Let G be a semisimple algebraic group over an algebraically closed field of characteristic p ≥ 0. At the 1966 International Congress of Mathematicians in Moscow, Robert Steinberg conjectured that two elements a, a ′ ∈ G are conjugate in G if and only if f (a) and f (a ′ ) are conjugate in GL(V ) for every rational irreducible representation f : G → GL(V ). Steinberg showed that the conjecture holds if a and a ′ are semisimple, and also proved the conjecture when p = 0. In this paper, we give a counterexample to Steinberg's conjecture. Specifically, we show that when p = 2 and G is simple of type C 5 , there exist two non-conjugate unipotent elements u, u ′ ∈ G such that f (u) and f (u ′ ) are conjugate in GL(V ) for every rational irreducible representation