TURKMENISTAN: OVERVIEW OF USG BORDER SECURITY ASSISTANCE

UNCLAS SECTION 01 OF 07 ASHGABAT 001488

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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.

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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

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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.

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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

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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

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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

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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