TURKMENISTAN: NO SURPRISES EXPECTED IN UPCOMING

C O N F I D E N T I A L SECTION 01 OF 03 ASHGABAT 000926

SIPDIS

DEPT FOR SCA/CEN; DRL

E.O. 12958: DECL: 07/23/2019
TAGS: KDEM PGOV SOCI TX
SUBJECT: TURKMENISTAN: NO SURPRISES EXPECTED IN UPCOMING
LOCAL COUNCIL ELECTIONS

Classified By: Charge Richard Miles, Reasons 1.4 (b) and (d)


1. (C) SUMMARY. Central Election Commission and Mejlis
officials recently outlined highlights of the upcoming July
26 Gengesh (local council) elections that will be held in
rural areas across Turkmenistan. The electoral process for
the gengeshes was similar to the process used during the 2008
parliamentary elections. Candidates were nominated by social
organizations or the sole political party. There were at
least two candidates for each seat. The campaign itself
consisted of official posters listing the biographic
information and platforms of the candidates, together with
some public meetings at which rival candidates make joint
appearances. Despite the gengesh's apparently lower status
compared to the central and provincial governments, the
position of chairman of the gengesh, or "archin," hearkens
back to the authority of the emirs of pre-Soviet
Turkmenistan. As such, the archin's power in local matters
is considerable. The relationship between the central
government and local councils is still evolving, with an
expressed desire to expand the responsibilities of the
gengeshes. The careful government supervision of the gengesh
election process would not allow much of a chance for
surprise results. END SUMMARY.

ELECTIONS FOR LOCAL GOVERNMENTS IN RURAL AREAS


2. (C) On July 23, poloff had separate meetings with Central
Election Commission ("CEC") Chairman Murat Garriyev and
Chairperson of the Mejlis Committee on Local Representative
and Self Governance Bodies Gurbangul Bayramova to discuss the
approaching July 26 Gengesh (local council) elections. These
elections, which provide members for 646 gengeshes
nationwide, take place only in rural areas and villages.
Chairman Garriyev explained that the CEC had carried out all
necessary preparations for the conduct of elections.
Overall, 12,452 candidates had been registered to contest
6,220 open positions. 1,521 polling stations were opened.
There are an estimated two million eligible voters. As was
the case during the 2008 parliamentary elections, candidates
were nominated by social organizations such as the Youth
Union and Women's Union, by the Democratic Party, and by
groups of citizens. In order to be nominated, the candidate
must be a resident of the district in which she or he is
running in order to insure that the candidate is known to the
voters. The minimum age for a candidate is 21 years old,
which is three years older than the voting age. Garriyev
explained that the age difference was to insure that
candidates have "a greater sense of responsibility." He
indicated that the quality of candidates had improved;
previously few had a university-level education. All races
are conducted on an "alternative basis," meaning there must
be at least two candidates, and some races have three. An
election with only one candidate would not be valid by law.
The Chairman described this as a post-Soviet requirement for
elections at all levels, and stressed its democratic
character. The term of office for a gengesh member was
reduced from four years to three because, as Garriyev
explained, "four years is too long if the office holder is
not doing a good job."

OFFICE OF "ARCHIN" PRE-DATES SOVIET ERA


3. (C) Following the election, the provincial governor
suggests to the elected members of the gengesh, who range in
number from five to fifteen depending on the population of
the jurisdiction, his choice for the "archin" (chairman of
the council). If the newly-elected members of the gengesh do
not agree, they can reject the governor's choice, according
to Garriyev. The archin is typically older and has obtained
a higher education, qualifications that the CEC promotes. He
said that it is easier for people who have a profession to
work with the public. Many archins are women, and the number
of female gengesh members is much higher than previously.
The archin plays an important role in local decisions

ASHGABAT 00000926 002 OF 003


involving a broad range of issues, including healthcare,
education, housing, and sanitation. Garriyev stressed that
it is important for the archin to have great authority. The
archin consults with the local council of elders, but that
unlike previously, the archin is no longer confirmed by the
elders. The archin designates areas of responsibility for
the other gengesh members. Garriyev described the archin as
the "father of the village" and is expected to look out for
the interests of the local population. If people are not
satisfied, their recourse is to not re-elect the archin at
the end of his term. On the other hand, Garriyev said some
archins have been in office for 30 years. A good archin
knows all his constituents and delivers on his promises.
Garriyev said this type of system pre-dates the Soviet era,
but since independence and the introduction of alternative
candidates, people have the opportunity to choose the most
worthy candidates. Although the gengesh is the lowest level
of elected state authority, an archin has the right to appeal
to the president in cases where other levels of government
were not able to resolve a matter.

PREPARATIONS FOR THE ELECTIONS


4. (C) In advance of the elections, the Law on Elections of
Gengesh Members was published in both Turkmen and Russian
languages and distributed to the polling stations. Garriyev
said the government recognized that there are many
ethnicities among the voters and it wanted to provide the
text of the law in languages understandable to all. For the
first time, the CEC also published a gengesh election
guidebook for use by election committees at the polling
stations. The guidebook contains examples of required forms,
diagrams for setting up the polling station properly, and a
description of election day procedures.


5. (C) According to Garriyev, the election campaign included
public meetings with candidates organized by local election
committees. Posters were displayed that included the
candidates' photos, biographic information and platforms. In
the event that no candidate would receive fifty percent plus
one vote, there would be a repeat election in two months.
The same candidates would be eligible to run again. But
Garriyev said that generally one of the candidates wins in
the first round. Certification takes place for candidates
and again after the election for the winners. The provincial
government is responsible for certifying the selection of the
archin. In preparation for the gengesh elections, the UNDP
conducted seminars in each of the provincial capitals for
members of the local election committees.

LEVELS OF GOVERNMENT WORK INDEPENDENTLY


6. (C) Chairperson Bayramova shed a little light on the role
of the gengesh relative to other levels of government. She
said the gengesh has responsibility for local questions and
asserted that each level within the government structure has
its work and does not interfere in the work of the others.
If a central government initiative to build a school or a
hospital, for example, involves a community, the gengesh's
role is limited to providing the needed land. Regarding the
archin, Bayramova said the office combines the roles of emir
(a traditional local ruler) and speaker of the council. She
said members of the gengesh can be removed from office for
abuse of office or other criminal activity.


7. (C) Bayramova mentioned an ongoing UNDP project, begun in
2007, that set up pilot projects in ten districts to provide
training for gengesh members. She suggested that the role of
gengeshes was a work in progress and that reforms would be
introduced on an ongoing basis as needed. She noted a desire
on the part of the government to expand the responsibilities
of gengeshes, commenting that in her experience there are
sufficiently competent people available to serve. She listed
the areas of responsibility of gengeshes as economic and
social development, preparation and implementation of a

ASHGABAT 00000926 003 OF 003


budget, environmental protection, resource management, and
protection of citizens' rights in general. Bayramova was not
able to estimate what percentage of local government
expenditures were funded by the central government, but twice
mentioned a USD four billion government program of rural
development to be implemented before 2020.


8. (C) COMMENT: From Chairman Garriyev's description of the
electoral process for the gengeshes, it closely follows the
process for last year's parliamentary elections: multiple,
but carefully vetted candidates and a passive election
campaign with little to distinguish the candidates. It was
interesting to note, however, that the office of the archin
pre-dates the Soviet era, and both officials hinted at the
special role that this individual plays in the local
community, descended from the position's previous absolute
authority. Garriyev also pointed out the festive nature of
election day, with polling stations providing live music and
food. This might be a more compelling reason for rural
voters to turn out than the list of vetted candidates with
which they are presented. END COMMENT.
MILES