UZBEK OFFICIALS SHOW A HINT OF FLEXIBILITY IN

C O N F I D E N T I A L SECTION 01 OF 03 TASHKENT 001300

SIPDIS

SIPDIS

DEPT FOR SCA/CEN AND DRL

E.O. 12958: DECL: 07/16/2017
TAGS: PGOV KIRF UZ
SUBJECT: UZBEK OFFICIALS SHOW A HINT OF FLEXIBILITY IN
TALKS WITH AMBASSADOR-AT-LARGE HANFORD

REF: TASHKENT 1197

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Classified By: CDA BRAD HANSON FOR REASONS 1.4 (B, D).


1. (C) Summary: Ambassador-at-Large for International
Religious Freedom John Hanford met with four key Uzbek
Government interlocutors during his five-day visit to
Tashkent. All fiercely defended Uzbekistan's record on
religious freedom and suggested that the country's
designation as a Country of Particular Concern (CPC) was the
result of inaccurate and baseless reporting by US diplomats.
However, officials acknowledged that there are some
provisions of Uzbek law that may be overly restrictive
because of Uzbekistan's "transitional" status as a newly
independent state. In a final, "unofficial" meeting with
Ambassador Hanford, Deputy Foreign Minister Shoazim Minovarov
suggested it might be possible to conduct a dialogue on
possible changes to policy and legislation, including an
exchange of confidential letters, to eventually have CPC
status lifted. However, he urged the USG to pursue a
discreet, "friendly" approach that does not further damage
Uzbekistan's dignity with threats of sanctions. This first
round of meetings revealed more flexibility from the Uzbeks
than expected. However, there is a long and difficult road
ahead. End summary.


2. (C) During his five-day visit to Uzbekistan from June 25
to June 30, Ambassador-at-large for International Religious
Freedom John Hanford met with Uzbek government officials
following on Uzbekistan's designation in November 2006 as a
Country of Particular Concern (CPC) for religious freedom.
The purpose of the discussions was to gauge Uzbekistan's
willingness to make changes in its religion policies and
legislation before sanctions must be imposed under US law.
In addition to leaders and other representatives of several
religious communities in both Tashkent and Bukhara (septel),
Hanford also met with Foreign Minister Vladimir Norov, Deputy
Foreign Minister Shoazim Minovarov, Human Rights Ombudsman
Sayyora Rashidova, and Ortiq Yusupov, Acting Chairman of the
Committee on Religious Affairs under the Cabinet of
Ministers. Notably, the Government did not grant a request
for a meeting with Bakhrom Abduhalimov, the Presidential
Advisor for Religious Affairs.

(ALMOST) ALL HAVE EQUAL ACCESS TO RELIGION
--------------


3. (C) All the officials vehemently defended Uzbekistan's
record on religious freedom, pointing out that under Soviet
rule virtually all mosques and other places of worship and
religious education were closed. Since independence, in
contrast, hundreds of mosques have opened, and Uzbekistan now
has eleven madrassahs training imams, as well as other
institutions of higher learning specializing in Islamic
studies. All major religions are registered by the
Government, and all registered religions are treated equally
under the law. Furthermore, the officials proudly noted that
the International Islamic Educational, Scientific, and
Cultural Organization (ISESCO) designated Tashkent as a
capital of world Islamic culture for 2007. (Note: Actually,
Tashkent is one of four Islamic cultural capitals designated
by ISESCO. End Note.) This, they said, is bona fide
evidence of Uzbekistan's flourishing religious life and the
freedom of its 90-percent Muslim population to practice their
faith.


4. (C) One exception to Uzbekistan's overall religious
tolerance, which all officials acknowledged, is the country's
ban on proselytism. Under Uzbek law, the practice is
criminalized, which has resulted in several prosecutions,
particularly of evangelical Baptists and Jehovah's Witnesses.
Ambassador Hanford noted that another major concern that led
to the CPC designation was the difficulty that many groups
have in registering. Without legal registration, religious
groups are technically committing a crime every time they
meet to worship. Uzbekistan requires that any local
religious group have at least 100 members in order to
register, a higher standard than any other Central Asian
country and one which effectively outlaws any smaller group.

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5. (C) A further concern Ambassador Hanford raised with all
officials is the effective ban on private religious
education. While Uzbekistan may boast of several functioning
institutions that train clergy, there are very few options
for those wishing to learn more about their faith without
pursuing a career in a religious institution. Finally, and
most seriously, Hanford raised the issue of the continuing
practice of torture, which has been reported in connection
with the arrests and investigation of many--overwhelmingly
Muslim--detainees accused of religious extremism and
terrorist activity. Hanford expressed the concern that
reportedly many persons arrested were not affiliated with
terrorist groups, were considered suspect based simply on
their conservative Muslim practices, and were tortured into
signing false confessions which served as the justification
for long prison sentences.

"WE ARE NOT CONCERNED WITH SANCTIONS"
--------------


6. (C) Foreign Minister Norov described Uzbekistan's long
history of cultural diversity and inter-religious tolerance
and professed bewilderment at the CPC designation. He
complained that the USG had unfairly singled out Uzbekistan
for harsh treatment when other Central Asian countries--he
noted Turkmenistan in particular--have far worse records of
restricting religious practice. He asked, "Why do we need to
follow US law? What are our violations?" He protested that
reports of harassment of religious groups are generally
attributable to inaccurate reporting from dubious sources.
Ombudsman Sayyora Rashidova, commenting on reports of
torture, said, "Perhaps you are referring to some cases from
several years ago.... Today all accusations of torture are
fully investigated, and those responsible are firmly dealt
with." Foreign Minister Norov flatly dismissed accusations
of torture, saying that such reports are "baseless." In
another comparison, he noted that several prison inmates had
recently committed suicide in Kazakhstan as a result of
mistreatment. He went on to allude to US abuses at Abu
Ghraib and Guantanamo.


7. (C) Norov left very little hope that Uzbekistan would
acknowledge it has a problem with religious freedom, much
less alter its policies and legislation to address the issue.
He declared that Uzbekistan is "not concerned" by the threat
of US sanctions, as Uzbekistan is capable of fending for
itself in the area of economic development, national
security, and other traditional areas of US assistance. In a
familiar refrain, Committee for Religious Affairs Chairman
Yusupov emphasized, "All countries have their laws, and they
must be followed. Law is the most important thing in a
democracy."

HOWEVER, WE MIGHT BE A LITTLE FLEXIBLE...
--------------


8. (C) At certain moments during the discussions, officials
noted that while the law is supreme, it is not immutable.
Ortiq Yusupov commented that Uzbekistan's law on religion is
legislation for a society in transition, a refrain echoed
later by Deputy Foreign Minister Minovarov. While Uzbekistan
is still a young state, it is important to preserve tolerance
and harmony through strict legislation. However, he said,
the law must change with time to adapt to changing
circumstances. In particular, Ambassador Hanford raised the
question of registering local groups with fewer than 100
members, if they are affiliated with groups already
registered at the national level. Yusupov said, "If these
small groups prepare their registration documents, we will
consider them."

...IF YOU TRY A DISCREET APPROACH
--------------


9. (C) On the final day of the visit, Deputy Foreign Minister
Shoazim Minovarov invited Ambassador Hanford to the Foreign
Ministry for an extended "unofficial" discussion. Minovarov,
formerly the long-time Chairman of the Committee on Religious

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Affairs, served briefly in 2006 as Presidential Advisor on
Religious Affairs. His current portfolio at the Foreign
Ministry includes Uzbekistan's relations with the Muslim
world, specifically the Middle East and North Africa. He
opened the discussion by asking, now that Ambassador Hanford
had seen for himself the tolerance and diversity of the
country's religious life, whether it would be possible to
remove the CPC designation entirely.


10. (C) Hanford explained the CPC process, noting that some
improvement in Uzbekistan's situation must be seen before CPC
designation may be lifted. He cited as an example the case
of Vietnam, in which the USG and the Vietnamese Government
had exchanged confidential notes in which Vietnam agreed to
particular changes in its religion policy, and as a result of
strong improvements in the agreed areas the CPC designation
was lifted.


11. (C) Minovarov agreed to pass Hanford's suggestion to
higher authorities. He said that, if the Foreign Minister
agrees to an exchange of letters, then the Uzbek counterpart
will probably be the Committee on Religious Affairs. He
emphasized, however, the need for a discreet process that
would not subject Uzbekistan to open, public criticism. He
explained that Uzbek officials have no objection when their
American counterparts come to them with "friendly advice"
about governance; however, the CPC designation and the threat
of sanctions have "damaged our dignity." He said that in
time, it will be possible for Uzbekistan to do away with
restrictive laws, but the country cannot be hurried. "The
limitations in the law should be seen as temporary measures,"
he said. He acknowledged that the US and Uzbekistan need
each other, and that Uzbekistan is ready for open dialogue,
if it is conducted in a friendly spirit.

COMMENT: A LONG ROAD AHEAD
--------------


12. (C) This opening round of discussions on religious
freedom found the Uzbek side unexpectedly willing to be
flexible. Foreign Minister Norov, early in the visit,
adopted a principled, rigid approach, characterizing CPC
designation as a gross misunderstanding caused entirely by
the USG. However, Deputy Minister Minovarov, in the final,
"unofficial" meeting, may have more closely approximated the
Uzbek side's willingness to compromise, if we meet them
halfway by taking a more discreet approach. The Uzbek
Government reviles nothing so much as negative publicity.
Thus, Ambassador Hanford's assurances of discretion and
confidentiality were valued concessions in and of themselves.

SIPDIS
Thoughtful, intensive diplomacy may actually bring about
some change on the Uzbek side. However, it will not be easy,
and it is far from assured.
HANSON