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RUEHPW RUEHROV RUEHVK RUEHYG
DE RUEHAH #1170/01 2490420
ZNR UUUUU ZZH
R 050420Z SEP 08
FM AMEMBASSY ASHGABAT
TO RUEHC/SECSTATE WASHDC 1486
INFO RUCNCIS/CIS COLLECTIVE
RUCNMEM/EU MEMBER STATES COLLECTIVE
RUCNCLS/ALL SOUTH AND CENTRAL ASIA COLLECTIVE
RUEHAK/AMEMBASSY ANKARA 4255
RUEHBJ/AMEMBASSY BEIJING 2067
RUEHKO/AMEMBASSY TOKYO 1932
RUEHIT/AMCONSUL ISTANBUL 2503
RUEHVEN/USMISSION USOSCE 2849
RHMFIUU/CDR USCENTCOM MACDILL AFB FL
RHEHNSC/NSC WASHDC
RUEAIIA/CIA WASHDC
RHEFDIA/DIA WASHDC
RUEKJCS/JOINT STAFF WASHDC
RUEKJCS/SECDEF WASHDC

UNCLAS SECTION 01 OF 03 ASHGABAT 001170 
 
SIPDIS 
 
SENSITIVE 
 
STATE FOR SCA/CEN, SCA/PPD, EUR/ACE, DRL 
AID/W FOR EE/EA 
 
E.O. 12958: N/A 
TAGS: PGOV PREL PHUM EAID KDEM TX
SUBJECT: CIVIL SOCIETY DEVELOPMENT IN TURKMENISTAN 
 
REF:  A. ASHGABAT 0027 
  ¶B. ASHGABAT 0498 
  ¶C. ASHGABAT 0754 
 
¶1.  (U) Sensitive but unclassified.  Not for public Internet. 
 
¶2.  (U) SUMMARY: In response to the 2003 Law on NGO Registration, 
which required all existing NGOs to re-register, USAID changed the 
focus of its civil society development program to work more closely 
with communities.  This grass-roots approach to civil society 
development in Turkmenistan has had a positive impact on the 
development of a genuine civil society in Turkmenistan by increasing 
community groups' ability to engage with local government 
structures, and thereby advocate for their social and economic 
interests.  Although registration is not an ideal metric for 
measuring civil society's impact in Turkmenistan, direct fruit from 
these efforts was harvested in June, when the first community-based 
NGO in Turkmen was registered by the Ministry of Justice.  In order 
to build a grassroots base for future democratic reforms in 
Turkmenistan, the USG should continue to work with community, youth 
and farmers' groups and local governments, and selectively include a 
wider range of civic players, such as government-affiliated NGOs 
(GONGOs) like the Youth Union that are empowered to serve as 
legitimate partners.  Recognizing that the government is unlikely to 
accept a rapid increase in the number of registered groups outside 
its control, future USG programs should focus on improving the 
capacity of community groups rather than simply increasing the 
quantity of NGOs. END SUMMARY 
 
RAPID GROWTH IN POST-INDEPENDENCE NGO REGISTRATION... 
 
¶3.  (U) As in neighboring Central Asian countries, the early years 
of independence saw a rapid increase in the number of registered 
public organizations in Turkmenistan.  That was partially explained 
by the fact that Turkmenistan's government viewed them as a 
potential public resource to support the implementation of his 
"Golden Century" programs.  To start, most of the public 
organizations that existed during Soviet times easily received new 
registration.  Additionally, the closing down of many Soviet-era 
research institutes resulted in the creation of several elite, 
Russian-centered NGOs by these entities' former employees that 
provided high quality services focused on environmental issues, 
although they had limited public outreach or appeal. 
 
¶4.  (U) USAID's efforts to promote civil society development in 
Turkmenistan beginning in the late 1990s resulted in the creation of 
a small group of indigenous non-governmental organizations (NGOs) 
that addressed general societal concerns through democratic 
governance structures.  Although these NGOs were limited in number, 
they were among the nation's first NGOs that were driven by their 
members' interests rather the government's direction.  They 
presented a stark contrast to the existing unions or public 
associations that remained from Soviet times or had been created by 
the Niyazov government to take the lead in popularizing his 
Ruhnama-based ideology.  These new groups also served as an 
alternative to the elite, Russian-centered groups. 
 
¶5.  (U) USAID's technical, grant and legal support to NGOs and 
community groups introduced new resources and approaches to the NGO 
sector.  USAID's NGO capacity building assistance resulted in the 
establishment of a number of independent NGOs with democratic 
governance structures that provided a broad range of services 
focused on education, youth, sports, tourism and health.  Through 
this and other donors' programs, many of these NGOs' leaders had the 
opportunity to further their professional and organizational 
development through participating in regional and overseas training 
courses. 
 
...HALTED BY 2003 LAW THAT REQUIRED RE-REGISTRATION 
 
¶6. (U) The 2003 law on NGO registration, which required all existing 
NGOs to re-register with the Ministry of Justice, was widely viewed 
as a government attempt to reduce the number of independent NGOs. 
 
ASHGABAT 00001170  002 OF 003 
 
 
Due to the resulting limited pool of registered NGOs, USAID changed 
the focus of its civil society development programs to work directly 
with unregistered community groups in 2004.  As a result, the faces 
of USAID's civil society development program partners shifted along 
with its objectives.  Instead of supporting the "usual suspects" of 
old-school, largely ethnic Russian-led NGOs, USAID, through its 
implementing partner Counterpart International, provided 140 grants 
of less than $5,000 each between 2004-2006 that helped predominantly 
rural, ethnic Turkmen communities to improve their lives through 
greater access to potable water, gas, electricity and other social 
infrastructure.  While some of these groups came together to carry 
out discrete projects, others have remained cohesive and continue to 
work together to address issues of collective importance. 
 
LIMITED FUNDING STREAMS AVAILABLE TO SUSTAIN NGOS 
 
¶7.  (U) Today, donors' grants remain the main source of funding for 
NGOs and community groups.  As a result, many NGOs and donor-funded 
resource centers have modern equipment but only limited internet 
access. (NOTE: As with others that rely on the state monopoly 
provider, TurkmenTelecom, for an internet connection, access rates 
are still slow. Furthermore, TurkmenTelecom restricts the centers 
from generating fees that would promote their sustainability by 
charging users for access. END NOTE.) Also, free services are often 
provided only for the duration of the grant-funded project. 
 
¶8.  (U) Some NGOs have diversified their funding by providing paid 
services and by receiving donations from business structures.  To do 
this, however, civic groups must obtain a business license, known as 
a patent, or register as a for-profit entity. 
 
PERCEPTIONS, REGISTRATION OBSTACLES LIMIT ADVOCACY... 
 
¶9.  (U) Public awareness of NGOs and their potential role in society 
is still very low, and perceptions are often shaped by 
Russian-language media sources, which equate NGOs and civil society 
development with the "Color Revolutions" in Georgia, Ukraine, and 
Kyrgyzstan. 
 
¶10.  (U) Since they lack formal registration, or are unable to meet 
the hurdle for registering as a national organization, NGOs 
generally remain unable to conduct national-level advocacy 
campaigns.  For example, the Association of Accountants, which 
supports USG objectives toward introducing international financial 
reporting standards was able to register only as an Ashgabat-based 
entity -- rather than a national organization -- due to its 
inability to attract 500 members in each province, as required by 
law.  As a result, it cannot legally operate in the provinces in 
spite of its non-threatening, but clearly national, mission. 
 
...BUT ATTITUDES TOWARDS NGOS SLOWLY CHANGING 
 
¶11.  (U) During the last two years, however, Turkmenistan's 
Parliament has begun warming to NGO-organized legislative 
initiatives, in one case out of recognition of the group leader's 
skills as a lawyer.  In 2007, the Ilkinjiler farmers' group from 
Mary province, which has received extensive support from USAID and 
other USG programs, initiated regular meetings with members of the 
Parliament and began actively discussing potential changes in 
agricultural legislation.  Turkmenistan's mass media has also shown 
increased interest in the activities of selected registered NGOs. 
For example, the registered mountaineering club, "Agama" and other 
sports-related NGOs have received regular favorable coverage in 
state newspapers. 
 
¶12.  (U) USAID's efforts to promote the government dialogue have 
also contributed to the change in government perception toward the 
NGO sector.  In April 2008, in cooperation with the National 
Institute of Democracy and Human Rights, USAID's partner 
International Center for Not-for-Profit Law (ICNL) organized an NGO 
forum (Reftel A) and a widely-publicized international conference on 
NGO legislation. (Reftel B)  Both were well-attended by government 
officials that openly discussed the challenges and opportunities 
 
ASHGABAT 00001170  003 OF 003 
 
 
facing the sector. 
 
¶13.  (U) Although prospective NGOs still face the difficulties with 
registration, there are positive signs that the Turkmen government 
is willing to register new NGOs.  On June 3, 2008, Turkmenistan's 
Ministry of Justice registered the Ak-Bugday Gardeners' Association 
as a public association. (Reftel C)  This was the first 
community-based NGO registered in the country since 2004, and one of 
eleven total new NGOs registered since then.  The organization's 
mission is to defend the rights of gardeners residing in Saglyk 
village located on the outskirts of Ashgabat.  The members have 
actively participated in USAID's Civil Society Support Initiative 
and Turkmenistan Community Empowerment Programs since 2005. 
 
¶14.  (SBU) COMMENT: While official attitudes toward NGOs continue to 
evolve, the USG should remain flexible and responsive to NGO and 
community groups' needs.  First, the USG should continue to promote 
grass-roots democracy by working with community, youth and farmers' 
groups and local governments.  Although formal, registered NGOs are 
experienced social service providers, few of these same NGOs have 
demonstrated success in establishing constructive dialogue with the 
government and advocating for their interests at the national level. 
 Alternatively, community groups have shown more progress in 
building social partnership with government agencies and local 
structures.  Currently, local government officials are beginning to 
respond enthusiastically to initiatives led by community groups' and 
have in some instances replicated community projects' pilots.  By 
empowering community leaders through training, access to legal 
information, and small grants for  economic stimulus projects, the 
USG can help to ensure that these community groups continue to 
expand opportunities to play a constructive and more effective role 
in local governance. 
 
¶15. (SBU) COMMENT CONTINUED: Second, the USG should diversify its 
approach to civil society development by including a wider range of 
civic players.  Attention should be given to those 
government-affiliated NGOs (GONGOs) that are able to serve as 
legitimate partners empowered by the current administration's 
increasing receptivity to civic activism.  For example, although it 
is a GONGO, the Youth Union has proved a willing and active partner 
for USAID's CAPACITY HIV/AIDS program by hosting a Youth Center in 
Ashgabat that serves as a popular place for young adults  to gain 
confidential and accurate information about sources of HIV/AIDS, 
other sexually transmitted infections, and drug abuse.  The Youth 
Union has also actively supported the efforts of USAID's Community 
Empowerment Project to engage youth, and has offered to co-host a 
National Youth Forum in November with USAID's implementing partner 
Counterpart International. 
 
¶16.  (SBU) COMMENT CONTINUED: Finally, USG efforts to support civil 
society development in Turkmenistan should focus on improving the 
capacity of community groups rather than simply increasing the 
quantity of NGOs.  In spite of the recent registration of eleven new 
NGOs, the government is unlikely to accept a rapid increase in the 
number of registered groups outside its control.  In acknowledgement 
of this reality, USAID and other USG programs should support 
activities that promote and build constructive relations between all 
civic society elements -- NGOs, community groups, GONGOs, and local 
government structures.  This, in turn, will lead to a broader 
grassroots base for future democratic reforms in Turkmenistan. END 
COMMENT. 
 
CURRAN