| U.S. Government Assistance to and Cooperative Activities with Eurasia -FY 2003 Released by the Bureau of European and Eurasian Affairs January 2004 II. Country Assessments and Performance Measures - Turkmenistan
U.S. STRATEGIC INTERESTS
Turkmenistan’s borders with Afghanistan and Iran and its proximity to countries of security concern to the United States warrant the U.S. Government’s sustained, active involvement. Turkmenistan serves as a valuable assistance corridor to Afghanistan, and Turkmenistan’s cooperation will be critical in reducing the threats to regional stability, especially the export of illicit narcotics and the continuing threat of terrorism. During the past two years, Turkmenistan’s repressive government has taken steps backward in terms of democratic development, economic reform, and protecting the rights of its citizens. In doing so, it has jeopardized the country’s stability and the potential of its people to achieve a prosperous, democratic future. The U.S. Government (USG) will remain engaged with Turkmenistan to promote stability and security throughout the region.
OVERVIEW OF U.S. GOVERNMENT ASSISTANCE
In FY 2003, the U.S. Government provided an estimated $13.70 million* in assistance to Turkmenistan:
In FY 2003, some 115 Turkmen citizens traveled to the United States on USG-funded training and exchange programs implemented by USAID and the U.S. Departments of Agriculture and State, bringing the cumulative number of Turkmen participants to over 1,380.
U.S. ASSISTANCE PRIORITIES
Democratic Reform Programs: In FY 2003, the main priorities of USG democratic reform assistance included civil society development; advocating for and strengthening the role of NGOs; providing legal education programs; and promoting improved access to objective information through Internet access and independent media. USG-funded exchange programs to the United States and scholarships to attend the American University of Central Asia in Bishkek enabled the USG to reach out to the next generation of Turkmen leaders. The Peace Corps also played a vital role in promoting democracy and civil-sector reform by its volunteers serving as positive role models for Turkmen citizens. The USG pursued a two-track approach, advocating for democratic reform with the Government of Turkmenistan while at the same time familiarizing Turkmen citizens with the benefits of democracy.
Economic and Social-Sector Reform Programs: In FY 2003, USG economic and social-sector reform programs focused on private-sector development, infectious disease control, and the improvement of primary health care delivery. The Turkmen Government remained reluctant to engage meaningfully in market-based reform, and as a result USG assistance in this area was limited to training in such fields as international accounting and legal standards. The U.S. Agriculture Department’s (USDA) Cochran Fellowship Program stands ready to provide training to small farmers, but the program experienced difficulties in FY 2003 due to the Turkmen Government’s refusal to grant exit visas to program participants. In contrast, the Turkmen Government has been willing to cooperate and engage on health care programs, and the USG has successfully implemented HIV/AIDS and tuberculosis (TB) programs, and provided training for family doctors.
Security, Regional Stability, and Law Enforcement Programs: In FY 2003, USG security-related assistance in Turkmenistan was geared toward preventing trafficking in narcotics and the proliferation of weapons of mass destruction (WMD) through training programs and donation of equipment such as tools, search equipment, and a forensic laboratory. The USG also provided assistance to help Turkmenistan combat trafficking in persons. In addition to providing Foreign Military Financing (FMF) to counter the threat posed by WMD, the USG sent members of the Turkmen military on U.S.-based training under the International Military Education Training (IMET) Program.
SECTORAL ASSESSMENTS
Democratic Reform
FY 2003 was a difficult year for democratic development in Turkmenistan, which remained a totalitarian regime with an extremely poor human rights record. Conditions deteriorated considerably after an armed attack on the President’s motorcade in November 2002. Widespread human rights abuses continued and intensified, including mass arrests, detainments and incidents of torture. Overall, the Turkmen Government showed little respect for human rights or international commitments. Exit visas were reintroduced to control the migration of all citizens (and subsequently dropped after the President denied that such a policy was in effect). However, it remains unclear whether freedom of movement consistent with the Jackson-Vanik Amendment exists. A new law that broadly defines "betrayal of the motherland" was adopted and designates stiff penalties for those convicted under the law. The role of the Parliament was greatly weakened in FY 2003. Only one NGO was officially registered during FY 2003, and a restrictive new NGO law was passed late in the year. The new law, which includes criminal penalties, will make it even more difficult for NGOs to function. By law, all foreign assistance must be registered with the Ministry of Justice and coordinated through the Ministry of Foreign Affairs. One U.S. citizen and one local NGO activist were arrested for allegedly taking part in the attack on the President, but both were released after substantial international pressure. Turkmenistan is at risk of being designated a "country of particular concern" for its restrictions on freedom of worship.
USG assistance efforts in Turkmenistan focus on providing the tools for citizens to promote and advocate for their rights. Much of the USG’s democratic reform efforts are designed to counter negative political and social trends by exposing the future generation of Turkmen leaders to democracy, free-market systems, and models of society where basic human rights are respected.
In FY 2003, USG-funded civil society development assistance increased the capacity of many NGOs and communities to solve local problems. Over 550 Turkmen took part in 37 USG-funded NGO capacity-building training events. An educational NGO used fundraising skills learned in USG-provided training to obtain financing from non-USG sources to create a network of teachers from all regions of Turkmenistan devoted to tackling national educational issues at the local level, members of which have been particularly successful in getting parents involved in their children’s schools. After completing association-development training, 30 artisans’ groups banded together to form a union and can now access international markets as a whole rather than individually. A USG-supported network of NGO resource centers located in all corners of Turkmenistan provided high-quality services to NGOs in their communities. NGOs benefiting from USAID assistance started providing services in more sensitive areas such as working with young criminals and drug abusers, providing assistance to the unemployed, and tackling gender issues. For example, one NGO worked on the problems of young criminals by collaborating with the Ministry of Internal Affairs to understand the psychology behind youth problems: the Nargiza Women’s Club worked with the local police to implement a teenage drug prevention program.
The USG’s rule of law program focused on legal education and developing the next generation of legal professionals. USAID worked with the Adalat Student Club at the Turkmen State University Law Department. About 100 Turkmen students were active in a USG-funded "street law" program, providing training to high school students in basic civil rights. A legal resource center at the university, established with USG assistance, organized 19 legal workshops attended by a total of 720 students and legal professionals, and had about 30 visitors per day. As a result of a training event on family law, lawyers learned how to help battered women separate from their abusers and maintain custody of their children. After a commercial law seminar on the rights of farmers, a legal expert was able to assist a farmer in the city of Mary to keep his crop and market it privately rather than submitting it to the government. The USG increased its support to the Turkmen Young Lawyers’ Association and in FY 2004 will help the Association open a legal clinic.
The Community Action Investment Program (CAIP) is the centerpiece of USAID's conflict prevention initiative in Turkmenistan. In FY 2003, USAID identified a number of communities most vulnerable to conflict and challenged them to work together to define their common needs and to develop USG-funded projects to address those needs. However, this project is currently on hold due to the Turkmen Government’s imposition of a national approval process on CAIP projects.
The USG also improved Turkmen citizens’ access to information and exposure to democratic society through the establishment of a national democracy youth summer camp, expansion of the U.S. Embassy’s Internet Access and Training Program, and the establishment of four American Corner sites, which disseminate information on democratic values through regional education programs. The American Corners Program was expanded despite difficulties imposed by the Turkmen Government. Similarly, people-to-people exchange programs were also expanded, although the Turkmen Government’s strict exit-visa controls prohibited at least five individuals from departing the country and threatened the ability of more than 50 scholarship recipients to travel to the United States. The Turkmen Government has not eased controls on the media, and at least one journalist was harassed and beaten twice for straying from the "party line" in his reporting. Even such a hostile environment, recipients of USG grants produced measurable results, such as establishing a support clinic for runaway teens and substance abusers, and developing a Junior Achievement program to train students in economic and business fundamentals. USG assistance also supported the opening of four new English language resource centers throughout the country.
In order to forestall the growing probability that Turkmenistan will become a failed state, the USG must continue to support the development of civil society through such programs promoting freedom of worship and respect for human rights, educational and professional exchange and development programs (particularly those targeted at youth), and NGO advocacy and training. In FY 2004, USG-funded civil society development programs will continue, but will be more limited in scope due to Turkmenistan’s restrictive new NGO law. The USG will nevertheless continue to support NGOs by expanding technical and legal training and advice. The USG also plans to include Turkmenistan in a regional media program designed to deliver objective information to Turkmen citizens.
Economic and Social-Sector Reform
Turkmenistan’s relatively small size and abundant natural resources offer considerable potential for economic development. However, more than 90% of all formal economic activity in the country is state-controlled, and the continued inability to convert Turkmenistan’s national currency into hard currency at a unified rate further deters commercial activity. Unemployment is estimated at over 50%. According to highly questionable Turkmen Government statistics, GDP growth for FY 2003 was more than 20%. Oil and gas production continued to increase over previous years, bringing in needed hard currency, but the agriculture sector, especially cotton production, faced a second consecutive disappointing harvest. Turkmenistan’s black market, especially in currency exchange, continued to flourish. High levels of government subsidies to state-owned enterprises continued to cripple the development of private, competitive markets. Access to credit and foreign markets was virtually non-existent for private entrepreneurs, and corruption continued to be rampant.
Despite the adverse political and economic situation, the USG succeeded in contributing to Turkmenistan’s economic development, primarily through business training and educational programs. Over 1,500 entrepreneurs participated in short-term business courses. In addition, 240 accountants were trained and tested in International Accounting Standards (IAS). With USG support, graduates of the IAS courses organized a professional association, which is currently attempting to register as an organization. The USG also trained 376 university professors and trainers in business, market economics and the development of new teaching methodologies such as case studies and critical thinking. The USG donated more than 1,500 books on business and basic economics to Turkmen high schools and trained teachers in these subjects; using Turkmen-language and Turkmenistan-specific case studies.
Responding to a rare request from the Turkmen Government, the USG sent eight Central Bank staff members on a study tour of the National Bank of Kazakhstan, during which they were introduced to various banking techniques and models applied in Kazakhstan’s central bank, which is considered one of the most successful banks in the Eurasian region. The USG finalized an agreement with the Central Bank of Turkmenistan to provide technical assistance and training in FY 2004 to strengthen the Bank’s capacity to establish sound supervisory policies and regulations, monetary and credit policy analysis, and internal controls.
In FY 2004, USG programs will continue to focus on economics training and education, including the opening of Junior Achievement training centers throughout the country and the provision of economic training materials to secondary schools. USG-funded efforts to promote the development of business associations will be broadened, supporting their efforts to advocate for reform.
Although USG assistance to Turkmenistan’s state-owned energy sector was limited in FY 2003 due to USG policy vis-à-vis assistance to the Turkmen Government, the USG provided a student chapter of the U.S. Society of Petroleum Engineers at the Turkmen Polytechnic Institute with computer and Internet access, allowing members to exchange experiences, participate in conferences, and expand their knowledge of new technologies. A USG-funded demonstration of an automated meteorological station motivated Turkmenistan’s Hydrometeorological Agency to use its own scarce resources to purchase an additional automated station, allowing it to improve its weather and water forecasting abilities. In 2004, the USG plans to begin limited support to water-user associations to increase the number of such organizations that are viable and self-sustaining.
Although Turkmenistan’s health situation is poor, only 2.5% of the country’s budget is allocated to health. The number of TB cases has increased by 61% since 1995, while the mortality rate has nearly doubled in the last six years. However, the Turkmen Government’s cooperation with USG-funded health care reform programs has yielded some successes. In FY 2003, new USG-funded health activities included the Healthy Communities Grant Program and the development of low-cost health education materials for distribution by Peace Corps volunteers and NGOs. The Global Fund to Fight AIDS, Tuberculosis and Malaria approved Turkmenistan’s proposal for free TB drugs, and USAID expanded its TB Direct Observed Treatment, Short-Course (DOTS) program, after a pilot program had shown that the World Health Organization’s (WHO) internationally recognized DOTS strategy improved the cure rate from 62.2% in 2001 to 71.6% in 2003. However, future progress of the TB program is threatened by the Turkmen Government’s plans to move the TB hospital 100 kilometers out of the capital city, creating transportation problems for hospital staff and patients. Limiting access to care and further increasing the stigmatization of TB patients will hinder progress in eradicating this dangerous infectious disease.
Turkmenistan has the second highest infant (under one year old) mortality rate in Central Asia, with 74 deaths for every 1,000 live births, and the highest child (between one and five years of age) mortality rate, at 94.3 out of every 1,000 children. In 2003, the USG initiated a statistical survey to identify the main reasons for child mortality, and the results, anticipated in 2004, will assist with the design of ongoing activities. The USG launched a malaria prevention/training program in response to the Ministry of Health’s request after an outbreak of malaria in areas bordering Afghanistan. In addition, USAID helped the Turkmen Government retrain some 400 doctors and nurses in family medicine. To combat child illnesses, USAID, jointly with the World Health Organization (WHO) and the United Nations Children’s Fund (UNICEF), sponsored health promotion campaigns for nurses and health care recipients in rural areas. In a recent monitoring survey, nearly 100% of mothers were aware of the key messages of the campaign, compared to 25% of mothers prior to the campaign.
In FY 2004, the USG plans to expand its TB DOTS program, once drugs from the Global Fund are received. A new HIV/AIDS campaign will be initiated, focusing on prevention. Small grants to health NGOs will continue a key part of the program, supporting the efforts of civil society activists to promote issues that are important to their local communities. USAID will also continue to implement community-based health educational campaigns and provide support for the fortification of wheat and salt.
The quality of education in Turkmenistan is deteriorating as a result of the Turkmen Government’s interference in curriculum and teacher selection. According to interviews with Turkmen citizens, education is becoming increasingly inaccessible and inequitable. A USAID basic education program was begun in FY 2003 and was designed to strengthen the educational system through pilot programs; however, the Turkmen Government has not given permission to initiate activities under this program, and the USG will re-evaluate the future course of this program in FY 2004.
The Turkmen Government’s refusal to grant exit visas to participants hindered implementation of USDA’s Cochran Fellowship Program for small farmers in FY 2003: only 3 out of 10 nominated participants were able to travel to the United States to participate in short-term training.
Security, Regional Stability, and Law Enforcement
Despite profound differences with the Government of Turkmenistan, the USG has been able to maintain and expand certain regional security assistance programs that are important to U.S. homeland security, anti-terrorism, and anti-narcotics efforts. Turkmenistan’s military lacks basic skills and equipment. In FY 2003, the U.S. Department of Defense had modest success in conducting International Military Education and Training (IMET) programs for a total of seven Turkmen participants. In FY 2003, Turkmenistan also received $690,000 in Foreign Military Financing (FMF), which the Turkmen Government is using to purchase a system of Motorola radios for Turkmenistan’s emergency response communication system. The USG-funded Export Control and Related Border Security (EXBS) Assistance Program began to overcome the Turkmen Government’s reluctance to participate in regional security programs. EXBS projects included the provision of search equipment, tools, and four-wheel-drive vehicles to the State Border Service to improve its ability to prevent illicit trafficking along Turkmenistan’s borders. The success of USG-funded training provided by the U.S. Department of Homeland Security on identifying fraudulent travel documents for 35 members of Turkmenistan’s State Border Service, Turkmen State Airline, and the Ministry of Foreign Affairs was demonstrated when, soon after the training, the staff at Ashgabat International Airport identified an improperly issued U.S. passport.
Humanitarian Assistance
The USG maintains an ongoing humanitarian assistance program in Turkmenistan, providing shipments of commodities to Turkmen charitable organizations for distribution. In FY 2003, the U.S. Department of State provided a transported a total of 26 shipments of privately donated humanitarian commodities with a total value of $2.17 million, at a cost to the USG of just over $500,000. These commodities supported Turkmenistan’s most vulnerable populations, including the disabled, veterans, orphans and other at-risk groups.
Turkmenistan remains a totalitarian regime with an extremely poor human rights record. FY 2003 saw widespread human rights abuses, including mass arrests, detainments and incidents of torture. Little or no progress was made in economic reform. The failure of the government to institute a unified rate for conversion of the national currency into hard currency further hampered economic development.
Democratic Reforms
Ratings of democratic freedoms are from Freedom House, Nations in Transit 2003 (2003) and cover events through December 2002. Economic policy reform ratings are from EBRD, Transition Report 2002 (November 2002), and cover events through September 2002. Economic policy reforms include price liberalization, trade and foreign exchange, privatization, legal, banking and capital markets, enterprise restructuring (credit and subsidy policy), and infrastructure reforms. Democratic freedoms include political rights (free and fair elections; openness of the political system to competing political parties and to minority group representation; governance and public administration) and civil liberties (free media and judiciary; freedom to develop NGOs and trade unions; equality of opportunity and freedom from corruption). Ratings are based on a scale of 1 to 5, with 5 representing the most advanced.
Turkmenistan has seen very minimal private-sector development; 90 percent of the economy remains state-controlled. The quality of life has not improved from already very low levels. The very poor health sector receives scant attention from the central government, and the country’s education system continues to deteriorate.
Economic Structure and Human Development in Turkmenistan, 1991-2002
Human Capital Index
The Human Capital Index is based on an average rating of four variables scored on a 1 to 10 scale: per capita income, secondary school enrollment, health, as measured by life expectancy and under 5 mortality, and public policy, as measured by public expenditure on health and education as % of GDP. World Bank, World Development Indicators 2003 (2003); and UNICEF, Social Monitor 2003 (2003). Private-sector share of GDP is from EBRD Transition Report Update (May 2003).
SECTORAL PERFORMANCE MEASURES
DEMOCRATIC REFORM
Performance Indicator: USAID NGO Sustainability Index, (scale of 1 to 7; 7 = the lowest)
FY 2003 Results: As in FY 2002, Turkmenistan’s NGOs remained poorly developed and under constant restriction, surveillance, and harassment by the Turkmen Government. Only one new NGO was allowed to register in FY 2003, although dozens continued to operate unregistered. The Turkmen Government remained fearful that NGOs would become a force for political opposition. USG efforts to convince the Turkmen Government of the important place of NGOs in a healthy democratic society continued to fall on deaf ears.
Performance Indicator: Freedom House Nations in Transit 2003 Civil Society rating
FY 2003 Results: The outlook for civil society in Turkmenistan remained bleak. While citizens have the constitutional right to form political parties and other social associations, anyone seeking to form an opposition political party continued to face strong government oppression. Sunni Muslims and Russian Orthodox Christians remained the only the religious groups allowed to worship openly. The Turkmen Government treated NGOs with hostility. Public education was reduced from 10 to 9 years in FY 2003, and unemployment remained high, resulting in an even bleaker future for young Turkmen.
ECONOMIC AND SOCIAL REFORM
Performance Indicator: USAID Economic Reform Index (scale of 1 to 5, with 5 being the most advanced) (Source: USAID/EE/PO’s Monitoring Country Progress in Central and Eastern Europe and Eurasia)
FY 2003 Results: There was little will on the part of the Turkmen Government to implement broad-based market reforms, a circumstance unlikely to change in FY 2004. However, small enterprises were being established, and the USG will continue to look for ways to support these business leaders. Business associations were also emerging as a potential voice for reform.
Performance Indicator: Public expenditures on health, as % of GDP. (Source: UNICEF, Social Monitor 2003)
FY 2003 Results: The Turkmen Government’s low level of health spending continued to cause concern among international donors. The country’s health system continued to decay; political will and years of assistance will be necessary to improve the situation. Turkmenistan has the highest rate of under-5 child mortality in the former Soviet Union, and the Turkmen Government has not provided the necessary funding to solve the problem. Nevertheless, Turkmen doctors and nurses taking part in USAID’s primary health worker retraining program continue to welcome the program.
FY 2003 Results: USAID has been working with the Turkmen Government of to pilot the DOTS treatment approach. Three pilot sites have been established over the past several years, with rather good results. Under DOTS, patients once out of work for up to a year during a treatment course are now able to return home to their family and begin working again after as little as two months. USAID’s pilot efforts demonstrated that the DOTS strategy improved the cure rate from 62.2% in 2001 to 71.6% in 2003.
SECURITY, REGIONAL STABILITY, AND LAW ENFORCEMENT
Performance Indicator: Turkmen Government receptivity to training for security, military, and other law enforcement personnel (measured in terms of the number of participants).
FY 2003 Results: In FY 2003, Turkmen Government participation in security, military, and law enforcement training programs increased by 58% over FY 2002. This was 16% shy of the U.S. Embassy’s goal, but still represented a significant increase in cooperation on security programs. Training topics included medical training for military personnel, the opportunity for Border Service personnel to observe U.S. border operations in Texas, training on identifying fraudulent travel documents, and training on drug interdiction at border crossings.
Performance Indicator: Turkmen Government receptivity to assistance to prevent WMD proliferation (measured in terms of the number of equipment deliveries and training sessions in the use of delivered equipment).
FY 2003 Results: In FY 2003 the Turkmen Government agreed, for the first time, to accept training on preventing WMD proliferation, specifically on using donated radiation detection equipment and on the border interdiction of WMD materials. 2003 FUNDS BUDGETED FOR U.S. GOVERNMENT ASSISTANCE TO TURKMENISTAN TOTAL USG FUNDS BUDGETED: $10.98 (IN MILLIONS, AS OF 12/31/03) FSA FUNDS BUDGETED: - $7.80 USAID - Democratic Reform - $1.10 Dept. of Agriculture (USDA) - Cochran Fellowship Program - $0.10 Dept. of Commerce - BISNIS Business Info. Service - $0.02 Dept. of State - ECA Public Diplomacy Exchanges - $2.22 Peace Corps - Volunteers - $1.61 |
 | |||
|
Area: approx. 303,350 sq. miles, slightly larger than California
