VZCZCXRO2279
OO RUEHMA RUEHPA
DE RUEHCO #1107/01 3111404
ZNR UUUUU ZZH
O 071404Z NOV 06 ZDS
FM AMEMBASSY COTONOU
TO RUEHC/SECSTATE WASHDC IMMEDIATE 8979
INFO RUEKJCS/SECDEF WASHDC
RHMFIUU/HQ USEUCOM VAIHINGEN GE
RHMFISS/FOB EUCOM VAIHINGEN GE
RHMFISS/COMUSNAVEUR NAPLES IT
RUENAAA/CNO WASHINGTON DC
RHMFIUU/AFRICA CENTER FOR STRATEGIC STUDIES WASHINGTON DC
RHMFIUU/NAVEURLOGCOORD CENTER NAPLES IT
RUEHZK/ECOWAS COLLECTIVE
RUEHUJA/AMEMBASSY ABUJA 0233

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 
 
COTONOU 00001107  001.2 OF 004 
 
 
¶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 
 
COTONOU 00001107  002.2 OF 004 
 
 
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. 
 
COTONOU 00001107  003.2 OF 004 
 
 
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 
-------- 
 
¶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 
 
COTONOU 00001107  004.2 OF 004 
 
 
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