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Note: This document may not always reflect the actual appropriations determined by Congress. Final budget allocations for USAID's programs are not determined until after passage of an appropriations bill and preparation of the Operating Year Budget (OYB).

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BENIN

	FY 1997	FY 1998	FY 1999
	Actuals	Estimate	Request
Child Survival and Disease..........	$11,000,000	$12,000,000	$11,200,000
Development Assistance..............	$2,800,000	$5,150,000	$4,400,000
P.L. 480 Title II...........................	$2,095,690	$1,923,900	$1,902,000

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 is a model for other African nations. Recent history suggests that democratic countries tend to be more stable, prosperous and much less likely to wage war on 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. The Government of Benin has played an active role in facilitating, monitoring and advancing the Liberian peace process in close collaboration with the United States Government. Benin has proven to be an ally in the region and beyond, as it was the only African nation to contribute to the United Nations peace-keeping forces in Haiti. The success of its democratization process and its political stability have also facilitated an improved environment for U.S. investment in Benin.

Since 1991, the growth of Benin's democratic institutions has made it not only a success story but a model for Africa. The country has organized two consecutive presidential elections that were free, fair and transparent, each making possible a smooth transfer of power. Such an accomplishment is the best evidence of the health of democratic institutions in Benin. In this sub-region where some countries have wavered in their commitment to democracy and political liberalism, Benin is playing an important moderating role. It has faithfully followed its structural adjustment program and macroeconomic reforms have begun to take effect. Fiscal balance has been achieved, the market sets prices, and economic growth has averaged 5% over the past five years while inflation has been stabilized at around 3%. Political and economic reform has become institutionalized, and is not dependent on charismatic personalities. The legislative and judicial branches of government are alive and well and the constitutional court in particular exercises effective checks and balances against executive power, as does a free and active press.

Development Challenge.

While critical to the establishment of improved governance, reforms have yet to show a significant impact on poverty. Infant, child and maternal mortality rates, although falling, are among the highest in West Africa. Contraceptive prevalence is low, reported at 3% for modern methods by the Demographic and Health Survey (DHS, September 1996). This survey also reported a fertility rate of over six children per woman and a population growth rate over 3% per year. This means that Benin's population will double in less than 25 years, adversely affecting the gains of economic growth. Illiteracy is about 75% overall and 80% for women.

Systemic problems exist as well. The Government of Benin is only able to spend about 60% of its non-salary recurrent expense budget for education; for health, the rate is even lower. USAID believes the underlying cause of weak absorptive capacity and low efficiency is deficient governance. A national bureaucracy from the earlier Marxist-Leninist period remains highly centralized, and resists change. Public officials are not easily held accountable, are poorly paid, lack incentives to serve the

public good, often occupy a dual role in the private sector, and conduct their business under less than transparent conditions. Despite Benin's success in establishing democratic institutions at the macro level, the bureaucratic regime poses formidable obstacles to development. Only through concerted action with health and education objectives and coordinated planning with other donors can meaningful results be generated in improving governance and reinforcing democracy.

Other Donors

Between 1991 and 1995, Benin received approximately $1.6 billion in foreign assistance. In 1996, it received $261 million in foreign assistance, 20% less than in 1995, but representing about 11.5% of GDP. The contribution of the top ten donors represents more than 77% ($200 million) of the total for 1996. These were: France ($38 million), Japan ($33 million), African Development Fund ($25 million), World Bank ($20 million), United States ($19 million), Germany ($18 million), Canada ($15 million), Denmark ($14 million), Switzerland ($11 million) and United Nations Development Program (UNDP) ($8 million). Taken together, total foreign assistance amounted to 86% of the GOB public investment budget in 1996.

FY 1999 Program

To provide continued support to Benin for FY 1999, funding has been requested for the Basic Education strategic objective, the Health/Population strategic objective, and the cross-cutting activities in the Democracy and Governance special objective.

The P.L. 480 Title II Food Aid Program in Benin is implemented by Catholic Relief Service. The FY 1999 funding level has been set at approximately $1.9 million, and will distribute food aid to maternal and child health centers, nutritional recuperation and education centers for malnourished children, and to other child feeding centers, such as primary schools.

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BENIN
FY 1999 PROGRAM SUMMARY
(in thousands of dollars)

USAID Strategic and Special Objectives	Economic Growth & Agriculture	Population & Health	Environment	Democracy	Human Capacity Development	Humanitarian Assistance	TOTALS
S.O. 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 - CSD	---	---	---	---	7,000	---	7,000
S.O. 2. Increase use of FP/MCH and STD/HIV prevention services within a supportive policy environment - CSD - DA - P.L. 480/II	--- --- ---	4,200 2,500 ---	--- --- ---	--- --- ---	--- --- ---	--- --- 1,902	4,200 2,500 1,902
Sp.O. 1. Improve Governance and Reinforce Democracy - DA	---	---	---	1,900	---	---	1,900
Totals - CSD - DA - P.L. 480/II	--- --- ---	4,200 2,500 ---	--- --- ---	--- 1,900 ---	7,000 --- ---	--- --- 1,902	11,200 4,400 1,902

USAID Representative, Thomas E. Park

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ACTIVITY DATA SHEET

PROGRAM: BENIN
TITLE AND NUMBER: Ensuring That an Increasing Number of Primary School-aged Children Receive, on a More Equitable Basis, an Education Which Adequately Prepares Them for a Productive Role in Their Society, 680-SO01
STATUS: Continuing
PROPOSED OBLIGATION AND FUNDING SOURCE: FY 1999: $7,000,000 CSD
INITIAL OBLIGATION: FY 1996; ESTIMATED COMPLETION DATE: FY 2002

Purpose: To facilitate the development of a basic education system in Benin that is equitable, efficient, effective and sustainable.

USAID Role and Achievements to Date: Since 1991, USAID support has included technical and budgetary assistance to the Government Of Benin in its implementation of a comprehensive reform of the primary education system. Results include an increase in the gross enrollment rate from 49.7% in 1990 to 68.8% in 1996; the girl/boy ratio, while still low, has nevertheless increased to .62 in 1996 following a low level of .55 in 1993; and the leaving exam pass rate for primary school has increased to 62% in 1996 from 31.7 % in 1991. The effort to involve parents in education, with the strengthening of more than 200 parents' associations, has resulted in their participation in school management, infrastructure building (latrines, classrooms, for example) and revision of curricula. 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 local participation.

Description: The USAID program focuses on the following five activity areas: 1) Establishing and maintaining sufficient financing for primary education . This activity assists the Ministry of Education and Ministry of Finance to set up a reliable budget expenditure tracking system that would allow the two ministries to achieve improved planning, management, and accountability. 2) Improving the institutional capacity for education planning . Technical assistance is provided to the Ministry of Education and the Ministry of Finance to improve institutional structures, resource allocation, and control and investigation procedures. Delegating authorities to departmental education divisions will be facilitated. Training is provided to administrative and financial staff to improve management and accountability. 3) Upgrading key pedagogical systems to provide a quality teaching and learning environment. USAID is helping schools comply with the norms defined when the program was launched in 1991. Activities include revising school curricula and textbooks, providing training to teachers and working with schools to improve the sanitary environment. 4) Increasing equity of access to a quality primary education taking into account gender and region. USAID is helping to increase girls' enrollment in schools. A network for the promotion of girls' education will work with key ministries, the Educational Commission at the National Assembly and Non-Governmental Organizations (NGOs) to address gender issues in textbooks, classrooms, and in everyday life. Efforts focus on increasing schooling in remote village areas. 5) Promoting widespread public participation. For the past three years, an American Private Voluntary Organization (PVO), World Education, has been working with parents' associations for their increased involvement in education affairs. World Education has provided training in areas such as management, fund raising, and implementing projects. Local NGOs in education have been strengthened.

In addition, USAID will continue to support skills training which was targeted as a key intervention area in 1998 with emphasis on primary school children and school leavers.

Host Country and Other Donors: The World Bank assists with 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 (EU) intervention in education is limited. Its assistance contributes to school construction and technical training. Japan

has recently launched a major school construction project. Other multilateral organizations and international PVOs also contribute to Benin's primary education reform. During the recent round table held in May 1997 in Benin, France pledged more than $11 million over three years, the World Bank $53 million, and the EU more than $3 million.

Beneficiaries: Approximately 800,000 children will benefit from USAID-financed activities in primary education and technical training.

Principal Contractors, Grantees, or Agencies: Implementation will continue through private American firms and U.S. and local non-governmental organizations such as World Education, Medical Care Development International and Songhai. International Foundation for Education and Self-Help, a U.S. PVO, has recently begun the implementation of a teacher training project. The institutional contract for technical assistance for primary education will be recompeted in 1998.

Major Results Indicators:		Baseline			Target
		(1990)	 		(2002)

Gross Enrollment Rate		49.7%	 	78%
Girls' Enrollment Rate (Girls/Boys ratio) 		.58	 		1.00
Pass rate, primary school leaving exams		40.0%	 		80%

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ACTIVITY DATA SHEET

PROGRAM: BENIN
TITLE AND NUMBER: Increase Use of Family Planning/Maternal and Child Health (FP/MCH) and Sexually Transmitted Diseases/Human Immunodeficiency Virus (STD/HIV) Prevention Services within a Supportive Policy Environment, 680-SO02
STATUS: Continuing
PROPOSED OBLIGATION AND FUNDING SOURCE: FY 1999: $4,200,000 CSD, 2,500,000 DA, DA, $1,901,000 P.L. 480 Title II
INITIAL OBLIGATION: FY 1997; ESTIMATED COMPLETION DATE: FY 2004

Purpose: To expand the availability, quality, and demand for sustainable family health services including family planning, child survival and STD/HIV prevention.

USAID Role and Achievement to Date: USAID has supported HIV/Acquired Immune Deficiency Syndrome (AIDS) prevention activities through the of social marketing of condoms, community education campaigns, and institutional strengthening of the National AIDS Control Program. As a result, condom sales rose from 355,000 in 1990 to 2,200,000 in 1995. Support for child survival activities has been through social marketing of oral rehydration salts (ORS), training of village health volunteers in diarrhea prevention and management, and through a grant to United Nations International Children Emergency Fund's child survival program. As a result of these interventions, usage of ORS in the target regions has gone from an average of 10% to 30%. USAID also financed a series of studies including a population/family planning needs assessment (1994) and a Demographic Health Survey, the first ever in Benin, which was completed in September 1996. These studies indicate the need for immediate intervention to strengthen the Government Of Benin'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 to increase access to adequate family planning and maternal/child health services. USAID also financed training for family planning service providers and Beninese participation in international workshops and conferences.

Description: USAID/Benin's special objective in health is being upgraded to a strategic objective and the strategy is being revised. Development of activity descriptions for grants/contracts will be completed in early 1998 and assistance awards will be made by the end of 1998. The results to be achieved by this program are an increase in availability, quality and demand for family planning, maternal and child health services, and STD/HIV preventive measures within an improved policy environment. This will be achieved through capacity-building, support for implementation of the national population policy, service delivery, commodity provision, training, and information, education, and communication in the public and private sectors. The program of social marketing of condoms, child survival products, and contraceptive products will be expanded. To ensure efficiency and sustainability, USAID, in partnership with other donors, will encourage the integration of reproductive health into health related (NGOs) and promote the development of NGO networks. These networks will work in partnership with the Ministry of Health (MOH) and will serve as advocates on family health issues.

Host Country and Other Donors: 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. The United Nations Population Fund supports family planning service delivery in the public sector. The International Planned Parenthood Federation provides assistance to the Beninese Association for the Promotion of the Family. The World Health Organization, French Cooperation, and the European Union support the National AIDS Control Program. Germany, Switzerland, Holland, and Canada are also active in the health area. Donor contributions in the area of health for 1996 were $18.4 million.

Beneficiaries: Direct beneficiaries of the proposed activity will be children up to age five, women of child-bearing age, and groups at risk for HIV and other sexually transmitted infections.

Principal Contractors, Grantees or Agencies: USAID will implement the activity through the Ministry of Health, Ministry of Plan, the National AIDS Program, The International Planned Parenthood Foundation affiliate, a U.S. private voluntary organization and various field support agencies such as Basic Support for Institutionalizing Child Survival, Primary Providers' Education and Training in Reproductive Health, etc.

Major Result Indicators:		Baseline	 		Target
		(1996)	 		(2003)

Contraceptive Prevalence Rate (Nat'l)		   3.4%	 		8.5%
Contraceptive Prevalence (Borgou Region)		 2.4%	 		7.5%
Oral rehydration salts use rate		26%	 		60%

Condom use rate 27% 70%

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ACTIVITY DATA SHEET

PROGRAM: BENIN
TITLE AND NUMBER: Improve Governance and Reinforce Democracy, 680-SP01
STATUS: continuing
PROPOSED OBLIGATION AND FUNDING SOURCE: FY 1999: $1,900,000 DA
INITIAL OBLIGATION: FY 1996; ESTIMATED COMPLETION DATE: FY 2004

Purpose: To strengthen civil society's advocacy skills, improve transparency and accountability of public and democratic institutions, and improve the business environment to promote private initiatives.

USAID Role and Achievements to Date: USAID has strengthened the institutional capacity of non-government organizations (NGOs) working at the grassroots level through the Benin Indigenous NGO Strengthening (BINGOS) program and has funded conferences, seminars and civic education training in the area of governance. BINGOS Phase I has been extended to December 31, 1997 to bridge into BINGOS Phase II which will extend its services to NGOs in the northern part of the country in support of the Mission's health and education activities there. Appropriate Technology International (ATI) was awarded a grant in October 1997 to implement a program to strengthen the enabling environment for small enterprise development. In November 1997, a grant was awarded to the Volunteers in Technical Assistance (VITA) to start a program on microenterprise development in Benin. Start-up activities are due to begin shortly. Several assessments have been completed including a needs assessment of the National Assembly in the area of training and institutional support, an assessment of the pre-electoral environment, including the examination of the legal and institutional framework of the Beninese electoral commission, and the material, technical and logistic needs for the upcoming municipal and legislative elections.

Description: USAID will continue to provide support to sustain the growth of active NGOs so they can play their advocacy role and defend civil society's needs and interests in education and health. Activities will be geared to helping government institutions be more accountable and responsive to Beninese citizens. The implementation of democracy and governance activities will: 1) provide NGOs with the capacity to better play their role in the civil society and monitor government's actions in education and health; 2) alleviate some of the legal and regulatory constraints to NGO activity in Benin; 3) facilitate public sector transparence and accountability through assistance to on-going decentralization efforts, particularly in the education and health sectors; and 4) reinforce the technical capacities of democratic institutions such as the National Assembly.

Host Country and Other Donors: Among the donors, the Konrad Adenauer Foundation, a German foundation, is the most involved in democracy and governance in Benin. Its activities cover information, education and communication programs on democracy and governance topics. Danish Cooperation and local NGOs such as the Research Group on the Democratic, Social, and Economic Development of Africa (GERDDES) and New Ethics (Nouvelle Ethique) are involved in the development of advocacy skills. French Cooperation, the Ministry of Interior and local communities work on decentralization issues. The Ministry of Finance and public audit institutions implement accountability activities. The European Union in conjunction with USAID conducted a macro-governance assessment. The World Bank, the "Moralisation" Unit of the Presidency and an NGO network are involved in anti-corruption activities. Swiss Cooperation is the DAC-designated lead donor in good governance activities. United Nations Development Program is coordinating donor election support actions.

Beneficiaries: All Beninese citizens.

Principal Contractors, Grantees or Agencies: USAID implements the activities through the National Assembly, Supreme Audit Institutions (Chambre of Account, Inspector General), State University of New York (S.U.N.Y.) Albany, VITA (U.S. PVO), ATI (US PVO), and AFRICARE (U.S. PVO).

Major Result Indicators:		Baseline	Target

Number of NGOs financially viable		40% (1997)	55% (1999)
and democratically managed

Number of NGOs registered by		1000 (1997)	2000 (1999)
the Ministry of Interior

Level of locally collected revenue		5% (1998)	10% (1999)
in local government budget

Number of audits performed by		20 (1997)	35 (1999)
supreme audits institutions 

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