TURKMENISTAN'S BUREAUCRACY FINDS IT HARD TO CORRECT

UNCLAS SECTION 01 OF 02 ASHGABAT 001415

SENSITIVE
SIPDIS

STATE FOR SCA/CEN, SCA/PPD, ECA

E.O. 12958: N/A
TAGS: PGOV EAID SCUL KPAO TX
SUBJECT: TURKMENISTAN'S BUREAUCRACY FINDS IT HARD TO CORRECT
MISTAKES


1. (U) Sensitive but unclassified. Not for public Internet.


2. (SBU) SUMMARY: Minor bureaucratic mistakes are difficult to
correct in Turkmenistan, sometimes even when such corrections appear
simple, easy and would help avoid more serious consequences.
Recently, an error in dates in an MFA diplomatic note that approved
an Embassy-sponsored English language program highlighted this
challenge. Despite MFA assurances that the error would not be a
problem, local officials did not allow some of the planned training
to take place. This bureaucratic reluctance to admit and correct a
mistake represents a major obstacle to effective reform and
progress. The problem appears to result from an organizational
culture in which everything should be perfect, and mistakes result
in reprimands and/or hasty firings. END SUMMARY.

WRONG DATES? - NO PROBLEM!


3. (SBU) The Public Affairs Section (PAS) received approval for
sending post's English Language Fellow (ELF) to the cities of
Turkmenabat and Mary via diplomatic note shortly before the ELF's
departure. The program dates were for October 16-17.
Unfortunately, the Turkmen diplomatic note approved the program for
October 18-19, or the weekend instead of Thursday and Friday. By
phone, a working-level Ministry of Foreign Affairs contact assured
PAS staff that the error would not be a problem. (NOTE: There was
little time to obtain a corrected diplomatic note, as well. END
NOTE.) The ELF already had tickets and a scheduled program for
teaching workshops at the semi-private Medet educational center in
Turkmenabat and similar events in the American Corners in both
Turkmenabat and Mary.

WRONG DATES? - PROBLEM!


4. (SBU) In Turkmenabat on October 16, post's ELF was denied
permission to conduct the workshop at the Medet center by a local
education official. The local official has a long history of
obstructing American Corner and Public Affairs programs, but had
recently been enormously helpful with the testing of FLEX program
candidates. Later in the day, during the ELF's teaching workshop at
the American Corner, a suspicious government official was present
for observation.


5. (SBU) In Mary the following day, the ELF's programming was held
only at the American Corner. However the Corner director reported
intimidating phone calls from local officials who inquired about the
unapproved visitor.

ONE LOST PAPER MEANS NO EXCHANGE VISIT


6. (SBU) In another instance, in the spring, PAS was preparing an
International Visitors Leadership Program project to send several
Ministry of Health officials to the U.S. The project concept and
its enthusiastic, willing government participants were approved by
MFA diplomatic note. Soon afterward, in the middle of PAS contact
with the project nominees, communication was cut off and the project
was derailed. A PAS FSN eventually learned more about the fate of
the project through a personal friend at the Ministry rather than
from her previous point of contact. The Ministry had somehow lost
the government's internal approval letter signed by President
Berdimuhamedov. No one was willing to seek a second copy or find a
way for the project to go forward. Ultimately, the IVLP program
slots were not used for this project.


7. (SBU) COMMENT: As illustrated by the recent problems with the ELF
regional visit, local officials have little regard for a verbal
assurance from an MFA official. Approval on paper is essential; and
there is a high reluctance to handle any "gray area" or lack of
clarity. The persistent fearful work environment within the
government of Turkmenistan means that smart, cooperative bureaucrats
are unlikely to take a stand or provide clarification - especially
when it is connected to foreigners or foreign programs. A
bureaucrat is safer never acknowledging a problem or mistake.


8. (SBU) COMMENT CONTINUED: Many other examples exist of

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bureaucratic issues that hinder some of the simplest and most
straight-forward programming in the bilateral relationship with
Turkmenistan. Examples witnessed by post are likely to be only a
small representation of a broader problem of managing the archaic
bureaucracy and implementing reform. Engaging with the Turkmen
government continues to demand patience and flexibility as we work
to implement our programs. Persistence is necessary in order to
advance U.S. influence in the slow, but positive reform process that
is occurring in Turkmenistan. END COMMENT

CURRAN