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February - March 2006 №

Topic of the issue: CONTENTS National ideology: forward or backward? Ishenbai Abdurazakov: Muratbek Imanaliev ...... 2 National ideology: choosing the direction “We need an ideology Roundtable transcript ...... 4 which will serve our Guest of the issue: national goal. At the Sultan Raev ...... 13 present stage, there is Appointments problems in civil service only one goal – to progress, Roundtable transcript ...... 15 BRIEF Issue KYRGYZSTAN to move forward and Who in Kyrgyzstan supports liberal not to turn into a world democracy? village, an ethnographic Melissa Burn ...... 24 museum.” – p. 5 Self-identifi cation of modern Kyrgyz society Elmira Nogoybaeva ...... 29 Social and economic risks and their impact on the political stability in Kyrgyzstan Gulasel Abylova ...... 32

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№ National ideology: forward or backward?

NATIONAL IDEOLOGY: FORWARD OR BACKWARD?

Muratbek Imanaliev * National ideology is a topic worth discussing, not merely the totality of highly educated peo- at least currently. Hence, the state recently ple; it is a highly qualifi ed group of people with became concerned with this issue: an ad hoc ideas, which will take the country out of crisis commission was set up, tasked with drafting a and lead it forward. However, it is important to project for Kyrgyzstan’s national ideology and remember that formation of elites is a matter of

KYRGYZSTAN BRIEF Issue KYRGYZSTAN submitting it to the President and parliament by time. It is also known that national culture and February 20. Such a situation should be well religion are not hindering this process, unless known to middle aged and elderly people, par- the latter are dressed up ideologically, includ- alleling our recent history: a strive to send down ing forms such as chauvinism, nationalism, from above some sort of a “Code of a construc- fascism, etc. tor….” Probably, this code will be something of a combination (though not a synthesis) of Therefore, I will express a contradictory and traditionalism, liberalism, communism and, paradoxical view (which is debatable more- perhaps, nationalism. I suppose that the main over): National ideology should be de-ideolo- thesis of this intellectual product will resemble gized. the following: “The Kyrgyz national state will strengthen democracy and market economy, It is known that to build a competitive state, although strictly controlling these spheres by three mandatory elements are required: taking into account the traditions and history of 1) a socio-economic basis, 2) totality of cul- the Kyrgyz people.” tural values, and 3) behavioral parameters of the leaders of the nation. Perhaps, national ideology (if it is indeed need- ed) comprises certain cultural, political and A socio-economic basis, as I view it, means the economic reference points, which are formed formation of a socio-economic space which is on the basis of a national value system. How- harmoniously built into international economic ever, to be guided in this context by something relations. A socio-economic space is a national from the distant past means building an eth- economic culture which denies earning through nographic museum – a quasi-state, which will begging. be visited by a few foreign tourists – lovers of exotic. Cultural values are not necessarily only mate- rial and spiritual achievements. They are, fi rst To start with, it is obvious that we should ac- of all, a culture of interactions between people knowledge at the level of national conscious- of different categorical sectors. They are also a ness and perception the achievements of oth- culture of abiding laws, which unfortunately is ers. Rather than imitate and copy, we should lacking in Kyrgyzstan. Unless the question of learn what is considered to be advanced and “What is stronger in Kyrgyzstan – a law or progressive in the contemporary world, as Ja- family connections, a law or a phone call?” pan and other Asian states have done for ex- does not disappear from our lives (in favor of ample. Acknowledging other’s achievements law), there is no point in talking about abiding does not mean mechanically applying them laws. in one’s life and trying to become “civilized clones;” rather it means carefully and critically Behavioral parameters of leaders mean a be- absorbing the best features. It is only the intel- havioral culture of the elite, which is still non- lectual elite that can learn from other’s experi- existent in our country. Why leaders or elite in ence and achievements. The intellectual elite is particular? Because it is the leaders who lead

* Muratbek Imanaliev is President of the Institute for Public Policy, Associate Professor of the American University-Central Asia.

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National ideology: forward or backward? № the people, and not vice versa. I am not talk- • cult of ancestors; ing about future generations and other things, • cult of family; which is related to the nonmaterial sphere of • cult of freedom; our people’s lives. • cult of law; • cult of education; In order to achieve the abovementioned goals, • cult of health. we should start with building or creating the fol- lowing foundations: 3. Seven freedoms: • freedom of the individual; • Self-identifi cation of the citizens of the • freedom of speech; country; BRIEF Issue KYRGYZSTAN • freedom of conscience; • Formation of elites; • freedom of choice; • Creation of a national value system. • freedom of movement; • freedom of owning property and handing it Self-identifi cation is a very complicated pro- down to children; cess. Ethnic, civic, economic, or cultural self- • freedom of fully enjoying one’s achieve- identifi cation – what comes fi rst? I believe we ments. should promote all. 4. Seven qualities: Political, economic, intellectual, military, or aca- demic elites – which is more important? I think • quality of individual persons; all are important. • quality of government; • quality of labor and its results; Formation of a national value system, as it ap- • quality of housing; pears to me, should start from the only correct • quality of nourishment; idea, related to identity and elites. That idea is • quality of water; the following: nation as co-citizenship, and re- • quality of land. sponsibility for each and all. 5. Seven senses: And the last question – why seven? The an- • sense of patriotism; swer is simple – seven is a lucky number for • sense of duty; Kyrgyzstan. • sense of solidarity; • sense of dignity; The following “Project for the future Kyrgyz- • sense of novelty and progress; stan” is a call for discussion and refl ection. • sense of justice; • sense of comfort and its achievement. Project for the future Kyrgyzstan 6. Seven conditions: 1. Seven priorities: • condition of unity; • priority of Kyrgyz statehood; • condition of forming and realizing the Na- • priority of forming and consolidating an “in- tional idea; ternal national power base;” • condition of possessing a national economic • priority of democratic government; culture; • priority of independent attitudes; • condition of the absence of hostile environ- •priority of complete integration into the inter- ment; national community; • condition of developing political, intellectual • priority of security and progress; and economic elites; • priority of mountains and water. • condition of balanced relations within a triangle of “individual-society-state” and of 2. Seven cults: forming a new behavioral culture; • cult of the future of the nation and belief in • condition of support on the part of the world God; community. -3- 3

№ National ideology: choosing the direction

7. Seven evils: achievements; • evil of traditionalism. • evil of provincialism and marginal thinking; • evil of universal vulnerability; 50. We are no better and no worse than oth- • evil of alcoholism, drug addiction and crimi- ers. nality; • evil of laziness and dependence; • evil of excessive illusions and mythmaking; • evil of failing to acknowledge other’s KYRGYZSTAN BRIEF Issue KYRGYZSTAN

NATIONAL IDEOLOGY: CHOOSING THE DIRECTION A roundtable on the topic of national ideology was held at the Institute for Public Policy on 22 Feb- ruary 2006. Ishenbai Abdurazakov, former State Secretary of the Kyrgyz Republic; Valentin Bo- gatyrev, Director of the International Institute for Strategic Studies under the President of the Kyrgyz Republic, adviser of the President of the Kyrgyz Republic, and Muratbek Imanaliev, President of the Institute for Public Policy were invited as the main speakers. Independent experts, representatives of research centers, political parties and public organizations also took part in the discussion. The discussion touched the issues of national self-identifi cation, national goals and practical implemen- tation of ideology. Below is the transcript of the roundtable.

Ishenbai Abdurazakov: There is a lot of talk should either talk about some ethno-cultural about ideology at present; however, it is unclear ideological approach (specifi cally about a Kyrgyz what type of ideology people are talking about, ideological approach) or about the ideology of a as the notion of ideology has many meanings. country, a state, in which not only ethnic Kyrgyz One can talk about ideology merely as a system reside. If we talk about state ideology, then we of various ideas – political, economic, legal, should have other parameters and approaches, etc. One can talk about moral norms, which is i.e. it is necessary to approve those ideological also a part of the world-outlook approach to the norms which would be shared by all citizens of realities of life. Some our country; otherwise, it will not work. Those say that religion There is a lot of who carry a banner of ideology claim that it is is not ideology, talk about ideology impossible to live without ideology. They claim but as a matter today; however, it is that all shortcomings, all evils are due to the of fact, it is also unclear what type of obscurity of the existing ideology. People, ideology. Ideology ideology people are especially those of the older generation, claim is manifold. It could talking about. that under the Soviet system there was a be class-based, certain organization of work, that we used to which is Marxist ideology with utterly different reach certain goals or over fulfi ll plans, that the principles, different approaches, and which crime rate was not as high as today, that there has pretensions to offering global solutions to was no prostitution, that relations between issues faced by humankind. You also know people were not as rough as today. There was how it ended. Nevertheless, there are a lot a certain system, which is non-existent today, questions, and it is premature to have a fi nal but it is impossible to mechanically apply that say over their resolution, because Marxism, system in today’s reality. Others claim that we, as it appears to me, is a secularized ideal of Kyrgyz, once upon a time lived in ideal society justice, transformed from Christianity to political with no theft or crime, that everyone deferring to reality. seniors, that there were many things resembling Confucianism… As evidence of this ideal life, Today, we live in a pragmatic world, realistically they cite proverbs, sayings that have survived. speaking. What should we talk about then? We But the folklore refl ects negative, sarcastic, and -4- 3

National ideology: choosing the direction №

different notion, is it not? This is where some Ishenbai Abdurazakov issues related to our present values originate. 1991-1994 – Consul General of the USSR/ Russia in Sapporo, Japan; Many say that Western ideology and Western 1994-1996 – Adviser to the President of the values contradict our national foundations. I Kyrgyz Republic; absolutely disagree with this. We have pure 1996-1999 – State Secretary of the Kyrgyz Kyrgyz, Islamic and Turkic values. In many Republic. instances they came into contact or related Chairman of the Board of Trustees of the Dip- with other similar values, and no culture, no lomatic Academy of the Ministry of Foreign civilization can claim a monopoly in producing Affairs, Member of the Board of Trustees of and maintaining moral or other values. If we BRIEF Issue KYRGYZSTAN the American University – Central Asia. refer to Islamic values, we can locate the same values in Christianity. Scholars know very ironic assessments as well. This is on the one well that the Koran, and Islam in general, is a hand. On the other hand, many cultural values continuation, a branch of Christianity. For a long refl ected a certain level of development. If time Islam was viewed as a Christian sect. Those people lived in mountains and they did not have who have read Dante’s Divine Comedy know certain material values; each had as much as that Muhammad was sent to hell for becoming the other did. Therefore, was there any point in a sectarian, having abandoned Christianity… stealing anything? But at the same time, theft Our moral and other legacies are no different in thrived in a different form – abaction. terms of quality from many others. Especially if we compare it with Chinese-Confucian values, On the one hand, to apply values of distant then we will see many things in common. It is a history is utopian; on the other hand it is unclear different matter that the ideas of Confucianism how can we restore the past back under were gradually being implemented in life during conditions of market economy. Therefore, it the course of many years, and have become appears to me that we should not talk about a norm of life for many. We keep talking about some moral ideology; instead, we should talk them over and over, but observe them very more about a national goal. Do our people seldom – nobody can deny this. have a certain dream – what kind of people do we want to become? Do we want to become We need an ideology which will serve our people according to our epic notions, which as national goal. At the present stage, there is only a matter of principle is impossible? Or, do we one goal – to achieve progress for our country; want to adjust to the present day and utilize the to move forward and not lag behind others; not yet unspent, living intellectual potential of our to turn into a world village, an ethnographic people? If we pose questions this way, then museum. We are as smart as others are; we should reason differently. Then issues of therefore, we should utilize our potential. Now creative activity and moral health of the society many say that globalization is a misfortune, come into the foreground. What is creative? God’s punishment. Yet, it is reality and we Each person, citizen, Kyrgyz should be able cannot escape it. Civilization is bypassing us, to create something; and to do this he or she but the sooner we adapt, the better for us. We needs knowledge. There is need for science should prepare for this eventuality. and technology – things that will enable our people to move forward, to raise the level of Muratbek Imanaliev: The main problem of our culture, and to coexist on equal terms with more people is that we do not have anything to push off developed countries. We do have such abilities. from. The history of our people is nothing more We often criticize ourselves, Kyrgyz, for being than a myth, a mythologized understanding of lazy, and we should admit that it is indeed so. what happened. Like Chukchas, for example, When I compare in general our society, our have a conception that they have traveled to the public with other countries, specifi cally Far Moon. It is the same situation here, but more Eastern, it seems that we are so lazy; that is overgrown with legends. Mythologized calques the limit. We do not like laboring much, but of one of the histories of another people. realizing the necessity of labor is a completely -5- 3

№ National ideology: choosing the direction

revolutions, no matter how paradoxical it may Muratbek Imanaliev sound coming from me. As a matter of fact, President of the Institute for Public Policy in 1917 the local population, including its In 1991-1992 and 1997-2002 served as intellectual elite, absolutely did not understand Minister of Foreign Affairs of Kyrgyzstan; what had happened. For many people, a red 1993-96 – Ambassador of Kyrgyzstan to the tsar replaced a white tsar, which did not provide People’s Republic of China. a push off for identity either. Imanaliev is chairman of the political council of the Justice and Progress Party; co-founder A culture of thinking is a very important of Jany Bagyt Movement and Associate component, and it requires years and certain KYRGYZSTAN BRIEF Issue KYRGYZSTAN Professor at the American University – efforts on the part of the nation in general. Central Asia. From my point of view, several layers represent a world outlook structure. What we currently The problem is that there is no documented feel is a layer of shamanism: some pre-historic history, even nowadays. History is not only conception of oneself and the surrounding about events; history is philosophy, mode of world. There is barbarian communism, which life, economics, fundamental things which the was absolutely inapplicable in Central Asia. people had. People often talk about certain There is Islam, though it is only ceremonial traditions which were very good. I often argue Islam, particularly in northern Kyrgyzstan. with our so-called traditionalists that traditions as Theology as the study of religion is non-existent constructions of social, political, and economic here. Nobody here dealt with it properly – only life, as I see them, have not survived. They strangers. In general, the population does not survived as certain thesis information in the accept or understand Islam. Finally, what we historical memory of the people. For instance, acquired is some mosaic of very fragmented they tried to revive a court of the elderly – to elements – liberalism for example, which we “exhume” it, to pull it out from the grave. But it also understand utterly ridiculously: “well, failed, as in reality the memory of the people since there is democracy and liberalism, it has preserved only a thesis that this court of means that you can do whatever you want.” It the elderly once existed. They cannot fi gure out is striking that these four layers did not result in how the court functioned. Therefore, in forming synthesis; they function separately. Therefore, a national ideology we do not have anything to depending on the situation, a certain layer push off from. As a result, there is a problem operates in each person. For example, when of the identity of the nation. Since there is no a person sits in the “White House” and holds documented history, we scarcely see ourselves negotiations with someone from the West, he within some geography, within a frame of is a liberal and a democrat to the core because reference, such as those that are known to the layer related to that specifi c situation and European people and certain groups of Asian perception starts operating in him. At home, the people. For example, if we take a broad, large- same person behaves as a feudal lord – talks scale, galactic identity, then it is not even clear about Islamic ceremonial things, that a wife whether Kyrgyz are Asians or non-Asians. This should obey her husband, etc. When it comes big question deals with a more specifi c system to health, he remembers some shamanistic of coordination, related to regional identity and things. identity in a nomadic world. Since there is no basic identity element of our history, it is very All these things are important for an diffi cult to move forward. understanding of where we could proceed at all. Therefore, from this point of view, I think Living in the year 2006, we try to imitate that it is very diffi cult to talk about a certain Americans or Europeans like novices; we want national ideology, to try to do something so that to live like them. But the problem is that all everyone would understand it. The search for all four world revolutions occurred far away from of this is taking place during very diffi cult times the vast region that we are living in. I mean of general degradation of the country. When I the English, French, American and October talk about degradation and dehumanization of

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National ideology: choosing the direction № social relations, it does not mean that we are its elite, intellectual part, if it still has internal entering some darkness. Degradation and mechanisms for self-development – able to dehumanization, as you may know from the advance the idea that all ethnicities living here laws of dialectics, possess hidden positive are fellow-citizens? Currently, 20 percent of element which could push us forward. It could the population of Kyrgyzstan (irrespective of indeed happen, if we do not cross the line, of their ethnicity) are not citizens of this country. course, as in Africa. Therefore, in this case I People have Russian or Kazakh citizenships, also think that we should talk about a certain and in the south Uzbek citizenship. That is, national idea, a national dream. they do not see themselves as citizens of this country, and try to acquire the citizenship of The material aspect of life, unfortunately, has their historic homeland. BRIEF Issue KYRGYZSTAN absorbed the nonmaterial, spiritual sphere of the life of humankind for several recent centuries. Besides a culture of thinking, which could be The so-called American dream, American dollar, developed only on the basis of very serious and American fl ag have struck an especially education, I think that it is very important to diffi cult and unbalanced blow. People want to have a national-economic culture, that this is a live rich lives by any means – some by stealing, very important aspect. If you deal with political others want to honestly earn, etc. In contrast, science, then you should know that a socio- the national goal should be free from being economic basis, cultural values, and conduct of an ideologized or overly materialized idea, leaders determine a country’s development in because authentic values address spiritual life, one direction or another. Therefore, economic not material. For instance, relations between culture is very important. We should learn to the elderly and children – respect to seniors. do something well, and learn something new. Unfortunately, I do not see any respect on the Of course, there is also the culture of abiding part of the youth towards the seniors, or of men law. It would be very good to adapt this culture towards women. in Kyrgyzstan. Currently, legislation as such exists on its own, while real life also exists on I am convinced that the nonmaterial sphere of its own. Therefore, the formation of a culture life plays a bigger role compared to material, i.e. of abiding law is also a major issue for us. the economy, etc. I will mention the following First of all, Kyrgyz should answer the following example: In 1963, Korea and Zambia had the question: what is stronger in this country – a same starting positions in economic terms. In law or family relations, a law or a phone call? ten years, the Korean economy exceeded the This is very important. Zambian economy four times, notwithstanding the fact that Zambia still exports strategic Valentin Bogatyrev: I think it is complete raw materials, whereas Korea did not enjoy nonsense that they are going to write some such opportunities. It means that something ideology, because ideologies are not written. other than materialism is the basis for the There are many ideological spaces coexisting development of the economy. It could be the in Kyrgyzstan, and division into our own space same Confucianism – certain national Korean or that of aliens follows adherence to certain values…. Remember the year 1998, when ideas. Indeed we deal with four ideas of different Koreans stood in lines and handed over their origins: traditional Kyrgyz ideology, Soviet, valuables in order to save their country. Could Western, and, lately, we feel the infl uence of the same thing happen here? I doubt it – not Islamic ideology. When I talk about infl uence, because the population is poor, but because I do not mean Kyrgyz Islamic culture, which there is an entirely different system. I think it is characterized by a particular softness; I would be preferable to achieve all of this by mean modern Islamic culture in a suffi ciently relying on the very important postulate that politicized format. This Islamic culture is one the nation is a fellow-citizenship of people of the determining ideological factors which residing in this country. This is a very serious infl uence ideology. problem for me. Is the titular ethnicity – Kyrgyz,

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№ National ideology: choosing the direction

without knowing the purpose for which you are Valentin Bogatyrev doing it?! In order to achieve a certain goal, you Director of the International Institute for need a certain constitution – for instance, strict Strategic Studies under the President of and authoritarian – there is only a President in Kyrgyzstan and Adviser to the President of the country, Kyrgyzstan no parliament Ideology emerges only In 1988-91 served as Deputy Minister of at all. In order when the people are not People’s Education of Kyrgyzstan; to achieve a able to resolve their prob- 1989-95 – director, co-director of Central different goal, lems with the help of avail- Asian School of Cultural Politics; you need a able resources and means. KYRGYZSTAN BRIEF Issue KYRGYZSTAN 1995-2002 - director of the Institute for completely Ethnic Politics. Bogatyrev is chairman of the different constitution – with no President at all, Board of Trustees of the European Club in but with national kurultai – a grand assembly. Kyrgyzstan. However, the work being done now is useless, a political “game.” What do those writing ideology want? They say: we will choose some package and declare Goals are a very interesting issue. Nazarbaev it a national idea. Immediately I have several recently stated: “Kazakhstan should be among questions: What principles and what basis top 50 most developed countries of the world.” will guide their choice of sampling? Who will It is a great goal. The entire country accepted decide that specifi cally these or those ideas this as an idea. What is it based on? There is should make up national ideology, and why such a notion as Kazakh pretension. These they? It is completely unclear. On what can we are good quality people; these are very base it? There are many examples in history. ambitious people; and it is through ambitions You can look backward to the past and rely on that one makes history. How about Kyrgyz? some cultural values, or you can look forward What should be the basis, so that we stand up and defi ne what goal we want to achieve. Our and move? I do not have the answer to this commission on ideology has not done even this question. As long as there is no answer to this work, although it would make understandable question, all these ideas about a country of how and on what principles we will form this service, industrial plants, and ethno-museums ideological picture. will not go anywhere. We published a book titled “Kyrgyzstan 2025,” which has a set of There are various ideologies, all of which have strategies. But this projection does not mean a right to exist. And there is a question: Why and that we know how to enact it so that something what for? Who will use this or that ideology? would happen and a real ideology would emerge, so that it would become a real driving Ideology emerges only when the people face force. Besides problematisation, we should be desparation. Desparation is a situation in which able to form a goal, and for that one more thing it is impossible to resolve one’s problems with is needed. There is such a notion as an active the help of available resources and means. It ideological system. A church is an example of an seems to me that we are in this very situation, active ideological system. This is a mechanism and it results in very large activeness in life. with the help of which you can “put” ideas in For instance, Kazakhs are better off; they have people’s heads. Political parties, though not all, a lot of money and they do not want to change are such systems. anything, whereas we want to change many things. All these talks about ideology, searching Ishenbai Abdurazakov: Like the Party of for a national idea – all of this means that fi nally Justice and Progress. there is a need in the society to answer the question: what should we do next? I absolutely Valentin Bogatyrev: The fi rst word of the agree with my colleagues: the main thing is the party’s name is obvious – “justice,” because issue of national goals. This is a key issue. How injustice was a driving force on March 24th, can you draft a constitution and start reforms whereas the word “progress” is not that clear.

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National ideology: choosing the direction №

You did not mention what you mean by this impulses. The whole process of democratization word. If you answer this question, the party in the 90s, and even the events of March 24th will immediately move forward, because for had a certain external impulse to which the now our understanding of the word “progress” internal environment reacted inadequately. is: “what belonged to you belongs to us now”. The expectations of those who had given these Those events in Iskra are not an interethnic impulses were completely thwarted. problem, but a problem of “poor hating the rich.” This came from the Soviet system. I agree and join you in that ideology is necessary, probably as an ideology of co-citizenship. Again, Nur Omarov (Political scientist): The problem the problem is how to create it? A very good of practical implementation of ideology was book was published in 1998 that I wish every BRIEF Issue KYRGYZSTAN mentioned earlier. Askar Akaev worked on this offi cial had on his desk, including the President. a lot, and with Bakiev coming to power they The title of this book is “Europe’s Experience for artifi cially set up a commission… Of course, Kyrgyzstan.” It is meant for creating countries, I agree that it is useless work to write an and it promotes the idea of protestant ethics ideology, but there were different motivations by Max Weber, and in particular, legal basics for it. Akaev’s national ideology, based on of the sense of justice, as well as the ethics the seven precepts of Manas, was born with of fair business. I think these are the very romantic expectations (people who drank things that are to become a basis for national cognac with Akaev as a professor of physics ideology. They cannot be artifi cially inculcated, in 1985-86 are still alive, and they remember since it requires a considerable period of time him talking a lot about Kyrgyz and statehood in and effort. I guess in 15-20 years, by the time general). As for Bakiev, a product of the Soviet our society develops, that very ideology and party nomenclature system, he has traditional its preconditions will mature enough to be motives, and he is guided, in particular, by introduced. But for now, every new leader will substantiation of the interests of the new ruling bring a new ideology with him. group. Gulsara Jakupova (Association of One of the problems of modern Kyrgyzstan is “Partnership of Professionals for the absence of modernized principles, which Development of Kyrgyzstan”): I have a decreases inner potential. To speak fi guratively, question to Mr. Bogatyrev. You said that ideology Kyrgyzstan resembles a person whose head appears when there is problematisation in the is turned at 90 degrees. What does it mean? society. Indeed, if we take Germany after the We are right in saying that there is a need to war, India during colonization by England, or the create an ideology which would be accepted communist regime in USSR, we can see that the by our multiethnic population. On the one hand strongest and most successful ideologies were actually, we have just started creating a national created under conditions of problematisation state - mythical statehood that is supposedly in the society. Germany recovered in a short 2200 years old or Manas that we are trying to period, India succeeded in overthrowing push off from, etc. On the other hand, we have England’s regime in a nonviolent way, and the to quickly adapt and develop in the world of entire capitalist world was the external enemy competition and globalization. It is very diffi cult of the USSR. Perhaps, certain enemies should for Kyrgyzstan in this regard. On the one hand, be determined so that a successful ideology it is necessary to revive the state, but Akaev’s will appear and be practiced. false slogans of the seven precepts of Manas were throwing us into a feudal abyss. As a We do not have identity; if there is no historical result, we have indeed created a feudalized documentation and literature, we do not know state, where progressive principles are just what ethnicity we are, who we are, or what thin layer on the bog of feudalism. On the other blood is running in our veins. Actually, I think hand, it is necessary to move forward, but how there is not any ethnicity at all in Central Asia, is it possible without nourishing a progressive but a mixture of blood just as in the whole environment? All the premises are of external world. Our big misfortune, our enemy, is

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№ National ideology: choosing the direction

immorality – shamelessness. This is the factor This is the source for treating the President as that resulted in the situation that we have if he were a Padishah, and this is the source for today – double standards among political elite. most of our misfortunes. We are talking about Primarily, the country’s leadership says one democracy, but as a result of fl awed practice, it thing, and then they do quite different things. becomes an abusive notion. It is our own fault, Our generation grew up in conditions of double since we distorted all of these ideas. Now we standards, and our children are growing up the are saying that we need to return to authentic same way. Absence of identity or formation of values of democracy. Our world would have culture, immorality and shamelessness, double become different long ago if we followed standards – these are things that keep us from the Quran or Bible. The point is that double KYRGYZSTAN BRIEF Issue KYRGYZSTAN breaking through. This is what we have to work standards always existed, and continue to exist. on, and this will serve as a basis for our national As for the unity of moral conceptions, it exists ideology. only among a very thin stratum of society; the entire society never had it. Valentin Bogatyrev: The presence of an enemy is of course a good motivator. A second Atadjan Yazmuradov (OSCE Academy): good motivator is starvation, and a third We have our own approach to this issue in one is national humiliation. There are many our country. It is very interesting for me to motivators like these. It seemed that we had observe your discourse; this is a generic issue to bear everything: humiliation, starvation, and for Central Asian countries. Mr. Imanaliev fear. But how many of you consider gain as an mentioned Korea. Korea is a very interesting enemy? How many of you think that a person experiment. North and South Korea seem to be should not live at the expense of others? After one country, but at the same time, the results all, real life is built in a different way. People are so different. To what extent does our history see that those who steal, lie, and extract live determine our present and future? We say well… “traditional society,” “democracy”… There is a theory that society develops stage by stage: Ishenbai Abdurazakov: We deviate a little bit agricultural, then industrial, and postindustrial. from the historical method when we consider Each society has its own system of economic such things as a genetic code or cultural code. relations, and possesses systems of politics I carefully studied the history and way of life and general culture accordingly. Attitudes of many nations in order to understand why towards society, oneself, and the government Kyrgyz are so lavish. It turns out that generosity differ at each of the stages. as a rule is related to underdevelopment of market relations. “Stingy capitalists” of Valentin Bogatyrev: The thing is that the world western countries are the result of commodity- lives in a post-democratic space nowadays. money relations. That is a refl ection of certain Democracy is in the past already. What we differences in values. And the second factor are observing now in developed countries, in is the parallel existence of different norms of America, above all, is a post-democratic space. behavior. We should overcome this inevitable They do not have such a notion of democracy historical stage of development. However, as we do here. Things that we allow ourselves when we jump over some stages, we acquire here are impossible in America; it is simply something that we do not feel in our own skin impossible. and heart. There were few real communists during the Soviet time; they almost did not Elmira Nogoibaeva (International Institute exist. Many people treat democracy as a for Strategic Studies): We talk about tribal fashion nowadays too; however, they have relations and then criticize it as tribalism, entirely different ideas in their hearts. That is but at the same time we yearn for respect why many people, even the educated, say that towards seniors. Do you not fi nd that one point the President is our Padishah, which becomes contradicts the other, since respect towards a basis for further reasoning. Once he is a seniors is the very basis of tribal relations? This Padishah, being a god is also quite possible. is just a remark. My question is the following:

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National ideology: choosing the direction № how do you understand ideology? Is it an ideal Ainura Cholponkulova (Association world, an ideal place for a certain nation, or is it of “Partnership of Professionals for something rational or, counted, even a kind of Development of Kyrgyzstan”): I would like technological project? to go back to the question of identity. I guess you are right that we just have not formed as Atadjan Yazmuradov (OSCE Academy): a nation, and hence cannot develop. I will not You mentioned the concept of challenge – you compare us with other countries, but look at referred to national humiliation, a negative the lives of ethnic minorities who live next to us challenge. Some countries respond to the – Koreans, Chinese and Uigurs. Again, we are challenge and advance up one stage; others back to national values. For example, Koreans collapse. Each responds to challenge in a value collectivism in its positive meaning. They BRIEF Issue KYRGYZSTAN different way. Japan is an industrial power that start doing business with whole families quite has been developing, that has an impulse. They successfully. The same is true with Uigurs. In had a national idea, and they moved forward our country, where it is pretty diffi cult to live and developed even before this challenge. even for ethnic Kyrgyz, other ethnicities live well nevertheless. When ethnic Kyrgyz start Muratbek Imanaliev: Movement is not doing business, then within some time our universal. What is the difference between the friends and relatives start quarreling with us, Chinese and barbarians? Chinese can overcome fi ghting, etc. It is all due to our laziness and diffi culties, both natural and manmade. envy. If our neighbor, an ethnic Kyrgyz, is richer Humiliation is a certain obstacle that a nation than we are, then it is somehow bad, and we or a human overcomes. For the Japanese, the are discontent, rather than being glad that there war was a big humiliation. But a much bigger is one more rich person in Kyrgyzstan. humiliation is history of Africa. No matter how African intellectuals and politicians understand And there is a related question for everyone: this situation, they cannot do anything. There how long will we think of what to push off from? is no movement forward; Africa remains as Perhaps we need some pragmatic goal, since backward as it had been before. None of the everyone wants to live well, to see tangible African countries coped well enough to rise to results. We need a to identify a goal which will their feet. meet modern market demands, and to move towards it. Ishenbai Abdurazakov: Humiliation still needs to be realized. The Germans and Japanese Muratbek Imanaliev: I think the biggest started the war, stating that they were the problem at present for the Kyrgyz nation is best nations in the world. Germans thought emigration of the population; and unfortunately, that Aryans are the best of all, and therefore this process will continue. This problem results are destined to rule the world. Japanese from a distorted policy of the government – I considered themselves as Oriental Aryans, and wonder at the fact that the government created therefore had the right to rule the whole of Asia. a special agency to facilitate emigration of Africans did not have such an idea, and what is people. This is a striking fact; there is not such happening there is not a humiliation for them, a thing elsewhere, even in Africa. It is obvious they do not realize it. Being backward is not a that none of them will return. We should try to humiliation for them, but a natural condition. improve our economy and create jobs instead of looking for jobs abroad. As it is the able- Muratbek Imanaliev: There is a difference bodied part of the population which leaves, between Japanese and Kyrgyz. When a this sort of exodus will result in what has been Japanese says, “I am Japanese,” this is national happening for centuries in Africa – export of ideology. When we say, “we are Kyrgyz,” this is the most capable men and women from Africa. not national ideology yet, because we are not And given the fact that we are not 75 million simply Kyrgyz, we are also someone else. This like the Turks, but just over three million, then is the problem with tribal relations. I think that a search for some kind of identity, a national idea or the like, will be a very diffi cult

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№ National ideology: choosing the direction

process. Plus, we have to take into account that main shortcoming is that the Penal Code and a quarter of the Kyrgyz population is already not other laws are not being enforced. We declared living in this country, while the rest is preparing a juridical society, but laws are not enforced. to leave, Even an established business becomes an object of the arbitrariness of some people. A Valentin Bogatyrev: I think Mr. Imanaliev is state functioning in accordance with law, with both right and wrong. The real goal is to live independent, impartial courts, and with all other well, and therefore the quickest solution to this features of democracy did not properly evolve problem is to leave for somewhere else. There here. are no well paying jobs here like in Kazakhstan,

KYRGYZSTAN BRIEF Issue KYRGYZSTAN Moscow, or London. Maybe the state is right Yes, we have problems with processing in doing something to make the exodus of its agricultural produce. As a result, although we citizens civilized, so that they will have at least could produce many of our own products, we certain rights abroad. Although, in principle, this consume imported juice of dubious quality. No emigration certainly is a washout of the best, matter how much we talk about substituting most active part of the population. imports, there is no corresponding economic policy. Even though the new leadership poses It is not duty bound, but I want to say that now economic issues, it does it like the director of a I understand what Bakiev thinks about this Soviet enterprise. There is almost no talk about issue. At least he says that today we should implementing real market mechanisms. If we open everything here that can be opened by want to develop not only in political aspects, but using local resources and raw material, so also economic, then let us act logically. We do that plants and factories will work. Of course, not have logic, and nothing changed after March this way you will not be able to solve all of the 24th. The people, the leaders of this revolution, existing problems, because there are serious did not think of changing our politics. Our task, problems with agriculture too. We gave land the reason why we get together and discuss for private ownership; as a result, we started these issues, is to develop our country in the over producing agriculture, and now we face right way – not just orally but in practice. That the problem of exporting it. But we cannot work is when our people will have the opportunity to in external markets, as we have never done it work normally. That is when, perhaps, those before and we cannot do it. It is very diffi cult who have left will return, and the youth will to join world production lines. Therefore, the stay here after receiving their degrees. We solution to the problem lies in developing should talk not about some ideology, but about directions which would allow people to live and preserving these cadres and keeping them earn well as they deserve. busy at home. This is our future.

Ishenbai Abdurazakov: Envy is not our monopoly. It is a universal human phenomenon; it is the same everywhere. There is nothing wrong if there is solidarity at the personal level, especially in villages where the well-off will be helping worse-off relatives; it is normal. We talk about the harm of clan politics only at the government level, when incompetent people occupy executive offi ces.

I agree that there is a fl ight of qualifi ed citizens, as well as merely able-bodied. It is a reality; it is due to the hardships of life. But I do not share the pessimism of Mr. Imanaliev, as I am sure that not all of those who leave stay abroad. Of course, provided that we will have normal conditions for doing business and for working, a good part of them will return. We could gradually make up for basic fundamentals. At the moment, the

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GUEST OF THE ISSUE №

GUEST OF THE ISSUE

SULTAN RAEV: “THE STATE SHOULD PRESERVE AND DEVELOP THE NATIONAL CULTURE – THAT IS AN IDEOLOGY FOR US” The guest of the issue is Minister of Culture of the Kyrgyz Republic Sultan Raev. He is a well known Kyrgyz playwright and journalist. Today, Sultan Raev heads a newly established ministry aimed at reviving the national culture. He is also a member of the governmental commission for development of the new national ideology. KYRGYZSTAN BRIEF Issue KYRGYZSTAN IPP: Sultan Akimovich, you head the newly difference between what we want to create and established Ministry of Culture. Please tell the communist ideas. Currently, globalization us about the functions and authorities of this processes are under way and cultural borders ministry. What are its objectives and tasks? are disappearing. Whether we want it or not, Why did the necessity to assign culture to the we will live by the economic laws of the West, authority of a separate ministry emerge? which is the market economy. However, for Kyrgyz it is crucial to preserve our nation and Sultan Raev: During the last 15 years, the state, and the essence of the ideology is that sphere of culture became second-grade in our we must preserve our language and culture. country. Not a single penny was allocated for the For example, Malaysia and Indonesia are development of culture; there was absolutely no experiencing the same problems: they remain new staging in the theater of opera and ballet under the infl uence of China. We can simply during these years. In our villages, culture is in get lost in the globalization process. Moreover, a very deplorable state. We have a very weak there are some dangerous tendencies. normative and legal framework: there are only UNESCO published a document last year in six laws on culture, and the basic law on culture which the Kyrgyz language was included in the adopted in 1993 is morally outdated. group of disappearing languages.

If there is no structural body in the government IPP: You are a member of a special responsible for culture, it is hopeless. Even governmental commission for development of such a small country as the Altai republic has a new ideology. How is the work progressing, its ministry of culture. A ministry holds a certain and are there any results? status, and I believe that this kind of approach by the government to address this issue is the Sultan Raev: We held meetings and right one. Our philosophy is that culture is roundtables. There are several versions of the needed not just for the sake of culture, but for ideology concept. There is a version prepared the people. by Sarygulov, one by the Academy of Sciences, and one prepared by me… IPP: Lately there is much discourse about the national ideology. The Ministry of Culture, I IPP: What is your concept about? assume, is directly involved in this discussion. Please tell us, what is the problem here – why did Sultan Raev: Ideology is not a declarative we take up the ideology issue so zealously? document. The Constitution should be the basis of any ideology. Ideology should defi ne the Sultan Raev: When we talk about ideology, a major developmental directions of Kyrgyzstan. certain stereotyped understanding of this word Our state above all is a democratic one. The is triggered. Ideology, above all, is a system of government should respect human rights, we ideas. For us it is now important to defi ne what should enjoy freedom of expression, and we kinds of ideas are necessary for the development should live in a legal state. The ideology should of the country. When one speaks of ideology, refl ect what is provided for by the Constitution. it is always associated with the communist For me, the major interest of the concept is the ideology. However, there is a dramatic idea of preserving our statehood. -13- 3

№ GUEST OF THE ISSUE

IPP: What do you include in the notion of the commission is reviewing them together with the national idea, which will unite the whole nation? Jogorku Kenesh. Probably some combinations What do you put the emphasis on – the Kyrgyz will be worked out… or the Kyzgyzstanis? IPP: How can a common national idea be Sultan Raev: Our state is not a mono-ethnic developed when we do not have a common one. All – the Kyrgyz and the non-Kyrgyz alike information fi eld? In some regions of Kyrgyzstan, – are citizens of one state: Kyrgyzstan. Human not a single Kyrgyz television channel rights, the rights of each citizen, are uppermost. broadcasts, and people watch 5-6 channels of All should be equal. This is an issue of state the neighboring countries.

KYRGYZSTAN BRIEF Issue KYRGYZSTAN and national unity. Each citizen should live in a decent society. Sultan Raev: You are right. This is more an issue of information security. A comprehensive IPP: What should unite all Kyrgyzstanis? approach is needed here. It is not enough simply to draft a national ideology. Development Sultan Raev: “Kyrgyzstan is our Homeland” – of the concept constitutes only 3% of the work, this should unite us all. The state is not an empty while 97% consists of practical steps for its word; the state – is I. Each person should have implementation. I am opposed to mandatory this feeling. Each person should feel his or her publication of the adopted concept in mass responsibility before the Homeland. This is not a media. We are just defi ning the priorities of vain slogan – this should be an everyday motto what kind of society we will live in further. For for each person. instance, the national idea in Russia is to save the federation, which is a very important issue. The Seven Legacies of Manas is a surrogate, National ideological documents are being which was imposed from above. I have read developed for Ukraine as well, and I believe that thoroughly the epos, and I did not fi nd seven it is time for us to think about the future too. legacies. People should fi rst of all believe in the ideology, and belief is a very complex thing. IPP: Do you remember, once an opinion that Kyrgyzstan could disappear as a state was IPP: But now the concept is being developed by voiced in Pozner’s program… the top again. Are we not repeating the mistake by passing the idea from top to bottom? Sultan Raev: This is nonsense. Lately, the problem of “south vs. north” is often discussed, Sultan Raev: We have carried out a sociological but I think that the division will not take place. survey that covered total of 27 000 people On the contrary, we should become united. The representing different population strata. Ninety common people never talk about the south-north six per cent of the respondents answered that divide; this is a policy issue. There are only 2.5 we need an ideology. However, as to what kind million Kyrgyz; this is like a small micro-district of of one, opinions differ. We traveled to the regions Shanghai. Therefore, the major issue for us is to and discussed these questions. Everyone says preserve our statehood. that we need an ideology. An individual without a guideline is dreadful. It does not matter whether IPP: You said that a concept is an internal the initiative comes from the bottom or the top. document, which defi nes the general direction. If a concept will be proposed, we will conduct What should the government do to implement nation-wide discussions. We should defi ne its provisions? guidelines in which society should live, and to where it should go. Sultan Raev: The government should preserve and develop the national culture; this is an IPP: What is the status of the concept ideology per se for us. The ideology is realized development? step by step, and one should not expect results in a year. A systematic approach should be Sultan Raev: Currently, there are several adopted everywhere: in culture, sport, and versions of the concept developed; a working education.

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Appointment problems in civil service №

IPP: Your plans as the Minister of Culture? already. As the festival is an international one, this means we should conduct it at the Sultan Raev: Interesting activities are included corresponding level. My friends from Moscow in the program of 2006. Following our initiative, are helping. a universal festival of eposes will be held. The fi rst jazz festival with participation by groups In addition, I am fi nishing my work on a novel from Kyrgyzstan, Uzbekistan and Tajikistan will – “The Last Prophet.” I started it in 1994 and be held on April 20-23, 2006. Jazz groups from now I am about to fi nish it. America, Germany, France and Russia will also attend – we have received confi rmations KYRGYZSTAN BRIEF Issue KYRGYZSTAN

APPOINTMENT PROBLEMS IN CIVIL SERVICE A roundtable on “Appointment problems in civil service” was held at the Institute for Public Policy on 31 January 2006. Jantoro Satybaldiev, Member of Jogorku Kenesh (Parliament) of the Kyrgyz Republic and Narynbek Kasymov, Deputy Director of the Agency of the Kyrgyz Republic on Civil Service were invited as main speakers. The topic was not chosen randomly: as many experts argue, inconsistency and incompetence of appointments in civil service have become a major political problem. The excerpts of the roundtable proceedings are provided below.

Jantoro Satybaldiev: Everyone agrees that similar to what Akaev resorted to in dealing with personnel matters. Under a normal personnel his governors and ministers did not work. The policy, when you hire competent staff you are current President and his administration should ensured success. But if we conduct fl awed remember the way they came to power. personnel reform, then we get corresponding consequences. The present administration is These mistakes repeat in other instances as repeating the same mistakes as the previous well. For example, we could not restore order one. You have observed this in the example of at Karakeche enterprise for several months, the governors of Jalalabad and Talas Oblasts. which damaged not only the economy, but also Very rough mistakes were committed here. our image. Before, Karakeche would supply Although, the President later found a different the Thermal Heating System with some 60- solution, which was better than the initial one. 80,000 tons of coal annually. Having failed to However, the problem of rotating the governors resolve the problem with Motuev, we supported of these oblasts could have been resolved Kazakhstan’s economy instead. earlier. In Talas, they even started discussing whether all southern offi cials should resign. The scenario is the same with the Teleradio I see two reasons for this confl ict. Firstly, Corporation: there was a national television Jeenbekov was one of the initiators of taking – now it became a state television, and they over the oblast administration in 2005, and consider it a reform. The “reform” was only in considers himself as one of the authors of the changing disobedient vice-presidents of the revolution of March 24th. Therefore, the option company. The government is just declaring further democratization of mass media, Jantoro Satybaldiev whereas in reality everything is going back to Member of Jogorku Kenesh of the Kyrgyz the previous state of affairs. Republic. In 1999-2000 served as Minister of I met with the workers of the railway. All Transportation and Communication of the they wanted was to have a professional Kyrgyz Republic. administration…. He also served as a Mayor of Osh city in 2001-2003, and Special Representative of Although we have an Agency on Civil Service, the President on energy security with the there was not a general personnel policy under status of deputy Prime Minister. the previous administration, nor does the -15- 3

№ Appointment problems in civil service

current administration have it. Competitions that are being held to fi ll vacancies could be Narynbek Kasymov called prearranged, as the only public aspect of Deputy Director of the Agency of the Kyrgyz them is vacancy announcements for positions Republic on Civil Service. of secretaries of state, whereas their selection In 2002-2005 – he served as the chief expert is a matter of technology. I welcomed the of the International Institute for Strategic creation of the institute of Civil Service Agency; Studies under the President of the Kyrgyz however, the institute of secretaries of state is Republic, projects support department. premature for Kyrgyzstan. To introduce it, we 2005 – Expert of the organizational work have to change the system of government. and control unit in the administration of the KYRGYZSTAN BRIEF Issue KYRGYZSTAN The previous administration was good in President of the Kyrgyz Republic manipulating with catchy words; the new administration continues along that path. The had a very wide network. I worked in youth essence has not changed. Basically, the offi ces communist bodies. There was very rigorous of a minister and a secretary of state are parallel; training, and only those who underwent those they compete with each other. A minister is a trainings were selected and further trained as political offi ce, whereas a secretary of state offi cers for leadership of Party organs. Back decides on personnel policy and fi nance. then of course, there was very strict discipline. If you had any fault, you received a reprimand, Unfortunately, we do not train personnel, and then you were deprived of your Party- although there is an Academy of Management membership card, which meant the end of your under the President, which I think has good career. With independence, this system was resources and it is possible to train specialists destroyed. “Laboratory assistants” and their there. Those who graduated from this relatives came to leadership. Academy hope that they will make a career, but unfortunately, many of them are unemployed. All of us worked with that team. I would like to Even if they are employed, they do not work note that the fi rst president, Mr. Akaev, used according to their major. Unqualifi ed people virtually all personnel potential. His only fault are appointed to high-ranking offi ces. As an was that he appointed his friends and relatives example, I could mention the recent formation to high-ranking positions, and in the end, his of the Cabinet and appointment of directors entire family started ruling the country. That is of state agencies. Among these ministers and when the personnel policy failed. A revolution directors, one may name only two or three broke out in March, and the whole of the last persons who are ready to fulfi ll their duties. The year abounded with “revolutions.” Then the Prime Minister does not have complete power Cabinet was formed until fall. over them; therefore, there is an open rivalry between him and the chairman of the National I have spent my entire life working on personnel Security Service. In this case, one or both of issues, and therefore I know that pressure on them should resign. the part of members of parliament played a big role in the recent appointments. This team was Narynbek Kasymov: Yes, indeed the problem made of representatives of several political of personnel policy emerged not today, but still forces, all of them pursuing their interests, exists from before. We could talk more about claiming that they were part of the revolution problems: failures while forming a Cabinet and therefore that their people will work here and making appointments. I think the main or there. There is tremendous pressure, and problem is that there is no established system I wonder how you can talk about competency of working with personnel. Such a system was and professionalism in such a situation. Mr. built before, during the Soviet times: selection, Satybaldiev is right in pointing out that some placement, and education of personnel – all of political offi ces are occupied by absolutely these conditions were observed. A trade union incompetent people. trained its own personnel, the Communist Union of the Youth its own members. The Party system While debating the structure of the Cabinet, many MPs did not want to include the Civil -16- 3

Appointment problems in civil service №

Service Agency. However, it is demanded of retraining personnel, and now we are trying by international donors. When I worked in to switch to a new system. At present, there the administration of the President in 1998- is no training of personnel – we have totally 1999, we were the fi rst to study international untrained people – whereas before, one had experience. Why is there such an agency within to move through all stages of chancellery work the structure of a Cabinet, and why were offi ces and work as chairman of the rayon (district) of secretaries of state established? I will explain executive committee, second secretary of the the rationale. Under Akaev, there were frequent rayon party committee, then go through the changes of Cabinet: a new minister would fi re school of the Central Committee somewhere all of the old staff and hire only his relatives. at the level of department head, and only then The next minister would do exactly the same. would one be promoted to an independent BRIEF Issue KYRGYZSTAN But the new staff would not know how to work. offi ce and a position as the fi rst secretary of an Just imagine a veterinary surgeon working in oblast (provincial) party committee. the chancellery…. That is when information leaks and petitions remain unaddressed. Jantoro Satybaldiev: Had the President or the head of his administration invited Jeenbekov Bureaucracy has both positive and negative and explained the motivations behind the features. In the West for instance, bureaucracy rotation, everything would be different. It should performs superbly and benefi ts society. It is not be done the way they did it – at the end of a obvious that they have a different history and meeting, they unexpectedly announce that he a different attitude toward law. If you read was fi red. our Law on Civil Service, it is near ideal. However, its implementation is plagued with We are failing in training personnel. Why was our kyrgyzchylyk, whereby we try to bypass the Civil Service Agency created? Intentions any article or any law; and it is already in our were good, yes, but a corrupt system of blood. The Law makes it clear why secretaries civil service was put in place from the very of state were introduced: they make sure beginning. We take as examples advanced that administrative positions are stable, that states like Holland, America, and England, with competent staff is hired, that there is no centuries long traditions, but we are not ready tribalism, clan politics, or nepotism within staff, for this! We cannot even form a parliament that employees are not abused or fi red when with party lists. We do not have a system of there is a change of political leadership, and training personnel; for fourteen years we have that administrative resources are preserved. crippled many people. Under Akaev you were Such goals and objectives are good, tested in in charge of personnel in the administration of many developed countries. However, with the the President – you were also a part of it just appointment of political leadership, even at the like me. level of departments and so forth there is again kyrgyzchylyk, and you cannot get away from Narynbek Kasymov: There is something it. You understand that now we have problems being done. While working in the organizational with employment: there are many unemployed, department, I have employed the fi rst graduates and it pays well to work in such ministries and of the Academy of Management. The following agencies…. year there were many willing to study at the Academy. Later they stopped dealing Our Agency has been working for a year and with employment, and now there are many half, and I can claim at least that the new unemployed graduates. So much money was leadership is trying to enhance its role and spent on their training, and it turned out that it prestige. We face very big tasks. We have was for no purpose. already held seminars for civil servants in Bishkek and central organs of Chui oblast. Now Now there is a different issue. Our Agency we will hold them in the south: Naryn and Talas. reaches out to donors who will help in training Based on my own example, I could say that and retraining civil servants; presently the before there was a completely different system Japanese government is considering a possibility

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№ Appointment problems in civil service

of training twenty civil servants in Japan. The Those who come to him to solve their problems entire leadership of our Agency was changed, receive ten times less, but he still looks fi rst at and we set feasible tasks. Now we have started their hands. There will not be order under such forming a national personnel reserve. I was a a system in civil service. member of a selection commission on placing college graduates on the national personnel During a recent parliamentary hearing on reserve. What bright students we have! These the work of law enforcement agencies, one advanced individuals know languages; they offi cial, a general, said that he appointed his are open, straightforward, and fearless. We subordinate for a good position because his have placed eleven graduates on the national father is a general. That is the principle guiding KYRGYZSTAN BRIEF Issue KYRGYZSTAN personnel reserve. They should gain certain the staffi ng of civil servants. How about others working experience; they should be sent for who do not have a general for a father? training; and we will fi ll vacancies from this reserve. Out of 22 civil servants of Issykkul Emil Kalmatov: Mr. Kasymov, what does Oblast, we selected fi ve. Requirements are your Agency have to do with the appointment very tough – tests and interviews. of akims and governors? Is there any formal procedure for interaction between your Agency Today we have gained the President’s and the administration of the President? endorsement; time will show how all of this will be implemented, but we are going to be Narynbek Kasymov: Our Agency does not persistent and will not allow any revival of the have anything to do with appointment or rotation previous system. In Issykkul for instance, we of governors, as these are political offi ces. We have gathered 130 civil servants who deal with work only with administrative offi ces, starting personnel issues. We trained them on fi lling from secretaries of state and below. out declaration forms and other things. We will keep working, as there is a lot to be done. We Emil Kalmatov: So, it turns out that the will try to improve the situation in this important administration of the President appoints them, sphere. and they themselves staff their team, i.e. you are not allowed to be part of the selection Jantoro Satybaldiev: Mr. Kasymov, train procedure. Then what is the point of having your civil servants – most importantly – not to take agency? Now they say that only natives of one bribes. I think that it should be done in this rayon are working at “Manas” airport. Young way – that civil servants are accountable and specialists who have worked there for several transparent; any state offi cial should be elected, years are either being fi red or oppressed; their and only then will we get positive results. And salaries are cut, and they are forced to leave. for this purpose we had a very good school You prepare and train specialists, but they – the decentralization of government. We leave for Kazakhstan or elsewhere. It turns out made village administration elected; there was that you are wasting money, investing not for political decentralization. If we were to carry out the sake of our country. administrative and fi nancial decentralization, it would be a very good school for career Elnura Osmonalieva (Students Union of growth. If we were to carry out administrative Kyrgyzstan): How does the mechanism of and territorial reforms sooner, we would start the reserve work at all? How do you employ electing heads of aimaks (provinces), and graduates: you recommend them or send the then we would have much better training of list of them to someone? Do you divide into personnel than today. ranks those who recently graduated or who are already working as civil servants? If we do not carry out a reform of wages, then your secretaries of state and those placed on Narynbek Kasymov: The national personnel the reserve will take bribes. You said wages are reserve is just being formed, and we are trying to good in ministries and agencies. Do you know place on reserve genuinely promising personnel. how much a minister makes? 200 US dollars. Each institution of higher education submits to

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Appointment problems in civil service № us their list of graduates with distinction and As for personnel … according to my activities, I activists. Each civil service agency refers to meet with people who studied abroad. Many of us their promising personnel who may occupy them are already working abroad – independent positions of leadership tomorrow. We have of Kyrgyzstan, on their own, as they are indeed an agreement with the administration of the smart heads. They often tell me that basically President. We will be training them – we are no one from our leadership is interested in them. planning to send 20 people to Japan, 15 to And even when delegations from Kyrgyzstan European states, and the rest will be trained travel abroad, they are afraid of these young locally at the Academy of Management. Each specialists, as if they are spies. This is the legacy ministry and agency reports on openings, and of totalitarianism, when everyone is viewed as a we will fi ll those vacancies from the national spy instead of gathering information needed for BRIEF Issue KYRGYZSTAN personnel reserve. Kyrgyzstan. It hurts our country, as gathering information means also working with people, Chinara Omurkulova (Resident Director with personnel. Besides, there is a large group of IREX): This spring, IREX, along with the of great people (mainly middle-aged) who Association of Professionals for the Development have gained considerable experience working of Kyrgyzstan, organized a meeting with Kulov. in international organizations and projects. We invited alumni of many exchange programs, These people know what the system of internal i.e. people who studied or interned in the best control in an organization is. They know how American institutions of higher education. A call to avoid problems of nepotism. They know made by Kulov was the result of that meeting. what internal control of fi nances is, that it is Later, I asked many participants whether they forbidden for the same hands to reach into a had submitted applications to the Civil Service purse. They know the system of management Agency. And everyone replied that there is no which exists in international organizations (as point, as the old system is still in place; that it a rule, those organizations which come to work is not worth going there and becoming a cog in Kyrgyzstan have clearly defi ned procedures in the old system. And this is true. There is no of fi nance and human resources). It appears to point of attracting fresh, smart heads into the old me that these people should not be ignored. system in order to get an obsolete “product.” Since there are not many vacancies as you noted, A second issue: tasks facing the country are the main task is to establish some successful so intricate, multifaceted and complex, and entities within ministries and agencies in order therefore concentrating power in one hand is to aggregate and accumulate this knowledge: unthinkable. Take a look at how management the experience of those people who have tasks are accomplished in our agencies. It returned after their studies and are now living is called “heroic leadership” – when a leader here. Besides, we cannot ignore people who are single-handedly deals with all problems and being admitted to universities abroad on their tasks. Meanwhile, all his subordinates are own. A great number of our people are studying walking elsewhere, resting…. In reality, it is abroad, but their academic work – papers and imperative to transfer part of one’s leadership to dissertations – are not used. However, with the other people, to trust them. But for this purpose, help of those academic papers and student people should clearly defi ne their mission. The research, we could accumulate expansive problem of personnel we are discussing lies analytical potential for our agencies, because in the absence of the vision of the country’s these students are using great libraries, and development in general. For instance, the they have access to all subscriptions, to all Bishkek Business Club has got a great vision world databases. We should use the experience of this development, and now the main task of these people in order to change the current of the Club is to share this vision with every situation in Kyrgyzstan. member of the society, so that every member of our society shares this vision, and in every Muratbek Imanaliev: Good specialists and workplace these tasks are realized. good management will be in demand when there is a normal public administration system.

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№ Appointment problems in civil service

At the present stage of our development, a have a stereotype that if I am a governor, problem of world outlook has emerged: are we Member of Parliament or minister, then I know able to govern ourselves? This is not a rhetorical everything, and there is nothing for which to be question, and the answer is not defi nite either. trained. Whereas in foreign countries, there is As the system of public administration was not a system of continuing education for all levels established in this country, there is no demand of civil servants. There are programs for junior for outstanding personnel with degrees from and middle levels, as well as for high-ranking Harvard, London School of Business, etc. The offi cials. As it appears to me, the problem problem is that 15 years ago communist or is that you train only junior and middle level totalitarian vojdism (authoritarian leadership) personnel. KYRGYZSTAN BRIEF Issue KYRGYZSTAN changed to liberal vojdism. We failed to create a presidential system. Characteristic features of Upon returning from training abroad, the majority vojdism are: permissiveness of the President; of my former colleagues leave the civil service vertical and horizontal integration; ruling clans, due to low salary and lack of career growth. Many tribes, certain regions, and localities through of them leave for international organizations relatives, associates, etc. Given such a system, or go abroad, where they are offered better there is no need in personnel with degrees from employment. Thus, the old system dominates Oxford and Harvard. It is enough to graduate and prevents growth of junior and middle level from any university or just to buy a degree in civil servants. Therefore, today our politicians order to get a job. Anything associated with and state offi cials, including the President and the personnel agency is merely an attempt Prime Minister, should not be shy to be trained at disguise, because neither this agency, nor in new technologies, communications, political the Academy of Management, nor the national leadership, managing personnel, human personnel reserve, nor those people studying resources and so forth. abroad have anything to do with personnel policy or forming a corps of public offi cials. We talk a lot about the importance of economic The main issue is: what is stronger in this and political development in strategy. While country – law or family bonds? This is the building plans for their future, South Korea issue we should address, because both former and India have included the formation of new and current leaders, unfortunately, are not technocratic bureaucracy into their plans. presidents in the classical understanding of this South Korea still keeps sending its promising offi ce; both are vojds. Both fail to understand leaders abroad to acquire education, and they that a President is a person who has to regulate return to work in companies and civil service. fi rst of all himself. Today these countries are going through a stage of rapid growth! As for us, we rather had Ainura Cholponkulova (UNDP): For the last such a program as “Cadres of XXI Century,” 15 years, donor assistance has been directed but nobody cared about our fellows abroad, at training civil servants as well, which is also and nobody needed them here. For instance, in a component of personnel policy. The target authoritarian Uzbekistan there is a similar state groups for trainings have been employees of program: fellows sign a contract with ACCELS, junior and middle levels. However, the problem an American educational program, according is that former party offi cials, functionaries who to which graduates must return to their home have worked under the Soviet system of state country, where they are immediately offered a apparatus, came to power. They came with position with the civil service with a commitment old knowledge, supplemented by kyrgyzism, for three years. tribalism, and regionalism. Therefore, I think that now the donor assistance should be Whereas in our country, in response to directed at training high-ranking offi cials of all Kulov’s appeal, only one person out of 200 levels. applied, because they were offered such And another issue: I myself worked as a civil strange positions. Our guys – managers and servant, and I noticed that the politicians that directors of various projects – who administer I worked with are not inclined to training. They resources worth 200 thousand to one million

-20- 3

Appointment problems in civil service № dollars, they write grant proposals, they have Jantoro Satybaldiev: I think we have to declare great experience working in international expenses rather than incomes. We show our organizations, and they are offered such a low incomes, but drive such fancy cars…. salary in the civil service. They have already grown up beyond this. Emil Kalmatov: To solve the problem, you suggest decentralization and election of Recently, while discussing the concept of foreign governors and akims, and nothing more. policy, I was very surprised to see that there are How realistic it is that a parliamentary form many elderly experts in the expert group. But of government can solve all of the problems we should openly and honestly tell them that concerning personnel policy? now we have to involve more young people with BRIEF Issue KYRGYZSTAN fresh ideas, as we are living in a market where Jantoro Satybaldiev: I agree that 75 MPs will we have to earn by ourselves. However, our not be able to govern the state; it is impossible. state apparatus, represented by high-ranking We have to change the system. If we declare a offi cials, seems to be living according to some parliamentary system of government, we have Kyrgyz management – we cannot even call it to create integrity of institutions and laws. Soviet. Therefore, in my opinion, we have to create advisory councils that would include Damir Bisembin (Partnership of Young young professionals, and the older generation Professionals for Development of has to learn to listen to us because we are the Kyrgyzstan): In my opinion, decentralization ones who are going to live further. and election of akims is not enough. First of all, it is necessary to raise the prestige of civil servants Emil Kalmatov: Soon the parliament will be and the civil service. A person working in the considering the annual budget. Could you civil service tries not to advertise it, whereas somehow in connection to this event raise a a person working for international project or problem of personnel policy? For instance, joint venture is proud of that. We do not have it is well known that the administration of the resources to raise the salaries of civil servants; President is a huge structure that requires hence, maybe we have to raise their prestige expansive resources to maintain its activities. fi rst of all. For instance, give some privileges or Is it possible to make a connection between offer certain benefi ts…. Mr. Imanaliev, I have a personnel policy and the national budget, or are question for you since you are a former offi cial these two things entirely separate from each who worked for a long time in the ministry, and other? are now working in the non-governmental sector. In your opinion, how can we, without raising Jantoro Satybaldiev: The administration salaries, attract to the civil service those young of the President declared reduction of some and talented specialists who graduated from the departments up to ten percent, others up to 40 foreign universities and have great experience (I percent. But this is not likely to happen. Since mean middle aged, 30-40 years old)? How can we do not defi ne the structure, the only leverage it be done so that they would be happy to join of infl uence is approving the budget. We want the civil service and use all their knowledge and to eliminate duplicating structures, to cut skills in their work? expenditures rather than personnel. Therefore, we decided to cut funding. Muratbek Imanaliev: It is diffi cult to invent a “remedy” to solve this problem. The only thing Shair Juraev (IPP): My question is concerning I can state, given terrifying poverty in a country the Agency. You do a good job by posting on a where there is no budget and no resources at website the income declarations of politicians. all, the only way to solve this problem is not a Are there any sanctions on those who fail to do material aspect, but spirituality, patriotism. I will that? cite an example. (Of course, for this purpose they employ not the best methods of bringing Narynbek Kasymov: No. Only 38 percent of people up, but I think it also should be done.) MPs turned in their income declarations, the rest South Korea lagged behind North Korea in do not want to do that. -21- 3

№ Appointment problems in civil service

terms of basic indexes; it was a less developed country, the USA for instance. Nobody can agricultural region. What did Korean leaders do? convince me that democracy started there in They staked on Korean nationalism. They sent the 17th century; you cannot throw out slavery, people to study under American and European the last American slave died in 1964. grants, but with a condition that nationalistically or patriotically minded individuals voluntarily As for us, we play democracy, because all we returned to Korea. Of course, some of them have is a so-called procedural democracy. remained abroad. However, one should Civil society is an artifi cially created entity. It not forget about the system of economic did not emerge from the needs of the public. responsibility for parents and relatives that This idea was brought in from outside. The KYRGYZSTAN BRIEF Issue KYRGYZSTAN exists there. main task of civil society, if it is well founded, is in socializing a person. Civil society did not As for us, the majority of people who graduate accomplish this task, and even worse, it led to from western universities do not return. Two public commercialism of individual needs and percent of Kazakh citizens with western social relations. As a result, we ended up with education return to Kazakhstan. I do not know escalating processes of the dehumanization of about the situation in Uzbekistan; they probably social relations and the degradation of social use other measures since it is a state with consciousness. We have to honestly admit dictatorial elements of government. this. This is what we have to start with.

Of course, the fi nancial interest of people is They say the state does not create favorable an important element, but there is no money. conditions. Yes, I agree. But you see, the Should we count on Soros like Georgians? It is problem is that young people who study abroad abnormal when a Prime Minister receives his simply do not want to come back. This is a big salary from a foreigner. problem. In case they return, they will not go to work in the Ministry of Education, even for The problem is that, unfortunately, we do not $200. Instead, they will go to an international have a system of fostering patriotism; the or private organization for $500. The quality state does not work on cultivating a spirit of of government, absence of a system of public homeland in its citizens. While communicating administration, absence of demand for normal, with students of American University – Central strong people, leads to a situation whereby Asia, where I work, I have found out that few Harvard graduates are simply not wanted here. want to stay in the country, although all of It is enough to graduate from a local university them are representatives of the titular ethnicity. and help one’s parents – that is it. Patriotism is a feeling, and hence it requires a sort of fatherly attitude in response. Although it I would repeat once more that the situation in may contradict the spirit of our discussion, I am Kyrgyzstan is such that political conjuncture is deeply convinced that this country needs not a heavily personifi ed from the very beginning. mere President-vojd but a President-father. This This is the way Kyrgyzstan chose, because is a very important circumstance, and we do not Akaev came to power. Whether by chance have a person who could sacrifi ce himself. All or not, he came. If Masaliev had come to our presidents and prime ministers are people power, the situation in the country would be who desire to live well. Nobody wants to pull a quite different. This is absolutely obvious. stake from himself, to wear rubber boots, and Personifi cation in defi ning the way forward so on. Before becoming successful states, all of is still the most important political resource the European countries and North America had in this country. Development of the country dictatorial systems of politics, because it was depends on the President’s conduct. We do rational dictatorship that pushed forward the not learn anything; in order to learn, we have economy. Only provided that there is a certain to acknowledge something. We do not want level of development could you start talking to acknowledge other’s achievements. When about democracy, decentralization, etc. Take we admire Japan, we admire only Toyota, but as an example the history of any developed never the Japanese brain or the organization

-22- 3

Appointment problems in civil service № of Japanese society. This is what we are not allegedly being one of Akaev’s people. This willing to learn. Mythologized ways of thinking happens everywhere: disagreeable people are leads to formation of illusions concerning the being labeled as Akaev’s people and being future; this is a sociological axiom, a well-known fi red. Is this a problem of current personnel phenomenon. policy – rotation of personnel when Bakiev appoints a person but the staff does not accept Elvira Sarieva (Internews): I think you have the appointee? What is the fault of those people drawn too gloomy a picture. As a matter of who were working for the sake of Kyrgyzstan, fact, both those who live abroad and those and suddenly, with the change of President, who work here in international organizations became enemies? For instance, I was not even are concerned about their country. There is acquainted with Akaev, and it is astonishing BRIEF Issue KYRGYZSTAN a vicious circle: professionals say, “we would that I was fi red under this pretext. work in civil service, but the salary is low,” whereas the government says, “we would pay Narynbek Kasymov: There are many such more but there is no money.” There is an idea cases. Akaev also fi red all communists when that this mechanism should be destroyed from he came to power. As for me, I was working inside. in the Central Committee of the Communist Muratbek Imanaliev: I do not understand what Party. Under Akaev, I was a head of the you mean ‘to destroy from the inside.’ Would organizational department in the administration you explain it, please? of the President. Now I am working at the Elvira Sarieva (Internews): I mean that young Agency. Of course, they appoint their people personnel join the civil service, regardless of to lucrative jobs… You have to approach this the salary or positions. Thus, by creating a problem philosophically; this is life. critical mass, they change the system itself, because there is no point in waiting until the Daniar Imanaliev (“Alga, Kyrgyzstan!” President changes his mind and re-evaluates party): What is the role of your Agency then? his own activities. Narynbek Kasymov: According to legislation, Muratbek Imanaliev: The problem lies we are adopting international experience; somewhere deeper. There is no tradition of everything is ideal on paper, but when it comes self-government, no tradition of statehood; all to reality kyrgyzchylyk is taking over. Nothing of these must be created. The problem is not was done in fi fteen years, whereas now we with young Kyrgyz and old Party personnel. are trying to improve something in a year and China is not the only example of a Communist a half… Everyone is to be responsible, law- government (though they are a little different abiding, and then there will be order. now). Vietnam, Cambodia and Laos are communist countries, too. Of course, the Ainura Cholponkulova (UNDP): A question system of government has changed slightly; to Mr. Satybaldiev: how can we create a nevertheless, communists are in power there. mechanism of continuity in the parliament? With new MPs coming, 60 % of the supporting The thing is that we have to fi nd our own way staff was changed. Consultants and experts of governing the country. If we are successful were fi red; MPs brought their own people. in this, then this system will function regardless There is no continuity at all, and in this sense, of the person in power. the parliament is much more vulnerable. And a second question: have you changed your Daniar Imanaliev (“Alga, Kyrgyzstan!” consultants? party): Going back to the issue of personnel policy, I would like to ask a question of Mr. Jantoro Satybaldiev: The second question Kasymov. Today in Kyrgyzstan, people are is easier for me to answer. I did not change divided into Akaev’s people and revolutionaries. them; I hired those who already worked there. I became a victim of this policy, since I was fi red My assistant is Apsamat, Masaliev’s former for allegedly not taking part in a coup d’etat and assistant. As for supporting staff, it will be

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№ Who in Kyrgyzstan supports liberal demacracy?

changed anyway. We have to change the but lived and worked their entire life in Osh system of forming parliament; that is when Oblast. professional personnel will be hired. Muratbek Imanaliev: This is neither a social Chinara Omurkulova (Resident Director nor an economic problem – this is a political of IREX): In fact, if people are going abroad, problem. This is a serious blow to the country’s this does not mean that they are not patriots. sovereignty. Reduction in population is a terrible Before, I thought that a patriot was a person thing. At the moment, some 80,000 former who sits here, boils in this mess, and eats from and current citizens of Kyrgyzstan are living in the same pot. However, according to my friends’ Kazakhstan. Some 350,000 of our citizens are KYRGYZSTAN BRIEF Issue KYRGYZSTAN experience, those who go abroad and help from permanently living in Russia, including those in there are no less patriotic than those who stay the second generation. Very few of them will and “boil” here. What can we talk about when return here. The same happened to Turks in a state offi cial at the level of a Secretary of Germany. All of the three million Turks who State says that we should nominate personnel moved to Germany stayed there; their second according to their family or clan belonging rather and third generations are naturalized Germans, than their professionalism and competency?! I which is an alien element for Turkey. However, think that we, representatives of civil society, three million may not be that big loss for Turkey, should openly express our disagreement with which has a population of 75 million, whereas this sort of things. Especially since now, it is two millions is too much for Kyrgyzstan. This very diffi cult to defi ne who is from where. It may problem concerns me very much. be that my parents were born in one place,

WHO IN KYRGYZSTAN SUPPORTS LIBERAL DEMOCRACY?

Melissa Burn *

Recent IPP articles show that discussion over so wonderful? The glowing promises made the best form of government for the Kyrgyz by political leaders and outside experts for Republic has intensifi ed, especially in the more than a dozen years have not resulted in current atmosphere of questioning the relative substantial improvement in the lives of ordinary powers and responsibilities of the President, citizens. Some people even feel that their lives Prime Minister and Parliament. As the debate are worse now than before. So, to the public, continues in the capitol, mostly among political it might not matter very much what happens elites or well-educated observers, it has in Bishkek or what politicians say. People been diffi cult to know for certain what “the believe that, apart from tribalism and other public” thinks. Most Kyrgyz citizens are more forms of personal favoritism, the government focused on surviving from day to day than they and many elected representatives ignore their are on abstract arguments over the form of constituents after the election is won. government. This is understandable, given the real and pragmatic challenges facing families Does this trend mean that people in Kyrgyzstan in the republic. do not care about democracy, or that they are not suited to it or “ready” for it? The issue has There is also some question as to whether been raised many times since the Central people share a common understanding of Asian republics gained independence. Political concepts such as, “democracy”, “civil liberty”, leaders, media analysts, social scientists “presidentialism”, “parliamentary form of and others disagree on the answers to this government” and other terms. And, some painful and divisive question. Underlying the ask, if the economy remains weak, what use question, of course, is the fear that the whole is this “democracy” that everyone says is democratic enterprise is doomed to grinding

* Melissa Burn is a PhD Candidate from the Institute for Confl ict Analysis & Resolution, George Mason University, Virginia. The 2005 survey data discussed here was collected for her doctoral dissertation. -24- 3

Who in Kyrgyzstan supports liberal demacracy? № delay or eventual failure because of factors really true that people only vote for someone built into the society. Social factors generally from their own clan, their own district, or fall into two broad categories: culturally-based whoever pays the most for their vote? These expectations for group and leader behavior, are important questions and more information tribalism, on the one hand and the priority given is needed before they can be answered. to stability and order, discouraging change and open political competition, on the other. The issue of order and stability is similarly potent. Regardless of whether or not one believes that Collectivist cultures, as both traditional Kyrgyz democracy, nominal or liberal, is the best form nomadic society and the subsequent Soviet of government for Kyrgyzstan, it is useful in the system were, tend to value order and stability current context to examine the level of support over innovation and risk. And, since the rights BRIEF Issue KYRGYZSTAN that it enjoys in the republic. of the community are elevated above individual rights, there is often considerable pressure to Social Factors conform to group opinions. Still, most people are generally capable of considering their Accusations of tribalism at the elite level are options, looking at the examples around them, a potent weapon and any discussion of such and learning to take steps toward what they ingroup favoritism becomes so politically “hot” see as a better way of doing things. However, that the complaints are immediately taken up because order and stability are prioritized by the community rumor mill. As a result, it is and they are a standard part of the public diffi cult to know whether the public accepts such discourse, accusations that a political actor behavior as an expression of clan obligation (as or movement will cause disorder and chaos some people suggest) or whether most people undermine support nearly as much as claiming regard tribalism as illegitimate. Political leaders “tribalism”. If a society values order and stability in other republics and some commentators above personal liberty and authentic political in Kyrgyzstan insist that with such cultural competition, then the prospects for democracy foundations, transition to a true multi-party are constrained because, as everyone knows, democracy based on platforms rather than democracy can be very chaotic, especially in personalities will require generations of re- the early stages. Is this the case in Kyrgyzstan? socialization. The cultural basis for tribalism – Again, more information is needed about what showing preference for members of one’s tribe, the public thinks. clan, or extended family – is clear in nomadic Kyrgyz culture, behavior which was in some As the events of March 24th showed, popular ways strengthened by the Soviet economy of legitimacy is crucial for any regime. Different scarcity that encouraged reliance on informal people, however, have different ideas on the networks for day-to-day living. But, it is not at best way to build and sustain widespread all clear that clan favoritism is the only rule legitimacy. Everyone agrees that corruption by which people make political decisions in and tribalism must end and the government modern Kyrgyzstan. Many people have other must be reformed, but there is little agreement bases on which they decide who to trust and on what this should look like. Knowing more who to rely on for help, though extended kin about what people want can help clarify the group relations remain the cornerstone of agenda. One important question, for example, social life for the majority of citizens in the is whether people will trust a political party republic, especially the ethnic Kyrgyz. And of more (or less) than they trust someone from course, Russians and other non-Central Asian their clan or district? How malleable are people citizens who are outside the clan system have in this regard? By legislating party politics, can their own ways of deciding who to trust, who true national parties develop or will people will help them, and who deserves their political just transfer their loyalty to parties dominated loyalty (if anyone does). When the state fails by their clan or other identity group? How can to fulfi ll people’s needs and expectations, they parties attract constituencies that integrate naturally turn to informal networks that meet different ethnic, social, and economic groups? those needs. Who can blame them? But, is it

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№ Who in Kyrgyzstan supports liberal demacracy?

This is another way of asking what kind of extend rights and protections to each other. boundaries there are between groups, how deep When people know they are respected and not are the divisions, and whether the boundaries marginalized, they cooperate with one another, are fl exible enough to let new people into the creating the dense network of civil ties that community. Research and practical experience strengthen society. This is why the process of show that where group identities are threatened, building national political parties goes together especially during times of intense competition with creating linkages between different social for scarce resources, group boundaries tend groups. If parties develop only along ethnic, to harden rather than becoming more open, clan, rural-urban, or north-south lines, the and tension between groups escalates. This divided society that results can not provide the KYRGYZSTAN BRIEF Issue KYRGYZSTAN means that transitions are especially diffi cult legitimacy needed for effective governance in times to build bridges of trust and common Kyrgyzstan. interest between groups that see themselves as distinct from and in competition with one What Do People Want? another. That is not to say that it can not be done, only that it requires careful thought and In the late spring of 2005, a small social survey strong commitment. of 500 respondents throughout Kyrgyzstan asked people’s opinions on many of the One interesting result of research into social issues relevant to the current discussion. The groups is that, the more united a society is, the questionnaire was given to a random sample more important regime legitimacy becomes. of people of all ethnicities in urban and rural Divided societies are less able to confer settings of fi ve oblasts plus Bishkek. Some legitimacy (because they disagree about what of the questions came from earlier surveys it means) and, also, more easily manipulated and the results can be compared to see how by elites serving their own selfi sh interests. So, attitudes have changed over time. A survey is a strong republic with a legitimate government only one tool for understanding people’s views, requires cohesion among the various groups in of course, and can never give the fi nal answer on important questions. However, surveys do Divided societies are less able to assess the diversity of views among various confer legitimacy and more easily segments of society and show which people manipulated by elites serving their own hold these views. For example, do people selfi sh interests. support democracy and, if so, which people are more likely to support it than others? In fact, society, at least in terms of a political community. when asked whether they agree or disagree When different social groups recognize one with the idea that, “democracy may have another as belonging to the same civic or problems but it is better than any other form of “moral” community, they are more willing to government”, 76% of Kyrgyzstani respondents

Survey Statement Agree Disagree Our country works better without a lot of opposition 28% 61% politicians criticizing the government. The press and media in this country should not criticize the 32% 64% government and president openly. Giving people more say in government decisions is more 64% 27% important than maintaining order. People should be free to say what they want, even if it 76% 20% increases tensions in society. Citizens should have the right to publish newspapers that 84% 12% express any and all political views.

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Who in Kyrgyzstan supports liberal demacracy? № agreed and only 13% disagreed (the rest were In 2001, 50% of not sure). Of course, 47% also agreed with the Support for liberal people said that the statement that “democracies are not good at democracy is higher president should maintaining order,” which suggests that, while now than ever not be permitted to many Kyrgyz citizens prefer it as a political before, with some dissolve parliament ideal, they recognize that it can be chaotic. reservations… and rule by decree; in 2005 that number Given that people have different ideas about had grown to 75%. Regarding the president’s what democracy means, it is helpful to know right to limit travel abroad, respondents who what they think about specifi c aspects of reject this option increased from 54% to 80%. political competition and civil liberties. The When asked if the president should be permitted BRIEF Issue KYRGYZSTAN following table lists several questions and to cancel elections, in 2001 57% said this was the responses people gave to them. (In each not permissible but in 2005 82% rejected it. In case, the percentage of people who were not the earlier survey 46% said that it was good to sure how to answer is not shown but may be have a strong leader who did not have to share discerned from the data.) power with parliament and the judiciary, but this was reduced to 31% by 2005. These results show that there is substantial support among Kyrgyz citizens for these aspects The insecurity caused by harsh accusations in of liberal democracy, though some elements the media and the chaos of mass disturbances are more strongly supported than others. For has had a measurable impact on citizen example, support for press freedom is not as attitudes, however. Support for censoring the strong as support for individual free speech mass media to establish order increased from rights. Perhaps people have more confi dence 25% in 2001 to about 36% in 2005. In 2001 only in themselves and their neighbors than they 25% of respondents felt that it was acceptable do in the mass media. When asked which for the president to forbid meetings and mass was more important, order and stability or free demonstrations. This number had grown to speech and public participation in government, 38% after the March uprising. Perhaps these democratic “voice” won by a large margin. increased percentages are a temporary reaction to the March 2005 events but only time will tell. Two questions solicited opinions on the power The message from the survey data seems to of the president relative to other branches of be that people support free speech and political government. In response to the statement, “A competition but their threshold for verbal warfare government led by a strong, respected leader in the media and chaos in the streets is limited. is better for the country than a government Too much disorder erodes support for liberal where power is shared with the parliament and democracy, as one might expect anywhere in the judiciary,” 59% disagreed and 31% agreed, the world. But, even after the events of early suggesting support for a strong parliament and 2005, the percentage of people who said that independent judiciary. However, a majority democracies are not good at maintaining order (57%) also agreed with the statement, “It is decreased from 61% in 2003 to 47% in 2005. good to have a strong leader who is not limited by parliament and elections,” which shows Particularly at the national level, it is important ambivalence about how power should be for candidates to be able to garner support from distributed in government. districts other than their own. And, too, if political parties are to become truly national, they must When the data from 2005 are compared with reach out to constituencies from a broad cross- earlier surveys, it becomes clear that support section of society. Most people (65%) disagreed for liberal democracy is higher now than ever with a statement that they would always vote before, with some reservations. In a survey in for the candidate from the voter’s own district. 2001, 54% of Kyrgyzstani respondents said When asked if they would consider voting for a that free speech was more important than strict well-qualifi ed candidate from a different district, order. In 2005 that number had grown to 76%. an overwhelming 95 percent said they would.

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№ Who in Kyrgyzstan supports liberal demacracy?

This suggests that there is a solid basis for member of the collective must feel free to vote developing national parties and candidacies, their conscience and, if they agree to vote with if candidates are well-qualifi ed and reach out their relatives, they do so because they believe to a diverse interest base. However, among it is in their best interests, not simply because of those with a strong sense of identity based social pressure to conform. In another measure on their kin group or on their home district of voting along clan lines, respondents were (which was indicated by a variety of themes asked whether they agreed that, “I will always including that they would always vote for their vote for my relative if he or she is running for relative and only for someone from their own political offi ce”. Fifty-nine percent disagreed with district), support for political competition and this statement and 36% agreed with it, arguing KYRGYZSTAN BRIEF Issue KYRGYZSTAN free speech were much weaker than among against fears that people use clan solidarity as the population as a whole. It seems that when their primary rule for voting (though it strongly people show a strong preference for their own infl uences their choice). “ingroup”, whether based on clan or district, they are also less interested in some aspects In contrast to the general willingness to vote of liberal democracy. for well-qualifi ed leaders outside their own clan or district, people were more ambivalent when When asked about tribalism in government, asked about attitudes toward other ethnic groups the results were also encouraging. In response – whether someone would vote outside their to the statement, “It is wrong for a high ethnicity and whether minorities should have government offi cial to give special treatment to representatives in high government positions people from his home district by giving them and in parliament. About one-quarter of the jobs in his ministry,” 81% agreed that it is wrong population expressed very open and inclusive and only 16% disagreed. However, people views, the majority (66 percent) was in the acknowledged in interviews that if they were in middle, and ten percent expressed very biased a position of power, their relatives would come ethnocentric views (strongly favoring their own to them for favors and it would be diffi cult to ethnic group and showing prejudice against refuse because of the high value placed on other ethnic groups). Of particular importance helping relatives. Therefore, a second item for building an inclusive political community, was included in the survey which stated, “If I those who scored higher for ethnocentric views were an offi cial, I would defi nitely (obligatorily) were also much more likely to see democracy help my relative if he needed a job or needed as disorderly, more likely to say that the political help with a business.” To this, 30% agreed and opposition and media should not openly criticize 65% disagreed. Of course, not everyone will the president and government, twice as likely to answer such a question honestly. However, the say that citizens should not be able to publish data show that most people either reject clan any and all political views, and more likely to favoritism or they recognize that it is strongly disagree with the idea of citizens having more stigmatized, which is also important. say in government.

Another element of tribalism is the practice of kin groups agreeing to vote together as a block. Those who say they would show When asked to respond to the statement, “If favoritism in politics and public policy my father told me that he and my uncles were to their own clan, district, or ethnicity, all voting for a particular candidate, this would are less supportive of liberal democracy strongly infl uence my choice of who to vote than the majority of Kyrgyzstanis. for,” most respondents (64%) disagreed though a substantial minority (33%) agreed. This sort of collaboration by constituents, in and of It is not clear from the data in the survey why itself, is not necessarily a problem. In mature there is a link between ethnocentrism and democracies, for example, labor unions often resistance to liberal democracy – surveys are encourage their members to support a particular good at describing and poor at explaining – but candidate. If the goal is liberal democracy, each the pattern is clear. Those who say they would

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Self-identifi cation of modern Kyrgyz society № show favoritism in politics and public policy to and people who show the most favoritism to their own clan, district, or ethnicity, are less their own ingroup, whether it is based on clan supportive of liberal democracy than the majority membership, district, or ethnicity, are the least of Kyrgyzstanis. This does not mean that people likely to support liberal democracy. While the who have a strong attachment to their family and survey data can not explain this, research into home are anti-democratic. Rather, it indicates social identity can. When a group is strongly that people who base their political decisions prejudiced against others, members of the group on these things are less supportive of liberal assume that outsiders are just as prejudiced as democracy. they themselves are. So, members of a group who show strong favoritism to each other believe

Conclusions that outsiders will discriminate against them. If BRIEF Issue KYRGYZSTAN someone believes that other groups in society What do the results of the survey tell us about can not be trusted to treat them fairly, they will support for democracy in general, and liberal not want to see those people in positions of democracy in particular? Most Kyrgyzstanis power. As a result, someone who shows strong support democratic competition and free speech, ingroup favoritism does not trust the democratic though harsh public attacks between political concept of “government by the people” because forces and chaos in the streets reduces this he or she is afraid of what other groups might support. One result of this is that there is more do. Given that any government needs popular support for the free speech rights of citizens legitimacy and that a strong society with many than of the mass media. Stability and order interconnections between groups enhances are important, and having a strong president legitimacy, such social divisions can undermine seems to be associated with these desires, but any government, democratic or otherwise. One most people also want a strong parliament and key lesson from this insight is that a political leader judiciary. There is reason to believe that national who tries to build support by infl aming ethnic, political parties can grow and build broad clan, or regional competition, aggravating the constituencies, provided their candidates are fears of social groups, undermines governance well qualifi ed and they make a point of reaching in general and democracy in particular. To further out to diverse groups rather than setting groups democracy, leaders must do two things: fi nd in competition with one another. ways to facilitate trust and cooperation between social groups and encourage open but orderly One troubling result of the survey is that there free speech and political competition. are still strong divisions within Kyrgyz society,

SELF-IDENTIFICATION OF MODERN KYRGYZ SOCIETY

Currently, the people of Kyrgyzstan are experiencing a “time of quest” for their identity. The major questions that need to be answered today are “Who are we?”, “Where are we heading?”, “What do we have, can we have, and want to have?” Here, as is known, the so-called national identity level – self-identifi cation of the people, self-identifi cation of each member of society, and self- identifi cation of each individual, plays not the least role. Elmira Nogoybaeva * The irony of fate is that the very “search for self” to changes in the political situation, and to the in the 1990s was one of the factors that lead to start of an irreversible processes in the end. the collapse of the Great Empire - the USSR. The self-identity “gene” of the peoples of the That was a time of escalation of a number of Great Empire, which was in slumber for 70 unresolved problems within the enormous years and recently awoke from a lengthy sleep, (and by nature synthetic) society called “ the destroyed the identity that was imposed by the soviet people.” Local, national and regional mighty empire (which attempted to design a new confl icts emerged every now and then, leading community – the soviet people). The attempt to

* Elmira Nogoybaeva is a chief expert of the International Institute for Strategic Studies under the President of the Kyrgyz Republic.

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№ Self-identifi cation of modern Kyrgyz society

unify entire strata of peoples’ historical, cultural its origins – its cradle and roots. Approaches and traditional values infamously failed. to reveal the “historical truth” in Central Asian post-soviet republics began to acquire an A new epoch and a new paradigm took over. increasingly hypertrophied character. For each former Soviet Union country and each ethnicity, the time for self-identifi cation Thus, based on the ancient sources that detail came regardless of the structure, welfare or the past, the picture we see is that tribes receipt of such compensations as freedom, later blended into common bowls of national political independence, or sovereignty. Thus, formation – they started to defi ne fi gures. In starting from 1995, ethnic identity growth 2002, Kyrgyzstan offi cially marked the 2200th KYRGYZSTAN BRIEF Issue KYRGYZSTAN intensifi ed in post soviet countries. Efforts were anniversary of the Kyrgyz nation. Meanwhile, made to reevaluate their pasts – their places through a well-known work of the Turkmen in the world history and culture; a new attitude leader Saparmurat Niyazov, their history is towards the religion and their traditions formed. traced back 5,000 years and starts with the Their searches for self in the past intensifi ed in forefather of the entire nation – Oguz Khan. order to explain themselves in the present, and to justify the “legitimacy” of the present, so to New hypotheses and attitudes toward symbols speak. and prominent national fi gures (such as Manas for the Kyrgyz nation, Amir Timur for Uzbeks, This process has been characterized by Sultan Sanjar for Turkmen, and so on) acquired crucial reconsiderations of the recent past and different meanings; these initial meanings are by revival of that which had been forgotten complemented by an ideological component. A undeservedly, particularly by the revival tendency emerged to search for confi rmation of national cultural traditions, history, and of the legitimacy of the existing regimes and language. Here it becomes obvious that the their policies through the creation of ideological state nationality policy of the USSR that had myth. To polish the historical facts, “formation been pursued for 70 years infl icted serious images” of nations took shape – attributing to damage on “national peripheries,” with serious ethnic communities specifi c cultural, status and consequences. This policy was expressed in other characteristics. particularly through complete Russifi cation, through biased valuation of “white sports,” In this period, the identifi cation of divisions through interpretations of the histories of in the community that separate “ours” from various “small” peoples and states of the Great “outsiders” became apparent and grew Empire, at times simply belittling the dignity of stronger. At the same time, formation of the these people through historical falsifi cations. position “us vs. them” is characteristic for all Thus, almost two generations of the Kyrgyz, subjects attempting to identify themselves in Kazakh, and other nationalities practically lost the comparison of “I-another/others.” their national languages, which became merely colloquial dialects or “kitchen” languages, There exist several directions that are used bluntly speaking,. Taking into account the fact or potentially can be used as a consolidating that language always serves as one of the constant in self – for identifi cation of Kyrgyz critical factors for the formation and sustained society. development of ethnicity, entire nations were being deprived of ethnic development. Ethnic nationalism is one of the most widely spread self-identifi cation elements. Calls for On the other side of the equation, this period “revival of the nation” were heard more often was characterized by a feverish search for during the critical periods for the country, evidence that might prove that “we exist,” certainly including such reservations as “healthy and not only exist, but also that we are rather nationalism,” “sound nationalism,” and “national signifi cant. A whole series of myths appeared spirit,” with reference to the experiences of to prove this point, starting from myths about other countries such as Japan, Turkey, and the the age of our nationality extending back to USA. This practice is not peculiar to our country.

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Self-identifi cation of modern Kyrgyz society №

In Russia, the political rhetoric of Rogozin, hurriedly begun to fi ll the gap formed during Zhirinovskiy, Limonov, and other party offi cials, the soviet period. Currently the religious including communists, has appealed to national situation in the country is characterized by revival of the state. Even very democratic states revival tendencies; this point applies to Islam could not avoid this tendency in certain periods in particular. of their development. The most illustrated example of an appeal for the position of “sound nationalism” is the discourse of D. Howell 1 An appeal for consistent territorial value - “Ala- of the Tories of the Great Britain, who was a Too land” or “Tian-Shan mountains” can also member of Margaret Thatcher’s Cabinet of for be mentioned. Can we state with complete some time. accountability that certain territories were BRIEF Issue KYRGYZSTAN “Kyrgyz lands from the earliest days?” It is In the history of the Kyrgyz people there are not a fact that current “Kyrgyz territories,” land practically no manifestations of nationalism, and boundaries, always belonged solely to the particularly in its reactionary form. The ideology Kyrgyz as such. of the “Manas’ legacy” and the celebration of the 2200th anniversary of the Kyrgyz people, Communal ownership of land, especially with which obviously aimed at the minds of ethnic nomadic cattle breeding across the major Kyrgyz, did not yield any fi rm values in the part of current Kyrgyzstan, provides grounds society. In a multi-cultural and multi-ethnic for talking about the connection of the Kyrgyz Kyrgyzstan, where the Kyrgyz live surrounded people to only part of the territory, pastures by many other ethnicities, a concept to unite and separate plots. Moreover, the soviet the entire Kyrgyz nation – all Kyrgyzstanis, period, with its unique policies of national regardless of their ethnic background – based ownership, practically erased the hereditary, on so called civil nationalism seems more viable tribal, and clan connection to land as private and acceptable. The traditional way of life of property. If restoration of historically formed a multi-ethnic society, based on the principle private ownership, based on pre-revolutionary of interpenetration and mutual enrichment of legislation, is currently in progress in the Baltic cultures, has long been a fundamental factor for States and in some places within Russia, this the stability of society in Kyrgyzstan. Probably practice seems practically unreal in the Central this is why one of the most effi cient strategies Asian states, especially in Kyrgyzstan,. of former president Askar Akaev was his policy which stated that “Kyrgyzstan is our common In the life of Central Asia, in the self- home.” identifi cation of its peoples, the most essential, meaningful identity is the lowest, basic level of Religion is another potential direction for self-consciousness and public relations – the national identifi cation. Kyrgyz society is system of sub-ethnic family and tribal (or clan) considered to be Muslim, and certain political relations. Within the framework of traditional forces are trying to appeal to Islam as a Central Asian societies, prevalent even today, decisive trait of the Kyrgyz people’s identity. these relations play the decisive role in the However, throughout many centuries, the processes of socialization, of identifi cation, and territory of what would become Kyrgyzstan was of solving the majority of issues, especially in distinguished by the integrated coexistence of rural areas. In Kyrgyzstan, more then two thirds many peoples, confessing various religions of the Kyrgyz ethnicity live in rural areas, and – Tengerianism, Zoroastrianism, Buddhism, the remaining “urban” part is closely related Christianity, Judaism, Islam, and others. Since to villagers through close family relations and its independence, representatives of the various bonds. Such a system of relations and ties confessions that surged into the country have within the society is characteristic to other

1 “Great Tories of the past, wrote Howell, were nationalist in a special sense, in which we should also be ones. Not nationalist of the troublesome sort that constantly watch the foreign devils to blame them for all sins, but those who are simply conscious that each nation differs from the rest, and therefore comfortably exists only with its own institutions and specifi c peculiarities and that these specifi c peculiarities per se are an integral part of the national existence, and the people feel lost and anxious if they are lost.” D. The Conservative Tradition and the 1980s. Three Gifts of Insight Restored. L., 1980, P.6. -31- 3

№ Social and economic risks in Kyrgyzstan

nations living in the Fergana Valley, particularly “tribalism,” and viewed through a prism of so to Uzbeks and Tajiks, who have a peculiar called “archaic” traditional society 2. legend of their origin that is similar in content to the Kyrgyz Sanjira . In conclusion, I would like to mention a rather well known fact. Identifi cation of each individual The system of family and tribe/clan relations with a strong community (holding constant became the core of social structure. issues of economics, human rights, freedom Governments could be ruined, perish and of expression and etc.) signifi cantly improves reappear; dynasties easily replaced each the self-esteem of that person. In other words, other at the reigns of government in the the more stable and developed a society is, KYRGYZSTAN BRIEF Issue KYRGYZSTAN administration system; but the micro-structure the more stable is the social identifi cation of the society, i.e. fi rm corporations, remained and psychological comfort of its community almost without changes. Moreover, newly members, and, no matter how paradoxical established government entities eagerly took it might seem, the less the ethnic identity is the old structure under their protection, and expressed. carefully protected it from changes. Therefore, political and even social crises usually did not Thus, in gaining “outside” stability, gradually lead to internal structural renovation. identifi cation on the ethnic and territorial level are reduced, and professional and personal As a rule, clan corporate relations are interpreted identifi cation comes into the foreground; as a as a negative phenomenon in contemporary result, the feelings of anxiety disappear, and scientifi c and political literature. It is called gradually confi dence in the future appears.

SOCIAL AND ECONOMIC RISKS AND THEIR IMPACT ON THE POLITICAL STABILITY IN KYRGYZSTAN

Economic and social wellbeing is the basis of political stability in any country. In Kyrgyzstan unfortunately, these components of political stability are increasingly shattered nowadays by periodic, negative developments and occurrences. A decline in the authority of power, of the government, is apparent, which indicates and portends serious social problems. Gulasel Abylova *

The inability of the government to handle the population lives in poverty, and people living developments and sustain a relative balance of in conditions of extreme poverty constitute interests became evident in several contexts: 13.4%. A growing gap between rural and urban (1) the forced capture and retention of the areas is observed: approximately 80% of the Karakeche coal mine by Motuev, (2) incessant country’s poor population lives in rural areas. rallies either in approval or disapproval of the Outfl ow of qualifi ed specialists from the country appointment of offi cials, and (3) a short-term, is still under way: currently more then 500,000 yet a very symptomatic confl ict in Iskra village. citizens of Kyrgyzstan, mainly young people, are working in Russia, Kazakhstan, countries Social tension amongst the people is also of Western Europe and North America, and aggravated by various indicators of economic elsewhere. Moreover, their rate of return decline. Living standards remain low for the remains very low. majority of the population: more then 45% of

2 Different authors researched this problem in Kyrgyzstan during different times, including the doctor of legal sciences professor Nurbekov K.N., who attempted to show more objectively the retrospective genesis of the Kyrgyz society in his work “History of state and law in the Kyrgyz Soviet Socialist Republic.” In the conditions of the USSR, with the prevaling “Class” approach, it was practically impossible to conduct this type of serious scientifi c work. As for modern works on clan/corporate relations as one of the ways to national identity, such works remain mostly insuffi cient and one-sided. * Gulasel Abylova, a chief expert of the International Institute for Strategic Studies under the President of the Kyrgyz Republic, is a participant of the project “Policy debate and good governance”. This is the third essay in a series of articles by participants of the project -32- 3

Social and economic risks in Kyrgyzstan №

Escalation of social problems and the allocated for the country was not always weakening of the government’s role can be used for its intended purpose (as people explained according to the following reasons: who did not even intend to develop the country got hold of some of it). The need • Lack of a nation system of values. The to service debt signifi cantly decreased population of Kyrgyzstan has not yet formed the amount of resources available for the into a unifi ed group, consolidated on the government to allocate to the support of basis of co-citizenship. Ethnic, tribal and small and medium business development, territorial forms of self-identifi cation prevail, to start up state enterprises standing idle, which predetermines the government’s and to address social issues. weak infl uence as a platform for uniting BRIEF Issue KYRGYZSTAN the whole population. One the results of • Decline of economic indicators/growth the events of March 24th, 2005 was the of income discrepancies amongst the outright ignoring of laws and decrees by population. The economy of Kyrgyzstan the offi cial authorities, which is evident is still functioning, yet not growing. The from the seizure of the Karakeche coal ensuing poverty, lack of workplaces, growth mine, confusion around the appointment of of social and economic discrepancies governors 3 and rayon akims 4 , and other between the regions, and loss of general staffi ng issues. inclusiveness in the development of the economy create risks for the integrity of the • Rampant spread of corruption. Akaev’s national economy. There is no real support corrupted regime was one of the major for entrepreneurship. Small enterprises, causes of the events of March 24th. cooperatives, and other small unions of Though the idea of fi ghting against workers that do not require signifi cant corruption was one of the major points in expenses for technical equipment or the offi cials’ rhetoric, no cardinal changes power supply have signifi cant possibilities have been observed in either legislation to create new work places. However, this or practice. This problem holds economic sector lacks relevant normative and legal consequences: lack of effective laws and precedents, which also hampers economic regulation for obtaining permission to carry growth. out business activities; lack of legal and As the rural economy fails to provide the effi cient channels for dialogue between the population with food, the majority of food government and private business, leading and agricultural products are imported from to the failure of the country to achieve neighboring countries. Rural producers are the level of economic growth suffi cient to left without state support. Particularly, the ensure the servicing and repayment of the supply of fuel and lubrication materials is national debt. not regulated, thus leading to considerable interruptions in its supply to producers Resources meant for improvement of the during the peak season. Provision of administration system and development farming equipment and realization of of democratic institutions were used markets are not defi ned. ineffi ciently, thus decreasing the earlier estimated return of the foreign loans. When Social tension amongst the population providing assistance, insuffi cient attention was accumulated during the rule of the was given to the level of preparedness previous government as well: ineffi cient state of the recipient state and its institutions administration, double standards of principles, to receive the assistance and to use it and dissatisfaction of the population with the adequately. Due to an opaque political social and economic policies of the government system, ineffi cient use of foreign loans was actually lead to the events of March 24th. permitted, the money of foreign tax-payers Ineffi cient state institutions, massive and costly

3 Head of regional (oblast) state administration 4 Head of district (raion) state administration -33- 3

№ Social and economic risks in Kyrgyzstan

administrative territorial divisions, unstable access to services in the social sphere – in legislation, rampant corruption, and a race for health care, education, and culture (they revenues among authorities became the major should at least be free of charge at the level obstacles for the development of the national of socially guaranteed standards, stipulated by economy or solutions to social problems. legislation). It is also necessary to guarantee A year has elapsed since the revolution, and everyone with basic standards of housing. it seems that the time has come to sum up Only in this case will it be possible to realize the results. However, the future prospects of the necessary quality of work force, relatively the state are not yet defi ned. The authorities equal start up opportunities for young people, have not started to elaborate the county’s and basic living standard and social protection KYRGYZSTAN BRIEF Issue KYRGYZSTAN development strategy. Political intrigue is of the population, as well as to alleviate social present in the actions of the offi cials, which tension. further exacerbates the general instability in the country. The events in Iskra village showed that the decision-making procedures used by the In order to improve the existing situation in some government give more causes for further way, it is necessary to fulfi ll certain conditions: escalation and fomentation of confl ict then for its prevention. The government should take First, for further development of the country, decisive, possibly even strong measures to tougher, more responsible and decisive eliminate similar incidents. actions need to be taken by its management. This step could rehabilitate the people’s trust In order to achieve long-term political stability in the government. Special attention should and integration into the world economy, the be devoted to limiting the participation of the government of the Kyrgyz Republic should take political and economic elites in the “pie-sharing.” steps to reform its political system. In particular, It is necessary to make a tradition of regularly it is necessary to conduct constitutional reforms reporting on and holding accountable offi cials and transform the current presidential system for any actions or inaction. of governance, characterized by insuffi cient accountability and transparency, into a more Second, there is an urgent need for public open, accountable form of administration, participation in budgeting; this will make the based on public participation. government accountable, and raise the public trust the government. The solution lies not only Moreover, political changes should be used to in strengthening the legal basis for fi ghting ensure complete transparency of foreign aid against corruption, but also in improving the distribution. It is necessary to establish periodic political system, as well as increasing the public reporting of organizations on how various transparency of state and local budgets. foreign assistance resources are used, and with what results, as well as political responsibility The strategy of the state policy on employment of the government for ineffi cient use of foreign should be aimed at preventing the growth of aid. This step would require readiness by the unemployment, and at alleviating the impact of government to adopt strategic decisions. factors that cause unemployment and increase social tension. It is necessary to motivate young The social sphere directly infl uences the pace specialists living in rural areas (with higher and quality of national economic growth. wages, housing, land plots, etc) to stay there Furthermore, this infl uence will only increase. and not leave for cities or neighboring countries A high level of citizens’ material and spiritual in search of jobs. Development of local self- wellbeing, a dominating status of the middle governance would support improvements in the class in the structure of the society, and a effi ciency of local public services provision. realization of social partnership principles will determine the long-term economic prospects With the existing sharp income gap amongst of the country, as well as its social and political the population, it is crucial to preserve general stability.

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