SCENE SETTER FOR GULF OF GUINEA MINISTERIAL CONFERENCE,

UNCLAS SECTION 01 OF 04 COTONOU 001107

SIPDIS

C O R R E C T E D C O P Y-- ADDEE

SENSITIVE
SIPDIS

FOR AF A/S FRAZER

E.O. 12958: N/A
TAGS: EWWT MARR MASS PREL PGOV PINR CASC BN
SUBJECT: SCENE SETTER FOR GULF OF GUINEA MINISTERIAL CONFERENCE,
COTONOU, BENIN

REF: COTONOU 972

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1. (SBU) SUMMARY: Post welcomes your participation in the Government
of Benin (GOB)-ACSS hosted Gulf of Guinea Ministerial Conference on
Maritime Security in Cotonou, November 13-14, 2006. Your visit
highlights USG support for security and safety initiatives in the
Gulf of Guinea. The conference takes place under the aegis of
Benin's new pro-US President Boni Yayi, elected in widely acclaimed
free, fair and transparent March 2006 presidential election, whose
success many here attribute to the USG role.


2. (SBU) Your presence will reinforce existing strong bilateral
relations as demonstrated by the new Millenium Challenge Compact
(MCC) that entered into force on October 9 and ongoing USAID, Peace
Corps, and DOD programs. Benin is also on track for the Women's
Justice and Empowerment Initiative (WJEI),receptive to the
President's Malaria Initiative (PMI),and a viable candidate for the
World Bank's Fast Track Program in education. You also will meet
with the President and Foreign Affairs and Defense Ministers and
participate in a roundtable with Finance, Commerce and Agriculture
Ministers on trade and investment issues. This is a much-appreciated
opportunity to meet and greet Mission staff. Outreach on avian flu
to Amcits continues, and the Mission is seeking a site for
construction of a new embassy. There is little anti-Americanism,
and the USG is very popular with the GOB, press, and general
population. However, petty crime is a problem. END SUMMARY.

KEY ISSUES: MAKING THE DEMOCRATIC DIVIDEND PAY
-------------- -


3. (SBU) Benin President Boni Yayi assumed office with a strong
mandate, having won 75 percent of the run-off vote. Despite Benin's
political stability, economic growth over the past several years has
been disappointing. The country has few natural advantages or
resources to spur growth or endow it with geo-political strategic
importance. It is only Benin's democratic tradition that has
qualified Benin to feature on almost every list of beneficiaries for
various aid programs such as Millennium Challenge, AGOA, HIPC debt
relief, President Bush's Women's Justice and Empowerment Initiative,
the EU's program of direct budget support, and the World Bank's
Education Fast-Track Initiative.


4. (SBU) This "democratic dividend" is vital for Benin, but can only
spur real economic growth if it is combined with improved economic
governance. Botched privatizations of Benin's cotton and petroleum
parastatals, Benin's largest export and import items, respectively,
combined with difficult world market conditions for both products,
have weighed heavily on Benin's economy over the past three years.
Endemic corruption and inefficiencies in managing crucial
infrastructure such as the Port of Cotonou, also negatively affect
growth.

MILLENNIUM CHALLENGE ACCOUNT, USAID AND PEACE CORPS
--------------


5. (SBU) The United States is perfectly positioned to work with the
new government on these issues and participates in senior policy and
program discussions among heads of diplomatic missions and agencies
in a monthly donor coordination meeting. The next meeting will take
place on November 15.


6. (SBU) In February 2006, Benin signed an MCA Compact, which
entered into force on October 6. President Yayi presided over an
October 9 ceremony to mark the occasion. He underscored his
Government's commitment to maintaining Benin's eligibility for the
Compact program, notably by addressing the problem of endemic
corruption. The Compact includes a series of strategic investments
designed to address key physical and institutional constraints to
increasing investment and private sector activity in four program
areas: access to Justice, financial services, markets (which is
predominately to improve the functioning of the Port of Cotonou),
and land. The USD 307.3 million program is expected to impact 2.5
million Beninese, lifting 250,000 of them out of poverty within five
years.


7. (SBU) USAID and Peace Corps will continue their programs in key
social sectors. USAID supports a primary health care designed to
increase access to and improve the quality of health care. Our
health assistance promotes childhood vaccinations, polo eradication,
family planning, malaria control, and HIV/AIDS information and

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treatment. The USAID education program focuses on primary education
and provides support for Benin's primary education reform, teacher
training, improved school supervision, and increased enrollment and
retention of girls in primary school. (See para 21 below.)


8. (SBU) Peace Corps will continue its programs focused on key
social and economic sectors such as education, health, environment,
small business and information technology respectively. Over 100
Volunteers are working within the local communities countrywide in
those programs. Peace Corps has enjoyed a successful relationship
with the GOB since 1968. This year Peace Corps celebrates its 45th
Anniversary worldwide of which 38 years have been in the Republic of
Benin without interruption.

REGIONAL STABILITY AND MILITARY COOPERATION
--------------


9. (SBU) Entry into force in 2005 of an Article 98 agreement (which
the GOB prefers to call a "non-surrender" agreement) has permitted
us to significantly increase the tempo of military training and
cooperation with the Beninese forces. Our IMET program restarted in
FY06 and is focused on English-language training in addition to
other general courses. The GOB also has expressed interest in
nominating candidates for attendance at one or more of the war
colleges. Unfortunately to date, Benin's IMET budget beyond FY08
was eliminated (Note: We have not yet shared this information with
the GOB).


10. (SBU) Although a small country, Benin is a beneficiary of the
Africa Contingency Operations Training Assistance (ACOTA) program
and makes an important contribution to regional stability both
through its example and commitments. Benin currently has over 1,200
peacekeeping troops deployed in the Democratic Republic of Congo
(MONUC) and in Cote d'Ivoire (UNOCI),as well as military and police
observers in Darfur and Haiti. To sustain these contributions, the
GOB would require USG support.


11. (SBU) The Beninese Naval Forces struggle to conduct operations
and, at present, consist of two Boston Whalers, one of which is
inoperative. Two patrol boats have not been seaworthy in recent
years, and are moored at the Port of Cotonou. This is one reason
Benin would be an attractive prospect for FMF funding. The last U.S.
vessel to call was the USS ELROD, which visited Cotonou six weeks
ago.


12. (SBU) The French and Belgians are actively cooperating with the
Beninese military, and a military delegation from China visited
Benin in August of this year. The French also have approximately 20
officers who are seconded to the FAB and wear Beninese military
uniforms.


13. (SBU) Your visit comes in the wake of the successful execution
of the Benin portion of MEDFLAG '06, the USEUCOM-sponsored ECOWAS
military exercise that was held September 4-15. It involved the
participation of nearly 60 U.S. military medical personnel and
received broad press coverage (reftel).

AMCIT SERVICES
--------------


14. (U) The consular section has been conducting outreach, most
recently at an October 25th American Citizen Community meeting, to
remind Americans of the need to take basic precautions against Avian
Influenza. Avian Influenza outbreaks have occurred in three of
Benin's four neighboring countries making it a probable site for
future outbreaks. All birds tested for H5N1 in Benin have been
negative, but the GOB's surveillance system is constrained by
limited resources and we are urging all Americans to remain
cautious. The consular section is also working on improving the
current warden system to make it more effective in the event of an
emergency. Post also is actively searching for an appropriate site
to build a new embassy as approved.

REGIONAL SECURITY
--------------


15. (U) Benin is rated HIGH for crime and MEDIUM for transnational
terrorism. The community in general is affected most by street
crime in all parts of Benin. There has been a slight increase in
carjackings carried out by Beninese gangs over the past two years.

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There are no known terrorist organizations present in Benin, and the
Beninese Government supports the United States in the War Against
Terrorism. Embassy Benin enjoys a good working relationship with
the local Police and Gendarmes. Nigerian-style 419 fraud is
prevalent in Benin as well as the presence of counterfeit US
currency and counterfeit Franc CFA.

A BRIEF HISTORY OF BENIN
--------------


16. (U) Benin's status as one of the most peaceful and democratic
countries in Africa is a real achievement. In fact, Benin was the
first African country to suffer from a military coup in the
post-colonial era, and from 1963 to 1972 Benin saw more coups and
changes of government than any other African state. From 1972 to
1989, under Mathieu Kerekou's "revolutionary" leadership, Benin
lived under a Marxist regime that quickly became unsustainable with
the end of the Cold War.


17. (U) Benin became a trailblazer in a more positive sense in 1990
when it was one of the first African countries to undergo a
democratic transition. A new Constitution was adopted in December
1990, and, in elections in February 1991, Kerekou was defeated and
peacefully stepped aside for new President Nicephore Soglo. But in
1996 Kerekou resumed office after defeating Soglo in democratic
elections, and he won re-election in 2001 in a vote marred by
allegations of fraud.


18. (SBU) In this year's March presidential election, Kerekou was
barred from running by the Constitution's presidential term limit,
as well as a maximum age of 70. On April 6, 2006, Kerekou became the
first African leader in history to constitutionally leave office
twice as a result of democratic elections.

BIO NOTE ON PRESIDENT BONI YAYI
--------------


19. (SBU) Boni Yayi, a Paris-educated economist who had never held
elected office and who had no political party affiliation,
skillfully crafted a campaign projecting himself as both an
economically literate technocrat, and the embodiment of change for
Benin. By voting for him in both rounds of the 2006 election,
Beninese voters opted decisively for change.


20. (SBU) President Yayi views the United States as a key partner
for his new government. An evangelical Christian, he emphasizes that
he shares "American values" such as the importance of good
governance and the promotion of investment and economic growth. Both
issues feature prominently in his government's program.


APPENDIX
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21. (SBU) USAID programs focus on health and education. Working
with other donors, health programs (FY 2006 USG funding is USD 7.9
million) address malaria and childhood illnesses, safe pregnancy,
prevention of HIV/AIDS and other sexually transmitted infections.
USAID also will jointly inaugurate a radio communication network in
northern Benin, installed with UNICEF assistance and will enable
communities in remote areas to easily contact the better staffed and
equipped district hospitals for help in managing medical
emergencies, especially obstetric cases. Benin has received USD 25.5
million in total from the Global fund for programs in HIV/AIDS,
tuberculosis and malaria. Benin's USD 4.8 million application for
tuberculosis funds was just approved in round 6 while its USD 40
million proposal for malaria was not approved.

(Note: Hold pending a White House announcement: Benin has been
included among countries which will receive funds under the malaria
presidential initiative. This could bring in as much as USD 10
million additional annual funds to combat this illness, a key
contributor to mortality and morbidity in Benin.)

USAID's education program (USD 4.4 million in FY 2006) focuses on
primary education including teacher training, promotion of girls'
education, community involvement in planning and management of
education services, teacher training institutions, and improving the
ability of the education sector to respond to the threat of an
expanding HIV epidemic. Benin participates in the Africa Education

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Initiative which in addition to a focus on improving teacher skills
and providing textbooks, also includes scholarships for girls under
the Ambassadors Girls Scholarship program which benefits about 1,000
girls each year. A ceremony to award scholarships for this year took
place on November 9.

USAID also addresses social services and protection for especially
vulnerable populations, including:

Women's Legal Rights Initiative (WLR). Benin is one of several
countries in Africa, Latin America and Eastern Europe benefiting
from WLR with a focus in Benin on promoting women's legal rights
through public awareness of the Benin Family Code and prohibiting
sexual harassment. USAID/Benin has decided to use funds from its
current program to keep WLR activities going through September 2007
as planned. This will maintain momentum going into the WJEI program,
which is now being designed.

Women's Justice and Empowerment Initiative (WJEI). Current WJEI
figures for the USAID portion of the program in Benin are USD 5.9
million over the three-year program. The DOJ portion of the 3-year
program is about USD 3.9 million. WJEI activities for the
USAID-managed components are now under design. A WJEI implementing
partner for the USAID components is expected to be in place by
February 2007.

Child Trafficking. USAID manages a USD 1.2 million three-year grant
with UNICEF, the leading donor agency working on this issue in
Benin. In a program that emphasizes prevention, care and
reintegration of victims of child trafficking and legislative
reform, this grant enabled UNICEF to expand its program to northern
Benin where child traffickers have become more active. This grant
has also enabled UNICEF to undertake an ambitious household survey
which will contribute to knowledge about the scope of the problem
and contributing causes. USAID has funded USD 867,000 of the current
UNICEF grant leaving an uncovered mortgage of USD 333,000. We have
so far not been successful in identifying other funds for this
program.

BROWN