Putin trying to salvage war in Ukraine by putting pressure on Belarus
Intensifying Russian pressure on Belarus is degrading Belarusian President Alexander Lukashenko’s maneuver room to avoid making concessions to the Kremlin. Russian President Vladimir Putin’s long game to reestablish suzerainty over Belarus is making progress separate and apart from Putin’s efforts to get Belarus more actively involved in his invasion of Ukraine. Lukashenko confirmed that Russia “gave” Belarus an unspecified number of S-400 air defense systems during his meeting with Putin in Minsk on December 19, confirming ISW’s 2021 forecast that Russian-made S-400 systems would begin operating in Belarus.[1] Lukashenko had previously rejected S-400 systems operating in Belarus in 2020.[2] Lukashenko is likely delaying acceding to Putin’s larger demands - such as committing Belarusian forces to join the invasion against Ukraine - by making smaller concessions that he has stonewalled for years.
Russian military personnel will likely operate the Belarus-based S-400 systems. Russian personnel may operate the S-400 systems from the so-called joint Russian-Belarusian Air Force and Air Defense Forces training center in Grodno, Belarus – a permanent Russian military presence in Belarus that the Kremlin established in the spring of 2021.[3]
ISW continues to observe indicators consistent with the most dangerous course of action (MDCOA) of a renewed Russian invasion of northern Ukraine from Belarus.[4] Ukrainian military officials continue to warn about a growing Russian threat from Belarus. Ukrainian Joint Forces Commander Serhiy Nayev stated on December 20 that Russian elements in Belarus have military potential “currently sufficient” to create an unspecified threat to Ukraine and that these elements can conduct unspecified “tactical actions.”[5] Nayev’s statement marks an inflection in Ukrainian officials’ characterization of the growing Russian forces in Belarus; previous Ukrainian descriptions of Russian forces in Belarus did not ascribe to them tactically significant capacities.[6] Independent Belarusian sources continue to report growing Russian mechanized forces in Belarus.[7] About 30 Russian T-80 tanks were reportedly deployed to Belarus around December 20.[8]
These indicators support the MDCOA forecast, but that course of action remains unlikely at this time. A Russian invasion of northern Ukraine from Belarus is not very likely imminent. Nayev reiterated that Ukraine’s defense is prepared to defend northern Ukraine.[9] The Ukrainian General Staff reiterated that it has not observed Russian forces forming strike groups in Belarus as of December 20.[10] ISW will continue to monitor the situation.
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I suspect that Putin planned to take control of Belarus after he took Ukraine. He is now being forced to flip that plan and try to use Belarus to achieve his objectives inside Ukraine. I get the impression that Putin is scrambling to salvage his war in Ukraine.
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