UNITED WE STAND (SORT OF): ASHGABAT'S WESTERN

1. (SBU) On January 27, Consular officers from the U.S.,
German, British and French embassies met at the German
Embassy in Asghabat to discuss shared consular trends and
anti-fraud prevention measures pertinent to each embassy.
Like the U.S. Embassy, EU embassies reported an increase in
demand and fraud, a possible indication that more
Turkmenistanis are eager to escape Turkmenistan's repressive
and increasingly declining political and economic
environment. While all were eager to share experiences and
information on consular and fraud trends, our German and
French colleagues were not receptive to proposals to engage
in consular outreach to better inform Turkmenistanis about
our respective visa rules and regulations. END SUMMARY.



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RISING DEMAND EQUALS RISING FRAUD


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2. (SBU) According to Consular Chief Vera Gebhardt (who was
joined by her assistant Nadine Lahayne), the German Embassy
in Ashgabat has seen a steady increase in visa issuances over
the past three years: from 3100 visas issued in 2003 to 3,600
issued in 2005. Seventy-five percent of visas issued were
for those purchasing cars in Germany to bring back to
Turkmenistan. The remaining recipients were those visiting
family members, students, and businessmen. Gebhardt added
that very few Turkmensitanis apply for tourist visas due to
the high cost of expenses in Germany. The German embassy's
14 percent refusal rate is considered high compared to other
German embassies in the former Soviet republics.



3. (SBU) Gebhardt said that the embassy did not have any
information as to the number of overstays of those who
received German/Schengen visas, since most who choose to
remain do so outside of Germany. She did note that one group
of concern are those applying to work as au pairs. In 2005,
30 Turkmenistanis went to Germany to work as au pair and only
11 (37 percent) came back. She added that in 2005, the
German embassy had caught one applicant using a fake passport
(Note: This was the first reported incident involving a
fraudulent Turkmenistani passport. End Note)



4. (SBU) British Consular Officer David Baugh said that he
issues many visas to relatives of Turkmenistanis who have
married UK citizens, as well as to maids who wish to work for
them. The British Embassy is very concerned with the large
number of falsified bank documents that applicants use to
support their applications (Note: Baugh has provided us with
samples of these documents. End Note.) When confronted with
fraudulent documents, Baugh said that these banks refuse to
officially acknowledge that they are indeed fraudulent,
although informally they do.



5. (SBU) Baugh also said that the British Embassy has
experienced problems with local tour agencies and visa
facilitators, many of whom brief applicants on how to pass
visa interviews. Baugh informed us of three
agencies/expeditors who are constant offenders: Alsayhat (a
local travel agency), Oxford Vision (a UK-based company run
by a Turkmenistani currently living in the UK), and Klara
Asadulina, a former travel agency worker who has supported
many bad UK student visa applicants. (Note: In January 2005,
Asadulina attempted to bribe post's NIV FSN, who ironically
is also our fraud investigator. Thanks to information
provided by Baugh, Asadulina is currently entered into the
CLASS system as a P6E. End Note).



6. (SBU) French Consular Officer Sophie Guegan-Rivet said
that in 2005 the French Embassy issued 400 visas, compared to
563 in 2004 and 291 in 2003. She said that French embassy
had expected an increase in demand for visas, as well as
fraud in 2005 with Turkmenistan Airlines' introduction of
direct service to Paris, which did not materialize. Most
French visas are issued to Schlumberger employees who go to
France for training to work in the oil and gas fields in
Turkmenistan. Guegan-Rivet added that she has also seen an
increase in the number of Turkish citizens applying for
French visas. Baugh added that he has also seen an increase

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in the number of inquires from Iranians who wish to apply for
British visas in Ashgabat. Baugh suggested that the increase
in third country national applications may be attempts to
circumvent long waiting lines in countries where citizens
must wait for British and French visas, and that they see
Ashgabat as a quick alternative.



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THE U.S. PERSPECTIVE


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7. (SBU) Highlighting points mentioned in Post's recent
anti-fraud summary (REF B), Conoff informed his European
colleagues of the noted 20 percent increase in demand for
visas, as well as post's observations of the constant use of
fraudulent letters of invitation. While Post's visa demand
was much lower compared to other embassies in the former
Soviet Union, we expect a continued increase in demand and
instances of fraud to rise, as the political and economic
situation here continues to deteriorate. While we have
already seen recent examples of increased sophistication of
fraud employed to attempt to get visas, we have not
experienced such a level of fraud as European embassies,
largely since we do not place as high a value on bank
statements and employment letters as EU consular sections
must do as we are obliged to deny based upon the presumption
of intent to immigrate.



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CONSULAR OUTREACH: US AND UK: TOGETHER (AND ALONE) AGAIN


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8. (SBU) Noting that this meeting was the first formal
exchange of ideas and experiences with Western embassies,
Conoff expressed great appreciation for this meeting and
invited his EU colleagues to observe American visa
interviewing procedures and methods, an invitation warmly
received. Conoff also suggested that the US and EU embassies
explore opportunities for joint outreach, given the fact that
our countries are highly popular destinations for work,
travel, and illegal migration. While Baugh expressed
enthusiasm for such outreach, Gebhardt bluntly said that the
German embassy does not wish to advertise its policies,
fearing that it will attract more interest in traveling to
Germany, ergo more work. While the German Embassy is glad to
promote German culture, it is not comfortable doing anything
on the consular front.



9. (SBU) Conoff and Baugh countered that such outreach
should be considered as a means to better explain our visa
procedures since as seen in the incidents of fraud, many
people are not aware of what they can and cannot do, and
could help combat human trafficking and illegal migration.
In addition, such outreach, especially with GOTX
interlocutors, could also serve as a means to elicit
information about the GOTX, including the elusive State
Service for the Registration of Foreigners. Recalling his
close working experience with EU diplomats in Belarus, Conoff
added that it is within all of our interests to work
together, as we all share the same concerns in our line of
work, and that we can and should work together. Conoff also
offered to raise his proposal with other non-EU embassies
whose countries are also popular with Turkmenistanis (i.e.
Turkey, Russia, China, etc.) During this exchange,
Guegan-Rivet sat noticeably silent, however her immediate
cool reaction to Conoff's proposal suggests that she shares
her German colleague's point of view.



10. (SBU) Conoff then expressed U.S. Embassy concern with
the recently passed migration law (REF A), noting that many
of its articles could prevent Turkmenistani citizens from
traveling outside of Turkmenistan, including those who
participate in USG exchanges. While Baugh also expressed
concern with the law, Gebhardt and Guegan-Rivet did not
express any opinion about the law.



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COMMENT


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11. (SBU) Our meeting marked the first time in recent memory
that our embassies formally met to exchange ideas and
experiences. While nothing groundbreaking occurred, it was a
valuable opportunity to learn more about the problems and
similarities shared by each other's consular sections. The
increase in demand and instances of fraud reflect similar
trends we have seen in our consular operations, and suggest

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that more and more people are eager to get while the getting
is good. All agreed that we would continue to work closely
with each other and share information about various fraud
trends, and to regularly meet (Conoff offered to host the
next meeting).



12. (C) The German and French embassies' reluctance to
engage the local population on consular outreach is
indicative of each embassy's general focus on cultural events
and business facilitation. We will continue to engage our
European colleagues to become more proactive in consular
outreach, which would undoubtedly serve all of our interests,
as well as those of Turkmenistanis eager to travel to our
countries. END COMMENT.
JACOBSON