NIGER GSP PETITION: REQUEST FOR INTERIM DEMARCHE

UNCLAS STATE 010106 SIPDIS SIPDIS SENSITIVE E.O. 12958: N/A TAGS: ELAB ETRD ECON PHUM PREL SUBJECT: NIGER GSP PETITION: REQUEST FOR INTERIM DEMARCHE REF: 07 STATE 68382 SENSITIVE BUT UNCLASSIFIED; PLEASE PROTECT ACCORDINGLY. ¶1. (U) This is an action request; please see para 7. ¶2. (SBU) SUMMARY AND ACTION REQUEST: The USG is presently continuing to review a 2006 Generalized System of Preferences (GSP) petition from the International Labor Rights Forum (ILRF),which alleged Niger's failure to comply with GSP eligibility criteria related to worker rights. In April 2007, the USG extended review of the petition for another year, and instructed Post to deliver a demarche (reftel) outlining suggested interim steps the GON could take on the issue. As part of the USG's ongoing review, Post is requested to meet with appropriate GON officials at senior and working levels of the Labor and Justice ministries to call attention to reftel's suggested steps and to underscore the continued USG review of the petition. END SUMMARY AND ACTION REQUEST. BACKGROUND -------------- ¶3. (U) The GSP program is designed to promote economic growth in the developing world, and provides preferential duty-free entry for more than 4,650 products from 143 designated beneficiary countries and territories. The GSP program was instituted on January 1, 1976, after being authorized under the Trade Act of 1974 for a 10-year period. It has been renewed periodically since then, most recently in 2006, when President Bush signed legislation that reauthorized the GSP program through the end of 2008. GSP also forms the basis for African Growth and Opportunity Act (AGOA) eligibility, meaning that should a country lose GSP eligibility, AGOA eligibility is also lost. In 2006 Niger exported USD 43,000 in products to the U.S. under GSP, or less than 1 percent of the USD 124 million in total exports to the U.S. Niger's exports under GSP in 2007 are still low, but up 33 percent over the same period in 2006. ¶4. (U) The staff-level interagency GSP subcommittee reviews all GSP petitions before forwarding recommendations to policy-level officials for decision. The subcommittee is chaired by USTR and composed of representatives from State, Treasury, Commerce, Labor, Agriculture and the U.S. International Trade Commission (non-voting). The subcommittee may recommend that each petition be endorsed (terminating GSP benefits),closed (denying the relief sought in the petition),or held open (prolonging the review by an additional year). The aim of the petition review process is to stimulate action by host governments to address underlying issues with respect to the GSP eligibility criteria. In practice, the review process is not intended to move directly to punitive action, such as suspension of GSP benefits. Instead, GSP agencies make every effort through engagement, such as demarche requests, to resolve issues in a positive way. However, host governments should understand that under the GSP statute, failure to ad dress issues of concern can lead to a loss of GSP benefits. ¶5. (U) In July 2006, the International Labor Rights Forum (ILRF) petitioned the USG for suspension of Niger's benefits under GSP, alleging Niger failed to take steps to accord workers internationally recognized labor rights as required by the eligibility criteria for GSP benefits. The petitioner alleged that the GON had "made no effort" to enforce laws prohibiting the practice of forced and compulsory labor, in particular as relating to caste-based slavery. Further, the petitioner alleged that the GON had failed to enforce its laws prohibiting the worst forms of child labor. Under the statutory GSP eligibility criteria, the President shall not designate a country as a GSP beneficiary if the country: 1) "(H)as not taken or is not taking steps to afford internationally recognized worker rights to workers in the country...." OR 2) "(H)as not implemented its commitments to eliminate the worst forms of child labor." ¶6. (SBU) Following solicitation of public comment on the ILRF petition and a public hearing in early 2007, the GSP subcommittee recommended that the petition be held open an additional year. Agencies noted the serious allegations in the petition and credible evidence to support the allegations, but also noted the GON's difficult situation and lack of resources as mitigating factors. In the spirit of cooperation, the USG proposed a series of steps (reftel) that the GON could take with minimum use of scarce resources as a way toward eventually closing out the petition. Based on reports from Post, and information from a recent Department of Labor field team visit, it appears there has been progress in some areas, such as increased public awareness of their rights, but Washington agencies seek additional information before finalizing recommendations on the petition. Action Request -------------- ¶7. (SBU) The interagency review of the ILRF petition is continuing in Washington, with the goal of reaching a recommendation in April 2008 on next steps. Before this time, the GSP subcommittee would especially welcome additional Post reporting on GON steps to promote labor rights, in particular in the areas of caste-based slavery and child labor. The subcommittee would also welcome information from the GON on its efforts to date, including from working-level officials in charge of specific programs. Department also requests that Post meet with appropriate GON officials at senior and working levels in the Labor and Justice ministries, and in other GON commissions as appropriate, to call attention to reftel's suggested steps and to underscore the continued USG review of the petition. For Post's convenience, reftel steps are repeated in their entirety below: Suggested Complementary Steps -------------- 1) Continue and expand efforts to raise public awareness to inform citizens of the practices, laws, and penalties for slavery, forced labor, trafficking in persons, and child labor; 2) Request assistance from the ILO and/or other sources on ending all forms of forced labor for adults and children, including worker rights training for inspectors and judges; 3) In the planned 2007 study of slavery, it would be helpful if the research distinguishes between the various forms of slavery that exist in Niger, with particular attention on the traditional caste-based forms, fully recognizing the difficulties in making such distinction; 4) As the Government of Niger explained in its testimony and comments to the GSP subcommittee, the GON established in November 2006 a national commission within the Ministry of Labor to combat the survival of forced labor and discrimination. The USG requests updates about the Commission's work, including the timetable, process, public involvement, and implementation of its national plan of action concerning eradication of forced labor and discrimination; 5) Enact into law and implement the draft trafficking in persons statute; 6) As required by ILO Convention 182 on the Elimination of the Worst Forms of Child Labor, promulgate a decree that lists the worst forms of child labor. RICE