CIVIL SOCIETY DEVELOPMENT IN TURKMENISTAN

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