VZCZCXRO9975
RR RUEHAST
DE RUEHAH #1488/01 3181250
ZNR UUUUU ZZH
R 131250Z NOV 08
FM AMEMBASSY ASHGABAT
TO RUEHC/SECSTATE WASHDC 1859
INFO RHFJUSC/US CUSTOMS SERVICE WASHDC
RHEBAAA/USDOE WASHDC
RUCPDOC/DEPT OF COMMERCE WASHDC
RULSJGA/COMDT COGARD WASHDC
RUCNEXC/EXRBS COLLECTIVE
RUEKJCS/SECDEF WASHDC
RHEBAAA/USDOE WASHDC
RHEBAAA/NNSA WASHINGTON DC
RUEKJCS/JOINT STAFF WASHDC
RUEHAST/USOFFICE ALMATY 5507
RUEHNT/AMEMBASSY TASHKENT 5071
RUEHEK/AMEMBASSY BISHKEK 2926
RUEHKB/AMEMBASSY BAKU 0328
RUEHRL/AMEMBASSY BERLIN 0427
RUEHDBU/AMEMBASSY DUSHANBE 0098
RUEHSI/AMEMBASSY TBILISI 1069
RUEHYE/AMEMBASSY YEREVAN 0078
RUEHMO/AMEMBASSY MOSCOW 3031

UNCLAS SECTION 01 OF 07 ASHGABAT 001488 
 
SIPDIS 
 
DEPT FOR ISN/ECC - JHARTSHORN, LSPRINGER, AND YWONG 
SCA/CEN FOR DGENRENBEK AND RSNELSIRE 
SCA/RA FOR ACUMMINGS 
DHA/CBP FOR RWATT, AND KCHAISSON 
DHS/ICE FOR AMEFFERD 
DOE/NNSA FOR RTALLY, AND EDESCHLER 
DOC/BIS FOR DCREED 
U.S.CG FOR SHABTEMICHAEL 
AMEMBASSY BERLIN FOR CBP ATTACHE 
AMEMBASSY MOSCOW FOR ICE ATTACHE 
 
E.O. 12958: N/A 
TAGS: ETTC MNUC PARM PREL KSTC KNNP TX
SUBJECT:  TURKMENISTAN: OVERVIEW OF USG BORDER SECURITY ASSISTANCE 
 
REF: SECSTATE 107424 
 
¶1.  The following report about USG border security assistance to 
Turkmenistan is post's response to reftel request by the Export 
Control and Related Border Security Interagency Working Group (IWG) 
for Central Asia to compile an overview of all of nonproliferation, 
law enforcement, counter-narcotics, and counter-terrorism border 
security assistance being provided.  Post's resident EXBS advisor 
coordinated and compiled input from agencies at post that provide 
border security assistance, met with members of other international 
donor programs, and requested information from the Government of 
Turkmenistan (GOTX).  The following responses and information were 
received: 
 
TOPOGRAPHY, STATE OF THE PHYSICAL BORDER 
 
¶2.  Turkmenistan is a subtropical desert.  It is eighty percent 
covered by the sandy Karakum Desert with a low mountain range on the 
south.  It covers approximately 303,350 square miles and the total 
length of its borders is 2,726 kilometers.  Turkmenistan and Iran 
share a 992 kilometer border along the rugged Kopet Dag Mountains in 
the south; Kazakhstan borders Turkmenistan for 379 kilometers in the 
North; Afghanistan and Turkmenistan share a 744 kilometer border on 
the south and southeast; Uzbekistan borders Turkmenistan on the 
north and east with the Amu Darya River paralleling seventy-five 
percent of the 1,621 kilometer border; and the Caspian Sea coast 
stretches 450 kilometers from Kazakhstan to Iran on the west. 
 
OVERVIEW OF USG BORDER SECURITY ASSISTANCE AGENCIES/PROGRAMS 
IN-COUNTRY 
 
¶3.  EXPORT CONTROL AND RELATED BORDER SECURITY (EXBS) ASSISTANCE 
PROGRAM.  The EXBS program is managed by the Department of State, 
Bureau of International Security & Nonproliferation, Office of 
Export Control (ISN/ECC).  EXBS comprises a wide range of 
non-proliferation export control assistance, including the provision 
of an in-country advisor, training and technical assistance, and 
equipment.  Drawing on the expertise of the Department of Homeland 
Security, the Department of Commerce, the Department of Energy, as 
well as the private sector, non-governmental and international 
organizations, EXBS works bilaterally and multilaterally to improve 
export control capabilities in the following areas: legal/regulatory 
frameworks, licensing procedures and practices, government outreach 
to industry, and enforcement techniques and capabilities. 
 
¶4.  EXBS has been working in Turkmenistan since 2002 and works 
primarily with State Customs Service (SCS) and the State Border 
Service (SBS).  The EXBS budget for Turkmenistan from 2002 to 2007 
averaged $330,000 per year.  The 2008 budget is $1,050,000.  To 
date, EXBS has provided or assisted in providing the GOTX with over 
USD two million in equipment, including Micom radios, UAZ jeeps, 
radiation detection equipment, night vision goggles, nine sets of 
radiation portal monitors, GAZ water and maintenance trucks, engine 
overhaul parts for a former United States Coast Guard cutter, and 
x-ray units.  In FY09, EXBS will provide Radiation Identification 
Detection Units (RIID), CT-30 inspection kits, and modular 
structures for use at border posts.  Additionally, in FY09 EXBS will 
fund training for Customs and Border Guard officers in the following 
areas:  border, rail and air cargo inspections, legal and regulatory 
frameworks, commodity identification, train-the-trainer, and RIID. 
The training will be held both in Turkmenistan and the United 
States.  The train-the-trainer workshops will be held at the U.S. 
Federal Law Enforcement Training Academy and in Turkmenistan. 
 
ASHGABAT 00001488  002 OF 007 
 
 
 
¶5.  EXBS is working with the Department of Energy's Second Line of 
Defense program to assist in replacing old radiation portal monitors 
and installing new monitors at Turkmenistan border crossing points. 
Five locations have been assessed and a contract signed for 
replacement of seven monitors.  New monitors will be installed at 
new locations in Turkmenistan as soon as the memorandum of 
understanding is signed.  EXBS Turkmenistan also works with the EXBS 
Baku Marine Program to provide logistical support for repairs to the 
donated U.S. Coast Guard cutter, Point Jackson operated by the 
Border Guards on the Caspian Sea. 
 
¶6.  DEPARTMENT OF DEFENSE.  The Nevada National Guard (NVNG) has 
been operational in Turkmenistan since 2003.  Under the supervision 
of and funded by U.S. Central Command, in 2005 it started a major 
program aimed at improving border crossing facilities and 
infrastructure.  Its mandate is to stop illicit trade but also 
facilitate legitimate commerce.  The program is funded by U.S. 
CENTCOM's counternarcotics budget and consists of building new 
border posts.  In 2005, the NVNG began construction on the Altyn 
Asyr Border Control Checkpoint (BCC), located on the southwest 
Turkmenistan border with Iran.  The Altyn Asyr BCC was completed in 
November of 2006.  In December 2006 the NVNG started construction on 
the Imamnazar BCC, located on the southeast Turkmenistan border with 
Afghanistan.  The Imamnazar BCC was completed in August 2007.  In 
the spring of 2008, the NVNG began construction of the Farap BCC, 
located on the eastern Turkmenistan border with Uzbekistan.  The 
Farap BCC is projected for completion in spring 2009.  The BCCs are 
equipped with computers and scanners; HF communication is planned 
for 2009.  U.S. CENTCOM plans to install large cargo x-ray systems 
at the BCCs.  Each BCC costs between USD 2.2 and .6 million 
(excluding the large cargo x-ray systems).  The BCCs will need 
additional inspection equipment and training. 
 
¶7.  A second DOD project will equip the State Border Service (SBS) 
and State Counternarcotics Service (SCNS) with Harris HF RF5800H-MP 
radios.  The U.S. has proposed a total of fifty-five Harris radio 
sites between the two agencies.  The SCNS radios will be placed 
within Ahal and Balkan Provinces, as well as at all border crossing 
points along the southern/eastern frontiers from the Caspian Sea to 
Farap.  The manufacturer will provide a "train the trainer" session 
in both operation and installation. 
 
¶8.  STATE DEPARTMENT INL PROGRAM.  The Bureau of International 
Narcotics and Law Enforcement Affairs (INL) Program currently has 
one project in Turkmenistan.  The "Turkmenistan-Afghanistan 
Cross-Border Project" has a budget of USD 225,000.  The project 
builds on prior Department of Defense efforts to construct new 
checkpoints on the Turkmen/Afghanistan and Turkmen/Iranian borders. 
The project will include joint training of law enforcement officials 
(SCNS, SCS, SBS, and national police) on the 
Turkmenistan-Afghanistan border and provide basic communication 
equipment.  The project will encourage cross-border law enforcement 
coordination.  It will also develop an alternative line of 
communication that will continue to improve border security and 
interdiction of Afghan-origin narcotics. 
 
DESCRIPTION OF POST COORDINATION OF THESE PROGRAMS 
 
¶9.  The Embassy Law Enforcement Working Group meets quarterly.  The 
members are DCM (currently the Charge d'Affaires), POL/ECON (INL), 
DAO, OMC, RSO, DEA, and EXBS.  The meetings are chaired by the DCM. 
Members provide updates on their program projects and agencies are 
 
ASHGABAT 00001488  003 OF 007 
 
 
requested to coordinate their equipment and training programs. 
Members are also requested to provide any information on host 
government projects that can be coordinated with Embassy projects to 
avoid duplication or excess. 
 
DESCRIPTION OF COORDINATION WITH OTHER DONORS 
 
¶10.  The Embassy is a member of the International Donors Group.  The 
group consists of members from most of the embassies and 
non-government organizations in Turkmenistan.  The group meets 
quarterly.  The Embassy hosted the meeting in May, 2008.  The last 
meeting was held in September and hosted by the Organization for 
Security and Co-operation in Europe (OSCE).  The Embassy was 
represented by the DATT, POL/ECON, and EXBS.  The members discussed 
existing programs, coordination and how to avoid duplication of 
assistance.  Members often hold side meetings and invite each other 
to observe training programs.  During the last meeting, OSCE invited 
members to observe the "Practical Training in Drug Search, Detection 
and Identification" training program held in Ashgabat on November 
3-4, 2008.  The training, funded through OSCE, was delivered by 
Turkish Customs and Drug Enforcement Officers.  The training 
consisted of one day of classroom presentations by Turkish experts 
and one day of practical exercise conducted in a port environment. 
EXBS attended the training and found it to be well presented and 
informative.  The trainers admitted that two days was only enough 
time to cover the basics. 
 
NAMES, LOCATIONS AND CONDITION OF BORDER CROSSING ASSISTANCE 
PROJECTS 
 
¶11. Dashoguz Province borders Uzbekistan in the North. 
a. The Dashoguz land and railroad border crossings are co-located. 
Both structures are approximately ten years old and made from brick 
and concrete.  The structures are serviceable and in good shape. 
b. The Konye Urgench land port is being refurbished and equipped in 
a joint Turkmen Government/BOMCA project.  The Border Management and 
Drug Action Program in Central Asia (BOMCA/CADAP) finalized a tender 
to construct and equip the crossing at Konye Urgench in September 
¶2008.  However, the GOTX has elected to construct the crossing at 
its own expense.  BOMCA will procure the necessary border inspection 
equipment.  In June 2008, BOMCA provided training to representatives 
of the State Customs Service and Ministry of National Security 
officials on the use of SABRE 4000 and HAZMAT identification 
equipment.  Four SABRE 4000 units and HAZMAT identification were 
donated to the Konye Urgench border post. 
 
¶12.  Lebap Province borders Uzbekistan in the East. 
a. Farap BCC construction is underway; see para six above.  The new 
port will be modern and meet the needs of the Turkmen Government. 
b. The rail crossing post at Tailmardjan is an older brick and 
concrete structure.  The structure needs new windows, doors, heating 
and air conditioning and external lighting for railcar inspections. 
c. Imamnazar BCC is complete; see para six above.  The new port is 
modern and meets the needs of the Turkmen Government. 
 
¶13.  Mary Province borders Afghanistan in the South. 
a. The land and rail border ports of Serhetabat were recently built 
by the Government of Great Britain. 
The port is modern and meets the needs of the Turkmen Government. 
 
¶14.  Ahal Province borders Iran in the South. 
a. The land and rail border ports of Serahs and the land port of 
Artyk are scheduled to be rebuilt by the U.S. DOD in 2009. 
 
ASHGABAT 00001488  004 OF 007 
 
 
b. The land border port of Gowdan was recently rebuilt by the 
Turkmen Government. 
c. Ashgabat International Airport is located on the northern edge of 
Ashgabat.  The airport is adequate to meet the current needs of the 
Turkmen Government.  However, Ashgabat is expanding and 
international business is increasing.  Ashgabat International 
Airport will have to be relocated within ten years. 
 
¶15.  Balkan Province borders Iran on the Southwest, the Caspian Sea 
on the west and Kazakhstan on the Northwest. 
a. The land border port of Altyn Asyr was newly constructed in 2006 
by the Nevada National Guard with CENTCOM funding of 2.4 million. 
The NVNG will equip the port with a large cargo x-ray system, 
computers and communication equipment.  The NVNG will not provide 
computer training or inspection equipment.  The port is modern and 
meets the needs of the Turkmen Government. 
b. Turkmenbashy Seaport is located on the Caspian Sea at the city of 
Turkmenbashy.  The port is scheduled for a major refurbishment by 
the Turkmen Government.  Currently the port has a Customs-controlled 
ferry terminal capable of unloading passengers, vehicles, truck and 
railcars arriving from across the Caspian Sea.  The port also has 
the capacity to load and offload sea containers.  There are normally 
six to ten oil tankers or other large vessels at anchor in the 
harbor.  The Border Guards patrol the Caspian Sea in several small 
short-range patrol boats and one eighty-two foot Point Jackson 
patrol boat.  The U.S. Coast Guard donated the patrol boat to the 
Turkmenistan Government in 2000.  The EXBS program has provided 
support for training, equipment and hull refurbishment. 
c. Turkmenbashy Airport will be expanded and modernized by the 
Turkmen Government.  The government  plans to change the designation 
of the Turkmenbashy Airport from domestic to international. 
 
¶16.  Regarding the request for names, locations and conditions of 
minor land border crossing points, Turkmenistan does not have small 
land ports or crossing points.  All traffic, passenger vehicle, 
truck, or rail must cross at the designated crossing points 
mentioned above.  The EXBS program will contract to build ten small 
border control stations to house the Border Guards fast response or 
MOBIT teams.  The Turkmenistan Government has requested fifty 
stations.  Other international donors are contemplating building 
additional stations. 
 
¶17.  Post's recommendation and rationale for modular shelters for 
land border crossing points that will allow border security forces 
to operate out of fully functional bases of operations is the 
following: 
 
The borders of Turkmenistan are 2,726 kilometers long and encompass 
inhospitable terrain as well as long stretches of uninhabited land 
between crossing points.  A September 2007 report by UNODCP 
"Securing Central Asia's Borders with Afghanistan" illustrated the 
need for Mobile Interdiction Teams (MOBITs) to increase the 
capabilities of border guards, customs and law enforcement bodies 
posted in high-risk areas.  Turkmenistan's border control falls 
mainly under the Ministry of National Security (MNS) with border 
crossing points considered national security points with limited 
access granted.  Turkmenistan has few legal border crossing points 
but thousands of kilometers of potential access points.  The 
strategic placement of modular shelters will allow for rapid 
response to illegal border crossings.  The Government of 
Turkmenistan, recognizing the potential for reducing the flow of 
narcotics, TIP and/or articles of WMD, has requested assistance with 
fifty modular posts.  EXBS has funding for ten and other 
 
ASHGABAT 00001488  005 OF 007 
 
 
international donors have expressed interest in this project. 
 
OVERVIEW OF HOST GOVERNMENT AGENCIES OPERATING AT THE BORDERS AND 
THEIR LEGAL AUTHORITIES 
 
¶18.  CUSTOMS.  The State Customs Service of Turkmenistan has the 
responsibility to implement regulations and conditions for the 
transfer of goods, means of transportation, collection of customs 
fees, registration, customs control and other methods for the 
implementation of the customs policy.  Customs jurisdiction includes 
the territory of Turkmenistan, territorial and internal waters and 
its airspace, as well as islands located in Turkmenistan's economic 
zone and facilities under the exclusive jurisdiction of Turkmenistan 
according to customs legislation. 
 
¶19.  The "Customs Code of Turkmenistan" provides the legal, economic 
and organizational basis for customs operations aimed to protect the 
economic sovereignty and security of Turkmenistan.  General customs 
policy is formulated by the Cabinet of Ministers of Turkmenistan. 
Direct customs management is implemented by the State Customs 
Service. 
 
¶20.  The law "On the Fight Against Terrorism," chapter 14, Article 6 
states that the State Customs Service engages in the fight against 
terrorism by stopping attempts to illegally transport weapons, 
ammunition, explosives, poisonous and radioactive substances and 
items, and printed and other materials that contain appeals for the 
overthrow of the constitutional order. 
 
¶21. BORDER GUARDS.  The State Border Service of Turkmenistan carries 
out the fight against terrorism by preventing, uncovering and 
stopping terrorists' attempts to cross Turkmenistan's borders, as 
well as by carrying out counterterrorist operations.  The Border 
Service is also responsible for stopping illegal trafficking of 
arms, explosives, poisonous and radioactive substances, and other 
items which could be used as tools for committing terrorist crimes. 
It takes part in ensuring the safety of the national sea navigation 
within the territorial waters and the economic zone of 
Turkmenistan. 
 
¶22.  The law "On the Fight against Terrorism" provides the legal 
basis for the Border Guards' counterterrorism responsibilities.  The 
law establishes the system for the work and coordination of the 
activities of state agencies in the fight against terrorism, and 
sets out the rights and duties of citizens engaged in combating 
terrorism.  The counterterrorism law designates the State agencies 
engaged in combating terrorism as follows:  the President of 
Turkmenistan and the Cabinet of Turkmenistan shall exercise general 
leadership in combating terrorism and shall provide the necessary 
resources to combat terrorism; the following state agencies shall 
directly implement the fight against terrorism within their 
competencies:  Ministry of National Security; Ministry of Internal 
Affairs; Security Service of the President of Turkmenistan; Ministry 
of Defense; State Service of Turkmenistan on Registration of Foreign 
Citizens; State Border Service; State Customs Service; and the 
General Prosecutor's Office of Turkmenistan. 
 
OVERVIEW OF HOST GOVERNMENT BORDER SECURITY TRAINING INSTITUTIONS 
 
¶23.  BORDER GUARDS.  The State Border Service is part of the 
Ministry of National Security.  Their role on the borders is 
security and containment.  Turkmenistan's borders are closed to all 
passengers, vehicles, vessels or aircraft with the exception of the 
 
ASHGABAT 00001488  006 OF 007 
 
 
designated international ports (airport, seaport, and large land 
border ports).  There are no official green-border crossing points. 
The Border Guards provide immigration services at the international 
ports.  They act as witnesses to cargo inspections and personal 
inspections performed by Customs Officers if requested.  They also 
conduct inspections of persons, baggage and conveyances if an 
immigration or national security violation is suspected.  They have 
drug and explosive detection dogs at the ports.  The Border Guards 
have full responsibility for the green-border areas. 
 
¶24.  The Border Guard Training Academy is housed in a large modern 
building in Ashgabat.  The facility cost over sixty million U.S. and 
is equipped with modern classrooms and equipment.  The National 
Security Training Program is located in the same building, and 
Border Guard Officers receive national security training as part of 
the four-year program.  The curriculum is military based.  Civilian 
border enforcement training is not taught at the academy.  Border 
enforcement training is taught in the field as on-the-job training 
(OJT) or coordinated by organizations such as EXBS, UNODC/BOMCA, or 
the U.S. Department of Defense.  The EU-UNDP BOMCA/CADAP Programs in 
Turkmenistan report for January-September, 2008 indicated that BOMCA 
has let tenders for refurbishment work and procurement of office 
equipment for the Training Academy.  BOMCA has provided renovation 
work and training equipment to the Training Academy and the Border 
Guard's Dog Training Center in the past.  In October 2008, six dog 
handlers for the new State Counter-Narcotics Service completed a 
three-month BOMCA funded detector dog training course in Almaty, 
Kazakhstan. 
 
¶25.  STATE CUSTOMS SERVICE.  The Turkmenistan Customs Service 
Academy is located in an older building on the edge of Ashgabat. 
The building is not owned by the Customs Service.   OSCE equipped 
three classrooms with modern computers.  The initial course of study 
lasts for three months with periodic refresher training.  The 
curriculum covers customs law and revenue collection.  The academy 
also provides a basic English language training program and computer 
based x-ray image training.  Both programs are funded through OSCE. 
Periodic training at the Russian Customs Academy in Moscow with an 
internship at the international airport is offered on a case-by-case 
basis.  Customs Inspectors also receive military training at the 
Military Institute.  Civilian border enforcement is not taught at 
the academy.  Enforcement training is covered by OJT or provided by 
organizations such as EXBS, UNODC/BOMCA, or the U.S. Department of 
Defense. 
 
USG AGENCIES/PROGRAMS ENGAGED IN ASSISTING BORDER SECURITY TRAINING 
INSTITUTIONS; 
 
¶26.  EXBS is not currently providing assistance to the Border Guard 
or Customs training institutions.  The Border Guard Academy is part 
of the Military Institute and EXBS has not been allowed access.  The 
Customs Academy building is not owned by Customs.  The only support 
EXBS could offer the Customs Academy would be in the area of 
curriculum development through the FLETC project.  The EXBS program 
has programmed 40K for the FLETC project, classroom training 
equipment, and train the trainer programs. 
 
EFFORTS OF OTHER COUNTRIES AND ORGANIZATIONS TO ASSIST BORDER 
SECURITY TRAINING INSTITUTIONS; 
 
¶27.  The training and support provided to Turkmen border security 
training institutions is limited by the access allowed by the 
Turkmen Government.  Access to the Border Guard training institution 
 
ASHGABAT 00001488  007 OF 007 
 
 
is highly restricted because it is co-located with the National 
Security Training Institution.  OSCE, BOMCA, IOM, EXBS and others 
have offered to work with the Border Guards on the curriculum 
offered at the academy.  The Border Guards need to put together a 
realistic training strategy, a training curriculum, design, 
development, delivery and evaluation of training courses, the 
provision of a modern operations manual, the establishment of 
performance standards, and training for trainers.  Assistance in 
these areas has been offered but acceptance by the Turkmen 
government has been highly sporadic.  Various international donors, 
including the United States, have provided training opportunities to 
the Turkmen Border Guards. 
 
¶28.  The State Customs Service has been more receptive to offers 
from international organizations and multilateral/intergovernmental 
programs.  OSCE has provided three classrooms with computers and 
other equipment at the Customs Training Academy.  OSCE has provided 
computer based English-language training and x-ray image 
identification training for four hundred Customs officers.  Customs 
officers have access to training at the Russian Customs Academy and 
an internship at the Moscow airport.  OSCE, BOMCA, IOM and the 
United States all provide training opportunities both in 
Turkmenistan and abroad.  EXBS is preparing to offer a FLETC 
training and technical assistance program to the Turkmen Customs 
Service. 
 
¶29.  OSCE has proposed a 402K Euro training program for the Turkmen 
Customs and Border Guards in June/March 2009.  OSCE proposes to 
train eight Turkmen and eight Afghan Border Guards as team leaders 
in the field of tactical patrolling and surveillance.  OSCE also 
proposes to provide joint training to ten Turkmen and twenty Afghan 
Customs Officers as master instructors in the areas of risk 
management, profiling, targeting, selection and search techniques. 
Both will be pilot projects. 
 
CURRAN