FOREIGN MINISTER MEREDOV ASKS FOR PRESIDENTIAL

C O N F I D E N T I A L SECTION 01 OF 03 ASHGABAT 000486

SIPDIS

DEPT FOR SCA/CEN

E.O. 12958: DECL: 04/17/2019
TAGS: PREL PGOV MARR OVIP PBTS PHUM TX
SUBJECT: FOREIGN MINISTER MEREDOV ASKS FOR PRESIDENTIAL
VISIT, BUT NO OFFER ON OVERFLIGHTS

Classified By: Charge d'Affaires Richard M. Miles.
Reasons 1.4 (b) and (d)


1. (C) SUMMARY. On April 15, Assistant Secretary for South
and Central Asia Richard Boucher discussed bilateral and
regional issues with Turkmenistan Foreign Minister Rashid
Meredov. The Turkmen would like to see President
Berdimuhamedov visit the United States this November.
Meredov asked for U.S. Government input on the draft closing
statement for the upcoming energy transit security conference
in Ashgabat and a possible convention on the security of
energy transport. He answered the U.S. request for an
increased number of military overflights to Afghanistan with
concerns on "technical" grounds, not objections of principle,
but would not immediately accept Boucher's proposal of a
framework for resolution. Boucher urged greater progress on
human rights. Meredov emphasized that resolving regional
water issues requires greater respect for the interests of
downstream countries like Turkmenistan. END SUMMARY.

MUTUAL DESIRE TO EXPAND RELATIONS


2. (C) On April 15, Assistant Secretary for South and Central
Asia Richard Boucher met with Turkmenistan Foreign Minister
Rashid Meredov. Referring to the day's earlier meeting with
President Berdimuhamedov (septel),Foreign Minister Meredov
said the President would like to develop Turkmenistan's
relationship with the United States in political, economic,
trade, including energy, and humanitarian spheres. Boucher
replied that we'd seen President Berdimuhamedov emphasize a
program for the country in areas of U.S. interest --
education, agriculture, energy and greater democracy and
respect for human rights. We also appreciate Turkmenistan's
regional role. The new administration is looking for ways to
develop relations with Central Asian countries, supplementing
government-to-government relations with greater engagement by
companies, NGOs, assistance programs and universities.

TURKMEN WANT A PRESIDENTIAL VISIT TO U.S.


3. (C) FM Meredov commented on the U.S.-Turkmen bilateral
political dialogue, noting past U.S. congressional
delegations and visits by high-level U.S. officials. Now
there's a need to "elevate the dialogue to a higher level,"
concretely in the form of a Berdimuhamedov visit to the
United States later this year, perhaps in November. He
proposed that, if the Turkmen side knew in principle that
such a visit was possible, it would start preparations.
Boucher explained that, while there is support for such a
visit in Washington, it wasn't yet possible to specify dates.
Meredov said he would consider a trip to lay the groundwork
for a subsequent presidential visit.

SEEKING INPUT ON ENERGY CONFERENCE STATEMENT


4. (C) Concerning the upcoming April 23-24 energy transit
security conference in Ashgabat, the Foreign Minister noted
active participation by State and Energy Department officials
who will attend the event. He said the Turkmen Government
had tried to prepare a flexible and relevant draft conference
document that included Turkmenistan's vision for the event's
final doctrine. He asked for U.S. input on the draft text
prior to the conference in order to allow time to make
revisions. Expanding on the Turkmen Government's desired
outcome, Meredov hoped all participants would recognize the
need for an effective mechanism to guarantee reliable
shipment of energy resources. While it would be a long
process, the final result could be the adoption of a UN
convention on the subject that would address the needs of
producers, transit countries, and consumers. He remarked
that such a mechanism to address interruptions due to
political factors or natural disasters is lacking, especially
under the UN umbrella. If the conference participants
support such an approach, the next step would be to ask the
UN Secretariat to form a committee to work on the issue.

ASHGABAT 00000486 002.2 OF 003


Meredov asked for U.S. reaction to the idea in advance of
next week's conference. The Assistant Secretary agreed that
transit of energy resources must happen without interruption,
which could best be achieved by diversification of export
routes. The final form of any such document on energy
transit security, whether a convention, declaration, or
something else, would be a question for lawyers to resolve.

U.S. LECTURER SOUGHT FOR INTERNATIONAL RELATIONS INSTITUTE


5. (C) Regarding areas for further bilateral cooperation,
Foreign Minister Meredov urged greater engagement in
education and science. He mentioned as an example the
cooperation between University of Nevada-Reno and the State
Agricultural University. Highlighting the Foreign Ministry's
newly-created Institute for International Relations, he said
retired U.S. diplomats or other relevant foreign policy
experts would be welcome to lecture there. He also invited
academic exchanges for the Institute's students.

THE OVERFLIGHT ISSUE


6. (C) Boucher explained the recent Afghan strategy review
and our desire to cooperate more closely with countries in
the region. One way for Turkmenistan to contribute would be
to allow increased U.S. overflights. The Assistant Secretary
explained that, as U.S. activity expands in Afghanistan, 1600
flights per year will not meet our needs and we would like
either to increase the number of flights or remove the
ceiling completely. Concerning payment for overflights, the
United States has a blanket policy not to pay such fees.
However, U.S. flights provide other financial benefits
through landing fees, fuel purchases, and equipment and
technical assistance. The Assistant Secretary suggested that
we could agree to a general framework to resolve these issues
(lift the cap and set aside the overflight charges and we'll
ensure a smooth flow of benefits and support).


7. (C) Meredov said the Turkmen would consider this proposal,
but that on the issue of the number of overflights, speaking
frankly, Turkmen airspace is very busy and the agency
responsible for air traffic control wanted a reduced number
of flights, citing concern about pollution and saying it had
reached its technical limits. This involved not just U.S.
flights, but all aircraft, noting that there is a maximum
number that is not technically possible to exceed. U.S.
flights are calculated as part of total overflight capacity:
an increase in U.S. flights would require a decrease in other
flights, which would not be easy. This position does not
mean that Turkmenistan refuses to help, but technical reasons
for the limits would be hard to change. The United States is
the only country to have been granted blanket overflight
clearance and has been operating with the 1600 flight annual
ceiling since 2001.


8. (C) Boucher emphasized the need to prevent the Taliban
from returning to power, and for the U.S. and Turkmenistan to
help each other in this situation. The United States is
expanding its efforts in Afghanistan and looking for ways to
diversify its supply lines. Other Central Asian countries
have concluded transit agreements, and increasing flights
through Turkmenistan would be a contribution to this effort.
Increased refueling at Ashgabat airport would generate more
revenue for the airport. If the issue was defining the
technical parameters of the number of overflights, the
Assistant Secretary suggested that the two sides agree to
lift the cap or identify an increased figure, and then let
the technical experts work out a practical solution. If
Turkmen aviation experts moved forward, they would see a
benefit from this activity and a way for the United States to
increase its overflights. Meredov said it should not be a
problem for U.S. and Turkmen technical experts to meet, and
that the Turkmen side would consider it, but that Turkmen
aviation experts were not prepared to offer more flights.


ASHGABAT 00000486 003 OF 003


LAGGING ON PROGRESS IN HUMAN RIGHTS


9. (C) In the area of human rights, the Assistant Secretary
indicated that the United States would like to see greater
progress on human rights issues. In areas such as
cooperation with the International Committee of the Red Cross
on allowing prison visits, or with other human rights
organizations, increased engagement was needed. While there
has been progress on legislative reform, the United States
wants to see more forward progress and momentum. The Foreign
Minister defended the Turkmen Government's human rights
record, citing its consistent approach to implementing
reforms and its active cooperation with the UN in the human
rights sphere. Concerning the Red Cross in particular, he
said he had proposed a confidence building process that would
proceed in stages involving training for law enforcement and
judicial officials, general inspections of prison conditions,
and eventually meetings with individual prisoners.

TURKMEN POLICY ON WATER AND ENERGY


10. (C) Meredov wanted to clearly state Turkmenistan's policy
regarding Central Asia's water and hydroelectric energy
resources. Turkmenistan supports a solution that considers
all Central Asian countries, according to international norms
as provided in three UN conventions on the regulation of
transborder water resources. The Turkmen want the issue
resolved with the participation of international
organizations. If an upstream country plans to build a
hydroelectric project, there should first be international
expertise to evaluate the project in the interest of openness
and complete information. As a country located downstream on
the region's major rivers, the Foreign Minister urged that
its interests should be taken into account, or else water
could be blocked in the upper reaches. He rejected, however,
the creation of a regional structure to resolve the issue,
saying there only needed to be a mechanism for regular
meetings of the Central Asian states, perhaps with the
involvement of the UN Regional Center for Preventive
Diplomacy. The Assistant Secretary outlined U.S. policy on
this issue: assistance to Central Asian countries to promote
better water resource management and support for diplomatic
efforts to resolve the matter on a regional basis.


11. (U) This cable was cleared by Assistant Secretary Boucher.
MILES