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P 231552Z OCT 08
FM AMEMBASSY YAOUNDE
TO RUEHC/SECSTATE WASHDC PRIORITY 9369
INFO RUEHZO/AFRICAN UNION COLLECTIVE PRIORITY 0236
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UNCLAS SECTION 01 OF 05 YAOUNDE 001047 
 
SENSITIVE 
SIPDIS 
 
E.O. 12958: N/A 
TAGS: CM EAID ECON NI PGOV PREL
SUBJECT: BAKASSI DEVELOPMENT PRIORITIES: THE PRIME 
MINISTER'S REPORT 
 
REF: YAOUNDE 1041 
 
¶1.  (SBU)  Summary: Cameroon has formed a committee to 
coordinate future development projects for Bakassi, under the 
auspices of the Prime Minister.  The committee's initial 
report, designed to provide a broad road map for 
consideration by the government and donors, outlines priority 
needs for Bakassi in the areas of transport and public works, 
agriculture, communication, defense and security, energy and 
water, education, fisheries and livestock, health and 
recreation, tourism, forests and wildlife, social affairs and 
women empowerment, and administration.  The total short term 
price tag is $239 million, with a total figure of about $487 
million over an unspecified time period.  Foreign Ministry 
contacts downplayed the PM's report and it is not clear how 
much weight the report will be given in government 
decisionmaking and the November budget.  At the least, it 
provides useful information about current conditions in 
Bakassi and about some of the government's thinking regarding 
next steps.  As we get greater clarity on the government's 
needs, the USG should look for ways to support post-conflict 
stabilization and development efforts in Bakassi.  End 
summary. 
 
¶2.  (U)  Following the handover of Bakassi to Cameroon on 
August 14, the Government of Cameroon (GRC) formed a 
Committee for the Coordination and Monitoring of the 
Implementation of Priority Projects to be realized in 
Bakassi.  Committee members visited the Peninsula, drew on 
the findings of earlier workshops and consulted with local 
authorities and experts.  Working under the auspices of Prime 
Minister Ephraim Inoni and headed by Special Advisor of the 
Prime Minister Jacob Lekunze Ketuma, the Committee produced a 
report in August entitled "The Priority Program for Planning 
and Development of the Bakassi Area."  The report argued for 
119 billion FCFA (about $239 million at the current exchange 
rate) in short-term projects and set a total budget for 
development (including longer term priorities) at 243.4 
billion FCFA (about $487 million). 
 
¶3.  (U)  In the preface to the report, Prime Minister Inoni 
notes that the document is not exhaustive but is meant to be 
a road map and to "give an idea of the amount of work that 
needs to be done in this area".  He invites government, 
national investors, and development partners to "have an 
appropriation of this document," highlighting the "triggering 
element" for the region's development as the tarring of the 
Kumba-Ekondo-titi-Mendemba-Akwa road. 
 
¶4.  (U)  In addition to the tarring of the road, the report 
identifies five priorities: 
 
-- the construction of classrooms, health centers, and sports 
and leisure infrastructures 
 
-- Radio and TV signal coverage 
 
-- Provision of equipment for fishing, water and electricity 
 
-- Urban development and the "development of a bank of 
development projects" 
 
-- Construction of public services and staff residences 
 
¶5.  (U)  The report also enumerates six main constraints: 
 
--  The availability of land 
 
--  Geotechnical constraints (especially the quality of water 
in the soil, most notably at Idabato and part of Kombo 
Abedimo) 
 
--  The acute enclave nature of the area 
 
--  The absence of access roads 
 
--  The "hostile nature of the milieu" 
 
Transport and Public Works 
-------------------------- 
 
¶6.  (U)  The report notes that Bakassi is inaccessible by 
land and is mainly open to maritime transport from Nigeria. 
There are 5,700 fishing boats, about 50 "developed landing 
points", and 175 km of bad earth roads.  However, there is no 
public transportation, no air transport or port 
infrastructure, no road network, and difficult conditions for 
transportation (poor carrying capacity of soil and the 
 
YAOUNDE 00001047  002 OF 005 
 
 
absence of building materials or potable water).  The 
population (which the GRC estimates at 75,000) is not 
permanent and there are only two housing estates.  In 
addition to the Kumba-Akwa road, the report identifies the 
medium term need for a number of secondary roads, the 
construction of modern landing structures, and the 
construction of a heliport, airstrip and hydro port.  It sees 
the long term need for a port. 
 
Short Term Budget:  $179 million 
 
Agriculture 
----------- 
 
¶7.  (U)  Agriculture is predominantly subsistence, which 
reportedly has not been doing well because of low education 
levels, poor support services, lack of land titling, 
isolation from markets and services, and the absence of 
investment.  There is some commercial agriculture (oil palm, 
rubber, coconuts) carried out by CDC and some oil palm and 
rubber production done by PAMOL.  CDC is planning to double 
its acreage while PAMOL is expanding its work force by 1,500 
employees.  There are also a number of small producers, 
mostly in palm oil.  Agricultural extension services in 
Bakassi are limited.  The report identifies the need to 
construct divisional and sub-divisional agriculture and rural 
development institutions and technical posts, to transfer 
technical staff and create training centers, and to construct 
small agricultural infrastructure (bridges, culverts etc.) 
 
Short Term Budget:  $3.5 million 
 
Communication 
------------- 
 
¶8.  (U)  Bakassi has no Cameroonian media access and is only 
covered by radio and television from Nigeria, Equatorial 
Guinea, France (RFI) and Great Britain (BBC).  The report 
sees the short term need for construction of an antenna to 
relay radio and TV signals at Ekondo-titi and Mundemba and to 
encourage telephone operators to come to Bakassi.   Over the 
medium term, the report argues for construction of an FM 
radio station to relay state-run CRTV signals and, over the 
long term, other public and private media. 
 
Short Term Budget:  $1.4 million 
 
Defense and Security 
-------------------- 
 
¶9.  (U)  Security for Bakassi is the responsibility of a 
logistic battalion, a Central Operational Unit, Operational 
Units in the North and South, Gendarmerie Brigades in all 
Sub-Divisions and public security police stations at Akwa and 
Ngosso. (Note:  since the publication of this report, the 
President has also assigned the Rapid Intervention Battalion, 
BIR, to upgrade security in Bakassi.  End note.)  The report 
identifies the need for construction of Gendarmerie and 
police camps, stations, barracks and other facilities in 
Akwa, Ngosso, Isangele, Bamusso and other sites.  It argues 
for the construction of a naval base and special unit at Akwa 
and a military base at Idabato. 
 
Short Term Budget:  $7.7 million 
 
Energy and Water 
---------------- 
 
¶10.  (U)  Only six of 45 localities (towns, villages and 
settlements) have an electricity network.  Most electricity 
on the Peninsula is by stand-alone generators or solar 
platforms.  The Divisional Headquarters, Mundemba, is the 
only locality being supplied by Cameroon's main supplier of 
electricity, AES-Sonel.   There is no fueling station in 
Bakassi; all petroleum products come from Nigeria.  While 
Bakassi is situated in a coastal sedimentary zone and 
rainfall is abundant, water infrastructure is poor and water 
sources are not generally of good quality (impacted by 
salination or pollution from fishing and pit toilets).  There 
is a large need for maintenance and new investments in power 
generation and distribution, as well as in water projects and 
water management training. 
 
Short Term Budget:  $2.7 million 
 
Education 
--------- 
 
 
YAOUNDE 00001047  003 OF 005 
 
 
¶11.  (U)  In areas completely or partially occupied by 
Nigeria during the conflict (Sub-Divisons of Idabato, Kombo 
Abedimo, and Isangele) there are a total of about 1,000 
primary school pupils (in two out of three sub-divisions, 
only one fourth of school age children is registered in the 
first year of primary education).  In the areas peripheral to 
the conflict (Kombo Itindi and Bamusso), primary school 
enrollment is higher (26% and 66% respectively).  In other 
sub-divisions, enrollment and infrastructure are even better. 
 The report seeks the construction, rehabilitation and 
equipping of 597 classrooms and staff rooms.  It envisions 
construction of a teacher training college and 579 new 
teachers.  Over the medium and long term, there is a need for 
over 2,000 additional classrooms and staff quarters.  Bakassi 
has one Government Technical College (at Akwa) and two 
government high schools.  Under the HIPC initiative, 17 new 
classrooms are reportedly being built.  The Prime Minister's 
report sees the need to construct 12 classrooms, two more 
secondary schools and another technical college, in the short 
term, with a number of other facilities in the longer term. 
 
Short Term Budget:  $28.3 million 
 
Fishery and Livestock 
--------------------- 
 
¶12.  (U)  This sector has been well studied and the region 
has rich fishing resources.  Constraints include: destruction 
of habitat, including mangroves; destructive fishing methods; 
the lack of data and surveillance; the underdevelopment of 
landing, storage, road and marketing infrastructure; and the 
absence of credit.  The report laments the low involvement of 
Cameroonians (versus Nigerians) in the sector.  Priority 
projects focus on creating five cooperatives, better training 
and equipment for fishermen, constructing other 
infrastructure (cold storage, dryers, electricity etc.), as 
well as fish training centers and markets. 
 
Short Term Budget:  $2.8 million 
 
 
Public Health and Recreation 
---------------------------- 
 
¶13.  (U)  Bakassi's only sports and leisure structures are in 
government high schools.  The PM's report includes a plan for 
mini-sports complexes and the creation of leisure sites. 
Bakassi has eight health centers with one doctor.  Health 
challenges include widespread poverty, poor infrastructure, 
and a widely dispersed population.  The report's wish list 
for the sector includes the construction and rehabilitation 
of many health facilities, as well as vehicles, generators, 
boats and staff housing.  The long term goal is constructing 
and equipping a Bakassi district hospital at Isangele. 
 
 
Short Term Budget:  $2.1 million 
 
Tourism, Forests and Wildlife 
----------------------------- 
 
¶14.  (U)  Bakassi has one national park (Korup) of 125,000 
hectares, created in 1937, and two forest reserves, Rumpi and 
Mokoko (45,843 and 9,065 hectares respectively). Korup has 
benefited from World Wildlife Fund and other assistance over 
the years but intensive exploitation of mangroves is a threat 
to the marine environment of the region.  The PM's report 
envisages the creation of Ngongore game reserve and several 
community forests and hunting zones.  It also notes a need 
for an inventory of possible touristic sites and the 
construction of a hotel complex in Akwa. 
 
Short Term Budget:  $3.7 million 
 
Social Sector 
------------- 
 
¶15.  (U)  Bakassi currently has three social welfare centers, 
which the PM's report argues need to be rehabilitated and 
better staffed.  The Ministry of Land Tenure and State 
Properties has initiated a land plan for Akwa (Kombo Abedimo) 
and Edema Mbassi (Idabato); the PM's report would like to 
finalize these plans and complete land partitioning and 
registration. 
 
Short Term Budget:  $3.2 million 
 
Administration 
 
YAOUNDE 00001047  004 OF 005 
 
 
-------------- 
 
¶16.  (U)  There has been "remarkable progress" in the 
construction of District Officer (DO) offices and residence 
of administrative authorities, while office space for 
municipal and local councils is virtually nonexistent. 
According to the report, this is in part a result of 
constraints in the Greentree Agreement, which prohibits tax 
collection in the localities during the transition period 
leading up to 2013, and therefore deprives local governments 
of resources.  The report cites the need for construction and 
rehabilitation of numerous DO and Council offices and 
residences.  The Ministry of Economy, Planning and 
Territorial Administration (MINEPAT), which will have the 
lead in administering development projects in Bakassi, has 
constructed ten guest houses, several dock yards and other 
buildings.  The report envisages more guest houses and dock 
yards and the initiation of rural micro-projects funded by 
the European Union.  The report also cites the need to 
rehabilitate a dilapidated customs post at Bamusso and to 
create several new customs offices. 
 
Short Term Budget:  $7.15 million 
 
Next Steps 
---------- 
 
¶17.  (U)  The Chairman of the Bakassi Committee and Special 
Advisor of the Prime Minister Ketuma told Pol/Econ Chief that 
the GRC's vision is to bring Bakassi to the development level 
of its neighboring areas in Cameroon by 2011 (presumably this 
is the short term timeframe used in the report).  He 
highlighted the top priority of road construction, arguing 
that building roads would help solve the region's security 
challenges.  The report is being reviewed by technical 
ministries and will be the subject of an inter-agency meeting 
in December, after the FY 2009 budget is passed, he said.  At 
the meeting, the GRC will determine how much of the Bakassi 
development cost it will bear and how much support it will 
seek from donors.  Donors can then decide what they want to 
support, he said. 
 
¶18.  (SBU)  Ketuma opined that the poverty of Bakassi was due 
to negligence from Nigeria and said the GRC's challenge was 
to "win the hearts and minds" of the Nigerians who had left 
and those who had hesitantly returned (though he thought most 
had returned).  When Pol/Econ Chief pointed out the 
logistical and security challenges of development work in the 
area, he insisted that development was the key to improving 
Bakassi's security, once again highlighting the priority need 
for roads. 
 
Comment 
------- 
 
¶19.  (SBU)  The PM's 135-page glossy report succeeds in 
setting the stage and outlining some broad priorities within 
each sector.  However, it does not prioritize between sectors 
and is heavily focused on construction projects (of roads, 
health centers, schools etc.) rather than on technical 
assistance, staffing, or other kinds of development.  Some of 
its budget proposals also seem questionable, with a higher 
budget for tourism, forests and wildlife than for health or 
energy, and a large budget for administrative buildings. 
 
¶20.  (SBU)  It is not clear what weight the PM's report will 
have.  Several senior contacts at the Ministry of External 
Relations have expressed skepticism about this report, 
pointing out that it is just designed to set broad guidelines 
and arguing the need for a priority focus on security in 
Bakassi.  The European Union is already planning to spend 
over $5 million in multi-sector development support for 
Bakassi, responding to funding requests from the Ministry of 
Economy and Planning, without reference to the PM's report. 
The GRC plans to approach individual donors to support 
specific needs and appears to want the USG to focus on 
security assistance.   The recently completed, successful 
Cameroon-Nigeria Joint Commission session (reftel) revealed 
good will in both countries to cooperate on both development 
and security in Bakassi.  The pace and sequencing of this 
process, and the possible involvement of foreign donors, 
remains to be seen and will no doubt depend heavily on the 
preferences of President Biya. 
 
¶21.  (SBU)  Even with its shortcomings and the lack of 
clarity about what will happen with the PM's report, it is 
encouraging that the GRC is doing some planning for Bakassi 
(not normally one of the government's strengths) and that it 
 
YAOUNDE 00001047  005 OF 005 
 
 
intends to incorporate many of these needs in the upcoming 
budget.  The United States has a strategic interest in 
helping to stabilize the post-conflict, oil-rich Bakassi 
area, which is challenged by organized banditry and other 
illegal activities, and whose security and development have 
implications for both Cameroon and Nigeria.  As the 
government further clarifies its development needs in 
Bakassi, post will look for ways to provide support. 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
GARVEY