VZCZCXRO4458
RR RUEHAST RUEHDBU
DE RUEHTA #0653/01 0730053
ZNR UUUUU ZZH
R 140053Z MAR 07
FM AMEMBASSY ASTANA
TO RUEHC/SECSTATE WASHDC 8782
RUEAORC/US CUSTOMS SERVICE WASHDC
RUEBAAA/DEPT OF ENERGY WASHDC
RUCPDOC/DEPT OF COMMERCE WASHDC
RULSJGA/COMDT COGARD WASHINGTON DC
RUEKJCS/SECDEF WASHDC 0012
RUEBAAA/DEPT OF ENERGY WASHDC
RUEKJCS/JCS WASHDC
RUCQAAA/USCINCCENT MACDILL AFB FL
RUEHRL/AMEMBASSY BERLIN 0410
RUEHEK/AMEMBASSY BISHKEK 7888
RUEHNT/AMEMBASSY TASHKENT 7828
RUEHKB/AMEMBASSY BAKU 0752
RUEHDBU/AMEMBASSY DUSHANBE 2031
RUEHAH/AMEMBASSY ASHGABAT 7121
RUEHAST/USOFFICE ALMATY

UNCLAS SECTION 01 OF 07 ASTANA 000653 
 
SIPDIS 
 
SIPDIS 
 
DEPT FOR ISN/ECC PVANSON, ACHURCH, JHARTSHORN 
DEPT FOR ISN/ECC-AMT LSPRINGER 
DEPT FOR EUR/ACE RBUCK 
DEPT FOR SCA/RA JSCHLOSSER 
DEPT FOR SCA/CEN MO'MARA 
CBP/INA FOR CDONOFRIO AND RWATT 
USDOE/NNSA CWALKER, TPERRY AND EDESCHLER 
DOC FOR DCREED AND GPETERSEN-BEARD 
USCG FOR BGOLDEN 
AMEMBASSY BERLIN FOR CUSTOMS ATTACHE 
AMEMBASSY TASHKENT, BISHKEK, BAKU, DUSHANBE AND ASHGABAT FOR EXBS 
ADVISORS 
 
E.O. 12958: N/A 
TAGS: ETTC MNUC PARM PREL KSTC KNNP KZ
SUBJECT:  EXBS: KAZAKHSTAN ADVISOR'S MONTHLY REPORTING CABLE 
(FEBRUARY 2007) 
 
 
¶I. BROAD ITEMS OF INTEREST TO ADVISORS AND AGENCY MANAGERS: 
 
      ¶1. EXBS Advisor Mike Seguin departs post on March 15, due to 
receipt of military orders to Active Duty. 
      Embassy welcomes on board TDY EXBS Advisor Larry Adkins 
assigned to post from March 7 to April 26, 2007, as the first of a 
series of temporary advisors who will manage the office until a 
permanent replacement can be installed. 
 
      ¶2. Trip to Aktau and Bautino (Feb.4-7). The EXBS Team traveled 
from the Embassy in Astana, Kazakhstan February 4 through February 
7, 2007, to conduct site assessments at both the Segendy Border 
Monitoring Station and Bautino Border Guard and Customs facilities. 
The EXBS team was accompanied by INL and OMC representatives. The 
purpose of the trip involved four areas of focus: a. Resolution of 
outstanding Safe-Boat maintenance issues and tasks required to get 
the boats back in operation; b. Site Survey of the Segendy 
Monitoring Facility; c. Bautino Port Site Survey; and d. Assessment 
of the Office of Military Cooperation interest in working with the 
Border Guard on Counter Narcotics programs. 
      The EXBS team, INL, and OMC met with the Border Guard at their 
Headquarters in the City of Aktau.  The objective of the mission was 
to establish a clear way forward in getting the three Safe Boats 
back in operational condition and serviced as soon as possible.  The 
key issues involved hull painting, winterization, and maintenance. 
 
      The meeting was also designed to establish whether there was a 
Border Guard Counter-Narcotics (CN) mission in order to justify the 
use of an Office of Military Cooperation's $5 mn CN funding 
proposal.  The $5 mn represents a significant opportunity for the 
Border Guard to enhance not only CN security in the region; it also 
represents the possibility of enhancing the counter proliferation 
mission supported by the EXBS program. 
      In Bautino Port the EXBS team inspected the state of equipment 
previously donated and resolved a variety of operational issues 
associated with the three Safe-Boats. 
      The Border Post Survey was conducted at Segendy Border 
Monitoring Station - the site of an EXBS Border Guard shelter 
donated in 2003. 
      The team inspected the state of equipment previously donated 
and resolved a variety of operational issues associated with the 
donation of three Safe Boats at a meeting with the Border Guard 
regional Headquarters personnel in Aktau, Kazakhstan. 
       Recommendation: Assessments in the region should continue, 
EXBS donations should continue in places where the greatest impact 
can be made, and synergies for leveraging and multiplying the 
efforts of adjacent engagement entities should continue, as was the 
example in this case with OMC and INL participation. 
 
 ¶3.  Department of Energy Software Upgrades.  The Department of 
Energy (DOE) will send a representative from the Nuclear Technology 
Safety Center (NTSC) to the Dostyk and the Bakhty Border Control 
Posts from March 19-23 and the Maikapshagai Border Control Post from 
April 9-13, to conduct necessary software installation and upgrades 
to 3-each portable X-ray Florescence (XRF) metal analyzers that were 
provided to Kazakhstan Customs in June 2006.  EXBS, together with 
the NTSC representative, will also review how the units are being 
used at the ports of entry. 
 
 ¶4. Annual EXBS Financial Plan for Kazakhstan. - 
A  February 2 telcon was conducted with EXBS in Washington to settle 
the 2007 EXBS Plan and obtain guidance.  Though the U.S. budget 
continues to operate under a continuing resolution, a clear 
 
ASTANA 00000653  002 OF 007 
 
 
way-forward was established with priorities and estimated funding 
thresholds.  This plan will allow the EXBS Advisor to meet in March 
with key Customs and Border Guard leadership to discuss value-added 
joint activities and present the EXBS office's desired Border Survey 
Schedule for 2007, which resumed in February. 
 
 ¶5. EXBS Presentation.  EXBS Presentation - DRAFT Power Point 
Presentation detailing the EXBS Astana Office activities was 
completed and forwarded to ISN/ECC office for evaluation. 
 
 ¶6. Annual EXBS questionnaire. This activity remains incomplete with 
status unchanged from the January report.  The EXBS Advisor will 
contact the appropriate EXBS personnel in Washington to gauge the 
relevance of an annual questionnaire to be given to the host 
government to gauge the state of Customs and Border Control efforts. 
 Prior to issuing the questionnaire on-hand, a number of questions 
were noted by the EXBS Advisor regarding the methodology associated 
with completing the questionnaire.  It is noteworthy to point out 
that due to the realignment of some ministerial positions in 
Kazakhstan's government, the unsettled nature of leadership 
positions may or may not impact Customs.  The present governmental 
situation relative to Customs should become clearer throughout the 
month of March 
 
II. COMPLETED ACTIONS FOR THE REPORTING PERIOD 
 
¶A. SITE ASSESSMENTS AND MEETINGS CONDUCTED 
 
 ¶1. Volunteer Visitor Program. On February 26, the EXBS team again 
had a meeting with the Customs Control Committee Chairman Askar 
Shakirov to discuss the proposed agenda for the upcoming Volunteer 
Visitor Program and the timing - May 11-20. Mr. Shakirov expressed 
his consent with the program outline and itinerary and tentatively 
agreed on the dates for the event. However, due to the RK Government 
restructuring, he would need to get the GOK final approval both for 
the dates and the names of the rest of the delegation's 
participants. EXBS will follow up on the status with customs 
officials by mid-March. 
 
¶B.  TRAINING DURING THE REPORTING PERIOD 
 
 ¶1.  International Seaport Interdiction Training, February 9-18 in 
Charleston.  Eighteen representatives of the Kazakhstani Border 
Guard and Customs agencies participated in ISIT in South Carolina 
February 9-18 (including travel).  The training was hosted by U.S. 
Customs and Border Protection (CBP), under the U.S. Department of 
State funded EXBS Program. The ISIT Course is designed to provide 
hands-on training for customs, border guard and coast guard officers 
in the detection, identification and interdiction of contraband, 
with an emphasis on countering the cross-border proliferation of 
weapons of mass destruction (WMD), conventional arms, and related 
materials. The course was geared toward line officers and included 
practical exercises, with a focus on the type of high and low-tech 
equipment and tools included in program plans for the region. 
Participants received instruction on tactical radio communications, 
false document identification, detecting hidden compartments in 
private and commercial vessels, behavioral analysis and 
anti-terrorism as well as a range of inspection and detection 
techniques applicable to all types of contraband.  This training is 
a key to training junior and mid-level officers on systems and 
methods associated with identifying and interdicting suspected WMD 
movement in the vicinity of Kazakhstan's seaports on the Caspian 
Sea. 
 
ASTANA 00000653  003 OF 007 
 
 
 Gulnara Abildaeva, EXBS Program Manager, accompanied the group and 
reported that training went very well, except for the mishaps in the 
travel to and from the training destination.  However, in spite of 
all the hardships the team had to overcome (flight delays due to 
inclement weather conditions, many hours of layover, lost luggage in 
the airport of destination) everyone made it back home safely. The 
training was a good event. 
 The EXBS advisor is concerned by the fact that the group of 19 
travelers (18 GOK officials and the EXBS Program Manager) were stuck 
at the airport in Kazakhstan over the weekend without the necessary 
contact information for the POC in Charleston or information about 
the hotel in the U.S. 
 Recommendations: Future efforts will require complete information 
prior to departure. It is recommended that definite policy be 
explored to allow the accompanying EXBS representative to be able to 
commit funding in the event of unforeseen circumstances. 
 It is also recommended that clarification on the Authority to make 
financial commitments be provided.  EXBS Advisor requests guidance 
on permission for emergency authorizations.  When things such as 
airline delays happen, the escorting EXBS officer should have 
authority to make a prudent decision to incur the expense of an 
additional hotel night stay and not feel exposed personally for that 
expense. 
 
 ¶2. Internal Export Control Compliance Programs Seminar -  February 
19-22 in Almaty.  As part of the Department of State funded EXBS 
program, the Department of Energy/National Nuclear Security 
Administration's (DOE/NNSA) International Nonproliferation Export 
Control Program (INECP) conducted a seminar on export controls in 
Almaty on Feb. 20 and 21 for the Institute of Nuclear Physics (INP) 
and Institute of Atomic Energy (IAE). The specific thrust of the 
seminar was establishing and executing internal export control 
compliance programs.  The training was conducted by DOE contractors 
Kenneth Cross, Export Control Analyst, Oak Ridge National 
Laboratory; Tatyana Colgan, Project Manager, Pacific Northwest 
National Laboratory; and Anupam Srivastava, Ph.D., Director of the 
Center for International Trade and Security, the University of 
Georgia. 
 This was one of the series of workshops held by INECP for 
Kazakhstan's state-owned and/or controlled nuclear institution, 
commercial enterprises as well as government agencies (such as the 
Ministry of Education and Science). The workshop targeted 
Kazakhstan's two aforementioned nuclear research institutes.  The 
workshop topics included: US internal compliance programs, 
technology transfer, and substantial information on Kazakhstan's 
national export control regulations. Kazakhstan's Atomic Energy 
Committee (KAEC) and Ministry of Industry and Trade (MIT) also 
substantially contributed to the workshop. 
 The training was a very good event. The participants highly valued 
the training and dialogue, they reiterated their interest in a 
Commodity Information Center initiative and support for a web-based 
solution as licensing protocols are rolled out to the effected 
community.  They were especially interested in having a Central 
Asian workshop that would allow neighboring counterparts to network 
and learn from one another, which post sees as a very good idea. 
The participants were from the Ministry of Education and Science as 
well as the Government Nuclear Research Institute.  They were 
lively, engaging, and uncharacteristically open to two-way 
communication.  Dr. Srivastava's and Mr. Cross's contributions were 
particularly good.  These gentlemen are simply treasure troves of 
current information in world affairs and threats.  Their 
participation clearly helped open up and stimulate dialogue and 
offered many suggestions to both our EXBS Program and Kazakhstan 
 
ASTANA 00000653  004 OF 007 
 
 
government efforts to control proliferation among those in the 
technical and academic communities. 
 The event gave the opportunity for EXBS Advisor Mike Seguin to 
discuss the future focus on UNSCR 1540 support for training and 
engagement with those involved in investigation and intelligence 
services designed to monitor, investigate, and proactively detect 
illicit traffic - a key focus for the EXBS program to pursue. 
 It is recommended that effort be made to continue this training and 
integrate it in some congruent format with the DOC's CTP training 
events associated with Administrative Enforcement and other 
compliance related training as well as Risk Management and enhancing 
intelligence and investigation techniques.  During the question and 
answer portion of the event, recommendations were made to engage the 
National Security Committee (KNB), and other intelligence, 
investigation and enforcement institutions to enhance Kazakhstan's 
capacity to proactively interdict efforts at illicit smuggling. 
 
 ¶3. Administrative Enforcement training (AE) Training.  Molly Pyle 
and Doug Evans (DOE/Commonwealth Trading Partners) conducted AE 
training in Astana February 26 through March 2.  The training 
involved 20 Kazakhstani Customs Law Enforcement Officials.  The 
training was conducted in one of the Astana Customs Committee 
Headquarters conference rooms. 
      The focus of the event was on training Customs personnel to 
"train" their colleagues in the outlaying Kazakhstan regions on AE 
policy, concepts, and techniques.  Methodology included interactive 
case studies and presentations by each of the participants - a very 
effective means of training. 
      The training was positively received by those attending as 
relevant to enhancing AE techniques.  It was requested by the 
attendees that the workshop be conducted four more times this year 
in outlying regions with the USG's participation.  The training was 
particularly well done because of Doug Evans' background and 
presentation skills as a former Customs Investigation Officer. 
Areas of instruction not only included training techniques 
associated with AE concepts and principals, but also criminal 
investigation techniques.  Particular focus was on proactive WMD 
investigation methods and the importance of Government Outreach, 
making industry contacts, intelligence gathering and proactive 
investigation - all areas of present particular interest to the EXBS 
programs immediate direction.  It is noteworthy to point out that in 
the experience of those present, no examples of AE had ever occurred 
in Kazakhstan.  This is a problem. 
      Recommendations: This training should continue in the regions 
and should be accompanied by "Risk Management" training to augment 
the AE events.  All EXBS training should include, as was effectively 
done in this workshop, a format where the instruction is interactive 
- meaning the participants should be involved and have a chance to 
present how they conduct business so that the USG can better tailor 
the exchange to what is most relevant to the audience as well as 
better assess Kazakhstan's needs. 
The upcoming Volunteer Visitor Program should be used as an 
opportunity to impress on the Customs Chairman (Mr. Askar Shakirov) 
that AE should be exercised diligently to at least the point where 
"actual violations" are reported and prosecuted. The location for 
the previously mentioned AE training was unsuitable because of the 
inherent distractions associated with conducting training in the 
working environment.  Facilities used by USG agencies are in the 
opinion of the Advisor often deficient.  This is routinely 
experienced, perhaps due to money concerns.  However the quality of 
the instructional environment should always be considered.  Bluntly, 
the cost of contracting a decent and fully equipped conference room 
in a hotel or other suitable place outside of the participants' 
 
ASTANA 00000653  005 OF 007 
 
 
working area should be policy.  Training events in substandard 
working areas should not be allowed because they detract from both 
the learning experience and level of participation.  State 
Department contractors should know that selection of a decent 
conference room is a requirement, and, the EXBS Advisor may need to 
start having some say in where events are planned to avoid this 
problem. 
 
 
¶C. EQUIPMENT DELIVERED DURING THE REPORTING PERIOD 
 
      ¶1. No equipment delivered during this reporting period. 
 
¶D. IMMINENT TRAINING OR EQUIPMENT STATUS UPDATE 
 
 ¶1.  Product Identification Training (PIT) April 3-5.  Department of 
Commerce (DOC) is planning to conduct Product Identification Tool 
Training (PIT) in Almaty. This training focuses on the 
identification of nuclear, biological, and chemical materials, the 
use of Kazakhstan's software and licensing systems to identify 
materials, what to do if questionable materials are suspected at 
Border Crossings, as well as methods of processing licensing 
applications. 
EXBS office is expecting to get CCC Request from DOC. 
 
 ¶2. Bucharest Export Control Conference.  Kazakhstan's delegation to 
the 8th Annual Export Control Conference in Bucharest, Romania 
(March 6-8) consists of two officials: Sergey Savelyev, representing 
the Ministry of Foreign Affairs, and Ernar Bakenov, representing the 
Customs Control Committee under the Ministry of Finance. At this 
time, all preparations have been made and the event is scheduled to 
take place as planned. 
 
 ¶3. Task Order 79 Donation.  Task Order 79 for the EXBS donation of 
Ural Trucks and Border Guard Shelters is nearing fruition.  It is 
expected that these donations will occur in March or April; however, 
definite delivery dates have not yet been determined. 
Additionally, EXBS-DC has approved modifying the Task Order to 
include "complete" shelter installation rather than "partial" 
installation.  EXBS has also requested the supplying contractor to 
change the ship point of the Ural trucks.  These changes are 
considered very desirable and are recommended by the EXBS office in 
Kazakhstan.  Due to the significance of this donation, EXBS Office 
intends to solicit the participation of the Ambassador at the 
dedication ceremony. 
 
 ¶7. X-Ray Van Repairs. The Department of Energy (DOE) will send a 
technician to maintain the donated X-Ray Van at the Korday Customs 
Post on the Kazakhstan - Kyrgyzstan Border April 14-16, and to 
Shymkent city on the Kazakhstan - Uzbekistan border on April 18-20. 
The EXBS team is planning to support the X-Ray van team and conduct 
Border Site Assessments at the above mentioned customs posts. 
 
 ¶8.  Preliminary Second Line of Defense site survey. The Second Line 
of Defense (SLD) program team will conduct construction and 
integration efforts in the placement of radiation detection 
equipment and portal monitors to vehicle crossing sites throughout 
Kazakhstan during April 2007 (Apr.1-30). Country Clearance Cable was 
sent to the SLD team. 
 
 ¶9.  Fiber Scope Repairs.  Status unchanged. EXBS Office will 
continue to contact Carla D'Onofrio of DHS/CBP to determine whether 
funding to repair various EXBS donated equipment, such as the 
 
ASTANA 00000653  006 OF 007 
 
 
previously donated fiber scopes is available.  In February 
Kazakhstani Customs requested EXBS to support these repairs. 
 
¶E. SIGNIFICANT DEVELOPMENTS IN EXPORT CONTROLS, NONPROLIFERATION, OR 
RELATED BORDER SECURITY 
 
 ¶1.  UNSCR 1718. Review of Mr. Tobey's visit. At the Feb. 26 meeting 
with Mr. Shakirov, EXBS Advisor reviewed the visit of William Tobey, 
Deputy Administrator, National Nuclear Security Administration, and 
accompanying delegation on January 24, 2007.  Mr. Tobey had a 
meeting with the Kazakhstani Customs leadership representatives to 
discuss UNSCR 1718 and reinforce the urgency of interdicting North 
Korean attempts to proliferate WMDs. Since Mr. Shakirov was unable 
to attend this meeting, the EXBS office reinforced Mr. Tobey's 
message to Mr. Shakirov. 
 
¶F. CASPIAN SECURITY INFORMATION 
 
      ¶1. None. 
 
III. RED FLAG ISSUES. 
 
 ¶1. EXBS Advisor requests guidance on the authority to make 
financial commitments in emergency situations.  When unexpected 
emergencies arise, like airline delays as previously mentioned, the 
escorting EXBS officer should have some kind of authority to make a 
prudent decision on the ground to incur the expense of an additional 
hotel night stay and not feel exposed personally for that expense. 
 
 ¶2. During the Export Control Seminar in Almaty (Feb. 19-22), the 
participants discussed the possibility of creation/establishment of 
international toll-free number, similar to one existing in the U.S. 
Customs, or web site for anonymous reporting of any suspicious cases 
related to weapons of mass destruction (WMD). This may become an 
additional tool in the interdiction of contraband and countering the 
proliferation of WMD, conventional arms, and related materials. 
 
 ¶3. Donor Agreements.  When donations are transferred to a receiving 
government the Donor Agreement should be very clear on where the 
host government and USG responsibilities start and stop.  Two cases 
in point include the Safe-Boat Donation to Kazakhstan in Spring 2006 
and the pending Shelter / Ural truck donation scheduled to occur in 
spring 2007.  The Advisor recommends that Statements of 
Understanding or Agreement should be very clear and in both of the 
latter cases this clarity is not present.  Unclear responsibilities 
will lead to misunderstanding and potential strained relationships 
between the EXBS Program and host government.  This is an issue of 
attention-to-detail and solid communications.  This situation should 
be a topic for discussion at the Annual EXBS Conference in June 
¶2007. 
 
 ¶4.  EXBS Program Mission.  A meeting was held March 9 with the 
Embassy Security Assistance Working Group and a number of visitors 
from Central Command and DoD.  The question of how EXBS is different 
in terms of host government engagement from other DOD and INL 
activities was raised by the visitors.  The question was asked 
because DoD, DTRA, OMC, DOE, INL, etc. all do many similar things 
with, for example in this case, Kazakhstan's Border Guard.  Of 
course the response included the narrow focus of EXBS has on WMD 
UNSCR 1540 and NADR funding, but the answer seemed to fall short. 
This question of role and coordination could be another topic for 
the June Conference. 
 
 
ASTANA 00000653  007 OF 007 
 
 
ORDWAY