BENIN: SCENE SETTER FOR EUCOM AND NAVEUR PARTICIPATION IN

UNCLAS SECTION 01 OF 03 COTONOU 001118

SIPDIS

SENSITIVE
SIPDIS

FOR AF GEN WARD, ADM ULRICH, AMB YATES, AMB CURRAN, RDML GREENE AND
MAJ GEN REMKES

E.O. 12958: N/A
TAGS: EWWT MARR MASS PREL PGOV PINR BN
SUBJECT: BENIN: SCENE SETTER FOR EUCOM AND NAVEUR PARTICIPATION IN
GULF OF GUINEA MINISTERIAL

REF: COTONOU 972


1. (SBU) SUMMARY: Post welcomes your participation in the
NAVEUR/ACSS-sponsored Gulf of Guinea Maritime Safety and Security
(MSS) Ministerial Conference hosted by the Government of Benin (GOB)
in Cotonou, November 13-15, 2006. Your visit highlights USG support
for safety and security and 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 elections, 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) as well as ongoing USAID and Peace Corps programs. The US and
Benin also enjoy a lively set of military-to-military cooperation,
despite the lack of any resident DAO or ODC presence. Benin has
been an active participant in multilateral peacekeeping missions,
particularly in Cote d'Ivoire and DR Congo, having received
extensive training from the US via ACOTA. You also will meet with
the Minister of Defense. There is little anti-American sentiment,
and the USG is very popular with the GOB, press, and general
population. However, addressing corruption remains a major
challenge, and petty crime plagues the population. END SUMMARY.

REGIONAL STABILITY AND MILITARY COOPERATION
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3. (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, it appears some in Washington plan to cut
Benin's IMET budget in FY08 to zero. (NOTE: We are contesting this
plan with Washington, and have not shared this information with the
GOB. END NOTE.)


4. (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. The Beninese Armed Forces have
expressed a willingness to consider expanding its contribution in
Darfur or elsewhere, but to do this the GOB would require USG
support in terms of material, perhaps via FMF or GPOI funding.


5. (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 another
reason Benin would be an attractive prospect for FMF funding. The
last U.S. vessel to call was the USS ELROD, which visited Cotonou at
the end of September.


6. (SBU) The French and Belgians are actively cooperating with the
Beninese military. The French also have approximately 20 officers
who are seconded to the FAB and wear Beninese military uniforms.
The French have said they actively support our maritime safety
agenda in the Gulf of Guinea, and both the French and Beninese tell
us that they are working to provide Benin with an AIS and
ground-based radar system covering the entire Beninese coast. These
systems may be operational in early 2007. A military delegation
from China visited Benin in August of this year, and Chinese
technicians are reported to be working to get one of Benin's two
Chinese-made patrol boats back into seaworthy shape.


7. (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).

SECURITY IN BENIN

COTONOU 00001118 002 OF 003


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8. (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.
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.

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


9. (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 geopolitical 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, the African
Growth and Opportunity Act (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.


10. (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.

USG PROGRAMMING IN BENIN
--------------


11. (SBU) In February 2006, Benin signed a five-year, USD 307
million 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 four main
program areas: improving access to land, justice, financial
services, and markets (which accounts for over half of the program
and is predominantly to improve the functioning of the Port of
Cotonou). Such aid to the Port is a serious need, as a recent US
Coast Guard assessment found the Port does not currently meet ISPS
standards.


12. (SBU) USAID and Peace Corps will continue their programs in key
social sectors. USAID's programs are focused on primary health care
and basic education. Peace Corps's programs focus on secondary
education, health, environment, small business and information
technology, with over 100 Volunteers are working countrywide.

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


13. (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.


14. (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

COTONOU 00001118 003 OF 003


1996 Kerekou resumed office after defeating Soglo in democratic