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Trade Policy Review Body    
 
*In Original language only/ En langue originale seulement /En el idioma original solamente . 
  
SOUTHERN AFRICAN CUSTOMS UNION  (SACU)  
DRAFT MINUTES  OF THE MEETING* HELD ON 25 AND 27 OCTOBER 2023  
Delegations are invited to submit factual corrections, if any, on their own statement to the 
Secretariat ( Daniela  Salas : danielamariana.salas@wto.org , or to  tprd@wto.org ) no later than  
4 December  2023. 
 
Organe d'examen des p olitiques commerciales  
 
UNION DOUANIÈRE D 'AFRIQUE AUSTRALE  (SACU)  
PROJET DE COMPTE RENDU DE LA RÉUNION* TENUE LES 25 ET 27 OCTOBRE 2023  
Les délégations sont invitées à soumettre  leurs éventuelles corrections factuelles concernant leurs 
propres déclarations au Secrétariat ( Daniela  Salas : danielamariana.salas@wto.org , ou 
tprd@wto.org ) le 4 décembre  2023 au plus tard.  
 
Órgano de Examen de las Políticas Comerciales  
 
UNIÓN ADUANERA DE ÁFRICA MERIDIONAL (SACU)   
PROYECTO DE ACTA DE LA REUNIÓN* CELEBRADA LOS DÍAS 25 Y 27 DE OCTOBRE DE 2023  
Las delegaciones pueden enviar a la Secretaría ( Daniela  Salas : danielamariana.salas@wto.org , 
o tprd@wto.org ) a más tardar el 4 de diciembre  de 2023 las correcciones fácticas que deseen 
introducir en sus propias declaraciones.  
 
_______________  
 
  WT/TPR/W/ 235 
 
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  TRADE POLICY REVIEW  
SOUTHERN  AFRICAN  CUSTOMS  UNION  (SACU)  
DRAFT  MINUTES OF THE MEETING  
Chairperson: H.E. Mr Saqer Abdullah Almoqbel (Kingdom of Saudi Arabia)  
CONTENTS  
 
1  INTRODUCTORY REMARKS BY THE CHAIRPERSON  ................................ .......................  3 
2  OPENING STATEMENT BY THE SPOKESPERSON  OF THE SOUTHERN AFRICAN CUSTOMS 
UNION COUNTRIES  ................................ ................................ ................................ ..........  5 
3  STATEMENT BY THE DISCUSSANT  ................................ ................................ ................  7 
4  STATEMENTS BY MEMBERS  ................................ ................................ ........................  10 
5  REPLIES BY THE REPRESENTATIVE S OF THE SOUTHERN AFRICAN CUSTOMS UNION 
COUNTRIES  AND ADDITIONAL COMMENTS  ................................ ................................ .... 38 
6  CONCLUDING REMARKS BY THE CHAIRPERSON  ................................ .........................  50 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
 
Note: Advance written questions and additional questions by WTO Members, and the replies provided 
by the SACU countries are reproduced in document WT/TPR/M/447/Add.1 and will be available online 
at http://www.wto.org/english/tratop_e/tpr_e/tp_rep_e.htm.  WT/TPR/W/ 235 
 
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  1  INTRODUCTORY REMARKS BY THE CHAIRPERSON  
1.1.  The fifth Trade Policy Review of the Southern Afri can Customs Union (SACU) countries  was 
held on 25 and 27  October  2023. The Chairperson, H.E.  Mr Saqer  Abdullah  Almoqbel (Kingdom of 
Saudi  Arabia), welcomed the delegation s of the SACU countries , headed by H.E. Verna  Sinimbo, 
Deputy Minister of Industrialization and Trade of Namibia; H.E.  Dr Athaliah  Molokomme, 
Ambassador and Permanente Representative of Botswana to the WTO; H.E.  Siboniso  N. Nkambule, 
Principal Secretary, of the Ministry of Commerce, Industry and Trade of Eswatini; 
H.E. Mr Thaban g Matjama, Ambassador and Permanent Representative of Lesotho to the WTO; 
H.E. Ms Thembi  Mlangeni , Director of the Market Access Department of Trade , Industry and 
Competition  of South  Africa, and H.E.  Mr Thabo  David  Khasipe, Executive Secretary of the SACU  
Secretariat ; and the discussant, H.E. Ambassador  Simon  Manley (United  Kingdom) . 
1.2.  The Chairperson called Members' attention and welcomed the presence of the participants of 
the Advanced Trade Policy Course (ATPC) , who were very interested in attending th e meeting.  
1.3.  The Chairperson was pleased that, in addition to physical presence, the meeting also benefited 
from the Interprefy online connection, allowing for a wider participation of the Membership.  
1.4.  The Chairperson recalled the purpose of TPRs and the main el ements of procedures for the 
meeting. The Report s by SACU countries are  contained in document WT/TPR/G/ 447, and that of the 
WTO Secretariat in document WT/TPR/S/ 447 and its five annexes.  
1.5.  Questions by the following delegations were submitted in writing befo re the deadline: 
Hong Kong,  China; Singapore; Canada; Russian  Federation; Japan; Argentina; United  States; 
China; Switzerland; Ukraine; European  Union; Australia; and United  Kingdom. The following 
delegations submitted written questions after the deadline:  Brazil, Thailand, Dominican  Republic, 
and Mala ysia. 
1.6.  The Chairperson first recalled some elements of the SACU countries' previous Review in 2015. 
In the 2015 TPR meeting, Members noted that the SACU countries were considering trade as an 
important vehicle for their economic performance. This was evidenced by their grouping into one of 
the eldest customs unions, their dedication to the multilateral trading system, their active 
engagement in the WTO, and their participation in various Regional Trade Agreement s (RTAs).  
1.7.  In the previous Review, the SACU countries were encouraged to fully implement the 2002 
SACU Agreement by operationalizing all the related institutions; and to timely notify their trade 
measures to the WTO.  
1.8.  Some members also had comments on the S ACU's Common External Tariff (CET).  They also 
noted that apart from South  Africa , economic diversification was a challenge to SACU countries 
whose economies were generally narrow -based and highly vulnerable to external shocks urging them 
to embark on compr ehensive reforms aimed at attracting foreign direct investments in industries 
beyond the mining sector.  
1.9.  The Chairperson  focused on the developments since the last Review of SACU countries. During 
the period under review, SACU countries continued to rationa lize their trade regime by implementing 
various trade facilitation measures, including simplification of customs procedures and increased 
digitalization. They also further expanded their RTAs network. Nevertheless , some concerns 
expressed by Members in 201 5 remain ed relevant during the current review, such as the WTO 
notification requirements and the operationalization of SACU institutions.  
1.10.  SACU's tariff regime remain ed also a matter of interest for a number of WTO Members. While 
the simple average applied MFN tariff rate stood at 8.5% in 2023, some products' tariffs seem to 
exceed 50%.  
1.11.  Members, in their advance written questions, sought information regarding SACU countr ies' 
plan to further harmonize and rationalize their trade regime, including efforts to simplify their tariff 
and promote transparency and openness.  WT/TPR/W/ 235 
 
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  1.12.  Members also sought further information on a wide range of trade and investment measures, 
including incenti ves in place to promote the sustainable development of the region, the regulatory 
framework for foreign investments, export promotion measures, agricultural policies, the ratification 
of the Agreement on Fisheries Subsidies, the legal and institutional fra mework for SPS and TBT 
measures and intellectual property rights.  
1.13.  SACU countries received 383 advance written questions from 17 Members for th e current  
Review. Prior to th e meeting, the SACU countries provided written replies to the questions submitted 
within the deadline . The Chairperson was looking forward to hearing the SACU countries' replies to 
other questions during the two -day meeting .  
1.14.  The meeting provide d a good opportunity for Members to discuss in detail issues of interest 
to them and of importan ce to the multilateral trading system. The Chairperson looked  forward to a 
fruitful exchange.  
1.15.  The Chairperson closed his introductory remarks by wishing the SACU countries a very 
successful fifth  Trade Policy Review.  
  WT/TPR/W/ 235 
 
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  2  OPENING STATEMENT BY THE SPOKESPERSON  OF THE SOUTHERN AFRICAN CUSTOMS 
UNION COUNTRIES ( H.E. MR THAB ANG MATJAMA ) 
2.1.  It is an honour and privilege for me to lead and deliver this statement on behalf of the 
Southern  African Customs Union (SACU) delegation at the fifth Trade Policy Review of SACU. 
SACU  member States comprise the Republic of Botswana, the Kingdom of Eswatin i, the 
Kingdom  of Lesotho, the Republic of Namibia, and the Republic of South  Africa.  
2.2.  At the outset, I would like to thank the Chair of the Trade Policy Review Body, Ambassador 
Saqer  Abdullah  Almoqbel for setting the context in which this process will be unfolding. I wish to 
also thank, Ambassador Simon  Manley, of the United  Kingdom for agreeing to be the discussant for 
the SACU fifth WTO Trade Policy Review. It would be a remiss of me if I do not extend our gratitude 
to the WTO  Secretariat for the hard wo rk in preparing the Secretariat Report and the coordination 
of the entire process.  
2.3.  The SACU member States attach great importance to facilitating the smooth functioning of the 
multilateral trading system by enhancing the transparency of their trade policie s as expressed in 
Annex  3 of the Marrakesh Agreement. The SACU Agreement of 2002 forms the basis for our 
collective review as a Customs Union. In this regard SACU member States continue to be reviewed 
as a collective as has been the norm. This demonstrates  the SACU member States' adherence to the 
transparency principles that the Trade Policy Review process seeks to promote including rules and 
disciplines made under the multilateral trade agreements.  
2.4.  The 2002 SACU Agreement was amended in 2013 to institution alize the Summit. 
The amendments to the SACU Agreement entered into force on the 16 September  2016. 
The Agreement also provides for other SACU institutions responsible for  the implementation of the 
respective operations of the Customs Union.  SACU has, sinc e 2020, with the advent of COVID -19 
pandemic which ravaged the global economy and its people, repurposed its work programme and 
adopted a new Strategic Plan 2022 -27 which is premised on the following key pillars:  
a) industrialization through the development o f regional value chains as an overarching 
objective, investment and export promotion;  
b) trade facilitation and logistics;  
c) effective implementation of the AfCFTA;  
d) unified engagement with third parties;  
e) finance and resource mobilization;  and 
f) institutional building and governance.  
2.5.  With respect to our trade agreements with third parties since our last Review held in 
November  2015, SACU member States have continued to undertake trade negotiations with third 
parties as a collective which culminated  in the entry into force of new trade agreements. 
The Preferential Trade Agreement (PTA) between SACU and the MERCOSUR countries entered into 
force on 1  April 2016. In addition, the provisional application of the EU -SADC Economic Partnership 
Agreement (EPA ) entered into force on 10  October  2016.  
2.6.  SACU member States are also State parties to the AfCFTA which entered into force on 
30 May 2019, whilst trading under the AfCFTA commenced on  1 January  2021. SACU also concluded 
an Economic Partnership Agreement wit h the United  Kingdom which entered into force on 
1 January  2021.  
2.7.  In addition to the above agreements, SACU member States are engaged in the Tripartite Free 
Trade Agreement negotiations between the Common Market of East and Southern Africa (COMESA), 
the Sou thern African Development Community (SADC), and the East African Community (EAC), 
which will enter into force once two thirds of the members have ratified. SACU countries are also 
engaged with India towards negotiating a Preferential Trade Agreement. It is  important to highlight 
that our guiding principle in negotiating all preferential and Free trade agreements has been 
adherence to the WTO GATT provisions that are applicable in this regard.  WT/TPR/W/ 235 
 
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  2.8.  It is also worth noting that SACU is currently undertaking a revi ew of its Free Trade Agreement 
with the EFTA States. Similarly, the review of the EU -SADC EPA is underway which the parties agreed 
to undertake no later than five years after its entry into force.  
2.9.  All these agreements provide preferential market access opp ortunities for the member States. 
As members to the Southern African Development Community (SADC), SACU member States also 
benefit from market access under the SADC Protocol on Trade, which entered into force in 2000. 
They are also beneficiaries to the US African Growth and Opportunity Act (AGOA).  
2.10.  The global economic outlook for 2023 continues to remain gloomy and uncertain. While global 
growth projections have been revised slightly up since the July  2023 World Economic Outlook Update 
by the International M onetary Fund (IMF), growth is still low by historical standards. Central banks 
across the world have raised policy rates in a bid to clamp down inflation, thereby weighing on 
economic activity, albeit this situation is also not unique to us as the SACU reg ion. Our region still 
grapples with sluggish growth and the drag from the pandemic and other geo -political developments 
across the globe.  
2.11.  To this end, the overall weighted growth in the SACU region is therefore estimated to have 
contracted by 6.5% in 2020 down from 0.3% in 2019 amid recent growth revisions by the 
member  States. Growth later recovered to an estimated 5.0% in 2021, following the pandemic but 
declined again to 2.3% in 2022 and is further forecast at a lower 1.1% in 2023, improving to an 
estima ted 1.6% in 2024.  
2.12.  Allow me at this point to highlight SACU's commitment towards the ongoing work at the WTO 
in preparation for the MC13 planned for February  2024 in Abu  Dhabi, United  Arab Emirates. 
The special and differential treatment  (SDT)  is of key importance to address the real needs of 
developing and least -developed countries. Our wish is that tangible outcomes will be reached on the 
key issues of interest to the developing countries such as food security and the rules on fisheries to 
strengthen and support our efforts to further integrate into the global trading system.  
2.13.  In conclusion, I wish to thank Members of the WTO for the interest shown in SACU, dedicating 
your time to participate in this Trade Policy Review and the opportunity to e ngage with Members on 
our policy developments, specifically for the questions already received. We have endeavoured to 
provide comprehensive answers to the questions. If additional clarification is required during our 
proceedings this week, we are more tha n willing to respond, if not immediately, in writing within 
one month as provided for by the rules of procedure. We look forward to a fruitful exchange in this 
regard.  
2.14.  Let me take this opportunity to also reaffirm SACU's commitment to the rules -based 
multilateral trading system and pledge our continued constructive engagement towards a mutually 
beneficial outcome on the ongoing negotiations as well as the overall reform of the WTO.  
  WT/TPR/W/ 235 
 
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  3  STATEMENT BY THE DISCUSSANT  
3.1.  First of all, l et me echo,  Chair, your very warm words of introduction, both to our distinguished 
Heads of Delegation here from the SAC U members, but also to everybody who  has joined us, whether 
from their missions here in Geneva or from their capitals , it is great to see you all here.  
3.2.  Let me echo both your words, Chair, but also your words, Ambassador  Matjama, of thanks to  
the WTO Secretariat for producing the Report which frames our discussions this week. Thank you 
very much, Ambassador, colleague, friend, for your presentation on behalf  of the SACU members, 
and thank you also to the SAC U Secretariat for all the work they have  done in preparing for this 
Trade Policy Review. But also thanks to the Members for their questions, which again are going to 
help frame our debates during the two -day meeting . That collective contribution and commitment 
by everybody concerned lies at the heart  of these trade policy reviews, which are such a crucial 
instrument in the WTO armoury, and one which we  are very happy to support, and it  is a real 
privilege t o be the discussant this morning.  
3.3.  I am particularly excited about this TPR  or, at least I was until Saturday evening, when 
South  Africa dumped England out of the Rugby World  Cup with the last kick of the game. Having 
earlier in the day wiped the floor with  us in the Cricket World  Cup. I will get over it. One day. As well 
as having some of the finest cricketers and rugby players in the world, SACU countries are blessed 
with having some of the finest WTO delegates as well. One need look no further than the 
General Council to see that Ambassador Molokomme has hit the ground running as GC Chair and is 
leading all of us through the challenges and complexities of preparing for MC13.  
3.4.  And challenges and complexities are perhaps where I will start my statement as discussant, as 
SACU countries have their fair share of both. SACU is a complex bloc, consisting of several vastly 
different economies; from South  Africa the regional economic powerhouse, Botswana the 
fastest -growing UMIC, and Lesotho as the only Least Develop ed Country in the bloc. There are trends 
that can be drawn from this review. But we must also be mindful of the diversity and variation 
amongst SACU's members when making broad conclusions.  
3.5.  And on challenges, I want to set the economic context. In terms of raw statistics, economic 
growth has flatlined, relatively speaking, since the last Review. Real GDP growth has been around 
1% to 1.5% year -on-year. This is higher for some economies, like Botswana, and lower for others, 
like Lesotho. In East Afric a meanwhile, most economies have been growing at around 5 % to 6% 
year-on-year. The trade -to-GDP ratio has remained consistent at around 60%, that relatively high 
figure driven by commodity exports. The total volume of intra -SACU trade has also remained ste ady.  
3.6.  The first questions I want to pose today are: What is the story behind these numbers? Is it 
reasonable to expect the same rapid economic growth compared to continental peers? And is there 
something about SACU trade policies which could help explain t hose figures or boost them in years 
to come?  
3.7.  We know that SACU starts from a base of higher economic development compared to its 
continental peers. Most of its economies rank in the top  10 in Africa measured by GDP per  capita. 
Secondly, the population is growing at around 1% per year.  
3.8.  SACU also continues to face fundamental socio -economic challenges. Inequality remains 
searingly high. South  Africa  and Namibia are among the most unequal countries in the world. This 
inequality is a legacy of the horrors of Apartheid. But over the past 20  years, the data shows 
inequality getting worse, not better. COVID was a tragedy and a serious external shock, but growth 
was slow even before the onset of the pandemic. And the growth experienced has not been pro -poor 
and do es not generate enough jobs. The Secretariat Report tells us that unemployment rates are 
relatively high, averaging 24% in 2022 and 42% for youth unemployment. Energy is the other key 
factor. South  Africa ns have been experiencing up to 12  hours of power cu ts each day this past 
winter. Beyond the direct impacts for households and business, the energy crisis weakens the 
infrastructure for healthcare, water, and education overall. These impacts are not isolated to 
South  Africa, as its State -owned Enterprise Es kom, is a provider for much of the region.  WT/TPR/W/ 235 
 
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  3.9.  Beyond this, the region faces the same existential headwinds as the rest of the global 
economy  – grappling with post COVID recovery, the pressures of inflation and of course the 
ever-faster pace of calamitous clim ate change.  
3.10.  So, the period following this review is critical. There are reasons for optimism. Africa's 
population is surging and the middle class is growing, creating a huge consumer base on SACU's 
doorstep. Four years ago, Africa did not have a single tec h unicorn. Now it has around seven, with 
more surely on the way. If and when fully implemented, the AfCFTA will spur industriali zation and 
prosperity across the continent, and deliver new trade and investment opportunities to African 
countries and the rest  of the world.  
3.11.  Commercial contracts are well -enforced through mostly -independent judiciaries, creating 
stability and security for investors. There is relative institutional stability. Rules and decisions are 
transparent, with lots of progress made making more information easily accessible through 
governments' respective digital portals. It has RTAs with major markets such as the EU, Mercosur 
and, yes, the UK. Further agreements with India are being considered. This year, UNCTAD reported 
that FDI within SAD C had quadrupled over the previous five years. The lion's share of this goes 
within South  Africa's borders, though there is clearly a regional dimension. But Namibia has also 
seen a surge of FDI in energy and infrastructure.  
3.12.  We should ask ourselves at thi s review: How can SACU overcome its complexities and 
challenges, to take advantage of the opportunities? What role can this TPR play in helping to answer 
those questions, and, echoing questions we were all asking ourselves just this week at the Senior 
Officials Meeting, what role can the WTO play in driving development? Is it more policy space that 
is needed, or more open trade policies?  
3.13.  I prefer to pose the questions than pretend to have the answers. But there are elements in 
the reports which I would lik e to highlight. SACU needs to ensure trade is flowing freely and 
predictably, maintaining the confidence of traders and investors. Fully establishing the regional 
institutions necessary to do so, such as the Tariff Boards, is essential to this process. The  Review 
notes the imposition of further import controls on goods within SACU, evidenced by Botswana and 
Namibia's restrictions on certain agricultural products. Measures like these are sometimes necessary 
to protect domestic industry in the short term. But  were these implemented in accordance with the 
appropriate SACU procedures and timeframes, and in a predictable and transparent manner? 
Operating a consistent trade policy will be crucial in maintaining this wider business confidence.  
3.14.  Beyond SACU's legal f unctioning, the Report also suggests that reform in a few crucial areas 
could be transformative.  
3.15.  Firstly, on customs and trade facilitation – harmonization is an opportunity. To have several 
different systems and procedures that cannot speak to each other  within a customs union 
undermines the very functioning and rationale of the institution itself, because efficiency is hampered 
to such a great extent. The Report notes that "a lack of common regional systems to manage 
cross-border trade flows, limited col laboration, administrative inefficiencies, inadequate soft and 
hard infrastructure, and lack of regional performance measurement systems" is to blame. It also 
notes improvements. On 31  May this year, SACU members signed a mutual recognition agreement 
to re cognize each other's traders with the status of an Authorized Economic Operator. These 
initiatives are to be encouraged, and the global community should ask what more can be done to 
support this progress.  
3.16.  Second, SACU's revenue -sharing formula and common r evenue pool continues to be an issue 
of considerable difficulty. Whilst it notes that a review is due to take place at the mid -point of the 
SACU Strategic Plan 2022 -2027, there has been limited progress since the initial review was started 
in 2011. Objecti vely, its design, whereby revenue is distributed in large part on the basis of imports 
from only other SACU countries, appears to create perverse incentives. In other words, SACU 
countries receive an extra bonus for importing from within SACU, as opposed t o the rest of world. 
Completing Reform of the revenue -sharing formula, and potentially including an outward -facing 
component, is essential. It will require compromise. But particularly as the AfCFTA comes online, 
the objective should be deeper integration with the rest of the continent and the world.  WT/TPR/W/ 235 
 
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  3.17.  Third, SACU needs to future -proof its trade and industrial policies to ensure they remain 
competitive. Services accounts for 70% of SACU's GDP. It is the dominant contributor in every single 
country. Yet initia tives to undertake scoping and analysis of the sector, and to define priorities, have 
stalled. The Report notes that in 2012, the SACU Council of Ministers approved trade in services as 
one of the priority areas for its work programme. And while a Technica l Committee on Trade in 
Services was subsequently established, this initiative has not advanced. Parts of Africa, including 
within SACU, are fast becoming digital and service hubs. The entry into force of the SADC Protocol 
on Trade in Services in January  2022 was a positive step. But to maximize trade, support job creation 
and growth SACU needs to make clear its ambition to moderni ze and integrate with respect to a 
digital and trade in services agenda. The D irector -General 's mantra that the future of trade is green, 
services, digital, and inclusive, is particularly pertinent here. SACU members may also wish to 
consider the potential benefits of the plurilateral JSIs.  
3.18.  As a co -Chair of the Informal Working Group  on Trade and  Gender, I would also highlight the 
crucial contribution that gender equality makes to achieving healthy and prosperous economies. For 
context, the OECD states (and I quote): "If women participated in the economy identically to men 
it would add up to USD  28 trillion, or 26% of annual GDP in 2025 compared to the business -as-usual 
scenario" (end of quote). I was therefore pleased to note that the Secretariat Report references 
SACU's Gender Mainstreaming Plan within their Trade Facilitation and Logistics Progr amme.  
3.19.  I opened by outlining the complexities and challenges facing SACU, some internal, some 
external. I hope I have also outlined the enormous potential and the opportunities offered by their 
geographic location, educated, young population, and developed  industry. I also hope I have posed 
some useful questions not just for this TPR, but for the wider Organization, as we continue to ask 
ourselves about the role of the WTO rules in driving inclusive, sustainable, long -term growth.  
3.20.  Finally, I would like to conclude by drawing from a Siswati proverb, Indlela ibutwa 
kulabaphambili  meaning you ask directions from those in front of you. It strikes me that the TPR 
process does just that. Just as we should draw on the experience of our elders, I hope that my fello w 
WTO Members continue to make full use of the invaluable experience provided by the oldest 
Customs  Union in the world; and that the delegations from SACU countries who have travelled so 
far to be here today can take some directions from the other Members in the room.  
3.21.  Thank you to SACU for their full cooperation with this TPR, and to you Chair for facilitating 
this review.  
3.22.  With that, I wish you a successful TPR, and South  Africa a most successful Rugby World Cup 
final. 
  WT/TPR/W/ 235 
 
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  4  STATEMENTS BY MEMBERS  
HONG  KONG,  CHINA  
4.1.  I would like to start by welcoming the delegation of the Southern African Customs Union 
(SACU):  Ambassador Molokomme  of Botswana ; Principal Secretary  Nkambule  of Eswatini ; 
Ambassador  Matjama  of Lesotho ; Deputy Minister Sinimbo  of Namibia ; and Director Mlangeni  of 
South  Africa .  
4.2.  Trade Policy Review is one of the three major functions of the WTO. It enables us to dive deep 
to understand the economic and regulatory regimes of our fellow Members, including their 
compliance with WTO  rules as well as the commitments we have made individually. This time, I am 
indebted to the Secretariat for the very comprehensive Report of over 350 pages. It helps deepen 
and widen our understanding of the fi ve SACU member States , which are at different  stages of 
development.  Thanks also goes to Ambassador Manley,  the discussant, for giving his insightful 
perspective.  
4.3.  The trade and economic relationship between Hong  Kong,  China and the SACU is promising. 
In 2020, Hong  Kong,  China was among the top  10 trading partners of Lesotho and Botswana.  
In 2022, bilateral trade in goods between Hong  Kong, China  and the SACU as a whole amounted to 
USD 2.6 billion.  
4.4.  As fellow WTO Members, we commend SACU member States'  commitments to the rules -based 
multilateral trad ing system. Specifically , we note SACU members ' progress in fulfilling their 
notifications requirement at the WTO. For example , despite its status as an LDC , Lesotho  has recently 
made the new and full subsid ies notification for 2023 pursuant to the Agreeme nt on Subsidies and 
Countervailing Measures.  We look forward to seeing other SACU member States  following the suit 
of Lesotho to give their respective notifications as soon as practicable.  
4.5.  Among other contributions made by the SACU member States  to the WTO , a noteworthy 
example is certainly the commitment of Ambassador Molokomme of Botswana to take up the 
Chairmanship  of the General Council this year. Ambassador, your able leadership and no -nonsense 
approach to shepherd the decision -making process is simply  impressive.  
4.6.  With respect to the trade policy of SACU, H ong Kong,  China  has the following observations . 
4.7.  First, on trade facilitation, we note that the SACU adopted in 2022 the Strategic 
Plan 2022-2027, which lists "trade facilitation and logistics " as one of the five core pillars for 
development. Measures such as the SACU Trade Facilitation and Logistics Programme and the 
Customs Modernization Programme have been enhanced accordingly. We are pleased to note the 
positive results, including the develo pment of a single customs declaration form as well as the 
regional frameworks for national Authorized Economic Operator Compliance programmes.  
4.8.  On services, which remains the largest sector of the economies of the five SACU member s, 
accounting for about 70%  of their GDP during the review period. It is encouraging to see that SACU 
countries have reviewed their legislations and introduced a number of regulatory changes to sectors 
like financial services, telecommunications services and transport services over the past years. It is 
encouraging because these changes are in the direction of liberali zation. Speaking from our own 
experience, we can say with certainty that government efforts in services liberali zation will help 
unlock the untapped potentials and crea te more market opportunities.  
4.9.  With respect to trade in goods, however, we see measures that can be made more  facilitating. 
For tariffs, we observe that the simple average applied tariff rate of the SACU increased slightly from 
8.3% in 2015 to 8.5% in 2023.  Certain products are subject to tariffs higher than 50%, for example, 
poultry meat and worn clothing, with the highest rate of 95% applying to certain dairy products.  
4.10.  Besides, we note from the Secretariat Report that various kinds of non -ad valorem  duties 
have continued to apply, including specific duties, mixed duties and formula duties of different types. 
These duties have complicated the tariff structure of the SACU. We therefore encourage SACU to 
consider further liberalizing its tariff regime and con verting non -ad valorem  rates to ad valorem  
rates to enhance predictability.  WT/TPR/W/ 235 
 
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  4.11.  On agriculture, we noticed that during the review period the SACU member States  have each 
introduced new initiatives to support their agricultural sectors. Botswana focused on impr oving food 
security and nutrition through improving access to productive resources. Eswatini provided public 
support mainly in areas like agricultural research and infrastructure enhancement. Lesotho provide d 
support to horticulture projects in the context  of it partial credit guarantee schemes. Namibia 
developed its own programme to stimulate production and market access for crops and livestock 
products from small and micro producers. South  Africa  introduced three agricultural related master 
plans to focus  on expanding production and food security through training and support, creating 
diversified revenue streams for sugar producers and investing into the facilities for poultry producers.  
4.12.  These efforts to improve food security and livelihood of their citize ns should be worthy 
reference for WTO Members in similar situations. Again, we encourage SACU members to provide 
timely notifications to the Committee on Agriculture to facilitate review by fellow Members  so that 
we can learn from your experience .  
4.13.  We have  put in a number of written questions with respect to several services sectors , and I 
would like to take this opportunity to thank the SACU member States for their informative answers.  
We wish the SACU a fruitful and successful Trade Policy Review.  
4.14.  Finally , we just had a successful Senior Officials Meeting (SOM) in the past two days. Riding 
on this, we look forward to creating another success at MC13 together with all Members, including 
SACU member States  and the GC Chair.  
CANADA  
4.15.  We welcome this opportunity to participate in the fifth joint Trade Policy Review of the SACU 
and the Member delegates from Botswana, Lesotho, Namibia, South  Africa, and Eswatini. We would 
like to recogni ze Lesotho 's current Chairmanship of the SACU and I welcome all the participants here 
this morning.  
4.16.  Firstly, I want to congratulate SACU members for improvements made to both their individual 
and common trade regimes since the last Trade Policy Review, notably under SACU 's five-year 
collective Vision, Missi on and Strategic Priorities plan for 2022 -2027. For example, I note the 
advancements made in improving the collaboration between SACU members on customs 
management. I also note the importance placed on continental integration, with the ratification of 
the AfCFTA Agreement by all SACU members, and the submission of their joint AfCFTA offer of tariff 
concessions earlier this year. We commend SACU 's efforts for greater transparency and predictability 
to foster and attract trade and investment in Africa, and ar e ourselves contributing to the success 
of the AfCFTA through support for the African Trade Policy Centre (ATPC) and gender -sensitive trade 
facilitation efforts that can help ensure inclusive economic growth.  
4.17.  I would like to encourage SACU members to cont inue efforts towards increasing and 
diversifying international trade and investment flows, especially intra -African, as a key contributor 
to their, and the continent 's, economic growth. An open and rules -based international trade and 
investment system that  incorporates inclusivity considerations to ensure all groups access its 
benefits can support the reduction of poverty and inequalities.  I see a good way forward with 
Lesotho 's National Trade Strategy  for 2021 -2025, which places a special emphasis on the c ountry's 
MSMEs. I was also pleased to note South  Africa 's 2021 Trade Policy for Industrial Development and 
Employment Growth, which promotes, for the first time, the implementation of measures to 
empower women.  
4.18.  We note the differing notification records am ong SACU members. We reiterate the importance 
of transparency and appreciate SACU Members ' commitment to submit outstanding notifications. 
Canada strongly encourages SACU members, in particular South  Africa, to bring notifications up to 
date. We note that the most recent agriculture domestic support notification provided by 
South  Africa covers 2014.  
4.19.  I want to take  this opportunity to thank SACU members for their participation in and support 
for the multilateral trading system. I was very pleased to hear th e underscoring of SACU's 
commitment to a rules -based multilateral trading system, and I heard loud and clear the remarks 
with regards to SACU's expectations  for MC13, in particular with regard to trade and development WT/TPR/W/ 235 
 
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  and the fisheries negotiations. Canada  too hopes for a successful Ministerial meeting that supports 
the overall objective of this Organization, which is to support economic growth and development in 
all Members  through open markets and a rules -based trade liberalization system.  
4.20.  I am pleased to  note that SACU authorities are taking steps towards the ratification of the 
WTO Agreement  on Fisheries Subsidies – I would encourage the SACU members to continue efforts 
in this direction . 
4.21.  In closing, I want to highlight Canada 's long -standing and positive relationship with SACU 
members. Partnerships between Canadian and SACU businesses have great potential. We see 
Canada as a natural partner for the clean energy transition and welcome South  African engagement 
with the Powering Past Coal Alliance as  well as future collaboration on Namibia 's green hydrogen 
energy projects.  
4.22.  We wish SACU a very successful Trade Policy Review. Canada has submitted written questions 
and we look forward to a constructive exchange of views this week.  
RUSSIAN  FEDERATION  
4.23.  We w elcome the delegations of the South  Africa n Customs Union to Geneva and thank them, 
as well as the WTO Secretariat, for their efforts in preparing detailed TPR reports.  
4.24.  The Russia n Federation  and the African continent enjoy a long -lasting and mutually ben eficial 
relationship. We value trade and economic cooperation with all SACU countries, with South  Africa 
being our biggest partner from the Customs Union.  
4.25.  By the end of 2022 our bilateral trade volume witnessed a 16 .4% increase, which is an 
impressive ach ievement given the current bleak global economic outlook.  
4.26.  We note with satisfaction that the second Russia -Africa Summit, that was held in July  2023, 
confirmed our mutual commitments to expand existing frameworks of partnership and opened up 
new prospects in various fields. Among them  – investment, regional economic integration, 
agriculture, energy, infrastructure, subsoil use, information and communication technologies, 
healthcare and education.  
4.27.  The Russia n Federation  appreciates the active parti cipation of the SACU, as a part of the 
African  Group, in the WTO activities. We hope to continue working together to further promote the 
key principles of the Marrakesh Agreement, address the challenges of protectionist WTO -inconsistent 
measures and streng then the rules in respect of food security and technology transfer.  
4.28.  The Russia n Federation  shares Africa 's view that development issues should be an integral 
part the WTO reform. To pursue true multilateralism, accounting for different levels of developme nt 
is essential. Moreover, providing better opportunities for development would foster global resilience 
to current and new crises. In a critical situation, every country is as secure as the least protected 
one is.  
4.29.  I would be amiss if I did  not recognize South  Africa 's valiant efforts as this year 's BRICS 
Chairmanship. We appreciate the valuable work done on the implementation of BRICS strategic 
documents, focused on strengthening supply chains, supporting MSMEs, promoting electronic 
commerce and sustainab le development.  
4.30.  To conclude, let me thank the SACU member States for providing replies to some of the 
Russia n Federation' s advance written questions and to express our expectation to receive the 
pending responses. We  wish the SACU member States  a successfu l Trade Policy Review.  
JAPAN  
4.31.  Japan extends a warm welcome to today's Trade Policy Review to Ambassador  
Dr Ataliah  Molokomme, Permanent Representative of Botswana ; Mr Siboniso  Nkambule, Principal 
Secretary, Ministry of Commerce, Industry and Trade of Eswatini ; Ambassador Thabo  Matjama, 
Spokesperson of SACU and Permanent Representative of Lesotho ; Honourable Verna  Sinimbo, WT/TPR/W/ 235 
 
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  Deputy Minister of Industrialization and Trade of Namibia ; and Ms  Thembi  Mlangeni, Director of 
Market Access Department of Trade Ind ustry and Competition of South  Africa , and their delegations 
representing the SACU member countries.  
4.32.  We offer our appreciation to the WTO Secretariat and the SACU members for the respective 
reports prepared for today 's review. We also thank Ambassador Sim on Manley for his, as always, 
effective and insightful contribution as the discussant.  
4.33.  SACU members are important trade, economic and development partners of Japan. The trade 
volume between Japan and SACU members reaches approximately JPY  1.4 trillion annu ally. 
Around  280 Japanese companies maintain operations in SACU countries, actively undertaking 
business activities for enhancing our bilateral trade and economic relations, as well as for taking 
roles for advancing development and regional integration of SACU members.  
4.34.  SACU is one of the key building components of the African Continental Free Trade Area 
(AfCFTA). We strongly commend and support SACU's efforts to promote economic development 
through trade within the African continent.  
4.35.  I would like to highli ght some recent developments between SACU members and Japan.  
4.36.  Botswana is an important partner for Japan, including its rich mineral resources. We have 
technical cooperation and human resource development projects on mineral resources, contributing 
to the economic development of Botswana and South  Africa n region.  
4.37.  In Eswatini, a Japanese textile and apparel company is active in our bilateral trade relations 
as well as contributing to the development of sub -regional value chain. In this context, we look 
forward to a further improvement in the business environment of Eswatini, including its power 
infrastructure and business law framework.  
4.38.  With Lesotho, who faces difficulty due to natural disasters such as floods and droughts, as 
well as the current geopolitica l crisis, Japan has been a partner in its food security, through providing 
food assistance. We continue to encourage Lesotho 's efforts for diversifying its economy.  
4.39.  We welcome the recent advancement in our trade and investment relations with Namibia, 
including the visit this August by Mr  Nishimura, Minister of Economy, Trade and Industry and signing 
of a joint statement on cooperation in the mining sector. Our bilateral cooperation initiatives extend 
also to Green Transformation (GX). On the occasion of TIC AD 8, August last year, a memorandum 
of understanding on carbon neutrality was signed with JOGMEC (Japan Organization for Metals and 
Energy Security). We hope that ventures between our private sectors will further advance, to bring 
our economic relations t o a new stage.  
4.40.  South  Africa is Japan 's key partner, in our bilateral trade and economic relations, as well as 
in addressing regional and global issues, including at TICAD and at G20. This August, Mr  Hayashi, 
then Foreign Minister of Japan, visited South  Africa and discussed with Foreign Minister Honourable 
Dr Pandor advancement of bilateral economic relations as well as cooperation on global issues. 
TICAD  8 added a new page to the traditional cooperative relations of our private sectors, in the areas 
includ ing renewable energy and hydrogen. Intergovernmental cooperation for green development is 
also in progress. This September, a Memorandum of Cooperation (MOC) on hydrogen and ammonia 
was signed, at the Hydrogen Ministerial Meeting in Tokyo. We look forward to further deepening our 
cooperation with South  Africa.  
4.41.  Along with those bilateral cooperation agenda, Japan is also committed to contributing to the 
regional and sub -regional integration of the SACU members, through human resources, logistics and 
infrastr uctural development projects. Just to name a few: the Capacity Development project for 
Smooth Operations of OSBPs on the North -South Transport Corridor, Kazungla Bridge Construction 
and related OSBP project, Eswatini Northern Main Road Construction Project , and the International 
Logistic Hub Master Plan implementation Project in Namibia.  
4.42.  We would like to continue working with SACU members through the follow -up of TICAD  8 and 
in preparation for TICAD  9.  WT/TPR/W/ 235 
 
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  4.43.  We value the contribution and active participation of the SACU member countries, as founding 
Members of the WTO, to the multilateral trading system. In particular, we appreciate the leadership 
of Ambassador Molokomme as the Chair of the General Council this year, who will guide us to a 
credible success at MC1 3. 
4.44.  Furthermore, we welcome again Botswana for its deposit of instrument of acceptance of the 
Fisheries Subsidies Agreement, two days ago; and we look forward to welcoming the ratification by 
other SACU members.  
4.45.  We hope to continue working with SACU members  in the WTO, including our efforts to improve 
the work and rules of the WTO, to meet the trust and expectations from our business sectors. Japan 
wishes a successful and fruitful Trade Policy Review for SACU members.  
ARGENTINA  
4.46.  Quisiéramos sumarnos a los Miembros que han dado la bienvenida a las delegaciones de 
Botswana, Eswatini, Lesot ho, Namibia y Sudáfrica; y damos la especial bienvenida al portavoz de 
los Estados Miembros de la SACU, el Embajador Thab ang Matjama de Lesot ho. Asimismo, hacemos 
propicia esta oportunidad para augurarles el mayor de los éxitos en este ejercicio.  
4.47.  Al mismo tiempo, deseamos expresar nuestro agradecimiento por los informes elaborados 
por los Estados miembros de la SACU y la Secretaría, así como por lo s comentarios ofrecidos por el 
Embajador Simon Manley del Reino  Unido. Estos elementos han enriquecido nuestra comprensión 
de las políticas, prácticas comerciales y entorno económico de los Miembros objeto de examen.  
4.48.  Quisiéramos destacar que, en 2022, el i ntercambio comercial bilateral alcanzó una cifra 
cercana a los USD 660 millones. En dicho año, las exportaciones argentinas ascendieron a más de 
USD 460 millones, mientras que las importaciones desde SACU superaron los USD 195 millones . 
4.49.  En lo que respecta a la composición del comercio bilateral en el año 2022, los principales 
productos exportados por Argentina hacia la SACU, en particular Sudáfrica, fueron productos 
agroalimentarios; y vehículos automóviles y sus partes. Además, en el mismo período, las pri ncipales 
importaciones argentinas procedentes de la SACU fueron máquinas y aparatos mecánicos; vehículos 
automóviles y sus partes y accesorios; y fundición, hierro y acero.  
4.50.  A través de los años, hemos estado fortaleciendo nuestros lazos con los miembros d e la SACU, 
con el fin de fomentar la cooperación y el comercio. En este aspecto, remarcamos el Acuerdo 
Preferencial de Comercio entre el MERCOSUR y la SACU y el trabajo llevado adelante por la Comisión 
Binacional Argentina Sudáfrica, que desde 2005 ha cont ribuido a profundizar la cooperación bilateral 
y contó con una misión comercial este año a Sudáfrica.  
4.51.  Adicionalmente, expresamos nuestro firme compromiso de seguir profundizando los lazos 
políticos, comerciales y de cooperación con la SACU, basándonos en l os principios de la cooperación 
Sur-Sur. En este sentido, resaltamos que existen grandes oportunidades en la ampliación del 
comercio de productos agroalimentarios y pesqueros; y de tecnología nuclear.  
4.52.  Quisiéramos expresar nuestra voluntad de cooperar en el área energética, abordando 
cuestiones que incluyen biocombustibles, eficiencia energética, energías renovables y la vasta 
experiencia argentina y de sus empresas en materia de gas natural comprimido. Estamos 
convencidos de que el intercambio sobre estos temas será de beneficio mutuo para nuestras 
naciones.  
4.53.  En el marco de nuestros esfuerzos por fortalecer el comercio bilateral con los miembros de la 
SACU, quisiéramos también señalar que hemos constatad o que varios envíos de carne aviar 
provenientes de Argentina han experimentado rechazos en el puerto de arribo en Sudáfrica. Estamos 
seguros de que, trabajando en estrecha colaboración, podremos abordar este desafío y garantizar 
la entrada de estos product os de alta calidad. Reiteramos nuestra firme disposición de encontrar 
una solución positiva a este tema.  
4.54.  Los Estados miembros de la SACU han alcanzado diferentes niveles de desarrollo económico 
y tienen estructuras económicas variadas. A pesar de las dife rencias, también enfrentan desafíos WT/TPR/W/ 235 
 
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  comunes, incluyendo las repercusiones negativas de la pandemia de COVID -19. No obstante, es 
alentador comprobar que, desde 2020, la SACU haya retomado el crecimiento.  
4.55.  Los Miembros de la SACU, al igual que Argentina, son  países que respaldan el sistema 
multilateral de comercio basado en normas. En este sentido, colaboramos estrechamente en las 
negociaciones sobre subvenciones a la pesca, sobre reforma del sistema de solución de diferencias, 
en el Consejo ADPIC, donde impu lsamos la extensión de la exención  a diagnósticos y tratamiento, 
y coincidimos en nuestros llamados de que la OMC adopte una visión transversal de desarrollo que 
permita nivelar la cancha de juego y cerrar las brechas actuales. Valoramos también el rol pro activo 
de sus miembros en las discusiones sobre comercio electrónico en el marco del programa de trabajo. 
Además, apreciamos el papel que desempeñan estos países, como Miembros del Grupo Africano, en 
la presentación de propuestas en el marco del proceso de  la reforma de la OMC.  
4.56.  En este sentido, hacemos uso de esta oportunidad para reafirmar nuestra intención de 
trabajar con los miembros de la SACU y toda la Membresía en el proceso de esta reforma. Aspiramos 
a fortalecer las capacidades de la OMC para afron tar los desafíos del comercio internacional, creando 
un sistema multilateral de comercio más justo que atienda las necesidades de los países en 
desarrollo.  
4.57.  Por último, en el marco de este examen de política comercial, hemos presentado diversas 
preguntas a los miembros de la SACU. Agradecemos de antemano las respuestas, las cuales serán 
debidamente estudiadas por nuestros y nuestras colegas en Buenos  Aires.  
4.58.  Además de reiterar nuestro reconocimiento por esta nueva oportunidad de intercambiar 
consideraciones s obre las prácticas comerciales de los Estados miembros de la SACU, permítanos 
señalar, una vez más, la relevancia de este ejercicio de transparencia en todos sus aspectos y desear 
a las autoridades de los miembros de la SACU una exitosa conclusión del pres ente examen.  
UNITED  STATES  
4.59.  On behalf of the United  States, I am pleased to participate in the Southern Africa Customs 
Union 's (SACU) fifth Trade Policy Review and extend a warm welcome to the entire SACU delegation . 
4.60.  The SACU region exports a wide variety of products to the United  States under the African 
Growth and Opportunity Act (AGOA) and the U.S. Generalized System of Prefe rences (GSP). 
South  Africa has continued to be a significant beneficiary of AGOA as the largest non -oil exporter 
under AGOA, and exporter of a broad array of goods to the United  States under the program me, 
including motor vehicles and parts, boats, metals and minerals, agricultural products, textiles, and 
chemicals. Lesotho is also a leading exporter of apparel to the United  States  under AGOA.  
4.61.  AGOA remains a pillar of our economic engagement with sub -Saharan African nations and we 
are very pleased the Gover nment of South  Africa will host the 20th U.S. -sub-Saharan Africa Trade 
and Economic Cooperation Forum (commonly known as the AGOA Forum) in Johannesburg, 
South  Africa from 2 to 4  November  2023. The Forum will bring together the Governments of the 
United  States and AGOA -eligible countries, as well as representatives from key regional economic 
organizations, the private sector, civil society, and labour.  
4.62.  Under this review, the United  States submitted advance written questions with great interest 
to both SACU  as a whole and individual Members. As a general theme among all Members that took 
part in this review, we are concerned with the low rate of timely notifications to the WTO. We look 
forward to updates regarding each Member 's plans to fully comply with WTO  notification obligations.  
4.63.  Regarding Botswana 's trade policies, the United  States is interested to hear more about 
Botswana 's transition to a new system that processes customs and import documents electronically. 
We would also like to hear more about how B otswana plans to harmonize its policies and regulations 
for copyright and intellectual property with Botswana's Intellectual Property Policy.  
4.64.  The U.S. had several questions regarding Eswatini 's intellectual property and copyright 
policies. We also congratu late Eswatini 's Government on its success in reducing customs clearance 
times, according to a recent time release study, and look forward to hearing more details from 
Eswatini about that process.  WT/TPR/W/ 235 
 
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  4.65.  We also recognize Lesotho 's efforts in undergoing this TPR, and are very interested in 
understanding more about Lesotho 's plans to notify draft regulations to the TBT  committee, 
interagency coordination for developing standards regulations, and Lesotho 's official notice to the 
WTO of its enquiry point. We also enga ged Lesotho on questions regarding its intellectual property 
and copyright regime, and look forward to Lesotho 's response.  
4.66.  For Namibia, we look forward to gaining a better understanding of the Government 's 
intellectual property and copyright policies.  
4.67.  With regard to South  Africa 's trade policies, the U.S. notes that agricultural market access 
continues to be a concern for exporters. In our advance written questions, the U.S. would like to 
understand more about South  Africa 's multiple restrictions and onerou s testing procedures for pork 
and pork products, based on risk assessments that may be inconsistent with international standards. 
We would also like more information regarding the reasons South  Africa deviates from World 
Organization for Animal Health (WOA H) guidelines regarding certain animal diseases, when 
South  Africa is an active member of that organization. We understand that South  Africa has rejected 
and voted against the WOAH Chapter for Porcine Reproductive and Respiratory Syndrome. Finally, 
we are keenly interested in how South  Africa plans to overcome its challenges in submitting timely 
notifications to various WTO Committees, including TBT, SPS, Agriculture, and Market Access.  
4.68.  I would also note that the Biden -Harris Administration enthusiastically supports African 
regional integration. We know SACU and other regional organizations across Africa are playing a 
critical role in this work. That 's why we strongly support the negotiations and implementations of 
the African Continental Fre e Trade Area (AfCFTA) – which promises to connect 1.3  billion Africans 
with a combined GDP of USD 3.4 trillion – while lifting 30  million people out of extreme poverty 
by 2035. I should note that U.S. Trade Representative Tai and Secretary General Mene of the AfCFTA 
Secretariat signed a Memorandum of Understanding in December  2022 at the U.S .-African Leaders 
Summit to exchange information on best practices and establish an open dialogue between the U.S. 
Government and the AfCFTA Secretariat.  
4.69.  In closing, the  United  States appreciates the opportunity to participate in this review of 
SACU 's trade policy, and we look forward to further discussions on trade matters with the delegation 
from the SACU Members.  
CHINA  
4.70.  First of all, I would like to extend my warm welco me to the delegation of the Southern African 
Customs Union (SACU) led by Ambassador Thab ang Matjama of Lesotho, and my appreciation to 
the Governments of the SACU members for the preparation for this review. Our gratitude also goes 
to the discussant, H.E. Ambassador Simon  Manley, for your insightful analysis and to the Secretariat 
for their hard work.  
4.71.  China commends the SACU member s for their remarkable efforts in fostering economic 
growth and development despite the numerous challenges it has faced. Like m ost of the economies 
worldwide, the economies of SACU member s were hard hit by the pandemic and influenced by the 
global economic environment. Although economic growth fluctuated and all five SACU member s 
registered negative growth in 2020, SACU economies collectively grew by 1.2% annually on average 
from 2014 to 2022. In particular, Botswana 's growth bounced back more robustly in 2021 and 2022, 
which is very encouraging.  
4.72.  China appreciates the efforts by the SACU to develop common policies focusing on 
indus trialization and the development of industrial value chains. Among these efforts, five core 
strategic pillars of the SACU Strategic Plan 2022 -2027 are very impressive. In addition, a range of 
reforms implemented over the review period are also inspiring, i ncluding modernization of customs 
legislation, risk management and its enforcement, IT connectivity, and transport and logistics 
programme, etc., which will surely promote trade facilitation.  
4.73.  China welcomes the SACU members ' active participation in and con tribution to the multilateral 
trading system. In this regard, we are pleased to note that during the review period, SACU member s 
ratified the Trade Facilitation Agreement, and actively participated in the MC12, joined collective 
efforts to make it a succes s. We also highly appreciate the SACU members ' active participation in WT/TPR/W/ 235 
 
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  the preparation for a successful MC13. Meanwhile, we note that investment promotion is one of the 
core strategic pillars of the SACU Strategic Plan 2022 -2027 and look forward to your pa rticipation in 
WTO Joint Statement Initiative on Investment Facilitation for Development, which have about 
120 WTO Members ' participation, up to now.  
4.74.  On regional initiatives, since last review, the SACU member s have participated in various 
regional agreeme nts, including the African Continental Free Trade Area, the Southern African 
Development Community (SADC), the Tripartite Free Trade Area between the SADC, the Common 
Market for Eastern and Southern Africa, and the East African Community. All these efforts  will surely 
help to boost further the integration of SACU into the international economy.  
4.75.  Since last Review, the bilateral economic and trade relations between China and SACU have 
continued to deepen and grow smoothly. China is the largest export destinat ion for SACU and also 
the largest single source of imports into SACU. During these years, China also has developed a sound 
bilateral relation and economic cooperation with its member s. In 2022, bilateral trade between China 
and South  Africa reached USD 56.74 billion, increased by 5%, which created a record high in the 
past eight years. South  Africa has been China 's largest trading partner in Africa for 13 consecutive 
years , and China has become the second largest trading partner of Namibia . Meanwhile, we ha ve 
seen rapid growth of trade with other SACU member s. From January to August this year, the bilateral 
trade between China and Namibia, Lesotho, and Botswana, increased quite rapidly, with the 
year-on-year increase of 30.4%, 49.1%, and 44.5%. China has become the second largest trading 
partner of Namibia. Furthermore, the economic and trade cooperation between China and the SACU 
member s enjoys a broad prospect. We are looking forward to deepening economic and trade 
cooperation between us.  
4.76.  China also noti ced that the SACU member States have taken concrete efforts to optimize their 
business environment and increase the attraction of foreign investment, which achieved remarkable 
outcome in recent years. In this regard , we expect SACU mem bers further improvin g the business 
environment, especially in the area of social security, to better protect the legitimate rights and 
interests of foreign companies and investors.  
4.77.  For this review, China has submitted written questions regarding the implementation of FTAs, 
customs enforcement procedures, and investment policies, etc. We appreciate the repl ies from the 
SACU member s and will study them carefully.  
4.78.  To conclude, I wish this review a completely success.  
SWITZERLAND  
4.79.  On behalf of Switzerland, I would like to join previous speakers in welcoming to this fifth 
Trade Policy Review the delegations of TPR of the Southern African Customs Union led by their 
respective heads of delegations , ambassadors or high representatives f rom the SACU members.  
4.80.  I am furthermore grateful to the discussant, H.E. Ambassador Simon  Manley from the 
United  Kingdom  for his opening reflections and observations , and to the WTO Secretariat for their 
substantive contributions  put down in the Secretariat 's Report .  
4.81.  We note and commend the continued growth of the SACU 's economy and trade over the 
reporting period despite a challenging environment.  
4.82.  For Switzerland, the SACU is an important trade partner. While SACU 's exports to Switzerland 
rose by 0.4 %, imp orts from Switzerland to SACU increased by 7.4% in 2022. The Free Trade 
Agreement (FTA) between the European Free Trade Association (EFTA) States, in force since 
1 May 2008, is functioning well and negotiations for its moderni zation started in 2018. Senior  
officials and experts from the SACU and EFTA met for the last time in November  2021 to continue 
their negotiations.  
4.83.  In the framework of this TPR, Switzerland has submitted a range of questions, and we thank 
SACU for the replies just received.  
4.84.  Let me highl ight just a few points touched upon in our questions.  WT/TPR/W/ 235 
 
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  4.85.  With respect to the SACU Common External Tariff (CET), we note that it is composed of 
ad valorem  and non -ad valorem  rates, while SACU States have individually bound their tariffs at 
ad valorem  rates onl y. We would like to enquire about your plans to ensure full compliance with 
WTO commitments.  
4.86.  We welcome that all five SACU members have ratified the African Continental Free Trade Area 
(AfCFTA), which entered into force on 30  May 2019. As an important Customs Union on the African 
continent, we hope that SACU 's tariff offer will soon be approved by the Council of Minister so that 
the SACU will be able to trade preferentially with the other AfCFTA State Parties that have 
implemented their approved tariff offe rs. 
4.87.  On electricity generation, we note that it is a major concern across all industries in the SACU, 
especially in South  Africa and we recognized the efforts being made to address the energy crisis. We 
note that some as South  Africa aims for universal acce ss to electricity by 2025 and encourage it.  
4.88.  We also note that Swiss companies face difficulties with regard to the public procurement 
system in South  Africa due to its fragmented rules and sometimes lack of transparency. We welcome 
that South  Africa has reacted through the drafting of a Public Procurement Bill to address these 
issues and hope that the Bill can be submitted to Parliament and published in a timely manner.  
4.89.  Turning to the broader economic context, the effects of the COVID -19 pandemic cann ot be 
overlooked. The effects on trade presented supply side challenges and slowed customs processes. 
The current challenges of inflation, growing inequality and unemployment are shared by many 
WTO Members, and we wish the SACU the best of success at tackl ing these issues.  
4.90.  And finally, let me say a brief word on the plurilateral initiatives at the WTO. They offer an 
opportunity to make WTO law more relevant and complementary. They also make it possible to 
tackle important new issues and circumvent possible blockages at the multilateral level.  
4.91.  A glance at history shows that this process is not new and that different approaches, 
compatible with WTO law, are possible. Plurilateral initiatives therefore do not infringe WTO law.  
4.92.  We look forward to the SACU 's further engagement for the multilateral trading system. More 
particularly, we would like to encourage the SACU to consider steps in due course in their multilateral 
commitments on goods and services and their business environment with a view to enhancing 
transparency and predictability, and attracting investment.  
4.93.  We wish the SACU delegations a productive Trade Policy Review.  
UKRAINE  
4.94.  On behalf of the delegation of Ukraine, I would like to welcome the distinguished delegations 
of the SACU member States and expr ess our appreciation to their teams and to the WTO Secretariat 
for the substantial work done while preparing the Trade Policy Review.  
4.95.  I also wish to commend an excellent, comprehensive analysis made by the distinguished 
discussant and noticeably polyglot, our good -humored colleague, UK Ambassador Simon  Manley.  
4.96.  Today's review offers us a good opportunity to deepen our understanding of the functioning 
of one of the oldest custom unions in the world and to get better acquainted with the changes in its 
trade r egime since its previous review in 2015.  
4.97.  The five SACU member States are at different levels of economic development and have 
different economic structures.  All five economies remain dominated by the services sector, and all 
have a large subsistence farmi ng with agriculture, accounting for about 3% of GDP on average.  
4.98.  We take note that under the WTO definition, agriculture remains the most reef -protected 
sector in the SACU members.  WT/TPR/W/ 235 
 
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  4.99.  During the review period, we positively note that SACU economies showed a good 
performance and collectively grew by 1.2% annually, on average, from 2014 to 2022, with 
Botswana's growth bounced back more robustly in 2021 and 2022 from the COVID -19 pandemic.  
4.100.   Although economic growth fluctuated in all five countries in 2020 and th e SACU countries 
continue to face common challenges, including inequality, unemployment, governance issues, 
energy and transport constraints exacerbated by climate change.  
4.101.   Nevertheless, Ukraine commends the SACU member States for their recent expansion of  
regional trade agreements and ratification by all SACU members of the AfCFTA, the protocol 
amending the  TRIPS  Agreement , and Botswana's accession to the WIPO, Marrakesh, and Beijing 
treaties. We also welcome the entry into force of the SADC Protocol on Tr ade in Services.  
4.102.   A series of reforms have been implemented over the review period in many SACU members, 
including modernization of customs legislation, risk management, and its enforcement, the 
Authorized Economic Operator Program me, IT connectivity, and transport and logistics program mes.  
4.103.   We are grateful to the SACU member States for emphasizing in their report that the global 
economic environment has a critical impact on their efforts to achieve accelerated industrialization 
and economic recovery.  
4.104.   Being an open economy that should benefit from growth in global trade, the SACU region is 
also extremely vulnerable to external shocks, including those caused by Russia's unprovoked and 
unjustified war of aggression against my country.  
4.105.   Repercussions of Ru ssia's armed invasion of Ukraine continue to hinder open trade and 
economic development all over the world, causing the rise in global commodity prices and 
intensification on inflationary pressures and threatening global food security.  These trends have 
been clearly reflected in the SACU member States' Report.  
4.106.   Ukraine's SACU trade in goods and services amounted on average to USD 126 million 
annually in 2020 -2021. Russia's armed aggression against Ukraine led to the decrease in volumes 
of bilateral trade wi th all five SACU countries, collectively by 23.3% in 2022 compared to 2021. For 
the last seven months of the current year, the volume of our trade in goods with SACU member 
States has renewed its growth and increased by 10.5% compared to the same period of  2022, 
amounting to USD 58.8 million. Despite the ongoing challenges associated with Russia's war of 
aggression, Ukraine remains committed to further developing our bilateral trade.  
4.107.   Ukraine remains one of the guarantors of global food security.  This year,  we have already 
harvested 42  million  tons of crops. Domestic demand is about 25%, out of estimated 79  million tons. 
We are ready to continue food exports to global markets, including to those who need them most in 
the developing countries.  
4.108.   Implementation of the humanitarian initiative Grain From Ukraine and the peace formula of 
President  Zelensky, particularly its second point, "food security", could contribute significantly to the 
strengthening of African States' food security and resilience. As of today,  34 countries joined the 
Grain From Ukraine humanitarian programme. It raised more than USD 200 million in donations, 
and through it, almost 200,000  tons of wheat to the African countries have already been sent. Taking 
this opportunity, we call on the WTO Members to join this programme.  
4.109.   Ukraine welcomes the SACU countries' active participation in the WTO, and commend them 
for their readiness to fulfil notification obligations to the Organization.  Positive is the indication in 
the Secretariat Report of the steps being taken by the SACU member States towards ratification of 
the Agreement on Fisheries Subsidies.  
4.110.   Given the importance of this Trade Policy Review exercise, we submitted questions to the 
SACU member States concerning measures implemented on the st rategic plan to promote expert 
and to develop trade relations with third countries, including the ongoing RTA negotiations, their 
vision on the development issues and their place in the WTO reform discussions, complexity of tariff 
regime, requirements and procedures for the importation of poultry meat, products thereof, and 
processed meat products to Botswana.  WT/TPR/W/ 235 
 
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  4.111.   Ukraine strongly supports the SACU member States in their policy development aimed at 
achieving greater trade diversification, expanding export bask ets, making the economy more 
competitive, export -oriented, and focused on value chain development.  
4.112.   We welcome the expert promotion steps taken by the SACU. We are interested in building 
high-quality and diverse economic relations with the countries of the  Southern African Customs 
Union.  
4.113.   To conclude, Ukraine wishes the SACU delegations a very successful Trade Policy Review.  
AUSTRALIA  
4.114.   Australia welcomes the opportunity to participate in this fifth Trade Policy Review of the 
Southern African Customs Union (SACU), the oldest customs union in the world. We appreciate the 
efforts put into preparations for this review by the Chair, the discussant, the SACU members and 
the SACU Secretariat.  
4.115.   Australia commends Botswana, Lesotho, Namibia, South  Africa and Eswatini 's joint efforts 
to promote intra -African trade, both within their Customs  Union, and through their participation in 
the African Cont inental Free Trade Area. Enhanced intra -African trade is making an important 
contribution to the development priorities of Southern African States while reinforcing rules -based 
trade.  
4.116.   Australia welcomes that, with the ratification of the African Continent al FTA by Botswana in 
January this year, all of SACU now participates in a framework of trade rules with the rest of the 
African continent. Australian two -way trade with Africa is strongest with SACU – primarily with 
South  Africa but growing with other SAC U members – at AUD 4 billion . 
4.117.   A great deal of the global clean energy transition is dependent on critical minerals and energy 
transition minerals – many of which are found in southern Africa. We welcome increased 
cooperation  – and new partnerships – with S outhern African members to tackle the energy transition 
challenge.  
4.118.   Australia notes that in 2002 SACU members agreed to establish a SACU Tariff Board but 
that, as an interim measure, the Board 's functions have been carried out by the International Trade 
Administration Commission of South  Africa. Australia encourages SACU members to press ahead 
with their program me and establish this Tariff Board, to facilitate greater participation by all SACU 
members in the management and liberali zation of tariffs across th e Customs Union.  
4.119.   Australia looks forward  to working with SACU members to make the Abu  Dhabi Conference 
the WTO 's first genuine reform Ministerial. We thank SACU members for their contribution in 
navigating the significant challenges facing the WTO, so tha t this Organization can continue to 
underpin economic growth, resilience and development into the future. W e extend a special gratitude 
to H.E. Ambassador Molokomme of Botswana for her leadership as Chair of the WTO General Council, 
particularly in the lea d up to the 13th Ministerial Conference.  
4.120.   Australia shares SACU members ' interest in real and substantial agricultural reform to reduce 
trade distortions that discriminate against efficient producers. In this regard, Australia values 
South  Africa 's involvem ent in agricultural trade reform, noting their membership of the Cairns Group. 
We would welcome further contributions toward s a holistic reform effort directed at levelling the 
playing field in agriculture, in line with Article  20 of the Agreement on Agric ulture.  
4.121.   Australia also looks forward to continuing to work constructively with SACU members to 
conclude the second wave of fisheries subsidies negotiations ahead of the 
13th Ministerial  Conference. We encourage SACU members to continue their efforts to fo rmally 
accept the WTO  Agreement  on Fisheries Subsidies.  
4.122.   Australia and SACU members share the priority of having a fully functioning Dispute 
Settlement System by 2024, as mandated by Ministers at the 12th Ministerial Conference. To further 
support the rules -based multilateral system, we encourage SACU members to join the Multi -Party 
Interim Appeal Arbitration Arrangement as an interim solution while those discussions continue.  WT/TPR/W/ 235 
 
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  4.123.   Australia appreciates the opportunity to participate in this important transparenc y 
mechanism and we congratulate Botswana, Lesotho, Namibia, South  Africa, Eswatini and the SACU 
Secretariat on this Trade Policy Review.  
UNITED  KINGDOM  
4.124.   I would like to begin by welcoming the SACU delegations and all the distinguished delegates 
from Botswana, Eswatini, Lesotho, Namibia, and South  Africa. We would also like to take this 
opportunity to thank you Chair for leading this TPR, the Secretariat for all the work that has gone 
into our discussion here today and to the excellent discussant from the U nited Kingdom  for their 
thought -provoking remarks.  
4.125.   Having been the U nited Kingdom  Deputy Trade Commissioner for Africa, it is a particular 
pleasure to deliver the U nited Kingdom  statement today. And as much as I love Geneva it is hard, 
on a day like today, not to look at the weather and think wistfully of days spent in Southern Africa. 
It's nice to at least have a little Southern African sunshine with us in the room today.  
4.126.   SACU is the world 's oldest existing customs union, and its members have over 1 20 years of 
experience in trade. The U nited Kingdom  has particularly enjoyed working with such an experienced 
group of countries on the UK -SACU -Mozambique Economic Partnership Agreement.  
4.127.   The EPA, which came into force in 2021, is a vital step for the U nited Kingdom  trade 
relationship with the region. Total trade in goods and services between SACU and the 
United Kingdom  in the last year amounted to GBP 11.2 billion, whilst in 2021 the U nited Kingdom  
had GBP 21.6 billion of foreign direct investment within SA CU. Our EPA will ensure that these shared 
benefits continue to grow.  
4.128.   It will also support the significant commercial presence UK companies have throughout the 
region, a presence which generates employment, economic growth, and enables knowledge and 
skills transfer.  
4.129.   The UK also works actively to build the capacity of SACU countries to trade within the region 
and beyond. Our Trade Forward Southern Africa programme provides technical assistance and 
capacity -building to Business Support Organi zations and their  members.  
4.130.   This kind of open trade and investment can play a key role in supporting Southern  Africa 's 
transformation policies and create the jobs that the people of Southern  Africa need.  
4.131.   We therefore note with concern the increasing presence of trade -restrictive policies and 
measures that favour domestic over foreign suppliers. We note the ongoing trade concern in the 
SPS Committee concerning South  Africa 's import restrictions on poultry and encourage parties to 
come to an acceptable resolution.  
4.132.   We are  also concerned by some of the import restrictions recently imposed by other SACU 
members. We encourage SACU to work with its international partners to ensure that such measures 
are implemented carefully, and that they do not adversely impact trade, raise prices and costs for 
consumers, or result in uncompetitive procurements.  
4.133.   Each SACU member is a participant of the African Group, which plays a vital role within the 
WTO, especially through the voice and support it offers to Least Developed Countries.  
4.134.   As the first of very few countries to have graduated from LDC status, I hope that the WTO 
will make full use of the expertise Botswana can offer to current LDCs. We are particularly grateful 
to Ambassador of Botswana for the expertise and guidance she is provi ding the WTO through her 
role as Chair of the General Council.   
4.135.   I would also like to highlight the time South  Africa spends constructively participating in 
discussions on WTO reform. We hope that South  Africa  continues to advocate within for restoration 
of a fully functioning dispute settlement system, which is accessible to all.  WT/TPR/W/ 235 
 
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  4.136.   It is also important to think about the digital economy and future trade. As the recent joint 
Report by the WTO and World  Bank highlights, the growth of developing economy export s is 
increasingly in services supplied digitally. Yet growth in digitally delivered services in Africa and in 
least-developed economies continued to lag. With Africa holding less than a 1 % share of digitally 
delivered services exports in 2022.  
4.137.   There is hu ge opportunity here and we encourage South  Africa, and other SACU Members, 
to approach the e -commerce moratorium with an open -mind and consider how WTO rules can 
support the growth in digital trade across the region.  
4.138.   Plurilaterals have always been an inte gral part of the WTO, which can benefit the whole 
membership and shape the Organi zation's response to 21st century challenges. We would like to 
urge all SACU Members to constructively engage with the conversations on Joint Statement 
Initiatives.  
4.139.   We look forward to continuing with our conversations with Botswana, Eswatini, Lesotho, 
Namibia, and South  Africa here in the WTO and thank SACU for their full cooperation with this TPR 
and you, Chair, for facilitating this review.  
SINGAPORE  
4.140.   Let me begin by extending a very warm welcome to the delegations from the Southern 
African Customs Union (SACU), led by Ambassador Thab ang Matjama (Lesotho); and spokesperson 
for the SACU members. We would also like to express our appreciation to the Chair A mbassador 
Saqer  Almoqbel ( Kingdom of Saudi  Arabia), and discussant Ambassador Simon  Manley 
(United  Kingdom), as well as the Secretariat for their insightful reports and statements. Allow me to 
make three points.  
4.141.   First, Singapore sees strong potential to fu rther deepen and broaden the warm trade and 
economic bilateral relations. Bilateral total trade in goods rose 64% to US D 2.44 billion in 2022, 
while trade in services rose 19% to US D 1.02 billion in 2021. Singaporean companies have a 
significant presence i n the SACU countries , in diverse sectors such as innovation and technology, 
manufacturing, transport and logistics, and agri -business. Th e high  level of interest was reflected in 
the seven th edition of the Africa -Singapore Business Forum (ASBF) in August  2023, where more 
than 500  participants gathered in Singapore to explore opportunities, identify new areas of business 
cooperation, and establish mutually beneficial partnerships. Since it was launched in 2010, the ASBF 
has brought together more than 5,000  business and government leaders from 30  countries to 
strengthen the economic and trade relationship between Singapore and SACU, including in emerging 
sectors such as sustainability and the green economy.  
4.142.   Second, in addition to growing economic and trade ti es, Singapore and SACU members have 
expanded our collaboration to include technical assistance and sharing of experiences. In 2022, 
Singapore Prime  Minister Lee  Hsien  Loong announced a special Singapore -Africa Partnership 
Package established under the Sing apore Cooperation Programme which offers capacity -building for 
African officials, in areas such as public administration and governance, climate change and 
sustainability, digitali zation and smart cities, and trade negotiations. Under our existing SCP 
framework, more than 2,800  SACU officials have participated in a wide range of courses, from Civil 
Aviation to Economic Development. There has also been a healthy exchange of high -level visits. In 
May this year, my Prime  Minister Lee  Hsien  Loong visited South  Africa and he was accompanied by 
a sizeable Singapore business delegation to explore business opportunities.  
4.143.   Third, we welcome SACU 's continued commitment and contribution to the rules -based 
multilateral trading system and encourage SACU to redouble  efforts to strengthen their trade and 
economic architectures. In preparing for this TPR, I had the opportunity to revisit the inspirational 
statement made by President. Nelson Mandela during the 1998 Ministerial Conference right here in 
Geneva, on the occ asion of the 50th Anniversary of the GATT. President Mandela 's prescient words 
bear repeating and I quote, "the extent to which all countries benefit will depend on how we, the 
Member States act in concert to shape the process ". He goes on to note that "we must start by a 
reaffirmation that the building of a multilateral rules -based system is fundamentally correct ", and 
that "it is therefore imperative that we build confidence in the system ", and "where there is 
determination to find joint, negotiated solut ions then there is a way ". I think many of the challenges WT/TPR/W/ 235 
 
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  facing the WTO today will be resolved if all Members remember President Mandela 's wise words and 
act accordingly.  
4.144.   In closing, I must recogni ze the sterling contributions of Botswana 's Ambassador 
Athaliah  Molokomme, in her capacity as the General Council Chair and before that, as the Dispute 
Settlement Body Chair. My delegation looks forward to continue working closely with the SACU 
delegations in Geneva, and wish them every success for its fifth Trade Policy Review . 
BRAZIL  
4.145.   Let me start by extending a warm welcome to the delegation of the Southern African 
Customs Union  (SACU ), led by H .E. Verna  Sinimbo, Deputy Minister, Ministry of Industrialization and 
Trade of Namibia, as well as to our friends of Member States: South  Africa, Lesotho, Namibia, 
Eswatini, and Botswana, represented here by their distinguished officials and delegates.  
4.146.   We congratulate Lesotho, for the assumption, in July  2023, as Chair of Southern African 
Customs Union. We commend the Go vernment of South  Africa and H.E. President Cyril Ramaphosa 
for recently hosting successfully the 15th BRICS Summit, the 23  and 24 August  2023 at 
Johannesburg.  
4.147.   Brazil thanks all SACU States for the engagement in this fifth Review of their trade policies 
and practices, especially for providing and answering Members questions with a detailed overview 
of SACU 's economic performance, trade policies, and participation  in the multilateral trading system. 
I would like to recognize as well, if you allow me so, the Secretariat of the Trade Policy Review Body 
and all staff for all the rigorous and regular work done and, on today 's session, for the comprehensive 
Report for t his fifth Trade Policy Review.  
4.148.   Brazil believes in knowledge share and cooperation for the development. In a context of 
multiple crises – climate change and its consequences, Influenza Aviaria and others animal diseases, 
disrupted global chains and internat ional transports, COVID -19 pandemic and its long -term 
consequences, energy crisis – TPR is a relevant tool at that the WTO's Members disposal to share 
information with transparency and accountability, which contributes to strengthening the multilateral 
trading system. Moreover, continental and trans -continental South-South partnerships are 
frameworks to promote economic and social sustainable development, fostering bilateral trade and 
investments, addressed by public actors and private stakeholders. The ful ly implementation of the 
African Continental Free Trade Area, in force since January  2021, with a comprehensive scope that 
includes critical areas of Africa 's economy, is a challenge that African countries will surely win. It is 
our common vision that peac e and sustainable development come together with industrialization, 
value -added production and trade across all economic sectors.  
4.149.   As it is known, the Preferential Trade Agreement MERCOSUR -SACU entered into force 
on 1 April 2016, granting mutual preference margins of 10%, 25%, 50% or 100% tariffs lines 
covered by parties (1 ,064 HS6 products  lines for MERCOSUR and 1 ,052 HS6 products lines for  
SACU). Despite being an important first step, the Preferential Trade Agreement is far away from the 
potential of mutua l benefits of economic complementarity between the two Unions. Because of that, 
we would like to reiterate our willingness to work together with SACU members to move for a more 
comprehensive and ambitious Trade Agreement MERCOSUR -SACU. We will be glad to n egotiate the 
next steps of our partnership in this sense.  
4.150.   Since 2017, bilateral trade between Brazil (and MERCOSUR) and the Southern African 
Customs Union is increasing. As a result, in 2022, the bilateral trade between Brazil and SACU 
members reached mor e than USD 2.65 billion (more than USD 3.2 billion with MERCOSUR), mostly 
of it related to South  Africa enterprises, consumers and traders. In 2023, current data shows a 
bilateral trade of more than USD 1.5 billion. The exports from Brazil to SACU members are important 
in terms of energetic security (oil), food security (poultry, meat, sugar), transports (automobiles), 
civil engineering equipment, agricultural machines and genetic materials, zinc. On the other hand, 
SACU provides  to Brazil industrial machin es and electrical equipment, silver and other metals, 
aluminium, leather, fur , and footwear.  
4.151.    There are investments opportunities for Brazilian companies in all SACU members. Fruits 
and juices industry have, for example, good potential in Eswatini.  The industry of leather and fur WT/TPR/W/ 235 
 
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  and footwear could be developed in Lesotho, with an already confirmed good potential of trade. 
Beyond diamonds, the glass industry is important for Botswana and samples have already arrived 
in Brazil in recent year s. Brazil and South  Africa have in common being the most industrialized 
countries in their respective regions, both with a diverse and resilient manufacturi ng sector, despite 
the hard international competition since the 1980s.  
4.152.   The two regions could benefi t from more integration and complementarity, working together 
to fluid value chains supplies and sharing technologies and innovations in order to add value to 
national productions. In addition, Brazilian private companies and state -owned enterprises could be 
key partners in SACU members States, for example in South  Africa and Namibia, where our 
respective stakeholders can look for and surely find opportunities for investments and cooperation 
in the energy sector, including fossil energies (oil and gas) and renewable energies (nuclear, 
hydropower, wind and solar). In fact, energy supply and food security are priorities shared by Brazil, 
as a developing country Member of MERCOSUR and as a partner of each country of the Southern 
African Customs Union.  
4.153.   Another p otential area to foster trade, investments and cooperation is unavoidably 
agriculture and food industry. With large agricultural lands and huge urban markets, and some 
similar biomes for production, our two regions could benefit from sharing knowledge and genetic 
materials in order to improve meat and cereal productions. Brazilian agricultural machines and 
vehicles are well adapted to geographical and clima te conditions in the African continent. For the 
coming years, we see great potential not only to impro ve numbers in the existing exchange of goods 
and services between our countries but also for further diversification and complementarity.  
4.154.    Nevertheless, to achieve those and other objectives, Brazil and SACU members must 
urgently address key challenges: to  improve aerial and maritime connections, to make close 
governmental agencies and business communities, to expand the Preferential Trade Agreement 
MERCOSUR -SACU and to address sanitary and phytosanitary (SPS) main issues, some of them 
formally addressed fo r Brazil to SACU members.  Dialogue, transparency, and flexibility are both 
crucial elements for efficient, inclusive and sustainable trade flows. Taking into account the Joint 
Administration Committee and the SPS Measures Annex  established in the Preferent ial Trade 
Agreement between MERCOSUR and SACU, we believe that the framework could be more used to 
enhance cooperation and rapidly address practical and diversely agricultural and SPS issues. Issues 
on tariffs reduction, quotas, anti -dumping measures, noti fications, and commentaries on national 
policies, SPS new or updated certifications, transit of products, risk analysis, pest and diseases 
control, among other, are currently under discussion and we hope we can get un understanding as 
soon as possible.  
4.155.   As a conclusion, I express the unwavering commitment of the Brazilian people and 
Government in strengthening and deepening the partnership with the Southern African Customs 
Union and its members, our brothers of South  Africa, Lesotho, Namibia, Eswatini, and Botswana.  
EUROPEAN  UNION  
4.156.   On behalf of the E uropean  Union, I would like to welcome the delegations of all SACU 
countries and my ambassador s colleagues in Geneva, and thank Ambassador Thab ang Matjama  of 
Lesotho, for the opening statement on behalf of SACU. I would also like to thank the WTO Secretariat 
and the SACU delegations for their respective reports, and extend our appreciation to the discussant, 
Ambassador H.E.  Mr Simon  Manley (United  Kingdom) for his remarks.  
4.157.   The E uropean  Union is a strong supporter of the Southern African Customs Union (SACU) 
and welcomes its significant progress since the creation in 1969. The E uropean  Union is also a 
staunch supporter of the African Continental Free Trade A greement (AfCFTA) which is of paramount 
importance for facilitating the free flow of goods and services across the continent and boosting the 
trading position of Africa in the global market.  
4.158.   The SACU members face common challenges, with large inequality i n terms of income 
distribution and relatively high unemployment, averaging 24% in 2022. Some of the challenges are 
global, such as the increasing number of droughts, caused by climate change.  WT/TPR/W/ 235 
 
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  4.159.   The Report shows that t he SACU economies, largely dominated by S outh Africa, had a 
collective growth by 1.2% annually from 2014 to 2022. This can be partially attributed to the global 
economic slowdown following the COVID -19 pandemic, but other factors relate to under -maintained 
transport infrastructure, high telecommu nications costs, and severe shortages of electricity.  
4.160.   In this context, the E uropean  Union commends the SACU Strategic Plan 2022 -2027 that 
establishes practical ways to promote industrialization, export and investment, facilitate trade and 
logistics, diversify export markets and strengthen trade relations with third parties.  
4.161.   The five SACU countries are active participants in the wo rk of the WTO. Here, I would like 
to express our appreciation especially to Ambassador of Botswana, H.E.  Dr Molokomme, for her role 
over the last few years as the Chair of the Dispute Settlement Body and now of the General Council. 
SACU Members have all im plemented commitments under the Trade Facilitation Agreement. The 
European  Union  welcomes in particular the support of Botswana, Lesotho and Namibia in the work 
on trade and gender. We also encourage engagement in the work on micro, small and medium -sized 
enterprises (MSMEs). SACU countries might consider adhering to the Government Procurement 
Agreement within the WTO framework as it would help to reduce the costs and delays associated 
with trade and procurement, as well as provide a level playing field for  regional and international 
companies.  
4.162.   The EU is the key trading partner for most SACU members, with the EU accounting for 36% 
of SACU's total trade. The 27  EU member States are also a major source of investment in 
Southern  Africa.  
4.163.   The EU and SACU (plus Mo zambique) have a strong trade relationship anchored in the 
Economic Partnership Agreement (EPA). The EPA can help to further diversify and develop the 
economies, and contributes to regional integration. Since the application of EPA in 2016, SADC EPA 
States ' exports to the EU increased by 85%, and their imports from the EU by 29%.  
4.164.   The E uropean  Union is also developing a new approach to investment facilitation, through 
the Investment Facilitation Agreements (SIFAs), with the objective of helping partner coun tries in 
Africa to attract, retain and expand sustainable investments, particularly as regards sustainable 
energy and digitalization. Improving the business environment would also attract investment and 
make it easier for businesses to operate.  
4.165.   In its adva nce questions, the EU has raised a number of questions, notably on regional 
integration, intellectual property rights, business climate, restrictions in place for foreign 
investments, and government procurement. The EU is also keen to learn more on the way  ahead for 
SACU, for example the development of a common customs policy or the coordination in the definition 
and application of tariffs and trade defence instruments.  
4.166.   I would now like to address specifically South  Africa, which is one of the strategic par tners 
of the EU globally and the biggest economy of SACU.  
4.167.   Trade in goods between the E uropean  Union and South  Africa has been steadily increasing 
(EUR 55.5 billion in 2022), notably thanks to the EU -SADC EPA. South  Africa recorded a trade 
surplus in 2022 ( EUR 2.7 billion). EU is South  Africa 's largest source of foreign direct investment 
(accounting for around 49% (2022) of overall FDI stocks in South  Africa) and remains South  Africa 's 
most important trading partner (providing 22.1% of the country 's total im ports and accounting for 
21.7% of total South  African exports, 2022).  
4.168.   The EU promotes an integrated value chain approach in South  Africa in order to help the 
country develop industries which add value and create jobs and diversifies its economy. An example  
of this is the EU's investment in the automotive sector in South  Africa.  
4.169.   The EU remains committed to foster green industriali zation in South  Africa, so that it can 
integrated better in supply chains linking it with the region and global markets. However,  the EU is 
of the opinion that forced locali zation through legally binding designated products in precise 
percentages – as it is the case in public procurement processes and in other frameworks – runs 
against the economics of the industriali zation process and is doubtful from a WTO compliance 
perspective.  WT/TPR/W/ 235 
 
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  4.170.   State interventions in support of industrial sectors have become a pressing global trade 
policy challenge as they have become more widespread and complex. The EU considers that this is 
a highly relevant t opic for global trade today that needs to be addressed as part of our work to 
reform the WTO. We are proposing that a process of deliberation on this be launched at MC13, which 
should include, as well, consideration of the development dimension. This is in  line with our view 
that mainstreaming development considerations in all the different areas of our work is an objective 
for the WTO, as we also highlighted at the Senior Officials Meeting just yesterday.  
4.171.   With just a few months until MC13, we continue to b e ready to engage with our SACU 
partners towards a successful Ministerial, and one that showcases the role of the WTO for 
development notably by helping developing countries and LDCs integrate better into global trade.  
4.172.   I would like to thank the SACU delega tion for the replies to our questions, which we will 
review carefully. On behalf of the EU, I look forward to a constructive exchange of views, and wish 
to the SACU and its individual member States a successful fifth joint Review.  
THAILAND  
4.173.   Thailand is hono ured to participate in the fifth Trade Policy Review of the Southern African 
Customs Union (SACU), and extends a warm welcome to the distinguished delegation representing 
SACU members, including Botswana, Eswatini, Lesotho, Namibia, and South  Africa.  
4.174.   Our sincere gratitude goes to Ambassador Saqer  Abdullah  Almoqbel from the Kingdom of 
Saudi  Arabia for the introductory remarks and H.E. Verna  Sinimbo, Deputy Minister, Ministry of 
Industrialization and Trade of Namibia for her opening statement. We also ex press our appreciation 
to Ambassador Simon  Manley from the United  Kingdom for his insightful analysis of the economic 
and trade policies of SACU members. Additionally, we commend the diligent efforts of the WTO 
Secretariat and the individual SACU member co untries in preparing comprehensive reports.  
4.175.   Thailand shares several commonalities with SACU, as both Thailand and countries such as 
Botswana, Namibia, and South  Africa are classified as upper -middle -income nations. Agriculture 
plays a pivotal role in our e conomies, and we are actively engaged in economic diversification and 
industrialization. SACU boasts a thriving travel and tourism industry.  
4.176.   Thailand notes that SACU member economies collectively averaged a 1.2% annual growth 
rate from 2014 to 2022. We loo k forward to witnessing a robust recovery in the coming years and 
acknowledge the imperative need for economic diversification and industrialization, considering the 
relatively commodity -dependent  nature of these economies. SACU member countries also face 
shared challenges related to inequality, unemployment, infrastructural limitations, and the pressing 
issue of climate change.  
4.177.   Thailand commends the SACU members for their active participation in various aspects of 
the WTO's work, despite the constraints in  human resources. We eagerly anticipate collaborating 
closely with SACU members to achieve meaningful and equitable outcomes for the upcoming MC13.  
4.178.   Over the past five years, the total trade volume between Thailand and SACU members has 
averaged USD  3.4 billion, with South  Africa being a major trade partner. Prominent traded products 
include motor vehicles, machinery, rice, and chemicals. While our trade relationship has shown some 
volatility, we firmly believe that numerous untapped opportunities exist for b oth parties to foster 
mutual interests and enhance our trade and economic ties. Notably, there are prospects in processed 
agricultural products, chemicals, gems and jewellery, metals, machinery and components.  
4.179.   As I draw my remarks to a close, I wish to hig hlight Thailand's readiness to collaborate 
closely with SACU members to accelerate the development of Pest Risk Assessments (PRAs), thereby 
easing the importation of our fruits into the SACU region.  
4.180.   Thailand submitted a list of questions for this review an d wishes to express gratitude to 
SACU members for their responses, which we will examine with keen interest.  WT/TPR/W/ 235 
 
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  4.181.   In conclusion, Thailand is delighted to participate in the fifth Trade Policy Review of the SACU 
members and extends our best wishes to SACU member s for a successful outcome in this Trade 
Policy Review.  
REPÚBLICA  DOMINICANA  
4.182.   Realizo esta intervención en nombre del Embajador José  Sánchez -Fung. La delegación de la 
República  Dominicana desea agradecer la presentación del informe de parte del Embajador 
Thabang Matjama, Representante Permanente de Lesotho ante la OMC. Le damos una cordial 
bienvenida a la delegación de los Estados miembros de la Unión Aduanera de África Meridiona l 
(SACU), que nos acompañan. Asimismo, agradecemos la ponencia del Embajador Simon  Manley, 
Representante Permanente del Reino  Unido ante la OMC.  
4.183.   La República  Dominicana comparte la membresía, cooperación y solidaridad, con los Estados 
miembros de la Unión  Aduanera de África Meridional (SACU), en varios grupos en el marco de la 
OMC, entre ellos, el de los Estados de África, Caribe y Pacífico (ACP), y el G90. Ejemplos recientes 
de esta cooperación y solidaridad mutua son las negociaciones respecto a la pesca  y las decisiones 
a nivel del Consejo General en favor de los Países Menos Adelantados (PMA), estando Lesotho en 
dicha categoría.  
4.184.   Los informes muestran cómo la Unión Aduanera de África Meridional (SACU), formada por 
la República de Botswana, Eswatini, Leso tho, Namibia y Sudáfrica, tienen diferentes niveles de 
desarrollo y estructuras económicos distintas, pero han seguido promoviendo el crecimiento y el 
desarrollo a pesar de los numerosos retos a los que se han enfrentado.  
4.185.   Se señala, cómo, al igual que la gran mayoría de países, los Estados miembros de la SACU, 
fueron afectados por la pandemia del COVID -19, pero además, de la crisis financiera de 2009, lo 
que ha provocado que el crecimiento haya sido inestable en los últimos decenios, con recesiones 
mundial es en 2009 y 2020. En el 2020 experimentaron en su conjunto un crecimiento general 
de -6.5%. Valoramos que la economía de dichos países se recuperó en el 2021 con un crecimiento 
estimado del 5.0%, aunque con crecimientos menores en los años 2022 y 2023.  
4.186.   Observamos también con interés que la SACU ha identificado la industrialización en áreas 
como la elaboración de productos agrícolas, textiles y prendas de vestir, productos farmacéuticos y 
cosméticos y aceites esenciales, como un objetivo general par a profundizar la integración económica 
regional mediante el desarrollo de las cadenas de valor regionales.  
4.187.   Nuestra delegación ha presentado a los hermanos países miembros de la SACU, preguntas 
relacionadas con los motivos que han impedido el establecimien to de la Junta Arancelaria; el 
acercamiento comercial entre la SACU y la región latinoamericana; el establecimiento definitivo de 
la ventanilla única en Botswana; y el Plan de Reconstrucción y Recuperación Económica de Sudáfrica; 
entre otras. Agradecemos d e antemano las respuestas a dichas preguntas, las cuales serán 
analizadas por nuestras autoridades en capital con gran interés.  
4.188.   Al concluir, queremos aprovechar la ocasión para agradecer nuevamente a los Estados 
miembros de la SACU, y desearles un exitoso examen de su política comercial.  
MALAYSIA  
4.189.   First and foremost, please allow me to warmly welcome the Southern African Customs Union 
delegation, special mention to today 's spokesperson, H.E. Ambassador Thab ang Matjama of Lesotho 
to the SACU 's fifth Trade Pol icy Review.  
4.190.   I would also like to take this opportunity to record our appreciation to all SACU members 
and the WTO Secretariat for the comprehensive reports, as well as to Ambassador Simon  Manley for 
his insightful assessment of SACU 's trade policy develop ment since its last Review in 
November  2015.  
4.191.   Malaysia would like to commend SACU members for their continued efforts to facilitate and 
promote global trade, particularly during this crucial recovery period after the unprecedented 
COVID -19 pandemic.  WT/TPR/W/ 235 
 
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  4.192.   In fac t, SACU which encompasses diversified trade and economic development, continues to 
contribute to the global supply chain by supplying key products such as minerals, base metal, 
transport equipment, parts and component, machinery and electrical equipment to  the world.  
4.193.   Bilaterally, Malaysia 's trade value with the SACU reached USD  2.4 billion last year, which is 
an increase of 86% from USD  1.3 billion in 2021.  
4.194.   In the same period, Malaysia 's exports to the SACU increased by 96% to USD  1.6 billion, 
while impor ts also increased significantly to USD  800 million. Based on current trend, we believe 
that there is huge room for both parties to increase our bilateral trade in the near future.  
4.195.   We also hope that our economic relations with the SACU members will continue  to grow not 
only in trade in goods, but also in the trade in services and investment.  
4.196.   At the multilateral front, Malaysia appreciates diligent and constructive participation from 
SACU members in many WTO initiatives, particularly related to developmental aspect, dispute 
settlement reform, food security, industrial policy, environmental sustainability and many more.  
4.197.   On this note, Malaysia recogni zes that SACU 's contribution is crucial in ensuring developing 
countries and LDCs will get the maximum benefits from the multilateral trading system, especially 
in ensuring a balanced outcome for all initiatives discussed in this house.  
4.198.   For this review, Malaysia had submitted written questions on areas such as monetary, fiscal 
and trade policies, industrial developm ent, investment, intellectual property rights, standards and 
technical requirements.  
4.199.   In this regard, we would like to thank the SACU delegation for their timely responses to our 
questions, and we shall examine the responses with great interest.  
4.200.   On the ot her hand, Malaysia delegation in Geneva looks forward to strengthening our 
engagement with SACU members, and we believe that we have a lot of common priorities and 
interests.  
4.201.   Last but not least, we wish best of luck to the South  African team for the 2023 R ugby World 
Cup final – rest assured, the Springboks will have my support for this Saturday.  
4.202.   With that, we wish the SACU delegation a productive and successful fifth Trade Policy 
Review.  
KENYA  
4.203.   On the occasion of its fifth WTO Trade Policy Review, we wish to congratulate the Southern 
African Customs Union (SACU) and extend a warm welcome to the entire SACU delegation. We 
commend Amb assador Simon  Manley of the United  Kingdom, for his spirited discourse as the 
session 's discussant. We also commend the Se cretariat for its Report and for supporting this Trade 
Policy Review.  
4.204.   In addition, we underscore the valuable contribution of each of the five SACU member 
States, as well as the SACU Secretariat, to this review, and for their active participation in the wo rk 
at the  WTO. SACU members have demonstrated their strong contribution and support for the 
multilateral trading system, by striking a balance between national economic and developmental 
policy objectives. This is despite the marked differences in terms of  their respective levels of 
development.  
4.205.   It is worth noting that SACU's external trade in goods and services registered an 
estimated  68% of its collective GDP in 2022. Increased demand and higher international prices for 
minerals spurred a robust recovery  in exports and subsequently, a trade surplus from 2020. In terms 
of intra -SACU trade, countries sourced 13.3% of their total imports within the Union in 2021 (down 
from 14.5% in 2014) and supplied 11% of their total exports to each other in 2021 (down fro m 
15.7% in 2014). This is consistent with most regional trading blocs within the continent, occasioned 
by low diversification.  WT/TPR/W/ 235 
 
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  4.206.   It is noteworthy that the SACU region was hard hit by the COVID -19 pandemic, resulting in 
the fluctuation of the Union 's economi c growth and all the five countries registering negative growth 
in 2020.  
4.207.   We wish to point out that the SACU Agreement of 2002 recognizes the need to develop 
common policies amongst the member States in the areas of industrial development, agriculture, 
competition and unfair trade practices policies. We also identify with SACU 's focus on industrialization 
and the development of regional industrial value chains as we have adopted a similar priority sector 
approach in a bid to build resilient value chains. We further commend SACU 's fidelity to the unified 
approach to negotiations with third parties as the Members await the entry into force of the common 
negotiating mechanism (CNM).  
4.208.   The five core pillars around which the SACU Strategic Plan 202 2-2027 is structured also 
resonate with Kenya. The focus on industrialization, export and investment promotion; trade 
facilitation and logistics; implementation and leveraging on AfCFTA opportunities; trade 
relations/unified engagement with third parties; and finance and resource mobilization reflects not 
just SACU, but Africa 's requirements in the present context. This is buttressed in the concerted 
efforts by SACU and the East African Community to enhance their economic cooperation as distinct 
customs uni ons under the tripartite free trade arrangement, as well as the AfCFTA.  
4.209.   We would like to congratulate the SACU members for their impactful contributions on the 
domestic, regional and global fronts, and wish SACU every success in implementing initiatives t hat 
seek to improve its economy.  
4.210.   Kenya aligns with the statements to be delivered on behalf of the Africa Group and the 
ACP Group.  
CAMEROON ON BEHALF OF T HE AFRICAN GROUP  
4.211.   I am delivering this statement on behalf of the African  Group, and we are pleased to 
participate in the I am delivering this statement on behalf of the African group, and we are pleased 
to participate in the fifth Trade Policy Review of the Southern African Customs Union (SACU).  We 
therefore welcome the presence of all SACU representatives  to Geneva and to this very important 
occasion.  
4.212.   We thank them for the delighted introductory statement on the state of SACU's economy, 
and all the efforts made within the framework of this review. The Trade Policy Review Mechanism is 
one of the most import ant transparency pillars of the WTO, to review Members' trade policies and 
measures that affect import, transit , and export.  
4.213.   It is intended to examine and evaluate the WTO Member 's trade related policies at regular 
intervals, thus facilitating the smooth functioning of the multilateral trading system by enhancing 
the transparency of Members' trade policies. In this regard, the Trade Policy Review Mechanism 
contributes to improved adherence by all Members to the rules, discipline s and commitment s made 
under  the multilateral trade agreements.  
4.214.   This is now the fifth Trade Policy R eview of the SACU member States , others were held 
in 1998, 2003, 2009 and 2015.  
4.215.   As the oldest functioning customs union in the world, SACU has since undergone substantive 
Reviews, with  the 1969 Agreement and with the current SACU Agreement  (2002), which is in force.  
4.216.   It is commendable that SACU has adopted a new Strategic Plan 2022 -2027, which prioritizes 
industrialization, investment, export promotion, as operation objective s. This is complemented by a 
robust trade facilitation and logistic program me to reduce the transaction cost of doing business.  
4.217.   We view this as a right step towards achievement of the development aspect of the regional 
and multilateral trade agreement, to uplift the ir nations from their ravage of high unemployment, 
and ultimately contribute to poverty reduction.  WT/TPR/W/ 235 
 
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  4.218.   I also wish to commend SACU for launching and implementing the Authorized Economic 
Operator (AOE) Program me, which could be the basis for concluding a mutua l recognition agreement 
that supports the implementation of the A fCFTA. SACU attaches great importance to the 
implementation of the AfCFTA, and its member States are in the final stage of domesticating their 
commitments.  
4.219.   Furthermore, as we are now in the p rocess of undertaking the WTO reform, we are content 
that similar efforts undertaken by various WTO Member States, as SACU is doing,  will bring fruition 
to multilateralism we all anticipate attaining.  
4.220.   We believe that this mechanism should encourage and pro vide more interactive discussion s 
where is accountability by the Member States to ensure that the commitments made are indeed 
undertaken.  
4.221.   Finally, on behalf of the African  Group, let me commend the SACU member States for their 
contribution and participatio n in the WTO, and the multilateral trading system, and their continued 
support to maintain the functioning of the WTO for all its Member States.  
KINGDOM OF SAUDI ARABIA  
4.222.   The Kingdom of Saudi Arabia is pleased to take part in the fifth Trade Policy Review o f the 
Southern African Customs Union and join the previous speakers of extending a very warm welcome 
to the delegations of the SACU countries .  
4.223.   We would like to take this opportunity to thank the SACU countries and the WTO Secretariat 
for their detailed an d comprehensive Trade Policy Review reports. We also thank the discussant 
H.E. Mr Simon  Manley, Ambassador and Permanent Representative of United  Kingdom to the WTO 
for his insightful remarks.  
4.224.   The SACU countries Report highlights that despite the contracti on of the SACU economic 
growth in 2020 which was 6.5% due to COVlD -19, it grew by 5% in 2021 and by 2.3% in 2022 and 
forecasted to grow  by 1.8% in 2023.  
4.225.   We would like to commend the SACU countries for the reforms on customs legislation 
modernization, risk management, the Authorized Economic Operator Programme, IT connectivity, 
and transport and logistics programmes. We also congratulate the SACU countries for wider opening 
their economies as three new regional trade agreements (RTAs) have entered into force  for the 
SACU countries over the review period.  
4.226.   Moreover, the SACU countries greatly value the multilateral trading system, and we 
appreciate their active leading role in the WTO as H.E . Dr Athaliah  Molokomme, Ambassador, 
Permanent Representative of Botswa na to the WTO chairs during the last two years and this year 
the WTO three main Bodies: Trade Policy Review Body, Dispute Settlement Body, and General 
Counsel respectively.  
4.227.   The Kingdom of Saudi  Arabia enjoys friendly relationship with the SACU countries. T rade 
exchange between the Kingdom of Saudi  Arabia and the SACU countries reached about 
SAR 19 billion, which South  Africa contributes to 95% of it. The most exported products from the 
Kingdom of Saudi  Arabia to the SACU countries are mineral fuel, plastic, and fertili zers, while the 
most exported products  by the SACU countries to the Kingdom of Saudi  Arabia are fruit, vehicle and 
accessories, and organic chemicals.  
4.228.   To conclude, we wish the SACU countries a very successful Trade Policy Review.  
SAMOA ON BEHALF OF THE ACP GROUP  
4.229.   Samoa on behalf of the ACP Group conveys our Congratulations to the Southern African 
Customs Union (SACU) for the successful completion of their Trade Policy Review. This achievement 
underscores the commitment and dedication of S ACU member States to fostering economic 
prosperity and regional integration. We wish to also extend our appreciation to Ambassador WT/TPR/W/ 235 
 
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  H.E. Mr Simon  Manley of the United  Kingdom for his valuable input and analytical contributions in 
his role as a discussant.  
4.230.   The SACU region, characterized by a predominantly open economy, stands to benefit 
significantly from global trade growth. However, it is not immune to external shocks, as evidenced 
by the growth trajectory. While growth rebounded to an estimated 5.0% in 202 1, the subsequent 
decline to 2.3% in 2022 and the forecasted 1.8% in 2023 highlight the region's vulnerability and the 
challenges it faces.  
4.231.   We note different levels of economic development and distinct economic structures within 
SACU. Yet they share common  challenges such as infrastructural constraints —especially in energy 
and transport —and the pressing issue of climate change as in many of our countries. We wish to 
commend SACU 's ambition and steadfast efforts to remain unified in pursuit of the common obj ective 
of economic prosperity.  
4.232.   Our sincere commendation goes to SACU for the formulation of their Strategic Plan 
2022-2027, a visionary roadmap. The plan, structured around five core strategic pillars, including 
industrialization, export and investment promotion; trade facilitation and logistics; leveraging on 
AfCFTA opportunities; trade relations and unified engagement w ith third parties; and finance and 
resource mobilization, reflects a comprehensive approach to regional development.  
4.233.   The emphasis on the Industrialization Pillar, with its vision to build a diversified, sustainable, 
and equitable industrial base, is partic ularly commendable. The SACU trade facilitation programmes 
evolution, under the Trade Facilitation and Logistics Pillar, has yielded tangible results, enhancing 
the free flow of goods within the Customs Union. In addition, the implementation of the AfCFTA 
presents SACU with a valuable opportunity to diversify its exports and integrate into continental 
value chains. We applaud this strategic move that aligns with broader objectives of regional and 
global economic integration. Their commitment to the WTO and in their engagements with trading 
partners is commendable.  
4.234.   We eagerly welcome and encourage the sustained support of WTO Members to the SACU 
members, to promote their integration into the global economy.  
SÉNÉGAL  
4.235.   Le Sénégal s'associe aux déclarations faites  par le Cameroun et Samoa au nom respectif du 
Groupe  Africain et du groupe ACP à l'OMC.  
4.236.   Je me réjouis de participer au nom du Sénégal à ce cinquième examen de politique 
commerciale de la SACU. Nous souhaitons la chaleureuse bienvenue à Genève aux délégatio ns de 
la SACU et félicitons son Excellence M.  Thabang  Matjama  du Royaume de Lesotho pour sa brillante 
déclaration faite au nom de cette union douanière.  Le Sénégal félicite aussi son Excellence 
l'Ambassadeur Simon Manley du Royaume -Uni pour son interventio n en tant que présentateur des 
débats de cet examen.  
4.237.   Nous avons pris note des deux rapports communs établis dans le cadre du présent examen.  
Nous voudrions en remercier le Secrétariat de l'OMC et les cinq États concernés par cet examen.  
Tout à l'heure, je pense que les délégués ont rappelé que la SACU est la plus ancienne union 
douanière.  Je pense que cela témoigne à suffisance la volonté de ces pays en tout cas d'émerger 
ensemble et d'intégrer harmonieusement dans le système commercial multilat éral et dans 
l'économie mondiale.  
4.238.   Cet examen de politique commerciale des États de la SACU est particulièrement important 
compte tenu des éléments nouveaux et autres réformes entreprises par les pays de cet espace 
d'intégration.  
4.239.   A cet égard, le Sénégal sal ue l'adoption par la SACU d'un plan stratégique pour la période 
quinquennale 2022 -2027 qui définit des piliers stratégiques en vue de guider les actions de la SACU 
et de la positionner en tant que poule pour l'industrie, l'investissement, le secteur manufa cturier et 
l'innovation au niveau du continent africain et mondial.  WT/TPR/W/ 235 
 
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  4.240.   Ma délégation se réjouit aussi des progrès accomplis par la SACU dans le domaine de la 
croissance des économies de ces pays et de la participation active aux travaux de l'OMC.  
4.241.   Le Sénégal a pprécie également l'établissement de la caisse commune par la SACU afin de 
récolter tous les droits de douaniers, droits d'accès et autres taxes additionnels perçus dans la zone 
douanière commune.  Nous pensons que ce dispositif est extrêmement important da ns le cadre de 
la gestion d'une union douanière.  D'ailleurs, nous estimons que d'autres unions douanières, 
notamment africaines, pourraient s'en inspirer et encourageons à cet effet le renforcement de la 
coopération entre communautés économiques régionales  africaines.  
4.242.   En vue de développer le commerce entre États membres de la SACU et de tirer pleinement 
profit de la zone de libre -échange continentale africaine, le Sénégal voudrait encourager les États 
de la SACU à ouvrir davantage à la diversification de le urs bases productives et d'exportation.  
4.243.   Pour conclure, le Sénégal adresse à la SACU ses vœux de plein succès pour ce cinquième 
examen de politique commerciale.  
INDIA  
4.244.   India is happy to participate in the fifth  Trade Policy Review of South  Africa n Customs U nion.  
4.245.   At the outset, my delegation would like to extend a very warm welcome to both the 
capital -based delegations from SACU member States as well as their Geneva -based teams. Allow 
me to thank SACU member States and the Secretariat for excellent reports a nd 
H.E. Mr Simon  Manley of the United  Kingdom for your analysis and insights.  
4.246.   India enjoys close and cordial relations with all the individual member States of the SACU, 
one of the oldest customs unions in the world. Our ties are rooted in deep historical and 
people -to-people linkages. These relations get additional fillip by regular high -level visits and 
exchanges, through several bilateral institutional mechanisms.  
4.247.   India's partnership with the SACU region is comprehensive and encompasses almost all 
aspec ts of economic cooperation.  
4.248.   India's total trade has over the past few years seen a considerable rise with all SACU member 
States and with South  Africa in particular.  India is an important trading partner for SACU accounting 
for 8.9% of total exports of S ACU and supplying 5.9% of total imports of SACU as in 2021. India's 
exports to SACU increased from USD 5.1 billion in 2012 to USD 6.4 billion in 2021. Similarly, India's 
imports from SACU increased from USD 8.2 billion in 2012 to USD 12 billion in 2021.  
4.249.   To further deepen these trade linkages and realize the full potential of bilateral economic 
relations, India is negotiating a preferential trade agreement with SACU. Besides, we are discussing 
bilaterally some trade issues including pharmaceutical, mineral,  food products, industrial goods and 
visa and work permit related issues as well as connectivity.  
4.250.   Apart from expanding trade, India's partnership with SACU member States is marked by 
mutual bilateral investments. Indian companies have invested in SACU reg ion in diverse areas such 
as information technology, pharmaceuticals , and automobiles. Similarly, a number of companies 
especially from South  Africa have invested in the Indian market in different sectors.  
4.251.   Besides these trade and investment ties, India is  proud of its development partnership with 
the SACU region which has received further impetus from the India -Africa Forum Summit held so 
far. At these summits, the Government of India has announced several initiatives to scale up our 
multifaceted partnership with Africa as well as with SACU. I am happy to state that as of today, 
193 projects have been completed and 66 are under execution while 88 are in their pre -execution 
stage in various sectors.  
4.252.   India remains committed to enhance i ts economic and development partnership with partner 
countries in the region to foster cooperation in wide -ranging areas such as infrastructure 
development, trade, agriculture, clean energy, irrigation, enhancing manufacturing capacities 
together with buil ding human capital through capacity development program mes.  WT/TPR/W/ 235 
 
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  4.253.   As noted in the Secretariat Report, the economic performance of SACU member States has 
been uneven during the period under review as these economies have not remained insulated from 
the polycrisi s like many across the globe. SACU economies collectively grew by 1.2% annually on 
average from 2014 to 2022, witnessing a downturn in 2020.  
4.254.   The SACU economies remained dominated by their relatively large services sector. 
Diversification of economic base,  job creation and addressing economic inequality thus remain a 
major challenge.  
4.255.   However, it is worth noting that SACU's external trade in goods and services reached 68% 
of its GDP in 2022, showing a trade surplus emerging from 2020, which reflects a robus t recovery 
in export.  
4.256.   We note that, except for custom -related issues, sectoral policies remain country -specific in 
SACU and have not yet been harmonized.  
4.257.   Despite these challenges, SACU continues to take steps for greater policy coordination, 
strengthenin g common institutions and enhancing transparency and predictability of its trading 
regime and integrating into the global value chain by entering into new regional trade agreements, 
including the agreements with EU, UK, MERCOSUR and African Continental Fre e Trade Area.  
4.258.   Notwithstanding different economic circumstances of its member States, SACU's ability to 
forge partnerships to overcome their development challenges is thus commendable. We welcome 
that SACU member States have now adopted the strategic plan for the period  2020-2027, setting 
out the orientation of SACU's well over the next five years across six strategic pillars. We believe 
that this would enable SACU member States to position the region as an industrial investment 
manufacturing  innovation hub, both for the African continent and globally.  
4.259.   My delegation commends the commitment of SACU member States to the multilateral 
trading system. As strong voices of the developing countries, including LDC Members, we greatly 
appreciate their continued contribution to champion the priorities and interests of the developing 
world in the ongoing work of WTO. We look forward to work closely with SACU member States and 
other Members in run -up to MC13 for mutually beneficial outcomes, especially for  developing 
countries, including the LDCs.  
4.260.   With these words, we wish the SACU member States a productive and successful TPR.  
ZIMBABWE  
4.261.   Zimbabwe joins others in congratulating member States of the Southern African 
Customs  Union, South  Africa, Namibia, Botswa na, Lesotho, and Eswatini for bringing their trade 
policies and practices for review by this august multilateral trade body.  
4.262.   It is a pleasure and an opportunity for the WTO Members today to get a better understanding 
of the issues that have been raised reg arding the challenges faced by the region and the urgent 
need to grow our economies.  
4.263.   We also recognize the importance of the position taken by the United  Kingdom Ambassador, 
H.E. Mr Simon  Manley, that of being the discussant for this fifth  Trade Policy Rev iew of the Southern 
African Customs Union , your in -depth analysis of the SACU members' trade policies and practices 
and why the economic performance and challenges of the SACU member States, since their last 
Review is highly appreciated.  
4.264.   We also recognize and appreciate the work of the Secretariat in compiling the documents 
we have for this review, and we align ourselves with the statement by Cameroon on behalf of the 
African  Group.  
4.265.   SACU member countries, by diligently bringing their trade and economic pol icies for review 
by this body, showed the seriousness and the trust they have in the multilateral trading system. 
This review coming at a time when SACU member countries, like most nations, are affected WT/TPR/W/ 235 
 
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  negatively by the COVID pandemic, geopolitics and cli mate change is seen in the unprecedented 
floods, droughts and other extreme weather phenomena is well appreciated.  
4.266.   We noted the adoption of a strategic plan by SACU in 2022, which is structured around five 
core strategic pillars, industrialization, export and investment promotion, trade facilitation and 
logistics, implementation and leveraging on the Africa continental free trade area, opportunities, 
trade relations and unified engagement with third parties and finance and resource mobilization.  
4.267.   We appreci ate the importance of industrialization to grow our economies of the country 
Members, and for SACU, this is an overarching objective to deepen regional economic integration 
through the development of regional value chains. And with the vision of building a  diversified, 
competitive, sustainable and equitable industrial base that supports structural transformation and 
the economic integration of the SACU region. This is a plan for Africa and the African  Group have 
proposals that are really in line with the vi sion that is coming from SACU.  We applaud such initiatives 
by SACU countries as development in this region spreads benefits to all of us in the Southern African 
region.  
4.268.   Zimbabwe enjoys good trade and political relations with SACU members, both as members 
of the SADC and the African continental free trade area, a flagship for the African continent with its 
goal of increasing intra -African trade and generating much needed jobs for all people.  
4.269.   Hence the call by the African  Group to support the proposals on po licy space.  Zimbabwe 
being landlocked relies on SACU ports, mostly Durban, Walvis Bay and also Mozambique Beira and 
Maputo for our imports and exports of goods to other external markets. Our infrastructure is 
well-connected, and we are currently working on  concluding a one -stop border post at Byte Bridge 
to facilitate smooth movement of goods between ourselves and South  Africa and beyond.  And 
another bordering with Botswana being a work in progress.  
4.270.   For the work that is before us today, Zimbabwe has nothin g more to say but to support the 
program mes and the work that is being done and the development within SACU member countries.  
We look forward today to a successful Trade Policy Review.  
NIGERIA1 
4.271.   Nigeria congratulates the Southern African Customs Union on their fifth Trade Policy Review. 
We warmly welcome their esteemed delegations, led by Hon ourable  Verna  Sinimbo, Deputy Minister, 
Ministry of Industrialization and Trade of Namibia ; H.E.  Dr Athalia h Molokomme , Ambassador and 
Permanent Representative of Botswana who served as Coordinator of the African Group in WTO, 
Chair of the Trade Policy Review Body , the Dispute Settlement Body and now the General Council;  
Mr Siboniso  Nkambule , Principal Secretar y Ministry of Commerce , Industry and Trade of Eswatini ; 
H.E. Thabang Matjama, Ambassador and Permanent Representative of Lesotho ; Ms Niki Kruger, 
Chief Director - Trade Negotiations Department of Trade Industry and Competition of South  Africa.  
4.272.   We wish to t hank the Secretariat for their comprehensive Report, and we express our 
appreciation to the Chair for the excellent introductory remarks. We also commend the discussant, 
H.E. Ambassador Simon  Manley of the United  Kingdom for his insightful comments.  
4.273.   We no te in the Secretariat Report, that the five Southern African Customs Union (SACU) 
countries differ in terms of economic development economic structure. We also note that about 70 % 
of the GDPs of all five economies are derived from the services sector which plays a key role in 
improving export performance of other sectors such as manufacturing and agriculture noting that 
SACU member States advance their trade in services agenda with in the context of the SADC 
(Southern African Development Community) Protocol on Services where all SACU member States 
are signatories.  
4.274.   We commend the progress since the last joint Trade Policy Review in 2015 where SACU 
countries continued to grow and devel op in spite of issues faced such as the global financial crisis 
in 2009 and the COVID -19 pandemic in 2020 -2021. However, the swift focus on crisis management 
and recovery, diverting attention and resources from long -term growth needs was useful to stabiliz e 
 
1 The following statements were delivered during the second day of the meeting.  WT/TPR/W/ 235 
 
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  their economy. We are pleased to note that the SACU region operates largely an open economy 
which should provide opportunities for all people to participate in economic activity which leads to 
innovation and growth. In addition, open economies undoubtedl y allow for more competition among 
businesses which result in lower prices for consumers.  
4.275.   We applaud the various common policies adopted by the SACU region which as evidenced in 
the SACU Agreement of 2002 recognizes the need to develop common policies amon gst the member 
States in areas of industrial development, agriculture, competition , and unfair trade practices 
policies. More significantly is the member States resolve to focus on industrialization, the 
development of regional industrial value chains. In addition, it is encouraging to note that SACU 
member States have also established a common negotiating mechanism (CNM) for the purpose of 
undertaking negotiations with third parties and has since undertaken a unified approach to 
negotiations with third par ties regarding trade agreements which provide market access 
opportunities for the member States.  
4.276.   Following our review of the SACU Strategic Plan in 2022, it is encouraging to note that 
Industrialization including its main supporting pillars, is a key pilla r for the region so as to deepen 
regional economic integration through the development of regional value chains, deepen the regional 
industrial base and to give rise to strategic positioning to benefit from the opportunities provided by 
the A fCFTA noting t hat among other things A fCFTA presents an opportunity for the SACU region to 
diversify its manufactured and services exports while providing an opportunity for deeper integration 
into the African Continental value chains.  
4.277.   Furthermore, we note from the Secretariat Report the common challenges faced by the SACU 
member States which is similar to those faced by Nigeria and other developing countries. These 
include unemployment, infrastructural constraints and climate change with unemployment 
averaging 24% in 20 22. However, with the various innovative common policies adopted by the 
various Governments of the SACU countries, we are convinced that significant improvements will be 
made in this regard.  
4.278.   At the WTO, the five SACU countries are currently active partici pants in various negotiating 
committees. In addition, their participation by fulfilling their notification obligations indicates their 
shared commitment to the stability and predictability of the multilateral trading system.  
4.279.   Similarly at the WTO, it is com mendable that all five countries have ratified the protocol 
amending the TRIPS  Agreement  during the review period which serves to permanently incorporate 
into the TRIPS  Agreement , additional flexibilities to grant special compulsory licences for the export  
of medicines. It is also pertinent to congratulate the South  African delegation on their exceptional 
role in coordinating the African Group on TRIPS issues as well as the delegation of Mozambique for 
their selfless service in their role as coordinator of the ACP group on TRIPS issues. From the active 
contributions of all member States of the SACU region at the TRIPS Council, we are convinced of 
their shared commitment among other things, to facilitate access to medicines and pharmaceutical 
products in orde r to protect lives throughout the African continent.  
4.280.   To conclude, Nigeria remains fully committed to the objectives of the WTO and looks forward 
to strengthening our partnership with Botswana, Namibia, South  Africa, Eswatini, and Lesotho to 
reinforce the m ultilateral trading system.  
4.281.   We wish all SACU member States a very successful and productive Trade Policy Review.  
ANGOLA  
4.282.   The delegation Angola to the WTO would like to welcome the Southern African Customs 
Union (SACU) and its member States for the fifth joint review of trade policies and practices. From 
the official report of SACU, and the detailed Secretariat Report, we ack nowledge extensive data on 
the last eight years of economic and trade processes in the Customs Union members, such as 
Botswana, Eswatini, Lesotho, Namibia, and South  Africa, countries with which Angola shares a 
long-term friendship and meaningful trade par tnerships.  
4.283.   The Southern African Customs Union (SACU) is one of the world 's oldest functioning 
Customs  Union, and has successfully, in the last decade, facilitated the cross -border movement of WT/TPR/W/ 235 
 
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  goods between the member States. The SACU organizational structu re includes effective, 
transparent, and democratic institutions sharing equitable trade benefits, aiming, among other 
things, at (i) promoting conditions for fair competition in the Common Customs Area; 
(ii) substantially increasing investment opportunitie s; (iii) enhancing the economic development, 
diversification, industrialization and competitiveness of the member States; and (iv) promoting the 
integration of this region into the Global Economy, through enhanced trade and investment.  
4.284.   Angola welcomes the SACU Strategic Plan 2022 -2027, organized around five pillars cored 
on (a)  industrialization, exports, and investment promotion; (b)  trade facilitation and logistics; 
(c) implementation and leveraging on A fCFTA opportunities; (d)  trade relation s and unified 
engagement with third parties; and (e)  finance and resource mobilization. Angola, in both the 
strategic plan and the TPR Report, recognized an assumed commitment of SACU to the multilateral 
trading system and to the WTO as a major Organizatio n for the promotion of trade and development.  
4.285.   In the context of SACU member States, the leading trade partner of Angola is South  Africa, 
however, we also enjoy emerging trade activity with Botswana, Eswatini, Lesotho, and  Namibia.  
4.286.   Angola looks forward to steadily increasing its trading with SACU member States, aiming to 
promote cooperation and mutual investments, that are crucial for Angola 's economic recovery and 
as a means to improving sustainable development in the SADC region. Therefore, it is worthy t o 
mention the underway Project, called "Lobito Corridor ", an infrastructure project that links Angola, 
Zambia and the DRC by railway intending to facilitate access to Port of Lobito, triggering the 
economic development of this region of Africa, but also ac ross the continent.  
4.287.   Chair and colleagues, we are thankful for your attention.  
CABO  VERDE  
4.288.   I warmly welcome the SACU delegation and would like to convey my congratulations to the 
SACU members for their organi zational effectiveness and ability to respond to t he current economic 
and trade  challenges and to the com pletion of their Trade Policy Review. We also  convey our 
congratulations to Ambassador H.E.  Mr Simon  Manley  of the United  Kingdom and extend our 
appreciation for his valuable input in his role as a dis cussant.  
4.289.   We would also like to thank the Governments of the five SACU member countries, Botswana, 
Namibia, Lesotho, Eswatini and South  Africa, and the WTO Secretariat for the comprehensive 
Reports that they prepared for this review.  
4.290.   Regional economic integ ration has historically constituted an integral part of development 
strategies in Africa. It has been viewed as a mean to achieve sustained economic growth and 
development, and to overcome the region's structural problems such as po litical fragmentation, l ow 
per capita incomes, and small intra -regional markets. As such, political considerations have been as 
important economic ones in the drive to consolidate African regional integration , not only has 
regional integration been considered necessary to achieve  meaningful industriali zation, develop 
intra-African trade, and participate effectively in the evolving global linkages, it has also been 
regarded as central to building African unity, consolidating regional political structures, as well as 
creating regional blocs for effective use in international political for a and in negotiations with 
advanced industrial nations.  
4.291.   The significant degree of trade integration among its member countries h as facilitated trade 
within and outside SACU and thus improved living standards and this just comes to show the 
importance of deep -rooted cooperation.  
4.292.   As noted in the Secretariat's Report, SACU member countries have made important strides 
since the last Tr ade Policy Review. At the same time, we recognize that the SACU member countries 
continue to face serious challenges that have kept them from achieving their full economic potential. 
As the Secretariat's Report notes, intra -country inequalities within SACU  remain among the highest 
in the world, with high unemployment and poverty as common challenges.  WT/TPR/W/ 235 
 
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  4.293.   We take the opportunity to applaud Botswana for their swift fiscal policies that has seen a 
positive economic balance, however we still stress on Botswana to a ccelerate its balanced economic 
recovery if one still plans to align itself with the 2030 sustainable goals.  
4.294.   We also commend Namibia for implementing forth their fifth National Development Plan 
(2017 -2022) have been well implemented ready to set the stage for social transformation as well as 
environmental  sustainability frameworks. Theses guiding documents are vital for  Namibia's climate 
adaptation strategy.  
4.295.   SACU plays an impo rtant role in diversifying trade and industrialization. The seriousness and 
input for the review shows the paramountcy of having such an integrated system for Africa. The 
growth of  industriali zation is important, as member of the African group this is a feat. Its initiative 
is applauded and welcomed forth. The inclusivity of intra -activity and trade made by SACU is valuable 
and will remain a pillar of importance.  
4.296.   Even through the trivialities that members face ranging from economic, infrastructural and 
political matter, above all is a need for stronger regional coordination and harmoniou s regional 
design plan dedicated to the welfare of its people for a common future. The opportunity in the future 
for the members of SACU is to reap the benefits of even deeper regional and financial integration. 
These shared opportunities will allow for a more robust economic growth and investment 
opportunities.  
4.297.   Setting aside all being said, the future of SACU seems to be brimming with positivity and we 
look forward to their joint success. And we stand close w ith other WTO Members in welcoming and 
promoting  SACU's integration into the global economy and multilateral system.  
4.298.   In closing, Cabo  Verde appreciates the opportunity to participate in this review of SACU's 
Trade Policy and we wish you a successful Trade Policy Review.  
  WT/TPR/W/ 235 
 
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  5  REPLIES BY THE REPRESENTATIVE S OF THE SOU THERN AFRICAN CUSTOMS UNION 
COUNTRIES  AND ADDITIONAL COMMENTS  
SACU SPOKESPERSON  (H.E. MR THABANG  MATJAMA ) 
5.1.  I am pleased to deliver these closing remarks on behalf of SACU and in doing so, will highlight 
some of the issues raised during the first day of the Trade Policy Review. A number of issues covering 
a broad spectrum of trade, policy and institutional matters were raised on Wednesday 
25 October  2023.  
5.2.  Allow me to thank those Members who expressed interest in SACU TPR for the insights, 
encouragement and advice provided.  
5.3.  This statement will complement the written responses submitted on Tuesday 24  October  2023 
and I will also address comments made by Members during the first session relating to SACU 
(a) institutional structures; (b)  common external tariffs; and (c)  the multilateral trading system and 
elaborated on the SACU member States:  
i. economic and institutional environment;  
ii. trade policies by measure;  
iii. transparency obligations and notifications; and  
iv. sectoral policies.  
 
5.4.  The 2002 SACU Agreement provides for SACU institutions responsible for the implementation 
of the respective operations of the Customs Union. These include the SACU Tariff Board and National 
Bodies. A number of Members mentioned the non -operationali zation of the Tariff B oard. SACU has 
undertaken to consider the operationali zation of the Tariff Board during the mid -term review of the 
SACU Strategic Plan, which is slated for July  2025. In the interim, tariff matters continue to be 
handled by the International Trade Administ ration Commission of South  Africa  (ITAC).  
5.5.  The development of common and harmoni zed policies in the areas of industrial development, 
agriculture and cooperation on competition policy matters, as identified in the 2002 SACU 
Agreement, remain important object ives for us. Having said this, the development of these policies 
has been challenging due to the different economic circumstances of the member States and also 
exacerbated by the impact of COVID -19. 
5.6.  Notwithstanding, SACU has adopted industrialization as an overarching objective to deepen 
regional economic integration through the development of regional value chains. SACU's priority 
sectors have been identified and endorsed in 2020 -21 and these include agro -processing (fruits and 
veget ables, meat and meat products and leather and leather products), textiles and clothing and 
pharmaceuticals and cosmetics and essential oils. SACU member States have also identified 
fertilizers, agro -chemicals and seed production as other priorities to addr ess the existential 
challenges the region is facing with regard to food security.  
5.7.  The SACU Trade Facilitation and Logistics Programme was adopted in April  2021 to support the 
industrialization and the SACU trade agenda. To this end, SACU countries have als o embarked on 
the harmonization of customs procedures, the improvement of customs cooperation, simplification 
of documents and electronic data interchange initiatives, to further facilitate trade. The Programme 
will be supported by a capacity -building and gender mainstreaming plan to upskill and create 
technical capacity for officials and private sector in the respective areas of focus. Several WTO 
Members indicated in their statements a desire to see greater harmonization of customs procedures. 
We wish to reaffirm our commitment to trade facilitation procedure to reduce the transaction cost 
of doing business.  
5.8.  With regard to the SACU Common External Tariff, SACU member States apply the Common 
External Tariff to goods imported into the common customs territor y. SACU has noted the imperative 
to simplify its tariff structure including the need to clarify and address the application of 
non-ad valorem  tariffs in its schedule. Concerns have been raised about possible non -compliance of 
the remaining non -ad valorem  duties with bound rates. This is theoretically possible, but the likely WT/TPR/W/ 235 
 
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  occurrence of duties exceeding bound rates is very low and the significance of these duties has 
diminished over time due to price differentials. SACU is continuing with the process of s implifying its 
tariff structure. This will be taken into consideration as part of the matters to be reflected upon 
during the mid -term review of the Strategic Plan.  
5.9.  On the review of the Revenue Sharing Formula, equally, member States have agreed to defer 
the discussions on all revenue sharing arrangement including the Revenue Sharing Formula for 
consideration during the mid -term review of the Strategic Plan.  
5.10.  Several Members have referred to the differences that exist in the levels of economic 
development am ong SACU member States. Despite the COVID impact, the region has managed to 
recover to an estimated 5.0% in 2021, following the pandemic but declined again to 2.3% in 2022 
and is further forecast at a lower 1.1% in 2023, improving to an estimated 1.6% in 2 024. 
5.11.  With respect to regional integration, we will continue to strengthen and deepen our integration 
within the Customs Union and support other regional initiatives that aim to enhance regional 
integration. However,  we remain committed to ensuring that our  common objectives are achieved, 
and in this regard, we invite our trading partners to support our efforts, in particular the 
strengthening of Customs Union's development aspirations on industrialization, investment, export 
promotion, trade facilitation an d logistics and operationalization of institutions, and development of 
common strategies.  
5.12.  SACU is fully committed to the multilateral trading system and support the on -going work at 
the WTO in preparation for the MC13 planned for February  2024 in Abu  Dhabi , United  Arab Emirates.  
5.13.  In this regard, we are also seeking an outcome on special and differential treatment (SDT) to 
address the real needs of developing and least -developed countries. Our wish is that tangible 
outcomes will be reached on the key issues o f interest to these countries such as food security, 
dispute settlement reforms and the rules on fisheries to strengthen and support our efforts to further 
integrate into the global trading system. On WTO reform, SACU aligns itself with the position of the  
Africa n Group.  
5.14.  In relation to the services sector, SACU member States recogni ze the importance of an 
efficient and well -regulated regional services market. Consistent with international trends, in each 
SACU member State, the contribution of services to GD P has been steadily increasing.  
5.15.  We have addressed a substantial number of comments raised by Members. SACU has worked 
hard during the past few weeks to answer all the advance written questions in detail. Additional 
questions that were submitted in the past few days, will be answered within the stipulated timeframe 
allowed.  
5.16.  To address the issues raised by the Members, SACU member States commit to undertake a 
post Trade Policy Review Workshop. In this regard, we shall collaborate with the WTO Secretariat 
and other partners to provide technical assistance.  
5.17.  In conclusion, I feel greatly honoured to provide some final remarks on behalf of my 
colleagues from the SACU member States. In doing so, I would like to offer appreciation to the 
distinguished chairperso n of the Trade Policy Review Body, who has ably steered this review to 
conclusion. Furthermore, our sincere thanks to our distinguished discussant for his contribution and 
his ability to engender a focused perspective in respect of the complexities, challe nges and 
opportunities, facing the Customs Union.  
5.18.  We also thank the WTO Secretariat for undertaking its detailed analysis and for compiling a 
comprehensive report on SACU. Chairman, we also wish to express our appreciation to our own 
Secretariat for having  worked tirelessly to coordinate our participation in this review and finally, for 
the expression of support and encouragement received from the WTO Members.  
  WT/TPR/W/ 235 
 
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  BOTSWANA (H.E.  DR ATHALIAH  L. MOLOKOMME)  
5.19.  On behalf of Botswana delegation, I take this opportuni ty to express our gratitude and 
appreciation for the insightful discussions that have transpired during the course of this review 
process. I particularly wish to place on record our thanks and appreciation to all the Members who 
took the floor on 25  Octobe r, and to those Members who submitted prior questions on both the 
Secretariat and the Government reports.  
5.20.  Let me also take this moment to thank the dedicated team of the WTO Secretariat, and the 
SACU Secretariat for their able leadership and coordination o f this process.  
5.21.  I also wish to recognize and extend my appreciation to fellow SACU member States for their 
cooperation and partnership in the preparation of the Report and response to the questions. 
Botswana looks forward to our continued partnership as we work together to advance our 
development through trade in region.  
5.22.  This review has reinforced our commitment to the principles of transparency, cooperation, 
and a rules -based multilateral trading system that the World Trade Organization em bodies. It has 
allowed us to gain a better understanding of the global trade landscape and the impact of our trade 
policies on our fellow WTO  Members.  
5.23.  We take this opportunity to express our continued dedication to constructive engagement and 
cooperation w ith all members within the framework of the WTO beyond this review. Botswana 
acknowledges the significance of trade policy reviews in ensuring the effectiveness and fairness of 
the multilateral trading system. We are committed to using the feedback and rec ommendations 
provided during this review to enhance and refine our trade policies.  
5.24.  As a net food importing country, Botswana implements measures aimed at enhancing local 
production to ensure adequate food supply for our citizens. Furthermore, as a landlock ed developing 
country, the outbreak of COVID -19 pandemic has exposed our vulnerability especially as it relates 
to basic necessities like food stuffs, hence the need to enhance our productive capacities to safeguard 
inadequacies, in food supply.  
5.25.  Some quest ions received from WTO Members also referred to the government procurement 
practices in SACU members and whether there are plans to join the Government Procurement 
Agreement (GPA). I wish to highlight that Botswana has a very transparent system of governme nt 
procurement, which is time tested and has been subjected to regularly review. Tenders for open 
bidding are duly advertised and posted on the website of the Government of Botswana and other 
national and international publications.  
5.26.  We also take note of th e traction towards the Investment Facilitation for Development 
Agreement as a plurilateral initiative aimed at developing a multilateral Agreement on Investment 
Facilitation for Development . We are aware that this could improve the investment and business 
climate, and make it easier for investment in all sectors of the economy. To this end, Botswana shall 
consider the invitation to join the Investment Facilitation for Development following consultations 
with the relevant stakeholders.  
5.27.  Trade plays a pivotal role in our country's economic development, and we remain fully aware 
of the responsibilities that come with the commitment of being a WTO Member. We understand the 
importance of promoting inclusivity, sustainability, and equitable access to the benefits o f 
international trade. As we reflect on the feedback received during this review, we reiterate our 
commitment to working with our fellow member States to advance these shared objectives.  
5.28.  Before I conclude allow me to reiterate our thanks to you, the WTO Se cretariat, to the 
discussant, H .E. Mr Simon  Manley, the SACU Secretariat and to WTO Members for their constructive 
remarks and comments. We have responded to most of the written questions and undertake to 
provide additional responses to the remaining quest ions within the stipulated 30 -day period.  
5.29.  Let me end by pledging the unflinching commitment of Botswana to the objectives of this 
Organization and to the multilateral trading system. We shall continue to engage constructively in WT/TPR/W/ 235 
 
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  the work of the WTO and sin cerely hope that the forthcoming MC13 delivers concrete outcomes, 
especially for developing countries.  
ESWATINI  (MR SIBONISO  N. NKAMBULE ) 
5.30.  We gather here today as part of the World Trade Organization 's ongoing commitment to 
fostering transparency, cooperation and dialogue among its member nations. This fifth Trade Policy 
Review for Eswatini, as part of SACU, marks a significant milestone in our collective efforts to 
understand, assess and enhance the trade policies for our country . 
5.31.  Eswatini, as a valued Member of the WTO, plays an essential role in shaping the global trade 
landscape and this trade policy review is a testament to our commitment of abiding to the WTO 's 
core principles of open and free trade . 
5.32.  We are also cognizant of the f act that the process of reviewing a nation 's trade policy is not 
just a mere administrative formality, but an essential element of the multilateral trading system. 
It allows us to ensure that trade practices align with international standards and also prom otes 
stability in global trade relations. Through this dialogue, we aim to create a platform for transparent 
discussions, helping to resolve issues and explore opportunities for collaboration . 
5.33.  Our active participation in this review is indeed a reflection of our commitment to the open 
trade and cooperative engagement with the rest of the WTO Members . 
5.34.  Industrial and trade development remains top priority in the development agenda for Eswatini 
and the following strategies are being applied : 
• The ongoing progra mmes by the National Trade Facilitation Committee;  
• development and implementation of the National Export Strategy;  
• review of current Investment and Trade Policies;  
• implementation of the Industrial Development Policy;  
• review of current legislations such as the Special Economic Zones Act, Eswatini Investment 
Promotion Authority Act, Citizen Empowerment Bill just to name a few;  
• review of current investment incentives and the uptake on existing trade agreements . 
5.35.  Currently Eswatini is also setting up a State Bus iness Relations Structure which will boost 
industrial and trade development in the country as the private sector will now have a platform to 
channel their business concerns and input through Government . 
5.36.  Chairperson, Kindly also allow me to touch on a few i ssues raised by fellow Members during 
the first session of the Review process. I am pleased to indicate that Eswatini has submitted some 
of the outstanding notifications, particularly under the Trade Facilitation Agreement and these were 
considered by Memb ers during the recently held WTO Committee on Trade Facilitation in  October. 
Our profound appreciation goes to UNCTAD who provides continued support in the implementation 
of the Trade Facilitation Agreement. We can appreciate receiving support in the other  areas so that 
we fully comply in meeting our notification obligations in all areas . 
5.37.  Also, the G overnment of Eswatini  has put in place a number of broad -based industrial efforts 
to assist MSME 's participation in the manufacturing sector. These initiatives are multi -sectoral. Most 
of the MSMEs are facing a responsive development financing model. The country has put in place 
the MSMEs Agricultural Development Fund to boost investments in agricultural infrastructure and 
capacity -building. Another s upport provided is the Small -Scale Enterprise Loan Guarantee Scheme.  
5.38.  The country is cognisant of the fact that MSMEs have a greater role to play in a country's 
development Agenda. There are a number of strategies that the country is initiating for the MSM Es 
to tap on the industrialization efforts.  WT/TPR/W/ 235 
 
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  5.39.  The Government is allowing the big players in the industrialization space to hand hold and 
support MSMEs to allow for the growth.  
5.40.  The Government of Eswatini believes that a good training would ensure a successive  SME 
sector. The country has since taken an initiative to focus on training on business.  
5.41.  The country in the current period is reviewing the MSME Policy. We hope this policy will 
re-direct and drive SMEs to have a significant impact on the industrializatio n efforts.  
5.42.  Another issue that the country is looking into is the quality issue. The Government of Eswatini 
has since attained a product certification mark "Ingelo". There is a lot of training that is going on to 
encourage the quality culture in the product ion of goods. The Government of Eswatini is further 
planning a hand holding exercise that will attest the scientific claims.  
5.43.  The Government of Eswatini is also currently reviewing the Investment Policy. This policy will 
give guidance on the MSMEs on how to  engage both big players in the manufacturing sector and 
also provide the Government 's role in supporting innovation, Research and Development.  
5.44.  Tremendous progress is also realized in the area of intellectual property by ensuring that the 
necessary legisla tion and implementation structures exist. For example, the Eswatini Copyright and 
Related Rights Society responsible for registration of works that are intended for commercialization 
and monetization has been established. The Secretariat assumed duties on 1 October  2023. 
5.45.  Eswatini has also developed a national implementation strategy and action plan for the 
implementation of the AfCFTA Agreement covering both trade in goods and trade in services, which 
will assist in ensuring maximum utilization of the Agreement. In line with the provisions of the 
AfCFTA Agreement, the strategy seeks to mainstream economic advancement of women and youth 
through deliberate interventions and actions, to enable them to take full advantage of opportunities 
of the Agreement and re ap its benefits. Particular focus is on provision of support to MSMEs owned 
by women and the youth.  
5.46.  In conclusion, I would like to extend our gratitude to all participants in this review and it is 
my belief that together, we can work towards strengthening  Eswatini 's trade policies, ensuring that 
they are aligned with the principles of the WTO and contributing to a more prosperous and equitable 
global trade environment.  
5.47.  With these few remarks , I wish to thank you all for the commitment and dedication to this 
vital process. I thank you.  
LESOTHO ( MS MARY MOTEBANG ) 
5.48.  Lesotho is greatly honoured to be part of this occasion. We wish to highlight initiatives that 
we have been involved in to improve our  competitiveness in the global trading arena.  
5.49.  As you may all be aware, Lesotho 's developmental aspirations are encapsulated in the 
Extended National Strategic Development Plan (NSDP)  II 2023/24 -2027/28 which has various 
Programmes. The Growth Programme con centrates on agriculture, manufacturing, mining and 
tourism. There are other equally important programmes, but I would like to elaborate on the 
Infrastructure Programme amongst the remaining programmes. It focuses on the infrastructure 
relating to environm ent, renewable energy, ICT, water and transport. The intention is to bring 
diversity to Lesotho 's economy to pursue an export -led growth.  
5.50.  Most of the speakers on the first day of this Trade Policy Review indicated that Lesotho 's 
exports are limited and en couraged us to diversify our exports. Indeed, Lesotho 's exports are 
undiversified. Diamonds, textiles and clothing are the mainstay of our economy. We experienced 
climate shocks which affected agricultural sector, frequent droughts and floods are the key c auses. 
I however would like to assure this august gathering that Lesotho has the strategic direction which 
we are content that it will result in fruitful results given the commitment that the Government is 
employing to harness all the opportunities to rest ore the economy and livelihoods following the 
COVID -19 outbreak and other external shocks as the resources were re -allocated to curb their effects 
thereof.  WT/TPR/W/ 235 
 
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  5.51.  We have undertaken economic and legislative reforms. The National Trade Policy Framework 
and the Nat ional Trade Strategy (both spanning from 2021 -2025) have been developed, they will 
guide Government, private sector and development partners including all other role players in their 
joint efforts to expand productive capacities particularly for micro, sma ll and medium 
enterprises  (MSMEs). Further to these, Lesotho aligns herself with the regional and multilateral 
frameworks like the SADC Regional Indicative Strategic Development Plan (RISDP), the 
African  Union 's Agenda 2060 and the United  Nations Agenda 20 30 for Sustainable Development 
Goals. Again, being part of the multilateral trading system and participating in regional and 
sub-regional economic agenda gives us hope that we stand a good chance of growing and we will 
not be left out. Hence our desire to see our trading partners at all levels taking cogni zance of our 
developmental needs. Lesotho is not only a least developed country, but also a landlocked 
developing country (LLDC). Consequently, this naturally translates into obstacles which can only be 
subdued through recognition of our special needs. This is further exacerbated by being in a 
Customs  Union as the only LDC which puts Lesotho in a difficult situation because whatever 
commitments to be undertaken by other SACU member States affect us and we b ecome part of such 
obligations. It is for these reasons that multilateral accords should factor in the special and 
differential treatment as well as greater flexibility while implementing various commitments. In so 
doing, the LDCs will have enough policy s pace to  diversify their exports; address the digital divide; 
put appropriate measures to deal with food insecurity; participate in global value chains; build 
resilience against adversities brought by natural disasters, health risks and geopolitics, ultimat ely, 
we will be better placed to address structural transformation challenges holistically. We therefore 
associate ourselves with the positions taken by the African Group.  
NAMIBIA (H.E. MS JULIA IMENE -CHANDURU)  
5.52.  It is my distinguished honour to provide comp lementary remarks on the closing session of 
the fifth Joint SACU Trade Policy Review by the World Trade Organi zation.  
5.53.  Firstly, I wish to thank the Chairperson, H .E. Ambassador Saqer  Abdullah  Almoqbel of the 
Kingdom of Saudi  Arabia; for directing the proceedings of the SACU Trade Policy Review.  
5.54.  Secondly, in the same spirit, I wish to appreciate Ambassador Manley 's detailed remarks as 
discussant for SACU 's fifth Trade Policy Review and in particular his assessment of the chall enges 
and opportunities in SACU, while also noting the different levels of economic development of the 
members. Notably, he highlighted that, while there is a fair balance in terms of trade in SACU, there 
remains high economic inequality  coupled with high levels of unemployment in some of our 
countries.  
5.55.  Thirdly, I wish to express our gratitude and appreciation to the distinguished Members who 
have shown interest in this Trade Policy Review exercise as well as the African  Group, and the OACP 
for their suppor t.  
5.56.  Let me also extend my appreciation to both the WTO and SACU Secretariat for the excellent 
work and support provided to Namibia during the preparations of the SACU Trade Policy Review 
process and by providing the required guidance to the SACU member Sta tes since the 
commencement of the preparations for the SACU Trade Policy Review process in 2021.  
5.57.  For Namibia, the Trade Policy Review is a demonstration of the importance and commitment 
that member States attach to the vitality of the WTO and the multilate ral trading system as a whole, 
by adhering to the requirements set out in Annex  3 of the Marrakesh Agreement.  
5.58.  Let me thank the spokesperson of the SACU Secretariat for his remarks articulating a few 
themes which I took note of, and allow me to highlight a nd emphasize that the period under review 
has been characterized by the following : 
5.59.  Namibia being a small open economy and a net food importing developing country faced 
unprecedented economic challenges and headwinds caused by persistent droughts, drop in 
commodity prices and the COVID -19 pandemic, the effects of which are steadily recovering. The 
above resulted in economic decline, increasing unemployment, inequalities, compounded by the food 
inflationary pressures on households. We have responded to the qu estions posed by Members and WT/TPR/W/ 235 
 
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  ultimately the policy interventions that have been provided are all meant to address the 
above -mentioned challenges.  
5.60.  Among the interventions that Namibia has embarked on to address some of the 
developmental challenges include the following:  
5.61.  Finalizing the investment policy and related investment legislation that will provide 
transparency and protection to investors and information on the different investment incentives. 
Moreover, Namibia is in the process of establishing her N ational Tariff Body that will be responsible 
for, amongst others, trade remedies, tariffs, and tariff -related issues. This body will support the 
SACU Tariff Board, once established, and will allow Namibia to play her part in democrati zation of 
tariff setti ng in the Customs  Union.  
5.62.  Namibia is in the process of implementing procurement laws and building institutional 
technical capabilities before considering joining the GPA. Namibia has modernized its intellectual 
property legislative framework, allowing for the adoption of international IP legal standards. In 2019, 
the Namibian Government introduced its inaugural Intellectual Property Policy and Strategy (NIIPS), 
which received approval from both the Namibian Cabinet and Parliament. Within Namibia's 
developme nt agenda, intellectual property is recognized as a powerful policy instrument to unlock 
local creativity, innovation, and inventiveness.  
5.63.  The importance of opportunities provided by rules -based trading to our small open economies 
cannot be overemphasized. We, therefore, remain committed to the multilateral trading system and 
collaborate with others in advancing the rules -based trading system doing by reforms.  
5.64.  We appreciate the interest expressed by many delegations to cooperate with Namibia in 
various sectors amongst others, the energy sector, renewable energies including green hydrogen, 
agriculture and agro -processing sector, chemical sector, gemstones, jewellery, metals, machinery, 
and technology transfer as well as pest risk assessments. W ith a view to stimulate trade amongst 
the various Members.  
5.65.  Fisheries remain one of our key economic sectors accounting for a substantial contribution to 
employment creation and livelihoods. In this regard, Namibia is in the process of ratification of the 
Fisheries Subsidies Agreement.  
5.66.  For Namibia, MC13 should deliver on advancing the Development Agenda within the WTO. 
This includes ensuring special and differential treatment (SDT) for developing countries, addressing 
the concerns of least developed countr ies (LDCs), net food import developing countries, and 
promoting policy space for industrial development. Strengthening SDT provisions and incorporating 
the development dimension into various negotiations remain key priorities.  
5.67.  On agriculture and food secur ity, we place significant emphasis on addressing agricultural 
trade rules issues, including domestic support reform, public stockholding, and a Special Safeguard 
Mechanism for developing countries. Ensuring fair trade practices and market access for agricu ltural 
products from LDCs and NFIDC countries is a crucial priority. Food security remains our priority to 
address socio -economic challenges facing our countries such as poverty and hunger in line with 
Sustainable Development Goal (SDG) 1 and 2 which supplemented by domestic policies.  
5.68.  Given the increasing importance of the digital economy, MC13 should focus on advancing 
discussions on digital trade and e -commerce. This includes addressing issues related to data flows, 
digital infrastructure development, and  bridging the digital divide between developed and developing 
countries, in addition find a permanent solution to the moratorium on the current practice of not 
imposing customs duties on electronic transmissions as agreed at MC12 to extend Moratorium until  
MC13.  
5.69.  Furthermore, Namibia supports that the decision to extend the MC12 TRIPS Decision to 
therapeutics and diagnostics should be taken well in advance of MC13 and that, Members to best 
prepare for future pandemics.  
5.70.  Lastly, let me once again thank WTO an d SACU Secretariat for coordinating the process and 
look forward to a successful MC13 outcome.  WT/TPR/W/ 235 
 
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  SOUTH  AFRICA ( MS THEMBI MLANGENI ) 
5.71.  We fully endorse the statement delivered by Ambassador Thabang  Matjama on behalf of the 
Southern African Custom Union (SACU).  
5.72.  We thank WTO Members for the interest shown in the SACU Trade Policy Review and the 
questions posed to S outh Africa. This statement responds to some key overlapping questions, 
provides clarity and a better understanding of our approach to trade and  trade-related policy 
trajectory.  
5.73.  Amidst the global turmoil, South  Africa  continued to pursue broad economic objectives 
envisaged in our National Development Plan and Policies. Although the aftermath of the global 
poly-crisis threatened to derail us from o ur broad objectives of reducing the triple scourges of 
unemployment, poverty, and inequality, we are on track with the implementation of policies that 
were introduced during the period under review, namely;  
• The 2020 Economic Reconstruction and Recovery Pla n, for the purposes of stimulating 
equitable and inclusive economic growth.  
• The 2019 Re -Imagined Industrial Strategy as a significant step forward in scaling up efforts 
to promote long -term industriali zation and industrial diversification beyond the curren t 
reliance on traditional commodities and non -tradable services.  
5.74.  These programmes place emphasis on more labour -absorbing production and services 
sectors, including increased participation of historically disadvantaged people and regions in the 
economy, wh ile aiming to facilitate South  Africa 's contribution to industrial development in the 
African region.  
5.75.  A key pillar of the Re -Imagined Industrial Strategy is the development of master plans; central 
to these master plans is the strong social compact between  Government, industry and organi zed 
labour. O ngoing work on sectoral master plans address competitiveness challenges, with an 
emphasis on locali zation and beneficiation that inform South  Africa 's trade policy.  
5.76.  The localization policy emanates from the Pre ferential Procurement Policy Framework Act 
(PPPFA). This deals with public procurement processes and requirements of goods and services by 
public entities and state -owned enterprises. A strategy that identifies and supports sectoral priorities 
for the purp ose of industriali zation.  It is important to note that the South  African Government does 
not have a policy that directly restricts foreign companies from participating in public procurement 
tenders. The local content policy is applied to the product, which must be manufactured or assembled 
in South  Africa at a specified minimum threshold of production. All bidders, whether foreign or local, 
manufacturing or non -manufacturing are required to supply designated products that must be 
manufactured within the borders of South  Africa. This is evidenced by a number of foreign companies 
that participate in tenders designated for local content because they manufacture and assemble 
products within the borders of South  Africa.  
5.77.  In terms of the 2022 Preferen tial Procurement Regulations (PPRs) local content is no longer 
a compulsory requirement. Under the current procurement regime, each organ of State is 
empowered to determine its own Preferential Procurement Policy. The 2022 PPRs allow organs of 
state to use  specific goals including the Reconstruction and Development Programme (RDP) goals 
to support the procurement of locally manufactured products in their tenders. These efforts are 
essential to foster a more dynamic and inclusive economy that creates and ens ures equal rights and 
opportunities for small businesses, women, and youth to participate in economic growth efforts.  
5.78.  The Trade Policy and Strategy Framework (TPSF) was finalized in 2010 and revised in 2012 
setting out how trade policy can contribute to th e Government 's economic development objectives. 
It seeks to improve S outh Africa's trade performance by increasing exports of higher value -added 
manufactured goods.  
5.79.  In 2021, a trade policy statement was released, termed "Trade policy for industrial 
develo pment and employment growth ". The Statement frames S outh Africa's trade policy and its 
international trade engagements on S outh Africa's industrial policy objectives. It speaks to building 
industrial capacity, unlocking development across the African conti nent, driving manufacturing WT/TPR/W/ 235 
 
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  exports and opening markets for S outh Africa goods, enhancing S outh Africa's role at the WTO and 
the future of the multilateral trading system for resilience and building back better for the digital 
economy and for environmental  sustainability.  
5.80.  South  Africa remains convinced that efforts to industrialization, value -added manufacturing, 
increase in exports, and implementation of regional industriali zation through programmes of the 
Southern African Customs Union (SACU), Southern A frican Development Community (SADC), and 
the African Continental Free Trade Agreement (AfCFTA) are fundamental to placing our economy on 
a new path of sustainable growth.  
5.81.  South  Africa is aware that the opportunities from foreign investment come with associ ated 
risks and legal challenges. The Bilateral Investment Treaties (BITs) were reviewed with the aim of 
ensuring a clear framework for the protection of all investments in South  Africa (both foreign and 
domestic) and that there is one piece of legislation to manage the risks. T he BITs review was 
conducted in accordance with the Cabinet mandate of 2010.  
5.82.  In agriculture, the liberali zation of the South  African economy in the early 1990s was followed 
by the abolishment of all the agriculture control boards, wh ose assets were transferred into various 
trusts to fund a number of developmental mandates. As a result, statutory and advisory bodies such 
as the National Agricultural Marketing Council (NAMC) were constituted. The structure reports to the 
Minister of Agr iculture, Land Reform and Rural Development . It mainly provides advisory services 
through research undertaken with regard to agricultural marketing policy and its application. It also 
oversees the administration, and monitor and review the application of statutory and other 
regulatory measure as part of its ma ndate. Transformation and growth of the country 's agriculture 
and its rural areas hinges on Chapter  6 of the National Development Plan.  
5.83.  The Agriculture and Agro -processing Master Plan (AAMP) translates the broad ambitions of 
the agriculture sector and rur al areas articulated in the NDP, into actionable plans. Implementation 
of the plans is broken down into commodity -specific initiatives, aimed at fostering inclusive sector 
growth. As a result, various support packages such as the Comprehensive Agriculture Support 
Programme (CASP) are available to ensure that productive activities take place on farms. Various 
forms of skills are provided for farmers/producers in order to be compliant with market 
requirements, both domestic and international.  
5.84.  To meet its foo d security needs, South  Africa conducts trade and aligns with rules as set by 
various international standard -setting bodies such as the WTO and WOAH. Like all countries, 
South  Africa has the right to set measures appropriate to protect its human and animal  health based 
on science , which could be higher than those set at an international level. Regarding the publication 
of the TRQs, only the products that stand to benefit importers economically are published, since 
over time some TRQ rates have become higher  than the prevailing MFN tariff rates.  
5.85.  South  Africa is not a signatory to the Agreement on Government Procurement (GPA), which 
is plurilateral or voluntary agreement under the auspices of the WTO. It must be noted that 
plurilateral agreements are only binding on the signatory parties, and not on all WTO 's Members. 
There is no indication that South  Africa will consider joining the GPA as we leverage public 
procurement to achieve multiple developmental objectives.  
5.86.  South  Africa is concerned with the impact  that the Joint Statements Initiatives (JSIs) will 
have, in fragmenting the multilateral trading system. South  Africa is a strong believer in the 
multilateral trading system  that provides a rules -based approach ensuring transparency and 
predictability as e nvisaged in the Marrakesh Agreement. We are d etermined  to preserve the basic 
principles and to further the objectives underlying this multilateral trading system and believe that 
continued participation will contribute to South  Africa 's economic growth and development.  
  WT/TPR/W/ 235 
 
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  DISCUSSANT  
5.87.  It is a real honour and priv ilege to have been a part of this Trade Policy Review. These reviews 
are so important to give us an opportunity to peer review each other's performance. It is so positive 
to see so many colleagues from SACU here, and I recognize how much work goes into the se reviews 
which can be a particular challenge for developing countries, so seeing this engagement is very 
welcome. I'm pleased to see some Southern  African sunshine in this city, so thank you for bringing 
that too.  
5.88.  I have been listening to the comments f rom colleagues this morning and would like to thank 
colleagues from SACU for their responses to the comments that have been made on Wednesday and 
here again this morning.  
5.89.  Let me also thank the SACU and WTO Secretariat for the enormous amount of work that goes 
into each of these TPRs. I feel slightly guilty that, as a membership, we do  not all ways make the 
most of these high -quality reports. We have to make a serious effort to understand how we can use 
them most effectively.  
5.90.  Listening on Wednesday, I was struck by how much bilateral trade has been raised by 
Members. We have discussed both the opportunities and challenges that exist for SACU members. 
It is equally important that we pick up on the multilateral aspects of the Report. There is a golden 
moment to try and bring together the Secretariat Report and look at the interaction between what 
a Member or a group of Members are doing nationally, regionally and multilaterally, to better 
understand how we can better work together in this Organization to creat e the jobs and prosperity 
that we so sorely need.  
5.91.  There have been a few themes too over these two days: the importance of the process of the 
developing the AfCFTA , the importance of the SACU national strategy and the focus within it on 
industrialization – one of those examples where there is a real read across from what is being 
discussed in the TPR to what we have been discussing here in Geneva, indeed just this week at the 
Senior Officials Meeting, and how we can promote sustainable development to create  much needed 
jobs but also achieve our climate objectives.  
5.92.  I heard encouragement too for tariff liberalization, on notifications and to progress on fisheries 
ratification. One of the benefits from the Senior Officials Meeting was indeed the commitment fro m 
the membership to progress on the second round of negotiations on fish, and to ratify the first -round 
agreement.  
5.93.  I also heard encouragement to engage in the JSIs, and, while I recognize that these are 
difficult issues with differing views across the Organization, including those touched on by my 
neighbour from South  Africa, personally I  have been struck by the Investment Facilitation for 
Development negotiations, in which developing Members themselves have helped shape an 
agreement that should help devel oping nations attract and secure FDI.  
5.94.  Chair, let me thank you, the WTO and SACU Secretariat, my very distinguished colleagues 
and those colleagues that have travelled such a distance to be here with us this week.  
UNITED  STATES  
5.95.  We would like to thank SACU spokesperson Amb assador  Thabang Matjama (Lesotho) as well 
as the entire SACU delegation for your collective engagement and participation in this fifth Trade 
Policy Review of the Southern African Customs Union. We would also like to extend a thank you to 
the ever so eloquent Amb assador Manley (United  Kingdom) for ably serving as discussant for this 
important review.  
5.96.  As we mentioned during Day one, we strongly support African regional integration. We look 
forward to working with SACU members and our othe r African partners to support African regional 
integration, including support of the implementation of the African Continental Free Trade Area 
(AfCFTA). In addition, AGOA remains a pillar of our economic engagement with sub -Saharan African 
nations and we l ook forward to working with our SACU partners on ways to boost AGOA utilization 
and regional integration to make the most out of the program me. WT/TPR/W/ 235 
 
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  5.97.  SACU 's Strategic Plan 2022 -2027 and the five core strategic pillars will also help deepen 
regional integration e fforts. At the WTO, we encourage SACU members, particularly Eswatini and 
Lesotho, to continue to implement the Trade Facilitation Agreement, which can help complement 
and support the objectives you have outlined under the Trade Facilitation and Logistics P illar of your 
Strategic Plan.  
5.98.  As pointed out by one delegation on Wednesday, Southern Africa has continued to face natural 
disasters and other crises . The United  States, along with Canada, Chinese  Taipei, the 
European  Union, Honduras, Japan, Tonga, Türkiy e, and the United  Kingdom, support continued 
discussions at the WTO on efforts to facilitate humanitarian relief in emergency situations. Earlier 
this month, the United  States brought together several regional development banks and 
international donors, in cluding the African Development Bank Group, to discuss ways in which they 
can assist WTO Members in facilitating trade during times of disaster.  
5.99.  We would welcome collaboration with SACU members in this regard, as we continue to share 
experiences and build a knowledge base on how implementation of the Trade Facilitation Agreement 
can be used as a tool for disaster or pandemic preparedness, in particular ensuring that procedures 
are put in place before they are needed to enable the movement of humanitarian go ods in the event 
of crisis.  
5.100.   On Wednesday, SACU Spokesperson Ambassador Matjama (Lesotho) outlined SACU 
Members ' priorities for MC13, including reaching tangible outcomes on key issues of interest to 
developing and least -developing countries such as food s ecurity, rules to discipline harmful fisheries 
subsidies, and efforts to further integrate into the global trading system.  
5.101.   We welcome a conversation with our SACU partners on all of these topics, as well as other 
important topics that are on the MC13 agend a. I would like to highlight just a few examples.  
5.102.   The United  States recently circulated a communication in the Trade Facilitation Committee 
that highlights the role that robust implementation of the TFA can play in improving the safe, quick, 
and cost -effective movement of agricultural and food products to where they are needed. We would 
also welcome collaboration from SACU members in this regard.  
5.103.   We join other Members in applauding Botswana 's ratification of the Fisheries Subsidies 
Agreement that was annou nced at the beginning of this week at the SOM. The F isheries Subsidies 
Agreement  contains important disciplines on harmful fisheries subsidies, and enhances 
transparency, but it cannot contribute to the sustainability of our fisheries until it actually ent ers into 
force. We encourage other SACU members to continue their efforts to ratify the Agreement and 
deposit their instruments of acceptance with the WTO. Doing so will help us reach our goal of the 
Agreement entering into force by MC13.  
5.104.   The United  States  is committed to reform of the WTO to make it more responsive to the 
needs of our stakeholders and more supportive of the policymaking that underpins how we all are 
adapting to the changing global landscape. We would welcome engagement from SACU members as  
we continue to explore and advance WTO reform efforts, including dispute settlement reform, as 
well as updating and modernizing our conversations on development.  
5.105.   We hope that this TPR process has been useful for your Governments, not just from the 
perspec tive of self -examination of your trade policies, but also in how you see the WTO adding value 
to your domestic priorities and overall economic development and advancement. We urge SACU 
members to continue to fully participate in WTO initiatives that can he lp you achieve your goals as 
members of the international trading community.  
5.106.   In closing, we would also like to reiterate the value the United  States places on its 
relationship with SACU members, both in our bilateral and regional trade relations and in our  
cooperation here at the WTO.  
5.107.   We congratulate SACU members on a successful TPR.  
  WT/TPR/W/ 235 
 
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  EUROPEAN  UNION  
5.108.   On behalf of the E uropean  Union, I would like to thank the delegations of all SACU countries 
for the statement on Wednesday as well as the statements this morning.  
5.109.   As the E uropean  Union is the key trading partner for most SACU members, with the 
European  Union accounting for 36% of SACU 's total trade and the 27 -EU member States being a 
major source of investment in Southern  Africa, this TPR has been of great interest for us.  
5.110.   The E uropean  Union welcomes the useful insights that this review has provided into the 
reforms undertaken. SACU a nd its member States can be commended for many steps taken in that 
respect. At the same time, the exchanges in this TPR showed that there is still some room for 
improvement in terms of SACU and its member States' trade and investment policies and measures 
and we are confident that the SACU members have taken good note of the issues we and other 
Members have raised.  
5.111.   This review has highlighted some of the remaining internal and external challenges of the 
oldest Customs Union in the world but also its extrao rdinary potential, especially through regional 
integration that contributes to facilitating the free flow of goods and services across the continent 
and boosting the trading position of Africa in the global market.  
5.112.   As stated already on the first day, the European  Union is and remains a staunch supporter 
of regional integration, the SACU, and the African Continental Free Trade Agreement (AfCFTA) and 
we encourage further integration of SACU into regional trade and value chains.  
5.113.   The E uropean  Union remains co mmitted to promoting an integrated value chain approaches 
in Africa in order to help develop industries, which add value and create jobs and diversify the 
economies.  
5.114.   In fact, just two days ago the EU together with the EU member States, hosted a second 
Amba ssador -level dialogue meeting of this year with the African Union countries on the thematic 
topic of "Resilient Value Chains, African Continental Free Trade Agreement and the WTO: How can 
the Development of Regional Value Chains in Africa benefit from the new trade regime on the 
Continent? " with the participation of African Union Commissioner Albert  M. Muchanga. 
European  Commission 's DG International Partnerships presented the progress made, together with 
the International Trade Centre, since the collaborat ion on regional value chains started with the 
African Union and European Commission, including the upcoming pilot projects on a few value chains 
(infant food, pharmaceuticals , and automotive ecosystem).  
5.115.   The European  Union would like to thank SACU member States for the responses provided to 
our advance questions. We look forward to the outstanding replies in due course. Furthermore, the 
European  Union has submitted six follow -up questions related to nuclear safety, labelling, animal 
health , and agriculture.  
5.116.   In conclusion, the E uropean  Union would like to thank all the SACU delegations for 
undertaking this important transparency exercise and demonstrating its commitment to the WTO 
and rules -based multilateral trading system. We are confident that our good cooperation will 
continue in this Organization and other fora.  
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  6  CONCLUDING REMARKS BY THE CHAIRPERSON  
6.1.  This fifth Trade Policy Review of the Southern African Customs Union (SACU) countries h as 
offered us a good opportunity to deepen our understanding of their trade -related policies and 
practices, and to assess main developments since their last Review in 2015.  
6.2.  I would like to thank the heads of delegations of the five SACU countries, 
H.E. Dr Athaliah  Molokomme, Ambassador  and Permanent Representative of Botswana to the WTO; 
H.E. Mr Siboniso  N. NKAMBULE, Principal Secretary, Ministry of Commerce, Industry and Trade 
(Eswatini); H.E.  Mr Thabang  Matjama, Ambassador  and Permanent Representative of Lesotho to the 
WTO; H.E.  Ms Julia Imene -Chanduru, Ambassador  and Permanent Representative of Namibia to the 
WTO; H.E.  Ms Thembekile  Mlangeni, Director of Market Access, Department of Trade, Industry and 
Competition (South  Africa); and H.E.  Mr Thabo  David  Khasipe, Executive Secretary of SACU, for 
their participation in this meeting and for their remarkable engagement throughout this Trade Policy 
Review process. I would also like to thank H.E. Ambassador Simon  Manley , Permanent 
Representative of the United  Kingdom to the WTO , for his insightful comments as discussant, and 
the 27  delegations who took the floor during this meeting.  
6.3.  Members commended SACU countries on their efforts to exploit their potential with a view to 
diversifying their economies. To this e nd, the SACU Strategic Plan 2022 -2027 was seen as an 
instrument to promote industrialization, exports, and investment; facilitate trade and logistics; and 
diversify export markets and strengthen trade relations. SACU's efforts to promote economic 
developme nt through trade  have also been recognized, and their challenges highlighted. These 
include unemployment, governance issues, infrastructural (notably energy and transport) 
constraints, and climate change. Members were of the view that full implementation o f the Plan, 
including the related reforms, should help SACU countries to address these challenges and establish 
a regional environment conducive to their economic growth and development.  
6.4.  Members also commended the five SACU countries for their commitment to the multilateral 
trading system, and their active participation in the WTO  including their contributions to the MC12 
outcomes, to the work of different committees, and to the ongoing negotiations and discussions on 
WTO reforms . Members also highlighted the important leading role that Ambassador Molokomme of 
Botswana has been playing in various capacities, including her able leadership as the current Chair 
of the General Council.  
6.5.  Members praised Botswana for having ratified the Agreement on Fisheries Subs idies and 
encouraged the other SACU countries to follow suit by ratifying this Agreement. Some Members 
urged SACU countries to meet their notification obligations in a timely manner, and to further support 
the multilateral trading system by participating i n plurilateral initiatives, including JSIs and the 
Multi-Party Interim Appeal Arbitration Arrangement. They also urged the countries to fully implement 
the 2002 SACU Agreement, mainly the institutional framework including the tariff boards and the 
judiciar y system.  
6.6.  Members noted that SACU countries have been expanding their regional trade agreements, 
and have ratified the African Continental Free Trade Area  (AfCFTA) Agreement. Members sought 
further information about the countries' plan to fully implement t he AfCFTA and develop 
intra-regional trade. They also sought further information about the status of the Tripartite Free 
Trade Agreement between COMESA, EAC, and SADC.  
6.7.  Members commended SACU countries for the steps taken to facilitate trade through a series of 
reforms including customs legislation modernization, implementation of the Authorized Economic 
Operator programme, as well as risk management and IT connectivity. They  noted that t he simple 
average applied MFN tariff rate stood at about 8.5% in 2 023. In this regard, a number of Members 
urged SACU countries to streamline their common external tariff with a view to making their trade 
regime more transparent and predictable.  
6.8.  Other issues of interest to Members includes foreign direct investment regim e requirements, 
SPS and TBT measures, intellectual property rights, public procurement, and trade and inclusiveness 
including youth and women economic empowerment. Members also showed interest on issues 
related to Micro Small and Medium Enterprises (MSMEs) , the environment, and trade regime on 
agricultural products.  WT/TPR/W/ 235 
 
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  6.9.  Members noted that SACU countries have not yet harmonized their sectoral policies. They 
recognized that the Strategic Plan 2022 -2027 emphasizes industrial policy and saw the Plan as a 
common sec toral initiative for the region. They commended SACU countries on their recent efforts 
to liberalize their trade in services.  
6.10.  In conclusion, the five SACU countries have clearly demonstrated that they place a high value 
on the Trade Policy Review Mechanis m and the Multilateral Trading System with their active 
engagement over this two -day meeting. While I encourage the SACU countries to take into 
consideration the outcome of this Review, I invite Members to assist the SACU countries in their 
steps to addres s their economic reforms, including trade -related challenges.  
6.11.  Members look forward to receiving answers to the outstanding and follow -up questions within 
the customary one month, at which time this review will successfully conclude.  
 
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