close to the Lithuanian border, a site that has become a focal point for regional geopolitical tensions. For Russia, the plant serves as a showcase of its nuclear technology capabilities, while Belarus considers it essential for its energy needs and economic development. Lithuania has expressed strong objections, claiming that the plant's location does not meet safety standards and highlighting various construction deficiencies. Additionally, Lithuanian authorities have criticized Belarus for disregarding public information protocols and the guidelines established by the Espoo convention and have addressed nuclear safety concerns through UNECE dispute resolution mechanisms, as well as its membership in the International Atomic Energy Agency (IAEA). Belarus collaborates with the IAEA on nuclear safety during both the construction and operational stages of the Astravets NPP, having successfully carried out two important safety assessments. At the same time, Belarus is legally bound to facilitate public participation in environmental decision-making processes as a signatory to both the Aarhus and Espoo Conventions. Nevertheless, the government has encountered significant criticism for inadequate public engagement surrounding nuclear energy issues. This lack of transparency has spurred the rise of anti-nuclear movements, including protests led by organizations such as "Ecohome" and the Belarusian Party of Greens, an opposition party that has never been represented in Parliament. During the post-election protests in 2020, activists raised persistent safety concerns regarding the Astravets NPP. In 2022, Belarus announced its withdrawal from the Aarhus Convention while intensifying repression against environmental organizations, which resulted in the imprisonment of activists and the dissolution of several groups. This dynamic is central to this paper, which explores Belarus's two-fold strategy in nuclear governance. While the Belarusian government is enhancing its collaboration with the IAEA concerning nuclear safety, it is concurrently moving away from the Aarhus Convention on public participation. This shift reflects the strengthening of an authoritarian regime amidst the war in Ukraine and pressure from democratic nations. However, this scenario invites discussions about how nuclear energy governance could lead to conflicts between the authoritarian regime and the tenets of good governance concerning nuclear safety. The paper will examine public participation issues related to Astravets NPP construction, drawing on EIA documents, expert reports, and environmental NGO documentation to illustrate how the principles of good governance have been distorted to manipulate policy processes and establish a specific nuclear governance regime.