African trade policies have to match its industrialisation imperative
By Carlos Lopes, howwemadeitinafrica.com
While the last 15 years
have seen relatively high levels of growth driven by a commodity
super-cycle and strong internal demand from a growing middle class,
Africa is still dependent on commodities for most of its export
earnings.
There is now broad consensus that, without diversified economies,
Africa will remain prone to exogenous shocks and trapped in the paradox
of high growth rates, coexisting with high levels of unemployment and
extreme poverty. It is for this reason that the last four issues of the Economic Report for Africa
have
investigated the fundamental policy questions and challenges facing the
transformation process and endeavoured to shed light on, and bring
coherence to, policy priorities at national, regional and continental
levels.
I continue to call for accelerated industrialisation as key to the
structural transformation of African economies. The deep focus on
industrialisation in Africa demonstrates our commitment to ensure that
policy research and statistics are strategically relevant to African
governments’ priorities. The new industrial policies being developed by
several member states and regional economic communities have greatly
benefited from the research, statistics and debates generated by our
focus on this critical subject.
The key factors constraining trade and industrialisation in Africa
are related to Africa’s narrow production and export base, which is
dominated by low-value products such as raw materials and primary
commodities. This is compounded by very high trade costs, tariffs and
non-tariff barriers to intra-African trade and Africa’s access to
international markets. We have no alternative but to increase our share
of global exports. While in the 1970s, Africa accounted for 4.99% of
world trade and East Asia 2.25%, by 2010, we had regressed to 3.33%,
while East Asia had soared to 17.8%. Limited by poor infrastructure
and inefficient logistics, lack of adequate skills and quality inputs,
insufficient provision of credit and financial services, ours has become
a story of lost opportunity. The time has come for us to awake.
Africa’s current trade policy plays a major role in our inability to
excel.
The 2015 edition of the Economic Report for Africa suggests
that trade and industrial policies are now delinked from each other. As a
result, African countries exhibit high levels of protectionism with no
tangible benefits in terms of productivity improvements. This is
exacerbated by rent-seeking behaviour which precludes the harnessing of
dynamic comparative advantages. Accordingly, tariff structures often do
not reflect industrial policy considerations, but are the unsystematic
result of successive rounds of reforms. If one looks more closely at
imported inputs, it is clear that tariffs are weighing very heavily on
the competitiveness of African countries. They stimulate neither the
supply responses upstream nor the competitiveness of downstream
industries. When properly applied, tariff structures are an instrument
for a coordinated strategic approach and for consistency between trade
and industrial policy frameworks. I like to call such approach “smart
protectionism” – better defined as making the rules work for you.
Everybody wants it, but we have not succeeded in making it happen.
Pursuing trade reforms in a strategic manner is a means of promoting
and strengthening a country’s competitiveness and creating favourable
conditions for enhanced participation in value chains.
Where global value chains are concerned, there is a growing body of
research that points to the relevance of the services sector in terms of
both contribution to value addition and employment creation. Put
differently, a dynamic services sector – think for instance of financial
services or ICT – can exert wide-ranging spill-overs that lift
productivity and enhance value along the chain. Within Africa, however,
trade in services is still restricted by a number of (mainly regulatory)
barriers.
Against this background, it is vital that negotiations for the
continental free trade area also encompass intra-African trade in
services. This would not only contribute to improve the scope for the
emergence of regional value chains, but also ensure that the gains
stemming from the creation of the Continental Free Trade Area are more
fairly distributed among African countries, particularly those economies
that are developing significant service hubs.
In addition, harnessing trade strategically means that African
countries ensure that the sequencing of trade liberalisation is
consistent with their transformative agenda and commitment to regional
integration. In other words, the sequencing of trade liberalisation
should prioritise the reduction of tariffs and removal of non-tariff
barriers within Africa. The fact is that intra-African exports often
face higher levels of protection vis-à-vis Africa’s exports to the rest
of the world, and the situation may worsen. Our goal should be to have
tariffs reduced between regional economic communities, in order to avoid
offering lower tariffs to Europe than those within Africa, which could
become one of the consequences of the Economic Partnership Agreements in
the absence of an ambitious Continental Free Trade Area Agreement.
Other limiting factors, such as non-tariff barriers, remain particularly
pervasive and add to the burdens weighing on the competitiveness of
African producers, as these barriers remain particularly high between
regional economic communities.
Unilateral trade preferences alone can hardly enable the conditions
required for the development of regional value chains. Let us realise
that Africa can no longer afford to negotiate trade agreements as if
industrialisation does not matter. We need to keep before us, as our
lodestar, the message that trade can indeed support industrialisation,
but that harnessing this opportunity requires a coherent policy
framework.
Carlos Lopes is executive secretary of the United Nations
Economic Commission for Africa. The article was first published on his blog.
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