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FY 1997 Development Fund for Africa: $16,667,842
FY 1997 P.L. 480 Title II: $1,953,000
Introduction.
U.S. interest in Benin, which has a constitutional democracy and a democratically elected president lie in broadening participation in Benin's economic and political development. Benin's peaceful transition to a civilian-led multi-party system of democracy is a model for other African nations. Democratic reforms are proceeding and the role of society in the decision making process is an important one.
The Development Challenge.
Following its independence in August 1960, Benin went through a decade of political upheavals that nearly always resulted in a military coup. In October 1972, the civilian government was overthrown and replaced with a Marxist-Leninist regime which mismanaged the economy until its collapse 17 years later. In February 1990, the political landscape in Benin changed radically when a national conference was held that led to an interim civilian-led government dedicated to a multi-party system of democracy. By March 1991, Benin had held free, fair and transparent legislative and presidential elections. Benin is now one of the few countries in Africa carrying out comprehensive political and economic reforms that have resulted in deep-seated changes. The legislative and judicial branches of government have real power and effectively serve as checks on the executive branch. In 1995, the economy grew at over 6% while inflation was reduced to 3.2%. The cumulative effect, however, of almost two decades of state control of the economy and economic mismanagement has created imbalances as well as attitudes that plague Benin today.
Fundamental changes in political and economic policies have created a more favorable basis for economic growth. In 1989, Benin started a structural adjustment program (SAP) under the auspices of the World Bank and the International Monetary Fund (IMF). Major achievements were made under this program, including the reform of the fiscal and tax systems, the restructuring of the banking sector and significant changes in the monetary policy. Some progress was also made in restructuring public enterprises to the benefit of the private sector. All the inefficient parastatals that crowded out public investment under the Marxist-Leninist regime have been privatized. Decreases in imports coupled with an exceptionally good year in cotton production and export earnings have helped reduce the current account deficit. In 1994, immediately after the African Financial Community (CFA) devaluation, the inflation rate went up to 55% before dropping to about 13.5% in 1994 and then to about 3% at the end of 1995.
The country's third structural adjustment program is expected to begin in 1996 and aims to strengthen the market orientation of the economy, lessen the budget deficit, stimulate the level of domestic savings and investment, and achieve an annual gross national product increase of 5% in real terms. In the education sector, during the Marxist-Leninist rule, the education system deteriorated and parents pulled their children out of school. The gross enrollment rate was 49.7% in 1990 but increased to 60.7% in 1994. This was a result of the education sector reform program which was initiated in 1991 and supported by USAID-financed Children and Learning Equity Foundations program. In the health sector, substantial progress has been made in some areas. Oral rehydration therapy is understood and practiced throughout the country. Community participation and financing has started in rural areas. Vaccine coverage has increased. Yet infant mortality rates remain high because only half of the population has easy access to the general health care services and only one-fifth actually uses the services. Furthermore, progress in child health has not been matched by comparable advances in maternal and reproductive health, including family planning. We believe that unmet demand for family planning information and services is high. The need for increased access to HIV/AIDS prevention andcontrol measures is also high.
Other Donors.
In 1994, USAID and other donors pledged a total of $310 million for development activities. Foreign assistance to the Government of Benin (GOB) was broken down as follows: 49% in capital projects, 22.1% in budget support, 25.3% in technical assistance and 3.0% in food aid. USAID was third out of the seven biggest bilateral donors, (1) Germany $38 million, (2) France $29 million, (3) USAID $17 million, (4) Japan $14.9 million, (5) Netherlands $7.6 million, (6) Denmark $7.4 million and (7) Switzerland $4.9 million.
FY 1997 Program
The USAID strategy in Benin is designed to consolidate the country's economic and democratic transformation by strengthening the country's human resource base, as specifically mandated by the 1990 National Conference, in order to broaden the benefits of economic growth. USAID is strengthening Benin's human resources by improving the quality of and expanding access to basic education, providing family health services, and by strengthening civil society involvement in the conduct of public affairs.
USAID's strategy to strengthen Benin's human resource base combines three approaches: (1) USAID will help establish a quality and equitable basic education system that prepares the younger generations for a productive role and effective leadership within their society; (2) USAID will help consolidate the democratic process and create an enabling environment for participatory development by building modern leadership skills inside and outside government and by strengthening the civil society's capacity for advocacy and oversight; the FY 1997 funding will be used to continue leadership training and to strengthen the impact of human capacity building, and (3) given that rapid population growth adversely affects development objectives, USAID intends to provide family planning assistance to the country.
Agency Goal: Encouraging Broad-based Economic Growth
Benin's economic restructuring only can be sustainable if the majority of Beninese have access to an education system which enables them to become more literate, self-reliant, creative, confident, and entrepreneurial. These are the essential attributes of a labor force which is competitive in the international economy.
The primary focus of USAID's assistance is to improve the quality of and access to primary education. There are five mutually reinforcing targets:
a. establish and maintain sufficient financing for primary education;
b. improve the institutional capacity for education planning;
c. upgrade key pedagogical systems to provide a quality learning environment;
d. increase equity of access to a quality primary education; and
e. promote widespread public participation.
To date, USAID's assistance to Benin's education system has helped strengthen the institutional capacity of the Ministry of Education by increasing access to education, reducing gender and regional disparities, and improving the availability of basic pedagogical needs -- textbooks, training materials and teacher training needed to improve overall quality. As a result, substantial improvements have been made in the education system, as publicly acknowledged by both government officials and parent associations.
Continued increases in financial support for primary education should help sustain these achievements. A special effort to support girls' enrollment is still required, since the enrollment of girls only increased from 36% to 48% in three years. Starting in 1996 and over a four-year period, USAID will support an activity aimed at improving girls' enrollment and retention rates.
As part of the education quality improvement target, teacher training will be initiated in 1996 to consolidate gains made under the Mission's basic education efforts and provide additional training opportunities for primary school leavers. In 1996 and 1997 some vocational activities will also be developed.
Agency Goal: Building Democracy
USAID supports activities to improve democracy and governance. A grant to AFRICARE has paved the way for greater participation in the democratic process in Benin at the grassroots level. Prior to 1991, there were no non-governmental organizations (NGOs) involved in elections management in Benin. Due to USAID's continuous support through local and U.S private voluntary organizations (PVOs) such as the National Democratic Institute (NDI), the number of NGOs providing services related to elections management increased to 16 in 1994. The Beninese Women Jurist Association (AFJB) and the Social Justice and Equity Group (GAJES), for example, are now actively involved with information, education and communication (IEC) activities on women's rights issues at the grassroots level. NGOs such as the Beninese Coalition of Sustainable Development and the Study and Research Group on Democracy and Social Development, have started to play an important advocacy role in keeping the power balance between the government and the National Assembly.
Agency Goal: Stabilizing World Population Growth and Promoting Human Health
Benin is one of the few countries in the West African region without a population policy and where the colonial 1920 anti-contraception law is still in effect, even if not enforced. The estimated population of 5.2 million, (51% female and 49% male), is growing rapidly. Benin has one of the highest fertility rates on the continent: 6.8 children/woman on average compared to 6.4 for Africa as a whole. The population growth rate (1979-1994) was 2.8% and the contraceptive prevalence rate is estimated to be less than 2.5%. Since the 1995 Cairo Conference on Population, donor pressure forced the GOB to publicly acknowledge the correlation between demographic variables and the quality of life in Benin. A national conference on population and development was held in January 1995, which emphasized the urgent need for a clear Beninese population policy. A new family law, to replace the 1920 law, has been drafted by a group of private lawyers commissioned by the GOB, and submitted for the Cabinet's approval and transmission to the National Assembly. The government is implementing a health development policy that favors the integration of family planning into the general health care system.
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Also under the objective is work to reduce the overall prevelance of HIV/AIDS in Benin. According to the 1992 statistics of the US Bureau of the Census, the overall HIV prevalence in Benin was between 1.3% and 4.5%, i.e., between 50,000 and 200,000 people. Although these figures are relatively low, compared with the surrounding countries, they mask serious imbalances between lower rural rates and higher urban rates. The number of HIV seropositive cases is expected to double annually. To complement government's efforts in this area, USAID initiated in 1990, a condom social marketing program, which is the largest AIDS prevention activity in the country. The success of this program resulted in 1.6 million and 2.2 million condoms sold, respectively, in 1994 and 1995, compared to355,000 in 1990.
In 1993 and 1994, USAID financed a series of studies that revealed a need for immediate intervention to strengthen both governmental and non-governmental capacities to increase access to reproductive health care. Starting in 1996 USAID will initiate an activity to address this constraint. This activity will support the integration and improvement of the quality of Family Planning and HIV/STD prevention services in both the public and private sectors, focussing mainly on (1) increased information on and access to family planning services and commodities; (2) expanded community-based distribution of non-medical contraceptives through local NGOs; (3) expanded condom social marketing programs through community-based initiatives; (4) strengthening institutional capacities of both the governmental agencies and NGOs to provide sustainable family planning and HIV prevention services through improved training and supervision of service providers; and (5) creating an enabling environment through the effective implementation of a population policy and a family law.
Additionally, the government's current effort to promote girls' education, with USAID's assistance, will also have significant and lasting impact on fertility. Studies have shown that there is a high correlation between the years of girls' schooling and contraceptive use.
Agency Goal: Providing Humanitarian Assistance
C atholic Relief Services (CRS) implements the P.L. 480 Title II food aid program in Benin. Although Benin is not a food deficit country, small pockets of malnutrition tend to persist. Factors responsible for malnutrition in Benin include: (1) deficient child care practices and inadequate diets for some children; (2) low income and lack of sufficient capital for income-generating activities in many households; (3) inadequate educational opportunities for school-aged children in rural areas; and, (4) lack of a social safety net for vulnerable groups in rural and peri-urban areas. Food aid will be distributed at the following venues: (1) maternal and child health centers, as an incentive for pregnant women and mothers with children aged 0-2 years to attend nutrition education sessions; (2) nutritional recuperation and education centers for the treatment and recuperation of children suffering from acute malnutrition; (3) other child feeding centers, such as schools for children aged 6-14 (primary and vocational schools); and, (4) general relief or welfare cases, orphanages, leprosy and tubercular hospitals, etc..
Purpose: To facilitate the development of a basic education system in Benin that is equitable, efficient, effective and sustainable.
Background: In 1990, after 17 years of Marxist-Leninist rule, the basic education system in Benin was in a period of crisis. Quality had declined, enrollment dropped and teachers were no longer being paid on a regular basis.
USAID Role and Achievements to Date: USAID support includes technical and budgetary assistance to the Government of Benin as it implements a comprehensive reform of the primary education system. As a result, enrollment has increased significantly, and progress is being made in the areas of equity (regional and gender) as well as the quality of education. For the first time in recent Beninese history, the Ministry of Education has developed a decentralized approach to several key planning functions, thus strengthening institutional capacity and encouraging broader participation.
Description: USAID focuses on five activity areas: establishing and maintaining sufficient financing for primary education; improving the institutional capacity for education planning; upgrading key pedagogical systems to provide a quality learning environment; increasing equity of access to a quality primary education; and promoting widespread public participation. USAID is specifically targeting vocational and technical training for primary school-leavers as a key area for new intervention. Other target areas are enhancement of pre-service teacher training and incentives to increase enrollment of girls.
Host Country and Other Donors: The French provide technical assistance to the Ministry of Education, and the World Bank assists in the areas of teacher-training, girl's enrollment, pedagogical materials and school buildings. The smaller European entities (official and Non-Governmental Organizations) are designed to complement the USAID-supported reform of the primary education system.
Beneficiaries: About 1 million children betwen the ages of 6-8 represent 19% of the national population. Approximately 676,000 children were enrolled in either public or private primary schools. The entire country benefits by an expanded educated citizenry..
Principal Contractors, Grantees or Agencies: Activities are implemented through private American companies and U.S. and local non-governmental organizaztions such as the Mitchell Group and World Education.
Major Result Indicators:
Baseline Target
Gross Enrollment Rate 49.7% (1990) 78%(2002)
Girls Enrollment Rate (Girls/Boys ratio) 0.58 (1990) 1.00(2002)
Pass rate, primary school leaving exams 40% (1990) 80%(2002)
PROGRAM: BENIN
TITLE AND NUMBER: Promote Governance and Reinforce Democracy, 680-SP01
STATUS: Continuing
PROPOSED OBLIGATION AND FUNDING SOURCE: FY 1997: $895,032 DFA
INITIAL OBLIGATION: FY 1996; ESTIMATED COMPLETION DATE: FY 2000
Purpose: To strengthen civil society and to improve transparency and accountability so that citizens have greater opportunity to be involved in the decision making process and Government institutions become more responsive to the needs of their constituencies.
Background: Although progress has been impressive, democratization in Benin is still in initial stages. Issues of transparency and accountability persist. This impedes not only relationships between the institutions and the government but can also jeopardize trust between the citizens and the Government.
USAID Role and Achievements to Date: USAID's support includes activities which will improve the conduct of elections and provide support to parents associations so they can effectively participate in school management. Through a USAID funded grant in May 1995, the national network of parents association was created and parents are beginning to reclaim their role of overseeing the primary education system. Also, USAID has reinforced the institutional capacity of Non-Governmental Organizations (NGOs) involved in strengthening civil society. In 1991, 12 NGOs were involved in civic affairs. Due to USAID continuous support through AFRICARE the number of NGOs providing services related to civic affairs has grown to 29.
Description: USAID focuses on programs to enhance the growth of non-governmental organizations that are democratic in nature in order to empower civil society. Activities are also geared to helping government institutions to be more accountable and responsive to the citizens by providing appropriate technical expertise and training, qualified technical and managerial personnel, and policy planners to strengthen development institutions, legislative and judicial (regulatory) support organizations.
Host Country and Other Donors: The German Konrad Adenauer Foundation is one of the most involved in democracy and governance in Benin. Its activities cover information, education and communication (IEC) programs on democracy and governance topics.
Beneficiaries: The beneficiaries are Beninese citizens at the grassroots level, indigenous communities and other local associations or organizations and government executive, legislative, judicial support institutions.
Principal Contractors, Grantees or Agencies: USAID will implement the activity through private nonprofit organizations, and U.S. and host country NGOs such as World Education and AFRICARE.
Major Result Indicators:
Baseline Target
Total number of registered NGOs 273 (prior to 1991) 1300 (year 2000)
Active NGOs in Civic Affairs 12 (prior to 1991) 80 (year 2000)
Active NGOs elections management 0 (prior to 1991) 30 (1999)
PROGRAM: BENIN
TITLE AND NUMBER: Expanded Family Planning and HIV Prevention Services, 680-SP02
STATUS: New
PROPOSED OBLIGATION AND FUNDING SOURCE: FY 1997: $5,522,247 DFA
INITIAL OBLIGATION: FY 1996; ESTIMATED COMPLETION DATE: FY 2002
Purpose: To Expand the Availability, Quality, and Use of Sustainable Family Planning and HIV Prevention Services
Background: Due to no studies being completed or specific activities undertaken, the exact dimensions of demographic pressure in Benin have not been fully determined. However, it is clear that continued rapid population growth will adversely affect the country's development objectives. In 1993 and 1994, USAID assisted the Government of Benin with a series of studies which indicated a need for immediate intervention to strengthen the Government's capacities in maternal and child health, to integrate family planning services into the ongoing public sector programs, and to develop initiatives in the Non-Government Organizations (NGOs) sector in order to increase access to adequate family planning and mother and child health care services.
The U.S. Bureau of the Census reported the overall HIV/AIDS prevalence rate to be between 1.3% and 4.5% of the population, i.e., between 50,000 and 200,000 people. Although these figures are relatively low, they mask serious imbalances between urban and rural areas while the number of HIV seropositive cases is expected to double annually.
USAID Role and Achievement to Date: USAID has supported HIV/AIDS prevention activities through condom social marketing. As a result, condom sales rose from 355,000 in 1990 to 2,200,000 in 1995. USAID also financed a series of studies to assess family planning needs and a demographic health survey, the first ever in Benin, which will be completed by the end of 1996. Several workshops were also held to sensitize decision makers. A GOB population policy was drafted in 1995 and is awaiting adoption. The Ministry of Health (MOH) has become more open to the views of and contributions from the non-governmental sector. USAID also financed U.S. and third-country training for family planning service providers and Beninese participation in international workshops and conferences.
Description: USAID will expand and improve the quality of family planning services and HIV/AIDS control and will strengthen their integration into the primary health care system, in both the public and the private sectors. Major project components will include institutional strengthening to ensure sustainability, training and supervision, technical assistance, access to commodities and information, education and communication.
A family planning component will focus on access to quality family planning services and expanded community-based distribution of non-medical contraceptives. An HIV/AIDS component will strengthen and expand ongoing condom social marketing programs and community-based interventions through local NGOs, and will promote behavioral changes through information, education and communication campaigns among targeted populations. The institutional strengthening component will help strengthen the GOB's capacity to implement appropriate policies and mobilize budget resources to improve family health.
To ensure efficiency and sustainability, the project also will draw on the capacities that are being developed among local NGOs and PVOs under the Benin Indigenous NGO Strengthening Project, implemented by AFRICARE.
Host Country and Other Donors: The World Bank supports the Ministry of Health in implementing a health care development project which provides the framework for the integration of family planning with the general health care system. The United Nations Population Fund supports family
planning service delivery in the public sector. The International Planned Parenthood Federation provides assistance to the Beninese Planned Parenthood Association, the World Health Organization and the French Cooperation support the National AIDS Control Program.
Principal Contractors, Grantees or Agencies: USAID will implement the activity through the Ministry of Health, U.S. organizations (Medical Care Development, Inc. and Africare) and local NGOs.
Major Result Indicators:
Baseline Target 1
Infant mortality 105.5/1000 (1992) TBD
Maternal mortality 800/100,000 est (1992) TBD
Contraceptive prevalence 1-2.5% (1994) TBD
rate
________________________
l To be determined
|
Encouraging Broad-based Economic Growth |
Stabilizing Population Growth and Protecting Human Health |
Protecting the Environment |
Building |
Providing Humanitarian Assistance |
TOTALS |
|
|
USAID Strategic Objectives |
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|
1. Ensuring that an Increasing Number of School-aged Children Receive, on a more Equitable Basis, an Education which Adequately Prepares them for a Productive Role in their Society - Dev. Fund for Africa |
10,198,289 |
|
52,274 |
|
|
10,250,563 |
|
2. Promoting Governance and Reinforcing Democracy - Dev. Fund for Africa |
|
|
|
895,032 |
|
895,032 |
|
3. Expanding the Availability, Quality, and Use of Sustainable Family Planning and HIV Prevention Services - Dev. Fund for Africa |
|
5,522,247 |
|
|
|
5,522,247 |
|
4. Decreasing Infant Child and Maternal Mortality through Targeted Health and Nutritional Education and Complementary Activities - PL 480 Title II |
1,953,000 |
1,953,000 |
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|
Totals - Dev. Fund for Africa - PL 480 Title II |
10,198,289 |
5,522,247 |
52,274 |
895,032 |
1,953,000 |
16,667,842 1,953,000 |
USAID Mission Director: Thomas E. Park