Menu repository cannot be found

To setup the taglib web.xml has --->
	<taglib>
		<taglib-uri>menu</taglib-uri>
	
<taglib-location>/WEB-INF/lib/struts-menu.tld</taglib-location>
	</taglib>

To setup the plugin struts.xml has --->

<plug-in className="com.fgm.web.menu.MenuPlugIn">
	<set-property property="menuConfig"
value="/WEB-INF/config/navigation.xml"/>
</plug-in>


To define the menu navigation.xml has ---> 

<Menus>

	<Menu name="menu1" title="Navigation">
		<Item name="menu11" title="CMS" page="/do/cmsList"/>
		<Item name="menu12" title="Names" page="/do/nameList"/>
	</Menu>

</Menus>

To access the menu index.jsp has --->

<%@ taglib uri="jstl/fmt" prefix="fmt" %>
<%@ taglib uri="menu" prefix="m" %>

<fmt:setLocale value ="en" />
<fmt:setBundle basename="application" />

<CENTER>
<fmt:message key='organization.name'/>
<BR><BR>

<m:useMenuDisplayer name="CoolMenu" >
	<m:displayMenu name="menu1"/>
</m:useMenuDisplayer>

</CENTER>

The following error occurs --->

javax.servlet.jsp.JspException: The menu repository could not be found.
	at
com.fgm.web.menu.displayer.taglib.UseMenuDisplayerTag.doStartTag()I(Unknown
Source)

etc...

I'm pretty sure I've got the code right so it has to be some simple error.
Please help

Dennis Stevens
Chief Information Officer