WikiLeaks Document Release http://wikileaks.org/wiki/CRS-97-690 February 2, 2009

Congressional Research Service Report 97-690 : Recent Developments and U.S. Interests Jim Nichol, Foreign Affairs, Defense, and Trade Division

June 18, 2008

Abstract. This report examines Kyrgyzstan’s uneven political and economic reform efforts. It discusses U.S. policy and assistance for democratization and other programs. Basic facts and biographical information are provided.. http://wikileaks.org/wiki/CRS-97-690 (FREEDOM SupportActandotherFunction and theAdministrationrequested $29.61millionforFY2009 million inFY2008, (FREEDOM SupportActandagency funds aidbudgeted forFY2007 was$54.41million Foreign Soviet successorstates. Act andagency funds),withKyrgyzstan ranki budgeted aidtoKyrgyzstan forFY U.S. Policy Summary 1 destruction. trafficking inpersons,narc troops armed forcesandborder other focuses, as arethe bolstering theof capabilities democracyStrengthening and combating are corruption reforms. andeducational healthcare primary such as economyagricultural-based issues addresssocial andto Kyrgyzstan’s improve to aims security and assistance U.S.Department of State. Implications forU.S.Interests includeCRSReportRL33458,products and biographical informationare provi facts It discussesU.S.policy andassistance for Cumulative U.S. humanitarian andtechnical humanitarian U.S. Cumulative According totheBush Administration,U.S. This report examines Kyrgyzstan’sThis reportexamines uneve Kyrgyzstan: RecentDevelopments 1

Foreign Affairs, Defense, and Trade Division Foreign Affairs,Defense,andTrade Specialist inRussianandEurasianAffairs Congressional Budget Justification andU.S.Interests otics, andweaponsof mass tocombatterrorism and , by Nichol. Jim 1992-FY2006 was$850 million (FREEDOM Support Jim Nichol Central Asia:RegionalDevelopmentsand ot and democratization ded. This report mayded. Thisreport 150 aid, not including Defense and Energynot including Defenseand aid, 150 ). Foreignestimated $32.63 aidwasan ng third in such aid per capita among the capita ng thirdinsuchaidper n politicaland economic reform efforts. for ForeignOperations FY2009. her programs. Basicher be updated.Related Updated June18,2008 Order Code 97-690 http://wikileaks.org/wiki/CRS-97-690 Campaign AgainstCampaign Terrorism to the Contributions corruption andbolstertheruleoflaw. twoyearsthehelp next itcombat to Kyrgyzstan toprovide$16millionover 2008, theMCCsigned an agreement with developmentaid.In March full-scale for criteria the ofmeeting “threshold” acountryapplyas onthe forassistance 2005 thatKyrgyzstan to waseligible records,announcedinlate development withpromising U.S. aidtocountries tion (MCC),createdin2004toprovide provided. generation.financing, Secu andelectricity in emphases governance. Other focus onstrengthening the legislature, political parties, and local criminal justice, Department orMillenni would provide $150milliontoKyrgyzstanwould in“t sides issued a jointstatement States that Ganci would remain open and that the United to closeGanciunless the United Statessoonag October 2005thatoperationsat Donald Rumsfeldinlate inAfghanistan, hepled supporting operations Organization (SCO;seebelow)inearly Ju Ganci.Although Bakiyevat hadendor andthen Uzbekistan in (K2) airbase Khanabad “primary hub”fortrans-shipping personnel, 2002. TheDefenseDepartmentre support toAfghanistan beganMarch in andwar Ganci), firefighter J. Peter facilities after the late New YorkCity international airport (and named the U.S. Manas the at field air the and upgraded U.S.militaryThe Afghanistan. repaired for counter-teairspace to useKyrgyz approved aU.S.request United Statesand 2001, attacksonthe immediately after the September 11, almost support forthewaronterrorism The Millennium Challenge Corpora- The KyrgyzThe its government declared In mid-2005,afterUzbekofficialsimposedmo rrorist operations in operations rrorist um Challenge funds). U.S. assistance proposedforFY2009 will July 2005and visiting Secretar Ganciwouldcontinue. In clude support foragribusiness, ported inlate 2003 that theairbaseattimewas CRS-2 sed acallby theShanghai Cooperation ly 2005 to consider closing regional bases ly 2005toconsiderclosing regional equipment,andsuppliestoAfghanistan. rity andhealthcareassistancealsowillbe Legislative Speaker election in July 2005. presidentin March 2005,and he wonpresidential a legislature appointed him prime minister and acting a legislative run-off in March election 2005.The then ledthe opposition People’s Movement, but lost culpable in the deaths of protesters and ousted. He 2000-2002, he was prime minister, but was held region, and in 1997governor of Chu region. From State Property Fund, in 1995 governor of Jalal-Abad regional soviet. In 1994,he became chairman of the and then chairman(council), of the Jalal-Abad committee, then chairman of the city soviet secretaryKok-Yangakthe of city Communist Party trained as an firstbecame engineer. he In 1991, Biography: Karabayev; Minister: Political Leaders: Political est., purchasing power parity). GDP is about ( $2,000 Product: Domestic Gross the former and 170,000in China. About 420,000ethnicKyrgyz reside elsewhere in Uzbeks areamajority in southern Kyrgyzstan. ( Uzbeks, 1% Uighurs; 0.4% Germans, and others Ethnicity: million ( is5.36 Dakota. Population South of theabout size Population: and Area Kyrgyz Statistics Committee Statistics Kyrgyz ordereditsclosure,U.S.flights increased otal assistance and compensation over the otal assistanceandcompensation over reed tonewterms.In July 2006,the two ged tovisiting then-Defense Secretary re limits on U.S.flightslimits attheKarshi- re The World Factbook, Igor Chudinov; 65.7% Kyrgyz; 11.7% Russians; 13.9% Defense Minister: Bakiyev wasborn in 1949and was Kyrgyzstan: Basic Facts April2006,Bakiyevthreatened yin ofStateCondoleezza Rice

trade liberalization, micro- liberalization, trade President: : Aytibay Tagayev; Land areais 77,415sq. mi.; The World Factbook Foreign Minister: $10.4 billion; percapita ; Kurmanbek , 2001est.). Ethnic mid-2008 est.). Bakytbek Kalyev. Ednan , 2007 Prime http://wikileaks.org/wiki/CRS-97-690 liters ofaerialrefueling tos Coalition troops,andnearly 40millionkilogram Afghanistan ...In thepastyear, Coaliti Ganci airbaseservesasa 1,200 at the airbase. The U.S. Spanis for theGanciairbase.U.S.and National forFY defense authorizations of virtually all tents and the building of aircraft maintenance, medical, and other facilities. replacement the with posture,” reportedly airbase Ganci “asustainment movingtoward is early the 2008that a Foreign PolicyForeign andDefense year,”next subjectto 4 3 2 Kyrgyzstan have wrangled andUzbekistan mutual adherence to the1996Kyrgyz-Uzbek visiting PresidentBakiyev and Karimov issu Andijon and asasafehaven after the “terrori of operations for“terrorists” (including c cityUzbek ofAndijon. Uzbek officials mainta hadcr who refugees evacuate about450Uzbek disputes. Tensionescalated “Arab countries,SouthKorea, andTurkey.”Japan increas Healsourged regional andworldpowers,especially “Ru partnership” withRussiawasa“key priority.” Treaty Organization (seebelow).Among othe Security Collective andthe Turkmenistan) except states, Asian Central the and Russia, participation intheShangh common security.” Toadvanceregional respectof forsovereignty,principlesthe andon China —“built territorial integrity, and emphasized close ties withitsneighboring st Kyrgyzstan hadnoplanstosendpeacekeeperseithercountry. a spokesman April 2004thepresidential Kyrgyzstan that visit U.S. wasready Iraq sendpeacekeepersto to in andAfghanistan, then-Foreign MinisterAskarAytmatov told tocease“grossUnited States vi Kyrgyzstan’s Legislative (lower Assembly chamber) issued a statement calling forthe Kyrgyzstan: SteadfastAllies Coalition Airbase OpenSource Center. U.S.Embassy, . Ambassador MarieL.Youvanovitch. U.S. Embassy, Bishkek. Kyrgyzstan’s relations withUzbekistan have In January 2007,PresidentBakiyev stated afterU.S.-ledcoalitionforcesbe Just , July 14,2006. , July Central Eurasia: Daily Report nnual land lease payment for the airbase was $17.5million.The congressional approval. , May 14,2008. Joint StatementtheUnited StatesandtheKyrgyzRepublicon upport operationsinAfghanistan.” in mid-2005whenKyrgyzstanto permittedU.N.emissaries ai CooperationOrganization “critical logistics hubfortheentireCoalitioneffortin “critical Pakistan,India, andothe Ambassador toKyrgyzstan stated inMay 2008that the olations” ofinternational 2008 andFY2009 legislate constructionfunding h troopsandpersonnel itizens ofKyrgyzstan) who invaded and attacked CRS-3 on forcesatManastransportedover118,000 gan ground operations inIraq inMarch2003, overborderdelineati ed tradeandeconomic ssia, China, the European Union, Germany, ssia, China,theEuropean sts” fled.Perhapssomewhateasing tensions, VicePresidentCheney 2003 during aJune ates — Kazakhstan, Uz ates —Kazakhstan, Treaty onEternalFriendship. During 2008, ed astatementinOctober2006reaffirming nd thedefenseministerannouncedthat Hecalledfor“benef integration, hecalledforstrengthening 2 ined thatKyrgyzstan had servedasabase s ofcargo, andprovidednearly 70million The Kyrgyz in The stated minister finance ossed thebordertofleefighting inthe r countries, he stressed that“strategic stressed he r countries, been marked by trade,border,andother , January 12, 2007,Doc.No. CEP-950201. January , that his“blueprint”forforeign policy rs inSouth-EastAsia.” law. Although Kyrgyzstan’slaw. Although (SCO; composedofChina, 3 reportedly numberabout on andwater-sharing. icial coopera The United States and The United cooperation withthe bekistan, Tajikistan, tion” with 4 http://wikileaks.org/wiki/CRS-97-690 Department designated theIMU asaFore and otherterroristgroups wereanincreasing escaped). (some defeated After the Kyrgyzthis, IMU the that claimed defense minister allegedAbout adozen IMU membersinvade theybefore wereabletoca 2003, reportedly allegedly setoffbombsinBishkek andOsh. Kyrgyz forcesdefeatedtheguerrillas by Kyrgyzstan Uz (othersinvadedUzbekistan). October 1999.In August 2000,areported500IM and received airsupportfromUzbekistan secu to Another possibleaimmay havebeen Uzbekistan. in allegedly anIslamic asaspringboard create forjihad to state aimed (IMU)and othergroups fromTajikistaninva Asia, andelsewhere.About8-12Kyrgyz participat has (PFP) in1994and to2008 work out volunteer armedforces,andBakiyev created lowered to12months.Adefe minimumageThe ofconscription has been ra remains the language ofcommand.Most language Russian Kyrgyzthe Most female. and Russia in training receive officers conscripts, though someofficersareRussians. troops ( also about5,000borderguards are There branch inBishkek afterSeptember11,2001. cooperation betweenintelligence agencies of Center —abody createdatformerRussianPr alsoappearsaimedatcountering U.S. it purpose ofthebasepurportedly istocombat Russian troopsostensibly alsoformpartof near airfield Kant for useof the Soviet-era 2003withthesigningpresence inSeptember of 15-yeara bases remainunder accordsigned in 1999, when Russia handedovercontroltoKyrg Kyrgyzborder troops(mostreportedlywere consultations onmilitaryof case supportin (CIS) Treaty CollectiveSecurity (CST Kyrgyzstan andChina. States United sign andto balance terrorism, securityties receive combat with to the to benefits, assistance races where they “lost” only by a few votes. The U.S. State Department judged the judged races where they only “lost” by Department State TheU.S. a fewvotes. candidates winning less than10% Developments andEconomic Political Areported 800guerrillas belonging tothe Kyrgyzstan’sarmed forcesnumbera Kyrgyz-Russian Bakiyev seekstobolster A February 2005, legislative election A Februarylegislative 2005, The Military Balance military reforms. Kyrgyzstan joined NATO’s Partnership for P , February 2008). Most of the troops are ethnic Kyrgyz, February 2008).Mostofthetroopsareethnic nse law passed inApril2008 ca ed inseveral PFP exercises of seats, although there ofseats, late October2000.In 2002and2003,theIMU CRS-4 , 3,500 police troops, and 1,000 National Guard , 3,500policetroops,and1,000National ) in1992and1999,whichcallsformutual and NATOinfluence.TheCIS Anti-Terrorist bout 10,900 active ground and air force troops. bout 10,900activegroundforce andair ign2000. TerroristOrganizationSeptember in troopsserveinU.N.observerforces. militaryis purchasedfromRussia. equipment ed theCommonwealth of Independent States’ the capitalofBishkek (andnearGanci).The outside aggression. a CSTrapiddeployment force.Although the d fromTajikistaninMay 2006butweresoon regional terrorisma bekistan provided airandothersupport, (and Marchrunoff)resulted inopposition ded Kyrgyzstan inJuly-August 1999.They an inter-departmental commission inJune esident Vladimir Putin’s urgingPutin’s tofacilitate esident Vladimir Kazakhstan andexpelle Kazakhstan 1997.Russiafurtherrampedupitssecurity citizens) guarded theChineseborderuntil rry outaplantobombtheU.S.embassy. Kyrgyzstan thebombersinMay arrested the member-states member-states the terrorist Islamic Move national security threat. TheU.S.State threat. national security a 15-year basing accordwithKyrgyzstan About one-third of thearmedforcesare yzstan.However, threeRussianmilitary re drug trafficking routes.Kyrgyzstan ised to20andthetermofconscription relations toensure economic and trade U and other guerrillas again invaded U andotherguerrillas in theUnitedStates,Central reportedly weremany close lls forthecreationofall- Several hundredRussian nd defend CIS borders, — setuparegional ment ofUzbekistan d theinvadersin eace http://wikileaks.org/wiki/CRS-97-690 per cent of[polling stations observed], process.” Theobservers “assessed the organiza the furthe for short ofpublicexpectations a numberofOSCEcommitments....Theelec observersfromtheOSCE election, the on report won 8seats,butthatAtaMekanhadbeendis Party Democratic had Social the 71 seats, Supreme Courtdecision.Afte percentage was tobe calculated, leading tocontroversy that was eventually settled by a gained atleast0.5%ofthevoteineachre stated provision Another registered voters. ofall vote ofthe 5%ormore received it unless seats aparty that win stated not could constitution established a 90-seat legislature elected law byelection partynew lists.A opposition partiesfromcarrying out set newelectionsforDecember16,2007,amove democratic standards.Oppos election as somewhat improved over previous ones butstillfalling seriously shortof 5 president.” c asplacing an“excessive draft assessed the constitution. Anadvisory body to the People’s Party. Hethenpushedthrough a fewdays laterthat hewa constitutional changes sincethe adoption lose andthenwinbacksomepresidentialpowers. resulted inthe passageof successive constitutions, withPresident Bakiyev appearing to ofpowers balance the over branches andlegislative executive the between conflict it raised concerns about“problematic”vot OSCE statedthat“fundamentalcivilandpo about 2.0millionvotesina7-personpresid Kyrgyzstan toeasily democratize. that governmental corruption and institutional weakness make itdifficult would for might leadtheregionAsia, inde Central of that thecountry, becauseofitsslightly wide They Asia. Central in first suggested andthe Georgia andUkraine, in those after Eurasia, on March24,2005,Akayev fledthecountry. When including inthesoutherncityOsh. of theyPresident Akayev’s o resignation, and region-based civil war. argued thatastrong presidency wasneededto Constitutional SituationintheKyrgyzthe Republic The European Commission The forDemocrac Twelve parties were registered fo Twelve parties In lateSeptember2007,thepro-Bakiye Opposition politicianandacting presiden Some observershailedthiscoupastheth 5 The day after the referendum was hel Thedaywas referendum afterthe s setting upandsupporting anewpoliticalparty, theAkDzhol ition party-led protestorscalle r the election, the CEC announced that Ak Dzhol hadwon Dzhol Ak that announced r theelection,CEC effectivecampaigns durin y Commission). Through Law(Venice CRS-5 e tabulation.In NovemberandDecember2006, Council ofEurope,theVeniceCommission, a snapreferenduminOctober2007ondraft prevent thecountry from descending intoclan- and r theDecember2007election.Thenew of the2003constitution.Bakiyev announced gion. the Thisprovisiondidnotspecifyhow mocratic reforms. Otherobserverscautioned won 11 seats, and theCommunistParty had won 11seats, ccupied severallocalgovernment buildings, r scope of civil liberties compared totherest liberties r scopeofcivil they stormed presidential offices inBishkek r consolidation ofthe democratic election qualified basedonthe0.5% litical rights weregenerally respected,”but ential electionheldonJuly 10,2005.The thataparty couldnotwinseatsunlessit with implications fortransparencywith implications and oncentration ofpowerinthehands oncentration t KurmanbekBakiyevof received88.71% , December 17,2007.In MayBakiyev 2008, tions were amissedopportunity,tions were falling ird so-called“democ tion ofthecountasbadorvery badin33 v constitutionalcour d, Bakiyev dissolvedthelegislature and assessed the race as “fail[ing] tomeet assessedtheraceas“fail[ing] many preventing observersviewedas d foranewelection and then- g theshortperiodoftime. ratic revolution” in ratic revolution” t invalidated all t invalidated rule. In itsfinal Opinion on http://wikileaks.org/wiki/CRS-97-690 Reduction and Growth Facility—Staff Report Press ReleaseNo.08/44,March 6,2008. highly indebted. debtduring thepasttwoyears,and sothat participation. TheIMF stated public oppositiontobeing termeda“poor”c Kyrgyzstan toparticipateinitsHighly I TheInternati occurred. rescheduling has budget, contributing by late 2006toexternal Organization inlate1998.Fore development. U.S.supportcontributedto energy,earth mineralreserves, rare of farms,industries,housing, foreignprivategrowthinvestment.and Kyrgyzstan leads Central Asia inthe privatization 40% ofthepopulationlivesbelowpoverty elsewhere, andreportedly remits$700m Up to products. one one-half oftheworkforce.Cotton,tobacc earnings. AgricultureGDP andexport account byyear. theendof energy importsduring thesecondhalfof2007c transit, andtoalesserdegree, de trafficking, including by improving assistancevictims. The to c governme the that stated report However, the officials facilitated,victims alleged orweregovernment complicit in,trafficking. that and political parties. Human traffickingunions, remained a persistent problem, and and vandalizing property, and incarcerated politicalopponents,re that judges wereopentobribes.The the judiciary. branch Lawyerswith at times interfered and citizens commonly believed salaries.increased Other police were prosecuted forpolice brutality. The executive problem, butthegovernment tooksomesteps charges toarrestpersonsand times employed torture, beat detainees and prisoners toextract confessions, and used false Practices for2007 final results. reported preliminary between and consistency” “questionable was there that and counting, theyinvalid, stated that there were “serious irregularities and inconsistencies” invote- accountability oftheprocess.”Although theobs 8 7 6 Parliamentary Elec IMF. IMF. IMF. OSCE. Office forDemocratic Institutions andHuman Rights. Kyrgyz GDP reportedly grew 8.2% in Department’s State U.S. the According to Kyrgyz Republic:FifthReview Under theTh Statement ofanIMFStaff Mission at the C 6 8 tions, FinalReport (released on March 11, 2008), Kyrgyz police and security forcesat and (releasedonMarch11,2008),Kyrgyz police -fifth of the labor force (500,000 people) works inRussia and 7 Gold production still isthemostsignificantproduction industrialsourceof Gold solicit bribes for their release. Police corruption wasrelease.solicit acorruption bribesPolice major fortheir in late 2007thatKyrgyzstan and retail outlets. Kyrgyzstan hassurplushydroelectric andretailoutlets. restricted freedomofasse ign loans have been a significant factor in Kyrgyzstan’sfactor significantign loanshavebeena stination fortraffickedpersons. stricted freedom oftheme stricted , April24,2008. Country Report ndebted PoorCountryndebted debtreliefinitiative,but CRS-6 and tourismpotentialthatcouldboostits illion orillion more to Kyrgyzstan , November 2007. Kyrgyzstan’s Trade admission intotheWorld onal Monetary Fund (IMF) in2006invited the country nolonger wouldbeclassifiedas o, wool, and meat are majoragricultural meat o, wool,and ountry supposedly ledauthoritiestoreject 2007, but increas line. Crimeandcorr nt had made significant efforts toaddress efforts nt hadmadesignificant debt of about $1 s for amajorportionofGDPandemploys to address it, including prosecutionsand including it, to address onclusion ofaVisittothe Kyrgyz Republic ontributed to an rise in inflationto20% ontributed toanrise ervers fell shortindeclaring theresults ree-Year Arrangement Underree-Year thePoverty Country ReportsonHumanRights stated that the government at times mbly by harassing NGOs,labor hadably managed its economy dia byjournalists assaulting Kyrgyz Republic Pre-Term Kyrgyz Republic ing prices for food and .26 billi uption stifleeconomic ountry wasasource, each year. Over on. Some debt ,