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HON. BEN NIGHTHORSE CAMPBELL, CHAIRMAN,

COMMISSION ON SECURITY AND COOPERATION IN EU

This hearing has been convened by the Helsinki Commi

review U.S. policy toward the 55-nation Organization for Secu

Cooperation in Europe (OSCE). I would like to start out by s

how much we appreciate the close working relationship that 

veloped between the Commission and the Department of St

the past years. This hearing is an opportunity to build on th

nership as we look ahead.

The Commission is keenly interested in how the Administr

making use of the OSCE to promote U.S. interests in the ex

OSCE region, in particular as a tool for advancing democracy

rights, and the rule of law. These are core values of the Helsi

cess, recognized as integral to peace and security both wit

among States.

The United States should not shy away from difficult subj

cause they might be unpleasant to another government. As 

rights defender Andrei Sakharov once observed, “the whole 

the Helsinki Accords is mutual monitoring, not mutual ev

difficult problems.” One of the strengths of the OSCE is that o

tries, on the basis of consensus, have developed a body of shar

mitments. In this regard, I welcome the leadership Amb

Minikes has demonstrated since taking up his post as Hea

U.S. Mission to the OSCE in Vienna.

To be truly effective, however, the various components of 

foreign policy apparatus—the State Department, U.S. emba

the field, and the U.S. Mission to OSCE—must be mutually r

ing. It is also imperative that senior U.S. officials visiting par

ing States be consistent in the message they deliver. This 

cially true when it comes to the countries of Central Asia.

 The events of the past year since we last met to take stoc

common work confirm that the values and commitments refl

the Helsinki Final Act are more important than ever, and t

OSCE can be an invaluable tool in strengthening the impleme

of these commitments and thereby our security.

The OSCE’s definition of security encompasses not only the 

dimension, but the economic and security dimensions as w

Commission is paying increasing attention to the multi-dime

aspect of the OSCE’s work. Often, issues cannot be pegged to 

dimension. For example, independent, effective judicial syst

crucial to redress for human rights violations; they are also cr

the development of strong market economies. Police forces 

strumental in ensuring security, but sometimes can be the

perpetrator of human rights violations. Corruption threatens 

velopment of democratic institutions in many countries, an

nized crime is a major source of funding for terrorist organi

The OSCE is well-positioned to address many of these cross

sional issues.

Corruption and organized crime remain major roadblocks to p

in democratization and development of rule of law in many tra

countries. I am concerned that if corruption is not addressed

efforts to develop democratic institutions will falter. I urge 

partment to explore ways to promote practical cooperation am
and how this critical topic might be reflected in the Porto Min

document.

I would like to touch briefly to specific concerns in thre

participating States: Georgia, Belarus and Ukraine.

Developments in the Republic of Georgia appear almost on 

basis in our newspapers and the Commission recently con

hearing to assess the grave situation in that country. Given 

volvement of scores of Coloradans in the U.S.–sponsored tr

equip program, I am particularly concerned over threats to th

eignty and independence of Georgia that could impact U.S. fo

ployed in that country. The United States must remain acti

gaged diplomatically to avert possible aggression from Russia

In Belarus, the regime remains determined to pursue a 

course of self-isolation as the human rights and economic co

in the country deteriorate even further. The lack of legitimat

tive and parliamentary leadership can only be remedied thro

holding of free and fair elections in a manner consistent wit

commitments. Meanwhile, the U.S. must remain steadfast in 

of Belarusian democracy in recognition that the people of 

deserve a better future.

Finally turning to Ukraine, the gravity of President Kuchm

sonal approval of the sale of sophisticated radars to Iraq re

decisive and unequivocal response from the United States. A c

approach will not suffice and those who would promote a m

response are shortsighted. The issues at stake are too high to 

business as usual with him. Priority should be given to inves

any financial links between the Ukrainian leader and his as

and sales to rouge states, including Iraq. Devoid of credibi

Kuchma deserves to be treated as the pariah he has become
HON. CHRISTOPHER H. SMITH, CO-CHAIRMAN,

COMMISSION ON SECURITY AND COOPERATION IN EU

Mr. Chairman, roughly one year ago we held a similar hea

U.S. policy and the OSCE, and while we knew then that our wo

changed, we had not yet come to terms with the scope of that 

When I first became involved in these issues as a membe

Commission in the early 1980s, the focus was on the repre

certain entire societies and the imprisonment of innocent m

women in the former Soviet Union and East Europe because 

beliefs or their writings. Today, we are all focused on fightin

terrorism. U.S. policy in general has had to be reexamined in 

this changed world, including how we use the OSCE.

Without a doubt the events of this past year have only unde

the importance of protecting human rights, and developing dem

institutions and the rule of law. This is the only way to ensu

rity and stability in the world. The events of the past year hav

that no country is isolated from the violence that is fed by into

and repression. Repressive regimes only feed the unrest, alie

and frustration that are often used by terrorists to garner sup

their depraved aims. Freedom of expression and independen

are crucial to preventing the rise of extremism.

Since September 11, 2001 we have made significant progress 

ing terrorism, particularly in Afghanistan. But clearly muc

remains to be done. Terrorists and extremist groups are stil

even if they are on the run. As they are being driven from A

stan, they will inevitably seek other places to try to garner saf

and support. Countries neighboring Afghanistan—such as t

Central Asia—are understandably concerned. However, se

them wrongly believe that cracking down on what they view 

gious extremists” is the way to prevent terrorist organizatio

taking hold in their countries. It is just the opposite. Prevent

zens from expressing their religious views, their political v

their ethnicity only disillusions them and turns them against 

ernment. In such cases, extremist—or even terrorist—organ

may seem to think that terrorist actions are the only way to 

their anti-government sentiments.

Officials in this region also often resort to widespread arre

even to torture to extract so-called confessions from those ac

belonging to alleged terrorist organizations. Again, this only 

a climate of disaffection and hatred which real terrorists can 

to garner support. Post September 11, the United States is pr

a large amount of bilateral assistance to Central Asian State

of this is technical equipment aimed at combating drug tra

and other manifestations of organized crime that fund terrori

nizations. But we should examine how the OSCE could be us

fully to develop NGOs and civil society, democratic institutio

of law, and respect for human rights in Central Asia. These iss

even more critical to ensuring that these countries are stable

and continue to be partners in the global fight against terror

 Terrorists and organized crime rings increasingly also tra

man beings as a source for their income. This modern-day 

slavery is one of the most egregious violations of human right

world today. Virtually all OSCE States are either source, tra
look forward to discussing how we can develop it even furt

tools to fight this vicious crime.

Mr. Chairman, in this new changed world in which we f

selves, I believe it is imperative that human rights remain pr

on the OSCE agenda. The United States must demonstrate 

and deed that this country has not abandoned human rights 

sake of the global fight against terrorism. We need to reass

world that it is just the opposite: human rights are more im

than ever. I believe the OSCE can serve as an important tool 

forcing this message with longstanding, as well as new-found 
HON. GEORGE V. VOINOVICH, COMMISSIONER,

COMMISSION ON SECURITY AND COOPERATION IN EU

I would like to thank the chairmen for scheduling this hea

day to examine U.S. policy toward the Organization for Secu

Cooperation in Europe (OSCE). I am glad to have the chan

here, and I look forward to hearing the testimony of our witn

I continue to believe that the OSCE does crucial work to p

human rights and democracy in Europe and Eurasia. I ha

pleased to participate in the annual meeting of the OSCE Par

tary Assembly during the last 4 years.

While the Parliamentary Assembly meetings are just one 

the OSCE’s overall agenda, I believe they serve as a vital forum 

we, as United States lawmakers, are able to come together w

counterparts in 54 other OSCE Participating States to discus

ing human rights issues facing the international community.

At the meeting this year in Berlin, we examined the role t

OSCE can play in the global war on terrorism. We also discusse

that have been on the OSCE’s agenda for many years—such 

nized crime, corruption, money laundering and the trafficking 

drugs, and human beings. The significance and urgent need 

attention to these growing problems has been heightened in 

termath of the terrorist attacks against the United States on S

ber 11, 2001.

Also on the agenda in Berlin was a separate session to high

alarming increase in anti-Semitic violence in Europe. At the m

co-chaired by Germany and the United States, members of th

national community came together to call attention to the 

problem, and to call on OSCE Participating States to take ac

addition, the Parliamentary Assembly adopted a resolution 

Semitic violence in the OSCE region, which condemned the 

tion of anti-Semitism, recognized the danger of anti-Semitic v

to European security, and urged participating states to bol

importance of combating anti-Semitism—by taking action t

law enforcement to complete thorough investigations of anti-

criminal acts, holding follow-up seminars to explore effecti

sures to prevent anti-Semitism, and condemning anti-Semitism 

countries and in regional and international forums.

Many of us believe this issue must stay on the front burn

courage the OSCE to devote one of the three supplementary 

Dimension meetings next year to the subject of anti-Semitism 

OSCE region. I am also hopeful that at next year’s session 

Parliamentary Assembly, delegates can report back on the act

have taken to combat anti-Semitism in their respective coun

Additionally, I have continued to pay close attention to th

that the OSCE is doing in southeast Europe. In Berlin, the 

mentary Assembly passed a resolution, which I sponsored, tha

nized continued challenges in the region and urged the intern

community to remain engaged to promote peace and stability i

east Europe. It expressed support for ongoing democratic r

and recognized progress that has been made in countries in 

gion, including Macedonia, the Federal Republic of Yugoslav

others. It also called on the Federal Republic of Yugoslavia to 

ate fully and unreservedly with the War Crimes Tribunal.
stability in the region. In May, I had the opportunity to visit w

Head of the OSCE Mission in Kosovo, Ambassador Pascal 

during a trip to Pristina. We talked about the “benchmark g

leased by the U.N. Mission in Kosovo, which call for continue

to promote respect for human rights in Kosovo. I encouraged 

sador Fieschi to monitor progress on the implementation 

goals, and to use them as a guide for assessing where we sh

double our efforts.

During my meeting with Ambassador Fieschi, we also d

the vital work that his team is doing to promote democratic 

and respect for human rights in Kosovo. They were encourag

voter participation in parliamentary elections last Novembe

members of Kosovo’s minority communities came to the poll

their ballots. Right now, the OSCE team in Kosovo is focuse

October 26th municipal elections, and they have been worki

to again encourage all eligible voters to exercise their right 

They are also engaged in efforts to promote respect for huma

and to improve the situation for all of Kosovo’s citizens, in

minority groups. I believe their work is a crucial componen

international community’s efforts to promote security and de

in Kosovo.

I also spent time in Macedonia this spring, where OSCE sta

bers are monitoring the implementation of the Ohrid Fra

Agreement, which was signed by the Macedonian Governm

ethnic Albanian political parties in August 2001. The OSCE w

present for the parliamentary elections that took place on Sep

15, 2002, resulting in the peaceful transfer of power from Prime 

Georgievski to Branko Crvenkovski. This is a major accompli

and it is important to the stability of Macedonia that the OS

tinue to monitor progress on efforts to uphold the Framework 

ment.

These initiatives are just a sampling of the OSCE’s invo

around the world, but I believe they make crucial contribu

efforts to promote human rights and the merits of democrac

continue to stay on top of the OSCE’s work in southeast Eu

well as efforts to combat the perils of organized crime, cor

and anti-Semitism in the OSCE region.

I am pleased that one of our former Ohio state troopers, wh

time working with the U.N. police force in Kosovo, has just jo

OSCE Special Police Matters Unit. His team is working to coo

police missions in Bosnia, Kosovo, and other places in the wo

hopes to improve upon them.

At the Parliamentary Assembly meeting in Berlin, we passe

lution which urged the OSCE, working with the internation

munity and regional initiatives such as the Southeastern E

Cooperative Initiative (SECI) and the Stability Pact to prior

problems of organized crime, corruption and trafficking in 

beings, arms and drugs, and to increase coordination to mo

these realities. I believe the work of the OSCE and this specia

crucial in this effort. Sharing information and building upon b

tices will go a long way in the world, and I believe it is crucial 
well as groups like SECI and the Stability Pact, continue thes

tant endeavors.

As a member of the Senate, I will continue to remain engag

the Organization for Security and Cooperation in Europe. I am 

that our Ambassador to the OSCE, Stephan Minikes, has be

involved and active, and I look forward to working with our col

at the State Department and in the international community 

mote respect for human rights at home and abroad.

Thank you, Mr. Chairman.
HON. A. ELIZABETH JONES, ASSISTANT SECRETARY OF 

FOR EUROPEAN AND EURASIAN AFFAIRS,

U.S. DEPARTMENT OF STATE

Chairman Campbell and Co-Chairman Smith, thank you 

opportunity to appear, along with Assistant Secretary Crane

Bureau for Democracy, Human Rights, and Labor, before the H

Commission. We in the European Bureau—and Ambassador 

and his fine staff in Vienna—would like to thank the Helsin

mission for the close cooperation we have enjoyed during t

year.

I would note that the OSCE has become one of the most e

tools for promoting democratic values, serving as a reliable 

ment for conducting and monitoring elections, promoting free 

and ensuring the democratic rights of ethnic minorities. Th

supplements the work of NATO and the European Union with

peting with them. The last time I appeared before the Comm

less than a month had passed since the tragic events of Septem

I spoke then of the Administration’s determination to make th

nization for Security and Cooperation in Europe (OSCE) an im

actor in the gathering struggle against terrorism. I am happ

port that significant progress has been made. I would like to 

these developments with you and outline the efforts we hav

across the three OSCE dimensions—the human, the econom

the security—to ensure that this vital organization remains r

and responsive to the world in which we now live.

COUNTERTERRORISM EFFORTS

In the run-up to the December 3-4 OSCE Ministerial in Bu

last year, the 55 participating states of the OSCE worked ha

velop an appropriate response to September 11. This effort 

with agreement on a comprehensive Action Plan on Combat

rorism. The Plan committed all OSCE members to become p

the 12 U.N. terrorism conventions and protocols by Decem

2002. Members also pledged to take steps to prevent terroris

from operating on their territory, to share information on such 

with other participating states, and to take action to prevent a

press the financing of terrorist organizations. The Action Plan 

all OSCE institutions and bodies to prepare roadmaps with tim

and resource requirements for implementing their portion

Action Plan.

Two weeks after Bucharest, the OSCE met in Bishkek, Kyr

and endorsed an additional Program of Action at the Confer

Enhancing Security and Stability in Central Asia. The B

Programme echoed many of the Bucharest recommendations. 

a pledge to take further action on the financial aspects of com

terrorism. Specifically, states will consider implementing th

dards of financial accountability and transparency embodie

recommendations of the Financial Action Task Force (FATF) o

laundering and terrorist financing (which is housed within the 

and to take immediate steps to block the assets of individu

entities linked to terrorist financing.
has been working diligently to follow through on the above c

ments. A majority of OSCE states have now signed or become 

to nine out of 12 of the conventions. We continue to work with 

pating states for further progress in this area. In February, th

Chairman in Office appointed former Danish Defense Minis

current MP Jan Troejborg as the Personal Representative 

venting and Combating Terrorism. The OSCE has created a

Terror Unit in the OSCE Secretariat, staffed by experience

mats, to work with Mr. Troejborg to bring focus to day-to-day 

implementing the Bucharest and Bishkek plans. OSCE Police 

Richard Monk, meanwhile, has been working with Central Asia

to assess how the OSCE can best help them in resisting the s

terrorism.

In addition, the OSCE has made notable progress on terr

nance issues. The annual OSCE Economic Forum Meeting in 

in late May discussed the Financial Action Task Force (FATF

mendations on terrorist financing. Following this conference

participating states adopted a U.S. proposal committing each 

complete a self assessment by September 1 on efforts their 

ance with the FATF recommendations. This initiative comm

states, not otherwise obligated to do so, to complete the self

ments on their compliance with the FATF recommendations 

rorist financing.

In addition, the OSCE, in cooperation with the U.N. Office 

Control and Crime Prevention, is conducting training sem

Central Asia on money laundering and terrorist financing issu

program will strengthen the ability of these states to implem

commitments they have undertaken and to prevent terrorist 

zations from obtaining access to funds that could support thei

ties. The U.S. was the major financial contributor to this pro

The U.S. and Russia jointly proposed the creation of a d

where OSCE states can post requests for assistance or OSCE 

tions can post funding requests for counterterrorism-related pr

and other states can post offers for assistance. This proposal w

part of a broader effort we have launched to work with Russia a

in areas of mutual interest, beginning with counterterorrism

We have also been working with the Portuguese Chair, t

sians and the EU to develop an OSCE Charter on Terroris

adopted at the December Ministerial in Porto. This will be 

statement of core principles to serve as a guide and spur to 

work of the OSCE on this fundamental issue

SECURITY DIMENSION

As part of its counterterrorism efforts, the U.S. has propose

lishing an annual OSCE security review conference. This wo

vide an enduring forum for evaluating the work of the OSCE 

moting progress on counterterrorism. It will also serve as a fo

reviewing other OSCE activities in the security dimension, in

those of its regional and field offices. By establishing such a 

ence we could ensure that the OSCE remains focused on imp

ing its counterterrorism agenda and providing necessary ass

in the years to come.
Terrorism Charter and, particularly during its first years, 

evaluating and reviewing implementation of the Bucharest Acti

Bishkek Document and relevant elements of UNSCR 1373 on 

terrorism.

Improved coordination between the OSCE, the EU, and NA

is important to broadening the work of the OSCE in the sec

mension and in achieving U.S. priorities. Such cooperation is 

ing more important as all institutions are taking on new resp

ties, especially regarding challenges to regional security, in

terrorism, border security and trafficking.

 ECONOMIC AND ENVIRONMENTAL ISSUES

The OSCE recognizes that economic and environmental iss

be the basis for security concerns, and if not addressed may t

stability. Its economic dimension seeks to bring states tog

address common problems such as water resources, develop

sues, and corruption.

The United States seeks a broadening of the OSCE’s econ

forts, which can provide significant support to both the hum

security dimensions. For example, in the coming year the 

Economic Dimension will focus greater attention on the e

aspects of all forms of trafficking in persons. One area of new 

under discussion is developing legitimate business opportunit

pecially for women—to mitigate the economic desperation t

compel people to fall into trafficking.

We believe the OSCE can function best as a provider of e

expertise. Particularly in re-integrating societies that have 

enced ethnic conflict, the OSCE is well suited to provide tra

crucial areas such as policing and customs collection and m

ment, and in helping societies making the transition from a co

economy to develop the legal framework necessary to build 

for the rule of law.

In addition, we support and promote anti-corruption and g

ernance activities in the OSCE area, noting that corruption a

of transparency are important obstacles to business devel

outside investment and adequate legal redress.

 ENGAGEMENT WITH RUSSIA

The OSCE is an important forum for engaging cooperativ

the Russian Federation. Since the terrorist attacks of Septem

2001, the organization has proven to be a significant arena 

development of the new Russian-U.S. relationship. Broaden

work of the OSCE—to include additional activities in the e

and security dimensions as noted above—addresses many Russ

cerns, while also advancing U.S. objectives. This effort has 

borne fruit on cooperation in the counterterrorism field an

areas. We expect this cooperation to continue to lead to gre

erational effectiveness within the OSCE.

In our view, this must also include cooperation across the fu

of OSCE activities, including the human dimension. One of 

mary goals in this endeavor is to strengthen Russian recogn

the OSCE as a valuable means of fostering democratic deve

in Russia and in enhancing its ties with neighbors and the W
that the OSCE Assistance Group can exercise its mandate to p

a political solution to that conflict, to protect human rights

work toward the economic and social rehabilitation of that ar

ARMS CONTROL AND CFE ISSUES

The OSCE plays an important role in providing a venue for e

engagement with Russia on a number of arms control issues. 

ticular importance right now are questions on the implement

the CFE Treaty-related commitments made on withdrawal of 

forces and equipment from Georgia and Moldova at the 199

Summit in Istanbul.

While important results have already been achieved on im

tation of those commitments, key issues remain to be reso

garding the duration of the Russian military presence at two 

Georgia, and the status of the Russian presence at a third, in Ab

In Moldova, withdrawal or disposal of Russian military equ

including tons of ammunition and thousands of small arms, h

stalemated during 2002 by opposition from Transnistrian sepa

In early October the Russians were able to reach agreement w

Transnistrians permitting the withdrawal of a full train-loa

munition. We will continue to work for further progress with 

ties on this issue.

 THE HUMAN DIMENSION

As Secretary Powell noted on August 1, human rights rem

sential as we wage war against terrorism. The OSCE is a cri

rum in that effort. In addition to the many field missions tha

substantial human rights focus, the OSCE sponsors an ann

man Dimension Implementation Meeting in Warsaw, Poland. Th

Parliamentary Assembly also play an important role in this 

evidenced by its resolution—passed in July—requiring Belar

operate with the Assistance Monitoring Group as a pre-cond

seating Belarussian parliamentarians. The United States stron

ports such efforts to bolster the commitment of the OSCE to 

rights. The fact is that, even as we broaden the range of OSCE 

ties to encompass issues such as combating terrorism, huma

remains the heart of what the OSCE does.

CENTRAL ASIA

Central Asia is becoming an increasingly important area o

tion for the OSCE. The organization serves as a vital forum f

discuss human rights issues and to promote democracy in the 

Asian region. Given the need for both economic and political d

ment in the area, the United States needs to address huma

concerns along with efforts to broaden the activities of the O

We have developed a plan of action for increased OSCE 

ment in the Central Asian region that includes:
regarding the Financial Action Task Force (FATF) rec

dations on money laundering and terrorist financing 

limited by a lack of resources. The OSCE can be the 

for providing assistance to the Central Asian States ab

to implement the FATF recommendations. This effo

ready underway and training has been started.

• Police Training. As sound policing is critical 

counterterrorism effort, the OSCE could determine how 

apply experience gained in its policing programs to 

Asia. The Bucharest Action Plan specifically targets 

security, trafficking in persons, trafficking in drugs, mon

dering and arms trafficking. The OSCE could help 

police training in Central Asia in: concrete policing s

ter-ethnic policing; and observance of human rights.

• Rule Of Law/Judicial Reform. To complement police an

security force training and to strengthen a bedrock ele

democracy, OSCE could contribute to strengthening t

bilities of courts and lawyers, both prosecutors and 

attorneys. Emphasis could be on areas such as court a

tration, the use of evidence resulting from improved 

skills, legislative drafting and/or training in laws rel

trafficking, money laundering, other economic crime, a

crimes related to terrorism or support of terrorism.

• Trafficking in Persons. Trafficking in persons is a problem 

the OSCE region and will be a focus of the Dutch OSCE 

manship in 2003. OSCE should focus programs on pub

cation in source countries, including Central Asia, an

with drafting legislation making prosecution of trafficke

and protecting the rights of victims.

Ultimately, our focus on human rights and democracy cont

be the most important pillar of our OSCE strategy in the re

order to combat terrorism and defeat extremist insurgencie

region, we need to encourage the development of democratic 

tions that respect human rights.

BELARUS

During the past year, Belarus has been the object of som

most serious human rights concerns. On September 6, the Bel

Foreign Ministry denied without credible justification a requ

visa extension for the OSCE’s Advisory and Monitoring Group M

(AMG) human rights officer in Belarus. Earlier this year, Bel

nied visa extensions to the AMG’s Deputy Head of Mission 

Political officer, thereby bringing to a temporary halt the AM

tivities in Belarus.

Belarus argued that it found no grounds for extending the v

numerous reasons for an extension can be offered. Civil so

creasingly is under attack by the Lukashenko regime. Jou

have been imprisoned and newspapers closed down. Minsk ha

to crush all legitimate opposition. Members of NGO’s have 

saulted, fined, and imprisoned and opponents of the regime h

appeared. Credible reports indicate that a regime death squ

sponsible for these disappearances. Meanwhile, the pres
serious electoral reforms are adopted, local elections expected 

2003 will face the same fate.

The OSCE AMG is tasked to help Belarus address these 

issues. Concern over what is happening there will not disappe

the expulsion of another member of the AMG. Belarus will r

regular issue of concern and discussion by the OSCE. Belarus 

be able to normalize its relations with the United States an

members of the Euro-Atlantic community unless it permits 

sumption of the activities of the AMG and makes progress in a

to the four conditions established by the OSCE.

Additional delay on the part of the Belarus regime will only 

its self-isolation from the Euro-Atlantic community and ensu

this issue becomes a topic for the December OSCE Ministerial i

We continue to support the efforts of the Chair to resolve this i

and secure a return of the AMG to Belarus. At the same time

discussing with other delegations additional measures that can b

to address human rights concerns in Belarus, such as the 

Mechanism.

 THE BALKANS

The OSCE plays a leading role in enhancing peace, stabil

democracy throughout Southeastern Europe. OSCE miss

Kosovo, Bosnia, Croatia, the Federal Republic of Yugo

Macedonia, and Albania are key to this effort. The establishm

year of a mission in Belgrade is already paying dividends in he

support the democratic transition in Yugoslavia. The OSCE has 

some 460 multi-ethnic police in South Serbia, a sensitive ar

Kosovo. The training has helped build a police force that refle

demographics, both gender and ethnic. The portion of ethn

nian police in this area is now 60%, whereas at the beginning 

it was close to zero. The OSCE has been actively involved in 

to transform Radio and Television Serbia (RTS), once a mouth

the Milosevic regime, into a public broadcaster. As RTS is 

largest broadcaster in Serbia, its transformation is especially 

tant in spreading the messages of tolerance, objectivity and fai

important confidence building measures for the entire popula

In 2001, the OSCE responded energetically to the crisis in Ma

and continues to assist with post-conflict stabilization and im

tation of the August 2001 Framework Agreement. The OS

vided confidence-building monitors and police advisors to ens

smooth return of multi-ethnic police to former conflict are

helping to train one thousand new recruits for a multi-ethn

force and is continuing related efforts to strengthen Macedon

society. ODIHR’s robust monitoring presence during the rec

liamentary elections helped to ensure that Macedonia took 

strong step forward in overcoming last year’s crisis.

In Kosovo, OSCE seeks to develop multi-ethnic institutions 

sist in the transition of those institutions to autonomous cont

port the establishment of provisional self-government for K

citizenry, and safeguard human rights for all residents of Kos

cluding Serbs and other ethnic minorities. In keeping with th

date, the OSCE mission in Kosovo will conduct municipal elec

October.
ton Agreement through its work in elections support, human 

and democratization. As a result of its efforts, many activit

been returned to local control and the mission budget reduc

mensurately.

SEEKING A POLITICAL SETTLEMENT IN MOLDOV

Since the 1994 cease-fire between the Government of Mold

the authorities of the breakaway region of Transnistria, th

has played a central role in conflict resolution in the region

with the Russian Federation and Ukraine, the OSCE is on

three mediators in the so-called “five-sided talks” involving 

sides to the conflict. The OSCE Mission to Moldova, headed ad

by Ambassador David Swartz, a retired member of the U.S. 

Service, has played an active and constructive role in attem

find a solution to the very difficult “Transnistrian question

past several months, following nearly eight years without p

there have been signs of some progress toward a comprehen

litical settlement. Negotiations continue. The United States w

every effort to support this process.

Without the close and cooperative relationship among th

Mission in Moldova, the Governments of Ukraine and Rus

OSCE in Vienna, and the OSCE participating States, includ

United States, none of this would have been possible.

MANAGING CONFLICT IN THE SOUTH CAUCASUS

In Georgia, the OSCE has an important role in monitoring 

pervising the cease-fire between the breakaway region of South 

and the central Georgian Government. In addition to funding t

Control Commission that oversees the Joint Peacekeeping 

South Ossetia, the OSCE also maintains an office in the region

tal of Tskhinvali. The OSCE staff in this office undertakes con

building measures and political-economic development work

Efforts to resolve the conflict between the Georgian Gove

and the breakaway region of Abkhazia are handled under a U.

date by CIS peacekeeping forces and the U.N. Observer Mi

Georgia (UNOMIG). However, the OSCE Mission in Georgia 

nates closely with the U.N. on humanitarian projects in and 

Abkhazia, as part of its overall mandate for Georgia.

OPERATIONAL EFFECTIVENESS

It is a U.S. priority to make the OSCE as operationally effe

possible. Political leaders increasingly rely on the OSCE for ra

effective deployment of human resources to trouble spots in 

gion, such as occurred in Macedonia. We have worked vigor

develop the REACT concept (Rapid Expert Assistance and C

tion Teams). REACT provides a mechanism for the OSCE to 

and deploy more rapidly experts in human rights, elections

administration, policing, and rule of law. This program has 

the OSCE to produce more qualified experts more efficient

spond to field contingencies.

A related goal is increasing general managerial effectiven

OSCE expanded its activities more rapidly than it created sy

manage them. We are committed to ensuring that the OSCE 
gerial control of its operations. We believe the appointment o

Police Advisor and support unit, a new Economic/Environme

ordinator, the Special Representative for Combating Terrori

the Counterterrorism Unit are positive steps in improving th

of the OSCE to operationalize its commitments. We fully suppo

activities.

LEGAL STATUS

Many participating states have also sought to give the organ

a legal status equivalent to that of the United Nations. By c

the United States is satisfied with the way the OSCE is cu

structured and does not believe fundamental changes to its leg

are needed. However, most of the support for granting the 

“legal personality” revolves around concerns for the protectio

sonnel and the need for the organization’s missions to functio

tively. For this reason, the United States supports developm

convention that would provide privileges and immunities to the 

officials and employees and authorize the OSCE to enter in

contracts.

SCALES OF ASSESSMENT

The United States is committed to the principle of burden 

in funding OSCE activities. Last year, a number of States 

adoption of the OSCE budget, insisting they were assessed a

sive rates. Earlier this year, after many months of negotiat

OSCE adopted a new scale of assessments that will extend u

end of 2004, for the funding of the OSCE Secretariat, instituti

most OSCE Missions. The U.S. share remained at 9 percent. 

tion, last year the United States agreed to an increase in our 

assessment for large missions from 12 percent to 13.57 percen

tive in 2002. Negotiations are underway over development of 

odology for new scales starting in 2005. Ensuring that burden 

is reflected in the adoption of these scales remains the highe

ity for the United States in these negotiations.

CONCLUSION

Mr. Chairman, we believe that the OSCE is a growth ind

has important work to do in all three of its baskets. In the ma

missions operated by the OSCE the United States seeks to a

security, to promote economic development, and to increase 

for human rights. Our purpose is to create the conditions t

permit OSCE to continue to grow in all three of these dimens

that the organization will continue as a force for progress in th

Atlantic region for the foreseeable future. At the next Min

meeting and throughout the coming year, we hope to broa

efforts of the OSCE to combat counterterrorism, to prevent t

ing, to promote economic development, and to enhance the e

ness of the organization in improving the standard of respect 

man rights among all member states. Our task is to see that it 

relevant and responsive to the world in which we live.
BY HON. BEN NIGHTHORSE CAMPBELL

 TO HON. A. ELIZABETH JONES

POSSIBLE OSCE SUMMIT

Question: The last OSCE summit was held in Istanbul in 1

believe that a summit in 2003 is now timely and could give im

political direction f or concrete work. Is the Administration p

to support the convening of an OSCE Summit next year?

Answer: We believe an OSCE summit would have to be well-p

and substantive. We are looking at this issue, but have made 

sion.

ADMINISTRATION STATEMENTS ON CHECHNYA

Question: Recognizing the fact that there are ties between 

ements of the Chechen resistance and international terrori

still undoubtedly true that in its conduct in Chechnya, the 

Government is in violation of the OSCE Code of Conduct in 

with non-combatants in the context of an external conflict. A

tration representatives frequently meet with their Russian 

parts on a variety of issues. What public statements have Adm

tion officials made about Chechnya? What is the Russian res

Answer: Starting with President Bush and Secretary of State 

U.S. officials have raised the issue of Chechnya consistently w

Russian counterparts since they took office after the start of 

ond Chechen war in 1999. Administration officials, including 

bassador in Moscow and the Deputy Secretary of State have n

concern with Russian tactics in Chechnya and the apparent 

Government failure to enforce accountability for human righ

tions by Russian armed forces stationed there. While repea

support for Russia’s territorial integrity, we have noted man

that there can be no military solution to this conflict, and 

Russian Government should consider negotiations aimed at 

cal settlement in Chechnya with those Chechens not associa

international terrorism. We have noted with interest severa

informal proposals by Russian public figures aimed at a politica

ment in Chechnya. However, the mass hostage-taking by C

fighters in Moscow has cast a long shadow over hopes for a 

settlement.

Our response to this week’s unprecedented mass hostage t

Moscow by Chechen fighters has been to condemn it as an ac

rorism and to call for the immediate and unconditional relea

hostages.

FIGHTING CORRUPTION IN THE OSCE REGION

Question: Should the OSCE develop a comprehensive anti-co

strategy to be implemented by the participating states with 

of the OSCE field missions? Could the work of the OSCE 

Yerevan serve as a model?
nance activities in the OSCE area, noting that corruption and 

transparency are threats to the security and stability of OSC

ber states.

We will continue to work with the OSCE’s Economic Coordi

ensure that anti-corruption activities remain an integral par

OSCE’s ongoing activities. We would support the OSCE’s deve

of a comprehensive anti-corruption strategy to be impleme

the participating states with the help of the field missions. Th

is well placed to take advantage of both existing expertise in t

and experience accumulated through its active involvement in 

with corruption concerns.

The successful, government-supported initiative launched 

Head of Mission in Yerevan may prove a model for other mis

REFORMING THE OSCE

Question: There have been suggestions of reforming the OSC

reforms are under consideration and are there of any particula

est to the United States?

Answer: Discussions are underway with other delegations 

Chairman-in-Office (Portugal) to strengthen the OSCE and re

institutions and capacities. Topics of discussion include a Ha

for Heads of Missions, the establishment of a Chairmanship 

Unit in the Secretariat to facilitate the transitions between 

and the development of a strategy for adapting the OSCE to 

threats to security and stability in the 21st Century. Any refor

retain the flexibility and decentralization of the OSCE and sh

draw resources away from program activities.

OSCE MISSIONS IN SOUTHEAST EUROPE

Question: There appears to continue to be significant impro

in the overall political and economic situation in Southeast 

This has been an excellent example of partnership between the 

States and the EU and its member states and we are please

the EU playing an increasingly strong leadership role. How 

feel that the OSCE can best facilitate continued progress? Wo

premature to close down OSCE missions in the region, as m

advocating?

Answer: The OSCE continues to play a crucial role in main

regional stability, preserving multi-ethnic institutions, and st

ening democratic institutions in southeastern Europe. To fa

continued progress, the OSCE should maintain its focus on th

grams in which it has specific expertise, such as strengthen

man rights, monitoring elections and training law enforcem

Croatia, OSCE efforts have strengthened legislation to suppo

gee returns and ensured the government’s continued attentio

issue. OSCE support is critical to implementation of the Dayto

accords in Bosnia and the Framework Agreement in Maced

Serbia and Kosovo, the OSCE is engaged in combating the 

crime of trafficking in persons. OSCE oversight helped to ens

recent elections in the region were free and fair and that K

will be given the chance to elect a new provisional municipal 
improving and we do not see OSCE missions as permanent f

premature mission closure could send the wrong message 

governments that rule of law, refugee returns and democra

tions are no longer important to the international communit

THE ROLE OF THE OSCE SECRETARY GENERAL

Question: The position of the OSCE Secretary-General h

viewed as largely administrative in nature. Does the Unite

continue to view the position in this light? Would the Unite

support advertising for a pool of qualified administrators as p

tive candidates for that position?

Answer: The United States supports the work that OSCE S

General Kubis has done this year and commends his staff f

efforts.

The United States views the position of the Secretary Ge

largely administrative in nature but considers this position cr

supporting the Chairman-in-Office in furthering OSCE object

are exploring with other delegations ways in which this of

provide more support to the incoming Chairman-in-Office to f

smooth transition between chairmanships.

HUMAN RIGHTS IN UZBEKISTAN

Question: Can you explain the Department’s decision late th

mer to continue foreign aid to Uzbekistan given the many i

ments of human rights that persist due to the policies of P

Karimov. What role can the OSCE play in moving the Uzb

compliance with their OSCE commitments?

Answer: The U.S. Government reports objectively and as ac

as possible both the human rights abuses and the improvem

Uzbekistan. In making the determination to continue foreign 

found that the Government of Uzbekistan had indeed made p

in all five areas of the Framework Declaration: political (in

human rights) , military, economic, humanitarian and hu

sources, and legal assistance. We believe that there is a good 

of continuing progress as long as we remain engaged.

Progress on human rights and economic reform is a resu

creased U.S. Government influence and engagement in Uzb

The Government of Uzbekistan has registered a human righ

put police on trial, opened prisons to the International Comm

the Red Cross (three visits since August), invited the U.N. 

Rapporteur on Torture to visit (likely to take place at the en

vember or the beginning of December), and abolished formal 

ship.

While some of the steps taken by the Government of Uzb

may appear minor, they indicate that there is positive move

human rights and that our policy of intensified engagement p

dends. The Government of Uzbekistan still has far to go an

slowly, like many Central Asian governments. We will con

push the Government of Uzbekistan to make changes, howev

a truly open society with a rule of law and respect for human 

established.
Government of Uzbekistan on human rights and in offering t

programs, in particular in prison reform.

OSCE HIGH-LEVEL MEETING ON ORGANIZED CRIM

Question: You acknowledge that corruption is a multi-dime

problem throughout the OSCE region. Given the scope and 

posed by corruption and international crime, would the Depa

support the convening of a high-level OSCE meeting to explo

tical cooperation in combating this common threat?

Answer: The Administration is open to the idea of a high-le

ference that would enhance cooperation within the OSCE to 

this threat. Supporting the international fight against corrup

foreign policy priority for the Bush administration and has 

important part of U.S. foreign policy for some time, as the Pr

has made clear in several speeches.

In February 1999, we hosted the first Global Forum on F

Corruption and Safeguarding Integrity Among Justice and S

Officials. A follow-up conference was held in the Netherlands 

and the next forum will be in Korea in May 2003. Our goal has 

use diplomacy to forge government commitments to curb cor

and technical assistance designed to empower communities 

sist governments in addressing their corruption problems. 

also negotiating the first Global Anticorruption Convention

document expected to be completed over the next 2 years.

We have a law enforcement cooperation office in Brussel

U.S. Mission to the European Union and are working with th

strengthen legal cooperation and simplify the law enforceme

eration process, while respecting our diverse data protectio

We are also working closely together to combat terrorism, in

coordinated actions to list terrorists and go after their financ

works. We are also partners with the Council of Europe (CO

United States is a member of the Group of States against Cor

(GRECO) which carries out mutual evaluations of members’ c

ties to fight corruption.

The United States has tackled money laundering through 

nancial Action Task Force, (FATF) which was organized by 

and now has 29 states and two regional organizations as mem

Shortly after the September 2001 terrorist attacks on the 

States, FATF expanded its focus on money laundering to also 

terrorist financing. The IMF and World Bank have recently a

FATF’s recommendations against money laundering and terr

nancing as the international standards in these areas and w

them to their set of international standards and codes the Fu

Bank use in their financial sector assessments.

HUMAN RIGHTS IN KAZAKHSTAN

Question: On October 3, Reuters reported that the United 

and Kazakhstan have launched a multimillion-dollar partne

public and private-sector business interests to boost ties. W

you tell us about this? Considering Kazakhstan’s miserable 

rights record since September 11, what should President Naz
lieve trampling on human rights will negatively affect bilate

tions with the United States?

Answer: As we have noted, Kazakhstan’s record since Septem

2001 has been mixed. President Nazarbayev is well aware 

priorities, and we are convinced that the recent registratio

non-governmental organization Ak Zhol and the release from 

of the journalist Gulgeldi Annaniyazov reflect the Govern

Kazakhstan’s awareness of the U.S. view that Kazakhstan mu

progress in the field of human rights.

We believe that economic development plays an importan

improving Kazakhstan’s human rights record.

Consequently, on October 3, 2002, Kazakhstan’s Minister 

eign Affairs Kasymzhomart Tokayev and U.S. Ambassado

Napper announced the first phase of the Houston Initiative

Kazakhstan-American Business Development Partnership. T

nership was the result of a Kazakhstani proposal during P

Nazarbayev’s December 2001 visit to the United States.

In its first phase, the Houston Initiative will involve a U.S

bution of more than $10 million, which, in turn, will mobilize 

of dollars in support from international financial institution

vestment capital and loans to small and medium sized enterp

At the announcement ceremony, Ambassador Napper no

since economic prosperity and democracy go hand-in-hand

phases of the Houston Initiative will be implemented only if a

nied by enhanced rule of law, free and independent media, an

cal pluralism in Kazakhstan.

MOLDOVA AND ISTANBUL COMMITMENTS

Question: One of the successes of the OSCE was the timely 

cient withdrawal of Russian military equipment from Mold

year in conformity with the 1999 OSCE Istanbul Summit Do

Recently, the Deputy Commander of Russian ground forces wa

in the media stating that Part II of this agreement—withd

military personnel and remaining ammunition—would be co

by the end of this year. However, he also made reference to 

contingent of peacekeepers that would remain. It is our imp

that troop withdrawal and peacekeepers in Moldova are sep

sues. Is this the case? Is the Russian troop withdrawal on sch

Answer: While the Russians have completed the withdrawal 

CFE Treaty limited equipment from Moldova, they are also 

ted to remove their military forces from the region, includi

40,000 tons of munitions and 40,000 small arms. By any stand

Russian withdrawal is behind schedule. While OSCE states, in

the United States and others, have offered to assist with the 

this withdrawal via an OSCE Voluntary Fund, there has be

progress this calendar year. One trainload of ammunition dep

Russia in early October carrying about 500 tons of ammunit

other train is scheduled to leave the week of October 28.

The Russians blame this lack of progress on the Transdn

separatists, who have blocked progress. It is certainly the c

the Smirnov regime has been obstructionist.
the Russians, however, that this commitment is theirs to fulf

sia must take the lead in securing Tiraspol’s cooperation and 

ing results in withdrawing its forces from Moldova, as it comm

do in Istanbul.

The question of whether or not there will be a peacekee

stabilizing presence in Moldova in the wake of a political sett

as well as questions relating to how such a contingent might 

stituted and what its mandate would be is one that would be ad

in the context of the settlement negotiations between Mold

the Transdniestrian separatists.

The settlement discussions had, until recently, been procee

a constructive track, based on an OSCE plan which had the su

all the principal parties. In early September, howev

Transdniestrian side returned to former, maximalist positi

there has been no progress since. Development of plans for a 

keeping presence would only take place as a result of a politica

ment.

OSCE EXPENDITURES AND U.S. PRIORITIES

Question: Does the distribution of OSCE resources—in its fi

sions, the Office for Democratic Institutions and Human Rig

High Commissioner on National Minorities, and various train

grams—match the priorities for the United States for the OS

Answer: The OSCE’s deployment of resources follows fairly 

the United States priorities as set out in the current Europ

reau Program Plan (BPP). Approximately 80 percent of the 

budget deals with security issues, and about 60 percent of this 

is devoted to work in the Balkans—a high U.S. priority area. 

cated in the BPP, our main (non-consular) priorities 

counter-terrorism and global issues; regional stability and s

new NATO capabilities, members and relationships; and e

reform. Of these priorities, the OSCE is involved in all but tho

ing directly with NATO. Out of a total annual budget of Euros 187 million (approx

$180 million), the OSCE spends the following:

Counter-terrorism and Global Issues:

Counter-terrorism Unit: EU 389,200 (about 0.2 percent of tot

Office of Democratic Institutions and Human Rights (ODIH

8,453,600 (about 5 percent of total)

High Commissioner on National Minorities: EU 2,218,900 (

percent of total)

Representative on Freedom of the Media: EU 736,400 (about 

cent of total)

Regional Stability and Security:

Large OSCE Missions: EU 103,243,300 (about 55 percent of t

Other Missions and Field Operations: EU 47,173,900 (about 

cent of total)

Minsk Conference (covering negotiations over Nagorno

Karabakh): EU 2,129,300 (about 1 percent of total)
The Secretariat employs 13 full-time officials in its econom

tion who deal with economic reform issues (representing abou

cent of the Secretariat staff)

Note: In addition to the preceding budget items, the OSCE 

includes the following:

General Fund (Secretariat and administrative costs) EU 21,

(about 11 percent of total)

In addition, there is an amount of EU 1.9 million retained 

future decisions of the OSCE Permanent Council to approve ad

mission activities.

ECONOMIC DEVELOPMENT

Question: Extreme poverty and the lack of economic deve

and opportunity destabilize countries, hinder the growth of 

racy and can serve as a breeding ground for terrorism. Wh

can the OSCE take, in cooperation with other international o

tions, to assist participating States in promoting sustained e

growth? Do you think a broad-based effort to p

micro-enterprises would be helpful in this respect?

Answer: The Department is concerned with the destabilizin

of poverty, and as a consequence strongly encourages OSCE e

promote economic development. For example, the United Sta

rently partially funds OSCE field missions in Central Asia 

exploring ways to increase economic development. The OS

find enterprise promotion a useful tool as it works to amelior

erty. A key to a successful effort will be to ensure that th

works closely with the European Union and other organiza

well as with bilateral assistance institutions to find the mos

priate approach to economic assistance.
BY HON. GEORGE V. VOINOVICH

TO HON. A. ELIZABETH JONES

Question: What have the U.S. Government and other gover

done and what are they doing to address anti-Semitism in Eu

Answer: The promotion of both religious tolerance and religio

dom is a crucial element of both our domestic and foreign p

Secretary Powell has said, “We have no tolerance for intoleran

strongly condemn anti-Semitic activity and so do the leader

rope. Our embassies and consulates abroad are alert to anti-Sem

dents and routinely consult with host government counterpar

such incidents occur. Calls or outreach to Jewish leaders usu

low these consultations. We work with European leaders to 

the overall attitudes that generate these acts. The following 

amples of U.S. Government and European cooperation to comb

Semitism and to encourage religious harmony:

• President Chirac has adamantly condemned anti-Sem

committed in France. Ambassador Leach has raised th

his interlocutors in the Foreign, Interior, and Justice 

tries on numerous occasions, beginning with his first 

FM de Villepin. He has also had numerous meetings w

ish and Muslim groups. In response to anti-Semitic in

the French Government has stationed an additional 1

lice officers at Jewish religious and cultural sites.

• German leaders consistently condemn anti-Semitic ac

In an editorial in the Frankfurter Allgemeine Zeitung, 

Minister Fischer wrote, “The answer to our history c

be a positive one: a growing Jewish community in G

with Jewish people who can live here in freedom and 

as citizens—not second-class citizens—of our republic. 

tent to which we succeed in supporting the life and we

of the Jewish community in Germany is a measure of o

ity to create an open, tolerant society. Every anti-Sem

dent that occurs in Germany threatens not only Jews, 

society and democracy as a whole.” Similarly, after the 

16, 2002 bombing at the Jewish cemetery in Charlott

Berlin Mayor Wowereit spoke out forcefully, calling 

“shameful.” The German Government has also increas

rity around Jewish community and Israeli Governmen

ties. National, state and local government officials ha

ken out against recent and described threats to the 

community as threats to German society.

 The Belgian Government increased security around Je

ligious and cultural buildings. In a strongly worded sta

at a Jewish community event, Finance Minister R

stressed the importance of respect for all minorities a

beliefs.
ism and has supported legislation to promote religious an

tolerance. The American Embassy and consulates keep 

contact with the Jewish community and the Russian 

ment on this issue. At the same time, we remain conce

the Russian authorities’ denials of visas to a number o

nent foreign religious figures this year, including five 

Catholic priests (one of whom was a Bishop), other fore

sionaries, and the Dalai Lama, who had wanted to 

Buddhist co-religionists in Russia. These actions rai

tions about the Russian Government’s overall commit

religious freedom.

The Department of State also publishes the Annual Repor

ternational Religious Freedom and Country Reports on Human 

Both documents deal with anti-Semitism on a country-by-cou

sis. Intense study of the religious tolerance situation in Eur

Eurasia is an on-going, year-round activity. Preparation of t

ports takes into account embassy reporting and host governm

NGO input.
HON. LORNE W. CRANER, ASSISTANT SECRETARY

OF STATE FOR DEMOCRACY, HUMAN RIGHTS, AND LA

U.S. DEPARTMENT OF STATE

Mr. Chairman and Members of the Commission, it is a ple

join you again this year to reflect and consider U.S. policy tow

OSCE. As an Executive Branch appointee to the Commission

first-hand that members who serve on the Commission are tr

ers in the human rights field. Thank you for the time and ene

put into human rights work. I also want to thank the Com

staff for working closely and tirelessly with my staff.

It is almost exactly one year since I last spoke before the C

sion on this topic. At that last hearing, which was held short

September 11th, I gave you my firm assurance that this Adm

tion would not abandon human rights to fight the war on terr

vowed that we would continue to use the range of tools availab

to advocate for human rights and democracy, that we would c

to monitor and report accurately and comprehensively on 

rights situations around the globe, and that we would contin

gramming work to assist other countries in improving huma

infrastructure and policies, and in building democratic institu

I am honored to come before you today and say that we are w

hard to keep our promises. The President’s national security s

explicitly commits the U.S. to work actively to bring the hop

mocracy, development, free markets and free trade to every c

the world. We start from these core beliefs and look outward 

sibilities to expand liberty. Our goals are political and econom

dom, peaceful relations with states, and respect for human 

America must stand firm for the non-negotiable demands of 

dignity: rule of law; limits on the absolute power of the sta

speech; freedom of worship; equal justice; respect for wom

gious and ethnic tolerance; and, respect for private property.

We have been applying these same beliefs and objective

OSCE region. Since we last met on this subject I have travele

times to OSCE countries, including twice to Central Asia. I p

more trip this year, and one of my Deputy Assistant Secreta

been to the region three times, including two trips to partic

important OSCE meetings. My Principal Deputy Assistant Se

is going there right now. Our goal there has been to fully eng

countries of the region on important human rights issues and 

sure the message is heard that the U.S. Government holds fir

commitment to promoting democracy and human rights.

We have also remained vigilant in our monitoring duties. T

we released the Country Reports on Human Rights Practices f

which have been recognized as an honest, even-handed, an

account of country conditions.

Regarding my pledge to ensure that United States funding 

grammed to improve human rights and democracy infrastruc

obligated a substantial portion of Human Rights and Democrac

(HRDF) for hard-hitting democracy and human rights prog

numerous OSCE countries. This is in addition to the sig

amounts of funding from the SEED funds and Freedom Sup

that have also been programmed to support democracy initia
has continued to play a key role of influence in promoting de

and respect for human rights in the Euro-Atlantic region. 

members, it is in fact the only Euro-Atlantic institution with 

mandate. Since September 11, we have come to appreciate th

the OSCE even more, as a forum in which questions of both 

and human rights are brought together. No other institutio

world has this comprehensive approach to security. We are 

ted to support the OSCE and its various mechanisms where

sible, as a means of strengthening democracy across Europe 

countries of the former Soviet Union. Because of the OSCE’s 

hensive approach to security and human rights, I would like 

light the continued importance of the Human Dimension Im

tation Meeting, which took place last month in Warsaw. A

U.N. Commission on Human Rights, the Human Dimension 

is the most prestigious annual human rights gathering. Impo

it is also attracting a growing number of active NGOs as partic

a reliable barometer of democratic activity and the growth 

society. Once again, I would stress the important contribut

your Commission’s staff makes as part of the U.S. Delegatio

Human Dimension meeting every year, and my sincere appr

to you for making that effort.

We have witnessed great improvements in human rights

racy, and the rule of law in the countries of Southeast Europ

cent years, and the OSCE has played a major role in achievin

results. The successful conduct of the presidential elections i

on September 29, as verified by international observers, st

strong testimony to the increasing effectiveness of the OSC

ence in that country. In Albania, the OSCE presence, working 

with the EU and the United States, has contributed signific

increased political stability, regional security, and improve

order. In Macedonia, where ethnic tensions threatened to er

wide-scale conflict last year, constructive engagement by th

greatly contributed to implementing the Ohrid Agreements 

the holding of recent peaceful elections. Croatia, a country 

sented the OSCE mission presence for several years, has expe

a change of heart and is now working cooperatively with the 

zation. The OSCE mission in Croatia has made serious progr

past year toward the day the OSCE will be able to draw do

close the mission as it looks to allocate resources more eff

and address more pressing situations in the area. We look for

the day when conditions in the other countries of Southeast 

will permit other missions to follow suit.

Of course, challenges remain. I stated in my testimony l

that the countries of the former Soviet Union continue to 

some of the greatest challenges to the OSCE. This is equa

today. Although we have seen some positive steps over the pa

human rights observance has been mixed at best, and in ma

downright poor.

For example, the countries of Central Asia present a ver

picture. Tajikistan has made some notable gains this year; fre

media was appreciably increased when the government licen

first independent radio station in Dushanbe and dropped c

charges against exiled journalist Dododjon Atovulloev. When t
number of such groups increased dramatically. Abolishing ex

also was an important step forward. Yet harassment of jou

and media outlets continues. We therefore urge the Govern

Tajikistan to reform its media laws and especially to continue 

tations with OSCE officials in Dushanbe to ensure that the

conform with international standards. The Government of Ta

deserves praise for sanctioning political pluralism by allowing 

Islamic opposition political party in Central Asia to exist. Yet 

for pluralism to flourish, we urge the government to reform 

and party legislation to enable more parties to register and ca

freely during elections. Again, we believe the OSCE center in Du

can provide a valuable service in advising the government on 

able international standards.

Unfortunately, other countries of the region have not fared 

Turkmenistan remains a country with an extremely poor huma

record. The people of Turkmenistan remain without any of th

mental rights, including freedom of assembly and speech. W

are pleased that this year the government released Shageldy 

a well-known religious prisoner, and abolished exit visas, we 

very concerned about Turkmenistan’s lack of progress in a

democracy to develop.

In Kazahkstan, the year started off on a positive note with 

mation of a new democratic opposition movement and appea

much critical reporting in independent media outlets. By la

mer the situation had changed dramatically. Leading oppositi

ers Zakiyanov and Ablyazov have been sentenced to long priso

in trials for corruption that appear to have been politically mo

Newly enacted political party legislation will severely limit th

of smaller opposition parties to survive. And the independen

has been the victim of a consistent and persistent pattern of in

tion, ranging from firebombings of newspaper offices to malicio

ings of journalists. We continue to raise these disturbing issu

the Government of Kazakhstan.

Likewise, in Kyrgyzstan, events of the past year have rais

cerns. A draconian presidential decree severely restricted med

dom and a leading member of parliament was jailed on what a

to be politically motivated charges. The decree was later re

and the parliamentarian was cleared. A low point was reached i

when police shot and killed five unarmed demonstrators. Sin

the government has taken steps to redress citizen grievances

ing the formation of a Constitutional Council which includ

members of the opposition. As the Council proceeds to make 

ommendations on constitutional and governmental reform, w

that it will produce genuine reform that is reflective of the w

the people.

During the first half of the year we were heartened to s

small but significant steps forward to increase respect for huma

in Uzbekistan. The government granted the International C

tee of the Red Cross (ICRC) access to all detention facilities, t

ever human rights organization was registered, and law enfor

officials were convicted and received long prison sentences a

ing found guilty of torturing prisoners to death. However, a 

human rights group was recently denied registration and ha
of two prisoners due to torture. While the censorship board 

mally abolished, self-censorship remains a serious problem. 

pluralism will remain a distant goal as long as no opposition 

parties are registered. However, we note that Birlik has held 

of organizing conferences to prepare for formal registration.

In the Caucasus, we also have a number of concerns. Bu

want to highlight a series of important elections that will ta

in that area in the next 3 years. We will press for elections th

OSCE standards. Independent election commissions at all level

parent vote counting procedures, political pluralism, and a lev

ing field for all candidates, are among the elements essential fo

cratic elections.

In this connection, the U.S. is concerned that the consti

referendum held in Azerbaijan on August 24 did little to adva

country’s democratization. On the positive side, the governm

opposition appeared on prime-time TV debating the merits of 

posal. However, we were disappointed by the restrictions on d

monitoring, lack of election commission reform, limited time 

lic education, and failure to invite comments on the referendu

the OSCE or Council of Europe. Observations by internati

servers suggest that voting was marred by widespread irregu

of the kind noted in previous elections. Vote totals in precinct

U.S. and other international monitors were present greatly e

the level of participation observed. The substantial irregulari

a lack of transparency have raised questions about the credi

the referendum results.

 In Russia, the government continues to justify its militar

in Chechnya as part of the international war against terroris

ever, on the ground, reports of serious human rights violatio

even atrocities—emerge frequently after Russian security 

Such conduct only serves to alienate large parts of the Cheche

lation from the Russian State and to create support for the C

fighters and the international terrorists associated with the

far, there has been no meaningful accountability. Accounta

crucial not only to discourage further human rights violati

also as a means of diminishing support within the Chechen 

tion for the extremism that can occur in response to huma

abuses. The trial of Colonel Budanov will be an important ind

the commitment of federal authorities to combat impunity.

We also continue to be troubled by the undue influence of 

security services in a series of so-called “espionage” cases—

those of Pasko and Sutyagin—which appear to us to be po

motivated. Media freedom also remains a concern, including 

carious situation of TV-6, although our worst fears of 2 years 

the aftermath of the struggle over ownership of NTV—have 

terialized. In the “good news” category, Russia’s civil society and 

class both continue to grow, and official anti-Semitism hopef

thing of the past. President Putin himself has taken the lead 

demn publicly last summer’s rash of anti-Semitic bomb thre

attacks. However, the response of lower level officials to th

dents often has left room for improvement.
organizations played in this springs parliamentary elections. 

serious obstacles, Ukrainian civil society showed its power an

ence in a way previously unknown in Ukrainian politics. This 

say we do not have concerns about these elections; while th

noted progress over previous elections in some respects, the e

did not fully meet OSCE standards. The abuse of administra

sources, dramatic contrast between the party-list vote and the 

mandate results, the disqualification of a key opposition cand

the last moment of a by-election, and efforts to silence oppositio

show there is much room for improvement.

It has been 2 years since the disappearance and murder of j

ist Heorhiy Gongadze. This case has still not been properly 

gated. Conducting a transparent, independent investigation r

in meaningful accountability in this case is crucial not only 

relationship between Ukrainian authorities and civil society, 

for Ukraine’s standing in the international community. Such a

also needed in the case of murdered journalist Ihor Aleksand

election monitor Olexander Oliynyk, who disappeared follow

pressive efforts to promote free and fair parliamentary electi

In Belarus, Parliament recently passed a law on religion that 

ens religious freedom imposing an insurmountable hurdle fo

“non-traditional” faiths because it limits registration to those r

groups that have been present in Belarus for twenty years. Ci

ety increasingly is under attack by the Lukashenko regime. J

ists have been imprisoned and newspapers closed down. The 

ment has sought to crush all legitimate opposition. The Unite

has condemned the recent conviction for slander of the edito

publication Robochii, Viktor Ivashkevich, as another attemp

regime to silence its critics. Furthermore, members of NGO

been assaulted, fined, and imprisoned and opponents of the 

have disappeared. Under Lukashenka’s direction, the Pres

Guard—initially created to protect senior officials—continue

against the political enemies of the Lukashenka regime with 

cial or legislative oversight. Members of the security forces ha

mitted numerous serious human rights abuses. Meanwhile, th

dential election held last year failed to meet international sta

and, unless serious electoral reforms are adopted, local elect

pected in early 2003 will face the same fate.

Clearly the HDIM and other OSCE mechanisms including fi

sions and special representatives play important roles in addr

range of human rights violations. In Belarus, however, the OSC

a unique institutional challenge. The OSCE’s response to ef

the Lukashenko regime to shut down the OSCE’s field miss

set an important precedent. Other participating states will ta

of how the OSCE reacts. We are therefore discussing with oth

minded participating states possible consequences for Belaru

gard for the OSCE as an institution. These consequences may 

bilateral as well as multilateral components. We feel stron

the organization must respond to this challenge in real time. W

advised Belarus that failure to resolve this matter will likely 

it will be raised by the Ministers at the end of the year. As we c

what to do about countries that defy OSCE commitments, w

look not only to egregious violations, but also to the more subt
respect to religious freedom. We see governments across the N

sidering and in some cases adopting legislation to make their 

religion more restrictive. We see new restrictions on registr

religious organizations and visa difficulties increasing for fore

gious workers from minority religions. We hear of increasing 

of pressure on landlords not to rent space to minority religious 

and shadowy visits reminiscent of the Cold War days from m

in the Security Services who intimate that minority religions 

objects of security concerns.

While the challenges remain daunting, we are certain that th

can play a decisive role in promoting democracy and human 

The State Department is committed to the vision of using th

more productively to reinforce our own strategies for promo

mocracy and human rights. We see the OSCE as our natural 

in pursuing hard-hitting policies and supporting innovative p

There are two areas in particular, where I see a strong lea

role for my Bureau: the annual Human Dimension Impleme

Meeting (HDIM) and strategic planning for a new U.S. role in 

Asia.

As noted previously, aside from Geneva, we consider the H

be one of the premier fora for addressing human rights abuse

world. Last month’s HDIM expanded its broad focus on dem

institutions and rule of law to bring renewed attention 

Semitism, trafficking in persons, the Roma and Sinti comm

and torture—all issues that our delegation emphasized in in

tion statements presented at the meeting. We are working to 

that the integrity of the HDIM process enhances its impact.

As I mentioned at the outset, in the past year my staff has 

very closely with the staff of the Helsinki Commission, includ

staff member at U.S. OSCE mission, to improve the modaliti

HDIM. We were pleased by some of the improvements this 

cluding the hosting of the Permanent Council meeting as a pa

Closing Plenary Session. And, we were pleased to see man

Ambassadors in attendance.

But we would like to take the HDIM even further. Espec

would like to take advantage of the fruitful discussions at War

make them a larger part of the discussions of the Permanent 

For example, in the context of the leading issue we are facin

the need to respect human rights while combating terrorism 

importance of democracy and human rights observance for e

ing the conditions that breed terrorism—we would like to s

type of follow-up meeting.

Mr. Chairman, in the year since I last testified to this Com

we have seen the liberation of Afghanistan, which brought w

major reduction in terrorist threat in Central Asia. The defe

Taliban was also the defeat of the violent extremists threate

internal security of the Central Asian republics.

In opening remarks to the Afghan Reconstruction Group, S

Powell recently emphasized the importance of human rights w

said, “Perhaps most important of all for the long-term stabili

country, we must help to strengthen the country’s fledgling 

tions; in particular, we must provide resources and expertise 
groundwork for a vibrant civil society, the rule of law and acco

and transparent government.”

Reduced threats to internal stability mean these authorita

gimes now have the political space to turn to internal political 

Indeed, this Administration, from President Bush, to Secretary 

on down to each of our Ambassadors, has made it clear that 

ing cooperation with the U.S. will depend on expanded poli

form. And with the exception of Turkmenistan, the governm

the region seem to understand the importance of this impera

have taken some encouraging steps toward reform.

This puts the OSCE in the advantageous position to offer t

prehensive array of assistance needed, from economic, to sec

political. The OSCE can fill an important role in conflict pre

by balancing all three of these dimensions.

My Bureau is prepared to work closely with the OSCE o

issues. In November I plan to travel to Vienna to participate 

sultations with key donors about priorities for democracy ass

in Central Asia. While there I hope to be a keynote speak

Special Meeting of the Permanent Council to discuss the det

ing political situation in Central Asia and what the OSCE c

doing to address it, concentrating on concrete ways that th

can feed a Central Asian focus into the Porto Ministerial in 

ber.

I will also be traveling for my third trip to the region this 

kick off two important OSCE-sponsored initiatives. In Tashken

to attend the opening session of a roundtable with NGO and 

Government participants to discuss the recent recommenda

the U.N. Committee on Torture. Their report could form the b

developing a comprehensive anti-torture strategy, which sh

clude human rights training conducted by the OSCE. In Bis

will be visiting the newly opened Media Support Center that wi

the first independent printing press in Kyrgyzstan.

There are other areas where I see synergy between the ini

of the United States and the OSCE. For example, in Uzbekistan

we are using our Human Rights and Democracy Fund to est

series of resource centers for HR NGOs, we are working w

OSCE mission in Tashkent to place lawyers in those centers 

vide badly needed legal counsel for Human Rights defender

harassment by government authorities.

In other areas we envision supporting OSCE efforts to e

regional training centers that would provide technical trai

various security issues, such as counter-narcotics and border s

that would have an explicit human rights component. In clo

me make clear again that we continue to recognize the OSC

increasingly dynamic partner in our efforts in furthering pea

bility, and democratic reform in Europe. Through our OSCE m

abroad, the Permanent Council in Vienna, and, of course, the 

Office for Democratic Institutions and Human Rights in Vie

continue to labor to help OSCE’s participating states to fulfil

sic human rights mission. That mission—to ensure full res

human rights and fundamental freedoms, to abide by the rul

to promote principles of democracy, and to build, strengthen, a

tect democratic institutions, as well as to promote tolerance t
people of the OSCE states. We understand that attaining su

goals that embrace basic human rights can be accomplish

through vigorous and spirited actions—with an unrelenting 

the necessary resources to carry on. We have, and will cont

demonstrate our will, as in the delivery of our interventio

ments at the recent HDIM meeting in Warsaw in which we ad

such issues as the increasing need for democratic institutions 

rule of law, eliminating torture, promoting tolerance, and res

and guaranteeing the basic freedoms of religion, assembly 

media.

While our goals remain visionary, our approach must be s

and adaptable; we understand that our initiatives must fin

ground in areas such as Central Asia that are still struggling 

bility with little historical tradition of freedom and human right

ness to show the path. Through the OSCE we continue to give 

pating states guidance on constitutional and legislative ref

nurture democratic political institutions. As a member state 

tinue to remind our OSCE partners of their commitments an

obligations to the international community to protect and de

fundamental human rights of their citizens. Where we se

struggles yielding success, we acknowledge the results and 

age their expansion; where we see patterns of failure or lang

commitment to meet these obligations, we seek intervention

derstand that many countries are capable of doing more and 

out opportunities to assist them to build the foundation essen

democratic society.

Mr. Chairman, I take this opportunity to state once again m

nition of the Helsinki Commission as an integral part 

government’s commitment to the cause of human rights. Yo

mitment, and that of your members and staff, stands as str

dence of our will to further the respect and guarantee of the

freedoms.

Again, thank you for conducting this timely hearing and fo

me the opportunity to confirm our continuing commitmen

cause of human rights and democracy.
BY HON. BEN NIGHTHORSE CAMPBELL TO

HON. LORNE W. CRANER

CENTRAL ASIA: OSCE’S ROLE

Question: Some observers have suggested that the human 

situation in some countries, such as Turkmenistan, which 

more and more to be the North Korea of the OSCE, is so bad th

should be suspended from the OSCE the way Yugoslavia was 

Is there a point where the OSCE no longer plays a construct

and, on the contrary, inadvertently lends a veneer of legitim

brutal regime?

Answer: Turkmenistan’s human rights record remains ex

poor. Government repression in Turkmenistan of political op

and civil society remains a particular concern as does abuse b

and other law enforcement officials. There are severe restric

freedom of speech and media. Issues of religious freedom ar

concern. Our human rights and religious freedom reports pr

detailed picture of the situation in Turkmenistan.

The OSCE continues to be an important forum to discuss 

rights issues and promote steps toward democracy in Centr

We continue to raise human rights issues at the highest l

these governments and are in the process of expanding progra

that promotes the basic elements of democracy and a vibra

society. Continued U.S. and OSCE involvement is essential i

to have hope of change in Turkmenistan.

CENTRAL ASIA: MECHANISMS TO RAISE HUMAN RIGH

CONCERNS

Question: As I mentioned in my opening remarks, consis

important when delivering expressions of concern over huma

violations. Are there mechanisms in place to ensure that huma

cases and concerns are being raised by U.S. embassies in the 

Asian countries and other OSCE countries where serious vi

are taking place?

Answer: Since September 11, our new relationship with Centr

governments have made it possible to press on human right

vigorously. Both bilaterally and through organizations such 

OSCE, we continue to raise concerns regarding human right

develop programs that foster democratic development and 

rights protection. Our assistance programs are designed to fo

litical and economic reform, with a particular emphasis on in

ing the successor generation.

Given the need for both economic and political development 

tral Asia, the United States needs to encourage the develop

democratic institutions that respect human rights along with 

to broaden the role of the OSCE in Central Asia. We have dev

plan of action for increased OSCE involvement in the Centra

region that includes working to improve rule of law, judicial 

and police training, and combating terrorist financing as w

combat trafficking in persons. We are also exploring ways t

use the HDIM to press these issues. At every step of the way

working closely with the United States, OSCE and with Emba

ensure that programs are not duplicated.
RIGHTS RECORD QUESTION

Question: How would you measure the record of compliance 

of our newfound allies in the war on terrorism—specifically, Uzb

and Kyrgyzstan? Have their human rights records improve

last year?

Answer: The Government of Uzbekistan still has very far 

improving its overall human rights record, which remains p

we continue to stress the importance of continuous improvem

human rights to our bilateral relationship. However, in th

months of 2002, the Government of Uzbekistan took small bu

cant steps to improve its human rights record. It has regi

human rights NGO, put police on trial, opened prisons to IC

vited the U.N. Special Rapporteur on Torture to visit (visit 

take place during the last week of November/first week of D

2002), and abolished formal censorship.

For most of the past year, democracy and human rights in Kyr

have worsened, symbolized by the jailing of parliamentarian A

Beknazorov and the killing of five unarmed protesters in Ma

spite this, Kyrgyzstan’s Government has recently taken incr

steps to advance political reforms and human rights in Kyrg

Mr. Beknazarov was released and law enforcement officials ha

indicted in connection with the protesters’ deaths. In May, 

ernment proposed four draft laws to Parliament for consid

creating an ombudsman, freedom of assembly, fighting cor

and on political extremism. The government also rescinded 

Number 20, which restricted freedom of the press; however

left the door open to the possibility of imposing new measure

trol publishing. On June 1, President Akayev raised the statu

Assembly of People of Kyrgyzstan, a pro-presidential group w

resentatives of each ethnic group, tasking it to form a Council o

cratic Security and to draft a Democratic Code. More recentl

dent Akayev has reached out to some opposition elements 

calling for: greater efforts to root out corruption, the decentra

of power through constitutional reform, and increased accoun

by government officials to the populace. While much is still n

about the outcome of the events of the last several months, c

ety appears to be the victor. Despite Kyrgyz Government atte

weaken it, independent politicians, journalists, activists, and 

mentarians were able to rally public support for changeover 

few months.

UKRAINE: GONGADZE CASE

Question: More than 2 years have passed without the resol

the case of murdered independent journalist Georgiy Gonga

peated expressions of concern and efforts about this case dir

Ukrainian authorities by this Commission, the State Departm

the OSCE have been met with stonewalling and obfuscatio

can you tell us about how the investigation is proceeding?
Government—including at the highest levels—has pressed t

ernment of Ukraine to conduct a prompt, credible and tran

investigation into the abduction and murder of Gongadze. W

repeatedly offered assistance to the investigation.

This investigation has been of such a high priority to the U

ernment that an FBI team assisted in the identification of t

At the Government of Ukraine’s request, an FBI team tra

Ukraine to offer assistance earlier this year, but returned aft

denied access to key evidence.

We have told Ukrainian authorities and affirmed to the i

tional community that the absence of a prompt, credible an

parent investigation damages Ukraine’s reputation and calls in

tion Ukraine’s commitment to democratic principles and the 

law. We believe that the multilateral decision to invite Ukrain

observer, not as a full participant, to the Community of Dem

Ministerial Meeting will also reinforce to Ukrainian authorit

other countries share our concerns. We remain displeased in 

sponse of the Government of Ukraine to the disappearance a

der of Gongadze. The U.S. Government will continue to urge 

Government of Ukraine conduct transparent and credible in

tions into this and other crimes against journalists and more 

encourage the Government of Ukraine to take steps to crea

mate in which the independent media can pursue its busines

fear of intimidation or threat.

BELARUS: DEATH SQUAD

Question: The Administration, this Commission and othe

called on the Belarusian Government to conduct a thorough

tial investigation of credible allegations that the Lukashenka 

organized a death squad responsible for the murders of op

members and journalists. Have you seen any kind of a willing

the Belarusian authorities to make progress on this matter?

Answer: The cases of the disappeared remain unresolved. A

a trial was held on the kidnapping of journalist Dmitry Zavad

have seen no evidence of willingness by the Belarusian autho

make progress on the matter of accountability for giving the 

a death squad to murder 3 opposition members and Zavadsky

pleased that both the Russian Duma and the Parliamentary A

of the Council of Europe (PACE) have announced their inte

hold independent hearings on these cases. We continue to p

importance of accountability for these cases with Belarusian 

and in OSCE meetings.

RUSSIA: CHECHNYA

Question: Information received from the OSCE Assistance G

Chechnya, as well as other non-government organizations, 

that Russian authorities plan to forcibly return internally di

persons to Chechnya, and Grozny, in particular. The Commiss

written to President Putin and urged him to ensure that th

nally displaced persons seeking refuge in Ingushetia, and els

in the Russian Federation, are not forcibly returned to any l
ing unavailable. Has the administration raised this issue w

Russian Government? If so, what has been the response?

Answer: The Russian Government, together with local off

Chechnya and Ingushetia, has announced plans to return the 

mately 100,000 Chechen IDPs now in Ingushetia to their ho

support of its official position that the situation in Chechny

malizing. We have seen reports that some of the IDP retur

have occurred inside Chechnya to date have not been fully vo

We have not seen any reports of forced returns from Ingushe

are concerned by reports that some of the 1DPs who have retu

Grozny were provided inadequate temporary housing with po

tation and in areas subject to rebel attacks and Russian military 

We have received written assurances from the Russian Gove

that it will strictly adhere to the policy of only voluntary ret

IDPs. Russian Federal officials recently stated to the Russia

that they do not expect all IDPs to be able to return to Chec

the end of the year, as initially planned. These officials have s

IDPs remaining in Ingushetia are being moved to more per

winterized housing and are expected to remain in Ingushetia 

winter. However, we are concerned that new housing facilit

lack heat, adequate water and sanitation, and other essential 

for IDPs.

We and international aid organizations have pressed Rus

thorities at the federal and local levels to make any and all 

voluntary, and to provide IDPs with a viable option to stay, in

adequate and winterized housing.

MACEDONIA: WAR CRIMES

Question: Following the signing of the Madrid Framework 

ment, Macedonia’s parliament in March 2001 passed an amn

which granted amnesty to former KLA fighters accused of 

ting crimes related to Macedonia’s 2001 conflict. War Crimes 

der the jurisdiction of the ICTY. The law has not been fully 

mented, however. Ali Ahmeti, leader of the largest ethnic A

party in Parliament, is one of the 14 MPs who are former K

manders, many of whom have outstanding arrest warrants a

detainment if they take their seats in Parliament. Many of t

rants related to alleged war crimes, which the Govern

Macedonia maintains are exempt from the law. NATO maintai

can be no domestic prosecution of war crimes in Macedonia a

is our understanding the ICTY has not ruled out that possi

seems that such an ambiguous policy would open the situatio

ploitation by nationalists on both sides. A full implementatio

amnesty law is clearly in the interest of maintaining sta

Macedonia. Do OSCE, NATO and ICTY have different appr

What is the U.S. Government doing to resolve these differenc

is there not a “rules of the road” approach similar to that whic

in Bosnia?

Answer: Macedonia’s amnesty law excludes persons who ha

mitted criminal acts related to, and in connection with, the 2

flict, which are under the jurisdiction of ICTY and for whic
its prosecutorial primacy in five cases, some of which cover 

charges brought by the Government of Macedonia against Ali 

and other former KLA commanders. ICTY will review whe

assert primacy in any additional war crimes cases on a case

basis. An ICTY assertion of primacy in a case requires Mac

authorities to halt court proceedings in the case.

It is within the purview of Macedonia’s courts to interpret 

termine applicability of the amnesty law. Since passage of 

there have been instances where arrests have been made for 

that may fall under the amnesty, and there may be outstandin

warrants for crimes that may fall under the amnesty. Mac

courts must decide on the applicability of the amnesty law 

instances. Where an alleged crime appears to fall under the 

jurisdiction, the ICTY would review and decide whether to as

macy and prosecute. If the courts deem that the crime does 

under ICTY jurisdiction and that the crime is not excluded fr

nesty by any other provision of the law, the charges must be 

and any detainment ended.

It is conceivable that ICTY could vet a case, decide that it c

a matter that falls under the ICTY’s jurisdiction, but then de

prosecute the case. There has been disagreement between i

tional community representatives and officials of the o

Macedonian Government over whether, under the Amnes

Macedonian authorities would then be free to pursue the ca

cussions on a possible rules of the road” approach are ongoin

early on, we have engaged with NATO, OSCE, and ICTY repr

tives on the way forward. (This coordination will continue as w

with our international community partners and with the new 

ing Macedonian Government and the Macedonian courts as t

ply the amnesty law to ensure its fair and full application and 

vent its exploitation by nationalists.

OSCE/ODIHR: NEW ELECTION STANDARDS

Question: The OSCE Office for Democratic Institutions and 

Rights (ODIHR) is currently floating a paper that discusses 

new election standards. As I understand it, this is an idea t

put forward by Russia, and the OSCE staff are doing the draf

you believe, as the Russians seemingly do, that new OSCE sta

are needed?

Answer: Our understanding is that the OSCE ODIHR is deve

paper that takes inventory of existing international standards fo

cratic elections adopted in international fora including the OSC

and COE. The initiative to conduct such an inventory came f

ODIHR, not from Russia. We believe that existing standards a

comprehensive and are not convinced that new standards ar

sary, but look forward to ODIHR’s inventory, which may expo

ing gaps. Given ODIHR’S well-established track record promot

tions that meet OSCE standards, we believe that it is unlik

ODIHR would introduce a document on elections that would u

its ability to continue this work. We will monitor this closely a

with other delegations in determining the best way to promot

ence to Copenhagen Document principles.
Question: Electoral procedures have been a focal point of O

tivity for roughly a decade. Over time, however, there has 

growing unwillingness to use the phrase “free and fair” and to 

it with more anodyne phrases. Why do you think this is th

How can the United States contribute to the reestablishm

genuine commitment to free and fair as the proper standard 

tions in the OSCE? Or do you have another standard you believ

be more appropriate?

Answer: The OSCE’S Office of Democratic Institutions and 

Rights (ODIHR) has begun using the term “democratic elect

the sentence of its election reports that provides an overall 

ment because this term is more comprehensive and rigorous t

term “free and fair.” As derived from the Copenhagen Docum

as the ODIHR Election Observation Handbook explicitly state

cratic elections require 7 criteria: they must be universal, secr

fair, equal, accountable, and transparent. In the executive su

and body of ODIHR’S election reports, it continues to evalu

extent to which elections have met these 7 criteria. For exam

executive summary of ODIHR’S final report on the 2001 pres

election in Belarus stated, “Already during the months lead

September, conditions in Belarus were such that the president

tion could not meet the OSCE commitments for a free, fai

transparent and accountable election.” We will continue to 

closely ODIHR’s election standards and their application in 

assessments. Please let us know if you have additional conce

Question: H.Con. Res. 422, which was introduced by Co-Ch

Smith earlier this year, among other things, calls on the Gove

of Kazakhstan to take every necessary step to make possible 

turn of exiled political leaders, most notably former Prime M

Akezhan Kazhegeldin. What are you and the State Departme

to help ensure that opposition political activists can operate s

Kazakhstan?

Answer: Despite the obvious harassment of opposition lead

the independent media, we see the emergence of nascent, f

democratic forces that merit support. DRL therefore is increa

support for political party development work in Kazakhstan 

a $500,000 regional grant to the International Republican In

DRL is also funding a project to support an extensive train

gram for independent journalists in all of Central Asia, in

Kazakhstan. This program will train and support journalis

crease coverage of human rights issues, allowing them to 

human rights abuses and expose corruption in the region, p

the information citizens need to judge those in authority.

The U.S. Government has been a forceful public critic of Kazakh

human rights record in press statements, the Country Repor

man Rights and the Report on International Religious Freed

maintain an ongoing dialogue with high governmental official

as with opposition and independent journalists and have a v

assistance program geared to promote democratic values. Mo

projects in Central Asia are regional, but in FY02, approx

$390,000 of DRL’s larger regional budget was spent in Kazakh
number of democracy and governance programs in Kazakhst

has $500,000 over 3 years to promote civic advocacy and cam

through NGOs; ABA/CEELI is implementing a $400,000 rul

program; Counterpart, ISAR and Transparency Internation

been granted a total of $800,000 for civil society program

Internews has $980,000 for media programs in Kazakhstan. 

in Kazakhstan in November 2002 for the second time this 

meet with senior government officials and members of the i

dent media and opposition to discuss these issues.

KAZAKHSTAN: PRINTING PRESS

Question: The State Department has been looking into the p

of establishing an independent printing press in Kazakhstan f

time. Where does this issue stand?

Answer: While we remain concerned about the state of indep

media in Kazakhstan, the State Department does not curren

plans to establish an independent printing press in the coun

have looked into this question carefully. In 2001, the Departme

missioned an assessment of the financial, legal, political clim

the journalistic capacity to support independent presses in Kaz

and Kyrgyzstan. On the basis of this assessment, the Depar

Bureau for Democracy, Human Rights amid Labor is launchin

project to support an independent press in Kyrgyzstan.

For Kazakhstan, we believe currently that technical suppo

independent media is the best use of limited assistance re

This assistance includes hands-on journalism and managemen

ing and equipment and production grants for media profession

outlets. Because television remains the medium of the mas

bulk of our technical assistance has been directed at broadcas

While some opposition outlets have recently been shut d

sold off, the independent party Ak Zhol has rolled out two nat

newspapers (Kazakh- and Russian-language), which are being 

and distributed so far without obstacles even as they addres

like corruption, attacks on the media, and the need for dem

reform. These newspapers, with a combined circulation of 25,

printed on privately owned press.
ROBERT TEMPLER, ASIA PROGRAM DIRECTOR,

INTERNATIONAL CRISIS GROUP

THE OSCE IN CENTRAL ASIA: A NEW STRATEGY

ICG ASIA REPORT NO. 38

11 SEPTEMBER 2002

EXECUTIVE SUMMARY AND RECOMMENDATIONS

The Organisation for Security and Cooperation in Europe 

emerged in a wave of euphoria surrounding the events of 

1980s in the former Soviet bloc. Building on the achievemen

predecessor, the Conference on Security and Cooperation in 

(CSCE), it has played a key role in state-building and democra

in many areas of Central and Eastern Europe and the forme

Union.

The five newly independent Central Asian states that emerg

the collapse of the USSR were original members of the orga

but movement towards democracy and open economies has be

slower than in Europe. As a result, in Central Asia the OSCE is 

in five states with non-democratic systems of government t

quently flout the commitments on which the organisation is 

Many of these states are weak and have not yet develope

civil societies. Socio-economic disaffection is high. Political e

has provoked radicalisation among fringe Islamist and other 

who have sometimes turned to violence. The consolidation o

by small elites has excluded others from the political process, 

stirring political tensions.

Despite the region’s obvious needs, Central Asia gets onl

fraction of OSCE attention. The organisation devotes less th

cent of the total budget to its missions and programs in the fiv

and the former have only about 30 international officers, out o

OSCE field presence of nearly 3,500. This low level of staffing 

the result of resistance on the part of Central Asian hosts relu

see more resources committed to monitoring their behaviou

also illustrates a lack of interest among other participating S

a region that until September 2001 seemed often remote an

portant.

Discussions and reports on the role of the organisation in 

Asia are not new. Until now little has really changed. Howe

new global security environment is forcing the OSCE to thi

about its own future. As the European Union (EU) grows and 

additional foreign policy tasks, and NATO expands and adopts 

the “soft” security issues that were once the OSCE’s prese

OSCE is increasingly seeking a new purpose for itself.

At the same time, Central Asia is facing considerable chan

increased international presence is undermining some old cer

about the region, and there is a new opportunity for engagem

OSCE still faces a difficult political environment, and host 

ments often view it with considerable suspicion. But a win

opened, at least briefly. In many ways, the OSCE, with its 
or other international organisations to take advantage of these 

and respond rapidly to events.

This report focuses on three issues:

 establishing a long-term strategic concept of what the O

for and what it can accomplish in Central Asia;  increasing OSCE influence with and importance to h

ernments in the region; and  making changes to structure and staffing to enable O

carry out its tasks.

Given its structural constraints–a one-year chairmanship, 

mandates for missions in some states, and short-term secondm

staff–it is not surprising that the OSCE has failed to develop 

term strategy in Central Asia. But it is vital that it has a 

vision of what it is for and what it wants to do. The primary s

focus should be conflict prevention. The potential for conflic

from a wide range of sources, but mainly from poor security 

declining socio-economic opportunities, and authoritarian 

cultures and institutions.

A new strategy would strongly emphasise efforts to devel

effective approaches to security in each state; to build up e

development potential at all levels, and to expand political plu

This requires activities and projects that cross the three classica

dimensions: politico-security; economic and environment; 

human dimension. It will require more work on the economic 

sion (and a much clearer idea of what it is), and in political a

tary affairs, but brought together with key elements of the 

dimension to produce the comprehensive security concept o

the OSCE is based.

To have real impact, however, the OSCE needs to build up i

ence with governments in the region. One way, after comple

strategy review, is to make its activities more relevant for th

eties. But it also needs to link its activities to those of inst

with greater resources. There is increasing understanding in 

tional financial institutions that government lending or intern

investment is worse than useless without commensurate cha

political structures and economic policy. Closer coordination w

nors and lenders, such as the European Bank for Reconstruct

Development (EBRD), the World Bank, the Asian Developme

(ADB) and the EU would provide real leverage for the OSCE

Changing the focus of the OSCE in Central Asia cannot 

without changing its central structures and the way that m

work in the field. The very different demands on missions in 

Asia from those in post-conflict situations in the Balkans sh

reflected in more support from central institutions. A mor

secretariat with a real core of regional expertise would enabl

sis and planning to feed better into activities and program

coordination between disparate institutions would produc

policy. Staff recruitment and training need to be improved.

The OSCE is an organisation whose decisions are reached 

sensus among 55 participating States. Understandably, ac

change is a struggle. But if participating States are serious ab
to be mustered for a significant shift in emphasis. The altern

for the OSCE to fade into irrelevance, as the political paths of 

Asian states take them further away from the ideals on wh

organisation was founded.

RECOMMENDATIONS

To the OSCE Chairman-in-Office:

1. Make Central Asia a major priority, using high-level a

regular diplomatic missions to the region to raise the 

credibility and visibility with host governments.

2. Set up an inter-institutional working group to develo

ties for Central Asia, including the Secretariat, field m

ODIHR and HCNM, and the Conflict Prevention Cen

where appropriate, outside experts.

3. Use this working group, in consultation with field m

both to develop long-term strategies and coherent twelv

work plans with prioritised and interrelated projects th

the classical OSCE dimensions:

(a) the economic dimension should be expanded an

cus shifted towards political aspects of developm

cluding rule of law, governance, and corruption; (b) the politico-military dimension should increase 

phasis on policing issues (with special attention 

arms and light weapons and drugs trafficking)

der procedures and good offices to delimit bord

on involving civil society involvement in security 

(c) the human dimension must retain its strong role 

toring and reporting on human rights issues, whi

ing more closely with the other two dimensions

4. Focus on a few areas of real significance for conflict pre

that involve follow-up and long-term commitment, inc

(a) border projects promoting freedom of movemen

tive security and cross-border trade; (b) bringing international experience to bear on cor

as an obstacle to economic growth and political 

(c) security sector programs that direct attention to 

problems of unreformed law enforcement agen

provide training on internationally accepted pro

and standards;

(d) continued emphasis on human rights and demo

tion, with more effort to promote development 

tive political institutions, including opposition 

and real political dialogue; (e) greater emphasis on rule of law in business thro

grams to support legislation and its implementa

forcement for small and medium sized business

as judicial enforcement of contracts, and, mor

ally, on developing the legal expertise of institu
foster a more professional, objective and indep

press; and

5. Create additional leverage for the OSCE by developin

closer relations with donor and lender organisations, 

ticular with the EU and the EBRD, as well as the ADB

To the participating States:

6. Develop a Central Asian Support Fund, administered 

Secretariat that upon application from the field missi

assist projects, in particular those in the first and se

mensions.

7. Convert the Forum for Security Cooperation into a re

rity body for the OSCE that groups policing issues, bo

sues and other first dimension areas into one coheren

8. Develop the economic dimension by strengthening i

date to include rule of law and good governance issu

commensurate staffing and regional expertise.

9. Strengthen the role of the Secretary General as proba

only way to give OSCE the visible leadership it needs.

10. Improve the quality of staff at all levels in missions 

better recruitment procedures, training, and gender b

11. Establish a new procedure for appointing heads of m

which emphasises appropriate qualifications over polit

alties.

12. Establish an expert group via the “Moscow mechanism

port on Turkmenistan’s observance of OSCE commitm

13. Propose a partnership agreement with Afghanistan as 

of improving cross-border cooperation.

To the High Commissioner on National Minorities:

14. Adopt a more proactive stance towards Central Asia, in

early visits to Uzbekistan and Turkmenistan.

15. Provide legal expertise on draft laws relating to natio

norities as they are raised/ discussed in each country.

16. Encourage the integration of nationality issues into 

projects and activities of field missions and other OSC

tutions.

For the full report, see <<http://www.intl-crisis-group.org>
 	








  	

 

	
 	 



  

  




   

 


    

	



	
  
  


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