Turkmenistan: Recent Developments and U.S.
Interests
Jim Nichol
Specialist in Russian and Eurasian Affairs
August 17, 2012
Congressional Research Service
7-5700
www.crs.gov
97-1055
CRS Report for Congress
Pr
epared for Members and Committees of Congress
Turkmenistan: Recent Developments and U.S. Interests
Summary
When Turkmenistan gained independence with the dissolution of the Soviet Union at the end of
1991, the former republic’s president and head of the Turkmen Communist Party, Saparamurad
Niyazov, retained power. He was reelected president in another uncontested race in 1992, and a
referendum in 1994 extended his term until 2002. Before facing reelection, however,
constitutional amendments approved in 1999 proclaimed him president for life. The country’s
May 1992 constitution granted Niyazov overwhelming powers to rule by decree as head of state
and government. According to several assessments, he was among the world’s most authoritarian
rulers, and his regime was highly corrupt and responsible for serious human rights abuses.
Following the death of President Niyazov in December 2006, Gurbanguly Berdimuhamedow was
elected president in early 2007. A new constitution approved in 2008 reaffirmed Turkmenistan as
a “secular democracy” with a powerful president able to rule by decree. The constitution included
an impressive list of individual rights, but emphasized that the exercise of rights must not violate
public order or damage national security. An early legislative election was held in December
2008. International observers assessed the election as not free and fair. The next Mejlis election is
scheduled for December 2013.According to some observers, the Berdimuhamedow government
has retained many authoritarian features of the previous regime, and the human rights situation
has deteriorated after an initial improvement at the time of the political succession.
In October 2011, the Turkmen Central Electoral Commission (CEC) announced that a presidential
election would be held on February 12, 2012. During the last two weeks of December 2011,
initiative groups nominated candidates for president and gathered 10,000 signatures in a majority
of the country’s districts in order to gain registration of their candidates. The National Revival
Movement, a civic association headed by the president, nominated President Berdimuhamedow
as its candidate. In January 2012, the CEC registered eight candidates. All of Berdimuhamedow’s
challengers were ministerial officials or state plant managers. Based on an inadequate legal and
political framework to ensure a pluralistic election, the Organization for Security and Cooperation
in Europe decided not to formally monitor the election. The CEC announced that
Berdimuhamedow won over 97% of the vote and that turnout was over 96%.
In Congressional testimony in late July 2012, Assistant Secretary of State Robert Blake praised
Turkmenistan for providing some humanitarian aid to Afghanistan and for constructing or
planning rail and energy links to the country, including the prospective Turkmenistan-
Afghanistan-Pakistan-India (TAPI) gas pipeline. He stated that such projects illustrate that
Turkmenistan has the potential to be a leader in regional economic development. At the same
time, he cautioned that to reach this potential, Turkmenistan must address its human rights
problems. He reported that the United States would continue to offer assistance to help
Turkmenistan democratize and respect human rights.
Cumulative U.S. assistance to Turkmenistan has amounted to $351.55 million over the period
FY1992-FY2010 (all agencies and programs). U.S. foreign assistance amounted to $11.01 million
in FY2011 and an estimated $9.89 million in FY2012. The Administration has requested $6.73
million for FY2013 (these latter amounts include “Function 150” foreign assistance programs and
exclude Defense and Energy Department funding).
Congressional Research Service
Turkmenistan: Recent Developments and U.S. Interests
Contents
Political Background ....................................................................................................................... 1
Human Rights .................................................................................................................................. 3
Economic Conditions....................................................................................................................... 5
Energy........................................................................................................................................ 7
Foreign Policy and Defense........................................................................................................... 10
U.S. Policy..................................................................................................................................... 11
Contributions to Counter-Terrorism .............................................................................................. 13
Figures
Figure 1. Map of Turkmenistan ..................................................................................................... 13
Contacts
Author Contact Information........................................................................................................... 14
Congressional Research Service
Turkmenistan: Recent Developments and U.S. Interests
Political Background
When Turkmenistan gained independence
with the dissolution of the Soviet Union at the
Basic Facts
end of 1991, the former republic’s president
Area and Population: Land area is 188,457 sq. mi.;
and head of the Turkmen Communist Party,
slightly larger than California. The Kara Kum desert
Saparamurad Niyazov, retained power. He
covers about 80% of land area. Population is 5.05 million
was reelected president in another
(The World Factbook, mid-2012 est.).
uncontested race in 1992, and a referendum in
Ethnicity: 85% are Turkmen, 5% are Uzbek, 4% are
1994 extended his term until 2002. Before
Russian, and others (The World Factbook, 2003 est.).
facing reelection, however, constitutional
Turkmen clans include the Tekke, Ersary, and Yomud.
amendments approved in 1999 proclaimed
About 150,000 ethnic Turkmen reside elsewhere in the
former Soviet Union, approximately 1.3 million in Iran,
him president for life. The country’s May
and over 900,000 in Afghanistan.
1992 constitution granted Niyazov
overwhelming powers to rule by decree as
Gross Domestic Product: $43.91 billion; per capita
GDP is about $7,900 (The World Factbook, 2011 est.,
head of state and government. According to
purchasing power parity).
several assessments, he was among the
Political Leaders: President and Prime Minister:
world’s most authoritarian rulers, and his
Gurbanguly Berdimuhamedow (also spelled
regime was highly corrupt and responsible for
Berdimukhamedov); Chairman of the Mejlis (legislature):
serious human rights abuses. The regime
Akja Nurberdiyewa; Foreign Minister (and deputy prime
increasingly restricted contacts by citizens
minister): Rasit Meredow; Minister of Defense: Begenc
with the outside world.1
Gundogdyyew.
Biography: Berdimuhamedow was born in 1957 in the
Following the death of President Niyazov in
Ashgabat Region. He graduated from the Turkmen
December 2006, Gurbanguly
Medical Institute in 1979 and undertook graduate work in
Moscow. Until 1995, he was a junior member of the
Berdimuhamedow was elected president in
dentistry department, an associate professor, and the
early 2007. Since then, Turkmenistan has
dean of the dentistry faculty of the Turkmen Medical
“remain[ed] a mostly closed society [and]
Institute. In 1995-1997, he was an official in the Turkmen
progress toward reforms has been sporadic,”
Ministry of Health and was minister 1997-2006. In 2001-
according to the State Department.2 Freedom
2006, he also was a deputy prime minister. He was named
acting president in December 2006, and was elected
House, a non-governmental organization
president in February 2007. He was reelected on
(NGO), has ranked Turkmenistan among the
February 12, 2012.
“worst of the worst” countries in the world in
terms of political and civil liberties, among such countries as North Korea, Sudan, and
Uzbekistan (see below, human rights).3
Exile groups opposed to the regime have included those formed by former officials who have fled
the country. Such groups include the United Democratic Opposition, headed by former Foreign
Minister Awdy Kulyyew (Kuliyev); the Watan Social-Political Movement, headed by former
Deputy Chairman of the Central Bank Annadurdy Hajyyew (Khadzhiyev); the Republican Party,
headed by former Ambassador to Turkey Nurmuhammet Hanamow (Khanamov); and the
1 For information on other Central Asian states, see CRS Report RL33458, Central Asia: Regional Developments and
Implications for U.S. Interests, by Jim Nichol.
2 U.S. Department of State, Congressional Budget Justification for Foreign Operations, Annex: Regional Perspectives,
FY2013, April 3, 2012.
3 Worst of the Worst 2012: The World's Most Repressive Societies, Freedom House, 2012.
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Turkmenistan: Recent Developments and U.S. Interests
Fatherland movement, founded by former Prime Minister Hudayberdi Orazow (Orazov). The
latter three leaders received life sentences in absentia on charges of instigating an alleged coup
attempt in 2002. Another alleged coup plotter, former Foreign Minister Boris Orazowic
Syhmyradow (Shikhmuradov), supposedly remains imprisoned.
The morning of Niyazov’s reported death from a heart attack on December 21, 2006, the
government proclaimed that Berdimuhamedow, then the deputy prime minister and health
minister, would serve as acting president (the existing constitution had called for the speaker to
fill this role, but he was quickly arrested and later sentenced to seven years in prison on charges
viewed as dubious by many observers). A 2,500-member People’s Council (Halk Maslahaty or
HM), a constitutional body with supreme executive and legislative powers (consisting of the
president, ministers, Mejlis legislators, and others) convened on December 26 and changed the
constitution to legitimize Berdimuhamedow’s position as acting president. It quickly approved an
electoral law and announced that the next presidential election would be held on February 11,
2007. The HM designated six candidates for the presidential election, one from each region, all of
whom were government officials. Exiled politicians were banned from participation. Reportedly,
nearly 99% of 2.6 million voters turned out, and 89.23% endorsed acting President
Berdimuhamedow.
A needs assessment mission from the Organization for Security and Cooperation in Europe
(OSCE) visited during the campaign. It praised some provisions of a new presidential election
law, such as those permitting multiple candidacies and access by electoral observers, but
criticized others, including those permitting only citizens approved by the legislature and who had
served as state officials to run. A small OSCE delegation on election day reportedly was not
allowed to view vote-counting. According to the U.S. State Department, the election
“represent[ed] a modest step toward political electoral change that could help create the
conditions in the future for free, fair, open and truly competitive elections.”4
In his inaugural address on February 14, 2007, Berdimuhamedow pledged to continue to provide
free natural gas, salt, water, and electricity and subsidized bread, gasoline, and housing to the
populace, and to uphold the foreign policy of the previous government. Berdimuhamedow was
acclaimed head of the HM in late March 2007, thus assuming all the top posts held by the late
Niyazov. Berdimuhamedow has removed some of Niyazov’s statues from Ashgabat and other
symbols of Niyazov’s cult of personality, but Niyazov’s spiritual guide, the Ruhnama, remains
required reading in the schools. Berdimuhamedow appears to be the subject of an emerging cult
of personality, which includes a monument built in part to glorify his proclamation of a “new
revival era” for Turkmenistan.
A constitutional commission unveiled a draft constitution in July 2008 that after public debate
was approved by the HM in September 2008. The new constitution reaffirmed Turkmenistan as a
“secular democracy” with a powerful president able to rule by decree. The constitution included
an impressive list of individual rights, but emphasized that the exercise of rights must not violate
public order or damage national security. The constitution abolished the HM and divided its
powers between the Mejlis and the president. It enlarged the Mejlis from 65 to 125 members. An
early legislative election was held in December 2008. An OSCE pre-election needs assessment
mission stated that “a lack of distinction between civil society organizations, the party, and the
4 Open Source Center. Central Eurasia: Daily Report (hereafter CEDR), February 12, 2007, Doc. No. CEP-950160.
U.S. Department of State. Daily Press Briefing, February 15, 2007.
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State,” had resulted in only government-approved candidates running for seats, so that a
democratic election was not possible.5 At least two approved candidates ran in each district, but
campaigning was muted and noncontroversial. The Turkmen Central Electoral Commission
reported that almost 94% of the electorate voted, but some observers reported a light turnout.
President Berdimuhamedow hailed the election as advancing Turkmen democracy.6 In operation,
the Mejlis routinely has supported presidential decrees and has displayed little legislative
initiative. The next Mejlis election is scheduled for December 2013.
In February 2010, Berdimuhamedow called for the creation of a multi-party system, and in April
2010 he ordered the legislature to consider a law creating such a system. In the meantime, he
approved the registration of a new Farmers’ Party as an alternative to the ruling Democratic Party.
This new party, however, has since appeared largely moribund.7 In local elections held in
December 2010, only the Democratic Party and approved “civil society” groups were permitted
to field candidates. In January 2011, he urged the legislature to pass a law to facilitate the
formation of new political parties. In May 2012, the Union of Industrialists and Entrepreneurs
announced that it intended to form a party.
A new presidential election law was adopted in May 2011 that was problematic in ensuring a free
and fair election, according to the OSCE. Problems included hurdles to candidate registration,
restrictions on freedom of expression that limited campaigning, and an inadequate process for
complaints and appeals.8
In October 2011, the Turkmen Central Electoral Commission (CEC) announced that a presidential
election would be held on February 12, 2012. During the last two weeks of December 2011,
initiative groups nominated candidates for president and gathered 10,000 signatures in a majority
of the country’s districts in order to gain registration of their candidates. The National Revival
Movement, a civic association headed by the president, nominated President Berdimuhamedow
as its candidate. In January 2012, the CEC registered eight candidates. All of Berdimuhamedow’s
challengers were ministerial officials or state plant managers. Based on an inadequate legal and
political framework to ensure a pluralistic election, the OSCE decided not to formally monitor the
election. The CEC announced that Berdimuhamedow won over 97% of the vote and that turnout
was over 96%.
Human Rights
The Turkmen government’s human rights record has worsened in recent years, after initial
improvements following the death of former President Niyazov, according to Human Rights
Watch (HRW), an NGO. It reports that in 2011, Turkmenistan continued to be “one of the world’s
most repressive countries. The country remains closed to independent scrutiny, media and
religious freedoms are subject to draconian restrictions, and human rights defenders face constant
5 OSCE. ODIHR. Turkmenistan, Early Parliamentary Elections: OSCE/ODIHR Needs Assessment Mission Report,
October 20, 2008.
6 Annette Bohr, “Turkmenistan,” Nations in Transit 2009, Freedom House, June 30, 2009; CEDR, December 19, 2008,
Doc. No. CEP-950107.
7 CEDR, May 14, 2010, Doc. No. CEP-37001.
8 OSCE, ODIHR, Republic Of Turkmenistan Presidential Election, 12 February 2012: Needs Assessment Mission
Report, January 3, 2012.
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threat of government reprisal. [There are] allegations of widespread torture and ill-treatment, and
of enforced disappearances in custody.”9
According to the State Department’s Country Reports on Human Rights Practices for 2011, the
most significant human rights problem areas were arbitrary arrest; torture and abuse of detainees;
and restrictions on freedom of speech, press, assembly, religion, and movement. There allegedly
were two individuals who disappeared after detention by security forces. Security officials trying
to extract confessions tortured and beat detainees. The Independent Lawyers Association and the
Turkmen Initiative for Human Rights—both are non-governmental organizations (NGOs)
operating in exile—claimed that “every second person [detained] was exposed to varying types of
abusive treatment and torture.” Those detained or arrested reported that family members were
fired from their jobs or expelled from schools. Security personnel operated with impunity from
prosecution for their actions.
In contrast with previous years, there were no known treason convictions during the year and
authorities rarely exceeded legal limits for pretrial detention. The judiciary was subordinate to the
president. The judiciary was widely reputed to be both corrupt and inefficient. There were
credible reports that judges and prosecutors often predetermined the outcome of trials. Opposition
groups and some international organizations alleged the government held an undetermined
number of political prisoners.
The government did not respect freedom of speech and press. The government controlled radio
and television broadcasting, but satellite dishes provided widespread access to foreign television
and radio programs. The government financed and controlled almost all print media, and
restricted the circulation of foreign newspapers. The government continued to censor newspapers
and prohibited reporting of opposition political views or criticism of the president. In October
2011, a local reporter working for Radio Free Europe/Radio Liberty was sentenced to five years
in prison on charges regarded by international observers as politically motivated. He was granted
amnesty later in the month. There were several reports that the government used restrictions on
travel abroad to punish journalists and others who criticized the government. Journalists and
accredited foreign reporters engaged in self-censorship due to fear of government reprisal. The
Internet was controlled and monitored by the government. Government was non-transparent, with
most activities and data considered to be state secrets. The government curtailed academic
research into areas it considered politically sensitive, such as comparative law, history, ethnic
relations, and theology. An education law allowed the government to impose limits on obtaining
education in certain specialties; this law also was used to prevent some students from travelling
abroad to study.
The government restricted freedom of assembly and association. Authorities often refused to
grant permits for public meetings and demonstrations. All NGOs were required to register with
the Ministry of Justice. Only 98 NGOs had been able to register and operate legally, of which
international organizations recognized only eight as being independent. There were no
independent political or human rights NGOs registered. Foreign assistance to NGOs had to be
reported, meetings had to be pre-notified, and government officials otherwise closely monitored
their activities.10
9 World Report 2012, Human Rights Watch, January 22, 2012.
10 U.S. Department of State. Country Reports on Human Rights Practices for 2011, May 24, 2012. The report did not
assess whether human rights abuses had increased or decreased over the previous year.
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The State Department’s Trafficking in Persons Report 2012 reports that Turkmenistan is a source,
and to a lesser extent, destination, country for forced labor and sex trafficking. The Turkmen
government does not fully comply with the minimum standards for the elimination of trafficking,
but is making significant efforts to do so. The government made some progress in convicting
traffickers and registering an NGO-operated shelter, but did not demonstrate increasing efforts to
identify and protect victims, so the country was raised from “Tier 3” status to the still-cautionary
“Tier 2 Watch List.”11 The State Department’s International Religious Freedom Report for 2011
reports that the Turkmen government “demonstrated a trend toward deterioration in respect for
and protection of the right to religious freedom.” While the government generally respected the
religious freedom of most registered religious groups, it fined, raided, and detained members of
unregistered and minority religious groups. A new religion law has set onerous requirements for
the re-registration of religious groups, provided for government inspection of religious literature,
and banned religious ceremonies in government facilities. The Annual Report of the U.S.
Commission on International Religious Freedom has called since 2000 for the State Department
to list Turkmenistan as a “Country of Particular Concern,” where severe violations of religious
freedom could result in U.S. sanctions.12
In mid-March 2012, the U.N. Human Rights Commission issued recommendations for
Turkmenistan, including ending torture, permitting international organizations to visit prisons;
more effectively combating human trafficking, allowing freedom of movement, ending the
persecution of religious believers, and halting the use of children in cotton harvesting.13 In late
March 2012, a new law on migration was approved by the legislature that further increased
government control over entry and exit from the country, according to many observers.
Economic Conditions
In the face of the global economic downturn, in October 2008 President Berdimuhamedow
decreed the establishment of a stabilization fund. Turkmenistan introduced a re-denominated
currency, the new manat, in January 2009. The decline of the Turkmen economy in 2009,
including as a result of the fall-off in gas sales to Russia, necessitated transfers from the
stabilization fund to support the budget. In May 2010, Berdimuhamedow unveiled a National
Socio-Economic Development Program for 2011-2030 that aims to diversify the economy away
from reliance on raw materials exports, including by developing textiles and other industries, as
well as liquefied natural gas (LNG). He has launched a large-scale building program in Ashgabat
and at the Avaza resort on the Caspian Sea.
The Economist Intelligence Unit (EIU) estimates that Turkmenistan’s gross domestic product
(GDP) grew by around 10% in 2011, boosted by gas exports to China and Iran, now
11 U.S. Department of State, Trafficking in Persons Report 2012, June 19, 2012.
12 U.S. Department of State, International Religious Freedom Report for 2011, July 30, 2012; 2012 Annual Report,
U.S. Commission on International Religious Freedom, March 2012.
13 U.N. General Assembly, Human Rights Committee, 104th Session, 2871st & 2872nd Meetings, Human Rights
Committee Notes Turkmenistan’s ‘New Willingness’ to Improve Human Rights Record, but Says Gap Remains between
Legal Framework, Implementation, March 16, 2012.
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Turkmenistan’s main export customers (see below). However, growth still was set back by
Russia’s agreement to resume only a small fraction of its previous gas imports. Higher global fuel
and food prices contributed to consumer price inflation of around 12% in 2011. The EIU forecasts
that GDP will grow by around 7% in 2012, due to increased gas production and continuing high
world prices, although economic downturns in Europe and China could slow growth. This
estimate takes into account the reduced grain and cotton harvests in 2012, which have caused
price rises for flour and bread that the government may match by increasing subsidies to the
citizenry.14
About one-half of Turkmenistan’s GDP is derived from energy production, about one-third from
services, and slightly more than one-tenth from agriculture, although the latter sector employs
nearly half of the country’s workforce. State ownership continues in the oil and gas industry,
electrical power generation, and the textile, construction, transport, and communications sectors.
These sectors account for about 75% of GDP.
According to some widely varying unofficial estimates, about one-quarter to one-third of the
population lives in poverty and about one-quarter to two-thirds are unemployed, leaving an
employed domestic labor force of about 1-1.7 million. The World Factbook reports that
Turkmenistan’s “overall prospects in the near future are discouraging because of endemic
corruption, a poor educational system, government misuse of oil and gas revenues, and
Ashgabat’s reluctance to adopt market-oriented reforms.” The International Crisis Group, an
NGO, similarly warns that in Turkmenistan, “the façade of reform and prosperity conceals a deep
corrosion of human and physical infrastructure. Education is paralyzed… healthcare is … unable
to grapple with the true extent of existing problems… the [electrical] energy and transportation
sectors have nothing to show but a declining level of service.”15
The State Department reported in early 2012 that “U.S. firms have identified widespread
government corruption, usually in the form of bribe requests, as an obstacle to investment and
business throughout all economic sectors and regions.” In contrast to official corruption, however,
violent criminal organizations that extort money from businesses are largely nonexistent in
Turkmenistan, the State Department claims.16 The United States and Turkmenistan do not have a
bilateral investment treaty. U.S.-Turkmenistan trade is minimal. U.S. exports were about $71
million in 2011, mostly machinery, and imports were about $43 million, mostly textiles and
petroleum products.17
Since 2009, President Berdimuhamedow has sponsored annual conferences to encourage more
foreign direct investment (FDI) in Turkmenistan. The International Monetary Fund has estimated
that cumulative FDI through 2010 was about $11.2 billion, with the bulk invested in the energy
sector. Reportedly, China and Turkey are among the largest investors in Turkmenistan. According
14 Country Report: Turkmenistan, Economist Intelligence Unit, July 2012. See also International Monetary Fund, IMF
Executive Board Concludes 2011 Article IV Consultation with Turkmenistan, Public Information Notice No. 11/161,
December 20, 2011; and Statement at the Conclusion of an IMF Staff Visit to Turkmenistan, Press Release No. 12/281,
July 27, 2012.
15 U.S. Central Intelligence Agency, The World Factbook, at https://www.cia.gov/library/publications/the-world-
factbook/geos/tx.html; Central Asia: Decay And Decline, International Crisis Group, Asia Report No. 201, February 3,
2011.
16 U.S. Department of State, Turkmenistan: 2012 Investment Climate Statement, February 16, 2012.
17 U.S. Department of Commerce, Census Bureau, International Trade Data, at http://www.census.gov/foreign-
trade/statistics/country/.
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to the State Department, U.S. FDI is not prominent. Nine oil and gas production sharing
consortiums are managed by British, Italian, Austrian, Malaysian, Canadian, UAE, Danish,
German, and Russian firms. The State Department also reports that “tight state control of the
economy, the slow pace of economic reform, and a restrictive visa regime have hindered the
creation of an attractive foreign investment climate.”18 The 2012 “Index of Economic Freedom,”
formulated by the Heritage Foundation and the Wall Street Journal, ranks Turkmenistan 168th out
of 179 countries, among those having “repressed” levels of investment and monetary freedoms
(however, the ranking is slightly improved over those of previous years).19
Turkmenistan continues to construct a massive lake that it claims will recycle irrigation water and
ameliorate the regional climate, but which critics condemn as likely to siphon water from the
Amu Darya River and to become concentrated with salts and pesticides.
Energy
Turkmenistan’s proven natural gas reserves—859 trillion cubic feet—are among the highest in
the world, according to British Petroleum (BP) data. Its oil reserves are significant but not among
the world’s largest.20
At the time it gained independence at the end of 1991, Turkmenistan largely was dependent on
Russian energy export routes, and gas and oil production were held back by aging infrastructure,
inadequate investment, and poor management. In 1993, Russia halted Turkmen gas exports to
Western markets through its pipelines, diverting Turkmen gas to other Eurasian states that had
trouble paying for the gas. In 1997, Russia cut off these shipments because of transit fee arrears
and as leverage to obtain Turkmenistan’s agreement to terms offered by Russia’s state-owned gas
firm Gazprom.
The late President Niyazov signed a 25-year accord with then-President Putin in 2003 on
supplying Russia up to 211.9 billion cubic feet (bcf) of gas in 2004 (about 12% of production at
that time), rising up to 2.83 trillion cubic feet (tcf) in 2009-2028 (perhaps amounting to the bulk
of anticipated production). Turkmenistan halted gas shipments to Russia at the end of 2004 in an
attempt to get a higher gas price but settled for all-cash rather than partial barter payments.
Turkmenistan and Russia continued to clash in subsequent years over gas prices and finally
agreed in late 2007 that gas prices based on “market principles” would be established in 2009.
Turkmenistan, Kazakhstan, and Russia signed accords in May and December 2007 on building a
new gas pipeline that was planned to carry 353 bcf of Turkmen and 353 bcf of Kazakh gas to
Russia. However, the Turkmen government appeared to have reservations about building another
pipeline to Russia, and the project reportedly is on hold.
Seeking alternatives to pipeline routes through Russia, in December 1997 Turkmenistan opened
the first pipeline from Central Asia to the outside world beyond Russia, a 125-mile gas pipeline
linkage to Iran. In mid-2009, Turkmenistan reportedly agreed to increase gas supplies to up to
706 bcf per year.21 In January 2010, a second gas pipeline to Iran was completed—from a field
18 U.S. Embassy, Ashgabat, Turkmenistan, 2012 Investment Climate Statement: Turkmenistan, February 16, 2012.
19 “Turkmenistan Economy: Facts, Data, and Analysis,” 2012 Index of Economic Freedom, The Heritage Foundation,
at http://www.heritage.org/index/country/turkmenistan.
20 BP Statistical Review of World Energy, British Petroleum, June 2012.
21 Iran: Daily Report, January 21, 2008, Doc. No. IAP-11017; January 24, 2008, Doc. No. IAP-950014; April 26, 2008,
(continued...)
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that until April 2009 had supplied gas to Russia (see below)—to more than double
Turkmenistan’s export capacity to Iran. However, Turkmen gas exports to Iran reportedly were
about 290 bcf in 2010.
As another alternative to pipelines through Russia, in April 2006, Turkmenistan and China signed
a framework agreement calling for Chinese investment in developing gas fields in Turkmenistan
and in building a gas pipeline with a capacity of about 1.4 tcf per year through Uzbekistan and
Kazakhstan to China. All three Central Asian states plan to send gas through this pipeline to
China. Construction of the pipeline began in August 2007 and gas began to be delivered through
the pipeline to Xinjiang and beyond in December 2009. In 2011, Turkmenistan provided about
505 bcf of gas to China. In June 2012, Turkmenistan’s Turkmengaz and China’s National
Petroleum Corp (CNPC) signed accords to increase Turkmenistan’s natural gas shipments to
China up to 2.3 tcf per year.
Perhaps in an additional attempt to diversify gas export routes, Berdimuhamedow first signaled in
2007 that Turkmenistan was interested in building a trans-Caspian gas pipeline. Turkmenistan
signed a memorandum of understanding in April 2008 with the EU to supply 353.1 bcf of gas per
year starting in 2009, presumably through a trans-Caspian pipeline that might at first link to the
SCP and later to the proposed Nabucco pipeline. President Berdimuhamedow asserted in March
2011 that “Turkmenistan intends to promote cooperation in the fuel and energy sector with
European countries … through construction of Trans-Caspian gas pipelines.”22 Russia and Iran
remain opposed to trans-Caspian pipelines, ostensibly on the grounds that they could pose
environmental hazards to the littoral states.
Berdimuhamedow also revived Niyazov’s proposal to build a gas pipeline through Afghanistan to
Pakistan and India. In December 2010, the presidents of Turkmenistan, Pakistan, and Afghanistan
and the prime minister of India signed an agreement on constructing the Turkmenistan-
Afghanistan-Pakistan-India (TAPI) gas pipeline. On May 23, 2012, Turkmenistan signed
purchase agreements with India and Pakistan to supply up to 1.2 tcf of gas per year via the
prospective TAPI pipeline. U.S. State Department spokesperson Victoria Nuland hailed the
signing as “a perfect example of energy diversification, energy integration, done right. We are
very strong supporters of the TAPI pipeline.... We consider it a very positive step forward and sort
of a key example of what we’re seeking with our New Silk Road Initiative, which aims at
regional integration to lift all boats and create prosperity across the region.”23 Financing for the
project remains problematic, however, because of ongoing conflict in Afghanistan.
On the night of April 8-9, 2009, a section of a gas pipeline from Turkmenistan to Russia
exploded, halting Turkmen gas shipments. Russia claimed that it had notified Turkmenistan that it
was reducing its gas imports because European demand for gas had declined, but Turkmenistan
denied that it had been properly informed.24 After extended talks, visiting former Russian
(...continued)
Doc. No. IAP-950049; and May 6, 2008, Doc. No. IAP-950052.; CEDR, July 12, 2009, Doc. No. CEP-950097.
22 “President’s Welcoming Address,” Turkmenistan: The Golden Age, March 3, 2011, at
http://www.turkmenistan.gov.tm/_en/?idr=4&id=110303a.
23 U.S. Department of State, Daily Press Briefing, May 23, 2012.
24 Open Source Center. OSC Feature, April 14, 2009, Doc. No. FEA-844966; CEDR, April 14, 2009, Doc. No. CEP-
950339; ITAR-TASS, April 3, 2009; Sergey Blagov, “Turkmenistan: Ashgabat Wonders Whether Russia Still Has Deep
Pockets,” Eurasia Insight, March 26, 2009.
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President Dmitriy Medvedev and President Berdimuhamedow agreed on December 22, 2009, that
Turkmen gas exports to Russia would be resumed, and that the existing supply contract would be
altered to reduce Turkmen gas exports to up to 1 tcf per year and to increase the price paid for the
gas. Turkmenistan announced on January 9, 2010, that some gas exports to Russia had resumed.
The incident appeared to further validate Turkmenistan’s policy of diversifying its gas export
routes.
In 2010, Russia’s Gazprom gas firm purchased only 371 bcf of Turkmen gas, a sharp drop-off
from past purchases. Unfortunately, Turkmen gas exports to Iran and China were not
compensatory. Overall Turkmen gas exports fell in 2010 to about 865 bcf, down from 1.7 tcf in
2008, before the Russian gas cutoff.25 In 2011, according to BP, Russia purchased 356.7 bcf of
Turkmen gas. Overall, Turkmen gas exports rose to 1.2 tcf in 2011, buoyed by Chinese and
Iranian purchases.
In September 2011, the Council of the European Union approved opening talks with Azerbaijan
and Turkmenistan to facilitate an accord on building a trans-Caspian gas pipeline. Such a link
would provide added gas to ensure adequate supplies for the planned Nabucco pipeline. Hailing
the decision, EU Energy Commissioner Günther Oettinger stated that “Europe is now speaking
with one voice. The trans-Caspian pipeline is a major project in the Southern Corridor to bring
new sources of gas to Europe. We have the intention of achieving this as soon as possible.”26 The
Russian Foreign Ministry denounced the plans for the talks, and claimed that the Caspian Sea
littoral states had agreed in a declaration issued in October 2007 that decisions regarding the Sea
would be adopted by consensus among all the littoral states (Russia itself has violated this
provision by agreeing with Kazakhstan and with Azerbaijan on oil and gas field development). It
also claimed that the proposed pipeline was different from existing sub-sea pipelines in posing an
environmental threat.
In December 2010, the presidents of Turkmenistan, Pakistan, and Afghanistan and the prime
minister of India signed an agreement on constructing the Turkmenistan- Afghanistan-Pakistan-
India (TAPI) gas pipeline. Turkmenistan long has called for building this pipeline to diversify its
export options. The Asian Development Bank has indicated that it may provide partial funding for
the TAPI pipeline, but other financing for the project remains problematic because of ongoing
conflict in Afghanistan. Support for TAPI is part of the Administration’s “new Silk Road vision”
(see below).
In June 2012, Azerbaijani border forces turned back a Turkmen ship carrying out seismic work in
or near the area of the disputed and undeveloped offshore Serder/Kyapaz oil and gas field. Two
other disputed fields have been developed by Azerbaijan. Each side lodged diplomatic protests
against the other. The heightened tensions over the disputed field decreases the likelihood that a
trans-Caspian pipeline soon will be built that could supply gas for the planned Trans-Anatolian
Pipeline to Europe, according to the EIU.
25 “Turkmen Gas Could Find Chinese Outlet,” Central Asia Online, March 26, 2011.
26 European Commission, Press release: EU Starts Negotiations on Caspian Pipeline to Bring Gas to Europe,
September 12, 2011.
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Foreign Policy and Defense
Turkmenistan’s “neutral” foreign policy is enshrined in its constitution, and the U.N. General
Assembly in 1995 recognized Turkmenistan’s neutrality. Berdimuhamedow has eschewed joining
political or military alliances and has pursued good relations with both East and West.
Turkmenistan has pursued close ties with both Iran and Turkey. In addition to trade ties with Iran,
Turkmenistan is also interested in cultural ties with the approximately 1.3 million Turkmen
residing in Iran. President Mahmoud Ahmadinejad visited Turkmenistan in March 2012, and the
two countries pledged closer ties, despite urging from the United States that the Central Asian
states limit contacts with Iran. Turkmenistan has regarded Russia as a “key strategic partner,” but
has seemingly resisted Russian influence on some matters. In 1992, the two states signed a
Friendship and Cooperation Treaty containing security provisions. Although Turkmenistan joined
the post-Soviet Commonwealth of Independent States (CIS), it did not sign the Collective
Security Treaty and refused to sign other CIS agreements viewed as violating its sovereignty and
neutrality. Relations with Uzbekistan and Azerbaijan have been tense. Turkmenistan and
Uzbekistan have vied for regional influence and argued over water sharing. Azerbaijan and
Turkmenistan have rival claims to some Caspian Sea oil and gas fields. Turkmenistan hosts the
Regional U.N. Center for Preventive Diplomacy in Central Asia (UNRCCA). In late 2011, the
participants approved a joint plan for implementing the U.N. Counter Terrorism strategy.
Turkmenistan’s armed forces number about 22,000, including 18,500 ground, 3,000 air, and about
500 naval/coast guard forces. The army has about 700 tanks, 2,000 vehicles, and 560 artillery
pieces, the air force has about 110 aircraft and helicopters, and the naval force has six patrol boats
(including a former U.S. Coast Guard vessel).27 During 2011, Turkmenistan purchased four
missile boats from Russia and Turkey, and the Russian boats reportedly have been delivered.
Other forces include police and security troops, a presidential guard, and border troops. In late
1999, Russia’s 1,000 border troops in Turkmenistan pulled out at Turkmenistan’s request (some
“special border troops” reportedly remain), and by 2002, Turkmenistan had replaced its officer
corps with ethnic Turkmen. In 1994, Turkmenistan became the first Central Asian state to join
NATO’s Partnership for Peace (PFP). Turkmen officers have participated in or observed several
PFP exercises. In January 2009, a new defense doctrine was released that calls for Turkmenistan
to be able to provide for its own national security. Turkmenistan reportedly is actively purchasing
military equipment in accordance with the new doctrine. The military remains conscript-based,
and alternative service in not permitted. According to some reports, hazing, theft, corruption, drug
addiction, and drug trafficking are major problems.
In August 2009, President Berdimuhamedow decreed that the navy/coast guard base of
Turkmenbasy would be upgraded and coastal radars and ships would be purchased “to fight
effectively against smugglers, terrorists and any other forces who try to illegally use our state sea
border or create an unstable situation.”28 One report claims that the Turkmen navy may now be
the second-largest in the Caspian Sea in terms of firepower, behind Russia’s.29
27 International Institute of Strategic Studies. The Military Balance, March 7, 2012.
28 Open Source Center. Central Eurasia: Daily Report (hereafter CEDR), August 31, 2009, Doc. No. CEP-950194.
29 Joshua Kucera, “Turkmenistan: Ashgabat Quietly Builds Up Caspian Military Might,” Eurasianet, July 5, 2012.
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U.S. Policy
In Congressional testimony in late July 2012, Assistant Secretary of State Robert Blake praised
Turkmenistan for providing some humanitarian aid to Afghanistan and for constructing or
planning rail and energy links to the country, including the prospective Turkmenistan-
Afghanistan-Pakistan-India (TAPI) gas pipeline. He stated that such projects illustrate that
Turkmenistan has the potential to be “a leader in the economic prosperity of the region.” At the
same time, he cautioned that to reach this potential, Turkmenistan must address its human rights
problems. He reported that the United States would continue to offer assistance to help
Turkmenistan democratize and respect human rights.30
In 2010, the Obama Administration launched annual bilateral consultations (ABCs) with all the
Central Asian states. The first U.S.-Turkmenistan ABC was held in Ashgabat in June 2010.
Hailing the beginning of the annual meetings, Assistant Secretary of State Robert Blake stated
that they “represent a new beginning to the relationship between the United States and
Turkmenistan. We believe that today marks a new chapter in initiating an important dialog on all
aspects of the bilateral relationship.” He stressed that “the United States is committed to working
with Turkmenistan in the development of strong, prosperous ties between our two countries and
to developing Turkmenistan into an independent country that is founded on the rule of law. We
hope to do this within the context of a constructive relationship based on the principles of mutual
respect and mutual trust.” He later reported that the talks had included
our common concerns about stability in Afghanistan and what we both can do to contribute
to progress in that important country. We also talked about opportunities for further
cooperation in the economic and energy sectors, including efforts to expand U.S. trade and
investment and efforts to assist Turkmenistan with economic development and
diversification…. we also talked about joint efforts to combat the spread of terrorism and
narcotics. We talked about cooperation in humanitarian affairs, including educational and
cultural matters, as well as a good discussion on human rights issues. An important
dimension of our visit was the opportunity to meet with civil society leaders.31
The second annual ABC was held in February 2011 in Ashgabat, led on the U.S. side by Assistant
Secretary Blake. The third ABC was held on March 22-23, 2012, in Washington, D.C., with the
Turkmen delegation being headed by Foreign Minister Rasit Meredow. The State Department
reported that the consultations focused on increasing economic and trade relations (including in
the energy sector), developing social and cultural ties, ensuring the protection of human rights,
and enhancing regional security (including in Afghanistan). The delegation met with Secretary
Clinton, Assistant Secretary Blake, and then-Special Envoy for Eurasian Energy Richard
Morningstar. They also met with Deputy National Security Advisor Denis McDonough, who
reportedly stressed the increasingly important role of Turkmenistan in ensuring stability in
30 U.S. House of Representatives, House Foreign Affairs Committee, Subcommittee on Europe and Eurasia, Hearing on
U.S. Engagement in Central Asia, Testimony by Robert Blake, Assistant Secretary, Bureau of Central and South Asian
Affairs, U.S. Department of State, July 24, 2012. In testimony in early 2011, Assistant Secretary Blake had stated that
“Turkmenistan is a country of growing importance to the United States.” See House Foreign Affairs Committee,
Subcommittee on Europe and Eurasia, Hearing on U.S. Policy toward Europe and Eurasia, Testimony of Robert O.
Blake, Jr., March 10, 2011.
31 U.S. Department of State. Remarks at the Opening Session of Inaugural U.S.-Turkmenistan Annual Bilateral
Consultations, June 14, 2010; Press Conference, July 15, 2010; Assistant Secretary Blake's Participation in the U.S.-
Turkmenistan Business Council, June 16, 2010.
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Central Asia and in enhancing stabilization efforts in Afghanistan. Besides talks with these
officials, the delegation met with several U.S. business representatives to urge them to invest in
Turkmenistan, including Chevron, Exxon Mobil, Caterpillar, ConocoPhillips, Case New Holland,
Bell Helicopter, and Boeing. The representatives of U.S. energy companies reportedly expressed
their willingness to assist Turkmenistan to diversify its export routes.
Turkmenistan has been included in the Secretary of State’s “New Silk Road Vision,” first
mentioned in mid-2011, which supports efforts to bolster economic integration and transit links in
Central Asia and beyond. Turkmenistan also is a participant in the Administration’s Central Asia
Counter-Narcotics Initiative, launched in mid-2011.
Among recent security-related visits, in late March 2012, the Commander of the U.S. Central
Command (USCENTCOM), James Mattis, traveled to Turkmenistan and met with President
Berdimuhamedow. Reportedly, General Mattis told the President that the United States
considered Turkmenistan a responsible and reliable partner., and they discussed joint efforts to
combat drug trafficking, terrorism, and organized crime, and Turkmenistan’s contributions to
stabilization in Afghanistan.32 Among other security visits, U.S. Secretary of the Navy Ray Mabus
visited Ashgabat on July 11-12, 2012, as part of a tour of Central and South Asia. He met with
Defense Minister Begenc Gundogdyyew and other officials to discuss partnership, maritime
security, and regional stability.
Cumulative U.S. assistance to Turkmenistan has amounted to $351.55 million over the period
FY1992-FY2010 (all agencies and programs). U.S. foreign assistance amounted to $11.01 million
in FY2011 and an estimated $9.89 million in FY2012. The Administration has requested $6.73
million for FY2013 (these latter amounts include “Function 150” foreign assistance programs and
exclude Defense and Energy Department funding). In FY2010, the Administration boosted aid to
Turkmenistan to support it as a “frontline state” in counter-terrorism operations in Afghanistan,
but since then, foreign assistance has declined.
For FY2013, most foreign assistance for Turkmenistan is focused on the objectives of peace and
security, governing justly, and economic growth, with slightly more emphasis on peace and
security programs. Peace and security programs include Foreign Military Financing (FMF), for
which the Administration has requested $685,000; International Military Education and Training
(IMET), for which the Administration has requested $350,000; reforming law enforcement and
combating drug-trafficking and trafficking in persons, for which the Administration has requested
$550,000; and combating weapons of mass destruction, for which the Administration has
requested $500,000. The second and third objectives, for which the Administration has requested
$1.85 million for each, focus on spending to enhance civil society and private sector
competitiveness. The Administration hopes to expand its support for civil society organizations
and to educate officials on the importance of such organizations. In the economic realm, the
Administration hopes to continue to work with private farmers to increase their productivity and
access to markets.33
32 CEDR, April 2, 2012, Doc. No. CEP-964026.
33 U.S. Department of State, Congressional Budget Justification for Foreign Operations, Annex: Regional Perspectives,
FY2013, April 3, 2012.
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Contributions to Counter-Terrorism
Immediately after the terrorist attacks on the United States on September 11, 2001, the Turkmen
foreign ministry stated that Turkmenistan’s policy of neutrality and its friendship with the Taliban
precluded cooperation in a U.S.-led military campaign. After Russia’s then-President Vladimir
Putin acceded to an expanded U.S. military presence in Central Asia, however, former Turkmen
President Saparamurad Niyazov on September 24, 2001, gave his consent for ground transport
and over flights to deliver humanitarian aid to support U.S.-led anti-terrorism efforts in
Afghanistan because “evil must be punished.” Turkmenistan also permitted refueling privileges
for humanitarian flights and reportedly sold and transported jet fuel by rail to Afghanistan. Land
transport reportedly was ramped down or ended in recent years.34 In February 2009, President
Berdimuhamedow agreed that the country would again facilitate the land transit of humanitarian
cargoes to Afghanistan.
Figure 1. Map of Turkmenistan
Source: Map Resources
34 Deirdre Tynan, “Turkmenistan: Ashgabat Hosts US Military Refueling, Resupply Operations,” Eurasia Insight, July
8, 2009; Deirdre Tynan, “Pentagon Paid Airport Fees to Turkmenistan, But Can’t Say How Much,” Eurasianet, July
12, 2010.
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Author Contact Information
Jim Nichol
Specialist in Russian and Eurasian Affairs
jnichol@crs.loc.gov, 7-2289
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