WikiLeaks Document Release http://wikileaks.org/wiki/CRS-RS22295 February 2, 2009

Congressional Research Service Report RS22295 Uzbekistan’s Closure of the Airbase at Karshi-Khanabad: Context and Implications Jim Nichol, Foreign Affairs, Defense, and Trade Division

March 29, 2006

Abstract. In late July 2005, Uzbekistan terminated an agreement permitting U.S. forces to use the Karshi-Khanabad (K2) airbase in the southern part of the country to support coalition military operations in Afghanistan. U.S. forces left the base by late November 2005. Major concerns include whether cooler security ties with Uzbekistan will set back the U.S.-led Global War on Terrorism and other U.S. interests in Central Asia. Related products include CRS Report RS22161, Unrest in Uzbekistan. http://wikileaks.org/wiki/CRS-RS22295 Summary 1 (IMU)of Uzbekistan whowerefighting along provided security guarantees and agreed that terrorists belonging tothe Islamic Movement Khanabad. In States and United the exchange, Karshi of Afghan towns bordernearthe troops touseaSoviet-era ai October 7,andthe aircampaig on was signed (although allowedsomespecial theUzbeks refueling orair attack air than rather missions search-and-rescue and on humanitarian negotiations, including forU.S.security a in Afghanistan. reporte (OEF) Uzbekistan in ordertousetheirairstripsforwhat states Asian securityand other Central several accordswith (SOFA) of forcesagreements Uzbekistan Agreement Basing TheU.S. with Introduction: had beencarried outbeforeSept.11,2001. Forces The State Department. The Uzbekistan report may beupdated. onTerrorismandothe the U.S.-ledGlobalWar 2005. Majorconcerns include whether cooler coalition military operations inAfghanistan. U.S.forces left the base by late November (K2)airbaseinthe the Karshi-Khanabad CRS ReportforCongress Karshi-Khanabad: ContextandImplications The U.S.-Uzbek SOFA providedfor SOFA use The U.S.-Uzbek 2001, terroristattack 11, After theSeptember In an terminated July late 2005,Uzbekistan , RAND, 2005. US-Uzbek Some andAl Qaeda classified Taliban against the cooperation Uzbekistan’s ClosureoftheAirbaseat Congressional Research Service , by Nichol. Jim Received throughtheCRSWeb Foreign Affairs, Defense, and Trade Division Foreign Affairs,Defense,andTrade Specialist inRussianandEurasianAffairs Fact Sheet, Relatedproductsin rbase (termedKarshi-Khanabad Nov. 27, 2002; became the OperationEnduringU.S.-led Freedom Jim Nichol nd assistance pledges and foraprimarypledges assistance focus nd dly madeanumberof operations missions). The U.S.-Uzbek SOFA operations missions).TheU.S.-Uzbek n against Afghanistan began anhourlater. southern partofthecountry tosupport side Taliban and Al Qaeda forceswouldbe Al and side Taliban of Uzbek airspaceandforupto1,500U.S. of Uzbek security tieswithUzbekistanwillsetback clude CRS ReportRS22161, CRS clude

˜ agreement pe agreement r U.S. interests inCentralinterests Asia. This U.S. r Supporting Air Supporting Air

The Library ofCongress s, theUnitedStatesnegotiated status or K2) 90 miles north of the or K2)90milesnorthof rmitting U.S. fo rmitting U.S. and Space Expediti requestsduring SOFA Updated March 29,2006 Order Code RS22295 rces to use rces to Unrest in onary 1 http://wikileaks.org/wiki/CRS-RS22295 10,000” Air Force sorties.Hestat Air 10,000” in leeway ontheuseofairfields,airspace and soil. U.S.-Uzbek Bilateral Relations: Policy Options, pledge toboostmilitary cooperation,toinclude“r 2002 U.S.visit, aDeclaration on Strategic Partne in theevent ofathreattoUzbekistan’s secur Manas International Airportin Kyrgyztan. the accessat airfield seekalternative to States United the spurred further SOFA Uzbek party witha180-day notice.According to SOFA wasopen-ended,butincl million inmilitary constructionfunds(FY2005 Emergency S funds fortheuseofK2through Decem a 2003U.S.“reimbursementofservices suchcomp that use ofK2andcomplained for compensation ample hadexpected officials Uzbek Among strains, other strains. these “revol democratic wasfostering States United a violations rights human because ofUzbek relationsbecamestrained in2004- Uzbek flights departedandlandedatK2sin personnel weredeployed c there,excluding Kandahar, andotherlocations average ofabout60passengersan and carried intelligence functions.TheAirForce reported combat searchand operations, targeted. 6 5 4 3 2 endorsed U.S.-led military thatjoinedthe“coalitionofwilling” inFebruary-Marchstate that 2003 Asian Freedom. RAND, 2005. was thecriticalrefueling andlogistics nexus.” ... became thekey tomaintain corridor air The cargo atBagram, theC-17’s wouldfly to[K2], refu Iran,of north spantheCaspianSea Azerbaijan, the Black Seawith U.S. tankers flying from Roma corridor toAfghanistan forhumanitarian ai Holland, Services Committee. Subcommittee on Emerging Threats. operations, Uzbekistanmore easily accommodated special operations.SeeSenateArmed Kyrgyz Republic According to RAND, K2 provided some unspecified operational assistance for Operation Iraqi Operation for assistance operational some provided unspecified RAND,K2 According to U.S.Embassy inUzbekistan. DeborahE.Klepp. According toLt. Col. KurtMeppen,theterms AnOct.12,2001,U.S.-Uzbekcomba statementon Anatomy ofACrisis Air Force Secretary James Roche has stated that K-2’s missions were“special K-2’s missions that hasstated ForceSecretaryAir Roche James Emerging StrainsinU.S.-UzbekRelations. Mar.12,2002.Uzbekistan also provided a base for German units atTermez and a land 2 No U.S.basemonetary , National Defense University, 2004. Perhaps in contrast to the morethe , NationalDefenseUniversity, visibleto air contrast 2004.Perhapsin The U.S. Needs a Base Where?How theU.S.EstablishedanAirBasein Base a The U.S.Needs , Silk RoadPaper,February 2006. operations in Iraq (Kaz Press Release in Afghanistan, andthat rescue, andtheaterlift,” es that “U.S. aircraft would ov es that“U.S.aircraftwould uded a provision that itcould that uded aprovision reimbursements werespecified. ce late2001,according Embassy. totheU.S. ber 2002. Congress inMay 2005approved$42.5 ” payment of$15.7millionincoalitionsupport d via theFriendshipBridge atTermez. CRS-2 ity. During Uzbek President Islam Karimov’s Mar. ensation wasdelayed a , Sept. 7, 2005. Lt. Col. Meppen mentions, Sept.7,2005.Lt.Col.Meppen “over 4 nd President Karimov’s growing fears that the that growingfears Karimov’s nd President of the SOFA were “vague,” permitting broadU.S. 2005. A partial U.S. aid cutoffinFY2004 aid U.S. 2005. Apartial ontractors. More than 40,000 U.S.AirForce ing combat capability inAfghanistan, and[K2] then crossintoCentralAsia.... After offloading some reports, problemsinnegotiating the some reports, e-equipping theArmed Forces”ofUzbekistan. utions” in Soviet successor states Soviet added in to utions” rship reaffirmed thisvagueU.S. a pledgeand about 50 tonsofcargo perday toBagram, el, and ... retrac[e] the originalroute.... ingressel, and...retrac[e]the nia, crosstheCaucasus statesofGeorgia and in early 2005thatC-130sflying out of K2 ting terrorism called for bothsidestoconsult tingterrorismcalled akhstan joinedlater). Uzbekistan wastheonly Uzbekistan Central about 1,000Army andAir Force Statement by General Charles R. Statement byGeneralCharles erfly Europe,refuelmid-air over other sourceshavementioned upplemental Appropriations, nd inadequate,including be terminated by either 3 Thedurationofthe 6 However,U.S.- 5 http://wikileaks.org/wiki/CRS-RS22295 to reimbursethecountry for$168millionspenttosupportK2. ove the accused theUnitedStatesoffomenting andarenolonger necessary They stable. is Afghanistan since also environment, the at K2shouldendbecause operations that U.S. United Statesforsupporting therefugee move,Uz in Tashkent requesting thatU.S. useofK2 flown toRomaniaonJuly 28,2005, Uzbekistan the bases.However,dayrefugees after closing them,andsomeobservers speculated that Central AsiancountriesthathostedU.S.a get into andstrengthen its presenceinCentral Asia.” subsequently accusedNATO ofcomplicity inevents disproportionate force by theUzbek security forces.” inlate MayNATO issued astatementexcessive thatit“condemn[s] and thereporteduseof mid-June onnight flightsmid-June andonC-17a restri to contribute appearedto Uzbekistan otherinvestigation U.S.criticism of human ofthe rights killings.and abuses This in civilians —theStateDepartmentsoone witnesses andothersclaime cautiously tocivilviolenceinMayUz in 2005 was delayed by increased P.L.109-13, H.Rept.109-72)forupgrading runw 10 9 8 7 Germany (thecountry is saidtopay 3milli U.S. troopsweretransiting through the base because including Termez, at role German endthe to threatened reportedly Uzbekistan officialswhowereimplicated to Uzbek overflight privileges wouldbe Sweden inmid-NovemberBelgium,and that their basing Spain, Netherlands, and (to supportAfghanistan) at K2. The Uzbek government reportedly also informed contingents’ presenceinthosecountries.” onthe deadlinedecide forthe use ofthe temporary infrastructure and fortheir military Turkmenistan) that calledforcoalitionmemb regional security body composedofRussia,Ch during ameetingissued ofth declaration CENTCOM and the Air ForcedecidedinApril 2005thatalternatives might toK2 benecessary. nations paid...forAmerican troops tostay onth extract monetary concessions,particularly after Meppen. Hestatesthat“U.S.negotiators were the Uzbeks2003, submitted sixdraftleasesforK2,according toLt.Col. late in Beginning Los AngelesTimes Washington Post

FBIS The Termination oftheSOFA.The On November 21, 2005, the United States o the UnitedStates On November21,2005, Uzbekist of On Julypresidents 5,2005,the , September 19, 2005,Doc.No. CEP-27220; , July 15,2005,p.A19. , July , June 13,2005. , June For details, see CRSReportRS22161, strains inrelations. d that the Uzbek government killedhundredsofunarmed government d thattheUzbek suspended, after theEuropean Although theAdministr nd otherheavy cargo liftoutofK2. CRS-3 e Shanghai CooperationOrganization (SCO;a nd other coalition bases nd othercoalition 9 Despitesigning the declaration, none of the ctions placed byplaced governmentctions in Karimov the in violence in Andijon. In January 2006, January in violenceAndijon.In on eurosperyear forbasing privileges). , anddemandedmorefo end within six months.Besidessix angerwithin atthe end whofledfromAndijontoKyrgyzstan were mystifiedbyUzbekistan’s repeatedattempts to ndorsed internationalcallsforacredible ers supporting operationsinAfghanistan “to they attractinterna explaining ... that in other theaters,sovereignother in explaining ...that 7 bekistan’s city ofAndijon— where many ina, and all the Central Asian states except states Asian ina, andalltheCentral eir soil.” After rejecting these draftleases, these eir soil.”Afterrejecting delivered ademarchetotheU.S.embassy rthrow of thegovernment andoffailing rthrow fficially ceasedanti-terrorismoperations The Independent(London) an, Kyrgyzstan,an, and Tajikistansigned a the states were seeking higher rents for rents higher wereseeking states the bek legislators inlateAugust contended aysand taxiwaysproject atK2,butthe in Andijon and warned that“itistryingand to Andijon in FBIS Press Release , July 5, 2005, Doc. No. CEP-8002.No. 5,2005, Doc. , July Union deniedtravel visas 10 tional terrorism,damage , May 24, 2005.Karimov ation initially responded called forimmediately reign assistancefrom Unrest inUzbekistan , Sept.30,2005. 8 . http://wikileaks.org/wiki/CRS-RS22295 Globalization, Sept. 20,2002. government’s Uzbek equipment andcontractpersonnel)inthere military facility withfewornoU.S.tr beso could there that hasconsidered OBC existing bases in Kyrgyzstan andUzbekistan itsMayin 2005Report, (OBC), Commission defense ministerinlate2005by anintelligence official. party. as either wasreplaced to Gulomov ofathreat event the in defense consultations calls forbothsidestohaveaccesseach In mid-November2005,RussiaandUzbekistan European UniononOctober3imposedarms equipment andtraining thatbolstersKarimov’ Uzbekistan solidified ties withRussia and Chinapredominant as suppliers the of to “ourallieswho were turning ablindeye.” to be involved intraining andjo as long as “conditions inAfghanistan require it,” as well as “for future contingencies and presence in theregion. However,italso ha basing seeksno“permanent” States United the has averredthat Administration the states, Implications for U.S. Interests recruitment and retention. with NATOforces,building anon-commissione “veryupon Westernizing” thearmedfo intent then-Uzbek Defense assessment, Department curtail othermilitary coopera andto agreement basing K2 appear seriously the backby set terminate to decision it’s Implications forUzbekist 14 13 12 11 U.S.-led coalition operations began inAfghanistan. adequately addressterro members ofthe SCO.Some observers question the capabilitiesChina to and ofRussia in ChinaAugust 2005,whichwere observe marking growing security cooperation, China energy Uzbek the in Perhaps sector. investment signing ofan accord onChinese the closerUzbek-Chinesetiesof include Karimov’s Examples visittoChina inlate Mayand in are amatterofUzbekistan’s Department ofDefense. Deputy Assistant Secretary B. In August 2002,Karimovro U.S. hadpraisedthe Eurasia Insight Many observersjudge thatUzbekistan’s U.S. Policy. fully hasbackedUzbekistan Like China in declaring Russia, that events in Andijon , Nov. 15,2005. Sincesigning cooperativesecurity Looking toward the Future, The Armed Forces Armed The Looking toward theFuture, rist threatsintheregion, given 11 Background BriefingonUzbekistan However,suchplansappear ternal affairs,andhenceoff- tion with the United States. According toa2004U.S. States. tion withtheUnited Lynn Pascoe,Presentation atthe int exercises ... forthelong term.” exercises int an and Regional Security an andRegional CRS-4 oops, but which may contain pre-positioned oops, butwhich FBIS other’s military installationsandformutual other’s military gion, but has urged Congress toseekfurther s argued thatregional accesswillbeneeded me possible merit inestablishing CSLs (a DefenseMinisterQodir Gulomov had been and Russiaheldtheirfirstmilitary exercises have beenusefulforsupporting OEF. The rces, includinginteroperability increasing export andvisasanctionsonUzbekistan. export d by Central Asian andother Uzbekistan le inreducing theterroristthreat,as opposed security relations with the United Statessecurity relations withthe United s rule. Thistrend was bolstereds after the , Aug. 31,2002,Doc.No.CEP-45. concurred withtheAdministrationthat signed aTreaty onAlliedRelationsthat 13 d officer corps,andrestructuring d agreements withtheCentralAsian 12 ed scuttledinrecentmonthsas their inadequateeffortsbefore limits tointernational inquiry. , Feb.24,2 , [http://www.uzbekistan.uz]. Yale Center for the Studyof Yale Centerforthe 14 TheOverseasBasing 004. Seealso the http://wikileaks.org/wiki/CRS-RS22295 influence and largely eliminate the U.S.security presence. success their first of the mark consolidate thus K2 might a pushto Russian and Chinese 2005 SCOcallforAfghanistan-rela and Tajikistanmay not strategic interests. They argue that the future ofU.S.and coalition basing in Kyrgyzstan observers are lesson U.S. sanguine that theeffects closure ofK2willhave minimal argue that the United States may gain more moral credibility inthe Islamic world. Other continuestoviewithUzbe that Kazakhstan to recentstatementsby offi andKazakh U.S. may States United evengain regional influen Interim Report operations atK2weretransferredto military basing andtheconti Afghanistan, thusseemingly highlighting the flexibility ofa “lily pad” approach toforeign assurances thatthesecountries Kyrgyzstan25- andTajikistanonJuly onTerrorism.DefenseS War Global the of problems butdidnotmarkedlyaffect coalition operations inAfghanistan orother aspects U.S.-funded International Re prografunded democratization troops aboutcivil-military military-to-military exchanges and training. These programs also aimed toinformUzbek requested thatK2bevacat Administration appearedlesspreparedfo would then demand thatvacated. K2 be Other observers suggested that the of humanrights,” eventhough theAdminis side onthe stand wasto that and choice, aclear “made Administration the that asserted human rights —intoconflict.Undersecret pursued intandem—combating global terro Administration, recenteventsinUzbekistan presence.” U.S. long-term [a] inter-agency vetting“whatvitalconstitutes U.S.interests of inthe area that wouldrequire 17 16 15 Intern progress. because oflacksuch that upto$18millioninmilitary andeconomic andrespectfo democratization Uz that Secretary reports the unless ofState operations appropriationsacts usedbyis theUzbe how U.S.assistance Commission oftheUnited States. onReview oftheOverseas MilitaryStructure Facility BBC Monitoring CentralAsia Washington Post The Defense Department argued that the the argued that The DefenseDepartment onTerrorism. Democratization andtheGlobalWar Congressional Concerns. , May 9,2005. , Sept.17,2005,p.A18; be assured, including becauseboth relations in a democracy. relationsin Uz ed, butcurtailedotheranti- search andExchanges Board, andtheEurasiaFoundation. 15 , Sept.26,2005; r human rights. In FY2004, th nuation of major U.S. influence intheregion. Some U.S. nuation ofmajor ms, including those carried out by the Peace Corps,the Peace the by ms, including thosecarriedout have disallowedaidtothe wouldcontinuetosupportcoa ted bases to be closed.They warnthattheclosure of Many inCongress long Manas andsometoBagram, Afghanistan. 27, 2005,andannouncedthathehadobtained ational Military Educati CRS-5 New York Times York New k government. SinceFY2003, annualforeign ary2, 2005, August ofStateNicholasBurns on r the Uzbek demand. Uzbekistan not only not demand.Uzbekistan r theUzbek cials about boosting bilateral ties as evidence as cials aboutboosting bilateralties ce, according to some observers. Theyobservers. some ce, according to point tration “knew” that tration “knew”that kistan for regional dominance. They forregional dominance. also kistan bekistan is making substantial progress in bekistan ismaking substantial brought has twopoliciestheUnitedStates Los AngelesTimes ecretaryto Rumsfeldmadeasuddentrip supporting and democratization and rism closure of K2 created some logistical some ofK2 created closure aid to Uzbekistan could be withheld could aid toUzbekistan terrorism cooperation,including terrorism , Aug. 2,2005,p.3. bekistan suspendedotherU.S.- the states had endorsedtheJuly states the 17 e StateDepartmentindicated have voicedconcernsabout government ofUzbekistan , Sept.16,2005. on andTraining (IMET) the Uzbek governmentthe Uzbek lition operations in According to the 16 The http://wikileaks.org/wiki/CRS-RS22295 unfinished.” troops inAfghanistan arestillfighting th “our K2while accessto U.S. forterminating censure Uzbekistan to ameans it called for aone-year holdonthepayment. In 5, 2005, an amendmenttoDefenseAppropria and forU.S.supporttrying Karimovinth 475 (Dela States “overlooksmassacres”a United They the that payoutStates aquick impression give warnedthat also the might be disbursedonly afterUzbe Defe Sununu sentaletterto and In2005. response,Senators through March “paythe provide Uzbekistan$23millionto officialsinvol visas forUzbek of 1961toaddconditionsonaidUzbekistan. (Delahunt), introduced in lateJuly 2005, ca FMF aid be provided toUzbekistan respect forhuman rights, andno the House Appropriations Committee has urged that and H.R.3189(ChristopherSmith)callforcond carryrights outdemocratizationandhuman call forincreasing whileothers Uzbekistan, P.L. 109-359).Among otherlegislation, theMilita November 2005.Theamendmentlaterwas of Responsibility. to the Area forbasingUSCENTCOM forceswithinUSCENTCOM’s Master Plan U.S. addition, the conferees(H.Rept. Act(P.L. 109-114) Appropriations S11077. extends thispresidentialauthority, renewableannually. Uzbekistan’s human rights problems nece recognizedobserve human internationally rights). Reductiona Threat Comprehensive conditions on progress a indemocratization about $20millioninforeign opera fourteen patrol boats worth$2.9millionwere nonproliferation aidwouldamountto$21mi since itreduced U.S.military influence. Reportedly, he stated that Defense Department criticized thecutoffofIMET andFMF progra anAu During was ultimately withheld. notwithstanding authority toallocatesome human rights, were among thos and ForeignMilitary Financing (FMF) programs, which are c 19 18 In contrast,P.L.107-314 (Sec.1306)gave th

Congressional Record In September 2005,theDefens Among recentlegislative proposals,some hunt), intr 19 Despite this concern, the Defense Department transferred the payment in oduced onSeptember 29,2005,called for suspending the payment , Sept. 29, 2005, p.H , Sept.29,2005, kistan renewedantiterrorism nd respectforhumanrights. ved inhumanrights abuses. e affected. The State Depa The State e affected. nse Secretary Rumsfeldurging nd rewardsa“dictator”whoev 109-305)calledforCongress tobe informed of changes tions appropriations werew tions rescindedfundsforrepair e DepartmentinformedC ssitated awaiver. P.L.109-163 (Sec.1 CRS-6 (H.Rept. 109- introducing the amendm the introducing e presidentauthority inFY2004-FY2005 to waive gust 2004visittoUzbekistan,Gen.Myers 8643; Oct. 4, of theaffectedaid,so that about $8.5 million lls foramending theForeign AssistanceAct activities.H.Con.Res.187(Ros-Lehtinen) e International Criminal aid tonon-governmental organizations that Biden, DeWine, Graham,Leahy, Biden, DeWine, McCain, tions forFY2006 (H.R. 2863) was approved e Taliban [and] our mission [is] clearly ourmission[is] e Taliban[and] being transferred. bill” fortheuseofK2fromJanuary 2003 ms as“shortsighted” andnot“productive,” removed in conference (H.Rept. 109-360; removed inconference(H.Rept. In bothyears, thePresidentexplainedthat ssistance (oneconditionis arequirement to in Congresssupport cuttingin offallaidto llion in FY2004 andpointedoutthat in llion The bill also restricts arms exports and Thebillalsorestrictsarmsexports ry Quality ofLife itioning aid on democratization and aidondemocratization itioning 152, H.R. 3057). H.R. 3545 2005, p.S10918;Oct.5, p. 18 rtment reprogrammed orused rtment cooperation withtheUnited

thatthisplannedpayment ongress thatitintendedto ithheld becauseoflack onditioned onrespectfor icts U.S.forces.H.Res. For FY2005, reportedly ofrunways atK2.In ent, SenatorMcCain and VeteransAffairs Court. OnOctober 303) indefinitely