________________
___________________________________________________  
Final document 
Marc h
 2018 
 PAN-AFRICAN COTTON INVESTMENT 
PROGRAMME:  
The value chain, a driving force for resilience 
in cotton-producing regions  
WT/CFMC/W/74 
- 8 -FORWARD 
In commemoration of the late Bruno… 
This work is also a human adventure born of the cooperation between the European Union and 
Africa. He started with a great African cotton enthusiast, Bruno Gaudens DAGNON , who carried 
out the formulation process of the Pan-African Cotton Road Map, and then began the 
exhilarating exercise of his alignment with the regional and pan-African strategic frameworks. 
This work paved the way for the prospect of a Pan-African Cotton Investment Program (PACIP). 
Unfortunately, our friend left us on February 6th, 2016 on a mission to Midrand (South Africa), 
for the project. He therefore left honourably, in the exercise of his profession and his passion. 
The formulation of the program was continued by two Consultants, Dr. Kalilou SYLLA and 
Oumarou BALARABE, who agreed to resume and complete the remarkable work of the late 
Bruno. 
At this stage of the process, the Consultants and the entire African cotton family pay tribute to 
this gentleman who has spent a great part of his life thinking for action, all in the service of 
cotton, a value chain. both promising and exciting, at the heart of debates on the role of 
agribusiness value chains in African economies.  
The Consultants express their gratitude to the NEPAD Agency for its full involvement 
throughout the process, through the reflections and orientations much appreciated by Dr 
Augustin WAMBO YANDJEU. They thank for their framing, its commitment all the staff of the 
ACP Group Secretariat including Mr. Viwanou GNASSOUNOU, as well as the entire team of the 
Management Unit of the Cotton Program for their constant support throughout the process. 
Finally, their thanks are also addressed to COS-Cotton, the experts of the European Union 
Commission on Cotton, the members of the Working Party on Cotton, the C4 Ambassadors and 
Advisers, the Actors of the sectors in the countries and professionals in the cotton sector. 
Everyone hopes that this program will mark a new beginning for strengthening the resilience of 
the cotton system across the value chain. 
WT/CFMC/W/74 
- 9 -TABLE OF CONTENTS  
TABLE OF CONTENTS ....................................................................................................................... 3  
LIST OF TABLES ................................................................................................................................ 5  
LIST OF FIGURES .............................................................................................................................. 6  
LIST OF DIAGRAMS .......................................................................................................................... 7  
LIST OF ABBREVIATIONS ................................................................................................................. 8  
EXECUTIVE SUMMARY .................................................................................................................... 9  
INTRODUCTION ............................................................................................................................. 13  
1. BROAD GUIDELINES OF AGRICULTURAL POLICY IN AFRICA: FROM MAPUTO TO MALABO
15
2. THE COTTON SY S
TEM IN AFRICA: CHALLENGES AND OPPORTUNITIES ............................. 16  
2.1. Imbalances of the cotton system: a factor for continental and global insecurity ..... 17  
2.2. Some stylized facts illustrating the importance of cotton for development in Africa17  
2.3. Cotton production: a diverse system of crops ........................................................... 18  
2.4. Cotton processing: decline of the value chain ........................................................... 24  
2.5. Marketing cotton: an overlooked continental market ............................................... 28  
3. LESSONS LEARNED FROM EARLIER SUPPORT PROGRAMMES AND PROJECTS FOR
AFRICAN COTTON, FO
R THE CONSIDERATION OF FUTURE ACTIONS ....................................... 32  
3.1. Cotton support programmes and projects within the EU-Africa cooperation ........... 32  
3.2. Regional cotton support strategies ............................................................................ 34  
3.3. Cotton support programme for C4 countries ............................................................. 37  
3.4. Other cotton programmes .......................................................................................... 38  
3.5. Coherence between PACIP and regional programmes (regional cotton strategies and 
C4) 39  
4. PACIP: A N
EW COTTON AGENDA FOR SUSTAINABLE, INCLUSIVE AND AMBITIOUS
DEVELOPMENT ......
.................................................................................................................... 40  
4.1. PACIP intervention strategy: a new philosophy of change ........................................ 40  
4.2. Comparative advantages of the investment programme .......................................... 41  
4.3. Methodological approach for the programme's development ................................. 42  
4.4. PACIP objective, strategic goals and expected results ............................................... 43  
5. FUNDING NEEDS AND STRATEGY ....................................................................................... 54  
6. IMPLEMENTATION FRAMEWORK ...................................................................................... 58  
6.1. Programme governance ............................................................................................. 58  
6.2. The partnership .......................................................................................................... 60  
6.3. Risk management ....................................................................................................... 60  
7. PROJECT FOR OPERATIONALISATION SUPPORT FOR THE FIRST FIVE YEARS .................... 61  
7.1. Overall and specific objectives ................................................................................... 61  
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- 10 -7.2. PACIP results framework and POS contribution to its achievement.......................... 61  
7.3. Budget of the PACIP project for operationalisation support ..................................... 68  
7.4. Risks and hypotheses .................................................................................................. 69  
7.5. Assessment and audit .................................................................................................... 69  
APPENDICES .................................................................................................................................. 70  
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- 11 -LIST OF TABLES  
Table 1: Cotton fibr
e production and seed cotton yield expressed in kilograms of fibre per hectare by 
major producers in Africa over the 2004-2016 period ............................................................................... 21  
Table 2: Identified 
issues in cotton processing .......................................................................................... 26 
Table 3: Growth in fibre demand from 2015 to 2020 ................... ............................................................. 29 
Table 4: Overview of the results framework .......................... .................................................................... 50 
Table 5: PACIP funding requirements broken down by components ...... . ................................................. 55 
Table 6: Overview of the priority project results framework in accordanc e with PACIP ........................... 63 
Table 7: Priority project budget according to expected results ...... ........................................................... 68 
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- 12 -LIST OF FIGURES 
Figure 1: Mapping of
 average seed cotton production in the world 2004-2014 ....................................... 19 
Figure 2: Share of world seed cotton production ....................... ............................................................... 20 
Figure 3: Evolution of African and world cotton fibre production ...... ....................................................... 20 
Figure 4: Relative evolution of African fibre production .............. .............................................................. 21 
Figure 5: Share of African regions in the production of cotton fibre ov e r the 2004-2014 period ............. 22 
Figure 6: Share of African cotton production area by region (%)........ ....................................................... 23 
Figure 7: Africa's share along the cotton value chain ................. ............................................................... 26 
Figure 8: Share of factory consumption of major fibres ................ ............................................................ 28 
Figure 9: Price evolution of cotton fibre from October 1991 to October 2016, according to the Cotlook A 
index, in cents USD/kg ................................................................................................................................ 30 
Figure 10: Evolution of Africa's share of the global clothing market ... ...................................................... 31 
Figure 11: Structure of the UEMOA textile market ...................... .............................................................. 31 
WT/CFMC/W/74 
- 13 -LIST OF DIAGRAMS 
Diagram 1: Seed co
tton processing. ........................................................................................................... 24 
Diagram 2: Cotton fibre processing ................................. ........................................................................... 25 
Diagram 3: Segmentation by country for each stage of the cotton value  chain ........................................ 28 
Diagram 4: Evolution of fibre use (all types) 2013-2020 ............ ................................................................ 29 
Diagram 5: Coherence framework between PACIP and other cotton progr a mmes .................................. 40 
Diagram 6: PACIP results framework ................................. ........................................................................ 44 
Diagram 7: Funding mechanism ....................................... .......................................................................... 55 
Diagram 8: Programme governance .................................... ....................................................................... 59 
Diagram 9: Pan-African, regional and national coordination - subsidi arity ............................................... 60 
WT/CFMC/W/74 
- 14 -LIST OF ABBREVIATIONS  
A.C.A African Cotton Association 
ACP  African, Caribbean and Pacific Group of States 
ACTIF African Cotton & Textile Industries Federation 
AProCA Association of African Cotton Producers 
AUC  African Union Commission 
C2D Debt Reduction and Development Contract 
CIRAD  French Agricultural Research Centre for International Development 
COMESA  Common Market for Eastern and Southern Africa 
COS-cotton  Orientation and Monitoring Committee of the EU-Africa partnership on cotton 
EC  European Commission 
ECCAS  Economic Community of Central African States 
ECOWAS  Economic Community of West African States 
EUD  European Union Delegation 
FAO  Food and Agriculture Organisation of the United Nations 
IPPM Integrated Production and Pest Management 
ITC  International Trade Centre 
MoZaZiMa Mozambique, Zambia, Zimbabwe and Malawi (public and private cotton sector representatives’ 
forum) 
NEPAD New Partnership for Africa's Development 
PACIP Pan-African Cotton Investment Programme 
PACRM Pan African Cotton Road Map 
REC Regional Economic Community 
SC Steering Committee 
SDG Sustainable Development Goal 
UNCTAD United Nations Conference on Trade and Development 
WADB West African Development Bank 
WCA West and Central Africa. 
WECARD West and Central African Council for Agricultural Research and Development 
WT/CFMC/W/74 
- 15 -EXECUTIVE SUMMARY  
Historical backgrou
nd: the EU-Africa Partnership on cotton 
The EU-Africa Partnership on Cotton, born out of a desire to overcome the challenges the sector faces 
essentially as a result of falling prices, has assisted the efforts of African countries and their regional 
economic communities to develop the cotton sector. Indeed, this cotton partnership was approved 
during the European Union-Africa Cotton Forum organised in 2004 by the European Commission, with 
the support of France, the ACP Group and CTA. There the foundations for this new sectoral cooperation 
were laid around two pillars: (i) The ‘Trade’ component, through the establishment of fair trade 
relations within the framework of the WTO through the Doha Development Agenda, and (ii) The 
‘Development’ component, aiming to improve cotton sector competitiveness and added value. To 
ensure proper monitoring of the development component, a Partnership Orientation and Monitoring 
Committee (COS-cotton) has been in place since 2004, composed of major private sector stakeholders, 
State representatives and regional organisations.  
The EU-Africa Partnership's action framework is structured into six (6) key focus areas, namely: (a) 
improving capacities for the development, monitoring, assessment and updating of national and 
regional strategies on cotton; (b) improving the institutional environment of cotton sectors, their 
internal organisation and their efficiency; (c) improving the competitiveness of African cotton sectors; 
(d) reducing the vulnerability of cotton sectors; (e) increasing the added value generated by cotton
sectors; and (f) enhancing the efficiency and effectiveness of coordination at the international, regional
and national levels.
Cotton in the African economy 
Cotton lies at the heart of a of a ‘system’ essential to the food and nutrition security, development and 
public investment of arid and semi-arid regions on the continent, some of which face recurring crises 
regarding, inter alia, the management of scarce natural resources when faced with climate change and 
its adverse effects. 
An analysis of the cotton system in Africa reveals both challenges and opportunities. Among the key 
challenges, it appears that current strategies give priority to the international market over the 
continental market, thus disconnected from a target of local consumption, notably because of the weak 
integration by the African states' trade. The cotton system is a stabilizing factor at the regional and 
global level. Imbalances in the system caused by exogenous shocks, such as an unexpected drop in 
global prices or insufficient processing, which stops stakeholders from benefiting from profits made 
along the value chain, results in negative repercussions in terms of poverty, a dearth of employment 
opportunities, and urban migration, which itself causes greater unemployment and insecurity in cities.  
Cotton does however offer a wide range of socio-economic opportunities which could help address the 
challenges in these regions. Thus, its diverse cultivation system makes it possible to associate it with 
food crops, thereby increasing the food security of small producers and affected countries. In this 
context, the value chain helps to strengthen resilience through investment via public-private 
partnerships with redistributive effects throughout the value chain.  
The Pan-African Investment Programme on Cotton 
As the EU-Africa Partnership's Intra ACP cotton programme drew to a close, the ACP Secretariat, the 
European Union and the African Union, represented by its Commission, and the NEPAD Agency, agreed 
to develop a follow-up programme, based on the Pan-African Cotton Road Map (PACRM) and focusing 
on investments to increase its impact. Thus, in order to align all efforts supporting the development of 
the cotton sector in Africa with the Malabo Agenda, these partners agreed to develop the Pan-African 
Investment Programme on Cotton (PACIP), in order to respond to the current challenges facing the 
development of the cotton sector in Africa. PACIP stands as the new cotton agenda for sustainable, 
inclusive and ambitious development. It focuses on key issues in the value chain, such as processing and 
WT/CFMC/W/74 
- 16 -its funding and the promotion of public-private partnerships, two important elements which have not 
lived up to stakeholder ambitions.  
This African agricultural investment programme's overall objective is to promote the sustainable, 
inclusive and ambitious development of the cotton sector, in keeping with Malabo agenda. This 
programme will aim to develop competitive value chains to increase the resilience of cotton-producing 
regions.  
Specifically, PACIP focuses on: (i) Optimising the achievements of the two previous intra-ACP 
programmes implemented under the EU-Africa Partnership on Cotton, (ii) Reinforcing the role of African 
institutions in coordination and implementation, (iii) Facilitating the mobilisation of additional resources 
through formal mechanisms to promote public/private partnerships and (iv) Aligning the cotton strategy 
with the CAADP and other continental and regional action plans.1 
PACIP intervention approach 
The intervention approach chosen for PACIP to ensure the achievement of the aforementioned global 
and specific objectives (see above 2 paragraphs) is based on five strategic focus areas:  
(i) Increasing producer income and cotton productivity - helps improve both cotton
productivity and cotton producer income;
(ii) Increasing investment in cotton and cotton by-product processing - expected results pertain
to the creation of added value from industrial and small-scale (entrepreneurial) processing of
cotton fibre and cotton by-products, increasing investment for the processing of the sector's
products in Africa, improving businesses, including craftsmanship, in order to increase their
managerial and technical capacity, and setting up a support fund for project development
and funding for processing;
(iii) Improving the marketing of cotton and cotton by-products – by developing and
implementing a strategy to promote quality, reputation, as well as the "African cotton"
labels, on global markets, and promoting regional trade of cotton and cotton by-products;
(iv) Developing the capacities of institutions and professional organisations in cotton-textile -
by aiming to focus first on capitalising on good practices through knowledge management.
Thereafter, the focus will be on establishing regional training centres aimed at the sector's
stakeholders as well as institutions. Finally, developing innovative funding programmes (blending,
private funding, PPP, CSR…)
(v) Improve the resilience and contribution of cotton-producing regions to the achievement
of SDGs - In order to improve the resilience of cotton-producing regions and increase cotton's
contributions to the achievement of SDGs, PACIP intends to implement programmes and actions to
combat extreme poverty, food insecurity, malnutrition, climate change, job creation and in
particular youth employment, as well as conflict prevention and post-conflict reconstruction.
Comparative advantages of PACIP 
With regard to the comparative advantages of the investment programme, these concern: 
(i) The optimization of the last two programmes' achievements, by maintaining pilot
structuring actions and strengthening the coordination of existing cotton partnerships.
(ii) Strengthening the role of African institutions in coordination and implementation by placing
governments and RECs at the heart of coordination activities, and stakeholder and
professional organisations in operational structures.
1There are (1) the cotton component of the AAll ACP Agricultural Commodities Programme (2007-2012, 9th EDF, 
15.8 Million € and (2) 
the Support Programme for the Consolidation of the Action Framework of the EU-Africa 
Partnership on Cotton (2013-2017, 10th EDF, 11 Million €). 
WT/CFMC/W/74 
- 17 -(iii) F acilitating the mobilisation of supplementary resources through formal frameworks for the
promotion of public/private partnerships and the establishment of a business forum and a
policy and technical and financial partner forum.
(iv) The alignment of the cotton strategy with the CAADP in the context of Malabo and of the
other action plans by strengthening advocacy for cotton as a "pioneering and strategic"
value chain and developing cotton's role in food and nutrition security, the fight against
poverty and post-conflict reconstruction;
(v) Taking into account local dynamics as well as the development of the continental cotton and
cotton by-product market.
(vi) The methodology for the development of the PACIP programme is structured around five
main stages: (I) Consensus concerning PACIP's broad guidelines (Pan-African Cotton Road
Map (PACRM)), (ii) A phase aligning the roadmap with the CADDP, (iii) Development of
PACIP through a participatory process, (iv) A coherence framework with other programmes
supporting the African cotton sector, such as the C4's Cotton Road programme, (v) An
interactive programme document drafting and validation phase.
Programme structure, duration and budget 
Designed to be implemented over a 15-year period with a total budget of €645 million, this investment 
programme, whose comparative advantages in relation to other ongoing initiatives are well illustrated, 
has been supplemented by a five-year project for operationalisation support (POS) with an expected 
cost of €16.6 million and designed to support the achievement of the following (PACIP) expected results:  
- There is effective capitalisation of the positive experiences of national/regional value
chains, and stakeholder capacity building and knowledge management aimed at improving the
competitiveness of the cotton-textile-manufacturing value chain is enhanced;
- Institutional support to national cotton sectors, governments and RECs is in place, and
actors' private resource mobilisation capabilities are strengthened with respect to processing for
the sector's products and by-products.
- Governance of national and regional value chains is improved, and coordination
between stakeholders, African cotton trade organisations and producer countries is improved.
PACIP funding 
The Project for Operationalisation Support, which is designed to act as a catalyst, is expected to leverage 
€121 million in funding during PACIP's first 5-year phase to finance a variety of projects at different 
scales. The overall funding strategy for PACIP intends to rely on: (i) continental funding which could 
come from the EU/ACP partnership, financial institutions, global funds or Technical and Financial 
Partners; (ii) regional funding mechanisms (regional cotton/sectoral funds...) ; (iii) national mechanisms 
via sectoral levies, any taxes on textile imports, private investments, etc.; and (iv) contributions from 
sector stakeholders to benefit from specific programmes, e.g. participating in business forums. 
Governance and coordination 
For the effective implementation of this investment programme, PACIP proposes that coordination take 
all stakeholders into account through a common partnership. Coordination will take place at three levels 
with due regard for the principle of subsidiarity. Strategic guidance and the coordination of the 
implementation will be defined at the continental level, relying on COS in conjunction with Member 
States and RECs. Regional professional organisations will then be involved at the regional level. They will 
ensure strategic and operational coordination at their level, paying special attention to regional 
priorities. Finally, the third level of coordination will be taken on at the national level by national 
structures and professional organisations in accordance with national priorities.  
All traditional technical partners will remain active in supporting implementation. Special attention will 
be given to developing the capacities of African technical service providers and professional 
WT/CFMC/W/74 
- 18 -organisations. They will all interact with stakeholders as part of the EU-Africa dialogue in general and as 
part of programme governance in particular.  
WT/CFMC/W/74 
- 19 -INTRODUCTION  
The Heads of State and Government of the African Union made the decision in 2003 to allocate a 
minimum of 10% of their budget to Agriculture in the hopes of increasing its contribution to their 
national economies by 6% every year. This decision is based on the results of research which has shown 
that investment in agriculture has a stronger leverage effect on the reduction of poverty and on growth 
than any other sector at equivalent investment rates. 
More than ten years after this declaration, progress remains limited, while agriculture continues to be 
the pillar of most African economies. The global environment marked, among other things, by the rise of 
terrorism and illegal immigration across the Mediterranean, has increased the perception of the central 
role of the agricultural sector as the refuge with the most potential to mitigate and hopefully curb the 
effects of these factors which are detrimental to African development. 
With this outlook in mind, African leaders reaffirmed their commitment to the spirit of Maputo in 
Malabo, in 2014, and renewed their commitment to the principles and values of the Comprehensive 
Africa Agriculture Development Programme (CAADP) in what is now known as the Malabo Declaration, 
articulating the new vision of African Heads of State for the transformation of the continent's 
agriculture. 
In Malabo, Africa adopted a new agenda for the transformation of its agriculture, wealth creation, food 
and nutritional security, economic growth and prosperity for all. It is part of a pan-African agenda which 
offers a set of principles and defines general strategies to help countries: (i) analyse their situation with 
a critical lens, and (ii) identify investment opportunities with optimal return on investment. 
As the framework for operationalising this vision, the CAADP is a reference document for all 
stakeholders in African agriculture through a results framework organised into three levels measuring 
performances: Level 1: contribution of agriculture to economic growth and inclusive development; Level 
2: sustainable and inclusive agricultural processing and growth; and Level 3: systemic capacity 
development for efficient execution and effective results. 
This new orientation is reflected among regions and countries respectively through the Regional 
Agricultural and Food Security Investment Plan (RAFSIP) and the National Agricultural and Food Security 
Investment Plan (NAFSIP), currently in their second generation. Unlike the first generation of agricultural 
policies and strategies generated by the Maputo Declaration, the second generation of agricultural 
policies based on the Malabo agenda incorporates concerns related to new questions including the 
central role of nutrition, the effects of climate change, the resilience of stakeholders and production and 
food systems to various risks and shocks, etc. 
In implementing this agenda, the promotion of a selection of commodities, including cotton, plays a key 
role in the implementation of this agenda in the relevant ecosystems, as they are taken into account in 
the CAADP's priority programme areas. This is why the cotton value chain, as part of this initiative, 
benefits from support for the design and alignment of regional and continental programmes.2 
African authorities '
 interest in the cotton value chain can be understood firstly due to the essential role 
this crop has in the majority of their economies. Indeed, in 2014, this crop represented up to 10% of 
GDP for African countries producing it, and reached 35% or even 38% of the gross domestic product of 
Burkina and Benin respectively; this interest is justified given the sharp increase of African seed cotton 
production in the past few years.3 From 2010 to 2016, Africa's share of global cotton production 
2 Work programme, Operationalizing the Malabo Declaration on African Agriculture as well as the CAADP 
implementation strat
egy and roadmap, 2014. 
3 economie-afrique.com 
WT/CFMC/W/74 
- 20 -increased significantly; going from 4.1% to nearly 7%, its share of global exports going from 11.1% to 
nearly 18%, the African continent thereby reaching second place in terms of global exports of cotton 
fibre. This production increase can be explained by improved conditions since 2011 and the marked 
appreciation of the US dollar compared to the Euro, which began in October 2014 and boosted exports 
in the CFA Franc zone.456 
Beyond its commercial value, cotton also plays an important role in the continent's development. 
Cotton generates investment, jobs, food security, with a ripple effect on food crops, and political and 
economic stability in producing regions. We can therefore speak of a cotton system, with ramifications 
for industrialisation, structured development funding, the mitigation of urban migration, strengthening 
food and nutrition security, conflict prevention and post-conflict reconstruction, etc. 
In the current context, cotton production in Africa nearly unanimously faces at least three types of 
challenges in its production basins: on the one hand, strengthening food and nutritional security; 
creating and diversifying jobs and income in rural areas; and improving the resilience of populations to 
the effects of climate change. Moreover, the challenge of cotton by-product processing is becoming 
increasingly urgent, so as to generate and spread greater added value along the chain.  
The development of a Pan-African Investment Programme on Cotton (PACIP) grew out of the 
development of a Pan-African Cotton Road Map (PACRM), with the help of various technical partners in 
the sector in Africa, and significant technical involvement from the United Nations Conference on Trade 
and Development (UNCTAD). The aim of this roadmap was to bring together the various sub-regional 
efforts attempting to define a strategic intervention framework for the development of cotton value 
chains in Africa.  
With a view to inclusive development, the elaboration of PACIP has maintained a focus on the 
transformation of the cotton system, as well as taking into account all of the sector's key concerns, the 
new vision for the transformation of African agriculture and existing cotton policies (regional cotton 
strategies, EU-Africa partnership on cotton, C4 cotton programme, etc.). Specifically, as the strategic 
planning framework for the cotton value chain, PACIP is based on the urgent need to increase product 
and by-product processing, in order to increase added value creation in all of its various production 
contexts in Africa. Furthermore, the consolidation of the achievements of national and regional value 
chains in cotton production and product marketing provided a strategic direction for the programme's 
development.  
Discussions regarding the development of PACIP were carried out in parallel with those concerning the 
formulation of the "Cotton Road" Programme by the C4 countries, with similar and complementary 
objectives, in particular on issues of fibre quality, product processing, marketing and investment. 
Another project for the harmonisation of the two action frameworks was made necessary, by facilitating 
and shaping the two initiatives' complementary aspects, particularly those related to the adaptation of 
populations to climate change, producers' employment and income, the role of cotton in food and 
nutritional security, safety and migration. 
The resulting document is twofold: 
• A comprehensive strategic framework for planning and evaluating investments in the
cotton value chain at the national. regional and continental levels (PACIP) backed by a policy
framework for arbitration and guidance (CAADP),
4 Update on the EU-Africa Partnership on Cotton – January 2017, Appendix 1 – Pages 63 and 68 
5 ICAC. "Cotton this month", December 2016 
6 The exchange rate between the Euro and CFA franc is fixed; 1 Euro = 655.957 FCFA. 
WT/CFMC/W/74 
- 21 -• A pilot project aimed at initiating the investment programme activities, including
institutional strengthening and support to mobilise financial resources for the investment
programme.
These two components, discussed and validated by the value chain stakeholders themselves, with the 
support of technical partners, are the backbone of this programme document. In the first section 
devoted to PACIP, the overall intervention framework, methodological approach and global results 
indicators were elaborated. The PACIP operational implementation project is then presented according 
to its objectives, activities and logical framework.   
1. BROAD GUIDELINES OF AGRICULTURAL POLICY IN AFRICA: FROM
MAPUTO TO MALABO
Faced with the growing food insecurity threatening several African countries, the recurrent food crises 
observed in some Sahelian countries, persistently high population growth in some parts of Africa, the 
challenge of youth and women's employment in a context of rural depopulation and migration, and the 
growing role of agriculture in the daily lives of African populations, the Heads of State and Government 
committed in July 2003 in Maputo to placing agriculture at the heart of African countries' priorities and 
agendas. The signing of a declaration on agriculture and food security was therefore primarily aimed at 
persuading each signatory country to allocate a minimum of 10% of the national budget to agriculture in 
order to achieve 6% growth in the agricultural economy. 
This commitment, embodied in the Comprehensive Africa Agriculture Development Programme 
(CAADP) is designed to stimulate production and address the challenge of food security.  
Ten years later, in 2013, the CAADP's implementation was assessed under the leadership of the NEPAD 
Agency. This evaluation of the 10 years of implementation of the CAADP revealed some important 
achievements. Indeed, under the Maputo agenda, Agriculture is better taken into account in national 
policies through the development of national agricultural plans (NAIPs, NASIP, etc.). Reviewing the 
CAADP has also brought to light significant increases in investments in the agricultural sector for certain 
countries (over 10%, and even close to 18% for Burkina Faso) with generally positive agricultural 
growth.7 
Although the CAADP has an appreciable record, many weaknesses remain, however. This can be 
explained by the fact that increases in investment broadly remain below the 10% threshold established 
by the Maputo Commitment, reiterated by Malabo. For example, a country such as Nigeria, one of 
Africa's two biggest economic powers, allocates no more than 5% of its budget to the agricultural sector. 
Furthermore, out of the 53 member countries of the African Union at the time of the Maputo 
Declaration, only seven have fulfilled their commitment, of which five West African countries, Burkina 
Faso, Guinea, Mali, Niger, and Senegal which exceeded the symbolic threshold of 10%, as well as Malawi 
and Ethiopia.8910 
This NEPAD review of the implementation of the CAADP has also shown that agricultural growth has 
more to do in certain countries with increases in cultivated area than with increases in productivity (per 
unit of land). Low agricultural investment and productivity remains linked with high levels of poverty 
and food insecurity. 
7 CAADP Implementation Guidelines under the Malabo Declaration, 2016 
8 CAADP Implementation Guidelines under the Malabo Declaration, 2016 
9 Protocole de Maputo sur l’Agriculture : du vent ? www.ouestaf.com 
10 African agricultural policies and public finance; monitoring and assessment since Maputo 
WT/CFMC/W/74 
- 22 -In addition to this, the implementation of the CAADP is confronted to major difficulties regarding 
interdependencies between ministries of agriculture and interactions with other sectors in a context of 
limited consultation and action at the intersectoral level. 
Faced with these shortcomings in the implementation of the Maputo Commitment, results falling short 
of expectations in terms of production, equipment and infrastructure, and in order to encourage those 
governments which have decided to make Agriculture the focus of their national priorities, the African 
Heads of State and Government have decided to reaffirm the strong commitment they made for the 
Maputo decade. 
To this end, in June 2014, during the African Union Summit in Malabo, a declaration was made for the 
continent's Heads of State and Government to lead the path towards "Accelerated Growth and 
Transformation for Shared Prosperity and Improved Livelihoods”. This Malabo Declaration not only 
reaffirms the firm commitment of Maputo, namely the allocation of 10% of public resources to 
agriculture, but also presents its own advances compared to the Maputo Declaration. The formulation 
of this declaration takes into account the shortcomings which were brought to light over the past 
decade of the CAADP's implementation. Certain initially marginal issues have taken up a central position 
in the new agenda. In particular, more efforts will have to be made concerning infrastructure 
development, sustainable management of natural resources, land tenure, the development of 
continental and inter-regional trade of agricultural products and services, the promotion of nutrition 
and adaptation to climate change, etc. Areas outside the purview of the Ministry of Agriculture will 
therefore be taken into account, in a multi-sectoral approach. 
Through greater intersectoral cooperation and coordination, the implementation of the CAADP should 
integrate other jurisdictions in addition to agriculture, namely the Ministries of Finance and Planning, 
Industry, Trade, Transport, Energy, Environment and Education/Training, which are needed for 
agricultural growth. 
The implementation of these new guidelines and strategies draws on the two investment plan 
categories known as NAIPs or NAFSIPs at the national level and RAFSIPs at the regional level. The 
implementation of the CAADP under the Malabo Declaration by building on the Maputo achievements 
must build proper innovative funding policies for the agricultural sector, taking all traditional and non-
traditional stakeholders into account in order to meet a variety of investment and funding needs from 
the stakeholders involved in the value chain. To this end, the cotton value chain seems to constitute an 
ideal framework for transforming African agriculture, given its strategic importance, product diversity 
and potential added value.   
2. THE COTTON SYSTEM IN AFRICA: CHALLENGES AND OPPORTUNITIES
Cotton plays an important part in the continent's development strategy. It is cultivated in the 
continent's arid and semi-arid regions, where it commands industrialisation through ginning factories, 
access to credit (cotton cooperative, MFIs), improved infrastructure (access roads for collection, schools, 
health centres), freight (transporting cotton from production areas to ports), the purchase of goods and 
services (with the income gained from cotton). The economies of the regions concerned are therefore 
highly connected to the cotton production cycle.  
Cotton has a knock-on effect on food-crop production through the rotation between cotton and these 
crops. The cotton cultivation system is diversified, insofar as farmers use this system to manage the risk 
related to cotton prices. 
Cotton also makes it possible to develop secondary activities, in particular in the field of craftwork, in 
particular spinning mostly in the case of women and metalwork to repair or manufacture production 
tools. It is therefore also an instrument which promotes income creation and diversification outside of 
WT/CFMC/W/74 
- 23 -farming. 
The contribution of this crop to state budgets, levied to fund activities at the national level, is significant. 
This crop therefore contributes to the national construction effort, despite the difficulties faced by 
stakeholders, in particular small-scale producers.  
 Exchange between rural and urban environments is strengthened by cotton through urban consumer 
markets for artisanal products on the one hand, and rural markets which sell the products of urban 
industries. Industries involved in secondary and tertiary processing of cotton and cotton by-products 
(spinning, textile, cotton oil) are also situated in cities and help create jobs.  
Cotton-producing areas influence public investment in infrastructure (roads, health centres, schools, 
rural electricity, access to drinking water). This reality is more noticeable in rural areas, whose cotton 
production attracts more populations in search of new opportunities.  
We can therefore say that there exists a system controlled by cotton, with the power, in a given region, 
to (I) promote industrialisation, (ii) accelerate the development or craft activities, (iii) provide economic 
opportunities to the youth, (iv) create positive knock-on effects in terms of food security, (v) combat 
migration and terrorism, and (vi) help improve public resources for the benefit of the entire nation.  
It is therefore easy to understand that an imbalance in the cotton system can be detrimental to 
development.  
2.1. Imbalances of the cotton system: a factor for continental and global insecurity 
The cotton system is a stabilizing factor at the regional and global level. Imbalances in the system caused 
by exogenous shocks, such as an unexpected drop in global prices and insufficient processing, which 
stops stakeholders from benefiting from profits made along the value chain, results in negative 
repercussions in terms of poverty, a dearth of employment opportunities, and urban migration, which 
itself causes greater unemployment and insecurity in cities. 
To preserve the stability of the system, some African States have decided to regulate the sector to 
varying degrees, sometimes with public support to implement crucial features. In West and Central 
Africa, this has made it possible to offer support and product and input prices which help the sector's 
stakeholders maintain their income, as well as to offer job opportunities.  These efforts were not able to 
reverse poverty rates and migration in cotton-producing regions.  This trend is likely to continue if 
policy continues to see subsidies as the only means to transform the cotton system. 
The intervention strategy used by public policy must be reconsidered, focusing on the value chain and 
local dynamics involving cotton, if they wish to mitigate the depopulation of cotton-producing areas and 
the development of terrorist activities.  
The cotton system in its current state is unbalanced due to a lack of processing, a lack of ambition in 
improving value throughout the chain, poor penetration of the regional market, and above all the lack of 
interest in local expertise in terms of craftsmanship and manufacturing.  
PACIP is a platform for action to stabilize and develop the cotton system sustainably. To be viable, this 
programme must take into account the value chain, public-private partnerships and innovations based 
on local dynamics. 
2.2. Some stylized facts illustrating the importance of cotton for development in Africa 
The cotton sector plays an essential role in the majority of African economies. A sharp rise is African 
cotton production has been seen in the past few years. Africa's share of global cotton production rose 
WT/CFMC/W/74 
- 24 -significantly, going from 4.1% in 2010 to nearly 7% in 2016. This rise in production can be explained by 
the favourable climate since 2011 compared to previous years and the marked appreciation by about 
20% of the US dollar against the EURO, which took beginning in October 2014, boosting exports for the 
CFA Franc zone. 
Particularly in the leading nations of West and Central Africa, where cotton accounts for a significant 
part of their wealth, GDP growth has proven to be closely related to income from the cotton sector. This 
has a knock-on effect on the rural sector and can reach more than 50% of export revenues for countries 
like Burkina, Mali or Benin over the 2000-2004 period.11 12 
Cotton also contributes in no small way to reducing the risk of vulnerability of impoverished 
populations. It is estimated that 2 to 3 million West and Central African households use part of their 
fields, which measure close to 1 ha on average, to cultivate cotton (Hussein et al., 2005). In Africa, 
around 16 million people therefore depend directly or indirectly on cotton growing as a primary or 
secondary source of revenue. A study (OXFAM, 2003) shows that on top of creating jobs in rural areas, 
income generated by cotton enables populations to contribute to the construction of schools and health 
centres. Exogenous shocks which affect cotton (e.g. a drop in prices) may lead to decreased investment 
in social infrastructures in cotton-producing countries in Africa.13  
Cotton production also contributes to food security, as the resources created help purchase staple 
foods. The intensification of cotton cultivation, by improving the technical pathways for cotton's 
rotational crops, contributes to enhancing food security through better food production. 
By channelling resources into the rural environment and creating jobs, cotton growing has proven to be 
a vector for development in most producer countries. Yet despite the strong growth seen in cotton 
production over the past few years, social indicators have not progressed significantly. In Burkina and 
Mali, for example, respectively the first and second cotton producers in Africa, the majority of the 
population lives well below the poverty line.14  
Furthermore, agriculture revalorisation policies functioning through investment in the cotton sector 
help fight off the urban migration and illegal immigration, which act as an obstacle to sustainable local 
development. This makes it possible to reduce youth unemployment and promote their sedentarisation. 
2.3. Cotton production: a diverse system of crops 
The cotton cultivation system is complex and is guided by a food security strategy in which risk is 
managed by farmers. As year-to-year prices are not fixed, farmers use cereals as a means to mitigate 
potential price declines. If this occurs, cereals will help them protect their food security. This system is 
an effective means for farmers to manage their resources in the absence of a year-to-year price 
stabilisation system.  
African cotton sectors have varying approaches to managing agricultural and economic risks. In West 
and Central Africa, setting baseline prices at the beginning of the agricultural year allows farmers to 
determine how much production will be necessary each year, with the risk that prices set at the 
beginning of the year will far exceed the final price, transferring personal risk to the sector as a whole. 
This approach can work more effectively when backed by a buffer fund. In Southern and Eastern Africa, 
there are hardly any baseline price setting mechanisms. As a result, risk is managed individually, and 
11 Marouani & Raffinot, Perspectives on Growth and Poverty Reduction in Mali, , 2004  
12 UNCTAD in "Global Outlook". ICAC, January-February 2016 
13 Louis Goreux, « Préjudices causés par les subventions aux filières cotonnières », 2003 
14 IMF. 2002 « Mali Selected Issues and Statistical Annex », IMF Country Report, No. 02/1, IMF, 
Washington D.C. 
WT/CFMC/W/74 
- 25 -cotton producers' projections based on the previous year's prices can result in substantial losses in the 
event of interannual changes in fibre prices.  
Each region is in fact developing risk management mechanisms to mitigate the negative impact of high 
price volatility. Southern and Eastern Africa had focused more on financial risk management products 
(namely insurance, compared to West and Central Africa, where states are experimenting with the 
buffer fund mechanism. This mechanism was launched in Burkina Faso in 2008 and is currently being 
tested in Côte d'Ivoire and Cameroon. 
This strategy explains the strong correlation between cotton production and cereal production. One 
study by Devèze (2006) support this hypothesis, showing that 90% of cotton producers grow cereal in 
most regions in Africa.  
The following diagram shows the average production of seed cotton in the world over the 2004-2014 
period. 
Figure 1: Mapping of average seed cotton production in the world 2004-20141  
Source: International Plant Biotechnology Outreach (2017) based on FAOSTAT (2017) data 
The largest production areas are still Asia, America and Australia. We can see that only three (03) African 
countries produced more than 320,000 tons during the 2004-2014 period. These are Burkina, Mali and 
Egypt.  
Indeed, Africa, as shown in the graph below, accounts for 6% of world production, which is dominated 
by Asia and America.  
WT/CFMC/W/74 
- 26 - Figure 2: Share of world seed cotton production2  
Source: International Plant Biotechnology Outreach based on FAO (2017) data 
The African continent has seen considerable fluctuations in cotton production from 2000/2001 to 
2015/2016, which can be broadly divided into three phases. Starting in 2000/2001, production rises, 
reaching a peak of nearly 2 million tonnes of fibre in 2004/2005. This is followed by a sudden drop, 
bringing production back to around 0.9 million tonnes in 2009/2010. This difficult situation, marked by a 
significant decrease in cultivated areas (a drop of nearly 42%) and revenue (a drop of nearly 24%) per 
hectare could be explained by the loss of interest in this crop due to its decrease in profitability. This 
situation was exacerbated, between 2007 and 2010, in the CFA Franc zone, by a persistently weak US 
dollar against the EURO/CFAF, which put cotton exports in the CFA Franc zone at a disadvantage. 
Figure 3: Evolution of African and world cotton fibre production3  
Sourc e: Update on the EU-Africa Partnership on Cotton. January 2017. Based on ICAC, global 
statistics, October 2016 and "Cotton this month", December 2016 
Since 2011/2012, as global prices have become more attractive, average production has recovered 
significantly, but stagnates at around 1.5 million tonnes of cotton fibre, or 6.7% of global production, 
unable to return to its record level of around 2 million tonnes in 2004/2005.   
69%6.00%21.00%1.50%2.10%
Asia Africa America Europe Oceania
10000120001400016000180002000022000240002600028000
8501050125014501650185020502250245026502850
Africa (in thousands of tons) world  (in thousands of tons)
WT/CFMC/W/74 
- 27 -There was also a relative decline in African fibre production compared to the rest of the world from 
2002 to 2010, this trend reversing since 2011, without managing to reach 2002/2003 levels (8.8%). (See 
Figure 4) 
Figure 4: Relative evolution of African fibre production in relation to world production4  
Source: Update on the EU-Africa Partnership on Cotton. January 2017. Based on 
ICAC, global statistics, October 2016 and "Cotton this month", December 2016 
African production is generated in about twenty countries, with much higher yields in a few countries 
which practice irrigation, such as South Africa and Egypt. In the case of rain-fed cultivation, the highest 
yields are seen in West Africa (Côte d'Ivoire, Benin, Burkina Faso and Mali) and Central Africa 
(Cameroon). They are appreciably higher than those generally seen in East Africa.  
Table 1: Cotton fibre production and seed cotton yield expressed in ki lograms of fibre per hectare by 
major producers in Africa over the 2004-2016 period1 012345678910Percentage Africa / World
WT/CFMC/W/74 
- 28 -# Country  Average annual 
production (tonnes of 
fibre) Cotton yield (kg of 
fibre/ha) 
1 Burkina Faso  226 800  408 
2 Mali  169 800  387 
3 Egypt  151 500  801 
4 Côte d’Ivoire  132 000  413 
5 Benin  105 300  428 
6 Cameroon  85 300  483 
7 Tanzania  84 400  210 
8 Zimbabwe  82 600  252 
9 Nigeria  63 100  210 
10 Zambia  54 800  220 
11 Chad  48 000  415 
12 Sudan  38 600  409 
13 Ethiopia  34 500  359 
14 Togo  30 700  299 
15 Mozambique  29 800  190 
16 Malawi  29 700  291 
17 Uganda  23 700  255 
18 Senegal  13 400  382 
19 South Africa  12 000  1004  
20 Ghana  6 600  387 
21 Kenya  6 000  185 
22 Guinea  3 400  254 
Source: Based on ICAC, global statistics, October 2016 and "Cotton this month", December 2016 
With regard to regional production areas, over the 2004-2016 period, West Africa is the leading 
production area with 52.5% of Africa's production, followed by East Africa with 24.1%. West and Central 
Africa is considered to be the main production area, accounting for nearly 62% over the period. 
 Figure 5: Share of African regions in the production of cotton fibre over  the 2004-2014 period5  
WT/CFMC/W/74 
- 29 -S
ource: Internati o
nal Plant Biotechnology Outreach based on FAOSTAT (2017) data 
For the 2015/2016 crop year, production in West and Central African countries reached nearly 1 million 
tonnes, 71% of the continent's entire production. 
Over the 2004-2014 period, as with cotton fibre production, West and East Africa dominates in terms of 
the surface area dedicated to cotton production over the 2004-2016 period (figure 6). 
 Figure 6: Share of African cotton production area by region (%)6 
Source: Based on ICAC, global statistics, October 2016 and "Cotton this month", December 2016 
African production is primarily conventional cotton. Sudan and South Africa were the only countries 
u
sing BT cotton in 2016. However, in the past, Burkina Faso and Egypt have experimented with this new 
technology. Burkina Faso chose to forego BT cotton in 2016, due to the shorter fibre length which 
reduced its competitiveness on the world market. 
Cotton production requires a favourable environment to ensure good crop quality. Africa accounts for a 
quarter of global pesticide use, 50% of which goes towards cotton. Various actions are being 
implemented, however, in an effort to reduce the use of chemical pesticides, for example through 
East Africa : 24.1%
West Africa: 52.5%
North Africa : 
13.3%
Southern Africa : 
0,.8%
Central Africa : 
9.3%PROPORTION BY  
REGION
0 5 10 15 20 25 30 35 40 45 50Central AfricaSouthern AfricaNor
th AfricaWest AfricaEast Africa
WT/CFMC/W/74 
- 30 -I
ntegrated Production and Pest Management (IPPM), or even eliminate the use of chemical pesticides, 
as with organic pro
duction, which currently sees only limited growth, however. 
For the 2015/16 season, the average yield in terms of fibre production per hectare in Africa was 338 
kg/ha with nearly 380 kg/ha for the UEMOA zone.15 However, it should be noted that this yield is much 
lower than the glo
bal yield of nearly 700 kg/ha. Fibre production in Africa is expected to stay at around 
1.5 million tonnes if no action is taken to improve cotton productivity in the field.  
Africa is rife with potential to increase its output by integrating better management of inputs and 
adequate technical routes. 
2.4. Cotton processing: decline of the value chain 
Seed cotton processing generally involves two processes: cotton fibre and cotton seed (see diagrams 
below) 
Diagram 1: Seed cotton processing. 
1 
Source: UNCTAD, Co t
ton facts: International Cotton Advisory Committee and Common Fund for 
Commodities (2003). 
The seed can be used directly in animal feed (ruminants) or crushed and transformed into oil, press 
cakes (animal feed), soap... Cotton fibre is transformed into textile by following the process described in 
Figure 2. 
15 Source: Update on the EU-Africa Partnership on Cotton. January 2017. Based on ICAC, global statistics, October 
2016 and "Cotton 
this month", December 2016 
WT/CFMC/W/74 
- 31 -D
iagram 2: Cotton fibre processing2  
Source: http://abo u
torganiccotton.org/fr/field-to-fashion/ 
Cotton and its by-products (fibre, oil, etc.) are competitive on the global market and in high demand, 
despite the fact that value depends, inter alia, on price, market conditions and the structure of the local 
cotton industry. 
Given these opportunities for African cotton-producing countries, and as a result of government-led 
proactive policies, African cotton-producing regions had a number of textile industries in the 1980s. The 
cottonseed oil industry began growing around the 1990s due to the sharp rise in seed cotton 
production, reduced production of ground peanuts and the growth of the local oil market. Existing 
cotton oil mills were modernised and new mills were built in nearly all cotton-producing areas, 
excepting Senegal.16 
However, due to a n
umber of economic crises and competition from the second-hand market coming 
from developed countries and Asian textile, these countries underwent a process of deindustrialisation. 
The UEMOA region had 41 industrial units in 1980, compared to about 20 today. According to a BOAD 
study conducted in the early 1990s, Benin, Burkina, Côte d’Ivoire and Mali processed 22% of their fibre 
production locally; in 2013, this only applied to 5% of their production, compared to 1% in Central 
Africa.171819  
These decreased r at
es of processing also reflect the closure of a large number of mills, and we can see 
that as the value chain continues to evolve, processing facilities are dwindling, particularly for spinning, 
textile and manufacturing (see Figure 7). 
16 L‘importance et l’avenir du coton en Afrique de l’Ouest : cas du Mali, Karim BAGAYOKO, HAL archives ouvertes, 
2014 
17 Atlas on Regio
nal Integration, Economy series, Cotton, 2007 
18 Study on the identification and promotion of Regional industrial units in the UEMOA cotton sector, March 2003. 
19 Strategy for the development of the cotton-textile-manufacturing sector in Central Africa, June 2011 
WT/CFMC/W/74 
- 32 -Figure 7: Africa's share along the cotton value chain at the global level 
Source: African Centre for Economic Transformation (ACET), 2011 
While this industrial decline is taking place, craftsmanship is making its mark, in particular through the 
remarkable penetration of products from weavers in manufacturing workshops and in African society. 
This dynamic has not yet received adequate support. It remains a major opportunity for job creation. 
This low processing capacity is paradoxical, as cotton strongly contributes to the export revenue of a 
number of African countries, all of whom only have a small foothold in the processing sector.  
The situation is different in East Africa, where 43% of cotton is processed into fibre, as is the case for 
Kenya and Ethiopia. Both countries benefit from a favourable business environment for the textile 
industry, with privileged access to Europe and the United States. 
In addition to measures promoting productivity for cotton, technical and financial partners, and African 
governments especially, must support the development of industrial capacity, craftsmanship and SMEs 
in the cotton sector, in order to support local processing of cotton by-products, thereby strengthening 
producers' resilience to fluctuations in the global cotton market.  
Table 2: Identified issues in cotton processing2  
Processing / by -products  Issues  
Cotton fibre  ginning / production  Lack of agronomic research (integrated pest control, 
post-harvest handling, etc.); 
Low production capacity of ginning plants; 
Reduced efficiency / yield due to low levels of 
mechanisation and irrigation; 
High cost of organic cotton certification. 
Spinning / yarn production  Obsolete and aging machinery;  
Inadequacy and scarcity of qualified personnel; 
Issues with cotton fibre quality; 
Insufficient and sub-standard infrastructure (water and 
electricity supply, transportation). 
Weaving  / fabric and textile production  Obsolete and aging machinery;  
High production costs (public services, manpower, 
taxation) 
Scarcity of skilled workforce; 0%2%4%6%8%10%12%14%16%
Fiber
pro
ductionOil production Yarn
productionProduction of
fabrics and
textilesGarment
production
WT/CFMC/W/74 
- 33 -Lack of access to capital at competitive rates;  
Difficulties in altering existing business systems and re-
educating the workforce; 
Inadequate logistics for export markets; 
Insufficient supply of drinking water and wastewater 
treatment facilities. 
Dyeing and manufacturing / garment 
production Second -hand clothing imports (thrift stores)  
High production costs (public services, manpower, 
taxation) 
Low quality of locally manufactured fabrics to facilitate 
access to external markets 
Poor quality of infrastructure affecting delivery times 
D
espite these constraints, some countries, such as Ethiopia, Kenya and South Africa, have succeeded in 
creating a favourable environment for processing through: 
• the promotion of an attractive business environment for textile investment;
• a skilled workforce trained at a reduced cost;
• the development and implementation of a credit and management policy for cotton industries;
• the introduction of anti-fraud policies, etc.
Ginning costs in Africa (a monopoly) range from USD 0.134 to USD 0.234 per kilogram of cotton fibre. 
These costs are lower than for other types of (competitive, liberalised) industries - between USD 0.123 
and USD 0.18 - and for countries operating at reasonably high capacity utilisation rates (e.g. Zambia, 
Zimbabwe and Tanzania). (World Bank, 2008, op. cit.) 
The continent accounts for less than 10% of global cotton production and remains a marginal partner in 
yarn production with less than 2% of global processing and less than 1% of global value. Nigeria has the 
highest conversion rate with processing at nearly 65%.  
Global press cake production totalled about 14.7 million tonnes in 2009, of which 10.9 million tonnes 
were used for animal feed (FAO, 2012). Cotton press cakes are mainly used in cottonseed oil producing 
countries. The top five cotton press cake producers are China, India, Pakistan, Brazil, India, and the 
United States. These countries account for nearly 80% of world production and consume 75% of this 
production for animal feed (FAO, 2012). The European Union is a minor cotton producer, the two main 
producers being Greece and Spain. EU cotton press cake production was of 139,000 tonnes in 2012 and 
EU imports totalled 15,000 tonnes (USDA, 2013). 
The market's segmentation along the value chain as illustrated by the chart below shows that Tanzania, 
Nigeria, Zambia, and Ethiopia are the only countries with the capacity to participate in both seed cotton 
and textile production. South Africa is the only country in Africa with the capacity to produce both 
textiles and clothing. (Diagram below). 
WT/CFMC/W/74 
- 34 -D
iagram 3: Segmentation by country for each stage of the cotton value chain3 
Source: African Cen
tre for Economic Transformation, 2011 
2.5. Marketing cotton: an overlooked continental market 
Today, the global fibre trade is largely dominated by polyester (55%), followed by cotton (27%). 
Polyester is the only fibre that has seen an increase in market share since 1990. The market share of 
cotton fibre was of 65% in 1960. 
Figure 8: Share of factory consumption of major fibres7 
Source: International Plant Biotechnology Outreach based on FAO (2017) data 
The global fibre market is influenced by polyester and nylon prices. In 2015, the costs of raw materials 
for these two products fell by 41% and 49% respectively, in part due to the drop-in oil prices, resulting in 
a 25% decline in the price of cotton fibre. 
Market growth projections for major fibres from 2015 to 2020 show that cellulosic fibres will have 
stronger growth, followed by synthetic and cotton fibres.  
55%
27%1.30%4.70%2%
6%4%
Polyester Cotton Wool Nylon Acrylic Cellulosic polypropylene
WT/CFMC/W/74 
- 35 -T
able 3: Growth in fibre demand from 2015 to 20203 
Type of Fibre  Evolution between 2015 and 2020  
Synthetic fibres  + 3-4%
Cotton fibres  +1-2%
Cellulosic fibres  +5-6%
Source: Textile exchange (2016) 
On a continental level, Asia, and China in particular, with a 6% increase in fibre use between 2013 and 
2020, is the leading market for textiles, followed by Africa and Latin America with a 1% increase. As for 
Europe and North America, they will experience a 4% drop in usage.  
Diagram 4: Evolution of fibre use (all types) 2013-20204 
Source: Textile exchange (2016) 
Nearly all of African cotton fibre production goes on the global market. This highly volatile market is 
generally a handicap for the sector's development. 
The marketing policy for cotton represents a significant challenge here. Indeed, there is a risk that 
African cotton could lose its natural advantage in terms of quality. Despite the efforts made to reduce 
fibre contamination by foreign bodies, the lack of marketing may tarnish African cotton's image. 
Along with policies for the improvement of cotton productivity, an efficient quality system for the 
marketing chain throughout the value chain (seed cotton collection, ginning management, payment, 
transport...) along with an effective marketing strategy will be necessary.  
Weak regional and continental markets reinforce the dependency on exports from the international 
market, which explains why African cotton is subjected to market fluctuations, that is, price volatility. As 
an example, the A index (in USD cents/Kg) during the 2000 – 2016 period, has seen rates rise and fall, 
reaching nearly 350% growth over the 2009-2011 period.20  
20 The Cotlook A index is designed to monitor the price of raw cotton on international markets 
WT/CFMC/W/74 
- 36 -F
igure 9: Price evolution of cotton fibre from October 1991 to October 2016, according to the Cotlook A 
index, in cents USD
/kg8  
Source: Update on the EU-Africa Partnership on Cotton. January 2017. Based on National Cotton Council 
statistics, 2016. 
African producers, price-takers on the international market, are also faced with "unfair" competition 
from Chinese, American, and European producers, who receive subsidies, thereby undermining the 
competitiveness of the sub-regions' cotton sectors. The C4 countries (Benin, Burkina Faso, Mali and 
Chad) spoke out against this state of affairs at the WTO. The issue remains under negotiation, and 
solutions have proven hard to find. 
To this end, the tenth session of the Ministerial Conference in Nairobi, on 15 and 18 December 2015, 
underscored the following resolutions on cotton: (i) honouring the commitments made by developed 
and developing WTO member countries to promote duty-free and quota-free access for cotton and 
cotton products from Least Developed Countries (LDCs), (ii) the effective implementation of the 
measures and commitments laid out in the Ministerial Decision on Export Competition (WT/MIN 
(15)/45-WT/L/980 adopted on December 19, 2015) by Member Countries, (iii) continued efforts and 
contributions from WTO Members and Development Partners to improve production, productivity and 
competitiveness in the cotton sector in producing developing Member countries, especially LDCs, (iv) 
regular monitoring of the implementation of commitments made in the cotton sector. 
At the local level, the domestic textile market also suffers from organisational deficiencies. This is the 
case in many African countries, including Cameroon, where only 5% of processed fibres are sold on the 
local market. 
Even taken as a whole, Africa has a relative small share of global seed cotton production and plays an 
insignificant role in value-added activities. In fact, Africa only represents 17% of the global cotton fibre 
market (2015/16 crop year).21 Its share is even lower for yarn, fabric and textile production and garment 
manufacturing. 
With r
egard to garment manufacturing, Africa's share fell from 3.60% in 2000 to 2.2% in 2013 (see 
Figure 10).    
21 Source: Update on the EU-Africa Partnership on Cotton. January 2017. Based on ICAC, global statistics, October 
2016 and "Cotton 
this month", December 2016 
WT/CFMC/W/74 
- 37 -F
igure 10: Evolution of Africa's share of the global clothing market9 
Source: ITMF (201
7) 
With regard to the  
UEMOA zone, for example, the graph below shows that fraud and thrift stores 
account for a significant share of the market. This puts the local market at a disadvantage and makes it 
more difficult to harness opportunities in the value chain. 
Figure 11: Structure of the UEMOA textile market10 
Source: Approfondi
ssement des études relatives à la création de deux fonds régionaux d’appui à la 
filière coton textile, Octobre 2009 
Initiatives for the development of the regional market should therefore urgently be supported. The lack 
of such initiatives is in contrast with the remarkable dynamism of craftsmanship, which has penetrated 
urban African markets, and is developing partnerships with the manufacturing field. Penetration 
strategies and the issue of familiarity with this market remain a major challenge, however. 
0.00%0.50%1.00%1.50%2.00%2.50%3.00%3.50%4.00%
2000 2005 2010 20133.60%
3.20%
2.70%
2.20%
49%17%
17%
17%
Fraud Worn Clothing Local production Imports
WT/CFMC/W/74 
- 38 -3. L ESSONS LEARNED FROM EARLIER SUPPORT PROGRAMMES AND
PROJECTS FOR AFRICAN COTTON, FOR THE CONSIDERATION OF FUTURE
ACTIONS
3.1. Cotton support programmes and projects within the EU-Africa cooperation 
The EU-Africa Partnership on Cotton was born out of a desire to overcome the sector's challenges, 
essentially as a result of falling prices. This cotton partnership was approved during the European Union-
Africa Cotton Forum organised in 2004 by the European Commission, with the support of France, the 
ACP Group and CTA. This meeting, which brought together 250 participants from 28 countries and 
regional and international institutions, laid the foundations for this new sectoral cooperation on two 
pillars: 
(i) The ‘Trade’ component, through the establishment of fair trade relations within the
framework of the WTO through the Doha Development Agenda.
(ii) The "Development" component, through the improvement of cotton sector
competitiveness and added value.
To ensure proper monitoring of the development component, a Partnership Orientation and Monitoring 
Committee (COS-cotton) has been in place since 2004, composed of major institutional and private 
stakeholders in the sector. 
The action framework for the EU-Africa Partnership on Cotton is structured into six (6) key focus areas: 
- Improving capacities for the development, monitoring, assessment and updating of
national and regional strategies on cotton;
- Improving the institutional environment of cotton value chains, their internal
organisation and their efficiency;
- Improving internal competitiveness of African cotton sectors;
- Reducing the vulnerability of cotton sectors;
- Increasing the added value generated by cotton sectors;
- Enhancing the efficiency and effectiveness of coordination at the international, regional
and national levels.
Funding for the EU-Africa Partnership on Cotton comes directly from the EU Commission (EUC), 
although a majority of funding for support to the African cotton sector is determined at the national 
level and comes from EU Delegations (EUDs) and Member States. It has the following characteristics: 
- It is specifically targeted at cotton and also includes sectoral budget support to
governments, specifically dedicated to cotton;
- It does not take into account small-scale support to cotton which is integrated into
agricultural assistance or rural development programmes.
Over the 2004 to November 2016 period, out of a total of €648 million dedicated to funding 
projects/programmes for African cotton which are under development, in progress or even completed, 
the share allocated by the EU is estimated at €466 million (72%), including €184 million from the EC and 
€282 million from its Member States. Member States funding African cotton are, in descending order of 
total financing, France, Germany and the Netherlands. 
With regard to EUDs, mention should be made of their leading role in financing support for cotton in 
various African countries through the various EDF programmes. However, support for cotton through 
the EUDs/EDF has been significantly reduced in recent years, as cotton no longer appears to be one of 
the priority sub-sectors which major African cotton-producing countries wish the EU to support, despite 
cotton having a significant impact on food security, which continues to be the priority of the countries 
concerned. 
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- 39 -M
ajor support for African cotton by the EU and its Member States consists of: 
• Support programme
 for the consolidation of the Action Framework under the EU-Africa
Partnership on Cotton
This intra-ACP programme, receiving €11 million from the EC over the 2012-2017 period from the 
10th EDF, implements the EU-Africa Partnership on Cotton more concretely. It aims to contribute to 
sustainable improvements in competitiveness, added value and sustainability for African cotton 
sectors in order to maximise their impact on producers' income. 
 The programme revolves around three main focus areas: (1) The implementation and monitoring of 
regional cotton-textile-clothing strategies; (2) Capacity building for key sector stakeholders; and (3) 
Improving the internal competitiveness and sustainability of African cotton sectors, notably through 
the development of IPPM, improving and promoting the quality of African cotton and supporting 
artisanal textile processing. In addition to the actions carried out by the two programme 
implementing agencies, ITC and FAO, calls for proposals have led to the implementation of several 
projects. Their scope may be national (e. g., Council of cotton & cashew nuts project / Côte d’Ivoire, 
UNPCB and Afrique Authentique SARL /Burkina Faso), regional (e.g., AProCA, ECCAS and CIRAD 
projects) or pan-African (development of a PACRM and drafting of the PACIP with the NEPAD 
Agency mandated by the AUC). 
• Improving producers' incomes and food security through diversified organic production
systems (SYPROBIO)
This 5-year project (2011-2015) focuses on researching organic production and productivity. 
• Support for the cotton sector recovery plan - Côte d'Ivoire.
The EUD's financial support to the cotton sector recovery plan in Côte d'Ivoire falls within the 
framework of the 2010-2017 Flex for €8.7 million. 
This support is organised around three main actions: (i) Support for the revitalisation of cotton 
research (€2.7 million); (ii) Support for the agricultural council (€3 million) and (iii) Consolidation of 
the revitalisation of animal-drawn cultivation (€3 million). 
• France / AFD also supports the cotton sector in Côte d'Ivoire, 2013-2017 with a €23.2
million budget from C2D resources.
This support dovetails well with support funded by the EUD and the World Bank. It is primarily 
aimed at road maintenance, animal-drawn cultivation, producer guidance, strengthening 
cooperatives and supporting inter-branch organisations. 
• Support to raise the incomes of small-scale cotton producers through quality
enhancement and improved market access - Tanzania
This project is comprised of a grant from the Tanzania EUD estimated at €2.5 million and covers the 
2012-2016 period. 
The aim is to improve cotton quality and market access by improving the management capabilities 
of the implementing partner and providing guidance to producers. 
• TCBP project – Sub-regional project to support the development of fair-trade and organic
cotton in West and Central Africa.
This project, with a total cost of €11.8 million for the 2008-2015 period, was partially funded by AFD 
with €4.7 million for AProCA. The aim of this project is to enable cotton producers in four West and 
Central African countries (Benin, Burkina Faso, Mali, Senegal) to profit from the benefits of fair trade 
and organic farming. It aims to improve the competitiveness of the entire cotton sector and to boost 
its promotion on the world market. 
• Project to improve governance, productivity and sustainability in Malian farms.
This project receives €20 million in funding from France / AFD for a total budget of €20 million (co-
financing from CMDT, IER, CIRAD and producers) for the 2007-2017 period. The project has four 
components: (i) improving the productivity and sustainability of family farms, including the 
development of management advice for family farms (MAFF); (ii) capacity building / 
WT/CFMC/W/74 
- 40 -professionalization for the cooperative union network; (iii) support for the development of 
coordinated public policy in cotton-producing areas; and (iv) project steering. 
• Initiatives for the development of conventional cotton production under private labels
based on social, economic and environmental criteria.
This initiative covering a ten-year period covers "Cotton Made in Africa (CmiA)" labels, partly 
financed by German cooperation and the "Better Cotton Initiative (BCI)" partly funded by the 
Netherlands. The production of conventional cotton under these labels has seen significant growth in 
recent years. It involves several African countries (Benin, Burkina Faso, Côte d'Ivoire, Cameroon, 
Ethiopia, Malawi, Tanzania, Zambia...). 
Lessons learned from the cotton programmes under the EU-Africa partnership include the following 
points: 
• mechanisms require institutional anchoring (formal partnerships, integration into
national policies and strategies);
• preventing cotton contamination at the production level is essential and must gradually
be internalised into the cotton industry (national and regional political action);
• coordination between Farmer Field Schools (IPPM) and Farm advisory services must be
improved
• a brand image needs to be developed for African cotton;
• a marked trend towards the development of cotton produced under a variety of labels
based on sustainability criteria/indicators;
• diversified supply: encourage African producers to seek alternative suppliers in
developing countries to generate savings when purchasing inputs (seeds, fertilizers and other
technologies);
• encourage the development of intra-African and South-South cooperation.
In addition to these lessons, developments in the liberalisation of agricultural sectors have brought 
new challenges into focus for African cotton sectors: 
- the importance of properly redefining the state's role in regulating privatisation and
development actions (institutional framework, research, infrastructure, etc.);
- a better funding strategy for the sector, particularly in terms of agricultural advisory
services;
- the sustainable development of the value chain within the framework of a public-private
partnership where each partner's role, as well as the funding structure (subsidy, loan,
equity...) are clearly defined.
3.2. Regional cott on support strategies 
Several regional cotton programmes have been or are being developed to boost the cotton/textile 
sector and increase its competitiveness on the world market. They are developed as part of regional 
strategies supported by the cotton component of the All-ACP Agricultural Commodities Programme 
(2007-2012) that preceded the intra-ACP Cotton Programme (2012-2017): these are: 
 The revised strategy for the implementation of the Agenda for competitiveness in the 
UEMOA cotton-textile industry 2011-2020; 
 The regional strategy for the development of the cotton-textile-manufacturing sector in 
Central Africa (ECCAS) 2011-2020 and 
 The regional strategy for the COMESA cotton-clothing value chain (2009) 
With regard to the UEMOA cotton programme, prior to the revised strategy (2011), an Agenda for 
Competitiveness in the cotton-textile industry was adopted in 2003. Its vision was to process a quarter 
(25%) of yearly cotton fibre production within the Union, with the anticipated direct and indirect 
impacts in terms of added value, job creation, etc. It was structured around six (06) focus areas:  
WT/CFMC/W/74 
- 41 - Create a regional fund to stimulate production and encourage local processing of cotton 
fibre; 
 Establish a regional investment fund for the development of UEMOA textile craft and 
industry; 
 Initiate a sectoral dialogue on all actions to be implemented to promote the sector's 
competitiveness; 
 Develop and implement a regional textile trades training program; 
 Establish a regional network of specialized textile technical centres and 
 Launch an active communication and promotion campaign for the Agenda. 
The agenda's assessment at the close of its 2010 deadline was not very impressive, despite the 
institutional arrangements put in place for its implementation.  
The key factors which explain its poor performance are as follows: 
• A lack of instruments necessary for the mobilisation of the private sector to meet
funding requirements.
These factories, most of which are state-owned, have experienced difficulties as a result of
internal management problems, leading to a debt cycle that has resulted in reluctance from
financial institutions to grant loans and suppliers to provide raw materials;
• Obsolete production units and ageing or idle staff lacking any real experience;
• A lack of any concrete measures to combat the importation of counterfeit industrial
products (Chinese products in particular) imitating local handicrafts;
• Competition from European and American thrift stores;
• The lack of financial support for local small-scale manufacturers (craftsmen, spinners,
etc.) who are faced with high investment costs (production factors: energy, transport,
manpower, raw materials);
• National export policies, based on exporting all production as raw material (fibre);
• The high price of uncompetitive local finished products;
• The lack of qualified staff;
• Stakeholders in the sector are poorly organised;
• Massive subsidies to cotton farmers in developed countries (external).
To revitalise this Agenda (2003), a revised implementation strategy was drawn up in 2011. Building on 
the same vision, the general objective of the revised strategy for the implementation of the agenda for 
competitiveness of the cotton-textile industry is to ensure growth for textile and clothing, promote the 
successful recovery of the regional market and a sustainable presence on the international market, and 
aim for a 25% processing rate for fibre by 2020. Implementation is scheduled over a ten (10) year 
period. 
In order to achieve this general objective, the following five (05) strategic objectives have been 
identified: 
 Improve the productivity of the cotton-textile industries in the UEMOA zone; 
 Improve cotton quality in the UEMOA zone; 
 Support the growth and promotion of UEMOA cotton and textiles in regional and 
international markets; 
 Expand local processing of cotton fibre, and 
 Foster the growth and promotion of the oilseed industry (Cottonseed) 
The main beneficiaries of this revised strategy are 
• Actors in the cotton-textile sector operating under a public-private partnership
framework;
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- 42 -• Public authorities, as the various Agenda documents can serve as a springboard for the
development and planning of policies and programmes in the sector;
• Political actors for whom the Agenda will be used as an instrument to combat poverty in
rural areas and unemployment and to improve macroeconomic growth rates.
With regard to the Regional strategy for the development of the cotton-textile-manufacturing sector in 
Central Africa (ECCAS), as with the UEMOA strategy, it covers a ten (10) year period, with a budget of 
nearly $20 million. It was developed around a vision "to make cotton a competitive and integrated 
industry, producing quality cotton and cotton-derived products that are recognised and marketed on 
regional and international markets and contributing sustainably to the fight against poverty through a 
fair redistribution of income".  
To achieve this, ECCAS has set itself the objective of making the sub-region's cotton and derivatives 
genuinely competitive on local, regional and international markets so that it may significantly contribute 
to reducing the poverty of their populations by 2020.  
Five focus areas have been selected to achieve this objective, namely: 
 Increase cotton production (seed and fibre) by improving productivity and profitability; 
 Improve and guarantee the quality of the sub-region's cotton; 
 Support and develop fibre processing in the sub-region; 
 Further promote and market the sub-region's cotton and textiles on regional and 
international markets and 
 Develop and improve the promotion of products derived from crushing cotton seed. 
Achieving these objectives will help support activities that affect the entire value chain, the main 
beneficiaries of which are: 
• Producers and their organisations;
• Research, technical support and counselling services;
• Stakeholders in the weaving industry;
• Manufacturers and designers and
• Bankers and insurers;
Moreover, a capacity building programme is planned for stakeholders concerning the promotion and 
marketing of cotton, textiles, design and manufacturing to assist in the strategy's implementation. 
The regional strategy for the COMESA cotton-clothing value chain aims to promote an integrated and 
competitive cotton-clothing value chain.  
COMESA, in order to achieve its vision, is targeting three major sub-sectors: (i) the cotton sub-sector; (ii) 
the textile sub-sector; and (iii) the garment / clothing sub-sector. A number of strategic objectives have 
been identified for each sub-sector. 
For the cotton sub-sector, eight (08) strategic objectives have been defined in the COMESA area: 
 Reduce contamination and increase price levels; 
 Develop a transparent cooperative system based on compliance with rules between 
farmers, ginners and traders; 
 Increase added value for direct beneficiaries such as farmers / ginners through by-
product diversification, among others; 
 Reduce risk for cotton growers / ginners and ensure a more stable income stream; 
 Improve agricultural productivity and expand high-quality production 
 Ensuring high fibre quality through input supplies, including HVI measurements; 
 Increase cotton marketing capabilities to effectively market African cotton and capture 
the potential for high prices and 
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- 43 - Provide members with an effective institutional infrastructure 
As regards the textile sub-sector, the strategic objective is to: 
 Improve competitiveness and expand trade in the textile sub-sector; 
 Diversify product offerings and improve manufacturing efficiency in the clothing sub-
sector; 
 Diversify markets in the clothing sub-sector and 
A review of regional cotton strategies shows that RECs have still not properly implemented their 
regional cotton strategy, UEMOA being the one partial exception. This regional organisation is still far 
from reaching the target of processing 25% of fibre production. There are several reasons for these poor 
results in terms of achieving objectives and/or programme implementation, including: insufficient 
capacity building for RECs, a poor business environment and insufficient state involvement in supporting 
the cotton value chain. 
3.3. Cotton support programme for C4 countries 
C4 is the initiative of four sub-Saharan African countries: Benin, Burkina Faso, Mali and Chad. These 
countries togeth er export more than half of Africa's cotton and this crop generates a significant share of 
export earnings. Despite the achievements mentioned above and their undisputed potential, C4 
countries have not been able to take full advantage of the economic benefits offered by the cultivation 
of "white gold", unlike emerging powers such as Brazil or India. These countries remain within the 
category of Least Developed Countries (LDCs) with very low human development indices. This is mainly 
due to a lack of competitiveness in the cotton/textile sector, low investment in processing (including 
artisanal processing for the C4 countries' domestic and regional markets) and an unrewarding business 
environment.  
In order to overcome these obstacles and allow the population to benefit from opportunities in cotton, 
the C4 countries, while also reconciling their REC (UEMOA and ECCAS) cotton strategies, have developed 
a cotton programme entitled "C-4: Fostering the Cotton Road". The programme operates in a fourfold 
context: (i) the sectoral initiative for cotton; (ii) the implementation of the poverty reduction strategy 
papers (PRSPs) of C4 countries; (iii) the implementation of the trade facilitation negotiations mandate; 
and (iv) the implementation of the Aid for Trade initiative. 
The C4 programme aims to improve the productivity and competitiveness of the cotton/textile/clothing 
sector in order to promote local transformation and valorisation of cotton in order to diversify its 
prospects on both sub-regional and international markets with a positive impact on the creation of 
direct and sustainable employment for its populations. A seven-year implementation period is planned, 
the first four (04) years of which will serve as a pilot phase for the implementation of the program, 
followed by an acceleration phase for the last three (3) years. 
Five strategic objectives support this goal: 
 Improve the business environment to increase investment in the cotton sector, which 
could have a positive impact on the sector's industrialisation; 
 Improve the quality and raise the price of seed cotton in order to increase producer 
income and the profitability of cotton companies; 
 Increase the productivity of cotton companies and textile and clothing companies 
resulting in increased competitiveness for cotton and textiles; 
 Diversify cotton products and promote the distribution of cotton and its derivatives on 
the regional market and 
 Increase intra- and inter-regional trade in cotton by-products, textiles and clothing. 
A USD 20 million package is being considered to achieve these goals. 
WT/CFMC/W/74 
- 44 -D
irect beneficiaries: 
• Rural cotton produ
cing communities;
• Stakeholders in cotton processing (artisanal and industrial)
• Micro, Small and Medium Sized Enterprises (SMMEs) that market and export
cotton/textile and its derivatives.
Indirect beneficiaries: 
• Trade and investment support structures;
• Quality control and standards bodies, testing laboratories in C4 countries and the West
and Central Africa sub-region;
• Ministries responsible for Trade, Industry, Agriculture, Economy and Finance (customs
administration in particular).
Ultimate beneficiary: 
The civil society of the C4 countries and more generally that of West and Central Africa, a region 
engaged in a process of extensive regional integration (with free movement of people, goods, services 
and capital, in particular for UEMOA). 
3.4. Other cotton programmes 
USAID C4CP Programme 
The USAID C4CP project is a four-year, $14.8 million project (2014-2018) to improve food security in 
target areas in C4 c o
untries. The project's strategic objective is to increase the incomes of male and 
female cotton producers and processors in targeted areas. The USAID C4CP project focuses on cotton 
and rotational crops, mainly cereals and legumes. 
The project has three objectives or intermediate results (IRs) to facilitate the realisation of its strategic 
objective: 
 Support for increased agricultural productivity is promoted through regional, national 
and other stakeholders; 
 Partnerships that promote the growth of the cotton sector are strengthened and 
 Fostering an environment conducive to strengthening the economic and social power of 
women producers and processors. 
The project is being carried out in collaboration with approximately 40 regional and national 
implementing partners. Project stakeholders include stakeholders at every stage of the cotton value 
chain in the region at the national and local levels. 
OIF Project on the intensification and diversification of the cotton and textile industries 
This OIF project is predicated on the obvious complementarities between cotton value chains and 
textile-clothing  
value chains. Despite the existence of real opportunities, intra-firm and / or inter-
sectoral partnerships are rare; the needs of countries engaged in processing and transformation is 
estimated at more than 10 million tonnes per year and can be partially met by offers from African 
cotton producing countries  whose annual production is currently estimated at 1.5 million tonnes. 
On the drawing boar
d since 2016, this OIF project is approaching the implementation phase. The 
Francophonie approach aims at facilitating the bridge-building between African cotton producers and 
Francophone textile-clothing producers in two complementary areas, namely: 
•Axis I: Supply and purchase contracts with predictability of parameters
•Axis 2: Co-investment agreements for expansion of local cotton processing units
WT/CFMC/W/74 
- 45 -As such, even if the OIF project goes beyond the ACP geographically, it is in coherence with the PACIP 
and especially with its second and third strategic axes which aim at increasing investment in the 
processing of cotton and its co-products and improving their marketing. 
A brief analysis of the achievements of the different cotton programmes already developed in Africa at 
the national, regional and continental level can offer a few insights: 
- An effective multi-stakeholder framework (RECs, governments, value chain operators, technical
and financial partners, research) is necessary in order to better coordinate actions and thereby
contribute to the effectiveness of measures;
- The cotton system's enhanced role and alignment with the CAADP (methodologically and
strategically) to fight poverty, generate income, improve food and nutrition security, agricultural
resilience and post-conflict reconstruction;
- Greater coherence between regional actors (NEPAD Agency/AU Commission, RECs,
governments, private sector, producers) among themselves and with other stakeholders (EU-
ACP, other technical and financial partners) for the programme's execution and resource
mobilisation;
- A lack of African cotton processing despite commitments made through national, regional and
continental programmes;
- A lack of private investment in the cotton sector, in particular in West and Central Africa;
- The issue of scaling for the concrete results which were obtained and of production of expected
impacts, even after significant time has passed since the implementation of these programmes;
- Sharing the capitalisation on comparative advantages which regions possess by focusing on
production, processing and marketing;
- Efficient implementation of investment programmes is effective if investments are supported by
countries with support from RECs and the AU/NEPAD and other stakeholders (professional
associations, TFPs, etc.);
- A lack of support for regional dynamics (craftsmanship, tailors, etc.),
- Cotton is not taken into account as a driver for infrastructure development (school, health
centres, rural roads), the fight against terrorism, post-conflict reconstruction, as well as the
development of regional and continental cotton and cotton by-product markets.
In light of these lessons learned, PACIP will have to focus on process appropriation by NEPAD/AU, cotton 
processing, the integration of intra-African trade, capitalising on pre-existing resources, developing 
stakeholders' capacities, promoting the private sector and the continental market, and supporting local 
dynamics. Simply put, PACIP must help the cotton system strengthen its capacity to contribute to 
development to its fullest extent, by combating terrorism and immigration, and by contributing to 
conflict prevention and post-conflict reconstruction.  
3.5. Coherence between PACIP and regional programmes (regional cotton strategies and C4) 
The PACIP development process aims to (i) promote coherence between all programmes at the 
continental level and align them with the Malabo agenda, and (ii) set up a reference programme which 
takes all the initiatives of African regional organisations and/or groupings (regional programmes, C4 
programmes and the EU-Africa programme on cotton) into account in order to better coordinate 
partners' interventions in this sector. 
Table A (appended) highlights a range of programmes on the continent focusing on the concerns of RECs 
and the C4 programme. These programmes cover the different areas of the value chain with a regional 
and continental focus. The table shows that PACIP covers all of the activities of the regional 
programmes. 
WT/CFMC/W/74 
- 46 -I
n the absence of a continental referent, these different programmes are poorly connected to each 
other, which coul
d prove to be a source of inefficiency at the continental level.  
Diagram 5: Coherence framework between PACIP and regional and national cotton programmes5  
PACIP is an opportu n
ity to take all of the concerns expressed by the continent's different regions into 
account within a common framework, the experience of the EU-Africa partnership, political support 
within the framework of the African Union with the NEPAD agency and addressing emerging 
development issues (immigration, food security, etc.). 
4. PACIP: A NEW COTTON AGENDA FOR SUSTAINABLE, INCLUSIVE AND
AMBITIOUS DEVELO P
MENT
The PACIP initiativ
e focuses on crucial issues related to the development of the cotton system in 
general, and more specifically to the consolidation and expansion of the value chain.  It is predominantly 
concerned with its transformation and funding, the promotion of public-private partnerships, the 
government's leadership in the implementation of a favourable business climate and cotton's role in 
rural development.  
PACIP is not intended to replace other programmes (regional strategies, C4 programmes, etc.). It 
provides them with a strategic framework to make all interventions in the cotton sector coherent at the 
continental level. PACIP therefore operates in accordance the principle of subsidiarity. There is therefore 
no programme duplication, as it is intended to take existing programmes into account, while avoiding 
overlap and optimising the mobilisation and management of resources for the cotton sector.  
4.1. PACIP intervention strategy: a new philosophy of change 
The policies introduced for cotton value chains failed to achieve expected results because objectives 
were not clearly defined and chosen methodologies were not monitored and evaluated in the absence 
of an overall framework. It is impossible to drive change in this sector without an ambitious global 
WT/CFMC/W/74 
- 47 -p
olicy, which takes into account value chains, the system's specific dynamics (craftsmanship, local 
markets), and unfavou
rable environmental factors (insecurity, climate change). Cotton is at the heart of 
a system comprised of a value chain, public and private investment, a large infrastructure component 
(roads, health centres), urban migration and climate change. But cotton is also at the heart of the 
changes in this system because it is the key component for driving change in production areas.  
These changes which are conducive to development can only be made if strategy takes the following 
guidelines into account: 
1. Anew policy agenda for cotton based on the Malabo agenda with African leadership, focused on
reforming the business climate and commercial policies, including instruments combating the
trade of second-hand clothes (hygiene and tax);
2. Developing the private sector (including at the local level, paying special attention to small-scale
producers and craftsmen) as a driver of change. It is no longer possible to consider cotton as a
social sector which can only develop with the help of subsidies. "Subsidies only" policies
have shown their limits in this sector, and a new model is urgently needed. Public private
partnerships should be seen as a valuable option;
3. Taking the cotton-textile-clothing value chain into account is a key to this new agenda's success.
Ambitious investment policies have been developed in the past. They did not live up to
expectations because they focused mainly on public funding. Policy support, in particular
concerning business environment, proved unable to put in place effective trade policy
instruments to combat unfair competition. Moreover, the principle of subsidiarity was not
properly implemented so as to provide an environment to assist countries with the support of
RECs and the AU;
4. Supporting local dynamics (craftsmanship, professionalization of small-scale producer
organisations) and the development of the regional market will be essential to making a real
difference. Developing stakeholders' capacity is an essential element for local stakeholders to be
competitive both on regional and international markets. This capacity development must come
with innovative funding which is adapted to the needs of the value chains (e.g. blending);
5. Due regard for subsidiarity in the implementation of PACIP. PACIP takes the initiatives of the
sector's various stakeholders into account while reinforcing their effectiveness depending on
their scope of action. With this in mind, the programme strengthens coordination, capacity
building and sharing of experiences so that each actor can effectively play his or her part in
achieving joint objectives.
4.2. Comparative advantages of the investment programme 
These specificities are reflected in the pursuit of comparative advantages such as: 
(i) The optimisation of the last two programmes' achievements, by maintaining pilot
structuring actions and strengthening the coordination of existing cotton partnerships.
(ii) Strengthening the role of African institutions in coordination and implementation by
placing governments and RECs at the heart of coordination activities, and stakeholder and
professional organisations in operational structures.
(iii) Facilitating the mobilisation of supplementary resources through formal frameworks for
the promotion of public-private partnerships and the establishment of a business forum
and a policy and technical and financial partner forum.
(iv) The alignment of the cotton strategy with the CAADP in the context of Malabo and of the
other action plans by strengthening advocacy for cotton as a "pioneering and strategic"
value chain and developing cotton's role in food and nutrition security, the fight against
poverty and post-conflict reconstruction;
WT/CFMC/W/74 
- 48 -(
v) T aking into account local dynamics as well as the development of the continental cotton
and cotton by-pro
duct market.
4.3. Methodological approach for the programme's development 
The methodology for the development of the PACIP initiative is structured around a few key steps: 
(i) A consensus on broad guidelines (Pan-African Cotton Road Map (PACRM))
A Pan-African Cotton Road Map (PACRM) was developed on the basis of the concerns raised by all 
stakeholders through a participatory and inclusive process. The PACRM therefore represents 
stakeholders' ambitions for the transformation of the cotton sector in Africa. To this end, this 
agenda takes into account all proposals for the development of the cotton value chain in Africa. In 
order to arrive at the formulation of a pan-African cotton roadmap, UNCTAD's expertise was 
initially mobilised, in particular with regard to practical guidance to support the development of 
agricultural value chains. Continuing within the cotton programme, the resulting consensus 
document underwent technical validation from stakeholders and strategic validation during 
subsequent COS-Cotton meetings. 
(ii) A phase aligning the PACRM with the CADDP
Discussions then began on the need to align pan-African interventions for cotton with the 
framework for strategic investment planning for the agricultural sector, on the basis of a finalised 
PACRM document. The aim here was to reintegrate cotton into a sectoral framework of support 
for agriculture in order to provide direction at the pan-African level. Another objective was to tie 
the development of the cotton value chain to the key challenges of climate change, poverty 
alleviation and enhanced resilience of production systems. In practical terms, the strategic goals 
of the roadmap should be integrated into a more comprehensive agricultural investment 
framework, the CAADP (PDDAA), and coordinated by the NEPAD Planning and Coordinating 
Agency (NPCA). 
This phase of alignment with the CAADP revealed the need to operationalise the PACRM as a pan-
African investment programme for cotton, whose operational approach and intervention and 
monitoring-assessment methodology would be modelled and integrated into the CAADP. 
Likewise, the institutional mechanism for coordinating stakeholders, engaging the different 
intervention structures (stakeholders, governments, RECs, pan-African) and mobilising financial 
resources for the implementation of the investment programme would be based on the CAADP 
model.  
(iii) A participatory stakeholder consultation process
The development of PACIP required extensive consultation concerning: 
o State actors. These are the governments, RECs and their specialised structures (WECARD, 
research centres, etc.). 
o Technical and financial partners. Among these partners we find the EU/ACP secretariat (which 
has already led the two previous programmes), FAO, ICT, UNCTAD, etc. 
o The sector's professionals (producers, processors, craftsmen, etc.) 
This consultation mechanism mobilised different consultation frameworks to (i) gather 
stakeholders' needs, (ii) discuss potential guidelines, and (iii) validate the guidelines for the 
development of the Investment Programme. 
With this goal in mind, individual interviews were held with stakeholders or stakeholder groups by 
the consultants. The Ouagadougou workshop from March 27 to 31, 2017, organised as part of the 
Intra-ACP Cotton Programme in March 2017, provided an opportunity for a broad consultation of 
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- 49 -t
he many stakeholders, and the COS-cotton meetings were an opportunity to reconcile and 
validate guidelines
. 
(iv) A formulation and validation phase
Once these consultations had been carried out, the two consultants presented a draft of PACIP at 
the Ouagadougou workshop and received the observations and suggestions of participants. The 
draft report was sent to NEPAD in late April 2017. COS-cotton meetings and discussions with 
professional associations in the sector allowed to collect their feedback to improve the report. 
The draft report was presented to the ACP Cotton Working Group in June 2017 for input and 
feedback. 
(v) Harmonization with the C4 Cotton Road Program.
The first four phases of the development of PACIP were completed in mid-2017. In order to take 
the C4 programme into account, as requested by C4, with the technical support of the 
International Trade Centre (ITC) and validated at the C4 Expert and Ministerial meetings, the ACP 
Secretariat, in collaboration with the NEPAD agency, developed a framework for dialogue with C4 
countries. To address the need to maintain a single planning framework for the cotton 
development component, and following several working sessions on the issue (Informal 
Consultative Meeting on Cotton; WTO Director-General's Consultative Framework Mechanism for 
Cotton and Special Session on Trade-Related Developments for Cotton; Meeting of the Working 
Group on Cotton in Brussels), a consensus emerged on the need to harmonise the Pan-African 
Investment Programme on Cotton (PACIP) with the "Cotton Road" Programme, as they both focus 
on the development of the cotton sector, with similar objectives and activities. 
This consensus paved the way for this fifth phase, started from August 2017, in which the two 
programmes are harmonized: 
- This amendment will incorporate aspects which are not adequately addressed and are
essential to the development of the cotton sector;
- By introducing a unified technical and political coordination framework on issues related
to the development of cotton, which incorporates all currently available mechanisms.
This harmonisation has led to a new phase of consultation between the two Expert teams responsible 
for drafting an amended investment programme and an operational project. 
4.4. PACIP objective, strategic goals and expected results 
Overall objective 
The objective of PACIP is to promote the sustainable, inclusive and ambitious development of the cotton 
sector, in keeping with the Malabo agenda. This will involve the development of competitive value 
chains to increase the resilience of cotton-producing regions. 
Strategic goals/results 
In order to achieve the above-mentioned general objective, five strategic goals/results have been 
identified: (i) Increase producers' incomes and cotton productivity, (ii) Increase investment in cotton and 
cotton by-product processing, (iii) Improve cotton and cotton by-product marketing, (iv) develop the 
capacities of institutions and professional cotton-textile-manufacturing organisations and (v) increase 
the cotton system's contributions to the achievement of SDGs.  
The following diagram sets out the PACIP results framework 
WT/CFMC/W/74 
- 50 -Di
agram 6: PACIP results framework6  
FINAL RESULT:
COMPETITIVE VALUE CHAINS AND COTTON-
PRODUCING REGION RESILIENCE ARE 
IMPROVED
GOAL 1: 
PRODUCER INCOME AND 
PRODUCTIVITY HAVE 
IMPROVED
Cotton 
productivit
y in the 
field had 
improved
Cotton 
producer 
incomes 
have 
improved
GOAL 2: 
COTTON AND COTTON BY-
PRODUCT PROCESSING 
CAPACITY HAS CONSIDERABLY 
IMPROVED
Added 
value 
generated 
through 
industrial 
and 
artisanal 
processing 
has 
increased
Investment
in the 
processing 
of the 
sector's 
products 
has been 
promoted 
in all 
African 
countries
GOAL 3: 
COTTON AND COTTON BY-
PRODUCT MARKETING AND 
CONSUMPTION HAS 
CONDISERABLY IMPROVED
Improved 
quality, 
reputation 
and the 
"African 
cotton" 
label have 
been 
promoted 
on global 
markets
Regional 
trade of 
cotton 
products 
and by-
products 
has been 
promoted
GOAL 4: 
COTTON-TEXTILE 
INSTITUTION AND 
PROFESSIONAL 
ORGANISATION 
CAPACITIES ARE 
REINFORCED
Knowledge 
manageme
nt and 
strategic 
monitoring 
are in place
Regional 
training 
centers and 
training 
initiatives 
are 
revitalised
Programme 
governance 
is effective
GOAL 5:
THE COTTON SYSTEM'S 
CONTRIBUTION TO 
SDGS IS REINFORCED
The cotton 
system's 
contribution 
to combating 
food 
insecurity, 
malnutrition 
and extreme 
poverty is 
reinforced
The cotton 
system's role 
in job 
creation, 
economic 
opportunity 
and reduced 
migration has 
improved
The cotton 
system's 
contribution 
to conflict 
prevention 
and post-
conflict 
reconstructi
on has 
improved
WT/CFMC/W/74 
- 51 -Result 1: Producer income and productivity have improved 
Context 
In Africa, cotton-producing areas are mainly found in arid and semi-arid areas of Sahelian countries, 
where opportunities for a decent income are rare. Just in the West and Central African region, around 
16 million people live from cotton. In African countries whose main crop is cotton, it represents 75% of 
household incomes.  
The importance of cotton for households is threatened by its low productivity. Cotton yields in fields is 
below 50% of worldwide yields and yields for a majority of African countries does not exceed one tonne 
of seed cotton per hectare, even though some farms can yield well over 2 tonnes per hectare.  
Production has been marked by the withdrawal of governments from the sector, with weakened 
agricultural counsel. Farmers' organisations are attempting to take their place, with the help of cotton 
companies. This new responsibility is an additional burden for cooperatives attempting to develop 
economic activity through joint input purchases and by providing services to their members, such as 
credit. These new activities require an appropriate legal framework for these organisations to be more 
effective. This is not always the case.  
In West and Central African countries, OHADA cooperative law weakens cooperative companies in the 
short term as it modifies their status and organisation without providing any assistance to ensure their 
compliance. Without proper assistance, this new law could disrupt the organisation of production and 
become a burden for family farming, the main production source for this region, while frustrating efforts 
to transform it into agricultural enterprise. 
PACIP intervention approach 
In order to achieve this strategic goal focused on production, the PACIP programme will implement 
several activities for the achievement of the following results: (i) cotton productivity has improved and 
(ii) producers' incomes have improved.
a. Cotton productivity in the field has improved
The PACIP programme is planning actions which will aim to encourage regional and international 
cooperation related to scientific and technical training and support for cotton. This cooperation will 
contribute to developing African cotton research, particularly with regard to the diversification of 
technical cultivation pathways. For this the programme will support: 
- Regional centres of excellence for cotton, to accelerate the provision of high-yield
varietals, pest control and new cultivation techniques, to adapt to environmental changes
brought on by climate change;
- Meetings among researchers at the regional at international level;
- Low-cost access to inputs through joint purchase agreements;
- Agricultural counsel, by exploring partnerships between research and FOs.
b. Producers' incomes have improved
The PACIP programme will prioritize the following activities: 
- Support for the transition from family farming, which is highly vulnerable to climactic
and economic variations, to highly resilient family-centred agricultural businesses, by improving
farmers' organisations, focusing for example on assisting the implementation of the OHADA
reform in cotton-producing countries;
WT/CFMC/W/74 
- 52 -- Developing FOs' economic services for their members, in particular the joint purchase of
inputs and partnerships with credit institutions for access to funding;
- Developing partnerships between FOs and businesses operating in the sector
- Advocacy for improved policies in terms of production.
Result 2: Investment in cotton and cotton by-product processing has increased 
Context 
Cotton processing is a significant challenge for the sector's stakeholders. Representing about 18% of 
global cotton fibre exports for the 2016/2017 year, Africa only processes 2% of its production.22 This low 
rate of processing  
leads to significant losses for stakeholders, in particular in terms of added value for 
the production, and even more so in terms of youth job creation.  
There has been a sharp decline in the number of cotton-textile-manufacturing-furnishing industrial units 
in Africa throughout the value chain. This number has gone, in the UEMOA region, from around forty in 
the 1980s to about twenty today. The more we climb the value chain, the more this decline is severe. 
Local dynamics, represented by blacksmiths, weavers and other craftsmen are a tremendous 
opportunity for employment. These initiatives lack assistance and are not taken sufficiently into account 
in public policy. 
In order to promote cotton and cotton by-product processing, the PACIP programme places special 
emphasis on this component, which will play a pivotal role and have a significant impact throughout the 
value chain. 
PACIP intervention approach 
The PACIP programme includes several components pertaining to cotton and cotton by-product 
processing.  
Through this result, PACIP will achieve two effects: (i) added value has been created through industrial 
and small-scale (entrepreneurial) processing of cotton fibre and by-products and (ii) investment in 
processing for the sector's products has increased in all African countries.  
a. Increased added value through industrial and small-scale processing
PACIP will first establish a high-level policy framework and commercial and other instruments to 
promote processing, which will generate a conducive environment for the processing of cotton 
products. To achieve this, the programme will create a discussion framework for stakeholders in order 
to influence policy in favour of cotton processing. 
PACIP will then support the improvement of agro-industrial companies (general management, quality 
management, ISO certification, access to funding, etc.). To achieve this, PACIP will identify agro-
industrial stakeholders and provide them with capacity development training on quality management, 
certification standards, Corporate Social Responsibility (CSR), etc.  
The programme will support: 
- Initiatives for small-scale processing (weavers, spinning, blacksmiths, etc.) to develop
their expertise in terms of quality production to become competitive on national and
international markets;
22 COS-cotton, 2017. Update on the European Union - Africa Partnership on Cotton 
WT/CFMC/W/74 
- 53 -- The establishment of a fund for feasibility studies concerning the creation of new
businesses or increasing the capacity of existing businesses in terms of cotton and cotton by-
product processing, with a focus on regional projects;
- Research, through the creation of a centre of excellence for technology, in order to
monitor and facilitate the adoption of new technologies and manufacturing processes, as well as
to increase the yields of existing production units;
- The mapping of processing technologies and stakeholders in order to better assist the
growth of industrial productivity and technological transitions;
- Improving cotton-textile-oil mill-clothing companies, craftsmen (spinners, blacksmiths,
weavers, dyers, tailors/designers) throughout the value chain, building upon the experience of
UNIDO, ITC and various African stakeholders.
b. Promoting investment for the processing of the sector's products in all African
countries
PACIP will mobilize private investment and financial resources for the cotton-textile-clothing industry. 
To achieve this, the programme will focus for example on: 
- Business networking meetings (business forums) every other year, one in Africa and one
in Europe or Asia. These networking events must also take craftsmen into account, in particular
as part of the South-South cooperation
- Networking with investment agencies as well as stakeholders in the value chain in order
to create a cotton and cotton by-product investment platform;
- Economic missions in countries consuming African products to establish commercial
agreements, with governments' implication to accelerate PPPs;
- The improvement of the business climate in the cotton sector through an annual report
on business climate indicators as well as their trends in each country.
Result 3: Cotton and cotton by-product marketing has improved 
Context 
The marketing of cotton has suffered in the past few years from price fluctuations, as have other export 
crops. These fluctuations have had a significant impact on producers' and public revenues, with 
devastating effects on producer regions. 
Producer countries have not yet identified interannual stabilization mechanisms, aside from the buffer 
fund which the Burkinabe cotton sector has had since 2008 and which some countries such as Côte 
d'Ivoire and Cameroon are considering. Most WCA cotton-producing countries rely on year-to-year price 
fixing mechanisms. These mechanisms are limited as they do not enable stakeholders to make rational 
adjustments. These mechanisms are also generally unavailable in East and Southern African cotton-
producing countries, which are directly exposed to fluctuations in world cotton fibre prices. 
Guaranteeing high-quality cotton, exploring different avenues for "African cotton label" products (e.g., 
organic and/or fair-trade for niche production, and CmiA, BCI, conventional production), and above all 
the development of cost-effective processing which better utilizes the opportunities offered by regional 
and continental markets, could help mitigate the penalising effect of this situation. 
Developing regional and continental cotton and cotton by-product markets comes up against the lack of 
any comprehensive understanding of these markets, as well as the issue of regional trade facilitation. 
WT/CFMC/W/74 
- 54 -PA
CIP intervention approach 
The programme has identified a number of strategic results to carry out this third goal. These are, 
among others, (i) the promotion of quality, reputation, and of the "African cotton" labels on global 
markets and (ii) the promotion of the regional trade of cotton products and by-products. 
a. The promotion of quality, reputation and of the "African cotton" label on global
markets
The programme will support the creation of an African label as a central asset for the development of 
African fibre and textile marketing aimed at the African and global markets, which will also be 
strategically monitored to promote the label and penetrate niche markets. Advocacy for the Ivorian 
cotton label will help develop a set of specific labels based on the marketing and strategy developed to 
improve cotton's image. These labels could also reflect the specificities of African regions Support to 
centres of excellence, CERTIFEX in particular, to introduce measurement instruments for the 
determination of the technical characteristics of cotton, thread, and fabric quality. 
b. The promotion of the regional trade of cotton products and by-products
This will be achieved by supporting regional trade initiatives through support for existing fairs for cotton 
products and by-pr o
ducts, support for the regional marketing of products in the value chain, including 
craftsmanship. A collective selling strategy will also be supported by the programme in order to increase 
negotiation capacity through a marketing platform. This platform will support the ACA in promoting 
cotton and cotton by-products and in developing a marketing strategy to penetrate the regional an 
international market. 
A regional trade facilitation component will be developed in order to facilitate the circulation of cotton 
products among African countries.  
Result 4: capacity of institutions and professional organisations has been developed 
Context 
Too many programmes assume that stakeholders will be able to implement it. When these programmes 
produce significant  
innovations, the expertise they require is generally not yet secured by organisations 
or for the implementation of agricultural policies. Capacity deficits should be anticipated and adequate 
solutions offered in order to prepare all stakeholders to play their role.  
Knowledge management is essential for proper capacity development. It enables us to better analyse 
success stories and mistakes in order to increase the effectiveness of programme implementation. In 
this case, capacity development is not only directed at stakeholders but also at institutions, in order for 
the latter to perpetuate these changes beyond the lifespan of the programme. 
Another limit in programme implementation is financial structuring and funding. Traditional funding 
mechanisms struggle to fund needs throughout the value chain. The funding system in Africa is sorely 
lacking in long-term resources. The simple option was to mobilize public resources to subsidize all 
programme activities. PACIP does not take part in a "subsidies only" strategy. Innovative funding 
solutions (blending, private funding) involving public funding in particular within the framework of PPPs 
and of corporate social responsibility will be explored. 
WT/CFMC/W/74 
- 55 - PACIP intervention approach 
The programme will also focus on knowledge management which will allow it to document and share 
positive and negati
ve experiences in the cotton business in order for national policy to take them into 
account. The good practices which result will focus on transformation (including technology), funding, 
productivity, etc. 
These activities will be carried out through three key strategies, (1) by consolidating the strategic 
monitoring of African cotton, (2) by capitalizing and promoting positive experiences and good 
agricultural practices (reference works, technical datasheets, cotton and innovation review, website, 
etc.) (3) by periodically organising a "cotton institutions and policies" conference in Africa, in order to 
promote experience sharing between sectors, harmonized strategies and strengthening the coalition of 
African cotton stakeholders, as well as by helping countries and regions to implement the programme. 
Knowledge management will also facilitate training, in particular for the reworked cotton university. 
Previous attempts  
at a cotton university did not succeed due to orientation (lack of adoption by 
stakeholders, targeting of recipients). The cotton university will draw from the ROPPA university by 
developing professionalising curricula and by helping stakeholders with the implementation of the 
transformation agenda. This new dynamic will be carried out with regional training centres (CERFITEX), 
professional organisations (ACA, AProCA, etc.) and ACTIF. These centres will become centres of 
excellence and will be further developed. The capacities of regional and national institutions will also be 
developed in order to effect the changes fostered by PACIP and to mobilize innovative funding. 
Capacity development will also be applied to programme governance as well as to the implementation 
of commercial policy tools to regulate the issue of second-hand clothing through the enforcement of 
hygiene rules and taxation. 
Programme funding and capacity development for companies, private banks and public organisations 
will also be a part of this programme 
Result 5: the cotton system's contributions to the achievement of SDGs have increased  
C
ontext 
Persistent signs of food insecurity are reported about every two years in Western and Central Africa. 
Significant efforts have been made since the Sahel crisis of the 1970s, yet this situation persists and 
mobilizes emergency human and financial assistance capacities. The reasons given for these repeated 
crises are numerous and relate to the inadequacy of agricultural policies, rapid population growth, poor 
soil quality, climate change, etc. In this environment, the unemployed youth leave their villages in 
search of new opportunities.  
The extreme poverty which can be seen in these arid regions, along with a dearth of opportunity, create 
fertile ground for terrorism and make them a significant source of immigration due to their difficult 
conditions. These regions are also the main cotton-producing areas. Developing resilience in this region 
can therefore not be carried out without taking the cotton system into account, as it represents the vast 
majority of economic opportunities there.  
Central to employment, investment and trade, the cotton system should play an important role in 
combating climate change, terrorism and illegal immigration, and contribute to stabilizing the continent 
and even the world. Developing cotton through innovative mechanisms would contribute to the 
achievement of SDGs, in particular as concerns Objectives 1, 2 and 13 relating to the fight against 
extreme poverty, food and nutritional insecurity, combating hunger, and climate change. 
WT/CFMC/W/74 
- 56 - PACIP intervention approach 
The programme, through its focus on improving populations' means of subsistence within their own 
environment, will implement actions to fight climate change, extreme poverty, food insecurity and 
malnutrition, job creation, especially for the youth, as well as conflict prevention and post-conflict 
reconstruction.  These actions involve crop rotation between cotton, cereals, and legumes, as well as 
the diversification of the cultivation system through crops such as cashews in order to offer more 
opportunity to the youth. These actions also involve the adoption of climate-smart technologies. 
The programme will also aim to develop activities outside of farms through craftsmanship (weavers, 
spinners, blacksmiths). It will also focus on conflict prevention and post-conflict reconstruction by 
supporting the decentralization of cotton-producing areas. 
A summary table of the results framework is presented below, with intended change targets. 
Table 4: Overview of the results framework4  
STRATEGIC GOALS Change targets  
Strategic goal 1  Producers' income and productivity have improved  
Result 1.1  Cott on productivity in the field has improved  Yield increases by at least +50%.  
Activity 1.1.1  Development and coordination of African cotton 
research 
Activity 1.1.2  Transfer of results towards beneficiaries  
Activity 1.1.3  Facilitating access to productio n inputs and efficient 
management of credit for producers. 
Result 1.2  Producers' incomes have improved  Income increases by +50%.  
Activity 1.2.1  Professionalization of producers and promotion of 
agricultural entrepreneurship and of sustainable 
technological innovations. 
Activity 1.2.2  Capacity development for producers' organisations 
(adaptation to the OHADA act, support for governance 
and representation). 
Strategic goal 2 COTTON AND COTTON BY -PRODUCT PROCESSING 
CAPACITY HAS SIGNIFICANTLY INCREASED 
Result 2.1  The added value created through industrial and small -
scale processing has increased  i. Fibre production +50%
ii. Yarn production +100%
iii. Fabric production +50%
iv. Oil and press cake
production +50%
v. Artisanal yarn 
production +100%
vi. Artisanal oil production
+50%
Activity 2.1.1  Development of a favourable  business climate which 
promotes processing. 
Activity 2.1.2  Improvement of textile, oil, thread and fabric 
businesses, including craft businesses (Quality 
management, ISO certification, etc.) 
Activity 2. 1.3 Mapping existing technologies and stakeholders  
Activity 2.1.4  Support for research to increase industrial productivity  
Result 2.2  Investment for the processing of the sector's products Private sector inves tment: +50%  
WT/CFMC/W/74 
- 57 - STRATEGIC GOALS Change targets  
in all African countries has been promoted  
Activity 2.2.1  Mobilizing private investment and financial resources for 
the textile industry (business forum, economic missions, 
etc.) 
Activity 2.2.2  Establishing a feasibility study and business plan fund  
Activity 2.2.3  Establishing a su pport fund for processing, including 
craftsmanship 
Activity 2.2.4  Establishing and managing an investment agency 
network for cotton processing 
Activity 2.2.5  Drafting a report on the business climate in the cotton 
sector 
Strategic goal 3  COTTON AND C OTTON BY -PRODUCT MARKETING AND 
CONSUMPTION HAVE IMPROVED 
Result 3.1  Improved quality, reputation and the "African cotton" 
label have been promoted on world markets  i. African label established
ii. 10% or more premium
on African fibres
Activity 3.1.1  Delineati on of an African label  
Activity 3.1.2  Setting up quality measurement instruments  
Activity 3.1.3  Support for regional centres  of excellence  
Result 3.2  The regional trade of cotton products and by -products 
has been promoted  i. Regional market
i.1. Consumption of craft
industry textiles and clothing
+ 100%.
i.2. Clothing market share +
100%
i.3. Oil and press cakes +50%.
Activity 3.2.1  Mapping stakeholders in the craft market to penetrate 
regional markets 
Activity 3.2.2  Supporting existing initiatives ( fairs, shows, 
craftsmanship and et manufacturing) 
Activity 3.2.3  Establishing a marketing support platform  
Activity 3.2.4  Support for the facilitation of regional trade 
(improvement of the regulatory framework, 
simplification of procedures, etc.) 
Strategic goal 4: CAPACITY OF COTTON-TEXTILE INSTITUTIONS AND 
PROFESSIONAL ORGANISATIONS HAS BEEN DEVELOPED 
Result 4.1 Knowledge management and strategic monitoring are 
ensured i.One conference/year
ii. At least 50 capitalisation
documents produced
Activity 4.1.1 Consolidation of strategic monitoring for African cotton  
Activity 4.1.2 Capitalization and promotion of positive experiences 
and good agricultural practices 
Activity 4.1.3 Regular organization of a “cotton institutions and 
policies” conference in Africa 
WT/CFMC/W/74 
- 58 - STRATEGIC GOALS Change targets  
Result 4.2  Regional training centres  and regional training 
initiatives are revitalized i. One farmer 
academy/year
ii. Capacities of at
least 25 regional
organisations/associations
(other than RECs)
strengthened
iii. Capacities of at
least 25 regional craft
associations strengthened
iv. At least 50 
partnership agreements 
signed and implemented 
Activity 4.2.1  Revitalizing the cotton university through the experience 
of ROPPA farmers' universities and the dissemination of 
innovative practices. 
Activity 4.2.2  Promotin g South -South university exchanges  
Activity 4.2.3  Institutional strengthening of regional training centres  
Result 4.3 Programme governance is efficient  i.Program governance 
implemented and 
functional
ii. REC and regional 
grouping capacities 
strengthened 
iii. All cotton-producing
countries are supported for
programme
implementation
Activity 4.3.1  Establishing a ministerial monitoring and commercial 
instruments committee 
Activity 4.3.2  Assisting stakeholders for access to innovative funding  
Activity 4.3.3  Supp ort for RECs and countries  
Strategic goal 5  COTTON SYSTEM CONTRIBUTION TO THE REALISATION 
OF SDGS HAS INCREASED 
WT/CFMC/W/74 
- 59 - STRATEGIC GOALS Change targets  
Result 5.1  The cotton system's contribution to the fight against 
food insecurity, malnutrition and extreme poverty has 
increased i. Reduce food insecurity
and malnutrition by 50%.
ii. Eradicate extreme
poverty in cotton-producing
areas
Activity 5.1.1  Support the development of cotton's role in nutrition by 
focusing on rotational crops (cereals, etc.) 
Activity 5.1.2  Support for activities which  mitigate the negative impact 
of climate change 
Activity 5.1.3  Capacity development for businesses in terms of CSR in 
order to look after vulnerable individuals 
Activity 5.1.4  Targeted assistance for vulnerable individuals for access 
to seeds, local markets and agricultural counsel. 
Result 5.2  The cotton system's role in job creation, economic 
opportunities and the reduction of migration has 
improved i. Reduce immigration in
cotton-producing areas by
50%.
ii. Increase employment in
cotton-producing areas by
50%.
Activity 5.2.1  Support for the diversification of the cotton cultivation 
system with other crops or activities suitable to the area 
(cashew, livestock, etc.) 
Activity 5.2.2  Support for off -farm (craftsmanship, spinning, weaving, 
etc.) 
Activity 5. 2.3 Developing a platform to make it easier for the youth to 
establish themselves 
Activity 5.2.4  Support for cooperatives which develop economic 
activity 
Result 5.3  The cotton system's contribution to conflict prevention 
and post-conflict reconstruction has improved  i. At least 5 continental
and/or regional programmes
on rehabilitation in post-
conflict settings are funded
Activity 5.3.1 Establishing a fund for programme development and to 
assist regions in mobilising resources 
Activity 5.3.2 Establishing  a co -financing fund for regional economic 
projects  
Result 5.4  The cotton system's contribution to the fight against 
food insecurity, malnutrition and extreme poverty has 
grown Adoption of climate -smart 
behaviour increased by 50%. 
Activity 5.4.1  Organi c fertilizer development  
Activity 5.4.2  Development of green technologies  
Activity 5.4.3  Implementation of a climate -smart behaviours platform  
T
he results framework (table above) describes the actions to be implemented under PACIP in greater 
detail. It should be noted that this results framework takes into account all actions carried out by 
regional initiatives as well as the C4, while providing a policy framework, development partnership 
opportunities in cotton value chains, trade negotiations and a framework for dialogue with the private 
sector. This table aligns with CAADP and SDG change targets. (See appendix, Table B). 
WT/CFMC/W/74 
- 60 - The change targets proposed in the PACIP programme are set at the continental level. Each region will 
have to take them into account when defining these indicators, however. 
2.1. PACIP programme framework 
PACIP is an investment programme spanning a period of fifteen (15) years and will consist of several 
sectoral or cross-sectoral projects. The first project for operationalisation support, scheduled to last five 
years, will serve as a pilot operationalisation framework. As such, it will focus on improving the PACIP's 
institutional implementation framework, developing the capacities of stakeholders, mobilising the 
private sector for cotton processing and regional market development. 
The other projects will gradually be launched with the support project's financial resources mobilisation 
framework and will either take a thematic approach (production, processing, marketing) or a cross-
sectoral one. In both cases, results framework activities that have not been implemented will be 
included, giving priority to those with a greater impact on achieving results.  
Finally, each investment programme project will have strong strategic anchoring with priority cross-
sectoral themes such as climate change, food security, immigration, as well as conflict and post-conflict 
reconstruction in cotton-producing areas. The connections to these themes will be outlined in the 
project results framework. 
5. FUNDING NEEDS AND STRATEGY
The assumption t h
at the agricultural sector is a social sector which can only become competitive 
through subsidies
 has changed to also take the productive and entrepreneurial dimensions of the 
agricultural sector into account. The goal is therefore to diversify funding sources by developing 
innovative sources which involve all public-private partnership actors. These new funding sources 
include blending, the participation of beneficiaries in project funding, facilities for the development of 
transformation projects, public resources (national, regional and continental) while also mobilising 
technical and financial partners and the private sector. 
As an investment programme, PACIP requires a strategy to mobilise financial resources for its 
implementation that differs from traditional mechanisms, which are not well suited to mobilising private 
funding. The basic principles of PACIP's innovative funding mechanism include blending (mixed funds) 
based on:  
• The diversification of funding sources and their decentralisation;
• A mixed funding base with a significant proportion of private funding, public sector and
lender contributions being devoted mainly to improving the business environment, capacity
building, and advocating for and mobilising private funding. Most of the remaining productive
investment to be covered by private financing;
• Multi-scale coordination of public funding mobilisation, in accordance with results
indicators and the priorities of stakeholders and other institutional partners;
• A contribution from stakeholders and the beneficiaries of actions, based on efficient
governance of the sector and inter-professional fees to support the promotion of the value
chain;
• Substantial contributions from financial institutions (development banks, special funds ,
i
nnovative mechanisms, etc.) to supplement public institutions for productive infrastructure
investments, or private actors for access to financing at exceptional rates for private
investments.
WT/CFMC/W/74 
- 61 - T
he funding strategy will place more emphasis on the development of productive activities with 
targeted subsidies for training, the professionalization of small producers and improving the business 
environment. 
These factors allow for the programme's budget to be completed through several sources as shown in 
the diagram below: 
Diagram 7: Funding mechanism7  
Table 5: PACIP fund i
ng requirements broken down by components5  
Results / Activities  Public funding 
(including TFPs) 
in €K Private  
funding 
(investors) in 
€K Contribution 
from the 
sector (inter-
professional) 
in €K Total per 
result in 
€K 
Result 1: Improved agricultural 
income and productivity 20,000  5,000  5,000  30,000  
Result 2: Improved cotton and cotton 
by-product processing capacity 20,000  510,000  10,000  540,000  
Result 3: Promotion of regional and 
international trade of the sector's 
products. 15,000  20,000  / 35,000  
Result 4: Capacity building and 
governance 15,000  5,000  2,500  22,500  
Result 5: the cotton system's 
resilience and its contributions to the 
achievement of SDGs have increased 10,000  5,000  2,500  17,500  
TOTAL 80,000  545,000  20,000  645,000  
P
ACIP is an investment programme specific to cotton with a total funding requirement of €645,000,000, 
as summarised in the table above. These resources are allocated by result, but also by funding source.  
Result 1: Improved producer income and agricultural and industrial productivity (€30,000,000) Continental  funding – EU/ACP, Financial institution, Global funds,  Technical and financial partners
Regional mechanisms – Regional cotton/sectoral funds – Technical and financial partners
National mechanisms – Sectoral levies, Possible taxes on textile imports, Private investment, 
Technical and fi n
ancial partners
Contributions from sector stakeholders – Capacity-dependent contributions
Resource mobilisation in the private sector through business contacts and economic missionsAUC
NEPAD
REC 
STATE 
PRIVATE STAKEHO
LDERS
WT/CFMC/W/74 
- 62 - PACIP will allocate 30 million euros to support higher producer incomes and productivity. This financial 
effort, it should be stressed, does not take into account other national or ongoing initiatives, or even 
projects/programmes currently being implemented at the regional or continental level.  
This funding will be used to:  
• Support cotton research
• Support the professionalization of stakeholders
• Support access to production inputs
• Support agricultural modernisation and small family farms
The 30 million euros, two thirds of which will be provided by public institutions through development 
partners, will prim
arily benefit public service activities in support of rural development (research, 
professionalization, agricultural modernisation and technical guidance).  
The private sector will be called upon specifically for access to agricultural equipment for the 
modernisation of cotton cultivation, or to assist in trials and the introduction of new molecules and 
agricultural innovations.  
Additionally, in the context of support for cotton research and innovation, the sector's stakeholders will 
be asked via their inter-professions to contribute to funding research for a total of five million euros.  
This package, which will be jointly managed at the regional or continental level, will be supplemented by 
national research funding efforts or contributions from technical and financial partners to the sector. 
Result 2: Improved processing capacity of the sector's products and by-products (€540 million) 
8
4% of PACIP's funding will be allocated to productive investments to increase cotton fibre and cotton 
by-product processing. This €540,000,000 package, of which nearly 90% should come from the private 
sector, will be mobilised thanks to the initial 20 million expected from technical and financial partners as 
part of support to the public sector. €10,000 of additional funding for cotton sectors will be mobilised as 
input from stakeholders in different financial packages, in order to preserve a minimum of vertical 
integration of stakeholders in the sector for new functions. For example, producer organisations could 
be involved in raising capital for new textile companies and enable them to diversify their activities.  
In addition to the 200 million euros to be mobilised for industrial investments, the public-sector 
contribution (€20 million) will be used to:  
• Improve the business environment
• Upgrade cotton sector businesses
• Organise economic meetings and business forums
• Support the mobilisation of private and public resources, and
• Support small-scale entrepreneurship and the textile craft industry
Result 3: Promotion of regional and international trade of the sector's products (€35,000,000) 
The promotion of regional and international trade in cotton products benefits from a number of support 
measures:  
• Support at the national level for product quality issues and support to Trade Support
Institutions (TSIs). Support will be provided to companies in the sector to facilitate their access
to the regional market and provide them with the necessary support in terms of information
and adaptation.
• Regional support for trade facilitation issues and to boost sub-regional organisations on
specific products in the sector. In particular, the creation of trade consortia and a regional
consultation frameworks regarding supply for the textile and by-product industries could be
addressed in this component. For example, supply for the Nigerian textile or pressing industry
WT/CFMC/W/74 
- 63 - may require coordination between the producer countries bordering Nigeria (Benin, Cameroon 
and Chad). 
Regional trade promotion will be targeted at companies in the sector, which will themselves be asked to 
invest in integrating this new focus into their business plan, as well as the demands of a sub-regional 
market with new logistics and administrative and fiscal procedures. This contribution from private 
companies amounts to a total of 20 million euros, taking into account both the industries and 
distribution companies of the sector's products. 
A number of activities fall within the scope of this result and will mobilise most of PACIP's public 
resources aimed at supporting regional and international trade. These are: 
• Policy coordination and support for regional trade
• Improving the quality and reputation of African cotton
• Promoting African cotton and its by-products on international markets
• Optimising the logistics for seed cotton, fibre and other by-products in the sector
• Organising regional fairs and supporting the implementation of an African cotton
marketing platform
Result 4: Capacity building for institutions and professional organisations in the cotton-textile sector 
(€22.5 million) 
Cap
acity building for stakeholders and institutions is a fundamental component in order to mobilise the 
necessary resources and use them efficiently to improve the competitiveness of African cotton-textile 
industries.  
Twenty-two million five hundred thousand euros will be needed to cover the costs of:  
• Developing the capacities of stakeholders' professional organisations
• Providing institutional support to RECs and national public organisations tied to the
sector
• Providing material and financial support to new or existing training centres
Support for programme governance will also fall within this package. However, business modernisation, 
and support for SMEs and new processing industries will be covered directly by the thematic results 
they pertain to (productivity for ginners and promotion of processing for others). 
Lastly, the public resources to be mobilised amount to €15,000,000 which will be supplemented by a 
contribution from businesses in the sector (partial coverage of their staff training) and other 
stakeholders in the sector (professional organisations). 
Result 5: the cotton system's resilience and its contributions to the achievement of SDGs have 
increased (€17.5 million) 
T
his result is very closely linked to the first, and highlights how the programme applies to global 
challenges. Seventeen million five hundred thousand euros have been budgeted for this intermediate 
result, including 10 million euros to be provided by technical and financial partners.  
This will mainly go towards mobilising financial resources for the implementation of projects enhancing 
the sustainability of cotton industries, resilience to climate change, as well as food and nutrition 
security, youth employment, and conflict prevention.  
The funding mobilisation strategy for this outcome will rely on: 
• Donor contributions to the establishment of a competitive fund for the selection and
implementation of pilot projects
• Support to mobilise specific funding for certain mechanisms (green funds for climate
change, various types of funding for food security cotton-producing areas, etc.).
WT/CFMC/W/74 
- 64 - T
his result will focus on SDGs and the impact of cotton industries, building an effective bridge between 
the impact of cotton industries and human welfare, resilience and food security.  
Private partners and industry stakeholders' contributions correspond to those they made for the 
implementation of projects.  
Some project ideas to explore for this result: 
• Research and innovation in climate change adaptation for cotton cultivation
• Professionalization of producers and of their organisations and building stakeholders'
resilience to global changes
• Agroecology and dissemination of good agricultural practices for cotton cultivation
• Sustainable mechanisation and support for agricultural entrepreneurship to support
cotton-producing family farms and improve food security in cotton-producing are as
R
esource mobilisation strategy and cross-sectoral results 
The financial resource mobilisation strategy is based on a phased process, coordinating technical and 
financial partners, based on a single planning framework, PACIP. Starting from a broader scale 
(continental, then regional) and taking the sharing of resources and experiences into account, the 
process of financial resource mobilisation consists of the following steps:  
(i) Joint validation of PACIP as a planning framework for the cotton development
component and creation of a coordination and monitoring-assessment unit.
(ii) Mobilisation of financial resources to operationalise PACIP through the first support
project which will provide cross-sectoral support at the continental, regional and national
levels. Project funding will cover monitoring-assessment for the priority project as well as
for the entire investment programme (PACIP)
(iii) Starting in the second year of the priority project's implementation, additional public
and private, regional or national funding will be sought in order to launch more thematic or
regionally focused projects, based on the achievements of the actions already implemented.
(iv) Mobilisation of specific support mechanisms for private stakeholders, whether through
development banks or financial institutions, or other innovative funding mechanisms
developed by a variety of different partners, including the EU Commission.
6. IMPLEMENTATION FRAMEWORK
6.1. Programme gov e
rnance
Programme governance attaches great importance to the principle of subsidiarity. Existing national and 
regional coordination frameworks will not be overridden. A coherent, unifying framework will be 
offered at the appropriate scale within a single policy framework endorsed by the Maputo Declaration. 
PACIP streamlines stakeholder interventions by increasing the effectiveness of their actions. The NEPAD 
Agency will use existing policy frameworks (EU-Africa Summit, India-Africa Summit, China-Africa 
Summit, etc.) as a means to mobilise funding within Public Private Partnerships for the cotton value 
chain. The RECs and the C4 will be responsible for implementing their cotton strategy within the overall 
framework of PACIP while complying with national policies. 
WT/CFMC/W/74 
- 65 -All of these efforts are implemented within PACIP's unifying coherent framework by optimising 
resources to benefit countries which will lead the way for cotton production, processing and marketing. 
Countries will therefore guide production, processing and marketing. 
In accordance with the principle of subsidiarity, the following institutional framework is put in place to 
achieve those results at different levels of scale. 
• Coordination at the continental level which will be accomplished through the NEPAD
Planning and Coordinating Agency (NPCA) with continental professional organisations, the AU,
NEPAD, etc. They will be in charge of strategic guidance and of coordinating the implementation
of the coordination unit with the help of COS-cotton with RECs and if need be with the help of
Member State experts.
• In addition to coordination at the continental level, a second level of coordination will
take place at the regional level by regional professional organisations such as ECCAS, COMESA,
ECOWAS, etc. regional inter-professions, WECARD, etc. They will be in charge of strategic and
operational coordination, consistency between regional priorities and the PACRM.
• Coordination at the national level will be carried out by professional structures and
organisations. This national level, even if it comes later in the governance of an investment
programme, remains at the operational level the key level for the implementation and
monitoring-assessment of PACIP projects. Thus, though funding may be pooled in parallel with
the intervention, its use ultimately benefits national value chain stakeholders and will be
assessed and adjusted by them.
• Finally, the management units of the different projects will be in charge of day-to-day
management. These management units will be under the supervision of different partners, and
this diversity will be reflected in the steering committees.
The diagram below summarizes the programme's governance 
Diagram 8: Programme governance8  
The implementation  
of the programme requires coordination between the different stakeholders in 
order to better define their responsibilities, in accordance with the principle of subsidiarity. 
Diagram 9 below describes the relationships between different stakeholders: AU/NEPAD, RECs, 
Countries, Professional organisations and TFPs. Coordination and 
monitoring -assessment
- OperationalStrategic guidance -
ProjectsPolitical backingAUC/NEPAD
1. Ministerial Co m
mittee
for Cotton
2. Expanded COS-Coton
EU Intra-ACP 
project SC
PMU Intra-ACP 
Project 1PMU Intra-ACP 
Project 2Cotton project 
SC Other Backer
PMU Project 
Other Backer
WT/CFMC/W/74 
- 66 -D
iagram 9: Pan-African, regional and national coordination - subsidia rity9 
In order to measure the changes brought on by the programme, a monito r ing-assessment mechanism 
will be established in a participative and inclusive manner. This mechanism will enable the ministerial 
monitoring committee and all stakeholders to monitor the programme's implementation and measure 
its impact. 
6.2. The partnershi p
 
The implementation of this programme requires a multi-level partnership. The first level will involve 
African institutions as well as professional organisations. This level will interact with the ACP-EU 
Secretariat within the framework of the EU Africa dialogue, and the circle of partners will be open to 
other technical and financial partners. Finally, the partnership will involve institutions which provide 
services based on existing resources (see diagram 9) 
6.3. Risk management 
Several risks must be considered in the implementation of this programme. These are: 
• Political commitment to the taxation of the trade of second-hand clothing and trade
instruments to improve the business climate;
• Stakeholders' actual contributions;
• Coordination with multiple stakeholders with competing interests;
• Stakeholders' capacity for project activity implementation and the challenge of resource
consumption;
The project's implementation strategy to assist change in the sector is the primary measure for risk 
mitigation, in particular pan-African backing, assistance from a strategic partner like the ACP Group of 
States with which programmes have been implemented, as well as training for each component. Panafrican 
Level (Political
or
 operational)•Strategic
orientation and
imple
mentatio
n coordination
Coordination
Unit
Regional Level 
(RECs)•Strategic and
operational
coordinati
on,
regional
priorities - RCFP
National Level –
National 
priorities  •O wn funding
mechanisms,
implemen
tatio
n – NFPService 
providers Continental, 
regional and 
national 
professional 
organisations: 
ACTIF, FARA, 
WECARD, ACA, 
APROCA, OPICF, 
OP, Inter-
professions, etc. 
WT/CFMC/W/74 
- 67 -7. PROJECT FOR OPERATIONALISATION SUPPORT FOR THE FIRST FIVE
YEARS
PACIP, the new agen
da for the development of the African cotton sector, includes all of the propositions 
aiming to bring about the positive changes of the Malabo framework. Not all of these can be 
implemented immediately due to absorptive capacities and the level of maturity of certain projects. 
The project for operationalisation support (POS-PACIP) uses the PACIP intermediate results for the first 
five years (see coherence matrix between PACIP and the POS). These results were chosen based on:  
• The need to ensure subsidiarity between the scales of intervention and the public sector
• The priority results, which the impact of the investment programme's other results
depends on, as well as on stakeholders' own prioritisation, then validated by national and
regional strategic documents.
• The need to strengthen the capitalisation of experiences and results between countries
and regions regarding the major challenges associated with competitiveness and increasing
added value within national or regional cotton value chains.
This project, which is outlined in detail in the annex to this document, is briefly presented here. 
7.1. Overall and specific objectives 
Overall objective: To promote the sustainable development of African cotton value chains as an 
instrument to transform agriculture, create added value and increase income, and promote integration 
through trade, in accordance with the Malabo agenda. 
Specific objective: Assist African cotton industries in improving their competitiveness and boost global 
value creation by increasing stakeholders' income and productivity, investing in product and by-product 
processing and improving their marketing.  
To achieve this objective, the action is broken down into the following expected results: 
Result 1 : There is effective capitalisation of the positive experiences of national/regional value chains, 
and stakeholder capacity building and knowledge management aimed at improving the competitiveness 
of the cotton-textile-manufacturing value chain is enhanced.  
Result 2 : Institutional support to national cotton sectors, governments and RECs is in place, and actors' 
private resource mobilisation capabilities are strengthened to develop cotton product and by-product 
processing.  
Result 3 : Governance of national and regional value chains has improved, national sector stakeholder 
involvement has increased, and the appropriation of project achievements is ensured. 
Result 4 : Coordination of the operationalisation project, PACIP monitoring and assessment, and 
implementation of the 'Cotton Facility' and short-term expertise for technical support to stakeholders. 
7.2. PACIP results framework and POS contribution to its achievement 
WT/CFMC/W/74 
- 68 - Based on the results specified by PACIP over 15 years, this results framework defines the performance 
indicators to be achieved over the next five years. Like the PACIP strategic framework, it is consistent 
with other initiatives on the continent, among them regional strategies and the C4 programme. 
The POS was broken down into (i) expected results, (ii) products and (iii) activities (see appendix). To 
better illustrate its coherence with PACIP, Table 6 shows how the POS contributes to the achievement of 
PACIP results. 
WT/CFMC/W/74 
- 69 - Table 6: Overview of the POS results framework in accordance with PACIP6 
PACIP STRATEGIC GOALS POS support POS 
products Change targets 
Strategic goal 1  
Producers' income and productivity have improved 
Result 1.1 Cotton productivity in the 
field has improved  +15% yield
Activity 
1.1.1 Development and 
coordination of African 
cotton research Institutional 
and financial 
support Product 
1.1 
Activity 
1.1.2 Transfer of results towards 
beneficiaries Capacity 
building Product 
1.2 
Activity 
1.1.3 Facilitating access to 
production inputs and 
efficient management of 
credit for producers. Capitalising on 
experience Product 
1.1 
Result 1.2 Producers' incomes have 
improved  +15% income
Activity 
1.2.1 Professionalization of 
producers and promotion 
of agricultural 
entrepreneurship and of 
sustainable technological 
innovations. Pilot actions 
and capacity 
building Product 
2.1 
Activity 
1.2.2 Capacity development for 
producers' organisations 
(adaptation to the OHADA 
act, support for 
governance and 
representation). Institutional 
support to 
POs Product 
1.2 
Strategic goal 2  
COTTON AND COTTON BY-PRODUCT PROCESSING CAPACITY HAS SIGNIFICANTLY INCREASED 
Result 2.1  The added value created 
through industrial and 
small-scale processing has 
increased  vii. Fibre production
+10%
viii. Yarn production
+15%
ix. Fabric production
+10%
x. Oil and press cake
production +15%
xi. Artisanal yarn
production +20%
xii. Artisanal oil
production +15%
Activity 
2.1.1 Development of a 
favourable business 
climate which promotes 
processing. Institutional 
support Product 
2.2 
Activity Improvement of textile, oil, Institutional Product 
WT/CFMC/W/74 
- 70 - PACIP STRATEGIC GOALS POS support POS 
products Change targets 
2.1.2  thread and fabric 
businesses, including craft 
businesses (Quality 
management, ISO 
certification, etc.) support and 
capacity-
building 2.1 
Activity 
2.1.3 Mapping existing 
technologies and 
stakeholders Expertise 
support Product 
2.1 
Activity 
2.1.4 Support for research to 
increase industrial 
productivity Institutional 
and material 
support Product 
1.2 
Result 2.2 Investment for the 
processing of the sector's 
products in all African 
countries has been 
promoted  Private sector investment: 
+10%
Activity 
2.2.1 Mobilizing private 
investment and financial 
resources for the textile 
industry (business forum, 
economic missions, etc.) Institutional 
support to 
stakeholders, 
governments, 
RECs Product 
2.2 
Activity 
2.2.2 Establishing a feasibility 
study and business plan 
fund Short -term 
expertise 
support Product 
3.3 
Activity 
2.2.3 Establishing a support fund 
for processing, including 
craftsmanship Establishment 
of cotton 
facility Product 
3.3 
Activity 
2.2.4 Establishing and managing 
an investment agency 
network for cotton 
processing Institutional 
support Product 
3.2 
Activity 
2.2.5 Drafting a report on the 
business climate in the 
cotton sector Short -term 
expertise 
support Product 
3.3 
Strategic  goal 3  
COTTON AND COTTON BY-PRODUCT MARKETING AND CONSUMPTION HAVE IMPROVED 
Result 3.1 Improved quality, 
reputation and the 
"African cotton" label 
have been promoted on 
world markets  African label established 
Activity 
3.1.1 Delineation of an African 
label Institutional 
support and 
capacity-
building Product 
3.2 
Activity 
3.1.2 Establishing quality 
measurement instruments Short -term 
expertise and 
institutional 
support Product 
3.2 
WT/CFMC/W/74 
- 71 - PACIP STRATEGIC GOALS POS support POS 
products Change targets 
Activity 
3.1.3 Support for regional 
centres of excellence Institutional  
and material 
support Product 
3.2 
Result 3.2 The regional trade of 
cotton products and by-
products has been 
promoted  ii. Regional market
i.1. Consumption of craft
industry textiles and
clothing + 20%. 
i.2. Clothing market
share + 20% 
i.3. Oil and press cakes
+15%.
Activity 
3.2.1 Mapping stakeholders in 
the craft market to 
penetrate regional markets Short-term 
expertise Product 
3.3 
Activity 
3.2.2 Supporting existing 
initiatives (fairs, shows, 
craftsmanship and et 
manufacturing) Institutional 
and material 
support Product 
2.2 
Activity 
3.2.3 Establishing a marketing 
support platform Capacity 
building and 
institutional 
support Product 
3.2 
Activity 
3.2.4 Support for the facilitation 
of regional trade 
(regulatory framework 
improvement, procedure 
simplification, etc.) Capacity 
building and 
support for 
public policy Product 
3.1 
Strategic goal 4: CAPACITY OF COTTON-TEXTILE INSTITUTIONS AND PROFESSIONAL ORGANISATIONS 
HAS BEEN DEVELOPED 
Result 4.1 Knowledge management 
and strategic monitoring 
are ensured iii. Two (2) knowledge
management
conferences organised 
iv. At least 10
capitalisation
documents produced 
Activity 
4.1.1 Consolidation of strategic 
monitoring for African 
cotton Financial 
support Product 
1.3 
Activity 
4.1.2 Capitalization and 
promotion of positive 
experiences and good 
agricultural practices Financial 
support to 
stakeholders Product 
1.1 
Activity 
4.1.3 Regular organization of a 
“cotton institutions and 
policies” conference in 
Africa Financial 
support Product 
3.1 
WT/CFMC/W/74 
- 72 -PACIP STRATEGIC GOALS POS support POS 
products Change targets 
Result 4.2 Regional training centres 
and regional training 
initiatives are revitalized v. Two (2) farmer
academies organised
vi. Capacities of at least
15 regional organisations
(other than RECs) 
strengthened 
vii. Capacities of at least
15 regional craft
associations 
strengthened 
viii. At least 30
partnership agreements 
signed and implemented 
Activity 
4.2.1 Revitalizing the cotton 
university through the 
experience of ROPPA 
farmers' universities and 
the dissemination of 
innovative practices. Institutional 
and financial 
support Product 
2.1 
Activity 
4.2.2 Promoting South -South 
university exchanges Financial 
support Product 
2.1 
Activity 
4.2.3 Institutional strengthening 
of regional training centres Institutional 
and financial 
support Product 
2.1 
Result 4.3 Programme governance is 
efficient iv. Program gover nance
implemented and
functional 
v. Capacities of RECs
and C4 strengthened
vi. At least 30% of
cotton-producing countries 
are supported for 
programme implementation 
Activity 
4.3.1  Establishing a ministerial 
monitoring and 
commercial instruments 
committee Financial and 
strategic 
support Product 
3.1 
Activity 
4.3.2 Assisting stakeholders for 
access to innovative 
funding Capacity 
building and 
institutional 
support Product 
2.2 
Activity 
4.3.3 Support for RECs and 
countries Institutional 
support Product 
3.2 
Strate gic goal 5  
COTTON SYSTEM CONTRIBUTION TO THE REALISATION OF SDGS HAS INCREASED 
WT/CFMC/W/74 
- 73 -PACIP STRATEGIC GOALS POS support POS 
products Change targets 
Result 5.1  The cotton system's 
contribution to the fight 
against food insecurity, 
malnutrition and extreme 
poverty has increased i. Reduce food
insecurity and
malnutrition by 10%. 
ii. Reduce extreme
poverty in cotton-
producing areas by 25%. 
Activity 
5.1.1 Support the development 
of cotton's role in nutrition 
by focusing on rotational 
crops (cereals, etc.) Cotton Facility 
on pilot 
initiatives and 
Short-term 
Expertise Product 
3.3 
Activity 
5.1.2 Support for activities which 
mitigate the negative 
impact of climate change Short -term 
expertise and 
cotton facility Product 
3.3 
Activity 
5.1.3 Capacity development for 
businesses in terms of CSR 
in order to look after 
vulnerable individuals Institutional 
support and 
capacity-
building Product 
2.2 
Activity 
5.1.4 Targeted assistance for 
vulnerable individuals for 
access to seeds, local 
markets and agricultural 
counsel. Cotton facility 
and short-
term expertise  Product 
3.3 
Result 5.2  The cotton system's role in 
job creation, economic 
opportunities and the 
reduction of migration has 
improved i. Reduce immigration
in cotton-producing areas
by 10%. 
ii. Increase
employment in cotton-
producing areas by 10%. 
Activity 
5.2.1 Support for the 
diversification of the 
cotton cultivation system 
with other crops or 
activities suitable to the 
area (cashew, livestock, 
etc.) Short-term 
expertise and 
cotton facility Product 
3.3 
Activity 
5.2.2 Support for off -farm 
(craftsmanship, spinning, 
weaving, etc.) Cotto n facility 
and short-
term expertise  Product 
1.2 
Activity 
5.2.3 Developing a platform to 
make it easier for the 
youth to establish 
themselves Institutional 
and financial 
support Product 
2.1 
Activity 
5.2.4 Support for cooperatives 
which develop economic 
activity Institutional 
support and 
capacity-
building Product 
3.3 
WT/CFMC/W/74 
- 74 -PACIP STRATEGIC GOALS POS support POS 
products Change targets 
Result 5.3  The cotton system's 
contribution to conflict 
prevention and post-
conflict reconstruction has 
improved  At least 1 continental 
and/or regional 
programme on post-
conflict issues is funded 
Activity 
5.3.1  Establishing a fund for 
programme development 
and to assist regions in 
mobilizing resources Short-term 
expertise Product 
3.3 
Activity 
5.3.2  Establishing a co -financing 
fund for regional economic 
projects Cotton facility Product 
3.3 
Result 5.4 The cotton system's 
contribution to the fight 
against food insecurity, 
malnutrition and extreme 
poverty has grown Adoption of climate-smart 
behaviour increased by 10%. 
Activity 
5.4.1 Organic fertilizer 
development Product 
3.3 
Activity  
5.4.2 Development of green 
technologies Product 
3.3 
Activity 
5.4.3 Implementation of a 
climate-smart behaviours 
platform Product 
3.3 
7
.3. Budget of the PACIP project for operationalisation support 
The budget of around €16.6 million mainly funds capacity building, mobilisation of private resources and 
exchange of good practices. The activities financed by this budget must generate a favourable 
environment for private sector funding (+10% according to the POS results framework) of the value 
chain. 
Table 7: POS-PACIP budget according to expected results7  
Component/result  Sum (Euro)  
Result 1 : There is effective capitalisation of the positive experiences of 
national/regional value chains, and stakeholder capacity building and knowledge 
management aimed at improving the competitiveness of the cotton-textile-
manufacturing value chain is enhanced.  4,600,000  
Result 2 : Institutional support to national cotton sectors, governments and RECs 
is in place, and actors' private resource mobilisation capabilities are strengthened 
with respect to processing for the sector's products and by-products.  6,200,000  
Result 3 : Governance of national and regional value chains has improved, 
national sector stakeholder involvement has increased, and the appropriation of 
project achievements is ensured.  1,300,000  
Result 4 : Coordination of the operationalisation project, PACIP  monitoring -
assessment, and implementation of the cotton facility and short-term expertise 3,300,000  
Sub-Total 1   15,400,000  
Commun ication and visibility  250,000  
WT/CFMC/W/74 
- 75 - Assessment and audit  150,000 
Sub-total 2 15,800,000 
Unforeseen expenses 790,000 
TOTAL  16,590,000  
7
.4. Risks and hypotheses 
Risks  Risk level 
(H/M/L)*1 Mitigation measures  
Lack of involvement from key 
stakeholders in project 
implementation  M Significant involvement from governments 
and inter-professions in project 
implementation - Organise workshops to 
launch a communication plan and information 
sessions 
Political and economic instability 
in some countries M Limit the project's scope of action to stable 
and high-impact countries. 
Contractual difficulties with 
certain operators M Involvement of project partners from the 
project validation phase until its signature 
Difficulties coordinating the 
mobilisation of financial 
resources and project partners M The programme's governance and 
stakeholder coordination bodies convene 
regularly 
*1 H = High; M = Moderate; L = Low
Prerequisite to t
he success of the priority programme and its implementation: 
•The NEPAD Agency, which coordinates programme implementation, must have all the necessary
skills and political mandate to implement the programme.
•Partners chosen to implement actions must be credible and operational.
•Policy makers and other key programme actors must show real interest in the programme.
7.5. Assessment and audit 
The EU Commission and the ACP Secretariat will carry out a final assessment of the entire priority 
programme as well as a mid-term assessment (of all components). These assessments will be performed 
by independent consultants. The aim of the mid-term assessment will be to resolve any potential 
problems in the components being assessed. 
Assessment reports will be made available to the donor, the NEPAD Agency, the African Union 
Commission and other key stakeholders. The ACP Secretariat and the EU Commission will review the 
assessments' findings and recommendations and jointly decide, where appropriate and after consulting 
with the NEPAD Agency, on follow-up actions to be carried out and any necessary adjustments, 
including, if necessary, the project's reorientation.  
With due regard to the requirements of the contracts signed for this action's implementation, the EU 
Commission and the ACP Secretariat may, in light of a risk assessment, commission independent audits 
or expenditure verification missions for one or more contracts or agreements.  
WT/CFMC/W/74 
- 76 -A
PPENDICES 
APPENDIX 1 - Ove r
view of current initiatives for cotton covered by PACIP 
APPENDIX 2 - Alignment and coherence of PACIP, CAADP and SDG change indicators 
APPENDIX 3 - PACIP Project for Operationalisation Support  
WT/CFMC/W/74 
- 77 -APPENDIX 1 - Overview of current initiatives for cotton covered by PACIP 
PACIP STRATEGIC GOALS C4 ECCAS COMESA UEMOA 
Strategic goal 
1 PRODUCERS' INCOMES AND PRODUCTIVITY 
HAVE IMPROVED 
Result  1.1 Cotton productivity in the field has improved  
Activity 1.1.1  Development and coordination of African 
cotton research Yes Yes Yes Yes 
Activity 1.1.2  Transfer of results towards beneficiaries  Yes No No Yes 
Activity 1.1.3  Facilitating  access to production inputs and 
efficient management of credit for producers. No Yes Yes No 
Result  1.2 Producers' incomes have improved  
Activity 1.2.1  Professionalization of producers and 
promotion of agricultural entrepreneurship 
and of sustainable technological innovations. No No No No 
Activity 1.2.2  Capacity development for producers' 
organisations (adaptation to the OHADA act, 
support for governance and representation). No Yes Yes No 
Strategic goal 
2  COTTON AND COTTON BY -PRODUCT 
PROCESSING CAPACITY HAS SIGNIFICANTLY 
INCREASED 
Result 2.1  The added value created through industrial 
and small-scale processing has increased  
Activity 2.1.1  Development of a favourable  business climate 
which promotes processing. Yes Yes Yes Yes 
Activity 2 .1.2 Improvement of textile, oil, thread and fabric 
businesses, including craft businesses (Quality 
management, ISO certification, etc.) Yes No Yes Yes 
Activity 2.1.3  Mapping existing technologies and 
stakeholders No No No No 
Activity 2.1.4  Support for r esearch to increase industrial 
productivity Yes Yes No Yes 
Result  2.2 Investment for the processing of the sector's 
products in all African countries has been 
promoted  
Activity 2.2.1  Mobilizing private investment and financial 
resources for the textile industry (business 
forum, economic missions, etc.) Yes Yes Yes Yes 
Activity 2.2.2  Establishing a feasibility study and business 
plan fund No No Yes No 
Activity 2.2.3  Establishing a support fund for processing, 
including craftsmanship No No Yes No 
Activity 2.2.4  Establishing an investment agency network for 
cotton processing No No No No 
Activity 2.2.5  Drafting a report on the business climate in 
the cotton sector Yes No No No 
Strategic goal 
3 COTTON AND COTTON BY -PRODUCT 
MARKETING AND CONSUMPTION HAVE 
IMPROVED 
Result 3.1  Improved quality, reputation and the "African 
cotton" label have been promoted on world 
WT/CFMC/W/74 
- 78 -PACIP STRATEGIC GOALS C4 ECCAS COMESA UEMOA 
markets  
Activity 3.1.1  Delineation of an African label  Yes No Yes Yes 
Activity 3.1.2  Establishing a quality measurement 
instrument Yes No No Yes 
Support for regional centres  of excellence  Yes Yes Yes Yes 
Result 3.2  The regional trade of cotton products and by -
products has been promoted  
Activity 3.2.1  Mapping stakeholders in the craft market to 
penetrate regional markets No No No No 
Activity 3.2.2  Supporting existing initiatives (fairs, shows, 
craftsmanship and et manufacturing) No Yes No No 
Activity 3.2.3  Establishing a marketing support platform  Yes Yes No Yes 
Activity 3.2.4  Support for the facilitation of regional trade 
(information on procedures, procedure 
simplification, etc.) Yes Yes Yes No 
Activity 3.25  Logistics support for the marketing of cotton 
products  Yes No No No 
Strategic goal 4: CAPACITY OF COTTON-TEXTILE INSTITUTIONS 
AND PROFESSIONAL ORGANISATIONS HAS BEEN DEVELOPED 
Result 4.1 Knowledge management and strategic 
monitoring are ensured 
Activity 4. 1.1  Consolidation of strategic monitoring for 
African cotton Yes No No No 
Activity 4. 1.2  Capitalization and promotion of positive 
experiences and good agricultural practices Yes Yes No Yes 
Activity 4.1.3 Regular organization of a “cotton institutions 
and policies” conference in Africa No Yes Yes No 
Result 4.2 Regional training centres  and regional 
training initiatives are revitalized 
Activity 4. 2.1  Revital izing the cotton university through the 
experience of ROPPA farmers' universities and 
the dissemination of innovative practices. No No No Yes 
Activity 4. 2.2  Promoting South -South university exchanges  Yes No No Yes 
Activity 4.2.3 Institutional strengtheni ng of regional training 
centres Yes Yes Yes Yes 
Result 4.3 Programme governance is efficient  
Activity 4.3.1 Establishing a ministerial monitoring and 
commercial instruments committee No No No No 
Activity 4.3.2 Assisting stakeholders for access to innovative 
funding Yes Yes No No 
Activity 4.3.3  Support for national institutions  No Yes Yes Yes 
Strategic goal 
5 COTTON SYSTEM RESILIENCE AND 
CONTRIBUTION TO SDGS HAVE INCREASED 
Result 5.1 The cotton system's contribution to the fight 
against food insecurity, malnutrition and 
extreme poverty has increased 
Activity 5.1.1 Support the development of cotton's role in 
nutrition by focusing on rotational crops Yes No No No 
WT/CFMC/W/74 
- 79 - PACIP STRATEGIC GOALS C4 ECCAS COMESA UEMOA 
(cereals, etc.)  
Activity 5.1.2 Support for activities which mitigate the 
negative impact of climate change No Yes No No 
Activity 5.1.3 Capacity development for businesses in terms 
of CSR in order to look after vulnerable 
individuals No No No No 
Activity 5.1.4  Targeted assistance for vulnerable individuals 
for access to seeds, local markets and 
agricultural counsel. No No No No 
Result 5.2 The cotton system's role in job creation, 
economic opportunities and the reduction of 
migration has improved 
Activity 5.2.1 Support for the diversification of the cotton 
cultivation system with other crops or 
activities suitable to the area (cashew, 
livestock, etc.) No No No No 
Activity 5.2.2 Support for off -farm (craftsmanship, spinning, 
weaving, etc.) Yes No No No 
Activity 5.2.3 Developing a platform to make it easier for the 
youth to establish themselves No No No No 
Activity 5.2.4 Support for cooperatives which develop 
economic activity No No No No 
Result 5.3  The cotton system's contribution to conflict 
prevention and post-conflict reconstruction 
has improved  
Activity 5.3.1 Establi shing a fund for programme 
development and to assist regions in 
mobilizing resources No No No No 
Activity 5.3.2 Establishing a co -financing fund for regional 
economic projects  No No No No 
WT/CFMC/W/74 
- 80 - A
PPENDIX 2 - Alignment and coherence of PACIP, CAADP and SDG change indicators  
PACIP PACIP change targets  CAADP SDG 
Strategic goal 1: PRODUCERS' INCOMES AND PRODUCTIVITY HAVE IMPROVED  
Result 1.1 Cotton productivity in the field has 
improved Yield increases by at 
least +50%. Area 2.1: 
Increased 
agriculture 
production and 
productivity Goal 12. Ensure 
sustainable 
consumption and 
production 
patterns   
Result 1.2 Producers' incomes have 
improved Income increases by 
+50%.
Area 1.1:  
Wealth creation Goal 1: end 
poverty in all its 
forms 
everywhere 
Strategic goal 2: COTTO N AND COTTON BY -PRODUCT PROCESSING CAPACITY HAS SIGNIFICANTLY INCREASED  
Result 2.1 The added value created through 
industrial and small-scale 
processing has increased  xiii. Fibre
production +50%
xiv. Yarn production
+100%
xv. Fabric
production +50%
xvi. Oil and press
cake production +50%
xvii. Artisanal yarn
production +100%
xviii. Artisanal oil
production +50%Area 2.3: 
Expanded local 
agro-industry 
and value chain 
development 
inclusive of 
women and  
youth Goal 9. Build 
resilient 
infrastructure, 
promote inclusive 
and sustainable 
industrialization  
and foster 
innovation   
Result 2.2 Investment for the processing of 
the sector's products in all African 
countries has been promoted Private sector 
investment: +50% Area 3.5: 
Increased public 
and private 
investments  
in agriculture 
Strategic goal 3 COTTON AND COTTON BY -
PRODUCT MARKETING AND 
CONSUMPTION HAVE IMPROVED 
Result 3.1 Improved quality, reputation and 
the "African cotton" label have 
been promoted on world markets iii. "African cotton"
labels established
10% or more premium
on African fibres
Result 3.2 The regional trade of cotton 
products and by-products has 
been promoted iii. Regional market
i.1. Consumption of
craft industry textiles
and clothing + 100%.
i.2. Clothing market
share + 100%
i.3. Oil and press cakes
+50%.Area 2.2:  
Increased intra-
African  
regional trade 
and  
better 
functioning  
of national & 
regional  
WT/CFMC/W/74 
- 81 -PACIP PACIP change targets  CAADP SDG 
markets  
Strategic goal 4: CAPACITY OF COTTON-TEXTILE INSTITUTIONS AND PROFESSIONAL ORGANISATIONS HAS BEEN 
DEVELOPED  
Result 4.1 Knowledge management and 
strategic monitoring are ensured One conference/year  
At least 50 capitalisation 
documents produced Area 3.6: 
Increased 
capacity to 
generate, 
analyse and  
use data, 
information,  
knowledge and 
innovations  
Result 4.2 Regional training centres and 
regional training initiatives are 
revitalized One farmer 
academy/year 
Capacities of at least 25 
regional 
organisations/associatio
ns (other than RECs) 
strengthened Capacities 
of at least 25 regional 
craft associations 
strengthened 
At least 50 partnership 
agreements signed and 
implemented Area 3.3: 
Strengthened 
capacity  
for evidence 
based   
planning, 
implementation 
& review 
Result 4.3 Programme governance is 
efficient Program governance 
implemented and 
functional 
REC and regional 
grouping capacities 
strengthened 
All cotton-producing 
countries are supported 
for programme 
implementation Area 3.2: 
Effective and 
accountable  
institutions 
including  
assessing  
implementation 
of  
policies and  
commitments 
Area 3.4: 
Improved multi-
sectorial   
coordination,  
partnerships 
and  
mutual 
accountability   
in sectors 
related to   
agriculture 
Strategic goal 5: COTTON SYSTEM CONTRIBUTION TO THE REALISATION OF SDGS HAS INCREASED  
WT/CFMC/W/74 
- 82 - PACIP PACIP change targets  CAADP SDG 
Result 5.1 The cotton system's contribution 
to the fight against food 
insecurity, malnutrition and 
extreme poverty has increased Reduce food insecurity 
and malnutrition by 
50%. 
Reduce extreme 
poverty in cotton-
producing areas by 
100%. Area 1.2: Food 
and nutrition 
security 
Area 1.3: 
Economic 
opportunities, 
poverty 
eradication and 
shared 
prosperity  Goal 2. 
End hunger, 
achieve food 
security and 
improved 
nutrition and 
promote 
sustainable  
agriculture  
Result 5.2 The cotton system's role in job 
creation, economic opportunities 
and the reduction of migration has 
improved Reduce immigration to 
cotton-producing areas 
by 50%. 
Increase employment in 
cotton-producing areas 
by 50%. Area 1.3: 
Economic 
opportunities, 
poverty 
eradication and 
shared 
prosperity  Goal 8.  Promote 
sustained, 
inclusive and 
sustainable 
economic 
growth, full and 
productive   
employment and 
decent work for 
all  
Result 5.3 The cotton system's contribution 
to conflict prevention and post-
conflict reconstruction has 
improved At least 5 continental 
and/or regional 
programmes on post-
conflict issues are 
funded 
Result 5.4 The cotton system's contribution 
to the fight against food 
insecurity, malnutrition and 
extreme poverty has grown Adoption of climate-
smart behaviour 
increased by 50%. Area 1.4:  
Resilience and 
sustainability 
Area 2.5: 
Improved  
management 
of natural 
resources  
for sustainable 
agriculture Goal 13. Take 
urgent action to 
combat climate 
change and its 
impacts  
WT/CFMC/W/74 
- 83 - APPENDIX 3 – DETAILED PACIP PROJECT FOR OPERATIONALISATION SUPPORT 
Title Project for operationalisation support of the Pan -African Investment 
Programme on Cotton - POS-PACIP 
Area covered by the action / 
location Pan-African project: West Africa, Central Africa, East Africa  
Cotton producing and processing countries 
Sums involved  Total estimated cost: EUR 16,590,000  
Total sum requested from the EU Commission and the ACP Secretariat: EUR 
16,590,000 
Implementation modalities  The project will be implemented through a Delegation Agreement to be 
signed between the SACP, the EU and NEPAD. NEPAD will rely on cotton 
organisations, the Regional Economic Communities and other implementing 
agencies through direct subsidies enabling these structures to operate at the 
local level. At the national level, a small joint team, composed of a cross-
industry representative and public officials representing each sectoral 
department (production, processing and marketing) will coordinate 
implementation, identify national priorities and monitor and assess the 
initiative. 
Implementation time frame  60 months  
Action beneficiaries  Project target:  
(I) African cotton-producing or processing countries; (ii) The Regional
Economic Communities involved in the cotton and textile sector
development strategy; (iii) Regional or pan-African professional
organisations active in the cotton value chain; (iv) Cotton sector stakeholders
and their organisations;
Direct beneficiaries:
(i) Stakeholders in the cotton and textile sectors (farmers,
craftsmen, SMEs and agro-industries, other by-product processing
industries)
(ii) Stakeholder organisations and cotton-textile inter-
professions
(iii) The public sector (governments and regional economic
communities) in the context of institutional support for the sector
WT/CFMC/W/74 
- 84 -1. Executive Summary
The Pan-African Investment Programme on Cotton (PACIP) addresses the challenges currently facing the 
cotton sector as it relates to development in Africa by focusing on key issues associated with the value 
chain, including processing and its funding, the promotion of public-private partnerships, food and 
nutrition security, combating youth unemployment, post-conflict reconstruction and the role of the 
state in fostering a healthy business climate. 
The PACIP project for operationalisation support is a preliminary initiative to serve as a launching pad 
for a larger programme, the Pan-African Investment Programme on Cotton It has the same overall 
objective. 
To contribute to PACIP results, the priority project's specific activities are: (i) capitalising on the 
achievements of the two previous intra-ACP programmes in terms of stakeholder knowledge 
management and capacity building, (ii) reinforcing the role of African institutions in coordination and 
implementation through institutional support, (iii) facilitating the mobilisation of additional resources 
through formal mechanisms to promote public/private partnerships, and (iv) contributing to PACIP 
monitoring and assessment, and facilitating the governance of cotton-textile value chain stakeholders in 
Africa.  
The action principles adopted for the implementation of the priority project are as follows: 
-Alignment with the ACP Group of States' new approach on commodities ,
-T
ransversal approaches to support, always giving priority to the most challenging segment of
the sector for this activity.
-The need to capitalise on the project's approach to assist other agricultural value chains by
facilitating the management of knowledge and positive experiences between value chains and
by promoting the achievements of leading countries in each segment of the value chain.
-Promote public-private partnership instruments and blending for resource mobilisation
-Promote entrepreneurship as a means of developing the agricultural and processing sectors
-Promote local, regional and pan-African markets for finished cotton products
-Reinforce cotton's role in the consolidation of food and nutrition security, as well as in
improving producer incomes, conflict prevention and post-conflict reconstruction.
The main expected project results are: 
-Result 1 : There is effective capitalisation of the positive experiences of national/regional value
chains, and stakeholder capacity building and knowledge management aimed at improving the
competitiveness of the cotton-textile-manufacturing value chain is enhanced.
-Result 2 : Institutional support to national cotton sectors, governments and RECs is in place, and
actors' private resource mobilisation capabilities are strengthened with respect to processing for
the sector's products and by-products.
-Result 3 : Governance of national and regional value chains has improved, national sector
stakeholder involvement has increased, and the appropriation of project achievements is
ensured.
-Result 4 : Coordination of the operationalisation project, PACIP monitoring-assessment, and
implementation of the cotton facility and short-term expertise
The project's operational approach, based on added value generation along the value chain, relies on 
optimising the achievements of its various industries, strengthening stakeholder capacities, and 
mobilising private and public investment to assist in the promotion of rural and urban entrepreneurship 
in cotton-textile, as well as the emergence of an industrial sector with high added value.  
The project's implementation is based on four components each linked to expected results. 
WT/CFMC/W/74 
- 85 - Component 1 focuses on capitalization, specifically in relation to the results of the assessments of the 
first two ACP cotton programmes, and other initiatives supporting the value chain. This component 
covers: 
-The capitalization of achievements from projects or internal organisations specific to certain
national sectors, in particular those which helped these sectors become more competitive in
one or more business areas.
-The valorisation of results and recommendations from previous studies, whether carried out as
part of the current programme's short-term expertise or through regional or national strategies
and not implemented.
-The consolidation of large-scale actions carried out by the consolidation programme of the EU-
Africa partnership action framework and other past projects, such as Integrated Production and
Pest Management (IPPM), support to improve fibre quality, support to improve fibre export
marketing, support for the installation of looms in West Africa, and the support for fertility
management undertaken with UNCPB in Burkina Faso.
Component 2, which focuses on institutional support for stakeholders to mobilise financial resources, is 
based on:  
-Mobilising private partners to finance necessary investments to modernise production facilities
and improve processing capacity.
-Support for the development of advocacy with national, regional and continental public
authorities for broad support for the value chain.
-Advocacy with donors to assist the sector
-Reinforcing the role of cotton in food and nutrition security, improving producer incomes,
conflict prevention and post-conflict reconstruction
Components 3 and 4 will cover: 
-Planning, managing and steering the activities of the priority programme
-Monitoring / assessing the implementation of the overall programme (PACIP) by developing a
database to track national sectors' performance, with indicators of production sustainability,
changes in processing capacity and marketing performance. This database will not only be able
to monitor national commodity chains against the strategic objectives they have defined for
themselves, but also to monitor overall performance indicators for the PACIP programme and
the reorientation of financial mobilisation efforts. This monitoring-assessment mechanism will
also help guide public policy measures to be discussed at the high-level meetings on cotton.
-Support for the establishment of a high-level governance framework on the development of
African cotton value chains. This incentive-based framework, at the ministerial level, will deal
with the joint commitments of producer countries, in a binding or non-binding manner, for fibre
processing development and the implementation of a marketing policy which addresses the
challenges of regional and African market integration and promotion.
-The development and allocation of support via short-term expertise and subsidies for projects
(cotton facility) to assist regional or national initiatives which are aligned with PACIP's
objectives.
Whereas PACIP is an investment programme spanning a period of fifteen (15) years and will consist of 
several sectoral or cross-sectoral projects, the priority operationalisation project, which is planned to 
last 5 years, will serve as a pilot framework. As such, it will focus on improving the PACIP's institutional 
implementation framework, developing the capacities of stakeholders, mobilising the private sector for 
cotton processing, and regional market development. In this respect, it will remain complementary to 
the other projects PACIP's financial resources mobilisation framework will serve to gradually introduce. 
These complementary projects may adopt either a thematic (production, processing, marketing) or a 
WT/CFMC/W/74 
- 86 - transversal approach. In both cases, results framework activities that have not been implemented will 
be included, giving priority to those with a greater impact on achieving results.  
Finally, each investment programme project will have strong strategic anchoring with priority cross-
sectoral themes such as climate change, food security, immigration, as well as conflict and post-conflict 
reconstruction in cotton-producing areas. The connections to these themes will be highlighted in the 
project results framework. 
2. Justification and context
2.1 Learning the lessons of the EU Commission's support for cotton 
In a context of institutional reform of national cotton industries, marked by support from the European 
Union Commission and the ACP Secretariat through two major programmes supporting the sector's 
development, the Pan-African Investment Programme on Cotton aims to consolidate achievements and 
improve competitiveness and added value creation within value chains.  
A number of lessons can be drawn from the implementation of these programmes: 
• The reinforcement of cotton's role in modernising agriculture and combating poverty,
and the development of agricultural value chains ,
• T
he importance of creating an effective multi-operator intervention framework with
implementing agencies, national and regional public institutions and sectoral professional
organisations, and which respects subsidiarity when implementing actions;
• Such a framework must include the creation of Public-Private Partnerships at the
national level, with each stakeholder's involvement clearly defined, and corresponding,
adequate funding, enabling sustainable investment in cotton value chains with a significant and
positive impact on their development.
• Greater involvement of the sector's key stakeholders in the formulation and
implementation of strategies, subject to backing from other partners;
• Better recognition and appropriation of the need for advocacy and of the resource
mobilisation strategy to help implement the action plans;
• The need for mutual learning between geographical areas and stakeholders, in
particular concerning each other's achievements and comparative advantages.
Based on the lessons learned from these first two intervention phases, a reorientation of the 
intervention approach could potentially have a strong impact.  
2.2. Limited competitiveness of African cotton sectors 
The competitiveness of African cotton sectors remains dependent on the results its three key sectors: 
cotton farming, cotton processing, and fibre and by-product marketing.  
• Farming, which is mainly the preserve of small family farms, remains limited in terms of
productivity. Indeed, cotton-based cropping systems like Africa's continue to face constraints
associated with the limited use of inputs, poorly enforced technical pathways and a gradual
decline in soil fertility. Although cotton cultivation is among the most intensive, it is affected by
the limited intensification of its rotational crops (especially cereals and legumes), climatic
variation and the demise of fallowing as a soil fertility management strategy. Seed cotton yields
are therefore capped at 1.5 T/ha, compared with a potential of 3 to 4 tonnes/ha obtained
through intensive cultivation with water control.
• Fibre processing has declined sharply in the entire West and Central African production
basin. Indeed, due to a series of crises and competition from second-hand clothing from
WT/CFMC/W/74 
- 87 - developed countries, then from Asian textiles, countries gradually de-industrialised. The UEMOA 
region had 41 industrial units in 1980, compared to about 20 in 2007. According to a BOAD 
study, twenty-five years ago, Benin, Burkina, Côte d’Ivoire and Mali processed 22% of their fibre 
production locally; in 2013, this only applied to 5% of their production. This decline in the 
processing rate was also due to an increase in seed cotton production, even as competition for 
its processing became increasingly fierce.2324 There is, however, a dynamic trend in the artisanal 
textile sector, ev
en though it receives very little support from the national authorities. 
• As a consequence of deindustrialisation, almost all African cotton fibre production is
placed on the international market. Regional or pan-African trade in cotton products remains
rather limited. This overexposure of African cotton to market fluctuations further weakens the
development of national cotton industries25. Above all, the balance of power between African
suppliers and inte
rnational traders is at odds with the reputation of African fibre (which is world
renowned). The export marketing strategy is therefore a major challenge.
2.3 Greater importance of cotton in local economies 
At the same time, the increase in seed cotton production has made cotton more important to rural 
development in major producing countries.  
This is due in particular to the positive impact of the cotton system on food security, thanks to the 
resulting resources which are used to purchase staple foods, but also to enhanced food production 
through the use of appropriate rotations and the modernisation of the entire cultivation system. 
More generally, through its contribution to job creation and its impact on access to credit and 
production inputs, cotton is a vector for development in most producer countries. The capitalisation of 
the "cotton approach" to support the development of agricultural sectors was also considered as a 
means of supporting other sectors in cotton-producing areas.  
2.4 Recent improvement in markets and promising prospects for Africa 
The cotton sector plays an essential role in the majority of African economies. A sharp rise is African 
cotton production has been seen in the past few years. Africa's share of global cotton production rose 
significantly, going from 4.1% in 2010 to nearly 7% in 2016. This rise in production can be explained by 
the favourable climate since 2011 compared to previous years and the marked appreciation of the US 
dollar by about 20% which took place from October 2014 to November 2016, boosting exports. Since 
2011/2012, as global prices have become more attractive, average production has stalled around 1.5 
million tonnes (6.7% of global production).  
In terms of production basins, West and Central Africa (WCA) is the driving force for farm production, 
while East Africa is the major basin for processing. In 2015/2016, production in West and Central African 
countries reached nearly 1 million tonnes, 71% of the continent's entire production. 
3. Lessons and complementarity
3.1. Organizational experiences and lessons learned 
The New Partnership for Africa's Development (NEPAD) is a programme of the African Union, adopted in 
2001 in Lusaka, Zambia, which focuses on reducing poverty and promoting economic growth and 
sustainable development in Africa. Following the NEPAD's integration into the structures and processes 
of the African Union, the NEPAD Planning and Coordinating Agency was established by decision of the 
23 Atlas on Regional Integration, Economy series, Cotton, 2007 
24 Study on the identification and promotion of Regional industrial units in the UEMOA cotton sector, March 2003. 
25 As an example, A index (in USD cents/Kg) during the 2000 – 2016 period, has seen rates rise and fall, reaching 
nearly 350% growt h
 over the 2009-2011 period. 
WT/CFMC/W/74 
- 88 - 14th AU Assembly in February 2010 as a technical body of the African Union, replacing the NEPAD 
Secretariat. The NEPAD Agency's mandate is to: 
i. Facilitate and coordinate the implementation of priority programmes and projects at the
continental and regional level;
ii. Mobilise resources and partners to support the implementation of Africa's priority
programmes and projects;
iii. Direct and coordinate research and knowledge management;
iv. Monitor and assess the implementation of programmes and projects; and
v. Advocate for the vision, mission and principles/values of the AU and NEPAD
The NEPAD Agency is the AU's implementing agency which advocates for NEPAD, facilitates and 
coordinates the development of NEPAD programmes and projects at the continental level, mobilises 
resources and engages the global community, the regional economic communities (RECs) and Member 
States in the implementation of these programmes and projects. The NEPAD Agency replaces the 
NEPAD Secretariat, which coordinated the implementation of NEPAD programmes and projects since 
2001.  
With the AU's mandate, the NEPAD Agency implements four (4) investment programmes which address 
new and emerging development trends in Africa: 
• Governance of food security and natural resources
• Human capital development and employment
• Regional integration, infrastructure and trade
• Industrialisation, science, technology and innovation
Governance of food security and natural resources 
The programme focuses on the acceleration of modern agriculture to increase production capacity, 
improve productivity and stimulate the production of added value. This is achieved through product 
processing and the introduction of services which contribute to national prosperity, as well as food and 
nutritional security. Programme results include the mitigation of climate change impacts, improving 
sustainable water and soil management, improving environmental governance, while also promoting 
the blue economy and extractive industries. 
Human capital development and employment 
The program aims to expedite and diversify economic transformation in rural areas. It also focuses on 
creating better job opportunities for the youth in marginalised communities to enable them to integrate 
and contribute to the emergence of a prosperous continent. 
Regional integration, infrastructure and trade 
The programme's priority is continental integration and infrastructure development to improve mobility 
and thus promote job creation, trade, and economic development. Its strategic framework is the 
Programme for Infrastructure Development in Africa (PIDA), which addresses the issue of infrastructure 
deficits which hamper the continent's industrialisation and international competitiveness. The results 
focus on trade facilitation, as well as infrastructure development for energy, transport, water and ICTs. 
Industrialisation, science, technology and innovation 
Central to the programme is the harmonisation of industrialisation policies at the national and regional 
levels to create synergies with continental policy frameworks. Improving science, technology, 
innovation, health and education capabilities is integral to promoting a skills and capacities revolution in 
science, technology and innovation (STI). Among the key frameworks implemented by the programme 
are the Science, Technology and Innovation Strategy for Africa (STISA 2024), the African Health Strategy, 
WT/CFMC/W/74 
- 89 -the Pharmaceutical Manufacturing Plan for Africa (PMPA), the Continental Education Strategy (CESA) 
and Accelerated Industrial Development for Africa (AIDA). 
It is within the framework of its triple mandate (a): as an incubator for high-impact projects with 
demonstrable feasibility which translate the African Union's (AU) continental strategic development 
frameworks into national development priorities, (b) to improve knowledge-sharing among countries, 
through evidence-based feedback and best practices on regional integration, and c) to negotiate 
partnerships and mobilise resources to carry out the first 10-year implementation plan of the 2063 
Agenda, that cotton emerged as the model for the transformation of African agriculture within NEPAD.   
To consolidate these achievements for the benefit of cotton value chains, the SACP and the EUC appear 
as key partners in supporting the operationalisation of PACIP. This support phase, like the first two, must 
address the priority challenges affecting the competitiveness of African cotton industries, but also lay 
the foundations to increase the rates of cotton fibre and by-product processing. 
WT/CFMC/W/74 
- 90 - STAKEHOLDER COORDINATION AND PROJECT APPROPRIATION 
The PACIP project for operationalisation support aims to lay the foundations for the operationalisation 
of the investment 
programme on cotton. To this end, it focuses on coordinating stakeholders to improve 
results in terms of financial resource mobilisation for processing, capitalising on experience, and 
capacity building. It is therefore up to stakeholders at the national (within the sector, inter-professions, 
representatives of supervisory bodies) and regional level (professional organisations, Economic 
Communities, etc.) to assume ownership of the project's effectiveness by: an) identifying their priorities 
within the project's action package, b) defining and reorienting the intervention approach, c) 
monitoring/assessing the interventions, and d) mobilising operators and specific investors to their 
advantage 
The approach of the PACIP-POS is focused on identifying and promoting the comparative advantages of 
each national cotto n
 industry and regional assets in order to encourage mutual learning and the 
development of synergies and complementarities with respect to expertise, know-how, investment, 
trade infrastructure funding and the optimisation of project resources. 
Concretely, the project's actions for African cotton value chains will involve a number of stakeholders: 
• The governments of seed cotton and fibre producing countries, first individually for the
implementation of their priority actions for the national sector, and then collectively through
support in formulating sectoral reforms (processing and marketing of the sector's products and
competing products). States' activities in terms of drafting and implementing public policy
instruments, depending on circumstances, will be carried out with or without support from one
or more technical partners,
• The Regional Economic Communities, to develop synergies between regional public and
private actors, and coordinate intervention programmes (COMESA, ECCAS, UEMOA, ECOWAS,
SADC, etc.);
• Cotton trade associations, to gradually organise and professionalise stakeholders in
order for them to fulfil certain delegated coordination duties and replace the state in the face of
scarce resources. These include AProCA, ACA, ACTIF, PR PICA, WECARD, MoZaZiMa, etc.
• Traditional partners supporting the development of agricultural value chains. These
include the EU Commission and SACP, AfDB, IDB and the World Bank, Chinese, Indian, French,
Brazilian, German, Dutch cooperation, etc.
• Technical agencies supporting agricultural development, such as FAO, ITC, UNCTAD,
UNIDO, CTA, IOF, etc.
In the context of PACIP, the NEPAD Planning and Coordination Agency (APCN) is involved as a central 
actor in coordinating the development of the strategic framework, then in coordinating stakeholders 
and the monitoring-assessment of actions, through its expertise in formulating and implementing 
sectoral development policies. NEPAD, at the African Union Commission's request, will coordinate the 
initiative
WT/CFMC/W/74 
- 91 - 4. Detailed description
4.1. Objectives 
Overall objective: To promote the sustainable development of African cotton value chains as an 
instrument to transform agriculture, create added value and increase income, and promote integration 
through trade, in accordance with the Malabo agenda. 
Specific objective: Assist African cotton industries in improving their competitiveness and boost global 
value creation by increasing stakeholders' income and productivity, investing in product and by-product 
processing and improving their marketing.  
To achieve this objective, the action is broken down into the following expected results: 
Result 1 : There is effective capitalisation of the positive experiences of national/regional value chains, 
and stakeholder capacity building and knowledge management aimed at improving the competitiveness 
of the cotton-textile-manufacturing value chain is enhanced.  
Result 2 : Institutional support to national cotton sectors, governments and RECs is in place, and actors' 
private resource mobilisation capabilities are strengthened with respect to processing for the sector's 
products and by-products.  
Result 3 : Governance of national and regional value chains has improved, national sector stakeholder 
involvement has increased, and the appropriation of project achievements is ensured. 
Result 4 : Coordination of the operationalisation project, PACIP monitoring-assessment, and 
implementation of the cotton facility and short-term expertise 
4.2. Expected results and key activities 
Result 1 : There is effective capitalisation of the positive experiences of national/regional value chains, 
and stakeholder capacity building and knowledge management aimed at improving the competitiveness 
of the cotton-textile-manufacturing value chain is enhanced. 
Product 1.1:  Positive experiences in cotton production, processing and marketing of value chain 
products and by-products are identified and capitalised upon.  
Activity 1.1.1 : Identify the positive experiences of national value chains with sustainable cotton 
production, optimal processing and marketing of national cotton industry products and by-products; 
Activity 1.1.2 : Organise exchange missions for stakeholders (industry and coordination/regulation 
stakeholders) in countries/regions, based on identified positive experiences.  
Activity 1.1.3 : Capitalise on the identified positive experiences by involving stakeholders themselves in 
the identification of challenges, the institutional framework and specificities of the given context, 
success factors, impact indicators and conditions for the transfer of each experience; 
Activity 1.1.4 : Set up a mechanism to monitor the support of national value chains to facilitate the 
appropriation of identified positive experiences.  
Product 1.2 : Stakeholder capacities (direct operators and other actors) in national cotton value chains 
are strengthened to ensure better competitiveness and sustainability.  
WT/CFMC/W/74 
- 92 - Activity 1.2.1 : Build the capacities of national/regional cotton research institutions through 
specialisation along thematic lines of research on cotton that will integrate the economic aspects of 
cotton production and processing into the priority research areas. 
Activity 1.2.2 : Build farmers' capacities to promote agricultural entrepreneurship and improve the 
profitability of small-scale, cotton-producing family farms; 
Activity 1.2.3 : Promote the establishment of a regional training centre for African fibre technology, 
grading and processing specialists in order to train experienced and competent African technicians; 
Activity 1.2.4 : Build the stakeholders' capacities for sustainable productivity and continue to raise 
awareness of good agricultural practices, including more sustainable and climate-resilient agricultural 
pathways; 
Activity 1.2.5 : Assist in the implementation of specific training modules on marketing fibre and the 
sector's other by-products, for the benefit of operators in national value chains; 
Product 1.3:  An operational and effective mechanism for knowledge management within cotton sectors 
is in place for stakeholders.    
Activity 1.3.1:  A strategic monitoring mechanism has been set up for all African cotton industries, in 
English and in French;   
Activity 1.3.2 : Specific communication materials (media, bulletins, newsletters, etc.) are produced in 
order to highlight positive experiences and periodically follow up on different products and news from 
national industries;    
Result 2:  Institutional support to national cotton industries is provided, and stakeholders' capacities to 
mobilise resources for added value creation are enhanced. 
Product 2.1 : Assist the sector's stakeholder organisations and national industries' public institutions in 
optimising their structures and creating an advocacy mechanism to mobilise resources for the cotton-
textile-manufacturing sector.  
Activity 2.1.1 : Assist producer organisations in conforming to the OHADA Uniform Act on Cooperative 
Societies; 
Activity 2.1.2: Assist in establishing and consolidating inter-professions within national sectors, building 
their capacities to promote the value chain and its strategic vision, and advocating for the mobilisation 
of financial resources for implementation;  
Activity 2.1.3 : Assist value chain stakeholders in establishing an effective advocacy mechanism for public 
authorities and technical and financial partners to enhance the mobilisation of financial resources and a 
legal framework promoting the cotton-textile-manufacturing sector;  
Activity 2.1.4 : Support the modernisation of cotton value chain companies (SMEs and large agro-
industry) in order to bolster the sector's competitiveness.  
Product 2.2 : The capacity to mobilise resources for national value chains is improved. 
WT/CFMC/W/74 
- 93 - Activity 2.2.1: Support the periodical organisation of an African forum on cotton and textiles, with the 
aim of bringing investors and technical and financial partners together and promoting the mobilisation 
of financial resources for product and by-product processing.   
Activity 2.2.2: Organise market research missions targeting potential consumers of the sector's products 
and by-products.  
Activity 2.2.3: Promote co-entrepreneurship within the Regional Economic Communities in order to 
facilitate and support the emergence of competitive players in the field of fibre processing.  
Result 3 : Governance of national and regional value chains has improved, national sector stakeholder 
involvement has increased, and the appropriation of project achievements is ensured. 
Product 3.1 : Governance and promotion of national and regional value chains is improved. 
Activity 3.1.1:  Promote a regional framework for the regional governance of cotton value chains, aiming 
to involve all countries which produce, process or consume cotton products and by-products in 
developing public policies. 
Activity 3.1.2: Facilitate the holding of a high-level sectoral meeting on cotton as a platform for 
discussion and the development of pan-African and regional initiatives to promote fibre processing;  
Product 3.2 : Involvement of national stakeholders in PACIP implementation and their appropriation of 
processes:  
Activity 3.2.1: Improve the operation of African professional platforms with regard to: a) cotton 
production, b) processing and c) sector product and by-product marketing.  
Activity 3.2.2: Promote national appropriation of PACIP, facilitate the nomination of national focal points 
to ensure national coordination and monitoring, and ensure alignment with national strategies.  
Result 4 : Coordination of the operationalisation project, PACIP monitoring-assessment, and 
implementation of the cotton facility and short-term expertise 
Product 4.1 : The implementation, coordination and steering of project actions is ensured 
Activity 4.1.1:  Oversee the implementation, coordination and monitoring/assessment of the project for 
operationalization activities 
Activity 4.1.2:  Steer the project for operationalisation in terms of its impact on the implementation of 
the overall investment program 
Product 4.2 : PACIP monitoring-assessment and implementation of a communication plan 
Activity 4.2.1 : Oversee monitoring-assessment for the project and the overall PACIP Programme, by 
monitoring, adjusting and steering implementation indicators and results and facilitating planned steering 
and orientation mechanisms. 
Activity 4.2.2:  Over
see the implementation of a PACIP communication plan, taking into account the 
programme's strategic orientations. 
Product 4.3 : A cotton facility  is in place to address priority challenges 
Activity 4.3.1: Continue to implement a short-term expertise assisting national and regional industries, 
aiming to improve their competitiveness through the operationalisation of Result 1.  
Activity 4.3.2: Continue to implement a cotton facility addressing the challenges of Results 1 and 2  
WT/CFMC/W/74 
- 94 - 4.3 Cross-cutting issues  
Improving food and nutrition security, the economic empowerment of women and the youth, 
environmental sustainability and climate change adaptation are important parameters of programme 
implementation. 
Food security 
Food security is integrated into the cotton sector's diversification programme, which provides for the 
production of food crops such as maize, sorghum, black-eyed peas, peanuts and soybeans. These crops 
receive the same type of support as cotton crops (seeds, inputs and agricultural equipment, etc.). 
Specifically, these issues will be addressed in the productivity and income enhancement component in 
an integrated manner. Indeed, one of PACIP's distinguishing features is its emphasis on the role of the 
cotton system in consolidating sustainable development objectives. It addresses food security in 
particular as part of the implementation of sustainable technical systems and pathways, integrating the 
consolidation of food security within it.  
Gender and the youth 
Gender issues are linked to the social sustainability of cotton value chains. Within the framework of the 
priority project, they will be addressed through capacity building for these target groups, playing a part 
in certain key sector operations. The focus will especially be on women, including in farmer capacity-
building sessions for income generation. 
Climate change 
Increasing productivity in the field, both by adapting technical pathways and through cotton research, 
will be based on improving the resilience of cultivation systems to climate change. To this end, the focus 
of research will be to minimise the burden and impact of climate change. 
Conservation of the environment 
The dissemination of good agricultural practices and sustainable cotton intensification pathways which 
take into account the preservation of natural agricultural resources (soil and fertility) and of the 
environment (against pollution from pesticides) will take place during the promotion of agricultural 
entrepreneurship. In choosing mechanisation and motorisation techniques and defining technical 
pathways, the focus will be on preserving soil and its environment. 
5. Organisation and implementation of the project for operationalisation support (POS- 
PACIP)
5.1 POS-PACIP intervention approach 
This project aims to assist cotton sectors through their main stakeholders by improving the 
competitiveness an d
 viability of their sector, as well as through producer countries to increase the rate 
of fibre and by-product processing in the sector to promote the local African market with the aim of 
liberalising trade on a continental level.  
The project for operationalisation support is intended to be a precursor to a global dynamic initiated by 
PACIP around the cotton value chain, ensuring:  
• A new pan-African policy agenda on cotton based on the Malabo agenda with African
leadership to drive change by focusing on business climate, favourable trade policies and
funding mobilisation;
WT/CFMC/W/74 
- 95 - • The mobilisation of the private sector and the promotion of investment (including small-
scale entrepreneurship and support for family farms) as a driver of change, based on public-
private partnerships as a key strategy;
• That the entire cotton-textile-clothing value chain is taken into account, without
prioritising sectoral support for certain components, as was usually the case up to now;
• Support to local initiatives (craft industry, professionalization of small producers'
organisations) and regional market development.
5.2 Action principles: 
The action principles adopted for the implementation of the project for operationalisation support are 
as follows: 
• Alignment with the ACP Group of States' new approach on commodities ,
• T
ransversal approaches to support, always giving priority to the most challenging
segment of the sector for this activity.
• The need to capitalise on the project's approach to assist other agricultural value chains
by facilitating the management of knowledge and positive experiences between value chains
and by promoting the achievements of leading countries in each segment of the value chain.
• Promote public-private partnership instruments and blending for resource mobilisation
• Promote entrepreneurship as a means of developing the agricultural and processing
sectors
• Promote local, regional and pan-African markets for finished cotton products
• Reinforce cotton's role in the consolidation of food and nutrition security, as well as in
improving producer incomes, conflict prevention and post-conflict reconstruction.
5.3 POS-PACIP structure 
The project will have 4 components: 
5.3.1 Component 1: Capitalisation, knowledge management and capacity building of stakeholders 
and professional organisations to improve the competitiveness of African cotton sectors   
E
xperience will be capitalised upon. This will make it possible: 
• To facilitate cross-disciplinary learning and the transfer of positive experiences
• To develop a self-assessment framework for value chains and identify potential
bottlenecks.
• To facilitate deliberations during high-level political meetings which could lead to the
harmonisation of national, regional and continental cotton policies.
• To revitalize cotton research in an efficient shared approach to improve productivity,
processing rates and the performance of cotton value chains.
5.3.2 Component 2: Support to institutions and for the mobilisation of financial resources for sector 
product and by-product processing  
T
ogether with support to inter-professions and other public mechanisms for coordinating cotton 
sectors, the mobilisation of financial resources will be a priority activity within this project. This support 
will cover:  
- Support for the development of advocacy with national, regional and continental public
authorities for broad support for the value chain.
- Advocacy with donors to assist the sector
WT/CFMC/W/74 
- 96 - - Mobilising private partners to finance necessary investments to modernise production
facilities and improve processing capacity.
- Reinforcing the role of cotton in food and nutrition security, improving producer
incomes, conflict prevention and post-conflict reconstruction
- The implementation of a cotton facility to finance pilot actions in favour of value chains
5.3.3 Component 3: Industry governance, and appropriation by national stakeholders 
Th
is component will support the establishment of a high-level consultation framework for the 
development of African cotton value chains. This incentive-based framework, at the ministerial level, 
will deal with the joint commitments of producer countries, in a binding or non-binding manner, for 
fibre processing development and the implementation of a marketing policy which addresses the 
challenges of regional and African market integration and promotion.  
5.3.4 Component 4: Project and programme coordination and steering 
Th
e fourth project component will cover management and steering, including: 
• POS-PACIP activity planning, management and steering
• Monitoring / assessing the implementation of the overall programme (PACIP) by
developing a database to track national sectors' performance, with indicators of production
sustainability, changes in processing capacity and marketing performance. This database will not
only be able to monitor national commodity chains against the strategic objectives they have
defined for themselves, but also to monitor overall performance indicators for the PACIP
programme and the reorientation of financial mobilisation efforts. This monitoring-assessment
mechanism will also help guide public policy measures to be discussed at the high-level
meetings on cotton.
• The development and allocation of support via short-term expertise and subsidies for
projects (cotton facility) to assist regional or national initiatives which are aligned with PACIP's
objectives.
5.4 Activities and intervention approach broken down by components 
Component 1: Capitalisation, knowledge management and capacity-building 
Activity content and challenges. 
Component 1 focuses on capitalization, specifically in relation to the results of the assessments of the 
first two ACP cotton programmes, and other initiatives supporting the value chain. This component 
covers: 
-The capitalization of achievements from projects or internal organisations specific to certain
national sectors, in particular those which helped these sectors become more competitive in
one or more business areas. The methodology for capitalisation for this component will go
beyond simply sharing experiences and lessons learned. It will be paired with a valorisation
workshop to identify the necessary prerequisites in terms of organisation, regulations and other
public policy support instruments, as well as technical training and training needs that will
facilitate replication through an "appropriation action plan" to be implemented by sector
stakeholders having participated in the exchange project. Should stakeholders not be able to
implement the action plan themselves, inter-professions or government departments could be
provided with a copy of the action plan for specific assistance/support plans.
-The valorisation of results and recommendations from previous studies, whether carried out as
part of the current programme's short-term expertise or through regional or national strategies
WT/CFMC/W/74 
- 97 -and not implemented. The valorisation component's methodology consists of sharing the most 
relevant results of these studies and their recommendations and removing identified constraints 
associated with institutional and stakeholder capacity building. This includes support for cotton 
research for all producing countries, a study on the costs and support for the establishment of a 
seed cotton price buffer fund in Côte d'Ivoire, support for the identification and management of 
innovations in cotton cultivation, a study on artisanal weavers in North Cameroon, a study on 
sustainable motorization in cotton-producing areas, etc. 
-The consolidation of large-scale actions carried out by the consolidation programme of the EU-
Africa partnership action framework and other past projects, such as Integrated Production and
Pest Management (IPPM), support to improve fibre quality, support to improve fibre export
marketing, support for the installation of looms in West Africa, and the support for fertility
management undertaken with UNCPB in Burkina Faso. The component's methodology for the
consolidation of existing large-scale actions is designed to facilitate their replication in other
interested sectors in which they have not yet been undertaken, as well as support for capacity
building and small capitalisation exercises resulting in a simplified action plan for their
appropriation. Support from this component may involve guidance for project formulation or
the identification of a potential guidance partner.
POS-PACIP intervention approach for component 1 
Capacity building for cotton research institutions will rely on the recommendations of the expert report 
assessing cotton research. This study outlines the main challenges faced by African cotton research, 
including:  
-Insufficient human, financial, technical and scientific resources
-The poor or non-existent coherence between national and regional cotton research policies
-Insufficient communication and valorisation of results
-Poor coordination and sharing of research results among teams
-The lack of communication between researchers and research dissemination services
-The need to expand cotton research to the entire production system
Several areas of support were proposed based on this study's recommendations: 
-Scientific support for the identification of relevant topics of research, among which:
oOptimising product processing and generating added value
oPest management
oSoil fertility management
oAccounting for strenuous activity and sustainable mechanisation/motorisation
management
oAdapting technical pathways to global changes (including the climate)
oGenetic enhancement and benefits of GM crops
-Supporting human resource development efforts for research, training researchers and
-Support for the establishment of research and results sharing networks, which, with the help of
different sub-regional organisations such as WECARD (West and Central Africa), ASARECA (East
Africa) and CCARDESA (Southern Africa), will make it possible:
oTo foster collaboration among researchers by promoting the development of active
networks of African researchers across broad geographical (WCA and ESA) and linguistic
(Francophone, Anglophone, Portuguese-speaking) groups ,
oT
o strengthen certain existing networks of cotton researchers such as the SEACF
(Southern and Eastern Africa Cotton Forum) to maintain them and expand their
capabilities,
oTo support PR-PICA's evolution towards "Integrated Cotton Production in Africa" in
West and Central Africa, in order to foster the integration of research topics.
WT/CFMC/W/74 
- 98 -Overall, the methodological approach for support for research will focus on the regionalisation of 
research and pooling resources, all while promoting the sharing of infrastructures between national 
sectors. The aim is to channel material resources towards sites with comparative advantages regarding a 
given topic. These sites, which would thereby become Regional Research Centres, may also serve 
multiple functions in the field of cotton research. Given the increasingly difficult economic climate and 
the need for globalised actions within the regional economic communities (RECs), this integration will 
facilitate access to new funding, in particular from international calls for tender.  
In terms of methodology, support for training in fibre technologies and professional platforms will be 
provided through training for the technical staff of existing training centres and professional platforms, 
institutional and financial support so as to allow these organizations to carry out projects more 
efficiently, and support in terms of laboratory equipment. 
Table 8 Specific support for capacity building of organisations supporting cotton sectors8 
Support area Target 
organisation Training support  Financial 
support Equipment 
support 
Support for cotton 
research National  
cotton 
research 
centres and 
regional 
research 
organisations 
(WECARD, 
ASARECA, 
CCARDESA), 
Research 
networks. Yes Yes, including 
research funded 
through the 
cotton facility Yes (lab 
equipment) 
Fibre technology 
training CERFITEX  Yes Yes Yes 
Support for 
professional platforms AProCA, ACA, 
ACTIF, etc. Yes Yes No 
Cap
acity building for sector stakeholders and their organisations will be modelled after the support for 
existing professional platforms. In addition to institutional development, specific support will be 
provided to stakeholders themselves for specific issues such as (a) rural entrepreneurship, the 
profitability of family farms, (b) agricultural sustainability and good agricultural practices, and (c) fibre 
and product marketing. The types of support to be provided are outlined in the table below.  
Table 9: types of support provided to cotton sector stakeholders 
Type of capacity 
building Target 
stakeholder Training support  Financial 
support Equipment 
support 
Support for 
agricultural 
entrepreneurship and 
the profitability of 
family farms Farmers  
Textile 
craftsmen Yes No Yes, provision of 
mechanised 
equipment and 
looms  
Agricultural 
sustainability and 
good agricultural 
practices, including Farmers  Yes No Yes, for small 
material if 
necessary 
WT/CFMC/W/74 
- 99 -resilience to climate 
change 
Marketing for fibre 
and other sector by-
products Cotton 
companies Yes No No 
S
upport for agricultural entrepreneurship and the profitability of family farms 
F
arm modernisation under PACIP will include different types of farms, including: 
-Emerging (average to large) farms with large land areas and significant needs in terms of
mechanisation and sustainable motorisation, and
-Small family farms, dependent on family labour, which are more vulnerable to fluctuations in
profitability and resilience to global changes.
The project's intervention approach will aim to: 
-Support the emergence and consolidation of agricultural entrepreneurship through profitability-
oriented emerging farms benefiting from an adequate level of motorisation/mechanisation
which takes into account the specificity of labour management within the farm. Agricultural
motorisation equipment will be divided by farm type, and will span from animal-drawn
equipment to large-scale motorisation managed by cooperatives. This intermediate class of
motorisation will be made possible by tailoring motorisation individually, by introducing walking
tractors or fitting two-wheeled vehicles in cotton-producing areas.
-Provide specific support in terms of advisory services to small family farms in order to build
resilience and improve profitability in a context of constant change.
In addition, support will be given to small textile entrepreneurs in order to support the equipping and 
empowerment of small textile companies in rural areas. This support will include providing looms as 
well as training textile entrepreneurs in weaving techniques, business management and market 
penetration. 
Promote the installation of a regional training centre for African specialists in fibre technologies, grading 
and processing. 
T
he challenges of fibre processing and the marketing of cotton products require the introduction of a 
specific capacity building mechanism for stakeholders on these issues. The PACIP project for 
operationalization plans to rely on existing training centres and improve training services, and provide 
technician and engineer training consistent with sector textile and by-product processing needs.  
The project intervention approach will involve providing financial and material support to existing 
training centres, setting up a sustainable system for partial coverage of training costs by private cotton 
companies (to retrain their personnel) and full coverage for new technicians in the labour market. From 
a technical standpoint, the project will support training centres in identifying and developing 
complementary modules to meet current training needs. 
Agricultural Sustainability and Good Agricultural Practices (GAP) 
S
upport for the dissemination of sustainable agricultural practices will be provided as an extension of 
the activities carried out by the FAO under the current cotton support programme, by integrating and 
complementing the existing set of technical proposals for dissemination. These activities will rely on 
farm schools established around more sustainable and climate-resilient agricultural technical pathways.  
The project's methodological approach, in addition to training, will involve supporting access to 
adequate agricultural equipment to boost sustainable agricultural practices (such as manure production 
WT/CFMC/W/74 
- 100 -kits, subsidized seedlings for agroforestry, equipment to combat erosion, etc.). Specific efforts will be 
made to ensure that this approach is appropriated by the national sectors and integrated into 
conventional technical advisory services for cotton cultivation.  
The different forms of support provided for under Result 1 of the PACIP project for operationalization 
are outlined in the table below. 
Table 10: Outline of expected products and activities for project component 110  
Result 1 : There is effective capitalisa tion of the positive experiences of national/regional value 
chains, and stakeholder capacity building and knowledge management aimed at improving the 
competitiveness of the cotton-textile-manufacturing value chain is enhanced. 
Products  Relevant activities  
P
roduct 1.1:  Positive experiences in cotton 
production, processing and marketing of value 
chain products and by-products are identified 
and capitalised upon Activity 1.1.1 : Identify the positive experiences 
of national value chains with sustainable cotton 
production, optimal processing and marketing 
of national cotton industry products and by-
products; 
Activity 1.1.2 : Organise exchange missions for 
stakeholders (industry and 
coordination/regulation stakeholders) in 
countries/regions, based on identified positive 
experiences.  
Activity 1.1.3 : Capitalise on the identified 
positive experiences by involving stakeholders 
themselves in the identification of challenges, 
the institutional framework and specificities of 
the given context, success factors, impact 
indicators and conditions for the transfer of 
each experience; 
Activity 1.1.4 : Set up a mechanism to monitor 
the support of national value chains to facilitate 
the appropriation of identified positive 
experiences. 
P
roduct 1.2 : Stakeholder capacities (direct 
operators and other actors) in national cotton 
value chains are strengthened to ensure better 
competitiveness and sustainability.  Activity 1.2.1 : Build the capacities of 
national/regional cotton research institutions 
through specialisation along thematic lines of 
research on cotton that will integrate the 
economic aspects of cotton production and 
processing into the priority research areas. 
Activity 1.2.2 : Build farmers' capacities to 
promote agricultural entrepreneurship and 
improve the profitability of small-scale, cotton-
producing family farms; 
Activity 1.2.3 : Promote the establishment of a 
regional training centre for African fibre 
technology, grading and processing specialists 
in order to train experienced and competent 
African technicians; 
Activity 1.2.4 : Build the stakeholders' capacities 
for sustainable productivity and continue to 
raise awareness of good agricultural practices, 
WT/CFMC/W/74 
- 101 -including more sustainable and climate -resilient 
agricultural pathways; 
Activity 1.2.5 : Assist in the implementation of 
specific training modules on marketing fibre 
and the sector's other by-products, for the 
benefit of operators in national value chains; 
P
roduct 1.3:  An operational and effective 
mechanism for knowledge management within 
cotton sectors is in place for stakeholders. Activity 1.3.1 :  A strategic monitoring 
mechanism has been set up for all African 
cotton industries, in English and in French;  
Activity 1.3.2 : Specific communication materials 
(media, bulletins, newsletters, etc.) are 
produced in order to highlight positive 
experiences and periodically follow up on 
different products and news from national 
industries; 
C
omponent 2: Support to institutions and for the mobilisation of financial resources 
This component aims to provide:  
-Direct support to national sectors to improve financial resource mobilization through a sectoral
advocacy mechanism (Product 2.2)
-Indirect support for the consolidation of sector stakeholders for better coordination and
mobilization of financial resources (Product 2.1)
Component intervention approach 
Various stakeholders and institutions are covered by this institutional support to improve the capacity to 
mobilize financial r
esources and investment for the sector: 
-Governments and RECs, in order to facilitate, as part of joint ventures in the cotton and textile
processing industry, the mobilization of capital for the creation of new businesses, or to
facilitate access to capital for existing businesses. The project's intervention instruments will rely
on APIX (investment and export support agencies), the holding of regional forums, and trade
meetings with potential buyers for products in the sector;
-Cotton sectors, through their interprofessional platforms, to appropriate advocacy strategies for
resource mobilization.
-Private companies in the cotton and textile sector, through support for modernisation and ISO
certification, to improve the product sales and facilitate access to additional financial resources
for investment. This technical support for businesses entails a complementary contribution on
their part to achieve overall results which they will have previously committed to and expressed
interest in.
-Stakeholder professional organisations, to adapt them to a favourable environment, enabling
greater involvement in sectoral activities. In this respect, the transformation of producers'
professional organisations into cooperatives will enable them to more readily provide a wider
range of services to their members, on the basis of a more flexible legal status with regard to
services and the market.
-Interprofessions within national sectors. This support aims to build their capacities to promote
the value chain and its strategic vision, and advocating for the mobilisation of financial resources
for the implementation of the investment programme; With strengthening public-private
partnerships, inter-professions are a privileged interface for inter-stakeholder dialogue, and play
a predominant role in mobilising actors and resources. The project's approach will involve
assisting the consolidation of representative inter-professions and facilitating their
establishment where they do not exist.
WT/CFMC/W/74 
- 102 -Direct support to national sectors, governments and RECs to improve the mobilisation of financial 
resources through an advocacy mechanism and the improvement of the business environment will 
involve:  
-The regular holding of a cotton forum. This will involve, as in the case of the current
programme's support for the organization of FARA 2017 in Côte d'Ivoire, financial and material
support for a government or regional community, via stakeholder professional platforms.
Substantial contributions from public stakeholders and institutions will be necessary to ensure
sufficient involvement from beneficiaries and the activity's perpetuation.
-Trade meetings with potential buyers (international or regional).
-Supporting national and regional institutions to facilitate joint ventures in the textile industry
and cotton by-product processing.
-Assisting the improvement of the global business climate, and more specifically that of the
cotton, textile and by-product industry. This activity will be carried out through the coordination
of a policy framework to facilitate the introduction of regulations more conducive to private
investment, as well as through an economic monitoring system to communicate on African
countries' investment strengths in order to stimulate capital flows. The business climate will be
improved at the methodological level through support for public policies (high-level meetings on
cotton), support for APIX (communication and facilitating new business development), and
coordination with other national and regional initiatives to improve the business climate in
countries or sub-regions.
Table 11: Outline of expected products and activities for project component 211  
Result 2 : Institutional support to national cotton sectors, governments and RECs is in place, and 
actors' private resource mobilisation capabilities are strengthened with respect to processing for 
the sector's products and by-products. 
Products Relevant activities  
P
roduct 2.1 : Sector stakeholders and public 
institutions in the national sectors are optimally 
organized, and an advocacy mechanism for 
resource mobilization for the cotton-textile-
manufacturing sector has been implemented. Activity 2.1.1 : Assist producer organisations in 
conforming to the OHADA Uniform Act on 
Cooperative Societies; 
Activity 2.1.2 : Assist in establishing and 
consolidating inter-professions within national 
sectors, building their capacities to promote the 
value chain and its strategic vision, and 
advocating for the mobilisation of financial 
resources for implementation; 
Activity 2.1.3 : Assist value chain stakeholders in 
establishing an effective advocacy mechanism 
for public authorities and technical and financial 
partners to enhance the mobilisation of 
financial resources and a legal framework 
promoting the cotton-textile-manufacturing 
sector;  
Activity 2.1.4 : Support the modernisation  of 
cotton value chain companies (SMEs and agro-
industry) in order to and their ISO certification if 
appropriate, to bolster the sector's 
competitiveness. 
WT/CFMC/W/74 
- 103 - Product 2.2 : The capacity to mobilise resources 
for national value chains is improved. Activity 2.2. 1: Support the periodical 
organisation of an African forum on cotton and 
textiles, with the aim of bringing investors and 
technical and financial partners together and 
promoting the mobilisation of financial 
resources for product and by-product 
processing.  
Activity 2.2.2 : Organise market research 
missions targeting potential consumers of the 
sector's products and by-products. 
Activity 2.2.3 : Promote co -entrepreneurship 
within the Regional Economic Communities in 
order to facilitate and support the emergence 
of competitive players in the field of fibre 
processing. 
Activity 2.2.4 : Assist the improvement of the 
global business climate in the cotton, textile 
and by-product industry.  
C
omponent 3: Industry governance, and appropriation by national stakeholders 
Component intervention approach 
Increasing cotton fibre and by-product processing can only be achieved through a specific regulatory 
environment. PACIP
's goal of increasing processing rates requires action in terms of stakeholder 
governance and public policy coordination in order to:  
-Establish an investment-friendly environment
-Regulate competition from the second-hand and black markets which undermine the
competitiveness of textile products and other by-product processing industries.
-Facilitate fibre and by-product trade to expand the African cotton and textile market.
To address this, a framework to support sector governance will be promoted as part of the project for 
operationalisation, in order to lay the foundations of an African policy to promote processing for fibre 
and other by-products. The key instruments for this governance are:  
-Support for advocacy by industry stakeholders to attract the attention of public authorities and
technical and financial partners
-The introduction of a high-level sectoral meeting to agree upon coordinated policies to promote
cotton processing and limit competition from other products.
-Support for professional cotton platforms to assist the entire value chain and facilitate the
professionalization of the sector's stakeholders
At the national level, this governance will result in greater involvement of sector stakeholders in PACIP's 
implementation and appropriation, in particular for diagnostics and practical recommendations. To 
support its appropriation, specific actions will be carried out to assist in the appointment of a national 
focal point to ensure the coordination and monitoring-assessment of project actions and their alignment 
with any national sectoral strategies. This national focal point will consist of a private sector and a 
government representative, and will be responsible for overseeing all PACIP activities in the country.  
WT/CFMC/W/74 
- 104 -Table 11: Outline of expected products and activities for project component 312  
Result 3 : Go vernance of national and regional value chains has improved, national sector 
stakeholder involvement has increased, and the appropriation of project achievements is ensured.  
Products Relevant activities  
P
roduct 3.1 : Governance and promotion of 
national and regional value chains is improved. Activity 3.1.1 : Promote a regional and pan -
African framework for the regional governance 
of cotton value chains, aiming to involve all 
countries which produce, process or consume 
cotton products and by-products in developing 
public policies and implementing PACIP. 
Activity 3.1.2 : Facilitate the holding of a high -
level sectoral meeting on cotton as a platform 
for discussion and the development of pan-
African and regional initiatives to promote fibre 
processing; 
P
roduct 3.2 : Involvement of national 
stakeholders in PACIP implementation and their 
appropriation of processes  Activity 3.2.1 : Improve the operation of African 
professional platforms with regard to: a) cotton 
production, b) processing and c) sector product 
and by-product marketing. 
Activity 3.2.2 : Promote national appropriation 
of PACIP, facilitate the nomination of national 
focal points to ensure national coordination and 
monitoring, and ensure alignment with national 
strategies.   
C
omponent 4: Coordination of the operationalisation project, PACIP monitoring-assessment, and 
implementation of the cotton facility and short-term expertise  
The coordination of the project for operationalisation was separated from the initiative's governance in 
order to provide another level of guidance for PACIP actions. Besides its responsibility for project 
management and monitoring-assessment, Priority Project Coordination will contribute resources to 
steer PACIP (expanded COS-Cotton) and implement the cotton facility (grant contract) and short-term 
expertise. It should be noted that these two instruments are crucial to the implementation of PACIP, as:  
-Short-term expertise functions as a prospective tool to identify promising actions and measure
their potential impact as well as conditions for their implementation (feasibility study). This
mechanism will be proposed by the PACIP Steering Committee and subsequently sought by
national networks to help them better define the actions they wish to carry out.
-The cotton facility is a testing tool, insofar as it can be used to experiment with the
implementation or the replication of promising ideas, and thus better appreciate constraints
related to scaling up or financial needs.
Under the PACIP mechanism, short-term expertise will thus help define actions precisely, while the 
cotton facility will provide support for pilot initiatives which may be scaled up as a national, regional or 
thematic project. The importance of proper coordination between these two instruments justifies their 
integration into the coordination of the PACIP priority project for operationalisation. 
WT/CFMC/W/74 
- 105 - Table 13: Outline of expected products and activities for project component 413 
Result 4 : Project coordination and monito ring-assessment of the implementation of the Pan -
African Investment Programme are in place, and the cotton facility and short-term expertise are 
introduced to identify promising actions and to support improvements in value chain 
competitiveness 
Products Relevant activities  
P
roduct 4.1 : The implementation, coordination 
and steering of project actions is ensured Activity 4.1.1 : Oversee the implementation, 
coordination and monitoring/assessment of the 
project for operationalization activities 
Activity 4 .1.2: Steer the project for 
operationalisation in terms of its impact on the 
implementation of the overall investment 
program 
P
roduct 4.2 : PACIP monitoring-assessment and 
implementation of a communication plan  Activity 4.2.1 : Oversee monitoring -assessment  
for the project and the overall PACIP 
Programme, by monitoring, adjusting and 
steering implementation indicators and results 
and facilitating planned steering and 
orientation mechanisms. 
Activity 4.2.2 : Oversee the implementation of a 
PACIP communication plan, taking into account 
the programme's strategic orientations. 
P
roduct 4.3 : A cotton facility and short-term 
expertise is in place to address priority 
challenges Activity 3.3.1 : Continue to implement a short -
term expertise assisting national and regional 
industries, aiming to improve their 
competitiveness through the operationalisation 
of Result 1. 
Activity 3.3.2 : Continue to implement a cotton 
facility addressing the challenges of Results 1 
and 2 
5
.4. Provisional budget 
Table 14: POS-PAC
IP budget 
A detailed budget by component / result and activity is presented in the following table.  The total 
budget amounts to 
16.6 million Euro. 
WT/CFMC/W/74 
- 106 -Component/result  Sum (Euro)  Operators  
Result 1: There is effective capitalisation of  the positive 
experiences of national/regional value chains, and stakeholder 
capacity building and knowledge management aimed at 
improving the competitiveness of the cotton-textile-
manufacturing value chain is enhanced. 4,600,000  
Activity 1.1.1 Identification of experiences to capitalize upon 
Activity 1.1.2 Organising exchange missions 
Activity 1.1.3 Capitalizing on positive experiences 
Activity 1.1.4 Monitoring experience appropriation 
Activity 1.3.1 Implementation of bilingual strategic monitoring 
Activity 1.3.2 Creating materials based on positive experiences 40,000  
500,000  
100,000  
30,000  
100,000  
30,000  NEPAD, RECs, 
governments, 
technical 
agencies 
Activity 1.2.1 Strengthen cotton research capacities  
Activity 1.2.2 Promote agricultural entrepreneurship and support 
family farms 
Activity 1.2.3 Promote training in fibre technology and processing 1,500,000  
1,200,000  
500,000  RECs, 
specialised 
bodies 
Activity 1.2.4 Training producers in sustainable technical 
pathways 
Activity 1.2.5 Training for product quality and marketing 400,000  
200,000  
Result 2: Institutional support to national cotton sectors, 
governments and RECs is in place, and actors' private resource 
mobilisation capabilities are strengthened with respect to 
processing for the sector's products and by-products. 6,200,000  
Activity 2.1.1.1 PO support for OHADA transfer  
Activity 2.1.2 Inter-profession consolidation 
Activity 2.1.3 Advocacy support 
Activity 2.1.4 Business upgrading 400,000  
700,000  
2,000,000  
800,000  
Activity 2.2.1 Organisation of a co tton forum  
Activity 2.2.2 Market research missions 
Activity 2.2.3 Promotion of Co-entrepreneurship 1,000,000  
800,000  
500,000  REC, 
Implementing 
agencies 
Result 3: Governance of national and regional value chains has 
improved, national sector stakeholder involvement has 
increased, and the appropriation of project achievements is 
ensured.  
. 1,300,000  NEPAD, RECs, 
Activity 3.1.1 Promote a regional governance framework for VCs  
Activity 3.1.2 High level meeting on cotton 200,000  
300,000 NEPAD – 
RECs 
Activity  3.2.1 Improve the operation of African professional 
platforms 
Activity 3.2.2 Promote the appropriation of PACIP at the national 
level 300,000 
500,000 NEPAD – 
PMU 
Result 4: Coordination of the operationalisation project, PACIP  
monitoring-assessment, and implementation of the cotton 
facility and short-term expertise 3,300,000  NEPAD, RECs, 
Activity 4.1.1: Management, coordination and monitoring -
assessment of the project for operationalization 
Activity 4.1.2: Project steering, in terms of its impact on PACIP 800,000 
300,000 NEPAD – 
RECs 
Activity 4.2.1 Short -term expertise   
Activity 4.2.2 Implementation of the grant facility 700,000  
1,500,000 NEPAD – 
PMU 
WT/CFMC/W/74 
- 107 -Sub-Total 1   15,400,000  
Communication and visibility  250,000   PMU  
Assessment and audit  150,000  External 
auditors 
Sub-total 2 15,800,000 
Unforeseen expenses 790,000 
TOTAL  16,590,000  / 
5
.5. Organisational structure and governance of the priority project  
5.5.1 Governance of the priority project 
The priority project for the operationalisation of PACIP is based on a general governance approach for 
PACIP. The programme governance structure will be organised at the global level by:  
• A high-level steering committee, composed of the Ministers responsible for cotton, to
steer the overall regional and pan-African investment and integration policy. This committee will
be convened by the AU Commission or the NEPAD agency which will act as its secretariat. This
High-level Steering Committee will be chaired by a representative elected for two years.
• The expanded COS-Cotton, which will directly oversee the implementation of PACIP and
its reorientation.
• The Steering Committee of the priority project for operationalisation.
• A stakeholder consultation framework which will meet ahead of the steering committee
and make recommendations to said committee. This technical committee for stakeholder
consultation will submit proposals to the project steering committee, and involve greater
participation of national experts.
This governance framework will be made relevant at the regional and national levels through: 
• A national steering committee, consisting of the national monitoring structure for the
national cotton strategy, or the national committee established as part of the regional cotton
strategy. This committee will appoint a national representative to the pan-African consultative
bodies, who will review implementation reports according to the priorities defined by each
country.
• At the regional level, a regional technical consultation framework will be introduced in
order to discuss the relevance of intervention approaches, the distribution of the project's
financial resources, and the impact of the priority project and overall investment programme.
The regional scale will also be mobilised for stakeholder training and support for professional
organisations in cotton.
5.5.2 Project for operationalisation coordination 
The NEPAD agency will coordinate and manage the priority programme, through a Programme 
Management Unit (PMU) which will be recruited and assigned to the programme. This PMU will be 
backed at the regional level by the Regional Cotton Focal Points (RFCPs) established within the Regional 
Economic Communities and supported by international consultants provided by the PMU. The 
consultants supporting the RCFPs will be recruited by the RECs, and funded by an endowment to each 
REC, which will serve to perpetuate the skills acquired. At the operational level, sectoral professional 
organisations involved in implementing activities will be supported by a Consultant recruited by the 
PMU and provided by the NEPAD Agency.  
The PMU will consist of: 
WT/CFMC/W/74 
- 108 -• A coordinator
• An administrative and financial manager
• A programme monitoring-assessment and value chain development expert
• A financial resource mobilisation expert
• A capacity building and knowledge management expert
The following diagram summarizes the governance structure of the POS and PACIP. 
Figure 1: PACIP governance and implementation structure 
5.6 Financial re source mobilisation strategy  
The financial resource mobilisation strategy for the PACIP project for operationalisation is based on: 
• Priority mobilization of financial resources for the intra-ACP programme through its new
approach to commodities. Indeed, the priority programme was structured around transversal
support through the key pillars of this approach, namely funding, capacity building and trade
and investment. Moreover, the priority programme aims to capitalise on the achievements of
the first two programmes funded by the EU Commission, and is closely aligned with the
resolution of the 105th session of the ACP Council of Ministers.26
• Mobilising new EU 
Commission financial instruments, based on blending, and covering
specific regional support relating to specific issues. The advantage of these mechanisms is: (a)
their ability to leverage the EU's financial effort on specific actions which have had a pilot
implementation phase, and (b) the possibility of mobilising other financial partners from the
start of the support implementation. The two mechanisms identified for the implementation of
the priority programme are the Emergency Trust Fund and the Africa investment facility.
26 A resolution of the 105th session of ACP Ministers held in Brussels on 3-4 May 2017 concerning the development 
of trade and of t
he agricultural commodities sector instructs the Committee of Ambassadors to consider 
supporting the cotton sector under the new ACP approach by facilitating the identification and utilisation of 
funding sources from the EDF 11 in order to contribute, inter alia, to the renewal of the EU-Africa Partnership on 
Cotton's development component, as well as to the implementation of the Pan-African Investment Programme on 
Cotton, and the "Cotton Road" programme  Coordination and 
monitoring -assessment
- OperationalStrategic guidance -
ProjectsPolitical backingAUC/NEPAD
1. Cotton Minist e
rial
Committee
2. Expanded COS-Coton
EU Intra-ACP 
project SC
PMU Intra-ACP 
Project 1PMU Project 2 
EU/Trust fundCotton project 
SC Other Backer
PMU Project 
Other Backer
WT/CFMC/W/74 
- 109 -5.6.1 Emergency Trust Fund 
The trust fund brings together funds from various European Commission financial instruments within 
the EU budget, including significant new resources. Resources from the 11th European Development 
Fund (EDF), supplemented by funds from the regional indicative programmes for West, Central and East 
Africa and contributions from the national indicative programmes for the Horn of Africa. Additional 
funds have been drawn from other financial instruments such as the Development Cooperation 
Instrument (DCI) and the European Neighbourhood Instrument (ENI) to respond to crises affecting the 
relevant regions. Instruments managed by the Commission represent a total of EUR 1.8 billion in 
addition to new resources made available by EU Member States and other donors. 
Projects funded by the trust fund are varied: 
• Economic programmes creating job opportunities, especially for women and the youth,
with an emphasis on vocational training and the creation of small and micro-enterprises. Actions
could in particular help to support the reintegration of returnees into their communities. The
results of the priority programme regarding the promotion of agricultural and artisanal
entrepreneurship for cotton are entirely eligible for this support, all the more so as they strongly
contribute to combating migration and facilitate migrants' return by offering them reintegration
solutions upon their return. Furthermore, cotton-producing areas continue to be favoured areas
of emigration in West Africa.
• Projects supporting the provision of basic services for local populations, such as food
security and nutrition, health, education and social protection, and environmental sustainability.
All PACIP support concerning productivity improvement and food security through the cotton
system is eligible for this initiative and may benefit from dedicated assistance in some sectors.
• Projects aimed at improving migration management, including limiting and preventing
irregular migration, granting readmission and effective returns, providing international
protection and asylum, promoting legal migration and mobility, and promoting synergies
between migration and development.
The consultative process for the development of PACIP and its priority project for operationalisation is 
perfectly in line with this mechanism's process of identification of eligible initiatives, with the 
involvement of various partners for identification, formulation implementation. 
Table 15: Trust fund thematic areas covered by the POS15  
Thematic area 1: Economic development and employment Primary 
target Secondary 
target 
Support for entrepreneurship, small and medium -sized 
enterprises (SMEs) and the informal sector, particularly for young 
people and women X ☐
Support for the development of economic growth areas ☐ X 
Building vocational and technical skills and improving the 
employability of young girls and boys X ☐
Thematic area 2: Food and nutrition security, rural development 
and resilience Primary 
target Secondary 
target 
Food and nutrition security ☐ X 
Production, productivity, valorisation and marketing of agricultural 
products ☐ X 
WT/CFMC/W/74 
- 110 -Local infrastructure (access, agricultural water management, etc.)  ☐ ☐
Sustainable management of natural resources and a daptation to 
climate change ☐ ☐
Access to drinking water, hygiene and sanitation, living conditions 
and access to basic services (health, education etc.) ☐ ☐
Thematic area 3: Migration management  Primary 
target Secondary 
target 
Preventing irregular migration and combating human trafficking ☐ X 
Asylum, legal migration and mobility ☐ ☐
Synergies between migration and development (support for 
diaspora initiatives) ☐ ☐
Return and reintegration assistance ☐ X 
Border management ☐ ☐
Thematic area 4: Govern ance and conflict prevention  Primary 
target Secondary 
target 
Strengthening the rule of law ☐ ☐
Preventing conflict and radicalisation ☐ X 
Capacity-building for security ☐ ☐
☐: not covered by the fund, X: covered by the fund
5.6.2 The Africa investment facility 
The Africa investment facility was created in 2015 and is operational since November 2015.27 It is an 
innovative financial 
mechanism that combines both grants and loans from Development Finance 
Institutions to supplement the development funding and impact of EU aid. 
Along with other facilities offered by the Commission, the Africa investment facility acts as a catalyst to 
attract resources and improve the coordination and coherence of actions in accordance with the 
principle of joint ownership, partnership and accountability set out in the Paris Declaration, the Accra 
Agenda and the Busan Accord. 
This facility is intended for national and regional projects in all African countries eligible to receive EDF 
funding. The sectors funded by the Africa investment facility are energy, agriculture, transport, 
environment, water and sanitation, climate change, SMEs, information and communication technologies, 
social services, and assistance to the private development sector. The Africa investment facility's 
support consists of investment grants, technical assistance, risk capital and other risk-sharing 
instruments.  
PACIP is therefore entirely eligible for this facility and would benefit from subscribing to it, particularly in 
order to mobilise other financial partners to support increasing fibre processing capacity.  
5.7. Results monitoring  
The project for operationalisation support will be implemented in accordance with the principles of 
results-based manag e
ment (RBM). The ongoing technical and financial monitoring of project 
implementation is a continuous process and an integral part of the NEPAD Agency's responsibilities. To 
this end, it will establish a permanent internal, technical and financial monitoring system and will 
produce regular progress reports (at least twice a year) and a final report.  
27 In French "Plan d’investissement pour l’Afrique" 
WT/CFMC/W/74 
- 111 -A
s part of the overall programme (PACIP), a specific monitoring and assessment system will be set up to 
organise and standard
ise progress reports on implementation, while providing adequate visibility for 
project beneficiaries and activities. A dedicated database will be developed for this purpose.  
5.8 Risks and hypotheses 
Table 16: Outline
 of POS-PACIP risks and hypotheses16 
Risks  Risk level 
(H/M/L)*1 Mitigation measures  
Lack of involvement from key 
stakeholders in project 
implementation  M Significant involvement from governments 
and inter-professions in project 
implementation - Organise workshops to 
launch a communication plan and information 
sessions 
Political and economic ins tability 
in some countries M Limit the project's scope of action to stable 
and high-impact countries. 
Contractual difficulties with 
certain operators M Involvement of project partners from the 
project validation phase until its signature 
Difficulties coo rdinating the 
mobilisation of financial 
resources and project partners M The programme's governance and 
stakeholder coordination bodies convene 
regularly 
*1 H = High; M = Moderate; L = Low
Prerequisite to t
he success of the priority programme and its implementation: 
•The NEPAD Agency, which coordinates programme implementation, must have all the necessary
skills and political mandate to implement the programme.
•Partners chosen to implement actions must be credible and operational.
•Policy makers and other key programme actors must show real interest in the programme.
5.9. Assessment and audit  
5.9.1. Assessment and audit by the donor  
The EU Commission and the ACP Secretariat will carry out a final assessment of the entire priority 
programme as well as a mid-term assessment (of all components). These assessments will be performed 
by independent consultants. The aim of the mid-term assessment will be to resolve any potential 
problems in the components being assessed. 
Assessment reports will be made available to the donor, the NEPAD Agency, the African Union 
Commission and other key stakeholders. The ACP Secretariat and the EU Commission will review the 
assessments' findings and recommendations and jointly decide, where appropriate and after consulting 
with the NEPAD Agency, on follow-up actions to be carried out and any necessary adjustments, 
including, if necessary, the project's reorientation.  
With due regard to the requirements of the contracts signed for this action's implementation, the EU 
Commission and the ACP Secretariat may, in light of a risk assessment, commission independent audits 
or expenditure verification missions for one or more contracts or agreements.  
5.9.2. Assessment and audit by organisation(s) 
WT/CFMC/W/74 
- 112 -Spe
cific audits may be commissioned or conducted by professional organisations which have had 
significant involveme
nt in the implementation of the project, in order to make recommendations on 
how to optimise their involvement and the impact of the project. States and other RECs will also be able 
to carry out specific project reorientation audits by requesting short-term expertise within the project's 
framework.  
5.10. Communication and visibility  
EU communication and visibility are legal obligations for all EU-funded external actions. 
A communication strategy on key results of the Priority Programme and an operational plan for its 
implementation intended for beneficiaries and other target groups will be developed so that each 
stakeholder may appropriate and make use of them on a daily basis.  The communication and visibility 
strategy for the priority programme and its operational plan can be reviewed and adapted during 
implementation in order to better convey the intended messages and disseminate results more 
effectively, particularly in rural areas. 
WT/CFMC/W/74 
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