BENIN

	FY 1998 Actual	FY 1999 Estimate	FY 2000 Request
Development Assistance	$5,150,000	$4,275,000	---
Development Fund for Africa	---	---	$4,200,000
Child Survival and Disease	$12,000,000	$11,463,000	$9,900,000
P.L. 480 Title II	$2,843,000	$2,005,000	$1,861,000

Introduction.

Benin is of interest to the United States because of its remarkable transition to a democratic, free-market society and its resulting political and economic prominence in West Africa. Benin's civilian-led multi-party system of democracy continues to be a model for other African nations. The Government of Benin (GOB) has played an active role in facilitating, monitoring and advancing regional peace processes in close collaboration with the United States. Recent history suggests that democratic countries tend to be more stable, prosperous and much less likely to provoke conflict with their neighbors than authoritarian countries. It also suggests that democratic countries are more apt to play a moderating and restraining role in the event of regional instability and civil strife. Benin fits this profile very well and has played such a role in this sub-region of Africa.

Benin is a country of hope that is putting into practice ideas of development and democracy that will ensure sustainable development for its people in the future. The GOB respects human rights. The armed forces are apolitical. The legislative and judicial branches of government are alive and well and the constitutional court, in particular, exercises effective checks and balances against abuse of executive power, as does a free and active press. The GOB has faithfully followed its structural adjustment program and macroeconomic reforms which have now begun to show results. Political and economic reform has become institutionalized and its model institutionalization and economic liberalism distinguishes Benin from other African countries.

The Development Challenge.

The majority of primary schools in Benin are still not providing quality education on an equitable basis. While the overall primary school enrollment rate in 1998 was 72% and girls enrollment is increasing, wide regional and gender disparities still exist. The Ministry of Education (MOE) remains a highly centralized organization that suffers from organizational inefficiencies despite the GOB commitment to education reform. Primary school teachers are insufficient in number and the MOE has yet to institutionalize a formal on-the-job teacher training program. Student drop out rates remain high and the MOE's low utilization of budgeted funds limits the educational impact which could be attained by a more rational use of existing resources. Since 1991, USAID support has included technical and budgetary assistance to GOB and MOE to strengthen the planning, management and financial tracking capacity of the MOE and to address the need for decentralization and the lack of efficiencies in resource allocation through public and private voluntary organizations' (PVOs) mechanisms and networks. Results include increased enrollment among girls, a higher pass rate for primary students and more involvement by parents in the education of their children. At the policy level, USAID is in continual dialogue with MOE officials on issues of absorptive capacity, areas of improvement and reform mechanisms at the classroom level.

Although the GOB has made some of the right policy decisions with regard to health reform, the health sector suffers from the same systemic, governance problems as the education sector. Some laws continue to present barriers to reproductive health. The GOB has yet to put in place policies and mechanisms to facilitate the management of a decentralized health care system and to assure more equitable services. Benin's maternal and child health statistics are among the worst in Africa, The major causes of morbidity and mortality of children are malaria, diarrhea, and acute respiratory infections. Low utilization of health centers and the poor quality of health services exacerbate the health problems. The availability and quality of family planning services is low, its contraceptive supply is unreliable and health workers lack adequate training. To address these issues, USAID developed a pilot, integrated family health program which incorporates community management and partnerships with civil society. USAID will continue to support: (1) family health service delivery through training and technical assistance in reproductive health and provision of family planning products and information; (2) child survival activities which utilize a more integrated approach at the community level to combat identified childhood illnesses; and (3) Sexually Transmitted Diseases/Human Immodeficiency Virus prevention activities through condom social marketing and community education campaigns.

A humanitarian assistance food-aid program, implemented through Catholic Relief Services (CRS), is reaching six regions and is directly contributing to the achievement of USAID's strategies in the areas of family health, governance, and education. It also addresses household food security issues. Collectively, these integrated approaches facilitate access to essential foods, quality education, and revenue, making it possible for villagers to afford education and health costs and to contribute financially to community development activities.

Other Donors.

In 1997, Benin received $234 million in foreign assistance, representing about 10.8% of its GDP. The contribution of the top ten donors represents more than 68% ($161 million) of the total development assistance for 1997. Major donors are European Union ($33 million), Japan ($29 million), Denmark ($18 million), World Bank ($18 million), France ($14 million), United States ($14 million), African Development Bank ($10 million), Switzerland ($10 million), Germany ($9 million), and UNDP ($6 million).

FY 2000 Program.

To provide continued support to Benin for FY 2000 a funding level of $14.1 million has been requested. This level will provide $6.3 million to the basic education objective, $6.1 million to the family health objective, and $1.7 million to cross-cutting activities in the democracy and governance special objective.

---

BENIN

FY 2000 PROGRAM SUMMARY
(in thousands of dollars)

USAID Mission Director, Thomas E. Park

USAID Strategic and Special Objectives	Economic Growth & Agriculture	Population & Health	Environment	Democracy	Human Capacity Development	Humanitarian Assistance	TOTALS
S.O.1 More Children Receive, on an Equitable Basis, a Basic Education Which Prepares Them for a Productive Roles in Society - CS	---	---	---	---	6,300	---	6,300
S.O.2 Increased Use of FP/MCH/STD/HIV Services and Prevention Measures within a Supportive Policy Environment - DFA - CS - P.L. 480/II	--- --- ---	---	--- --- ---	--- --- ---	--- --- ---	--- --- 1,861---	2,500 3,600 1,861
Sp.O.1 Improved Governance and Reinforced Democracy - DFA	---	---	---	1,700	---	---	1,700
Totals - DFA - CS - P.L. 480/II	--- --- ---	2,500 3,600 ---	--- --- ---	1,700 --- ---	--- 6,300 ---	--- --- 1,861	4,200 9,900 1,861

---

ACTIVITY DATA SHEET

PROGRAM: BENIN
SO TITLE AND NUMBER: More Children Receive, on an Equitable Basis, a Basic Education Which Prepares Them for a Productive Roles in Society, 680-SO01
STATUS: Continuing
PROPOSED OBLIGATION AND FUNDING SOURCE: FY 2000: $6,300,000 CS
INITIAL OBLIGATION: FY 1996; ESTIMATED COMPLETION DATE: FY 2003

Summary: USAID support to the Ministry of Education (MOE) began in 1991 after the collapse of its education system. Since 1991 and specifically during the Education Round Table held in May 1997, the GOB reconfirmed its commitment to primary education reform with added emphasis on community participation and equity, particularly for girls. While the gross enrollment rate (GER) has increased significantly from 57% in 1991 to 72% in 1998, a wide gap still exists between girls' enrollment rate and boys enrollment rate. Current enrollment rates stand at 56% and 87% for girls and boys' respectively. The primary school leaving exam pass rate in 1997 was 70%. The completion rate remains very low. The MOE is a highly centralized organization that suffers from organizational inefficiencies. The low utilization of budgeted funds limits the educational impact which could be attained by a more rational use of existing resources. Primary school teachers are insufficient in number and the MOE has yet to institutionalize formal in-service teacher training programs. In response to these problems, USAID established a strategic objective (SO) with the overall purpose to provide quality basic education on an equitable and expanded basis. The immediate beneficiaries will be approximately 700,000 primary school students nationwide with girl students showing a marked increase in remaining in school. In addition the SO will target the estimated 10,000 primary school drop outs. Intermediate beneficiaries are the MOE, the Ministry of Finance (MOF), teachers, parents and NGOs/PVOs and the population as a whole.

Key Results: The revision of school curricula and textbooks under the current reform, a major accomplishment during the past year, reached the sixth and last grade of primary school. The first group of children to complete the experimental education program took the leaving exam at the end of the last school year. The pass rate for these students reached 93% compared with the traditional 50% to 60%. Training was provided to inspectors, pedagogical counselors and teachers, including 3,500 contractual teachers hired by the GOB to teach in primary schools. These training activities will continue. About 100,000 school children increased their knowledge of basic hygiene and health measures. USAID provided skills training to primary school drop outs and leavers and its activity will be expanded to reach another 10,000 students. USAID assisted the MOE in establishing a network for the promotion of girls' education which is working with key players in education to address gender issues in textbooks and in classrooms, and in everyday life.

USAID funds have trained 4,000 new teachers, the teacher-training network has been reinforced, and technical skills training has been provided to 10,000 primary school drop-outs who, as a result of this training are now being considered for gainful employment. Additional interventions have resulted in improved geographic and gender equity and increased access to primary education for girls as well as boys through the network for the promotion of girls' education. USAID is also supporting increased civil and government participation in basic education: better management of the school system is being achieved through parents' participation and NGOs in school management.

Performance and Prospects: This SO requires the achievement of five intermediate results: (1) Improved key pedagogical systems and inputs for delivery of a quality basic education with the Fundamental Quality Level (FQL) priority norms used as a planning tool to deliver a quality basic education; (2) Increased equity of access to primary schools including improved geographic and gender equity for increased access to primary education; (3) Maintained adequate financing for primary education; (4) Increased civil and government participation in basic education; and (5) Improved institutional capacity for educational planning, management and accountability. Focus has been placed on ten FQL priority norms deemed essential for greater internal efficiency of the system and results in the classrooms.

During the coming years, the reform and the new program will conclude its experimental phase and will be generalized to all 3,500 government and private schools. USAID expects enrollment rates to increase to 78% in 2003 with a girl/boy ratio equal to one. Thirteen sub-regions where there are especially low enrollment of girls have been identified for awareness-raising activities. Efforts are also focused on increasing children's access to schools in remote rural areas. Some progress has been made in this area, but it remains limited and slow.

For the past four years, USAID has worked through a U.S. PVO with parents' associations to increase their involvement and participation in the management of the school system. More than 200 parents' associations have been trained in management and resources generation and about 17 local education NGOs have been strengthened. With USAID's continued assistance, a total of 1,000 parents' associations will be trained by 2003. Technical assistance to the MOE and the MOF has improved management performance, resource allocation, and internal control procedures. The MOE and the MOF were assisted in setting-up a reliable budget expenditure tracking system that allowed the two ministries to achieve improved planning, management, and accountability. At the policy level, USAID will continue to provide technical assistance support to improve institutional capacity for educational planning, management and accountability.

Possible Adjustments to Plans: The main adjustment deals with ending the Non Project Assistance funding mechanism which has served its purpose as a reform assistance tool. For example, the GOB has dedicated 50% of its National Education Budget to primary education. USAID will propose a new mechanism that will help increase internal efficiency and ensure that reform is effective in the classrooms. USAID will work with education authorities and other donors to ensure that the students who have recently passed the primary leaving exam under the new program experience a smooth transition to secondary school.

Other Donor Programs: The World Bank supports in-service teacher-training, the provision of pedagogical materials, financial tracking and accountability and school construction. France provides assistance in secondary and higher education. The European Union's assistance contributes to school construction and technical training. Japan assists the primary education sector with a major school construction project. Other multilateral organizations and international NGOs also contribute to Benin’s primary education reform. The GOB support to primary education covers logistical and financial resources for a wide variety of education-related activities such as administrative and pedagogical support, and construction of classrooms.

Principal Contractors, Grantees or Agencies: Current contractors and grantees include The Mitchell Group, Inc.; World Education, Inc.; Medical Care Development International; International Foundation for Education and Self-Help; and the Songhai Center. Other partners include the MOE, the MOF, and local NGOs and associations.

Selected Performance Measures:

	Baseline	FY2000	Target
Gross Enrollment Rate	49.7% (1990)	69%	78% (2003)
Girls Enrollment Rate (Girls/Boys ratio)	.58% (1990)	.75%	1.0% (2003)
Primary School Leaving Exam Pass Rate	40% (1990)	60%	80% (2003)

---

ACTIVITY DATA SHEET

PROGRAM: BENIN
SO TITLE AND NUMBER: Increased Use of FP/MCH/STD/HIV Services and Prevention Measures within a Supportive Policy Environment, 680-SO02
STATUS: Continuing
PROPOSED OBLIGATION AND FUNDING SOURCE: FY 2000: $3,600,000 CS; $2,500,000 DFA; $1,861,000 P.L. 480 Title II
INITIAL OBLIGATION: FY 1997; ESTIMATED COMPLETION DATE: FY 2003

Summary: In preparation for the development of a health program, from 1993 through 1997, USAID assisted the GOB with a series of studies, including a Health Sector Assessment, a Family Planning Situation Analysis, the first national Demographic Health Survey (DHS) in Benin, and an analysis of the social and economic impact of HIV/AIDS in the country. The 1996 DHS showed that the average woman gives birth to 6.3 children over the course of her child-bearing years and that only 3.4% of these women use modern contraception. According to the DHS, 167 of every 1,000 children born dies before the age of five, and major causes of child morbidity and mortality are malaria, diarrhea and acute respiratory infections. The maternal mortality rate is estimated at 500 to 1,000 deaths per 100,000 births. The HIV/AIDS rate has been steadily increasing in Benin, with seroprevalence growing from 0.5% in 1990 to nearly 4% in 1998. Unless sufficient measures are taken soon to curb the spread of HIV it could reach epidemic proportions by 2025, the date by which it is projected that 20% of Benin's population could be seropositive. Although Benin's health system does have some strengths, including a well-run cost recovery program and relatively high immunization coverage rates, in general, health services are of poor quality and quantity and utilization of health centers is low. In response to the HIV/AIDS problems, USAID established a strategic objective to increase the use of preventive health measures and family health services. Direct beneficiaries of USAID's family health program are children up to age five, women of child-bearing age, and high risk groups who are deemed at risk of being infected with HIV and other sexually transmitted infections. Indirect beneficiaries include communities and the population as a whole.

Key Results: In 1997, the USAID-supported network of health NGOs started with 10 NGOs and in 1998 membership grew to more than 50 NGOs. Member organizations received training in policy advocacy, leading the network to identify four policy issues to be addressed by the MOH. In 1998, for the first time, reproductive health was integrated into classroom training for health personnel. To increase access to quality family health services and products, USAID has expanded its social marketing program to include a range of affordable, high-quality family health products including condoms, oral contraceptives, oral rehydration salts (ORS), and insecticide-treated bednets. Sales and distribution networks for socially-marketed products have grown steadily. Condom distribution has risen from 355,000 in 1990 to more than 3.5 million in 1998. The use of ORS in targeted areas has increased from 10% to more than 30% since 1995, and sales of Orasel, the socially-marketed ORS product, have risen from 387,213 packets in 1995 to 1,660,395 in 1998. In 1999, the quality of family planning services will be further enhanced by introducing new contraceptives, including injectables. USAID also has provided technical assistance and support for training of health care workers in the public and private sectors focusing on contraceptive technology and family planning service delivery. Numerous health education activities were carried out to increase demand for family health services and products and HIV/AIDS prevention measures. USAID supported the National AIDS Prevention Program education campaigns through theater troupes that use drama to deliver AIDS awareness messages in local languages. USAID's social marketing program publishes a newsletter/comic strip on reproductive health issues that targets youth and is circulated nationwide to schools and other outlets. In 1999 USAID expects to develop a series of educational messages regarding child health that will focus on increasing demand for family health products, including ORS and insecticide-treated nets, and on improving use of preventive measures.

Performance and Prospects: Four key results have been identified as necessary to achieving this objective: (1) Improved Policy Environment: NGOs capable of advocating for improved health policies, Ministry of Health (MOH) adopts improved policies including the introduction of reproductive health courses in medical training, and the integrated management of childhood illness (IMCI); (2) Increased access to family health services and products: increased percentage of public and private sector clinics offering basic package of family health services, increased number of sales points offering socially-marketed family health products; (3) Improved quality of family health management and HIV/AIDS prevention services: increased number of health agents trained to provide quality health services, training of traditional birth attendants to provide quality prenatal care/safe deliveries, distribution of Vitamin A supplements; and (4) Increased demand for and practices supporting use of family health services and products and HIV/AIDS prevention measures: increased proportion of couples intending to space/limit births, increased percentage of infants 0-4 months old exclusively breast-fed, increased percentage of women who know that safe sex can prevent the spread of AIDS.

Performance over the past year has been on track, and with the award of a new institutional contract in January 1999, the activities will be reinforced substantially over the next year. The new contract will support strengthening local and regional capacity for planning and managing systems, increasing the capacity of health care workers to provide quality services, increasing community involvement in the planning and delivery of health services and preventive measures, and improving individuals' health practices. Over the next year, assistance will be offered to the MOH to introduce the IMCI approach and adapt it to meet national needs. Technical assistance also will be offered to the MOH in disseminating the new national reproductive health policy.

Possible Adjustments to Plans: USAID is considering developing a set of AIDS prevention activities that would be carried out at the national level which would fill gaps in the national program. Once the new institutional contract is awarded and a team is in place in the Borgou region, USAID will be better able to identify other possible areas for adjustment to the overall health program.

Other Donor Programs: The European Union plays the leading role in the coordination of donor support for the health sector in Benin. The United Nations Population Fund supports family planning service delivery in the public sector and the International Planned Parenthood Federation plays a parallel role in the private sector. The World Health Organization and UNICEF support the national immunization program, and the UN agencies, coordinated through UNAIDS, offer technical assistance to the National AIDS Control Program. Germany (GTZ) and Switzerland are major health-sector donors in the Borgou region, with the GTZ implementing a community based primary health care program and the Swiss Cooperation providing infrastructure and management support at the regional level. The World Bank supports the MOH in implementing a health care development project that provides the framework for the integration of family planning within the general health care system.

Principal Contractors, Grantees or Agencies: USAID's primary activity, to be carried out in the Borgou region, will be implemented through a U.S. PVO that is to be determined. Other activities are implemented through the MOH, the Ministry of Plan, numerous local NGOs and U.S. PVOs, including Population Services International (PSI), Africare and Catholic Relief Services .

Selected Performance Measures:

	Baseline	FY2000	Target
Contraceptive Prevalence Rate (Nat’l)	3.4% (1996)	5.5%	8.5% (2003)
Contraceptive Prevalence (Borgou Region)	2.4% (1996)	4.5%	7.5% (2003)
Oral Rehydration Salts Use Rate	26% (1996)	34%	60% (2003)
Condom Use Rate	27% (1996)	43%	70% (2003)

---

ACTIVITY DATA SHEET

PROGRAM: BENIN
SO TITLE AND NUMBER: Improved Governance and Reinforced Democracy, 680-SP01
STATUS: Continuing
PROPOSED OBLIGATION AND FUNDING SOURCE: FY 2000: $1,700,000 DFA
INITIAL OBLIGATION: FY 1996; ESTIMATED COMPLETION DATE: FY 2003

Summary: Despite Benin's success in establishing democratic institutions at the macro level, it has been less successful in improving democratic governance and affecting effective decentralization at the local level. Weak planning, budgeting and audit mechanisms within the public sector are major constraints in the MOE and MOH, and also contribute to low basic education and health services. The lack of a transparent, fair and predictable legal and regulatory environment acts as a major constraint to private and local initiatives as well. The insufficient participation of civil society, particularly NGOs and professional organizations, in national and local decision-making has contributed to the poor enabling environment. The relative weakness of the National Assembly is also a constraint to good governance. This Special Objective aims to strengthen civil society's advocacy and networking skills, improve transparency and accountability of public and democratic institutions, improve the environment to promote local and private initiatives, support Benin's decentralization process, and improve the legislative and deliberative performance of its legislature. The beneficiaries of this Special Objective will be the entire Beninese population.

Key Results: The USAID supported Benin Indigenous Non-Governmental Organizations Strengthening Project (BINGOS) phase II, which started in September 1997 will continue training and giving technical assistance so that local NGOs can effectively influence decision-making. Several planning and technical workshops were organized last year. Next year more emphasis will be placed on the role of NGOs as advocates for public policy change and reinforcement of their governance capacities. During 1998, NGOs drafted a decree and a code of conduct to guide NGO operations. The code of conduct is in the process of being adopted by the GOB. To encourage private initiatives and improve community participation in local revenue generation, USAID continued its support for the development, manufacturing and promotion of appropriate technologies. Six local welders have been trained, and 71 treadle pumps and six experimental presses have been sold through local entrepreneurs. Through the Micro-Enterprise Development Project approximately 200 micro-loans have been given and training in micro-enterprise development has been provided to disadvantaged communities among which 90% are women entrepreneurs. In 1998, USAID's technical assistance to the legislature led to the passing of an improved electoral code and decentralization laws. The status of the Autonomous National Electoral Commission has been changed to a permanent and independent entity and elections are planned for the first and second quarters of 1999.

Performance and Prospects: Four intermediate results have been deemed necessary for the achievement of this objective: (1) Increased participation of civil society in national decision-making: a critical mass of NGOs are capable of making an impact on national decision-making; (2) Strengthened mechanisms to promote transparency and accountability: increased number of audits conducted on public institutions to ensure that public officials are held accountable; (3) Improved environment for decentralized private and local initiatives: number of pumps/presses manufactured and sold is increased to 300 and the level of loans to the poor is increased by at least nine per cent (9%) to reach a greater part of the rural population; and (4) Strengthened, more independent and representative legislature: more training on deliberative skills provided to legislators to enable them to pass effective and more important laws. In the coming year, through training and technical assistance, USAID will endeavor to strengthen the legislative and deliberative capacities of the legislature and staff, and enhance dialogue between legislators and their constituents. USAID will help improve management information systems and encourage greater participation of women in the local and national electoral and legislative processes so that pending laws affecting the operations of the education and health sectors be passed in a timely manner. Next year, it is expected that about 200 treadle pumps and presses will be manufactured and sold and 80% of the 534 loans issued will be recovered. In the coming year USAID will support Benin's decentralization efforts by providing training to newly elected local officials.

Possible Adjustments to Plans: In collaboration with civil society organizations such as Transparency International Benin, the National Front Against Corruption, and Supreme Audit institutions (Inspector General's Office and Chamber of Accounts), USAID will increase efforts to combat corruption and increase transparency and accountability by developing and implementing on a bilateral basis anti-corruption and transparency programs that will help: (1) review government spending; (2) assess the economic effects of illegal payments on exports/imports; (3) raise awareness of civil society organizations regarding their role in fighting corruption; (4) corruption regulations revised and/or developed by the GOB; and (5) develop plans for enforcing these regulations.

Other Donor Programs: Switzerland leads the coordination of democracy and governance programs. Germany, through its foundations and local NGOs, is involved in decentralization, civic education and technical support to the National School of Administration. Denmark supports local and grassroots initiatives through local NGOs. France provides support for judicial reform, decentralization and public administration. The World Bank assists the GOB in the areas of financial and administrative reform, and supports the Executive Office's Unit of Public Ethics. Canada is involved in public administration reform and in fostering a favorable environment for the private sector. UNDP provides assistance in electoral coordination, public administration and Internet access.

Principal Contractors, Grantees or Agencies: USAID implements its activities through U.S. PVOs, including Africare, Appropriate Technology International, and Volunteers in Technical Assistance. Other partners include the National Assembly, the Inspector General's Office, Chamber of Accounts, and local NGOs and associations.

Selected Performance Measures:

	Baseline	FY2000	Target
Number of NGOs financially viable and democratically managed	40% (1997)	90%	140%(2003)
Number of annual audits performed by supreme audit institutions	20% (1997)	35%	50%(2003)
Percent of loans serving the very poor including women	10% (1998)	30%	50%(2003)
Number of bills or resolutions amended or initiated bi-annually by National Assembly	42% (1997)	50%	60%(2003)

FOIA Requests : Privacy Policy : Email This Page Plug-ins : FAQs : Help Desk : Contact Us : Site Map : En Español