KAZAKHSTAN’S BID TO CHAIR THE OSCE: A FUNDAMENTAL RIGHT OR A FOOLHARDY AMBITION? HEARING BEFORE THE COMMISSION ON SECURITY AND COOPERATION IN EUROPE ONE HUNDRED TENTH CONGRESS FIRST SESSION OCTOBER 16, 2007 Printed for the use of the Commission on Security and Cooperation in Europe [CSCE 110–1–7] ( Available via http://www.csce.gov U.S. GOVERNMENT PRINTING OFFICE 61–805 PDF WASHINGTON : 2010 For sale by the Superintendent of Documents, U.S. Government Printing Office Internet: bookstore.gpo.gov Phone: toll free (866) 512–1800; DC area (202) 512–1800 Fax: (202) 512–2250 Mail: Stop SSOP, Washington, DC 20402–0001 VerDate Nov 24 2008 07:35 Dec 28, 2010 Jkt 000000 PO 00000 Frm 00001 Fmt 5011 Sfmt 5011 E:\WORK\101607.TXT HAROLD PsN: HAROLD COMMISSION ON SECURITY AND COOPERATION IN EUROPE LEGISLATIVE BRANCH COMMISSIONERS HOUSE SENATE ALCEE L. HASTINGS, Florida, BENJAMIN L. CARDIN, Maryland, Chairman Co-Chairman LOUISE McINTOSH SLAUGHTER, RUSSELL D. FEINGOLD, Wisconsin New York CHRISTOPHER J. DODD, Connecticut MIKE McINTYRE, North Carolina HILLARY RODHAM CLINTON, New York HILDA L. SOLIS, California JOHN F. KERRY, Massachusetts G.K. BUTTERFIELD, North Carolina SAM BROWNBACK, Kansas CHRISTOPHER H. SMITH, New Jersey GORDON SMITH, Oregon ROBERT B. ADERHOLT, Alabama SAXBY CHAMBLISS, Georgia JOSEPH R. PITTS, Pennsylvania RICHARD BURR, North Carolina MIKE PENCE, Indiana EXECUTIVE BRANCH COMMISSIONERS VACANT, Department of State VACANT, Department of Defense VACANT, Department of Commerce (II) VerDate Nov 24 2008 07:35 Dec 28, 2010 Jkt 000000 PO 00000 Frm 00002 Fmt 0486 Sfmt 0486 E:\WORK\101607.TXT HAROLD PsN: HAROLD KAZAKHSTAN’S BID TO CHAIR THE OSCE: A FUNDAMENTAL RIGHT OR A FOOLHARDY AMBITION? OCTOBER 16, 2007 COMMISSIONERS Page Hon. Alcee L. Hastings, Chairman, Commission on Security and Cooperation in Europe ..................................................... 1 Hon. Benjamin L. Cardin, Co-Chairman, Commission on Security and Cooperation in Europe ...................................... 27 Hon. Christopher H. Smith, Ranking Member, Commission on Security and Cooperation in Europe ................................. 3 WITNESSES H.E. Erlan A. Idrissov, Ambassador of the Republic of Kazakhstan to the United States ........................................... 5 David Merkel, Former Director for Central Asia, National Security Council ....................................................................... 7 Robert Herman, Director of Programs, Freedom House .......... 10 Yevgeniy Zhovtis, Director, Kazakhstan International Bu- reau for Human Rights ........................................................... 13 APPENDICES Prepared statement of Hon. Alcee L. Hastings ........................ 36 Prepared statement of Hon. Benjamin L. Cardin .................... 38 Prepared statement of Hon. Christopher H. Smith ................. 40 Prepared statement of H.E. Erlan A. Idrissov .......................... 42 Prepared statement of David Merkel ........................................ 49 Prepared statement of Robert Herman ..................................... 53 (III) VerDate Nov 24 2008 07:35 Dec 28, 2010 Jkt 000000 PO 00000 Frm 00003 Fmt 5904 Sfmt 0484 E:\WORK\101607.TXT HAROLD PsN: HAROLD VerDate Nov 24 2008 07:35 Dec 28, 2010 Jkt 000000 PO 00000 Frm 00004 Fmt 5904 Sfmt 0484 E:\WORK\101607.TXT HAROLD PsN: HAROLD KAZAKHSTAN’S BID TO CHAIR THE OSCE: A FUNDAMENTAL RIGHT OR A FOOLHARDY AMBITION? October 16, 2007 COMMISSION ON SECURITY AND COOPERATION IN EUROPE WASHINGTON, DC [The hearing was held at 10 a.m. in room 210 of the Cannon House Office Building, Washington, DC, Hon. Alcee L. Hastings, Chairman, Commission on Security and Cooperation in Europe, presiding.] Commissioners present: Hon. Alcee L. Hastings, Chairman, Com- mission on Security and Cooperation in Europe; Hon. Benjamin L. Cardin, Co-Chairman, Commission on Security and Cooperation in Europe; and Hon. Christopher H. Smith, Ranking Member, Com- mission on Security and Cooperation in Europe. Witnesses present: H.E. Erlan A. Idrissov, Ambassador of the Re- public of Kazakhstan to the United States; David Merkel, Former Director for Central Asia, National Security Council; Robert Her- man, Director of Programs, Freedom House; and Yevgeniy Zhovtis, Director, Kazakhstan International Bureau for Human Rights. HON. ALCEE L. HASTINGS, CHAIRMAN, COMMISSION ON SECURITY AND COOPERATION IN EUROPE Mr. HASTINGS. Ladies and gentlemen, the hearing will come to order. I like to start on time. My understanding is several of the Com- missioners will come along. As a matter of fact, as I speak, the ranking Commissioner is coming in the room. But we’ll begin with our opening statements and then go to our witnesses. I want to welcome all of you to this Commission hearing, and obviously there is great interest in the subject of our inquiry with reference to Kazakhstan’s bid to chair the OSCE in 2009, and I consider it to be especially timely and important. I’m not at all surprised at the level of interest that has been demonstrated not just by the presence of those of you here but oth- ers that have continuously spoken about this matter. Much is at stake here. Indeed, one of the goals today is to illu- minate just how much is at stake for Washington, for Kazakhstan, for Central Asia, for Russia, and for the OSCE which is known for its promotion of democracy, human rights and the rule of law. (1) VerDate Nov 24 2008 07:35 Dec 28, 2010 Jkt 000000 PO 00000 Frm 00005 Fmt 6633 Sfmt 6633 E:\WORK\101607.TXT HAROLD PsN: HAROLD 2 The former Soviet republics joined the OSCE in 1992, thereby agreeing to implement all of its commitments on democratization and human rights. Kazakhstan, like most of the ex-Soviet states, has found this a difficult transition. Consequently, Kazakhstan’s candidacy has been controversial, ever since it was put forward in 2003. For Washington and for many other OSCE capitals, Kazakhstan’s bid crystallizes the competing imperatives of seeking to promote democracy while maintaining and strengthening ties with an energy-rich, moderate Islamic state eager to build good re- lations with the Western world. Washington has consistently said to Kazakhstan that the United States supports Astana’s ambition to chair the OSCE but insists on demonstrable progress on human rights. The question was actually supposed to be settled at last year’s OSCE ministerial. However, the participating States could not reach agreement about supporting Kazakhstan’s bid. It’s no secret that the American administration, citing the record of flawed elections, continuing human rights problems and the con- centration of power in the executive branch, was among those OSCE capitals that did not back Astana’s candidacy. For that reason, the matter was essentially postponed last year in the hope that circumstances would change in the interim so as to make the decision in favor of Kazakhstan easier to make this year. The picture in the past year is a decidedly mixed one. President Nazarbayev received parliamentary sanction to remain in office for life, if he so chooses. Parliamentary elections in August, according to some accounts, did not meet OSCE standards and produced a one-party legisla- ture. So while no official statement has been issued by the administra- tion, and none may be forthcoming before November, the indica- tions are that the United States remains reluctant to endorse Kazakhstan. Apparently, even some countries that formally supported Astana’s candidacy are rethinking their position. That’s where we stand today, with the November ministerial right around the cor- ner. Some of you may have noted the absence from our panel of dis- tinguished witnesses of any representatives of the U.S. Govern- ment. Let me assure you that it is not an oversight. I and other members of the Commission and other members who are not members of the Commission have been in discussions with high-level State Department officials about this matter for some time and felt that considering the delicate diplomacy involved, it would not be entirely helpful to ask the department to air its views in public here today. But that does not mean we cannot examine this complex issue with other non-U.S. Government experts. Hearing from proponents and opponents of Kazakhstan’s can- didacy will help all of us reach a conclusion on that country’s suit- ability to head the OSCE and the ramifications for the United VerDate Nov 24 2008 07:35 Dec 28, 2010 Jkt 000000 PO 00000 Frm 00006 Fmt 6633 Sfmt 6633 E:\WORK\101607.TXT HAROLD PsN: HAROLD 3 States of a ‘‘yes’’ or ‘‘no’’ vote. To that end, we’ve very carefully se- lected our witnesses. And before identifying them and asking them to go forward, I’d like to recognize my good friend, the ranking member from New Jersey, Chris Smith, for any opening comments he may make. HON. CHRISTOPHER H. SMITH, RANKING MEMBER, COMMISSION ON SECURITY AND COOPERATION IN EUROPE Mr. SMITH. Mr. Chairman, thank you very much, and I want to thank you for convening this very important hearing. I believe and have believed since 2003 that the Kazakhstan’s candidacy to chair the OSCE deserves the closest attention from policymakers. And as far as I know, this hearing is the first open discussion of this issue. It comes at just the right moment, given the impend- ing OSCE ministerial in Madrid. So again, I want to thank you for convening this very timely and very important hearing. Let me say at the outset that I would, in principle, be happy to welcome Kazakhstan’s candidacy. It would, indeed, be healthy for the OSCE if Kazakhstan or any of the former Soviet republics were ready to chair the organization. It would signal important growth and maturity for the country in question as well as for the OSCE. But I fundamentally disagree with the official Kazakh perspec- tive that chairing the OSCE is a right and not a privilege. On the contrary, the OSCE Chair-in-Office, for reasons symbolic and substantive, is too important to be merely a rotating position which any participating state can hold.