VZCZCXYZ0005
RR RUEHWEB

DE RUEHC #0106 0311953
ZNR UUUUU ZZH
R 311950Z JAN 08
FM SECSTATE WASHDC
TO AMEMBASSY NIAMEY 0000

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