Zambia WT/TPR/S/106
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IV. TRADE POLICIES BY SECTOR
(1) OVERVIEW
1. The Zambian economy has traditionally been dominated by the mining and quarrying sector,
centred around copper.  Difficulties in the sector have led to the improvement of incentives for
investors and have caused Zambia to realize the necessity of diversification.  This necessity was
confirmed in the 2001 decision by the Anglo-American Corporation (the major asset owner in thesector following privatization) not to provide addi tional funding to the Konkola Copper Mines.  Faced
with the continued decline in copper production, and noting that its efforts have fallen short of the
annual growth target of 20% for non-traditional exports, the Government took steps in its
2002 Budget Speech to enhance measures aimed at diversifying its economy away from copper.
2. Full implementation of the 2001 Export Processing Zone Act is expected to promote
investment in export-oriented manufacturing companies.  The manufacturing sector is still dominated
by small-scale industries producing for the domestic market.  The ongoing tariff rationalization is
intended to contain production costs and the need for duty concessions.  However, for sectoral
integration purposes, the eligibility of inputs for tariff reduction is carefully analysed.
3. Zambia has a large potential in agriculture.  However, financial constraints have delayed the
development of this sector, which still shows the lowest productivity in the economy.  Cultivation is
based on traditional methods, hoe in particular, and the sector is dominated by rain-fed activities.
Therefore, performance is subject to weather conditions.  In forestry, the ban of log exports on
environmental grounds seems inconsistent with the relatively high customs tariffs imposed on imports
of forestry products.  Agriculture is promoted on food security and poverty-reducing grounds, and as a
non-traditional sector.
4. In terms of contribution to real GDP, services constitute Zambia's largest sector.  Renewed
attention is being shown to tourism and transportation services.  Awareness of the importance of
telecommunications services to other economic activities led to the adoption of a Telecommunications
Act in 1994.  However, the restructuring of Zamtel, the State-owned de facto monopoly supplier of
fixed telephone services, has not yet taken hold.  Under the General Agreement on Trade in Services
(GATS), Zambia bound, without limitation, measures  affecting consumption abroad, cross-border
supply, and commercial presence for a limited range of services.  Moreover, GATS-based initiatives
are under consideration within SADC to liberalize regional trade in services.
(2) A
GRICULTURE AND RELATED ACTIVITIES
(i) Main features
5. Zambia normally has a good climate, abundant arable land and labour, and good water
resources.  Between November and April, Zambia receives good rainfall, which ranges from 650 mm
in the southern part of the country to 1,800 mm in the north.  The rainfall pattern provides the country
with three agro-ecological regions, which are suited to the production of a wide range of crops,
livestock, and fish.1
6. Currently, only 14% of the total arable land of 42 million hectares is used for agricultural
production.  The underground water, rivers, dambos, and lakes provide the country with significant
irrigation potential of 500,000 hectares, of which only 65,000 hectares (13%) is developed.  The
                                                     
1 Ministry of Agriculture, Food and Fisheries (2001a), p. 3.WT/TPR/S/106 Trade Policy Review
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sector continues to rely on rain-fed activities and therefore, Zambia sometimes experiences weather-
induced variations in production.
7. Zambian agriculture has three broad categories of farmers: small-scale, medium, and large-
scale.  Small-scale farmers are generally subsistence producers of staple foods with occasional
marketable surplus.  Medium-scale farmers produce maize and a few other cash crops for the market.
Large-scale farmers produce various crops for the local and export markets (Table IV.1).
Table IV.1
Characterization of Zambian Agriculture, 1999
Characteristics Small scale Emergent Medium scale Large scale
Number of farmers 459,000 119,200 25,230 740
Area per holding (hectares) 0.5-9.0 10-20 20-60 >60
Crops grown Food crops Food/Cash crops Food/Cash crops Cash crops
Production focus Subsistence Commercial/ Subsistence Commercial/ Subsistence Commercial
Source: Information provided by the Zambian authorities .
8. Zambia produces a variety of crops.  The dominant food crop is maize;  other food crops
include wheat, rice, sorghum, millet, cassava, groundnuts, soyabeans, and mixed beans.  The main
cash crops are:  floricultural and horticultural products, coffee, cotton, tobacco, sugar, sunflowers
paprika, and fresh vegetables.  The under-developed livestock, fisheries and forestry sub-sectors have
shown little improvement since 1996.  Cattle remains the most important livestock activity in Zambia.
Small ruminants, pigs, and poultry are also kept.
9. Agriculture, livestock, fisheries and forestry account for about 17% of real GDP and some
39% of earnings of non-traditional exports.  Small-scale farmers hold nearly two thirds of agricultural
land and a large share of the national herd; they rely largely on hoe cultivation and generally lack
access to irrigation.  Export crops are mainly grown by emergent, large- and medium-scale farmers,
who are also maize producers and use modern methods.  Some commercial farmers are involved infishing activities, however this remains mainly in the hands of artisanal fishermen.
10. The major concern is that the number of households in the small-scale category has been
increasing while the numbers of medium- and large-scale farmers have remained unchanged.
2  This
indicates that agricultural policies have not been effective in increasing the number of farmers in the
medium and large-scale categories.  The full exploitation of Zambia's under-utilized resources shouldoffer the country many alternatives for divers ifying the economy away from mineral production
(copper and cobalt in particular) and increasing agricultural production, thereby contributing to
poverty reduction and national economic growth.
11. The problem of HIV/AIDS is rapidly becoming a major constraint to the agriculture sector.
The disease has a negative impact on agricultural production in that it debilitates productive labour.
The Government is trying to address this problem through preventative efforts and other approaches,
including animal draught power and conservation farming.
 3
12. Zambia's agriculture remains highly vulnerable to unfavourable weather conditions, and it has
been severely affected by drought in recent years, most recently in 2002. A major effort has been
made to build up the livestock herd (also frequently affected by diseases), a significant proportion of
which died during previous droughts.  Unfortunately, poor road infrastructure, limited credit facilities
                                                     
2 Increased unemployment has led people towards agriculture as small-scale farmers.
3 Ministry of Agriculture, Food and Fisheries (2001b), p. 37.Zambia WT/TPR/S/106
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for small-scale farmers, high nominal interest rates, and the narrow range of export crops continue to
affect agricultural performance.
(ii) Policy developments
13. In early 2002, Zambia reviewed developments in its economy and noted the failure of its
agricultural policy to enhance food security on a sustained basis.  This was attributed to inability to
harness abundant water, arable land, and human resources.  Agriculture is now considered as theprime engine for achieving broad-based economic growth and poverty reduction.
4
14. The draft National Agricultural Policy (2001-2010) continues the Government's previous
emphasis on liberalizing the agriculture sector and promoting private-sector participation in
production, marketing, input supply, and credit.5  H o w e v e r ,  a s  t h e  v a s t  m a j o r i t y  o f  s m a l l h o l d e r
farmers are poor and need credit for their development, the Government decided to provide creditdirectly primarily for the purchase of fertilizer.  The programme is not yet in place, but its goal will be
to encourage small-scale farmers to become medium-scale producers.
15. Between 1996 and 2001, the development of the agriculture sector was coordinated through
the Agricultural Sector Investment Programme (A SIP).  While ASIP provided a foundation for the
development of the sector, goals were not met, due largely to an unfavourable macroeconomicenvironment, inadequate resources, poor agriculture infrastructure, and slow private-sector response.
In sum, in spite of the huge potential and past interventions, the agriculture sector has not been
making a significant contribution to poverty reduction and overall growth of the economy.  As part of
the government's Poverty Reduction Strategy Paper (PRSP), it was determined that, to meet the target
of reducing poverty to 50% of the population in 2004 (from 72.9% in 1998), major attention would be
given to agriculture.  The result was the creation of an Agriculture Commercialisation Programme
(ACP).
6
16. The ACP is to focus on increasing income generation through farming and to target
government efforts on farmers aspiring to commercialize their activities.  The key operational
principles for ACP will include a special focus on market linkages and commercialization as well as
building a culture of business entrepreneurship and ethics among players in the sector.  The main
target group is commercially oriented farmers, particularly small-scale farmers.
17. As part of its Poverty Reduction Strategy exercise, the Government intends to place
agriculture as the leading sector for food security, economic growth, and poverty alleviation.  In so
doing, the Government has slightly revised the objectives of the agricultural policy in place in 1996.
The current objectives are to:  (a) ensure national and household food security through dependable
annual production of adequate supplies of basic foodstuffs at competitive costs;  (b) contribute tosustainable industrial development by providing locally produced agri-based raw materials;
(c) increase agricultural exports, thereby enhancing the sector's contribution to the balance of
payments;  (d) generate income and employment through increased agricultural production and
productivity; and (e) ensure that the existing agricultural resource base is maintained and improved
upon.
                                                     
4 Minister of Finance and National Planning (2002a), para. 99.
5 Ministry of Agriculture, Food and Fisheries, (2001b).
6 Ministry of Agriculture Food and Fisheries, (2001a), pp. iv-v.WT/TPR/S/106 Trade Policy Review
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18. In recent years, to achieve its agricultural objectives, the Government has relied on the private
sector, mainly large-scale commercial farmers.  For this, it is seeking to attract additional investment
in agri-processing and in commercial farming.  In centives available for agriculture include:  duty-free
imports of agriculture machinery for investment certificate holders;  in rural areas, an enterprise
holding an investment certificate pays one seventh of the normal 35% corporate income tax in its first
five years of operation;  15% income tax on export earnings;  dividends payable to farmers are taxexempt for the first five years of operation;  15% income tax on farming profits;  capital expenditure
on farm improvements qualify for an allowance of 20% per annum for each of the first five years;
customs duty on agricultural inputs such as bovine semen, animal embryos, and fish has been
eliminated;  customs duty on greenhouse plastic sheeting, tubes, and hollow profiles has been reduced
from 25% to 15%;  customs duty on the medium used for growing roses has been removed;  customsduty on cold-room equipment has been reduced from 25% to 15%;  full allowance for outlay on land
development, conservation, and other costs;  "substantial" rate of depreciation to allow farm
machinery to be rapidly written off against tax;  and "special development allowances" for growing
certain crops such as tea, coffee, bananas, and citrus fruit.
19. The PRSP process has focussed on the need to pay closer attention to the vast majority of
farmers, who are small-scale producers.  This process identified shortcomings in the agricultural
liberalization programme in operation since 1989, which has removed quantitative restrictions on
imports, eliminated subsidies and monopoly marketing boards for both agricultural inputs and
products, and deregulated prices.  However, little was done to help the private sector fill the vacuum
left by the boards.  Three main areas of policy weaknesses and constraints have been identified:  the
rapid pace of policy reform without transitional measures to mitigate the change;  inadequate resource
allocation for agricultural services; and unclear and inconsistent policy statements from politicians.
7
20. There has been some improvement in promoting private-sector participation in agriculture
and improved private/public-sector partnership.  The main remaining problems include:  poor
infrastructure, such as roads, bridges, and lack of storage facilities;  lack of or poor access to credible
marketing institutions;  inadequate credit facilities ;  low priority given to agriculture as reflected in
budgetary allocation to this sector;  low output and high input prices;  poorly implemented agriculturalpolicies;  macroeconomic instabilities, reflected in high inflation and high interest rates;  and poorly
remunerated staff and lack of incentives for field staff.
21. The drought situation in 2002 reached crisis proportions, with the Government declaring a
national food disaster in May.  Domestic stocks were expected to be depleted by September.  This
clearly indicates the failure of previous efforts to protect against such a situation.
22. Tariffs remain the main trade policy instrument in the sector.  The maximum tariff rate of
25% applies to some 60% of the tariff lines in the sector (up from 56% in 1996);  for instance, imports
of tobacco and logging products.  Food, excluding cereals, is subject to relatively high rates of 15% or
25% (Chart IV.1) .  The average applied rate for agriculture (Major Division 1 of ISIC Revision 2) is
18.7% (up from 18.2% in 1996), with a standard deviati on of 9.4%;  the overall average rate is 13.4%.
Like other WTO Members, Zambia has bound all its tariff lines in agriculture; a ceiling binding of
125% is applicable to about 97% of lines (Chapter III(2)(iii)(a)).
                                                     
7 Ministry of Finance and Economic Development (2001d), pp. 26-27.Zambia WT/TPR/S/106
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0510152025Chart IV.1
Average tariff rates by ISIC classification, 2001/02
ISICPer cent
ISIC
111
121122130
210
220230290
311
312313314321
322
323324331332Major groups
Agriculture and livestock production
ForestryLoggingFishing
Coal mining
Crude petroleum and natural gas productionMetal ore miningOther mining
Food products
Other food products and animal feedsBeveragesTobaccoTextiles
Clothing
Leather productsFootwearWood productsFurniture except metalISIC
341
342351352353354355356361362369371372381382
383
384385390Major groups
Paper products
PrintingIndustrial chemicalsOther chemicals, incl. pharm.Petroleum refineriesPetroleum and coal productsRubber productsPlastic productsPottery and chinaGlass and productsOther non-metallic mineral productsIron and steelNon-ferrous metalsFabricated metal productsNon-electrical machinery incl. computers
Electrical machinery
Transport equipmentProfessional and scientific equipmentOther manufactured products
Source :WTO Secretariat calculations, based on data provided b y the Zambian authorities.Overall tariff average
(13.4%)WT/TPR/S/106 Trade Policy Review
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23. An import permit is required for agricultural products; according to the authorities, this
measure is for sanitary and phytosanitary reasons and for statistical purposes.  An export permit is
also required.  Exports of certain logs are banned.  The Minister of Agriculture and Cooperatives has
the authority to issue a Statutory Instrument to restrict the export of grain and grain products.  This
might be done if there are national food shortages.  Currently, an export ban applies to maize, millet,
sorghum, and related brans.
(iii) Policy by key product category
(a) Maize and other food crops
24. Maize, as a staple food crop in Zambia, has historically occupied more than 60% of the
cultivated area.  However, this proportion has fallen in recent years due to government efforts to
encourage crop diversification, a decline in profitability, and poor weather.8  Like most other crops, its
yields are traditionally low, and fluctuate from year to year (Table IV.2).  Maize has received most of
the benefits of agricultural research. Small-scale farmers account for a large share of the crop, but
they generally lack irrigation capability, so the production is largely rain-fed. This makes the country
extremely vulnerable to swings in rainfall, such as the heavy rainfall in 2001 and drought
during 2002.  In 2002, as a result of the serious food shortage, the Government is planning toencourage large-scale farmers to produce maize under irrigation in order to increase local production.
Table IV.2
Production of selected crops, 1998-01
(Kg.)
1998/99 1999/2000 2000/01
White maize 9,471,944 10,795,713 8,909,740
Tobacco, Virginia 2,168,623 3,416,295 5,640,350
Tobacco burley 3,762,081 3,195,973 4,196,332
Groundnuts 566,278 674,369 665,637
Sunflower 134,960 161,483 383,512
Wheat 769,183 830,000 1,245,400
Paddy rice 183,753 110,891 81,838
Soybeans 296,701 252,991 47,208
Seed cotton 58,515,354 56,757,677 49,497,996
Mixed beans 183,245 163,427 237,216
Sorghum 283,262 297,788 336,052
Millet 773,528 479,563 551,182
Sugar cane .. 1,621,000 ..
.. Not available.
Source: Information provided by the Zambian authorities.
25. In contrast to maize, a general upward trend has continued in most other food crops, both in
area cultivated and in production.  The reasons for this shift are lower relative profitability, droughts
and floods, inadequate or late access to inputs and credits, and low prices and unstable markets for
maize.  Crops such as millet, sorghum, soya beans, sunflowers, and cassava are more drought-resistant than maize.  This has provided a wider base for food, particularly for rural households.
Infrastructure remains an important constraint to more intensive use of land for food crops planted,
                                                     
8 Although diversification efforts succeeded in getting farmers to grow new and different products,
those farmers found no market for their production.  Furthermore, cash crop success further aggravatedproblems of food security.Zambia WT/TPR/S/106
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including beans, rice and wheat.  An improvement in, inter alia , roads, electricity and water supply,
and education would further diversify the production base, including the range of food crops.9
26. A Crop Marketing Authority (CMA) is to be established, as a buyer of last resort for selected
crops (especially those not serviced by the private sector, at a price that would enable farmers to at
least recover their production costs) in outlying areas.  This is to fill the vacuum left by the former
government-supported agricultural marketing boards, which were liquidated during the liberalizationreform process.  In addition, the CMA will maintain a strategic food reserve.  A separate body is
being considered to procure and distribute agriculture inputs in targeted areas.  The Food Reserve
Agency had not performed well and will consequently be phased out.
10  
27. The tariff rate on imports of cereals, including maize, is 5%; customs duty on other food
products ranges from 5% to 25% .  The maximum rate (25%) applies, inter alia , to certain roots,
tubers, and prepared food.   A ceiling binding of 125% is applicable to most of these crops .  Tariffs on
fertilizers have been reduced to zero, as part of the Government's efforts to encourage agriculture
expansion.  Nevertheless, utilization of  fertilizer remains low, partly due to financial difficulties and
delayed distribution.
(b) Export crops
28. Despite its high potential, the contribution of the agriculture sector toward the balance of
payments has been low.  While Zambia is remote from major world markets, it is possible for it to
supply selected regional export markets with high value products such as paprika, marigold, cut
flowers, essential oils, spices, mushrooms, castor oil, specific varieties of groundnuts, beans, and
vegetables.  The quality of some Zambian products, especially groundnuts, tobacco, soybeans, and
cotton, is well established.  More recently, coffee, and horticultural and floricultural products have
been added.11
29. Although agricultural products still account for a relatively small share of Zambia's total
exports, there has been a significant increase in the value and variety of agricultural exports.  The
largest exports are in primary agricultural products, and floricultural and horticultural products.
Between 1995 and 2001 (a bad year for production) non-traditional agricultural exports increased
from US$43 million to US$122.1 million.  As a result, the contribution of the agricultural sector tonon-traditional exports increased from 23% in 1990 to 39% in 2001.  The little growth that has been
recorded in the agriculture sector has largely resulted from agricultural exports.
12  The highest
contribution in 1998 the last year for which data are available came from sugar (US$33.2 million),
fresh flowers (US$32.8 million), cotton lint (US$22.5 million), tobacco (US$17.7 million), and fresh
vegetables (US$17.4 million).  Other important agricultural exports include coffee (Arabica), fuzzycotton seed, paprika, and soybeans.  In some years, maize, marigold meal, groundnuts, and seeds have
brought important export values, but the performance of these products seems to be erratic
(Table IV.3).  The production of export-oriented cr ops is dominated by commercial farmers, although
small-scale farmers also are periodic exporters of "low-investment" crops, such as groundnuts and
tobacco.
                                                     
9 Wichern, Hausner and Chiwele (1999), p. 35.
10 Minister of Finance and National Planning (2002), para. 79.
11 Ministry of Agriculture, Food and Fisheries (2001b), pp. 7-8.
12 Ministry of Agriculture, Food and Fisheries (2001b), p. 9.WT/TPR/S/106 Trade Policy Review
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Table IV.3
Agricultural exports, 1995-98
(US$ million)
Product 1995 1997 1998
Beans 0.07 0.03 0.1
Coffee 3.4 8.5 8.8
Cotton lint 5.1 44.4 22.5
Cowpeas .. 0.2 0.02
Fresh flowers 9.5 15.2 32.8
Fresh vegetables 3.7 14.4 17.4
Fuzzy cotton seed 1.7 4.6 3.6
Groundnuts 0.4 1.0 0.8
Maize 10.7 2.7 0.7
Marigold meal 4.0 6.0 0.5
Other seeds 2.2 0.7 0.02
Paprika 0.2 2.3 1.5
Rice 0.04 0.4 ..
Seed cotton .. 0.01 0.04
Sorghum 0.06 .. ..
Soybeans 0.7 12.4 1.3
Sugar 30.0 26.4 33.2
Tea 0.08 0.4 0.5
Tobacco 5.0 15.0 17.7
Wheat 0.03 0.2 0.9
TOTAL 77.5 155.4 143.1
.. Data not available or no exports.
Source: Information provided by the Zambian authorities.
30. Approval for Zambia to qualify for the United  States' African Growth and Opportunity Act
(AGOA) in December 2001 has already led to an expansion of cotton production, both for internal use
and for export to other African countries, which can use Zambian cotton and still qualify for AGOA
benefits.
31. Relatively high customs tariffs apply to cash crops.  The maximum tariff rate of 25% applies,
inter alia , to edible fruit and nuts; peel of citrus fruit or melons;  coffee, tea, maté and spices;  certain
edible vegetables;  certain sugars and sugar confectionery;  certain beverages;  and tobacco products.
(c) Livestock
32. The livestock subsector, consisting of cattle, estimated at 2.5 million head in 2001, sheep,
goats, pigs, and poultry, comprises traditional and commercial activities.  The subsector contributes
about 35% to the national agricultural output.  In some years, Zambia has exported beef to
neighbouring countries, mainly the Democratic Republic of the Congo.  Exports of animal products
were US$1.4 million in 1995, US$4.4 million in 1999, and US$3.1 million in 2001.
33. Per capita consumption of meat is only 2.4 kg., about half the average for Africa.  The
estimated marketable meat is approximately US$380 million but the slaughter offtake is only 7%, of
which 75% is sold at a value of some US$25 million.  Consumer prices of livestock products in
Zambia are much higher than in some other SADC countries.  While some of the differences in
consumption are due to lower per capita income, high prices are also a major factor.  The prices arehigher due to inefficiencies in the production and marketing chain.  Although it is recognized thatZambia WT/TPR/S/106
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Zambia has vast potential for livestock (including poultry) production, this potential is under-utilized
and the productivity of livestock is described as low.13
34. The subsector is dominated by traditional activities, which account for 83%, 64% and 97% of
cattle, sheep and goat production respectively.  Poultry production in the traditional sector was
estimated at 17 million birds in 2001.  Activity included the import of one million day-old-chicks
from neighbouring countries and Europe, and the e xport of 43 tonnes of chicken meat, 92,000 day-old
chicks, and over one million hatching eggs.  In some impoverished and isolated areas, livestock
provides the only means through which income can be generated and livelihood sustained.  The
traditional component of the livestock subsector is characterized by high mortality rates (over 15% in
some areas), slow growth rates, and low reprod uctive efficiency.  Livestock diseases expanded
in 2001.
35. The Animal Production and Health Section of the Ministry responsible for agriculture has
responsibility for implementing national livestock policy.  Its primary responsibility is to control
diseases of national importance and to promot e efficient livestock production.  However, the
occurrence of a number of major cattle diseases, most notably tick-borne disease complications,
trypanosomosis, blackquarter and haemorrhagic septicaemia, constrains production through reducedproductivity and high mortality. Furthermore, becau se of drought, a significant portion of the herd
died during the early 1990s.  The Government has had some success in encouraging the return of
cattle numbers to pre-drought levels by the year 2005.  The 2001 level, of some 2.5 million cattle, was
already close to the 1990 level of 2.7 million, and sheep and goats numbered about 1.2 million,
compared with about 660,000 in 1995.  The 2002 drought, however, may have set back efforts
considerably.
36. Tariffs on imports of livestock range to 25%.  The maximum tariff rate of 25% applies,
inter alia , to meat and edible meat offal, and certain animal products, including their preparations.
There are no quantitative restrictions but permits are required for health and safety reasons.
(d) Fisheries
37. Fishing activities are largely run by artisanal fishermen using unmotorized boats, gillnets
and lift nets.  Fish production has fluctuat ed between 70,000 tonnes and 80,000 tonnes of both
demersal and pelagic species and aquaculture.  Trade in ornamental fish has been increasing, with
over 20,000 live specimens of different species being exported in 2001.   The per capita consumption
of fish in Zambia is on the decrease due to rapid population growth.
38. Government intervention includes issuing fishin g licences to slow down the over-exploitation
of fish stocks
14, monitoring, surveillance, and control of fishing.  The Government also promotes
partnerships with stakeholders in the management of fisheries resources, and provides extension
services to fishermen, fish processors, fishing enterprises, and fish farmers.  Through the Department
of Fisheries Research, the Government conducts research in capture fisheries and that aquaculture to
ensure that appropriate methodologies and t echnologies are developed and applied for proper
management and utilization of fisheries resources, and that aquaculture production is increased toraise per capita consumption of fish from 7.8 kg. to 10 kg.  Through research, the Government also
promotes post harvest loss reduction and fish product quality and assurance to ensure that
international market standards are met.
                                                     
13 Ministry of Agriculture, Food and Fisheries (2000), p. 8.
14 The licence is issued by the Ministry responsible for Agriculture, which fixes the fee to be charged.
Licences for recreational fishing may be issued for a week or a month.WT/TPR/S/106 Trade Policy Review
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39. Customs tariffs on imports of seafood range from 5% to 25%, with an average of 24.2%
(unchanged since 1996).  The average indicates relatively high tariffs on these products
(Table AIV.1).  Canned fish products bear an average import duty of 22.2%.  There are no
quantitative restrictions, although an import permit may be required for health reasons.
(e) Forestry
40. More than 60% of land in Zambia is forest with an estimated area of about 44.6 million
hectares under forest cover.  Plantation forests are estimated to cover about 60,000 hectares.  Forest
activities provide sawn timber, poles, mining timber, fuelwood, medicines, and food.  The commercial
indigenous timber industry consists of about 32 sawmills.  The Zambia Forest and Forestry Industries
Corporation (ZAFFICO) manages about 50,000 hectares  of pine and eucalyptus plantations on the
copperbelt.  All previously state-owned sawmills ha ve been sold to private companies.  Forestry
contributes around 1% to GDP;  exports of wood products have fluctuated (about US$1.4 million
in 1995).
41. Forestry and timber imports carry tariffs ranging to 25%, with an average of 14.3% (down
from 14.8% in 1996).  A phytosanitary certificate is required for all imports of timber and forest
products.  Exports of logs are prohibited, except for sawn timber and railway sleepers of not morethan 10cm thick and drilled at both ends.
(3) M
INING AND ENERGY
(i) Mining and quarrying
(a) Overview
42. Mining and quarrying, dominated by copper, has been the prime mover of economic
development in Zambia during both the colonial a nd post-independence eras. Over the years, the
national economy has developed a comparative advantage in copper and cobalt mining.  Deposits ofgold, zinc, gemstones, coal, and a variety of agri and industrial minerals are also found in Zambia.
Large-scale mining is active in copper, cobalt, and coal, while small-scale mining is active in a variety
of gemstones that include emeralds, amethyst, aquama rine, tourmaline, garnets, and citrine.  Emeralds
are reported to be the most dominant.  This rich variety of mineral resources offers great potential to
provide the resources needed to finance development.
43. The sector's fundamental role in Zambia’s development can be assessed through the backward
and forward linkages that exist between this sector a nd others.  It provides critically needed inputs for
agriculture and agri-chemicals, industrial manufac turing of a wide variety of products such as
ceramics, paint manufacture, the electricity industry, and essential raw materials for the building
industry.  Over the last two decades, however, c opper production has declined, largely because of
declining copper ores and poor re-investment in new and existing mines.  The sector's contribution to
earnings from merchandise exports is currently around 70% (down from more than 80% until the
mid 1990s);  it accounts for some 6% of real GDP. Over 90% of Zambia's mineral output is exported,
mainly as refined products.  Mining output has continued to decline significantly in recent years, by
over 50% relative to the 1970s for certain products (Table IV.4).Zambia WT/TPR/S/106
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Table IV.4
Mineral production, 1997-00
1997 1998 1999 2000
I. METALLIC MINERALS
Cobalt (t.) 4,064 7,264 4,247 3,538
Copper (t.) 308,888 249,030 296,604 256,884
Gold (kg.) 226 209.52 79.15 0
Selenium (kg.) 16,749 12,742 6,829 0
Silver (kg.) 7,219 936 6,077 0
II. GEMSTONES
Amethyst (kg.) 699,343 375,382 510,975 1,017,834
Beryl (kg.) 1,527.06 779.99 4,271 890.40
Emerald (kg.) 508.54 488.28 444.74 369.28
Garnet (kg.) 2,466.80 188.71 0.00 352.00
Tourmaline (kg.) 9,040.28 0 0 60,833
III. FUEL MINERALS
Coal (t.) 164,443 185,717 127,854 88,578
Source: Information provided by the Zambian authorities.
44. A number of factors influence the performance of the Zambian mining industry, some are
exogenous.  The demand for copper is sensitive to the production levels of the major industrial
companies using it as input;  thus, it depends, to a considerable extent, upon the strength and durationof world recovery.  Furthermore, production costs worldwide are likely to be significantly lower than
in recent years due to technological innovations.  Zambia, however, remains among the highest-cost
producers as a result of, inter alia,  large indirect costs and high debt-service payments.
15
45. The Ministry of Mines and Mineral Development is charged with formulating and
administering policy on mineral resource development.  Through its technical departments, namelythe Geological Survey Department, Mines Devel opment Department, and Mines Safety Department,
it promotes investment in the sector;  establishes and maintains an integrated information system (on
the sector), which it makes available to the public, including potential investors;  enforces legislation
on the sector;  promotes research in order to increase the knowledge base and enhance technological
development;  and monitors seismic activity in order to facilitate appropriate intervention.
46. In 1995, the Government put in place a mining policy that sought to ensure the development
of a self-sustaining mineral-based industry.
16  The policy, formulated through the Mines and Minerals
Act of 1995, is designed to encourage private investment in the mining sector.  Among the key
objectives of Zambian mining policy are:
- to make the private sector the principal operator in the sector (through the
privatization of public enterprises) and to promote its initiative in the development of
new mines in order to increase and diversify mineral and mineral-based products andexports;
- to promote the development of small-scale mining;
                                                     
15 See WTO (1996) for details of production costs in the sector.
16 A government team is considering the revision of this Act.WT/TPR/S/106 Trade Policy Review
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- to promote the development of gemstone mining;
- to promote the exploration and exploitation of industrial and energy minerals;  and
- to promote the local processing of mineral raw materials.
47. The Act aims to guarantee a stable and rewarding environment for private investment.  The
most prominent incentives are:  the holder of a mining right is entitled to exemption from customs and
excise duties on all machinery and equipment (inc luding specialized motor vehicles) required for
prospecting or mining activities;  corporate tax has been reduced to 25% from the level of 30% for
companies listed on the Lusaka Stock Exchange;  and all capital items are VAT zero rated.  Investors
may enter into agreement with the Government fo r concessionary terms for their operations.  The
Government also extended some tax relief to mining companies, aimed at levelling the playing field
between smaller, earlier-invested companies and the larger companies that entered the economy as
part of privatization efforts.
48. Mining and quarrying activities, including exploration, production, imports, exports, and
marketing, are largely without restriction; mini ng companies market their own mineral products.
However, all rights related to activities in the sector are vested in the President on behalf of the
Republic of Zambia.  Mineral leases are transferred from the State through the issuance of miningrights, which comprise exploration licences, mining licences, gemstone licences, retention licences,
prospecting permits, artisanal mining rights, large-scale mining licences, and small-scale mining
licences. Thus, mining rights issued by the Ministry of Mines to locally registered companies and
individuals venturing into the sector are specific to the nature of activities.  Under the provisions of
Section 75 of the 1995 Act, the need to conserve and protect the environment must be taken into
account when granting these rights.
49. In order to boost and make the mining sector viable, the Government decided to implement a
restructuring programme aimed at promoting private- sector-led development.  With a mining industry
driven by the private sector, it is hoped that the sector will spearhead economic growth and poverty
reduction efforts.  Full privatization and the use of improved extraction methods were expected to at
least stabilize production at current levels by providing solutions to some of the major problems in the
sector, including the re-capitalization and rehabilitation of the mines, high cost structures, and(indirectly) the fall in metal prices, which have had a negative effect on the performance of the
industry for the last decade.
50. Zambia's copper-mining operations were run by Zambia Consolidated Copper Mines
(ZCCM), which was Zambia's major mineral producer.  For many years, its ownership was dominated
by the State (60.3%), and the Anglo-American Corp oration (AAC) of South Africa (27%). The major
assets of ZCCM were privatized in March 2000;  they are currently held by several private companies,
the largest of which is the Anglo-American Corporation.  With the completion of the privatization of
ZCCM, there are no more public enterprises in this sector in Zambia.  Furthermore, the Government
does not reserve any mining and processing activities for public enterprises.
51. In late 2001, an unexpected dark cloud appeared over the mining sector with the decision by
the Anglo-American Corporation not to provide additional capital required in Konkola Copper Mines.
As the Government had expected the privatization of these mines to turn around the declining
industry, this action was a major problem and challenge;  it confirmed the importance of relying  less
heavily on copper.  The 2002 Budget Speech reiterated the intention to diversify the economy in
general and the mining activities in particular, within the shortest possible time.Zambia WT/TPR/S/106
Page 69
52. Customs tariffs on mineral imports range from zero to 25%, with an average of 8.2% for the
sector.  Mining and quarrying are the least tariff protected activities in the Zambian economy.
However, products from, inter alia , coal mining, crude petroleum and natural gas production, and salt
mining carry relatively high tariff rates (Table AIV.1).
(b) Copper and cobalt
53. Zambia ranks among the world's top nations in terms of copper reserves.  Copper production
has dropped from an annual average of nearly 700,000 tonnes in the 1970s to less than 300,000 tonnes
in recent years; production was 256,884 tonnes in 2000 (Table IV.4). The withdrawal of Anglo
American has not led to the closure of any existing mining companies.  Therefore, new investment in
several of the recently privatized mines promises expanded production.  However, trends in world
prices for refined copper, apart from production volumes, have accounted significantly for thecountry's declining revenue.  Copper prices have declined by as much as 44% since mid-1997 at the
outset of the Asian economic crisis.
54. Cobalt is a by-product of copper in Zambia, which ranked as the world's second-largest
producer of cobalt in 1992, but had slipped to sixth in 2000.  Cobalt production was 3,538 tonnes
in 2000, down from 4,247 tonnes a year earlier.  Exports of copper and cobalt have been on adownward trend for some years (Table IV.5);  they accounted for about 96% of total merchandise
exports in 1970, 82% in 1995, and around two thirds in recent years (Chapter I(1)) .  World cobalt
production is expected to continue to increase at a faster rate than demand, so prices are likely to
weaken further.
Table IV.5
Gross metal receipts, 1996-00
(US$ million)
Copper Cobalt
1996 578.6 182.3
1997 800.4 161.0
1998 533.9 99.6
 1999 408.7 41.5
 2000 458.5 52.3
Source: ZCCM, Bwana Mkubwa Mining Limited, Roan Antelope Mining Corporation of Zambia PLC, and Bank of Zambia, as quoted in
Ministry of Finance and Economic Development, Macroeconomic Indicators , September 2001, p. 15.
55. Customs tariffs on imports of copper and articles thereof range from 15% to 25%, with an
average of 16.3%.  Tariffs average 13.7% on lead and articles thereof, and 9% on zinc and articlesthereof.
(c) Other commodities
56. Zambia has large deposits of gemstones, which according to the authorities have often been
illegally mined and smuggled out of the country.  Among the gemstones found in Zambia in
commercial quantities are emeralds, amethysts, aqua marine, beryl, garnet and tourmaline. Deposits of
gold, silver, selenium, iron ore, and manganese also exist in Zambia.  Production of some of these
minerals has stopped in recent years, e.g. lead and zinc in 1995, aquamarine in 1997, and gold, silver,
and selenium in 2000.
57. The gemstone subsector holds great potential for spearheading rural development, since most
gemstones and other mineral deposits amenable to small-scale mining are located in rural areas.
However, the subsector is severely constrained as it lacks appropriate credit facilities and requisiteWT/TPR/S/106 Trade Policy Review
Page 70
valuation skills, and exists in areas where infrastructure is least developed.  It has also been adversely
affected by excessive trafficking in gemstones in the absence of an organized market.
58. With support from cooperating partners, the Government has put in place mechanisms that
may contribute to the development of small-scale mining.  Indeed, the Mining Sector Diversification
Programme (MSDP), a € 30 million project funded  by the EU under its former SYSMIN programme,
aims to finance pre-production consultancies (e.g. geological exploration, feasibility assessment,establishment of mining business plans), and to provide credit to small-scale projects. The programme
will also provide assistance and expertise to miners to establish joint-ventures.
59. It is expected that, through the MSDP, and other measures put in place by the Ministry of
Mines and Mineral Development, such as decentraliz ation of its professional and technical services,
small-scale mining can be developed significantly and eventually contribute to the overall economicdevelopment of the country.  Among the aspects of the overall development impact of small-scale
mining are:  the creation of development zones in rural areas arising from the emergence of mining
communities; the provision of essential agricultural inputs (for instance, lime to agricultural areas);
support to cottage industries related to pottery making, and brick making; and increased demand for
skills and essential mining equipment and machinery.
60. Coal has provided the major value added in this category of products.  Maamba Collieries
Limited (MCL) operates Zambia's only coal mine  and employs 350 people.   Coal production varies
annually, but dropped to an eight-year low of 88,578 tonnes in  2000, compared with 104,647 tonnes
in 2001, 127,854 tonnes in 1999, and 328,568 tonnes in 1993.  There are no exports of coal by
Maamba because the total production is below local market demand.  Coal imports are charged a
uniform tariff of 15%.
(ii) Energy
61. Except for petroleum, which is wholly imported, Zambia is richly endowed with a range of
energy sources, particularly woodlands and forest s for wood and fuel, hydropower, coal, and new and
renewable sources of energy.  Woodlands and forests cover more than 60% of the total land area;  the
growing stock is equivalent to 4.3 million tonnes of wood, which provides 70% of the nation's energy
needs.  Charcoal is produced informally.  Hydropower resources potential is estimated at 6,999MW,although the installed capacity is only 1,715.5 MW, which contributes about 14% of total energy use.
Hydroelectric plants represent 92% of installed capacity and account for 99% of electricity
production.
62. Since the TPR of Zambia in 1996, there has been little strategic change in Zambia's first
national energy policy, formulated in 1994.  An Energy Regulation Act, which came into forcein 1995, largely deregulated the energy subsector, mainly after the liquidation of ZIMCO, the state-
owned conglomerate, which was also dominating th e energy sub-sector.  Under the Act, an Energy
Regulation Board (ERB) was established in 1997.  The role of the ERB is generally to balance the
needs of an undertaking with the needs of consumer s, to ensure that energy companies can earn a
reasonable rate of return on their investments and that consumers are given good quality service.
17
Following the Government’s decision to liberalize pump prices of petroleum products, the ERB’s role
in price regulation of the products has changed from that of approving prices before implementation
to ex-post monitoring of petroleum prices.  The ERB is funded through licence fees and grants from
the Government and international cooperating partners, such as aid agencies.  The ERB's
                                                     
17 Energy Regulation Board (1999), p. 7.Zambia WT/TPR/S/106
Page 71
responsibilities cover all three areas of the Zambian energy sector, i.e. electricity, petroleum, and
other forms.18
63. Zambia's main energy objectives are to promote the optimum supply and utilization of
energy, especially in indigenous forms; facilitate the socio-economic development of Zambia, and the
maintenance of a safe and healthy environment;  and avoid fluctuations in prices while providing a
minimum level of service to persons unable to afford  the full cost and a real return on investment
through a simple and transparent pricing mechanism.  For petroleum products, the pricing formula
takes into account costs related to supply, distribution, and marketing.  Tariffs for electricity are based
on the relevant costs and include operational and replacement costs, incentives for efficiency,
reliability, safety, and environmental standards.  In principle, energy prices are set freely by
companies.  However, the Board may require justification of pricing decisions if it deems it necessary,primarily to assure fairness to consumers.
64. The existing structure of the electricity industry comprises four electricity utilities, namely the
Zambia Electricity Supply Corporation (ZESCO),  CEC, KNBC, and LPHC.  ZESCO is a state-
owned, vertically integrated utility, which generates, transmits, distributes, and sells power to (retail)
consumers.  It also supplies bulk power to CEC and the export market.  CEC, a private company,owns part of the transmission and distribution ne twork on the Copperbelt.  CEC purchases bulk power
from ZESCO and supplies this power to the mines.   KNBC is a state-owned generation company and
until recently was run under leasehold to ZESC O.  The LHPC owns tw o relatively small hydro
stations at Mulungushi and Lunsemfwa in the central province.
65. ZESCO owns and operates the Kafue Gorge power station, the Victoria Falls power station
and the majority of Zambia’s transmission and distribution networks.  ZESCO also operates four
small hydro-power stations in the north-eastern part of the country in areas presently beyond the reachof the main grid.  ZESCO is currently undertaking a US$210 million rehabilitation project to
modernize its generation, transmission, and distribution infrastructure.  This project is being financed
by a number of financial institutions and donors led by the World Bank.
66. The shareholding of CEC comprises a U.K. company, a U.S. company, the Government of
Zambia and a Zambian management team.  CEC rece ives power from ZESCO at two bulk points, and
from the Democratic Republic of the Congo at one bulk point.  CEC also owns and operates 80MW of
standby gas turbine generation at strategic locations.  CEC aggregates these sources of power into
firm power, which it transports through its control centre and firm transmission system so as to
provide a higher reliability of supply to the coppe r mines.  In addition, CEC’s network is used to
distribute power to ZESCO’s retail customers in the Copperbelt province.
67. KNBC operates the 600MW Kariba North Bank power station.  In 1999, the Government
issued an order to separate KNBC from ZESCO.  This power station is also undergoing rehabilitation
works.
68. The Mulungushi and Lunsemfwa facilities were, until recently, owned by ZCCM.  The
infrastructure consists of the Mulungushi and Luns emfwa power stations located to the east of Kabwe,
transmission lines into Kabwe and a small distributi on system that supplies two industrial loads and
some townships within Kabwe.  A private investor and the management team have since acquired
these power stations to form the LHPC.  The ne twork infrastructure under the Mulungushi and
Lunsemfwa facilities is under negotiation for sale to ZESCO.
                                                     
18 See WTO (1996) for details of the role of the ERB.WT/TPR/S/106 Trade Policy Review
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69. In a bid to improve efficiency and accessibility to electricity by the majority of the people,
and to promote private-sector investment and co mpetition, the ERB, on behalf of Government, has
completed a study on how best to restructure.  The result of the study is awaiting Government
decision.
70. Droughts affect Zambian electrical production, and home consumption, and have trade
consequences.  Depending on the levels of reservoirs, Zambia exports electricity or imports it for re-exportation to neighbouring countries.  In recent years, South Africa has overtaken Zimbabwe as the
major destination.  Other destinations are Namibia, Botswana, Tanzania, and the Democratic Republic
of the Congo.  The value of electricity exports declined from US$25.2 million in 1995 to
US$5 million in 1999 before increasing to US$7.4 million in 2000 and US$9.3 million in 2001.  The
decline in the Zimbabwean economy has been a serious factor for Zambian electricity exports.Electricity, gas and water accounted for 3.4% of GDP in 2001.  The customs tariff on electricity
imports is 15%.
71. Petroleum feedstock represents about  10% of Zambia's total merchandise imports .  The
Zambia National Oil Company (ZNOC), which was in  charge of feedstock procurement and leasing
arrangements, has been liquidated.   Private-sector oil-marketing companies (OMCs) are free to set
their own pump prices within the context of a pricing formula agreed with the Energy Regulation
Board.  The TAZAMA pipeline (1,710 km.) facilita tes the importation of petroleum feedstock for the
state-owned INDENI Petroleum Re finery Corporation, which refines imported crude oil.  The
TAZAMA pipeline and the INDENI refinery employ 800 people.  Imported crude bears  a 5% tariff;
rates on petroleum products range from 5% to 25%.  There is a 45% excise duty on diesel fuel and
petrol, as well as a 15% fuel levy.  In 2002, however, in order to assist agriculture and mining, the
Government lowered the excise duty on diesel by 30%, to 15%.
(4) M
ANUFACTURING
72. Manufacturing accounts for about 18% of real GDP and employs about 11% of formal labour.
There was an increase of 5.8% in real value added in the sector from 2000 to 2001.  Manufacturing is
seen as a key linkage with the primary sectors as it adds value to locally produced primary products.
73. Following the liquidation (in 1995) of the Zambia Industrial and Mining Corporation
(ZIMCO), the main state-owned company which was controlling manufacturing in Zambia, and the
liberalization of the sector (including the privatization of other state-owned manufacturing
companies)19, investment by the private sector has helped to stop the decline recorded during the first
half of the 1990s.  Employment has also begun to recover following adjustment by firms to the
liberalization reform.20  Nevertheless, the sector remains dominated by small-scale industries
producing largely for the domestic market.
74. The food, beverages, and tobacco subsectors account for about 60% of total manufacturing
output.  Other key subsectors are textile and leather products, wood and wood products, and
chemicals, rubber and plastics.  On average, these activities account for over 90% of manufacturing
output.  Exports of textiles (mostly cotton yarn) rose from US$35 million in 1995 to US$50.6 millionin 1997, before falling back to US$36 million in 2000.
75. Exchange rate differentials with neighbouring countries and smuggling are presenting serious
challenges to Zambian manufacturing.  Development of Zambia's manufacturing sector is still being
delayed by high production costs (energy, transport, and telecommunication services), interest rates
                                                     
19 See WTO (1996) for details.
20 Ministry of Finance and National Planning (2002d), p. 60.Zambia WT/TPR/S/106
Page 73
on loans, drought-induced energy shortages, low productivity due to low skilled and low capacity
utilization, low output quality, low domestic demand, civil unrest in the region, and the decline in
mining.
76. Government policies in the sector have been rela tively constant.  They are aimed at increasing
productivity and sustaining growth, diversifying output and further integrating manufacturing into the
domestic economy, generating productive employment, and promoting rural industries.  As part of theGovernment's 2002 Budget Address, a decision was announced to provide a subsidy to revive the
activities of Nitrogen Chemicals of Zambia (NCZ).  The subsidy is intended to provide working
capital to resume production of fertilizer and explosives for the agriculture and mining industries, to
restructure the company, and reverse the decline of Kafue town.  The Government is also in the
process of revitalizing the operations of Kafue Textiles of Zambia (KTZ), based on its experiencewith NCZ.  The expectation is the privatization of both companies.
77. Various incentive schemes (e.g. fiscal and customs advantages) are in place to promote
manufacturing (Chapter III(3)(iv);  and (4)(i)).  An Export Processing Zone Act was passed in 2001,
and government officials are working on modalities to operate the Act.  No export processing zones
have yet been created .  The full implementation of the Act is expected to promote investment in
export-oriented manufacturing companies in Zambia.
78. No quantitative import restrictions remain on manufactured products.  The Government has
continued to rationalize of the tariff structure.   The 2002 Budget speech announced an initiative to
reclassify and re-categorize selected inputs used by the manufacturing sector with a view to lowering
the duty rates;  there are proposals to create a Tariff Review Board for this purpose.  The average
import tariff on manufactures is 13.2% (down from 13.5% in 1996), with a standard deviation of 9.5%
(Table AIV.1 ).  However, the presence of negative tariff escalation does not encourage production of
semi-finished goods (Chapter III(2)(iii)(a)).
(5) S
ERVICES
79. Ten years ago, much of the services sector was dominated by public enterprises, but almost
all of these have either been liquidated or priv atized (Chapter III(4)(iii)).  With this came the
liberalization of the services sector, particularly as administrative and management stumbling blocks
were removed.   The sector accounts for nearly 60% of re al GDP, but comprises mainly administrative
services supplied by public institutions and trading activities.  Zambia is a net importer of services.
80. Under the General Agreement on Trade in Services (GATS) of the WTO, Zambia bound,
without limitation on market access and national trea tment, measures affecting consumption abroad,
cross-border supplies, and commercial presence for:  accountancy, medical and dental services,services provided by midwives, nurses, physiotherapists, and para-medical personnel; technical
testing and analysis services; services incidental to mining and exploration; construction and related
engineering services; hospital services; other human health services; and tourism and travel-related
services.  These commitments exclude measures affecting the presence of foreign natural persons
except where entry and temporary stay are for management purposes for expert tasks relating to theimplementation of foreign investment.
21
81. Zambia is working towards submitting its initia l negotiating objectives, under the Doha work
programme.  The delay is due to inadequate information on the services sector and subsequent
difficulties in identifying and articulating Zambia's position.  The Government was planning a
workshop in August 2002 to sensitize stakeholders in the country on the WTO in general, and
                                                     
21 WTO document GATS/SC/93, 15 April 1994.WT/TPR/S/106 Trade Policy Review
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specifically on the provisions and obligations of GATS.  A National Working Group comprising
relevant government and private-sector institutions is also being set up to facilitate the implementation
of Zambia's obligations under the WTO.
82. Zambia is also part of a regional initiative under SADC on a plan of action for negotiations on
services.  For the region, six priority subsectors were identified:  tourism, transport, communications,
energy, financial services, and construction.  An inventory of measures affecting trade in services inaccordance with GATS Articles VI, XVI, and XVII was compiled on the basis of the UNCTAD-
MAST database;  its purpose was to assist SADC countries in identifying possible areas of
liberalization and harmonization at the regional leve l.  SADC members have agreed to develop a
common legal framework for the conduct of trade in services among themselves (in matters pertaining
to GATS).  A draft annex to the SADC Trade Protocol has been circulated to all member states foranalysis and comments before presentation to the next Ministerial meeting for endorsement.  The
annex is based on the GATS.  Appropriate tools and experts have been identified to prepare schedules
for negotiations.
(i) Telecommunications
83. With an installed capacity of 139,000 telephones on the public switched telephone network,
13,000 lines on the rural radio telephone and 110,000 mobile phone subscribers, Zambia's teledensity
is only 1.8;  i.e. there are less than 2 phones per 100 population.  Access to internet services remains
very low, with only about 5,000 users at the end of 2001.  The waiting period for a telephone line has
dropped considerably and is estimated by the authorities at only three weeks in mid 2002.
84. The Telecommunications Act of 1994  (Chapter 469 of the Laws of Zambia) regulates
telecommunications services in Zambia.  Under the Act, the Ministry of Transport and
Communications formulates policy for this subsector.  The Act split the previous Post andTelecommunications Corporation, a State-owned enterprise with monopoly authority, into the Zambia
Telecommunications Company (ZAMTEL) to handle telephone, telex, and facsimile services, and the
Zambia Postal Services (ZAMPOST).  ZAMTEL lost most of its monopoly rights;  basic
telecommunications services are in principal open to competition provided the operator is nationwide.
ZAMTEL is being commercialized and is expected to be privatized;  the Government is looking for astrategic partner for ZAMTEL.  The liberalization and privatization policy is intended, among other
things, to allow for the participation of new en trants, both local and foreign, in the industry.
85. The Telecommunications Act established a Communications Authority as the secretariat for a
Board consisting of representatives from the public and private sectors.  The Board implements
government telecommunications policy;  it also issues licences.  ZAMTEL is licensed for the wholerange of telecommunications services;  three mobile phone providers and six internet providers are
also licensed.  There are no limits on the number of providers.
86. Fixed telecommunications services tariffs are set by ZAMTEL, subject to approval by the
Board.  ZAMTEL, as a de facto  monopoly supplier of fixed telephone services, operates under an
agreed pricing formula, based on the principle of tariff equalization.
22  Interconnection and its price
are negotiated between ZAMTEL and the cellular operators.  Each provider is free to set its own price
for mobile telephone services;  market competition is the norm.
87. There are three types of telecommunications services licensing:
                                                     
22 ZAMTEL currently has de facto  exclusive rights to be the international gateway, but this is being
challenged.Zambia WT/TPR/S/106
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(a) licensing that requires service providers to install, own and operate
telecommunication infrastructure facilities to provide local services, national long-
distance wireless and wired networks, rural and urban services to sub-economic areas,
and integrated network facilities;
(b) licensing that does not require ownership of public networked telecommunication
facilities.  The providers will be allowed to offer telecommunications services usinginfrastructure facilities provided by one or more of the types categorized in (a) above.
These, among others, include basic voice services, data transport services, network
facilities for private use, internet services, and shopping services;  and
(c) licensing that requires ownership of infrastructure facilities for cellular mobile and
paging services.
23
88. Postal services are the responsibility of ZAMPOST, a state-owned company.  This subsector
is also liberalized;  all postal activities are open to competition.
(ii) Transport
89. Since Zambia is landlocked, the domestic transport situation takes on special importance. In
Zambia, transportation costs account for 60% to 70% of the cost of production of goods andcommodities, a high proportion compared to other countries in the sub-region;  this works against the
competitiveness of Zambian exports.
24  Over the period 1994-01, the contribution of transportation
services to GDP averaged 3.2% in real terms.
90. The transport system of Zambia consists of railways, roads, airlines, and inland water
transport.  Air and road transport are largely in hands of private operators.  Their associations include
the United Taxis and Transport Association (UTTA), the Truckers Association of Zambia (TAZA)
and the Federation of Road Transports.  Within regulations established by the Government to protectconsumers, these associations set prices that ensu re the interests of their members.  International
haulage has attracted foreign companies since the liberalization of these activities;  most of these
companies have interests in other countries in the southern African region and have entered Zambia as
part of their regional operations.
91. A new Transport Policy in 2002 recognized inadequacies in all branches of the country's
transportation network.
25  In particular, it identified the heavy demands that transport currently places
on the country's oil and diesel supply, the impact on the mining sector of the poor road infrastructure,
the negative impact on agriculture development of the shortage of satisfactory feeder roads, and the
need for improved transport in the expectation of expanded tourism and of trade as a result of
commitments in regional organizations.  One of the new factors addressed by this transport policy wasa decision to turn Zambia's geographical position from a liability into an asset.  That means making its
landlocked yet central position in southern Africa a hub for the expected expanded trade among the
countries of the region.
92. Railways account for a significant percentage of the movement of the country's foreign trade.
Rail transport is under the monopoly of two companie s, Zambia Railways (ZR) and Tanzania-Zambia
Railways Authority (TAZARA), which together form the railway network, principally built for
mining activities and exports of mineral products. Zambia's railway system has suffered from two
                                                     
23 Ministry of Communications and Transport (2002a), p. 11.
24 Ministry of Finance and National Planning (2002d).
25 Ministry of Communications and Transport (2002b).WT/TPR/S/106 Trade Policy Review
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main operational constraints: historically, poor track maintenance in respect of ZR, and low
availability of main-line locomotives and wagons in the case of TAZARA.  These problems have
reduced service capacity considerably and hence the ability of the companies to attract traffic.  The
railways have been run at a major financial loss, and the Government is aware of the need to make
serious improvements.  The Government is seeking a private concessionaire to operate ZR.
93. The road network serves remote areas that other modes of transport cannot reach.  Zambia has
a gazetted road network of approximately 37,000 km, of which 6,476 are bituminous and surfaced to
"Class I" standard.  There are an additional 30,000 km of community roads, tracks, and trails.  A large
part of the road network was constructed before 1975 and has been eroded through lack of
maintenance.26  However, after 1994 the Government established a National Road Board and a fuel
levy, the proceeds of which are used for road maintenance.  Currently, about 35% of the road networkis being maintained.  Additionally, there is a Road Sector Investment Programme (RoadSIP),
supported by donors, for the rehabilitation and construction of roads.  Some of the HIPC benefits are
used for rural roads.
94. Private contractors hold almost 70% of the trucking market.  Contract Haulage Limited, a
state-owned company, operates in competition with private trucking enterprises;  the company islisted for privatization.  Trucking (known in Zambia as Public Service Vehicles) is subject to a licence
issued by the Department of Road Transport (DRT), Ministry of Transport and Communication.
Foreign operators must renew their licences ever y 13 weeks.  Annual fees charged by the DRT for
issuing licences to local operators are equivalent to  about US$32 for road services, US$8 for the first
payment and US$6 for renewals.  Foreign operators must pay US$35 for road service licences, valid
for three months, US$120 for entry, US$60 for each laden truck, and US$55 for unladen trucks.
Following the liquidation of the United Bus Comp any (a state-owned enterprise), the Government
suspended the customs duty on imported buses from 1994 to 1995.  This increased the availability of
bus transport in the country, significantly expanded employment, and led to increased investment in
the subsector.  Private operators, both Zambians and foreigners, now run the passenger transport
system.  Cabotage is prohibited to operators registered abroad.
95. Liberalization (including the liquidation of the Zambia Airways in 1994) has resulted in the
formation of small private air companies.  Six ru n international scheduled services, including two
exclusively for freight, two run scheduled domestic services, and the others are local charter
operators.  None, however, has risen to the status of a national carrier or flag carrier.  The state-owned
National Airport Corporation manages the four commercial airports in Zambia, but plans have been
drawn up to privatize the airports.  The goal is to expand air transport services with a view tocontributing to the growth of tourism;  however, the Government has only recently begun making
investment in airfields to allow tourist attractions to be accessible by air.  Traffic rights are granted by
the Air Route Allocation Committee, which is chaired by the Permanent Secretary of the Ministry of
Communications and Transport.  Traffic Rights are allocated in accordance with bilateral air services
agreements between States.  All tariffs are normally proposed by airlines and are then approved by theMinistry, which also issues, amends and renews air service permits and the related fees.  There is
currently no airline licensing system.  Companies registered abroad are not allowed to undertake
cabotage in Zambia.
96. The contribution of inland water transport to the movement of goods and passengers in
Zambia is presently not significant.  Although the country has navigable lakes and rivers, the
development of the related transport has been inhibited by lack of financial resources for the
management of waterways.  There has been prolonged neglect of existing canals, waterways and
                                                     
26 Ministry of Finance and Economic Development (2001d), p. 88.Zambia WT/TPR/S/106
Page 77
harbours.  Currently, the port of Mpulungu is the only inland transit port;  it enables Zambia to trade
with other countries bordering Lake Tanganyika.  The port is being run by a private concessionaire.
According to Zambian authorities, facilities at the port are inadequate to meet the cargo throughput
demand.
(iii) Financial services
97. The share of financial services in GDP decreased slightly, from 9.98% in 1995 to 7.82% in
2001.  The Bank of Zambia (BoZ) (the central bank) has undertaken self-assessment programmes for
compliance with the Basel Convention Principles for effective banking supervision.  Additionally, the
BoZ has been subject to the IMF/World Bank's Financial Services Assessment Programme (FSAP).
Banking supervision and regulation includes revoking licences of insolvent banks, denying bailouts,
limiting deposit protection, strengthening loan-recovery efforts, and upgrading the training andincentives of bank supervisors.  There has also been some consolidation in the banking industry.  The
BoZ has recently closed down some local banks and suspended at least one other for money-
laundering allegations.  Another large state-owned bank was placed under supervisory directives to
control its deteriorating financial performance.
98. As at July 2002, the banking subsector was composed of private international banks, private
domestic banks, and parastatal banks.  There are 14 banks, of which nine are foreign owned, three
owned by local investors, one state-owned, and one joint-venture between the Zambian Government
and three Indian banks.  All banks operating in Zambia are required to incorporate locally;  as a result,
there are no branches of foreign banks.  However, foreign banks are permitted to establish
representative offices in Zambia, with a required minimum paid-up capital of K 2 billion and required
residency in Zambia.
99. Under the Banking and Financial Services Act, as amended in 2000, the BoZ supervises the
banking sector.  The 2000 amendment strengthened the supervisory powers of the BoZ and made the
Act applicable to non-bank financial institutions.  In 2001, the BoZ established a new department to
supervise non-bank financial institutions.  Licences authorizing companies to conduct banking and
any regulated financial service businesses are granted by a Registrar.
100. Prior written approval of the Bank of Zambia is required for any person to acquire any
beneficial interest in the voting shares of a bank or to enter into any voting trust or other agreements
enabling him to control more than 25% of the total votes at meetings of a bank.  Anti-competitive
conduct, such as agreement or arrangement between banks with respect to interest rates, amount of
charges to be levied or financial services to provide to any person, are prohibited.  Compulsory
liquidation of a bank may be ordered by resolution of the BoZ.
101. With the abolition of exchange controls, any investor can borrow for investing in Zambia.
The cost of borrowing locally remains very high; interest rates are in excess of 40% (prime rate).
From time to time, the Government implements policy toward other sectors through special incentives
in the financial services subsector.  In this context, in 2002, because of the importance of agriculture,
the BoZ decided to reduce the effective statutory reserves ratio for commercial banks lending to theagriculture sector.  The expectation was that benefits would be passed on to farmers through a
reduction in lending rates.
102. The Lusaka Stock Exchange (LuSE) opened in February 1994 and is structured to meet the
G-30 recommendations for clearing and settlement system design and operations.  Since its inception,
the LuSE has offered trading in equity securities, and in March 1998, the LuSE became the official
market for trading in government bonds.  Investors may now undertake transactions in a listedWT/TPR/S/106 Trade Policy Review
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security or government bond via the LuSE.  The market is regulated by the 1993 Securities Act, which
created the Securities and Exchange Commission to enforce it.  By the end of 2001, the LuSE
transacted ten listed and seven "quoted" (unlisted) securities.  The main impediments to the growth of
the LuSE are the lack of professional fund managers, a poor culture of risk-taking and saving, limited
foreign investment portfolio, limited financial products and bond securities, low liquidity, as well as
lack of institutional investor guidance for agencies such as pension funds and insurance firms.  There
are no restrictions on foreign investment, and foreigners may invest on the stock exchange on the
same terms as Zambians.  At end 2001, the market capitalization of the LuSE was US$248 million,
and the annual turnover for 2001 was US$52.6 million, compared with US$25.3 million in 2000.  The
increase was due largely to activity in two companies.27
103. The Insurance Act of 1997 governs insurance companies.  The Act created the Pensions and
Insurance Authority, which is the regulatory authority and is headed by the Registrar of Pension and
Insurance.  Under the Act, only registered insurers can be licensed.  The licence is granted by the
Registrar;  an annual fee is payable.  There are currently seven insurance companies operating in
Zambia;  six are privately owned companies and the state-owned Zambia State Insurance Corporation
(ZSIC).   In addition, there is one re-insurance company, ten motor assessors, three loss adjusters, two
claim agents, and 29 insurance brokers.
104. The ZSIC remains one of the few state companie s not yet privatized; it is to be restructured
before its privatization.  The Government's liberalization and privatization policies have led to a large
increase in the number of insurance brokers, the Zambia National Insurance Corporation, privatized
in 1997, is the largest.  As a result of the privat ization reforms, many privatized firms, currently
owned by foreign interests, have preferred to insure themselves internationally rather than
domestically within Zambia.  In addition, local entrepreneurs have not yet understood the benefits andimportance of insurance.
105. The Insurance Act provides for local ownership of insurance companies, but does not specify
the percentages, so some companies are almost w holly foreign owned.  For a new insurance company
to be approved, it must meet several minimum requirements including: proof of qualification and
experience of the principal officer; declaration of minimum capital; evidence of a reinsuranceprogramme; detailed business plan; ownership stru cture and biographies, including the net worth of
key figures in any investment; paid up capital of K 1 billion for general insurance business and an
equal amount for life insurance business.  The application fee is 10,000 units;  the current value of a
unit is K 180.  A Zambian insurance company can insure a foreign national.
(iv) Tourism
106. Zambia's potential in the tourism subsector has not been fully exploited.  It is based on
cultural and traditional ceremonies, and natural attractions, including the Victoria Falls, the Zambezi
and the Luangwa rivers, Lake Mweru, Lake Kariba (among others), and enormous wildlife resources.
Zambia has 19 national parks and 34 game-management areas covering 33% of the country, but only
5% of this has been developed for tourism.
107. In recent years, tourism has undergone a renaissance with increased tourist arrivals and
earnings.  Recent developments have included diversification of products, including the expansion of
cultural and traditional attractions, and improvement of related airport facilities.  Tourism earned
Zambia US$117 million in 2001, compared with US$46.7 million in 1995.  In 2001, value-added
increased by 24.2% due largely to a 16.9% increase in the number of tourist arrivals, aided by a
unique solar eclipse in the region and conference tourism.  The number of jobs in this subsector more
                                                     
27 Ministry of Finance and National Planning (2002b), p. 47.Zambia WT/TPR/S/106
Page 79
than doubled between 1995 and 2000 (Table IV.6).  The entry of a major hotel chain into the tourist
market in Livingstone in 2001 has invigorated the subsector.  The number of tourist rooms in Zambia
increased by 20% from 1996 to 2001.
Table IV.6
Selected performance indicators in tourism, 1995-00
1995 1996 1997 1998 1999 2000
International visitor arrivals 163,000 263,986 340,896 362,025 404,503 457,419
Tourism earnings (US$ million) 46.7 59.8 75.5 74.4 85.2 91.2
Jobs 5,909 6,792 7,902 8,991 10,340 11,892
Source: Ministry of Tourism, Environment and Natural Resources, as quoted in  Ministry of Finance and National Planning (2002d),
Poverty Reduction Strategy Paper , March, p. 67.
108. The Ministry of Tourism, Environment and Natural Resources is responsible for setting
policy in this subsector.  Zambian policy is to encourage foreign ownership and/or proprietorship.   In
1996, the Government reclassified the tourism subsector from the social to the economic category, in
recognition of its potential to contribute to econom ic development.  The Government's role in the
tourism subsector is to encourage private sector involvement through investment promotion,
marketing, and provision of infrastructure and supportive legislation.  Many tourist operations have
been privatized.  In facilitating the development of  the subsector, resources will be directed towards
regions where tourism potential exists, e.g. Livingstone, South Luangwa Park and Lower Zambezi
Park.  These areas have been prioritized into development zones and national programmes.  TheWorld Bank has begun to support this subsector, and several bilateral programmes are looking at
potential projects.
109. The current Zambian lodging policy is based on the Hotels Act of 1987.  Government
regulates the conduct and management of all commercial accommodation establishments under this
Act.  Most hotels in Zambia are privately owned and managed.  The Ministry of Tourism,Environment and Natural Resources, through its Tourism Management Directorate (TMD), licenses
and provides oversight of hotels in such areas as services, sanitation, and quality.  The TMD is also
responsible for strategy and planning activities for the subsector.  An autonomous purely marketing
entity the Zambia National Tourist Board, within the Ministry, is responsible for marketing and
promoting the country' tourist attractions.
110. There are several reasons why tourism remains relatively underdeveloped.  Chief among them
are inadequate infrastructure, inadequate marketing of Zambia as a tourist destination, poor
programme implementation due to lack of funds and local participation/ownership, lack of affordable
financing for long-term development, shortage of  professionally trained workers and low level of
skills, inadequate product development, lack of institutional incentives, a reputation as a high-cost
destination, and lack of good health facilities.
28
111. New investment in the sector has come from Zambians and from foreigners, largely through
the privatization programme.  Revitalization is taking place in the Livingstone/Victoria Falls area, as
Zambia is in a position to take advantage of the decline in tourism in neighbouring countries. As part
of the effort to expand tourism, the Government has offered several incentives.  These included
reducing corporate tax to 15% for tourist operators and recognizing them as exporters of non-
traditional exports, and refunding VAT on costs incurred in establishing tourism enterprises and zero-rating accommodation offered by hotels, lodges, and guest houses in the Livingstone District for two
                                                     
28 Ministry of Finance and National Planning (2002d), pp. 67-68.WT/TPR/S/106 Trade Policy Review
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years.  A Tourism Development Master Plan has lagged, however, because of the Government's
failure to provide necessary resources in recent Budgets.  It is hoped that a bilateral partner will assist
in developing the Tourism Master Plan in 2003.
112. Zambia is a signatory to the Convention on International Trade in Endangered Species of
Fauna and Flora.  But, according to the authorities, poaching remains a threat to endangered species.
Zambia has been concerned about being under-stocked with some animals, particularly elephants.There are ongoing consultations within SADC to discuss the future of elephants under CITES.
113. A Zambian Wildlife Authority, created in the 1998 Policy for National Parks and Wildlife
Service, is responsible for conserving Zambia's "precious and unique wildlife".  Although it is
essentially a conservation organization, its responsibilities include promoting and developing tourism.
(v) Information technology
114. Zambia's information technology policy is in its infant stage.  The first national information
technology workshop was convened in March 2002.  This marked the beginning of efforts to develop
a comprehensive and broad-based information technology policy.  The Ministry of Information and
Broadcasting has taken the lead in this effort, and the Ministries of Science and Technology, and
Transport and Communication are involved.  The Ministries understand that Government must play adominant role in shaping the economic environment and adopt an action plan for progress in this
subsector.  Among the actions already identified are:  the need to treat information technology
equipment and software as priority goods, worthy of duty elimination, the need for a national
awareness campaign, the introduction of related skills at all levels of education, and the need to
liberalize the telecommunications and broadcasting subsectors by removing restrictive regulations and
licensing requirements.Zambia WT/TPR/S/106
Page 81
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