VZCZCXRO4904
PP RUEHAST
DE RUEHAH #1180/01 3050629
ZNR UUUUU ZZH
P 010629Z NOV 07
FM AMEMBASSY ASHGABAT
TO RUEHC/SECSTATE WASHDC PRIORITY 9629
RUEHAST/USO ALMATY 5483

UNCLAS SECTION 01 OF 04 ASHGABAT 001180 
 
SIPDIS 
 
SENSITIVE 
SIPDIS 
 
STATE FOR SCA/CA (SNELSIRE), SCA/RA, INL (BUHLER) 
 
E.O.  12958: N/A 
TAGS: PGOV PHUM PREL SNAR TX
SUBJECT:  TURKMENISTAN 2007-2008 INTERNATIONAL NARCOTICS CONTROL 
STRATEGY REPORT (INCSR) PART I, DRUGS AND CHEMICAL CONTROL (EUR, 
SCA) 
 
Ref:  SECSTATE 136780 
 
¶I.  Summary: 
 
Turkmenistan remains a transshipment route for traffickers seeking 
to smuggle contraband to Turkish, Russian and European markets from 
neighboring drug-producing countries, primarily Afghanistan and 
Iran.  Turkmenistan is not a major producer or source country for 
illegal drugs or precursor chemicals.  Turkmenistan shares a rugged 
and remote 744-kilometer border with Afghanistan as well as a 
992-kilometer boundary with Iran.  Most of its illegal drug seizures 
occur along Turkmenistan's borders with Afghanistan and Iran. 
 
Counternarcotics efforts are carried out by the Ministry of National 
Security (MNB), the Ministry of Internal Affairs (MVD), the State 
Customs Service (SCS), the State Border Guards Service (SBS), the 
State Agency for the Registration of Foreigners, and the Prosecutor 
General's Office.  The MNB's primary responsibility is to interdict 
illegal drugs on the borders while the MVD deals with drug related 
crimes inside the country.  The State Counternarcotics Coordination 
Commission (SCCC) at the Cabinet of Ministers is an 
inter-departmental body responsible for coordinating the activities 
of concerned government departments.  The SCCC also coordinates 
counternarcotics assistance received from the international 
community.  It has responsibility for overseeing implementation of 
the government's "National Program on Fighting Illegal Drug 
Trafficking and Assistance to Drug and Psychotropic Substance 
Addicts for 2006-2010."  According to Government of Turkmenistan 
statistics, law enforcement officers seized a total of 1,417 kg of 
illegal narcotics in the first six months of 2007. 
 
On June 22, 2007, at the Cabinet of Ministers meeting, newly-elected 
President of Turkmenistan Gurbanguly Berdimuhamedov publicly stated 
that the fight against drugs is one of the priorities of the 
Government of Turkmenistan.  Turkmenistan continues to increase 
cooperation with international organizations and diplomatic missions 
present in Turkmenistan; however, its law enforcement agencies are 
hampered by a widespread lack of resources, training and equipment. 
Mounting evidence, together with increased contacts with government 
officials and non-governmental organizations, strongly suggests that 
domestic drug abuse is steadily increasing, although concrete 
statistics are not publicly available.  Turkmenistan remains 
vulnerable to financial fraud and money laundering schemes due to 
its dual exchange rate.  Turkmenistan is a party to the 1988 UN Drug 
Convention. 
 
II.  Status of country: 
 
Turkmenistan remains a key transit country for the smuggling of 
narcotics and precursor chemicals.  The flow of opiates from 
Afghanistan, such as heroin, opium and other opium-based drugs 
destined for markets in Turkey, Russia and Europe, enter 
Turkmenistan from Afghanistan, Iran, and Uzbekistan.  The bulk of 
the Government of Turkmenistan's law enforcement resources and 
manpower are directed toward stopping the flow of drugs from 
Afghanistan and Iran.   Common methods of transporting illegal 
narcotics include concealment in cargo or passenger vehicles, 
deliveries by pedestrian carriers or animal transport, and in some 
cases by concealment in the body cavities or stomach of humans and 
animals.  Turkmenistan's law enforcement efforts at the 
Turkmenistan-Uzbekistan border are focused more on interdicting 
smuggled commercial goods than on narcotics, thus providing an 
attractive transshipment route.  Commercial truck traffic from Iran 
continues to be heavy, and Caspian Sea ferry traffic from 
Turkmenistan to Azerbaijan and Russia continues to be a viable 
smuggling route.  On December  21, 2006, Turkmenistan's leader, 
Saparmurat Niyazov, passed away.  Newly-elected President 
Berdimuhamedov on several occasions stressed the importance of 
countering the flow of narcotics.  In June 2007, on the eve of 
International Day Against Drug Abuse and Illicit Drug Trafficking, 
the president stated that Turkmenistan should declare a large-scale 
war against drugs and counternarcotics efforts must continue until 
this threat is completely eradicated. 
 
III.  Country actions against drugs: 
 
Policy initiatives: 
 
In January 2007 during his presidential campaign, Berdimuhamedov 
called on all citizens of Turkmenistan to fight drug trafficking and 
accentuated the importance of improving border, customs and law 
enforcement capacities.  About drug demand reduction, he encouraged 
civil society and public organizations to increase their role in 
raising awareness among youth.  In April 2006, the government 
adopted a national multi-year plan for counternarcotics activities, 
the "National Program on Fighting Illegal Drug Trafficking and 
Assistance to Drug and Psychotropic Substance Addicts for 2006-2010" 
(2006-2010 National Drug Program).  This program supersedes the 
 
ASHGABAT 00001180  002 OF 004 
 
 
2001-2005 National Drug Program, and includes: increased regional 
cooperation to prevent drug and precursor trafficking, prevention of 
drug-related crimes committed by minors, enhanced technology-based 
border security, enhanced training for law enforcement agencies to 
combat organized crime, increased counterterrorism efforts, and 
training on drug trafficking and money laundering.  The national 
program also addresses drug demand issues.  The plan has a research 
and treatment of drug addiction and HIV/AIDS component and includes 
a national survey on the spread of drug use and HIV/AIDS within 
target populations.  The plan calls for the creation of drug abuse 
"hot lines."  The government specifically includes in the 2006-2010 
program continued cooperation with U.S. government programs as well 
as with international organizations and diplomatic missions.  In 
August 2004, the government  introduced a new draft criminal 
procedure code in an effort to transform the Soviet-era criminal 
justice process; the parliament has not yet adopted the new code. 
In September 2007, Turkmenistan hosted a Paris Pact Expert Round 
Table on the Caspian Sea and the Caucasus in which 16 countries and 
13 international organizations participated.  In his address to 
conference participants, President Berdimuhamedov stated that the 
decisive and uncompromising struggle against drugs is one of 
Turkmenistan's priority issues. 
 
Law enforcement efforts: 
 
The government continues to give priority to counternarcotics law 
enforcement, and President Berdimuhamedov has paid special attention 
to improving technical capacity of the law enforcement agencies. 
For example,  a military academy for MNB and SBS officers was 
opened, the MVD received new vehicles and equipment, and Customs 
started operating the mobile Vehicle and Cargo Inspection System 
(VACIS) that was purchased through a Chinese Government-provided 
grant.  Law enforcement agencies with counternarcotics enforcement 
authority received equipment and training from the United States and 
international organizations.   In 2007, members of diplomatic 
missions and international organizations were invited to witness 
three inter-agency drug destruction events.  The government is 
enhancing border security efforts and plans to start construction of 
a new border crossing station in Bekdash (on the Kazakh border) in 
¶2007.  The United States sponsored the construction of two new 
border crossing checkpoint facilities on the Iranian border in 
November 2006 and on the border with Afghanistan in August 2007. 
Construction of a third facility on the Turkmenistan-Uzbekistan 
border will commence soon.  The EU is also planning on building a 
new checkpoint on the border with Uzbekistan.  In January 2007, the 
European Commission and UN Central Asia Drug Action Program assisted 
in establishing a Drug Profiling Unit at Ashgabat's International 
Airport by renovating an office and providing special equipment. 
The Customs Service solicited support from international and 
diplomatic missions to develop and improve a customs training 
facility.  The U.S.  and British  governments are co-sponsoring a 
Customs-hosted interagency English language course to equip law 
enforcement officers with language skills requisite for 
participation in international conferences and training. 
Turkmenistan's border forces are moderately effective in detecting 
and interdicting narcotics.  The government reported that 1,417 
kilograms of illegal narcotics were seized on Turkmenistan's borders 
during the first six months of 2007.  The "Adalat" (Justice) weekly 
newspaper is the only local paper that occasionally publishes 
information on law enforcement agencies' activities related to 
illicit drug trade activities. 
 
Corruption: 
 
In an effort to oversee law enforcement activities, President 
Berdimuhamedov established the State Commission on Reviewing 
Citizens Complaints Related to Law Enforcement Agencies Activities 
on February 19, 2007.  The Commission reports directly to the 
president and monitors unlawful activities by law enforcement 
officials.  The government does not encourage or facilitate illicit 
production or distribution of narcotic and psychotropic drugs or 
other controlled substances as a matter of government policy. 
However, law enforcement officials' low salaries, combined with 
their broad general powers, foster an environment in which 
corruption occurs.  A general distrust of the police by the public, 
fueled by evidence of police officers soliciting bribes, indicates a 
problematic level of corruption in law enforcement.  Payments to 
lower level officials at border crossing points to facilitate 
passage of smuggled goods frequently occur.  Reports persist that 
senior government officials are directly linked to the drug trade. 
Stating that corruption is widespread in almost all units of the MVD 
-- including in the departments working on economic crimes, 
organized crime and others -- President Berdimuhamedov publicly 
accused MVD employees of corruption in October 2007.  In 2007, 
President Berdimuhamedov fired and replaced his Minister of Internal 
Affairs twice due to corruption allegations. 
 
Agreements and treaties: 
 
ASHGABAT 00001180  003 OF 004 
 
 
 
Turkmenistan is a party to the 1998 UN Drug Convention, the 1961 UN 
Single Convention and its 1972 protocol, and the 1971 UN Convention 
on Psychotropic Substances.  Turkmenistan and the United States 
signed a letter of agreement for provision of U.S. government 
counternarcotics assistance in September 2001.  In June 2007, the 
governments of Turkmenistan and Iran agreed to form a special joint 
committee to combat narcotics trafficking.  The next month, the 
presidents of Turkmenistan and Afghanistan signed a joint communiqu 
noting the need to further develop their counternarcotics and 
counterterrorism cooperation .  Also in July 2007, President 
Berdimuhamedov signed an agreement between Azerbaijan, Kazakhstan, 
Kyrgyzstan, Russia, Tajikistan, Turkmenistan, and Uzbekistan on the 
establishment of a UN-led Central Asian Regional Information and 
Coordination Center.  In September 2007, the Presidents of 
Turkmenistan and Kazakhstan signed a joint communiqu that 
acknowledged the need to further develop cooperation in 
counternarcotics and against psychotropic substances.  In the same 
month, the United States signed the second Amendment to the Letter 
of Agreement for additional funding of U.S. counternarcotics 
assistance.  Turkmenistan is a party to the UN Convention against 
Corruption, the UN Convention against Transnational Organized Crime, 
and its Protocols against Migrant Smuggling, Trafficking in Persons, 
and Illegal Manufacturing and Trafficking in Firearms. 
 
Cultivation/production: 
 
Turkmenistan is not a significant producer of illegal drugs, 
although small-scale opium and marijuana cultivation is thought to 
occur in remote mountain and desert areas.  Each spring, the 
government conducts limited aerial inspections of outlying areas in 
search of illegal poppy cultivation.  Upon discovery, law 
enforcement officials eradicate opium crops.  According to the State 
Counternarcotics Coordination Committee, law enforcement officials 
conduct Operation "Mak" ("Poppy") twice a year to locate and destroy 
poppy fields. 
 
Drug flow/transit: 
 
Turkmenistan remains a primary transit corridor for smuggling 
organizations seeking to transport opium and heroin to markets in 
Turkey, Russia and the whole of Europe, and for the shipment of 
precursor chemicals to Afghanistan.  There are land, air and sea 
routes through Turkmenistan's territory.  The government's efforts 
to improve border crossing stations during 2007 could lead to higher 
seizure rates or the opening of new trafficking routes if 
traffickers adapt.  Turkmenistan's two major border control 
agencies, the SCS and the SBS, have received increased attention and 
funding for their drug enforcement duties.  Systemic deficits in 
necessary equipment, training, resources, and facilities will take 
time to improve.  Border crossing points with rudimentary inspection 
facilities for screening vehicle traffic and without reliable 
communications systems have been identified by the Government of 
Turkmenistan and are being improved.  However, Turkmenistan is 
likely to continue to serve as a major transit route for illegal 
drugs and precursors. 
 
Domestic programs/Demand Reduction: 
 
In his election platform throughout January 2007, President 
Berdimuhamedov paid special attention to the problem of domestic 
drug addiction, calling it a "disaster for all mankind".  The 
President asserted that society, especially the elderly, should play 
a significant role in preventing youth from using drugs.  Currently, 
the Ministry of Health operates seven drug treatment clinics: one in 
the capital of Ashgabat, one in Serdar city, and one in each of the 
five provincial administrative centers.  Narcotics addicts can 
receive treatment at these clinics without revealing their identity 
and all clinic visits are kept confidential.  Drug addiction is a 
prosecutable crime with jail sentences for convicted persons, 
although judicial officials usually sentence addicts to treatment. 
It is still difficult to obtain any statistical information about 
the number of drug addicts in Turkmenistan.  However, President 
Berdimuhamedov reported in March 2007 that the number of crimes 
connected to drug addiction had increased.  Although not yet 
implemented, the government is currently considering 
internationally-funded prevention programs.  A strategy for 
counternarcotics efforts and assistance to drug addicts is included 
within the framework of the 2006-2010 National Drug Program. 
 
IV.  U.S. Policy Initiatives and Programs: 
 
The Road Ahead: 
 
Staying engaged with all Turkmenistan's counternarcotics enforcement 
agencies is necessary to encourage a successful effort against 
narcotics trafficking.  Bilateral cooperation is expected to 
continue, and the U.S. government will expand counternarcotics law 
 
ASHGABAT 00001180  004 OF 004 
 
 
enforcement agency training at the working level.  As both 
Turkmenistan and U.S. officials identify areas for improved 
counternarcotics efforts, the United States will provide an 
appropriate, integrated and coordinated response.  The U.S. 
government also will encourage the government of Turkmenistan to 
institute long-term demand reduction efforts and will foster supply 
reduction through interdiction training, law enforcement institution 
building, the promotion of regional cooperation, and an exchange of 
drug-related intelligence. 
 
¶V.  Chemical control issues: 
 
The 2004 Law on Drugs, Psychotropic Substances and Precursors 
regulates the Turkmen government's policy on controlling drug 
precursor chemicals.  According to the law, the government controls 
and restricts trafficking of precursors that are included on the 
special list approved by the President of Turkmenistan.  The Cabinet 
of Ministers of Turkmenistan is responsible for overall state 
regulation on precursor control.  The Cabinet also determines 
responsibilities of other government agencies involved in precursor 
control and fighting illegal trafficking. 
 
HOAGLAND