Updated November 20, 2017
Turkmenistan
has never held competitive elections. Changes in 2012 that
expanded the number of political parties did little to
improve the political landscape, according to observers.
The Turkmen government does not recognize opposition
parties and persecutes dissident politicians.
Human Rights: Turkmenistan ranks as one of the most
repressive and isolated countries in the world, according to
several human rights organizations such as Freedom House
and Amnesty International. Although the country adopted a
National Human Rights Action Plan in April 2017, activists
say that basic civil liberties are still not recognized. The
government persecutes religious and ethnic minorities,

Source: Graphic created by Hannah Fischer at CRS.
independent journalists, political dissidents, and people who
engage in homosexual acts. Also, sexual intercourse
Political Background
between men is illegal under the criminal code. Activists,
Government: Turkmenistan defines itself as a secular
citing protections listed in the constitution, argue that
democracy, but in practice political power is concentrated
Turkmen leaders lack the political will and capacity to
with President Gurbanguly Berdymukhamedov. The U.S.
ensure citizens are protected against arbitrary punishment.
Department of State describes the country’s government as
Turkmenistan received the lowest possible ranking (Tier 3)
“authoritarian.” Turkmenistan’s legislature (the Mejlis)
in the State Department’s 2017 Trafficking in Persons
routinely supports presidential decrees and rarely displays
report.
legislative independence.
Turkmenistan at a Glance
History: Turkic language-speaking tribes have inhabited
the eastern Caspian region for centuries. In the mid-1800s,
Land area: 188,457 sq. mi.; slightly larger than California
the area was invaded by Russia, and it later became a
Population: 5.66 mil ion
Soviet republic. The country gained independence in 1991,
Ethnicity: 85% Turkmen, 5% Uzbek, 4% Russian, and others
following the dissolution of the Soviet Union, and the
Religion: Muslim 89%, Eastern Orthodox 9%, Other 2%
former head of the Turkmen Communist Party,
GDP (2016): $36.18 bil ion; per capita GNI is $16,060 at PPP
Saparmurad Niyazov, was elected president in an
Political Leaders: President and Prime Minister: Gurbanguly
uncontested race. A referendum held in 1994 extended his
Berdymukhamedov, Chairman of the Mejlis (legislature): Akja
term until 2002. In 1999, amendments to the constitution
Nurberdiyewa
proclaimed him president for life. Niyazov, known as the
Data from World Bank
“Father of the Turkmen,” was an autocrat. He cultivated a
Terrorism and Drug Trafficking: According to the State
cult of personality and suppressed dissent.
Department, Turkmenistan did not report any terrorist
incidents in 2016, but the Turkmen government,
Contemporary Period: President Niyazov died
nevertheless, “continued to maintain pervasive surveillance
unexpectedly in 2006. He was replaced in 2007 by
of the population.” The government closely monitors the
Berdymukhamedov, a longtime politician and former
country’s Muslim population, and the country’s
dentist. Berdymukhamedov implemented modest reforms
government has imprisoned Muslims who espouse
during his first term in office. In 2012, he won a second
alternative interpretations of Islam. The country has
term after reportedly clinching 97.7% of the vote. Electoral
participated in international training initiatives hosted by
observers say that Berdymukhamedov ran uncontested, and
agencies such as the U.N. Regional Center for Preventive
many suggest he is building a cult of personality.
Diplomacy in Central Asia and the U.N. Office of Drugs
and Crime. Corruption, however, hampers the country’s
Political Freedom: In September 2017, the legislature
law-enforcement efforts. Turkmenistan is not a major
ratified a new constitution that effectively allows President
producer of drugs, but it is a transshipment point for
Berdymukhamedov to serve indefinitely. Presidential term
Afghan opiates going to Turkey, Russia, and Europe. In
limits were extended from 5 to 7 years, and the 70-year age
2016, President Berdymukhamedov reportedly directed
cap for presidential candidates was removed. Some experts
government bodies to “redouble” their efforts to stop the
argue that these reforms will entrench Berdymukhamedov’s
illicit drug trade in the country. Turkmenistan has
power, making future political reforms unlikely. Although
participated in U.S.-led counternarcotics trainings,
the constitution grants Turkmen citizens the right to choose
including one for drug unit commanders in May 2016.
their government through periodic elections, Turkmenistan
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Turkmenistan
Economy
debts. During President Berdymukhamedov’s visit to China
Key Sectors: Turkmenistan’s top exports are cotton, oil,
in November 2015, Chinese President Xi Jinping called
and natural gas. According to estimates, Turkmenistan has
Turkmenistan a “long-standing and reliable strategic partner
the sixth-largest natural gas reserves in the world. In recent
in the energy sector,” according to Chinese state media.
years, the government has heavily invested in exploration
and infrastructure projects to service its state-run gas
Future Energy Development: The Turkmenistan-
industry, Turkmengaz. According to the Economist
Afghanistan-Pakistan-India (TAPI) gas pipeline and the
Intelligence Unit, government revenue has been “negatively
development of India as an export market would be an
affected” by low energy prices and the lack of major buyers
important breakthrough for Turkmenistan, helping it to
for Turkmen natural gas. Other factors hurting the economy
achieve its ambitious energy production and export goals.
include debt repayments and currency depreciation. The
Despite the security and governance challenges in the
government also ended popular electricity, gas and water
region, the $10 billion pipeline project is moving forward.
subsidies in June 2017. Given the country’s recent
Construction of the Turkmen section of TAPI began in
economic struggles, an IMF official said the organization
December 2015, and Afghanistan finalized an engineering
“stands ready to support the government’s reforms through
design for its part of the pipeline. Also, Pakistan began
policy advice and capacity building.”
surveying work in early 2017. It is uncertain whether the
pipeline will actually be completed, but some estimate the
Gas Exports: In April 2017, Gazprom, a Russian gas
project will be finished by the end of 2019. Some political
company, confirmed it would no longer import Turkmen
and business groups in Europe remain interested in a Trans-
gas over a 2015 price dispute. Turkmenistan also suspended
Caspian gas pipeline that would carry Turkmen gas to the
gas supplies to Iran earlier in 2017 over a contract
European Union. Yet, several challenges, such as costs and
disagreement. As a result, Turkmenistan is largely isolated
the undefined legal status of the Caspian Sea bed, have
from its neighbors, and it has become increasingly reliant
prevented the project from being implemented.
on gas sales to China, its only significant customer.
According to some observers, in the future, there could be a
Figure 2. The Turkmenistan-Afghanistan-Pakistan-
price war between Turkmenistan and its Central Asian
India (TAPI) Pipeline
neighbors to supply gas to China as gas prices continue to
fall. China has been the top destination for Turkmen gas
exports since 2011. Exports peaked in 2014 when $9.4
billion worth of pipeline gas was sent to China (which
received about 99% of Turkmen gas exports). In 2015, gas
exports declined by $1.7 billion, with $7.7 billion sent to
China (or about 96% of total Turkmen gas exports).
Figure 1. Marketed Natural Gas Production, 1990-2016
Notes: The Iran-Pakistan-India (IPI) pipeline is also shown.

Source: Oil & Gas Journal
U.S.-Turkmenistan Relations

Afghanistan: In the wake of the September 11, 2001
terrorist attacks, Turkmenistan offered over-flight and other
assistance to U.S.-led operations in Afghanistan. In early

2016, then CENTCOM Commander General Lloyd Austin
said that, while Turkmenistan had been reluctant to
participate in U.S. military cooperation programs, the two
countries had cooperated “on counter-narcotics, disaster

preparedness, and medical service readiness.” The
Turkmenistan-Afghanistan border has continued to be the

site of violence in recent years, and the Taliban reportedly
have a presence in Turkmenistan’s border area.

U.S. Foreign Assistance: In FY2016, the United States
Source: Cedigaz
provided Turkmenistan with $4.3 million in aid. For
FY2018, the Trump Administration requested $430,000 in
Pipelines: China’s State-owned China National Petroleum
foreign assistance for Turkmenistan. The largest share of
Corporation (CNPC) has major investments in Turkmen gas
the request falls under the Nonproliferation, Anti-terrorism,
fields. Gas currently is transported to China via three
Demining, and Related Programs account (NADR,
pipelines. A fourth line, originally scheduled to become
$230,000). The remaining sum falls under the International
operational by 2016, has been postponed as of March 2017.
Military Education and Training account (IMET,
Demand and falling energy prices could be to blame, but
$200,000).
another reason could be Turkmengaz’s inability to repay
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Turkmenistan

Wil Mackey, Research Assistant
Jennifer M. Roscoe, Research Assistant
Edward Y. Gracia, Research Assistant
IF10303


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https://crsreports.congress.gov | IF10303 · VERSION 5 · UPDATED

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