WORLD TRADE  
ORGANIZATION  G/SPS/GEN/900 
4 February 2009 
 (09-0478) 
Committee on Sanitary a nd Phytosanitary Measures  
  
 
OVERVIEW OF SPS NEEDS AND ASSISTANCE IN  
EIGHT LEAST DEVELOPED COUNTRIES 
 
Note by the Secretariat
1 
 
 
1. At the request of the United Nations Indus trial Development Organization (UNIDO), the 
Standards and Trade Development Facility (STD F) prepared a desk study on SPS needs and 
assistance in eight Least Developed Countries (LDCs), i.e. Benin, Cambodia, Lao PDR, Lesotho, Mozambique, Rwanda, Senegal and Yemen.  The study was based on a review of existing needs 
assessments, notably the Diagnostic Trade Inte gration Studies prepared under the Enhanced 
Integrated Framework, and other publicly availabl e information.  The study is attached for the 
information of the SPS Committee 
2. The report complemented and strengthened UNI DO's broader programme proposals aimed at 
addressing the supply-side constraints of the eight LDCs concerned and identified areas where future 
SPS technical cooperation activities with a positive trad e effect might be focused.  The final report 
was presented at the WTO/UNIDO LDC Ministerial Conference on Aid for Trade
 in November 2008 
in Siem Reap, Cambodia. 
_______________ 
 
 
                                                      
1 This document has been prepared  under the Secretariat's own respon sibility and is without prejudice 
to the positions of Members or to their rights or obligations under the WTO.   
    
   
 
 
     
 
 
OVERVIEW OF SPS NEEDS AND ASSISTANCE IN 
EIGHT LEAST DEVELOPED COUNTRIES  
 
 
   
Background paper 
(November 2008) 
 
 
Standards and Trade Development Facility 
 
 
  
 
LDC Ministerial Conference 
19-20 November 2008 
Siem Reap, Cambodia 
 
 
 
  
 
  
 
 
 
This report reflects the views of the STDF Secret ariat and does not represent the views of its 
partner agencies or donors.   
G/SPS/GEN/900 
Page 4  
 
  Table of Contents 
 
EXECUTIVE SUMMARY .............................................................................................................. .....8
 
I. INTRODUCTION ..................................................................................................................1 1 
II. SPS COMPLIANCE CAPACITY AS A SUPPLY SIDE CONSTRAINT ........................12  
A. PRO-POOR IMPACT OF AGRICULTURAL GROWTH AND SPS  COMPLIANCE ...............................12  
B. SPS  COMPLIANCE AND PARTICIPATION IN INTERNATIONAL TRADE ........................................14  
C. OVERVIEW OF COMMON SPS  NEEDS AND CONSTRAINTS ........................................................18  
III. SPS ASSISTANCE TO LDCS SURVEYED ........................................................................23  
A. TRENDS AND DRIVERS OF ASSISTANCE ....................................................................................23  
B. STDF  PROGRAMME ..................................................................................................................25  
IV. CONCLUSIONS AND RECOMMENDATIONS................................................................28  
PRELIMINARY RECOMMENDATIONS ......................................................................................................29  
ANNEX I:  BENIN ................................................................................................................ .............................. 32  
A. OVERVIEW OF SPS  SITUATION .................................................................................................32  
B. OVERVIEW OF SPS-R ELATED TECHNICAL COOPERATION .......................................................33  
C. STDF  ACTIVITIES IN BENIN ......................................................................................................34  
ANNEX II:  CAMBODIA............................................................................................................ ....................... 35  
A. OVERVIEW OF SPS  SITUATION .................................................................................................35  
B. OVERVIEW OF SPS-R ELATED TECHNICAL COOPERATION .......................................................37  
C. STDF  ACTIVITIES IN CAMBODIA ..............................................................................................38  
ANNEX III:  LAO PDR ............................................................................................................ .......................... 40  
A. OVERVIEW OF SPS  SITUATION .................................................................................................40  
B. OVERVIEW OF SPS-R ELATED TECHNICAL COOPERATION .......................................................42  
C. STDF  ACTIVITIES IN LAO PDR.................................................................................................43  
ANNEX IV:  LESOTHO............................................................................................................. ........................ 44  
A. OVERVIEW OF SPS  SITUATION .................................................................................................44  
B. OVERVIEW OF SPS-R ELATED TECHNICAL COOPERATION .......................................................44  
ANNEX V:  MOZAMBIQUE........................................................................................................... .................. 46  
A. OVERVIEW OF SPS  SITUATION .................................................................................................46  
B. OVERVIEW OF SPS-R ELATED TECHNICAL COOPERATION .......................................................48  
C. STDF  ACTIVITIES IN MOZAMBIQUE .........................................................................................50  
ANNEX VI:  RWANDA.............................................................................................................. ........................ 51  
A. OVERVIEW OF SPS  SITUATION .................................................................................................51  
B. OVERVIEW OF SPS-R ELATED TECHNICAL COOPERATION .......................................................52  
C. STDF  ACTIVITIES IN RWANDA .................................................................................................54  G/SPS/GEN/900 
 Page 5 
 
 
   
ANNEX VII:  SENEGAL............................................................................................................ ........................ 55  
A. OVERVIEW OF SPS  SITUATION .................................................................................................55  
B. OVERVIEW OF SPS-R ELATED TECHNICAL COOPERATION .......................................................57  
C. STDF  ACTIVITIES IN SENEGAL .................................................................................................58  
ANNEX VIII:  YEMEN ............................................................................................................. ......................... 59  
A. OVERVIEW OF SPS  SITUATION .................................................................................................59  
B. OVERVIEW OF SPS-R ELATED TECHNICAL COOPERATION .......................................................61  
C. STDF  ACTIVITIES IN YEMEN ....................................................................................................61  
ANNEX IX:  OVERVIEW OFCAPACITY EVALUATION TOOLS............................................................ 62  
ANNEX X:  REFERENCES........................................................................................................... .................... 64  
 
 
 
  G/SPS/GEN/900 
Page 6  
 
  List of main acronyms and abbreviations 
 
ACP Africa, Caribbean and Pacific Group of Nations 
ADB Asian Development Bank 
AfDB African Development bank 
AGCI African Global Competitiveness Initiative 
AGOA Africa Growth and Opportunity Act   
ASEAN Association of South East Asian Nations  
BSE Bovine Spongiform Encephalopathy 
CBD Convention on Biological Diversity 
COMESA Common Market for Eastern and Southern Africa 
DFID UK Department for International Development  
DTIS Diagnostic Trade Integration Study 
EAC East African Community 
EC European Commission 
ECOWAS Economic Community for West African States 
EDF European Development Fund 
EIF Enhanced Integrated Framework 
EPA Economic Partnership Agreement 
EU European Union 
FAO Food and Agriculture Organization of the United Nations 
FMD Foot and Mouth Disease 
FVO Food and Veterinary Office 
GAP Good Agriculture Practices 
GDP Gross Domestic Product 
GHP Good Hygiene Practices 
GMO Genetically Modified Organism 
HACCP Hazard Analysis Critical Control Point 
HPAI Highly Pathogenic Avian Influenza 
IF Integrated Framework 
IPPC International Plant Protection Convention 
ISSB International Standard Setting Body 
ITC International Trade Centre 
LDC Least Developed Country 
MCC Millennium Challenge Corporation 
MRL Maximum Residue Level 
OECD Organization for Economic  Cooperation and Development 
OIE World Organization for Animal Health 
PCE Phytosanitary Capacity Evaluation 
PDR People's Democratic Republic 
PPG Project Preparation Grant 
PVS Performance of Veterinary Services 
RASFF Rapid Alert System for Food and Feed 
SADC Southern African development Community  G/SPS/GEN/900 
 Page 7 
 
 
  SPS Sanitary and Phytosanitary 
STDF Standards and Trade Development Facility 
TCBDB Trade Capacity Building Database 
TBT Technical Barriers to Trade 
TPR Trade Policy Review 
UK United Kingdom 
UNCTAD United Nations Conference on Trade and Development 
UNDP United Nations Development Programme  
UNIDO United Nations Industria l Development Organization 
US United States of America 
USAID United States Agency fo r International Development 
US$ United States Dollar 
WHO World Health Organization 
WTO World Trade Organization 
 G/SPS/GEN/900 
Page 8  
 
  EXECUTIVE SUMMARY
 
1. This background study has been drafted as a contribution to activities led by the United 
Nations Industrial Development Organization ( UNIDO) as part of the 2008-09 programme of 
Aid for Trade events.  It provides an overview of the food safety, animal and plant health 
(collectively known as sanitary and phytosanitary  or SPS) needs of and technical assistance 
provided and planned to a select group of ei ght Least Developed Countries (LDCs), i.e. 
Benin, Cambodia, Lao PDR, Lesotho, Moza mbique, Rwanda, Senegal and Yemen.  The 
paper also identifies areas where future SPS c ooperation activities with a positive trade effect 
might be focused. 
2. The study is based on a review of existing n eeds assessments, notably the Diagnostic Trade 
Integration Studies (DTIS) prepared by the In tegrated Framework (IF), the STDF's own Aid 
for Trade research and other reports.  The study has been updated following the Expert Working Group Meeting in Kigali, Rwanda, on 8-9 September 2008 (in preparation for the 
LDCs Ministerial Conference) and subseque nt comments received from STDF partners, 
donors and other stakeholders involved.  
3. The ability to control SPS risks and meet interna tional standards is a key element determining 
participation in the trading system of LDCs su rveyed, in raising their agricultural productivity 
and in enhancing their domestic agricultural and food safety levels.  Of specific concern is the 
impact that SPS measures can have on their ability  to gain and/or maintain market access.  
Examples of negative effects of SPS constraints on trade performance of the eight LDCs surveyed include:   
• The presence of endemic animal diseases preventing trade in livestock, meat and meat 
products, and raw hides and skins;   
• The presence of plant pests and diseases of qua rantine importance that close markets to 
trade in floriculture, horticulture or forestry products; 
• Shortcomings in the food safety control system that block fish exports to high value 
markets or result in removal of approved su ppliers for failure to respect food safety 
standards in import countries;  
• Export of low value commodities rather than hi gher value added products  due to failure to 
adequately control SPS risks in the supply chain; and  
• The absence of cold chain stor age and pasteurization facilities and shortcomings in food 
safety inspection services that could limit possibilities for trade in dairy products.   
4. Addressing "structural" issues related to endemic animal diseases and plant pests for which 
there are no easy short term solutions is a particular challenge.  To address these impediments, notably in the public sector, sustained long term commitment to funding both at national and regional level will be required to  ensure minimum levels of capacity with 
positive knock-on effects on market access.  Mob ilization of the international community to 
address Highly Pathogenic Avian Influenza (HPAI) and Foot and Mouth Disease (FMD) 
provides positive examples of such initiatives.   The challenge may be in extending such 
assistance to other animal diseases as well as plant pests such as fruitfly.    G/SPS/GEN/900 
 Page 9 
 
 
  5. The information that has been collected and sy nthesized suggests that in each of the LDCs 
surveyed efforts are being made to enhance SPS capacity, albeit at different levels and speeds. 
However, the list of outstanding SPS needs and constraints not currently covered by existing 
or future planned cooperation is still si gnificant.  Common SPS needs across the group 
include:  
• concerted investments to address "structural" issues such as endemic animal diseases and 
plant pests; 
• strengthening compliance at all levels with  good agricultural and manufacturing practices 
and other internationally recognized systems; 
• concerted reviews of institutional and legal frameworks;  
• strengthening diagnostic capacity through investments in laboratory infrastructure 
accompanied by a strategy or plan; 
• designing strategies addressing the role of the private sector in SPS management and 
compliance; and  
• strengthening "SPS diplomacy".   
6. Activities to improve the food safety, animal and plant health situation must be based on a 
careful identification and assessment of needs if they are to be successful and sustainable.  
Prioritization of needs is similarly importan t as there will never be sufficient resources to 
address all outstanding needs at once. Thus , capacity assessment and prioritization are 
important initial steps in the process of build ing and enhancing SPS capacity.  Various tools 
are available and/or have been applied in th e eight LDCs surveyed and beneficiaries and 
development partners are encouraged to use their results. 
7. To design coherent cooperation programmes, up- to-date information on previous, ongoing 
and future technical assistance is also necessar y.  Generally, however, this information is 
difficult to obtain due to under-reporting and because SPS assistance is often being provided 
as part of broader programmes focusing on ag ricultural development, export promotion, 
private sector development, etc.  This lack of information causes overlap between donor 
activities, lack of synergies, duplication of efforts and sub-optimal use of scarce resources dedicated to SPS. 
8. LDCs face many other challenges in relation to  their exports, for instance related to weak 
banking institutions, communication and transpor tation infrastructure, high freight rates and 
utility costs, etc.  In this context, SPS mana gement tends to be "reactive" rather than 
"proactive" and is often a low priority.  Therefor e, as a first step efforts should be focused on 
bringing together all the main actors involved, helping the countries to make the economic case for dedicating resources to the SPS area, in particular related to improved trade performance, and ensuring that SPS constraints ar e not considered in isolation from broader 
economic development needs. 
9. SPS issues should be more prominently addressed  in future updates of national DTIS - 
commissioned with Tier 1 funding under the E nhanced Integrated Framework.  The STDF, 
using the expertise of its participating organiza tions, should be involved in this process.  One 
approach worthy of consideration could be the development of national SPS strategies and 
prioritized action plans based on cost-benefit analys is and informed by the results of capacity 
evaluation tools where relevant.   G/SPS/GEN/900 
Page 10  
 
  10. The STDF and its partners could also play a ro le in the development of "bankable projects" 
for funding and implementation by the wi der donor community - including multi-donor 
basket funds established at country level linked to DTIS implementation or through funds becoming available under the Enhanced IF.  Some  ideas and focal areas have been hinted in 
this first phase overview but would have to be  explored in more detail on an individual 
country and/or regional basis.  G/SPS/GEN/900 
 Page 11 
 
 
  I. INTRODUCTION 
1. This background study has been drafted as a contribution to activities being led by the United 
Nations Industrial Development Or ganization (UNIDO) as part of the 2008-09 programme of Aid for 
Trade events.  Presentation of the study at the LDCs  Ministerial Conference in Siem Reap, Cambodia, 
on 19 November 2008 was preceded by a presentati on to the Expert Working Group meeting in 
Kigali, Rwanda, on 8-9 September 2008. Comments ma de at this meeting a nd further input received 
from the eight Least Developed Countries (LDCs) su rveyed, STDF partner agencies and donors, have 
been taken into account in this final paper.   
2. The paper aims to provide an overview of the food safety, animal and plant health 
(collectively known as sanitary and phytosanitary or  SPS) needs and constraints among a select group 
of eight LDCs (Benin, Cambodia, Lao PDR, Leso tho, Mozambique, Rwanda, Senegal and Yemen).  
All eight countries are part of the Integrated Framework.  The paper is based on existing reviews of SPS compliance capacity.  Diagnostic Trade Integrati on Studies (DTIS) prepared by the Integrated 
Framework (IF) have been examined, as well as a range of other SPS capacity evaluation tools and 
needs assessments.  For Cambodia and Lao PDR, the STDF’s own research under the Aid for Trade 
Initiative has been used. 
3. The overview has three objectives: 
• To identify the SPS needs and constraints f aced by each of the eight LDCs surveyed; 
• To identify ongoing and future planned SPS technical cooperation initiatives of multilateral 
development agencies and bilateral donors; and 
• To identify areas where future cooperation activiti es might be focused and examine actions to 
mobilize further support. 
 
4. The report is separated into four sections and annexes.  Section one is the introduction. The 
second section discusses SPS compliance capacity as a supply side constraint for the countries 
concerned.  The third section provides an overview of on-going and planned SPS-related assistance to 
the countries concerned.  The fourth section includes a set of preliminary conclusions and recommendations as to where further assistance may be  provided.  More deta iled overviews of the 
SPS situation in each of the eight LDCs surveyed are contained in Annex I-VIII.   
5. This paper has been drafted by staff work ing for the Standards and Trade Development 
Facility (STDF).  The STDF is a joint initiative of the Food and Agriculture Organization of the United Nations (FAO), World Organization for Anim al Health (OIE), World Bank, World Health 
Organization (WHO) and the World Trade Organizat ion (WTO).  Other organizations active in SPS-
related technical co-operation such as the Inter-A merican Institute for Co-operation on Agriculture 
(IICA), the International Trade Centre (ITC) , the United Nations Conference on Trade and 
Development (UNCTAD) and UNIDO participate in the work of the STDF.   
6. The STDF aims to assist developing countr ies enhance their capac ity to analyze and 
implement international SPS standards and to act as a vehicle for coordination and centre of good 
practice among technical cooperation providers and th e mobilization of funds.  The STDF has a target 
that 40% of its funding sources should go to LDCs or other low income economies. 
 G/SPS/GEN/900 
Page 12  
 
  II. SPS COMPLIANCE CAPACITY AS A SUPPLY SIDE CONSTRAINT 
A. P
RO-POOR IMPACT OF AGRICULTURAL GROWTH AND SPS  COMPLIANCE  
7. The eight countries surveyed for this backgroun d report represent a diverse cross-section of 
LDCs, notably with respect to the role of agriculture in their econo mies.  Table 1 below illustrates the 
varied contribution of agriculture and fisheries to  GDP among the survey group.  The contribution of 
agriculture ranged from 14.6% in Senegal to 44.3% in Lao PDR.  The range is even greater when 
agriculture's share in total export performance is co nsidered.  Agriculture contributed 2.4% of total 
exports in Cambodia, but in Rwanda this figure was 47.7%.   
Table 1:  Agriculture, fisheries and the national economies of eight selected LDCs 
 
 Agriculture's 
contribution to 
total GDP (2005) Agricultural as 
share of total 
exports (by value) 
(2006) Total value of fish 
exports (2006) in 
US$ thousands Fish as share  
of total 
merchandise 
exports (by 
value) (2006) 
Benin 32% 42% 836 - 
Cambodia 30% 2.4% 43,577 - 
Lao PDR 
 44.3% - - - 
Lesotho 17% 6.4% - - 
Mozambique 21.7% 15.8% 96,638 4.1% 
Rwanda 42.3% 47.7% 5,228 - 
Senegal 14.6% 34.3% 277,555 12.1% 
Yemen - 3.9% 149,034 2.3% 
Source: World Bank Development Indi cators, WTO Country Profiles data base and FAO Fishstat database 
 
8. Artisanal, small scale coastal fisheries are the most important form of fish production in the 
eight LDCs surveyed.  Fish production and export is  highest in Senegal, with export revenues totalling 
US$277m in 2006 (12.1% of merchandise trade).  In Mozambique and Yemen, some 480,000 and 
400,000 people make their living from the fishing industry. 
Table 2: Agriculture, employment and agricultural growth of eight selected LDCs 
 
 Benin Cambodia Lao 
PDR Lesotho Mozamb
ique Rwanda Senegal Yemen 
Rural 
population: 
% of total 
population (2006) 59% 80% 79% 81% 65% 80% 58% 72% 
Average 
annual 
agricultural 
growth rate (2005) 5% 5.5% 1.6% -1.7% 9.0% 5.6% 11.1% - 
Source: World Bank Development Indicators  G/SPS/GEN/900 
 Page 13 
 
 
  9. Although diverse in its contribution to the domes tic economy and trade, the agriculture sector 
remains the main source of employment across all of the eight countries surveyed.2  Growth of the 
agriculture sector directly affects the employment , income and thus the incidence of poverty in the 
majority of the population of the eight LDCs.  (The same  is also true of the fisheries sector of some of 
the LDCs surveyed.)  Research by the World Bank for the 2008 World Development Report 
“Agriculture for Development” underlines how agri culture can provide an engine for pro-poor 
growth, even in countries such as Yemen where agriculture’s contribu tion to GDP and total exports is 
low in comparison with other LDCs. Furthermore,  as box 1 illustrates, growth in the agricultural 
economy may benefit those in the lowest income bracke ts to a greater extent than growth in the non-
agricultural economy.   
Box 1: 1Agricultural growth and poverty alleviation 
 
 
Source: World Bank, World Development Report 2008 
 
10. Rising global food prices present an opportunity to  lift farmers in LDCs out of poverty.  
However, "supply side constraints" mean that pos itive price signals will not automatically result in 
greater output and income in LDCs and higher le vels of trade in farm products.  Accompanying 
measures are necessary to ensu re that positive price trends result in economic growth and 
development.  One area where such accompanying  measures are necessary is compliance with 
sanitary and phytosanitary or SPS measures.    
11. Increasing agricultural production levels as we ll as expanding, diversifying and adding value 
to agricultural exports are elements that featur e prominently in national development plans and 
poverty reduction strategies.  In this context, th e ability to control SPS risks is a key element in 
determining the level of participation in the in ternational trading system, raising agricultural 
productivity and enhancing domestic safety levels.  
                                                      
2 In landlocked Lesotho and Rwanda, fish production and export is limited to farmed fish from lakes 
and ponds.   G/SPS/GEN/900 
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  12. The benefits of controlling SPS risks can be summarized as follows: 
• Better control of plant and animal pest and diseases results in lower crop and livestock losses 
and higher levels of production.  This in turn increases the food supply for consumers and 
creates more income for those engaged in agricultural production and export.  
• Improved control of plant and animal pests and diseases opens opportunity to access export 
markets.  This in turn creates more income for farmers, opportunities for firms engaged in 
processing and higher levels of employment.  Some product markets are highly sensitive to 
SPS issues and the inability to control SPS risk ma y act as an absolute barrier to entry due to 
risks of the spread of disease or p ests or threats to human health. 
• Safer food results in improved human health stat us.  This contributes to net welfare through 
reduced cost for treatment of human diseases a nd fewer unproductive or lost work days.  As 
with the ability to control animal and plan t pests and disease, the capacity to control food 
safety risks can determine participation in inte rnational trade in certain product categories. 
 
B. SPS
 COMPLIANCE AND PARTICIPATION IN INTERNATIONAL TRADE  
13. Diversification away from a narrow agricultura l export base is a major challenge for the 
LDCs surveyed.  Table 3 below lists the top 10 expo rt products for each LDC by value in 2004.  From 
the table, it is clear that the highest value export product category is larger in value than the other 9 
export products combined.  This is the case for cotton lint from Benin, green coffee from Lao PDR 
and Rwanda, wool from Lesotho and fishery prod ucts from Mozambique, Senegal and Yemen.   
14. Various supply side constraints affect the possib ility of export diversification.  Within certain 
product categories, SPS restrictions can prove an absolute barrier to entry.  Examples include: 
• Restrictions on trade in livestock, meat and meat products due to the presence of animal 
diseases of importance to international trade (such as Foot and Mouth Disease, Avian 
Influenza, etc).  The presence of OIE-notifiabl e diseases in many of th e countries surveyed 
limits trading possibilities to the (often unregul ated) sale of live animals and trade in raw 
hides and skins. 
Trade in live cattle and raw hides and skins app ears in the top 10 exports of Cambodia, Lao 
PDR, Lesotho and Rwanda.  However, issues related to OIE-notifiable animal diseases prevent export of meat or meat products and severely limit the possibilities for trade even in 
the commodities listed.  Saudi Arabia has had an import ban on animal products from Yemen 
since 2000 due to the presence of various animal diseases. 
• The presence of plant pests and diseases of quara ntine importance may close markets to trade 
in floriculture, horticulture or forestry products.  To access certain markets, an up-to-date pest 
list is required, together with plant quarantine authorities able to survey  and to control plant 
pests to the satisfaction of the importing country. 
For certain markets, the presence of  plant pests may represent an abso lute barrier to trade.  In 
Cambodia, the presence of some 20 quaran tine rice pests prompted China to impose 
additional requirements for rice imported from Cambodia.  Chinese imports of Cambodian rice have now stopped.  Mozambique’s export of coconuts to South Africa has also stopped due to import restrictions because of the prevalence of Lethal Yellowing Disease in 
Mozambique. 
   G/SPS/GEN/900
 Page 15 
 
Table 3:  Top 10 agriculture and fishery product exports by value of eight selected LDCs (2004) 
 Benin Cambodia Lao PDR Lesotho Mozambique Rwanda Senegal Yemen 
Rank  Product Value 
(‘000s 
US$) Product Value 
(‘000s
US$) Product Value 
(‘000s 
US$) Product Value 
(‘000s 
US$) Product Value 
(‘000s 
US$) Product Value 
(‘000s
US$) Product Value 
(‘000s 
US$) Product Value 
(‘000s 
US$) 
1. Cotton 
Lint 154,081 Fishery 
products 39,578 Coffee, 
Green 12,995 Wool, 
Greasy 3,049 Fishery 
products 100,405 Coffee, 
Green 28,458 Fishery 
products 316,040 Fishery 
products 95,259 
2. Cashew 
Nuts 31,336 Rubber 
Natural 
Dry 36,933 Maize 2,223 Food 
Wastes 1,100 Tobacco 
Leaves 32,022 Tea 1,950 Cotton Lint 29,002 Cigarettes 11,579 
3. Cigar-
ettes 7,079 Maize 3,713 Buffaloes 2,000 Hair Fine 
Animal 656 Cashew 
Nuts 28,473 Skin Dry-
Salted 
Sheep 1,573 Oil of 
Ground-
nuts 25,967 Coffee, 
Green 8,941 
4. Oil of 
Palm 6,500 Soybean 3,442 Cattle 1,524 Vege-
tables 
Prepared 
ness 520 Cotton Lint 22,753 Skins 
nes 
Calves 861 Food 
Prepared-
ness 25,705 Bananas 8,297 
5 Cake of 
Cotton 
Seed 5,600 Tobacco 
Leaves 2,652 Sesame 
Seed 584 Flour of 
Maize 206 Sugar 
(Centri-
fugal, 
Raw) 18,152 Maize 292 Rice, 
Broken 22,130 Onions, Dry 6,155 
6 Karite 
Nuts 
(Shea) 4,732 Milled 
Paddy 
Rice 1,889 Fruit 
Prepared
-ness 306 Flour of 
Wheat 104 Sesame 
Seed 9,005 Dry Cow 
Milk 130 Malt 
Extracts 11,406 Cotton 
Carded 
Combed 5,034 
7 Oil of 
Palm 
Kernels 3,500 Cassava 
Starch 1,502 Hides 
Dry-
Salted 
Cattle 146 Hides 
Dry-
Salted 
Cattle 100 Maize 2,113 Hides 
Wet-
Salted 
Cattle 129 Cigarettes 6,166 Mangoes 4,166 
8 Cotton 
seed 3,457 Cattle 1,149 Beer of 
Barley 108 Cattle 7 Cashew 
Nuts 
Shelled 1,974 Bananas 78 Beans, 
Green 5,285 Pastry 4,164 
9 Oilseeds  2,699 Cigar-
ettes 1,143 Ground-
nuts in 
Shell 47 Horses 2 Sugar 
Refined 1,300 Cigar-
ettes 64 Tobacco 
Products  5,163 Bran of 
Wheat 4,056 
10 Pine-
apples 2,207 Oil of 
Palm 797 Pimento,
Allspice 42   Cotton 
seed 937 Tobacco 
Products 62 Tomatoes 4,587 Milk, 
Evaporated 3,968 
Source:  FAO STAT and FAO Fish STAT G/SPS/GEN/900 
Page 16  
 
  • Shortcomings in the official control systems for food safety may result in fish exporting 
countries not being eligible to export to high value markets or being removed from lists of 
approved suppliers for failure to respect food safety standards in import countries. 
Cambodia for instance is not included in the lis t of countries approved for export to the EU 
and its fish and fishery products have not been  accepted since 1997.  A number of conditions 
must be met to obtain approval, including giving  the Department of Fisheries the legal basis 
to function as the competent authority, ensu ring compliance with standards related to 
antibiotic residues, hygiene, etc., and health certification in line with Codex and OIE standards.
3 
The Government of Benin imposed a voluntar y moratorium on shrimp exports from 2003 
until February 2005 due to concer ns regarding perceived failure  to comply with European 
sanitary requirements (main export market).  This situation reflected the weakness of the 
quality control system at institutional level.  Failure to implement quality assurance schemes 
(mainly HACCP) and the absence of accredited laboratories for microbiological and biochemical analyses were also identified as major obstacles to shrimp exports. 
• The absence of cold chain storage and pasteuri zation facilities as well as  shortcomings in food 
safety inspection services limits possibilities for trade in dairy produc ts.  Trade possibilities 
are often limited to local trade in fresh products with often high food safety risks or to trade in 
milk powders. 
• SPS issues can also limit trade possibilities to low value commodi ties.  For instance, cake of 
groundnuts is used as an animal feed and is Senegal’s 11th largest export by value.  An 
effective treatment for aflatoxin contamina tion of groundnuts involving steam treatment is 
used, but no such treatment exists for ground nuts for human consumption.  Variations in 
quality and problems in meeting aflatoxin to lerance level for Senegal mean that the 
investment has been made in protecting groundnut cake exports, but not in exports of groundnuts as a higher value item.  Various other problems in the supply chain have exacerbated this situation and reinforced th e concentration on the lower value commodity. 
 15. In general terms, SPS constr aints tend to be either: 
• "structural" in nature (e.g. as a result of anim al or plant pests or diseases) and so prevent the 
marketing of a particular product or entry into a specific market; or  
• "temporal" in nature (e.g. as a result of non -respect of a particular import regulation or 
process) and become more visible as export growth and diversification occur and barriers are actually encountered. 
 16. Table 4 provides an illustration of the import re quirements for a number of selected products 
into higher value markets.  The majo rity of agricultural exports from the LDCs surveyed is directed 
towards developed countries, notably the EU and th e US (e.g. 90% of Benin’s pineapple exports go to 
France), which requires exporters to comply with stringent food safety, animal and plant health standards.  Over and above official SPS require ments, dominant buyers (i.e. large retailers, 
supermarkets chains, etc.) increasingly require exporters  to comply with an array of private standard 
schemes encompassing higher levels of food safety and quality as well as environmental and social 
requirements. 
                                                     
 
3 Additionally, since 2004 the EU has banned the import of tuna and swordfish from Cambodia and a 
number of other countries as a result of concerns over failure to respect conservation rules.  G/SPS/GEN/900 
 Page 17 
 
 
  Table 4:  Import requirements affecting select ed products entering higher value markets 
 
Product 
Group Food Safety Animal/Plant 
Health Quality/ 
Technical Environmental/Social 
Fresh and 
Processed 
Fruits and 
Vegetables Pesticide residue 
limits 
Microbiological 
standards 
Traceability and 
hygiene 
requirements 
Controls on additives Plant material 
quarantine 
Pest risk analysis 
Fumigation 
requirements 
Phytosanitary 
certification Quality grades 
Labelling 
requirements 
Packaging 
standards Pesticide restrictions 
Regulations on 
water/soil contamination 
Codes for organic 
practices and 
certification 
Monitoring child labour 
Occupational health 
standards 
Fish and Fishery 
Products Microbiological 
standards 
Veterinary drug 
residue limits 
Pesticide residue 
limits 
Hygiene 
requirements 
(HACCP) Bans/restrictions on 
use of veterinary 
drugs (antibiotics) in 
aquaculture 
Animal health 
certificates Quality grades 
Labelling 
requirements 
Packaging 
standards Fish catch restrictions 
Protection of specific 
species 
Environmental 
management 
certification 
Live 
animals and 
animal products  
 Veterinary drug 
residue limits 
Microbiological 
standards 
Hygiene 
requirements 
(HACCP) Disease-free areas 
Disease surveillance 
Restrictions on use 
of veterinary drugs 
Animal traceability Quality grades 
Labelling 
requirements 
Packaging 
standards Codes for organic 
practices and 
certification 
Regulations on animal 
waste effluent 
Animal welfare 
monitoring 
Hides and skins - Animal health status 
for raw hides and 
skins Quality attributes Water effluent 
regulations 
Chemical use 
regulations 
Spices and nuts Mycotoxin limits 
Pesticide residue 
limits 
Microbiological 
standards Fumigation 
requirements and 
restrictions Quality grades 
Labelling 
requirements 
Packaging 
standards Codes for organic 
practices and 
certification 
 
Cereals, 
oilseeds and 
animal feed Mycotoxin limits 
Pesticide residue 
limits 
Microbiological 
standards 
Traceability and 
hygiene 
requirements in feed 
production  Quarantine 
requirements 
Fumigation 
requirements and 
restrictions Quality grades 
GMO labelling 
Restrictions on 
animal feed ingredients 
Product content 
and nutritional 
labelling Codes for organic 
practices and 
certification 
Biosafety regulations 
(GMOs) 
 G/SPS/GEN/900 
Page 18  
 
  Product 
Group Food Safety Animal/Plant 
Health Quality/ 
Technical Environmental/Social 
Cut flowers - Plant material 
quarantine 
Phytosanitary 
certification  
Pest risk analysis 
Fumigation 
requirements Quality attributes 
Packaging 
standards Restrictions on use of 
pesticides 
Regulations on 
water/soil contamination 
Monitoring child labour 
Occupational health 
standards 
Coffee and 
tea Microbiological 
standards 
(ochratoxins) 
Pesticide residue 
limits Fumigation 
requirements Quality attributes 
Packaging 
standards Codes for organic 
practices and 
certification 
Monitoring child labour 
Cotton Pesticide residue 
limits (cotton seed 
oil) GMO variety 
approval Quality attributes Codes for organic 
practices and 
certification 
Restrictions on use of 
pesticides 
Honey Pesticides and 
antibiotic residue 
limits 
Microbiological 
standards 
Hygiene 
requirements Pesticide and 
antibiotic 
surveillance 
Antibiotic use 
restrictions 
Export certificates Quality grades 
Labelling 
requirements 
Packaging 
standards 
HMF level Codes for organic 
practices and 
certification 
Antibiotic use 
restrictions  
Source: World Bank 
 
17. It should be noted, however, that table 4 does not illustrate the full diversity of SPS import 
requirements in operation.  Regi onal integration and cooperation is increasing, both in Africa 
(COMESA, ECOWAS, EAC, SADC) and Asia (ASEAN) , and all the countries surveyed engage to 
various degrees of extent in regional trade.   
18. South Africa, for instance, is the major tradi ng partner for agricultural commodities for both 
Lesotho and Mozambique, while Saudi Arabia im ports much of Yemen's products. China and 
Thailand are a big export market for Lao PDR and Cambodia. Likewise, with over 130 million 
consumers, Nigeria offers good export opportunities for ECOWAS member states such as Benin and 
Senegal.  Much of this regional trade, however, is still informal and unrecorded.  Additionally, 
international trade in agricultural products betw een the African countries and non-LDC developing 
countries (e.g. China, India, Thailand, etc.) is also growing in importance.  Information on standards 
compliance is limited but suggests that enforcemen t of SPS standards is stronger for "SPS sensitive" 
products such as fish, meat, dairy and poultry products. 
C. OVERVIEW OF COMMON SPS  NEEDS AND CONSTRAINTS  
19. The overviews of the SPS needs and constraint s in each of the eight LDCs surveyed in 
Annexes I-VIII are based on a review of existing needs assessments and other reports, rather than 
original research in-country, and therefore only presen t introductory surveys or "snapshots" reflecting 
the current state of publicly available inform ation.  An overview of the various SPS needs 
assessments applied in each of the LDCs surveyed is provided in Table 5 below, while additional 
background information on these capacity evaluation t ools is provided in Annex IX.  Where shared by 
national authorities, STDF partners and/or otherwi se available in the public domain, the results of 
these tools have been taken into account for the purpose of this paper.   G/SPS/GEN/900 
 Page 19 
 
 
  Table 5: Overview of SPS needs assessme nts in LDCs surveyed (August 2008) 
 
Tool Benin Cambodia Lao 
PDR Lesotho Mozambique Rw anda Senegal Yemen 
Animal 
health PVS 
(OIE) x x x x x  x x 
Plant 
health PCE 
(IPPC) x x x  x x x  
Food 
safety 
(FAO) x x x      
Biosecurity 
(FAO)     x x   
SPS action 
plan (WB)   x      
DTIS (IF) x x x x x x x x 
UNIDO 
tools  x x      
Biosafety 
(CBD)    x    x 
Trade 
Policy 
Review 
(WTO) x   x x x x  
Source: WTO Secretariat 
 
20. In addition, the paper draws on other repor ts and assessments conducted by multilateral 
agencies and development partners, for instance unde r existing technical cooperation programmes.  
An overview of references is included in ANNEX X..   
21. The SPS situation and the needs and constraints are different in each of the LDCs surveyed, 
depending on existing trade capacity, products and pr oduct groups, the direction of trade, etc.  The 
following observations can be made in respect of common needs and constraints in specific areas:  
Awareness and recognition  
 22. Awareness and recognition of the importance of  SPS management and compliance in terms of 
market access, raising productivit y and enhancing domestic safety le vels is limited at all levels, 
ranging from policy- and other high level decision- makers to primary producers, food processors, 
consumers etc.  Greater attention should be give n by development agencies and donors to increasing 
the number of awareness raising campaigns a nd basic training activities on good practices and 
internationally recognized systems such as Hazard Analysis Critical Control Point (HACCP) in order 
to enhance competitiveness and further integr ate small-scale farmers and food processing 
establishments into national, regiona l and global supply chains.   
23. Awareness raising efforts would also help in raising production levels (for instance through 
reduction of pre- and post harvest losses) and achie ving broader goals of food security, and ultimately 
have positive implications on the sustainability of subsequent more specific and technical capacity 
building efforts.  Targeted awareness and training activities can be part of specific SPS interventions 
but also of more general programmes, for instance related to private sector or business development. G/SPS/GEN/900 
Page 20  
 
  Food control system
 
 24. The absence of a coherent and modern food co ntrol system is of major concern in all 
countries.  Tasks and responsibilities are usually fra gmented among various g overnment institutions 
and other agencies, often without mechanisms for co ordination between them.  Legislation tends to be 
outdated, incomplete and weakly enforced.  Inspec tion, monitoring and surveillance of both domestic 
production and food imports tends to  be limited and records of food borne illnesses are absent in most 
cases.  Food laboratories are generally inadequately  equipped and staff insufficiently skilled.  This 
weak capacity negatively affects public health and hinders opportunities to promote economic development through trade in agricultural products, including fresh produce, meat, dairy and poultry 
products.  In short, there is an evident need in all countries to strengthen the official food control 
system.  Application of the recently developed FAO to ol may provide useful gui dance in this regard.  
25. The picture seems better with regard to the export of fish and fishery products.  Under 
pressure of major trading partners, notably the EU, and with assistance from various other donors, 
progress has been made in upgrading the official  control systems in Mozambique, Senegal and  
Yemen.  Still, in these countries various deficiencies and shortcomings were recently detected by the 
EC's Food and Veterinary Office (FVO) along vari ous stages of the fish production chain.  
Addressing these deficiencies and shortcomings is of primary concern in order to maintain access to international markets.  At the same time, interven tions should seek to address concerns over the safety 
and quality of locally consumed fish and fishery products.  Opportunities in other areas such as 
aquaculture need to be carefully considered, gi ven the stringent quality and health requirements 
attached, potential adverse impacts on the environment, etc. 
Tourism
 
 26. An upper end domestic market is emerging, creating new opportunities for the supply of 
higher quality local fresh produce, fish, meat, dair y and poultry products to  supermarkets, hotels, 
restaurants and the like.  Tourism in particular  is becoming a major foreign exchange earner and 
provides a “domestic export market”.  Table 6 below provides an overview of the international tourist 
arrivals in each of the LDCs concerned.  Generally, tourists spend a considerable amount of their budget 
on food.  Strengthening linkages with the growing touris m industry should be further explored as a 
starting point to increase domestic food safety levels.  Projects could aim for instance at assisting local 
suppliers in meeting the standards required by hotel s and restaurants,  improving hygienic conditions 
in the preparation of food, monitoring the number of food borne illnesses among tourists, improving food inspection, etc. 
Table 6:  Overview of international tourist arrivals (1000) 
 
Country 1990 1995 2000 2003 2004 2005 
Benin 110 138 96 175 174 - 
Cambodia 17 220 466 787 701 1,055 
Lao PDR 
 14 60 191 215 196 236 
Lesotho 242 209 302 329 304 304 
Mozambiq
ue - - - 441 470 - 
Rwanda - - - - 104 - 
Senegal 246 280 389 495 667 769 
Yemen 52 61 73 155 274 336 
 Source: World Tourism Organization  G/SPS/GEN/900 
 Page 21 
 
 
   
Animal health  
 27. All countries suffer from the presence of va rious endemic OIE notifiable diseases, which 
limits the scope to increase farmers' incomes an d prohibits access to regional and international 
markets for live animals, animal products and also by-products such as raw hides and skins.  Repeated 
outbreaks of Highly Pathogenic Avian Influenza (HPAI) have caused import bans on Cambodia's 
animal products from various countries. Import restrictions are not just limited to one disease.  Thailand has imposed import restrictions on cattle  from Cambodia in 2005 due to outbreaks of 
Brucellosis. 
28. The capacity to address animal health concerns, and so gain and/or maintain market access, 
tends to be weak in all countries, notably in th e public sector.  Specific needs relate to technical 
assistance in revising legislation, strengthening in spection, monitoring and surveillance mechanisms, 
establishing disease free zones, enhancing diagnostic capac ity to perform risk assessment, etc.  It is 
recommended that the results of the OIE PVS tool , applied in seven out of the eight countries 
surveyed, be used to design actions to strengthen the pe rformance of veterinary services.   
Plant health
 
 29. Infections of large areas with plant pests and diseases can have serious consequences for 
production and may constitute absolute barriers to trade, notably in fruit and vegetables and cut 
flowers.  Fruit flies for instance threaten large production areas in Benin, Mozambique and Senegal  
while Lethal Yellowing Disease is known to have serious impacts on the production and export of 
coconut products.  Outbreaks of Coffee Wilt Diseas e in countries bordering Rw anda provide another 
example and fungal problems such as anthracnose rema in a serious constraint mainly in fruit packing 
stations in Senegal.  
30. In all countries, however, the capacity to addr ess plant health concerns tend to be weak, 
notably in the public sector.  Thus, plant health ser vices in all countries need to be strengthened and 
the IPPC PVS tool, applied in six out of eight count ries, may provide useful guidance in this regard.  
Specific needs relate to technical assistance in revising legislation, strengthening inspection and 
monitoring and surveillance mechanisms, estab lishing pest free areas, creating pest lists, 
strengthening capabilities to perform pest risk analysis, etc.   
Legal framework
 
 
31. In all countries surveyed, the legal framework for food safety, animal and/or plant health 
tends to be outdated and incomple te, in some instances even dating back to colonial times.  This 
relates not only to primary legislation but also to a vast array of subsidiary regulations.  Fisheries 
exports seem to be the main exception, with legisl ation being more or less in accordance with the EU 
regulations. 
32. All the countries surveyed would benefit from a thorough and concerted re view and update of 
their legal framework, in accordan ce with international requirements.   This would include reviewing 
laws and regulations specifically related to food saf ety, animal and plant health but also rules on 
related matters, for instance pestic ides, veterinary drugs and animal feed.  Specific attention should be 
paid in the legal review to issues of implementa tion and enforcement.  Given the limited amount of 
resources available at national levels, exploring a biosecurity approach – as in Mozambique and 
Rwanda - is recommended.   G/SPS/GEN/900 
Page 22  
 
  Laboratory infrastructure
 
 33. Laboratories have a key role to play in the prev ention, control and mitigation of SPS risks.  In 
all countries surveyed, however, infrastructure and hence diagnostic capacity seems inadequate in 
most instances.  Further investment is needed in all three SPS areas, both in physical infrastructure as 
in raising knowledge and skills of  staff.  Prior to embarking on such investments, however, it is 
recommended that beneficiaries and donors agree on a clear and sustainable strategy. 
34. Experience in other countries shows that inv estments in laboratory infrastructure are often 
overlapping and/or incomplete, for instance due to tr aditional institutional interests or rivalry between 
government agencies, thus negatively affecting production and resulting in waste of valuable 
resources.  Strategic laboratory plans would for instance identify the range of services that should be 
offered within the country, define and delineate responsibilities among government and private sector 
laboratories (if any), and address issues related to certification and/or accreditation.  Regional approaches complementing national capacities should also be explored. 
International standard-setting
 
 
35. Table 7 below provides an overview of membersh ip of the LDCs surveyed in the WTO and 
the International Standard Setting Bodies (ISSBs)  referenced under the SPS Agreement, i.e. the 
Codex Alimentarius Commission (Codex), World Organization for Animal Health (OIE) and 
International Plant Protection Convention (IPPC).   
36. While all countries are members of Codex and the OIE, only Cambodia, Lao PDR, 
Mozambique, Senegal and Yemen are currently par ties to the IPPC. Rwanda is reportedly in the 
process of becoming a party to the IPPC shortly.  Th ere is a general need in all countries to develop 
long-term capacity to participate in and contribu te to the work of the ISSBs to help countries 
complying with new standards but also to ensure improved international harmonization with their own 
domestic standards. 
Table 7: Membership in WTO and ISSBs (August 2008) 
Country WTO OIE IPPC Codex 
Benin x x  x 
Cambodia x x x x 
Lao PDR 
  x x x 
Lesotho x x  x 
Mozambique x x x x 
Rwanda x x  x 
Senegal x x x x 
Yemen  x x x 
Source WTO Secretariat 
 
37. All countries are WTO members, except for Lao PDR and Yemen, who are currently in the 
accession process.  Both countries are receiving assistan ce in preparing them for membership through 
training and workshops organized by WTO and othe r donors.  Participation of the six existing WTO 
members in meetings of the SPS Committee tends to be limited.  In addition, Cambodia, Lesotho and 
Rwanda have not yet nominated national notification authorities and enquiry points in accordance 
with the transparency provisions of the Agreemen t.  All countries should be informed about the SPS 
measures proposed by their trading partners and, if these measures may have a negative impact on their trade flows, have the capacity to raise con cerns in a timely manner.  Donors should consider  G/SPS/GEN/900 
 Page 23 
 
 
  providing technical assistance to help the countries in setting up functioning notification authorities 
and enquiry points. 
Private sector  
 38. Private sector development is an important element in many national development plans 
and/or poverty reduction strategies.  Donors ar e increasingly funding initiatives focused on private 
sector or business development.  Small and medium scale enterprises involved in food handling and processing are emerging but - as mentioned above - aw areness and recognition of the importance of 
SPS standards and other requirements seems li mited and needs further strengthening.   
39. Additionally, the role of the private sector in SPS management should be addressed in relation 
to other broader functions, for instance in sta ndard-setting, monitoring SPS measures proposed by 
trading partners, and in the provision of laborator y services, thereby reducing the burden on the public 
sector. 
Coordination of efforts
 
 
40. In all countries, numerous government organizati ons and other agencies play a role in SPS 
management.  Generally, systems are characterized by fragmentation of efforts and duplication of responsibilities at various levels.  Due to vested  interests and "turf-defending" behaviour, the 
difficulty in ironing out these overlapping mandates s hould not be underestimated.  One step towards  
resolving this situation could be the creation of national level coordination mechanisms involving a 
wide range of stakeholders including inter alia  relevant government institutions, private sector 
organizations, consumer associations, as well as acad emia.  The scope of such mechanisms could be 
limited to SPS or encompass issues of broader standards management including technical (TBT) 
and/or other requirements.   
41. Mechanisms could also take a wider "biosecurity " approach and include issues related to the 
environment and biosafety - as currently being consid ered in Rwanda.  Better coordination of efforts 
would help in tackling some of the common needs outlined above, such as raising the profile and 
awareness of SPS issues, facilitati ng public-private sector dialogue , removing overlapping mandates, 
making more efficient use of scarce resources, and further integrating SPS issues into broader planning/budgetary frameworks and supply chains.   
42. In addition to national coordination, the scope for coordination at regional level should also 
be explored, notably in the animal/plant health area.  Pests and diseases do not respect geographical 
borders, while informal and unrecorded trade in liv e animals, animal products and/or fresh produce 
between countries still seems to be significant.  Futu re efforts may be directed towards developing 
capacity for regional pest and disease management.  On e example is Lesotho, surrounded by its major 
trading partner South Africa.  Other potential areas for collaboration include sharing of resources, for 
instance through setting up joint resear ch and training centres, etc. 
III. SPS ASSISTANCE TO LDCS SURVEYED 
A. 
TRENDS AND DRIVERS OF ASSISTANCE  
43. In line with the objectives of the Paris Decl aration on Aid Effectiveness, overlap and 
duplication of efforts should be a voided in the provision of SPS-rela ted technical cooperation, both on 
the side of beneficiaries and donors.  A second aim of this paper, therefore, is to look at the supply 
side and identify ongoing and/or planned techni cal cooperation provided by development agencies 
and donors to address outstanding SPS  needs and constraints in each of the LDCs surveyed.   G/SPS/GEN/900 
Page 24  
 
  44. The starting point to obtain information on SPS -related cooperation is the WTO/OECD Trade 
Capacity Building Database (TCBDB).  However, the number of SPS-related entries in the TCBDB 
for each of the LDCs surveyed is severely limited.  Additional information on  previous, existing and 
future planned SPS-related activities was obtained fro m various other sources, i.e. STDF partners, 
observers, donors and beneficiary representatives,  as well as through recent STDF Aid for Trade 
workshops organized in the East African Commun ity (EAC) and for Cambodia, Lao PDR and Viet 
Nam (see below).   
45. From the country overviews, several drivers of SPS-related technical cooperation can be 
identified.  In Asia, for instance, regional integr ation and cooperation efforts through the Association 
of Southeast Asian Nations (ASEAN) and th e Ayeyawaddy-Chao Phraya-Mekong Economic 
Cooperation Strategy are relevant.  ASEAN has deve loped a "Vision 2020" which includes a strategic 
action plan for cooperation in food, agriculture and forestry.  There is collaboration between the Asian 
Development Bank (ADB) and the World Bank in ex ploring the possibility of designing concessional 
investment programmes for Cambodia and Lao PD R.  The Cross Border Transport Agreement 
between all GMS countries covers all aspects of cro ss-border transport facilitation.  Of particular 
interest in the area of SPS controls are provisions for single-stop/single-window customs inspection 
and transit traffic regimes which include exemp tions from physical customs inspection as well as 
phytosanitary and veterinary inspec tion. To achieve this situation,  various capacity building activities 
are provided to the signatories. 
46. Similarly, in Eastern and Southern Afri ca SPS-related capacity building programmes are 
being pursued within the Common Market for Eastern and Southern (COMESA), such as the 
Agricultural Marketing Promotion and Regional In tegration Project supported by the African 
Development Bank (AfDB).  Similarly, within the Southern African Development Community 
(SADC) various SPS-related programmes are being im plemented with funding from the EC and other 
donors.  Noteworthy is also the Regional Standa rds Programme funded by the UK Department for 
International Development (DFID) a nd implemented by ComMark Trust.  
47. Regional integration in West A frica has been driving attention  at the political level. Several 
initiatives have been implemented mainly at the UEMOA/WAEMU level to implement common strategies to reduce poverty and to foster economic growth.  At the trade and agriculture level, 
UEMOA/WAEMU has started to 
harmonize its regional SPS systems primarily through 
preparation of the legislative and regulatory framework and treaties within the eight UEMOA 
countries, training of government officials to understand and implement the treaties, and 
enforcement of inspection and laboratory testing.   
48. This strategy was supported by two major donor funded programmes. In October 2000, 
UEMOA and the Food and Agriculture Organization (FAO) signed an agreement for a major food 
security program Programme Spécial Régional d’a ppui à la Sécurité Alimentaire (PSRSA) for 
countries of the Sahel in West Africa. This programme was a centrepiece of UEMOA/WAEMU SPS harmonization efforts. UEMOA Quality programme implemented by UNIDO contributed greatly to 
this endeavour by upgrading laboratory equi pments. The UEMOA Quality Phase II will assist 
UEMOA in achieving laboratory accreditation objec tives. Finally, various EC-funded SPS-related 
initiatives are being pursued at a wider ACP-leve l, including compliance with maximum residue 
levels for pesticides, strengthening fishery products , as well as food and feed safety control systems.   
49. Trade policy initiatives such as Everything But Arms and the Africa Growth and Opportunity 
Act (AGOA) are relevant in terms of providing duty free and quota market access.  It is becoming 
clear from various EC Country Strategy Papers an d National Indicative Programmes that substantial 
assistance will also become available through the 10
th European Development Fund (EDF) and the 
Economic Partnership Agreements (EPAs), although no specific allocations for SPS issues have yet 
been made available within general funding lin es.  The US provides support to key SPS policy  G/SPS/GEN/900 
 Page 25 
 
 
  objectives under the African Global Competitiven ess Initiative (AGCI) through USAID's regional 
trade hubs.  In Mozambique, support by the Mille nnium Challenge Corporation (MCC) also includes 
SPS capacity building. 
50. In many instances, national and/or regional solutions to SPS issues are sought only after an 
outbreak of a pest or disease or other "SPS cris is" has occurred.  In Cambodia and Lao PDR for 
instance, the continued fight against Highly Pathoge nic Avian Influenza currently accounts for a large 
proportion of total SPS-related cooperation.   Other examples include outbreaks of inter alia  Bovine 
Spongiform Encephalopathy (BSE, also known as mad cow disease) and Foot and Mouth Disease 
(FMD).  In some countries, fruit fly is increasingly r ecognized as a serious threat to the industry.  In 
West Africa, discussions are ongoing between donor s to better coordinate their responses in the 
control of fruit fly, led by STDF.   
51. A distinction can be made between funding sp ecific to the SPS area and cooperation which is 
more general in nature.  In some countries, a cl ear trend towards general budget support and/or the use 
of multi-donor thematic basket funds, for instance related to agriculture, private sector or trade 
development, can be noted.  Disaggregating suppor t offered through such financing mechanisms to 
identify its SPS elements is problematic.  However,  increased access to such funds would be one way 
to obtain "additionality" in resources for SPS-related technical cooperation.  For this access to occur, 
the profile of SPS should be enhanced at the leve l of policy- and other high level decision-makers, 
and SPS issues should be further integrated into pl anning and budgetary frameworks of beneficiaries 
and donors and into supply chains.  
52. In each of the LDCs surveyed, the IF is an important source of funding. Small projects with 
SPS components are being - or have been - implem ented with IF (Window II) funding in Lesotho, 
Mozambique, Senegal and Yemen.  In Cambodia and Lao PDR, discussions are ongoing about the 
creation of a multi-donor basket fund to address constraints identified in the DTIS.  Increased resources will also become available soon under th e Enhanced Integrated Framework (EIF) through 
so-called Tier 1 and Tier 2 funding.   Tier 1 funds will be available inter alia  to finance updates of 
existing DTIS.
4 
53. Raising awareness and integrating SPS issues into updated DTIS will be crucial to increase 
capacity building efforts in this area.   In several DTIS, notably the on es prepared in the early days of 
the IF, SPS needs and constraints feature only margina lly.  Tier 2 funds will be available to finance 
selected priority actions identified in the (updated) DTIS. 
54. To various levels of extent, all countries r eceive continued support in the SPS area from 
multilateral organizations such as FAO, World Bank, UNIDO, ITC, UNDP, UNCTAD and WTO.  
Some of the support these organizations provide goe s into general and/or sector budget support (e.g. 
World Bank).  Organizations such as FAO, UNI DO, ITC, UNDP and UNCTAD typically provide 
project support.  WTO provides assistance through its regular training programme, including national and regional seminars about the SPS Agreement and its implementation.  Finally, there are indications 
that countries also receive support from private sector foundations and/or NGOs but only limited 
information is available in this area.   
B. STDF
 PROGRAMME  
55. The STDF is both a coordinating and a financing mechanism.   As a coordinating mechanism, 
the STDF acts as a forum for information sharing and mobilization of funds for SPS-related technical 
co-operation.  As part of this function, the STDF recently conducted a series of pilot Aid for Trade 
                                                      
4 At present, only few IF countries have updated their DTIS with external funding on an ad-hoc basis. G/SPS/GEN/900 
Page 26  
 
  events in the East African Community (EAC)
 and a sub-group of ASEAN countries in May 2008.5  
The events helped in focusing attention on SPS ne eds in the two regions surveyed, examining the 
provision of cooperation to address these needs, a nd in seeking to mobilize additional resources to 
address outstanding needs not covered by  current or planned cooperation. 
56. The STDF Aid for Trade work was carried out in  two phases.  In the first phase, research was 
undertaken to identify existing capacity evaluations  and to establish an inventory of SPS-related 
technical assistance.  The results of this prelimin ary research were presented as part of the Regional 
Reviews of Aid for Trade in September 2007.  In  the second phase, a "gap analysis" was undertaken 
to identify where existing and planned technical as sistance did not meet SPS needs.  Results of these 
gap analyses were presented duri ng the workshops in May 2008. 
57. One key output from the workshops was a singl e overview of outstanding SPS needs (both at 
national and regional level) to provide a sound basis from which both beneficiaries and development 
partners can seek to design programmes of assistan ce.  During in-country research, it became evident 
that knowledge about prior SPS capac ity evaluations was generally limited to those involved in the 
specific focus area (e.g. food safety, animal or plant health).  Additionally, most evaluations typically 
focused on SPS infrastructure and competencies in the public sector.  Private sector input into 
previous evaluations was patchy and there were  few instances of comprehensive national policy 
frameworks for strengthening SPS capacity. 
58. One theme which emerged strongly from the regional workshops was a discordance between 
developing country expectations and the realities of  donor project and programme funding cycles.  On 
the beneficiary side, the view was that needs s hould be quickly matched with assistance.  On the 
development partners' side, the message was that needs would have to be considered as part of 
national programmes of assistance and within establis hed funding cycles.  Furthermore, it was clearly 
stated that the fact that a need had been e xpressed was not enough to ensure that funding was 
provided.   
59. In general, needs have to be developed into "bankable projects" and given priority by the 
beneficiary government.  Without that prioritizati on (i.e. ownership by the beneficiary), no assistance 
will be provided.  A further factor is that needs expressed have to fit with individual donor's funding 
priorities.  Overall, the message from the three regions was that future resources will become 
available to address outstanding needs, but that donors  and beneficiaries need to prioritize SPS if it is 
to receive attention.  Further, mobilizing funds to address outstanding SPS-related technical assistance needs will depend on: 
• the extent to which development partners us e the results of the STDF work and other SPS 
capacity evaluations to influence their development programming;  and 
• the extent to which SPS needs can be addressed as part of broader programmes, e.g., trade 
facilitation, agricultural production, agri-bus iness development and general private sector 
assistance, environmental protection and protection of public health. 
                                                     
 
5 In Africa, countries surveyed included Kenya, Tanzania and Uganda.  As Burundi and Rwanda 
became full EAC Members only as of 1 July 2007, they were  not included in the rese arch.  In Asia, countries 
surveyed included Cambodia, Lao PDR and Viet Nam  G/SPS/GEN/900 
 Page 27 
 
 
   
Table 8: STDF projects and PPGs in LDCs surveyed (October 2008) 
 
Project/ 
PPG Beneficiary 
country(ies) Description Implementing/ 
oversight 
agency STDF 
contributio
n (US$) Timetable 
STDF 
246 Cambodia Development of an SPS action 
plan (following Aid for Trade 
workshop in May 2008)  STDF 252,000 To Be 
Confirmed 
(TBC) 
STDF 
230 (PPG) Mozambique Implementation of a national 
surveillance programme for Lethal Yellowing Disease 
(LYD) in palms, including 
establishment and/or maintenance of pest free areas. TBC 20,000 TBC 
STDF 
127 Benin Improving information flows on 
SPS requirements, particularly 
in the private s ector.  Project 
developed from a PPG. FAO, Benin 
Chamber of 
Commerce 363,858 TBC 
STDF 48 Benin Application of good agricultural 
practices to overcome problems of mycotoxin contamination in 
shea and cashew nut production. FAO/ Centre de 
Recherches Agricoles 
d'Agonkamey 470,575 Apr-08 / 
Mar-10 
STDF 134 Benin, 
Mauritania, Senegal, 
Sierra Leone 
and The Gambia Improving knowledge and 
awareness of SPS issues in the fisheries sector in five selected 
West African countries with a 
view to improve fish trade performance. FAO 469,000 Mar-08 / 
Feb-10 
STDF 69 Yemen Assistance to Yemeni Seafood 
Exporters Association (YSEA) 
to improve quality and safety of Yemeni seafood products.  
Project developed from a PPG 
and based on DTIS.   ITC/YSEA 462,804 Sep-07 / 
Aug-09 
STDF 
145 Rwanda Rwanda Horticulture Export 
Standards Initiative (RHESI), 
increasing Rwanda’s exports of 
fruit, vegetables and flowers in 
international and regional 
markets.  Project developed from a PPG and based on DTIS.  World 
Bank/Michigan 
State University 526,674 May-07 / 
Apr-09 
STDF 66 
(PPG) Mozambique Improving SPS compliance for 
horticulture exporters in 
regional and international markets.  Based on DTIS.  
Resultant project funded by 
DFID and implemented by ComMark. STDF/UNCTA
D  20,000 - 
Source: STDF Secretariat 
 
60. In mobilizing future assistance for outstanding SPS- related needs, the main challenge arises 
from a series of underlying "structural" issues.  Th ese "structural" issues relate to endemic animal 
diseases and plant pests for which there are no easy short term solutions.  To address these 
impediments, sustained long term commitment to  funding is required.  Mobilization of the G/SPS/GEN/900 
Page 28  
 
  international community to address Highly Pathogeni c Avian Influenza and Foot and Mouth Disease 
(FMD) provides positive examples of such initiatives.  
61. Follow-up activities by the STDF in both regions  will focus on bringing the various actors 
together and helping all parties to  appreciate the economic case for dedicating resources to this area.  
One follow-up activity which has already been appr oved is development of an SPS Action Plan for 
Cambodia (see Table 8 below and Annex II).  Fund ing for other projects and the development of 
project preparation grants is likely to be approve d by the STDF in future.  Additionally, workshop 
background reports listing SPS-related technical co -operation activities provide an important basis 
from which donors can co-ordinate their activities.  Fi nally, as part of its bi-annual Work Plan (2008-
09), the STDF plans to conduct similar reviews of  SPS needs and assistance in other regions and 
countries.     
62. Table 8 above provides an overview of STDF project activities in the LDCs surveyed.  
Projects and PPGs approved in June 2008 include development of an SPS action plan in Cambodia 
(STDF 246) and implementation of a surveillanc e programme for Lethal Yellowing Disease in 
Mozambique (STDF 230).  Implementation modalit ies regarding STDF project 127 in Benin have 
recently been approved  by FAO and the Benin Chamber of Commerce and the execution of the 
project has officially started.  All other activities ar e in various stages of implementation.  The project 
in Mozambique (STDF 66) was picked up for exte rnal funding by DFID and is currently being 
implemented by ComMark under the Regional Standards Programme.  
IV. CONCLUSIONS AND RECOMMENDATIONS  
63. Expansion and diversification of agricultura l exports features prominently in national 
development plans and poverty reduction strategies of  virtually all countries surveyed.  As expansion 
and diversification occurs and new markets are targeted, countries will increasingly face SPS-related 
market access constraints, notably in the trade of non-traditional agricultural ex ports, such as fruit and 
vegetables, cut flowers, meat and poultry,  fish and fishery products, etc.   
64. In addition to facilitating international trade,  enhancing SPS capacity can result in positive 
impacts on agricultural productivity and human health and so favour economic and social 
development.  The control of animal and plan t pests and diseases for instance is essential for 
communities that rely on agriculture, forestry or  fisheries as their primary source of income.  
Reduction of the pest and disease burden also has a key role to play in reducing the prevalence of 
food-borne maladies, hunger and extreme poverty. 
65. Information on previous and ongoing technical assistance is necessary to design coherent 
future cooperation programmes. However, country surveys undertaken for the purpose of this paper 
show that this information is difficult to obt ain because of under-reporting of donors of the activities 
and also because of SPS being usually provided as part of larg er rural development, poverty 
alleviation, export promotion, productivity or ec onomic growth programmes.  Lack of information 
leads inevitably to overlap between donor activities, lack of synergies, duplication of efforts and un-
optimized use of the scarce resources dedicated to SPS.  
66. The information that has been collected and sy nthesized suggests that in each of the LDCs 
surveyed efforts are being made to enhance food safet y, animal and/or plant health capacity, albeit at 
different levels and speeds.  However, the list of  outstanding SPS needs and constraints not currently 
covered by existing or future pla nned cooperation is still significant.  Notably in the public sector, 
numerous "lacks of" can be observed, for instance in relation to infrastructure, expertise and skills of 
staff, reliable data, inspection and control systems, etc.    G/SPS/GEN/900 
 Page 29 
 
 
  67. In mobilizing future assistance for outstanding SPS-related needs, one main challenge seems 
to arise from a series of underlying "structural" i ssues related to endemic animal diseases and plant 
pests for which there are no easy short term soluti ons or "quick wins" foreseen.  To address these 
impediments, notably in the public sector, sustained long term commitment to funding, both at national and regional level, seems required to ensu re minimum levels of cap acity and hence market 
access.  Mobilization of the international commun ity to address Highly Path ogenic Avian Influenza 
(HPAI) and Foot and Mouth Disease (FMD) provi des positive examples of such initiatives.   
68. Countries have to set their priorities.  There will never be sufficient resources available to 
address all outstanding needs at once despite vari ous planned initiatives to  strengthen SPS capacity 
building at national and/or regiona l levels, whether specific or of a more general nature.  Countries 
also face many other development challenges in rela tion to their exports, for instance related to weak 
banking institutions, communication and transportati on infrastructure, high freight rates and utility 
costs, etc.  In this context, SPS management tends to  be "reactive" rather than "proactive" and is often 
seen as having low priority.   
69. At present, most of the LDCs surveyed lack a coherent and agreed vision on the role of 
standards and SPS management in the context of international trade and broader economic 
development.  As a first step, efforts should be  focused on bringing together all the main actors 
involved, helping the countries to make the ec onomic case for dedicating resources to the SPS area 
and ensuring that SPS constraints are not considered  in isolation from broa der economic development 
needs.   
70. One way to do this could be through the de velopment of a national SPS strategy and 
prioritized action plan, where possible based on cost-b enefit analysis and informed by the results of 
the aforementioned capacity evaluation tools.  This exercise could be pursued as part of the Enhanced 
IF process, where necessary assisted  by the STDF and/or its participating organizations.  An SPS 
action plan for Lao PDR was recently prepared by  the World Bank and a similar plan - with STDF 
support - is in the pipeline for Cambodia.  Other countries could follow these two examples. 
71. Following prioritization, needs have to be deve loped into "bankable projects" that fit with 
individual donor's funding cycles and priorities.  Severa l ideas and focal areas have  been hinted in this 
paper but must be explored in more detail on an  individual country and/or regional basis.  As 
mentioned before, this paper provides a first ph ase overview of SPS needs and assistance and should 
be seen as "work in progress". 
P
RELIMINARY RECOMMENDATIONS  
72. Raising the profile of SPS issues in terms of market access, notably among high level 
decision-makers and further integration of SPS i ssues into planning and budgetary frameworks and 
supply chains is key to the sustainability of future capacity building efforts.  This may be all the more 
important in light of recent trends in some count ries towards general and/or sector budget support. 
73. Greater attention should be given to stre ngthening compliance with good practices and 
internationally recognized systems such as HACCP in order to enhance competitiveness and further 
integration into supply chains.  Targeted activities can  be part of specific SPS interventions but also of 
more general programmes, for instance related to private sector or business development. 
74. Addressing deficiencies and shortcomings in the fishery sector is of primary concern in the 
countries concerned to maintain access to internatio nal markets.  In relation to its value in LDC 
exports, the fisheries sector currently receives less SPS assistance than other sectors (both official and 
commercial). G/SPS/GEN/900 
Page 30  
 
  75. There is an evident need in a ll countries to strengthen food control systems.  One starting 
point to explore further is strengthening the lin kages with the growing tourism industry (assisting 
local suppliers in meeting standard s required by hotels and restaurant s,  improving hygienic condition, 
monitoring food borne illnesses among tourists, improving food inspection, etc.) and growing 
supermarket chains. 
76. To address “structural” SPS impediments, notably  in the public animal and plant health 
sectors, sustained long term commitment to fundi ng, both at national and regional level, seems 
required to ensure minimum levels of capacity a nd hence market access.  Results of the OIE PVS and 
IPPC PCE tools should be used to design actions to strengthen the performance of veterinary and 
plant health services.   
77. The LDCs surveyed would benefit from a thorou gh and concerted review and update of their 
SPS legal framework, in accordance with international requirements, including rules on related 
matters, for instance pesticides, veterinary drugs and animal feed.  The legal review should pay 
specific attention to issues of implementation and enforcement and explore possibilities of taking a biosecurity approach concomitant with such a review.   
78. Prior to embarking on laboratory investments, beneficiaries and donors should agree on a 
clear and sustainable plan to identify the range of  services that should be offered within the country, 
define and delineate responsibilities among government and private sector laboratories, and address 
issues related to certification and/or accreditati on.  Regional approaches complementing national 
capacity should also be explored.  
79. To help countries complying with new standards and ensure improved international 
harmonization long-term capacity shou ld be developed to participate in and contribute to the work of 
the ISSBs.  Technical assistance should also be  provided in setting up  functioning national 
notification authorities and enquiry points.  
80. The role of the private sector in SPS manageme nt and compliance should be considered when 
designing awareness raising and training activities but  also in relation to broader functions, for 
instance standard-setting, monitoring measures pr oposed by trading partners, and the provision of 
laboratory services.    
81. Generally, better coordination of efforts is needed  at national level to raise the profile of SPS 
issues, facilitate public-private sector dialogue, re move overlapping mandates, making more efficient 
use of scarce resources, and further integra ting SPS issues into broader planning/budgetary 
frameworks and supply chains.  To this end, na tional level coordination mechanisms should be 
designed.  
82. Coordination of efforts at regional level should al so be explored, notably in the animal/plant 
health area.  Future efforts may be directed to wards developing capacity for regional pest and disease 
management and include sharing of resources, for instance through setting up joint research and 
training centres, etc. 
83. Countries are encouraged to apply and
 use the results of a wide range of existing SPS 
capacity evaluation tools to determine their prior ity needs, particularly in the public sector, and 
mobilize additional resources.  Too often, the results  of capacity evaluation tools remain in drawers 
and outside the public domain.  Greater efforts ne ed to be made the organizations carrying out 
evaluations and recipients to make such information public. 
84. SPS issues should be much more prominently addressed in future updates of national DTIS - 
commissioned with Tier 1 funding under the Enhan ced IF.  The STDF, using the expertise of its  G/SPS/GEN/900 
 Page 31 
 
 
  participating organizations, should assist in this process.  The development of SPS action plans as 
outlined above is one appro ach that could be used. 
85. The STDF and its partners could play a role in  the development of projects for funding and 
implementation by the wider donor community - including multi-donor basket funds established at 
country level linked to DTIS implementation or through funds becoming available under the 
Enhanced IF. G/SPS/GEN/900 
Page 32  
 
  ANNEX I:  BENIN 
 
A. O
VERVIEW OF SPS  SITUATION  
1. Several SPS capacity evaluations have been conduc ted in Benin as a project preparation phase 
or as part of project implementation. Some of these  studies were limited in scope because they served 
the purpose of the project and they targeted a specific aspect of SPS capacity such as legislative 
framework, laboratory resources (Projet d'Appui  au Secteur Privé (PASP), UEMOA Quality 
Programme) or a specific issue su ch as the informal food sector (FAO project TCP/FAO/2904), the 
fisheries sector (Strengthening Fishery Products Health Conditions (SFP) project, West African Trade Hub (WATH)), the cashew nut sector (WATH) or the export potential of agricultural products 
(DTIS).  Other large scale sector specific evaluations were conducted using the PCE or the PVS tool. 
However, the results of these evaluations were not av ailable for this report.  Evaluations conducted in 
the framework of general agricultural devel opment support programmes were cross-cutting and 
covered a broad array of SPS aspec ts such as diagnostic of SPS ca pacity under PADSA (Programme 
d'Appui au Développement du Secteur Agricole).  
2. Benin’s exports are dominated by cotton (90%  of exported agricultural product revenues and 
over 45% of total foreign- exchange earnings).  Benin has encountered difficulties diversifying into 
non-traditional exports to developed markets.  Tech nical barriers such as SPS measures, standards and 
quality are a particular constraining factor.  While agriculture occupies almost 56% of labour force 
and contributes almost one third of GDP, most agri cultural production remains oriented towards self-
sufficiency or local consumption, with low and s poradic exports.  Cotton, igname, maize and manioc 
are the major crops. Maize and manioc together oc cupy about 50 percent of cultivated land but a 
negligible fraction of exports.  
3. The DTIS completed in 2005 identified a few cr ops with a comparative advantage for export 
diversification. These include mainly cashew nuts, pineapples, shea butter. However, these sectors 
remain handicapped by a number of constraints, some  of which are directly related to SPS measures 
such as lack of knowledge of producers of Good Ag ricultural Practices due to low technical assistance 
and extension services received from the Government , and the poor availability of pesticides and 
other agricultural inputs.  
4. Livestock and fishing are estimated to account for around 6% and 4% of GDP, respectively. 
Cattle output meets about 60% of na tional requirements but a lack of veterinary services (an estimate 
is that only third of the slaughtered animals are ex amined by a veterinarian) and prevalence of animal 
diseases such as African Swine Fever, Bovine tube rculosis, Contagious bov. Pleuropneumonia, Fowl 
typhoid, Lumpy skin disease, Newcastle disease, Porcine cysticercosis, Rabies, Trypanosomosis, 
Peste des Petits Ruminants, are serious problems.  Five cases of Avian Influenza were reported in 
commercial farms in December 2007. 
5. Fishing is mainly artisanal coastal fishing or in-land water based.  Fish exports, consisting 
mostly of shrimps, represent about 1 percent of  exports.  The Government of Benin imposed a 
voluntary moratorium on exports of shrimps from 2003 until February 2005 due to concerns regarding 
perceived failure to comply with European sanitary requirements (main export market).  This situation 
reflected the weakness of the quality control system  at institutional level.  Failure to implement 
quality assurance schemes (mainly HACCP) and the absence of accredited laboratories for 
microbiological and biochemical analyses were also identified as major obstacles to shrimp exports.   
6. The SPS institutional system in Benin is charac terized by a multiplicity of actors and poor 
communication between them.  This situation leads to overlap of mandates and confusion of private 
sector operators regarding the scope of intervention of the various institutions leading to unnecessary 
complications and delays in inspections and qualit y controls.  Quality standards for high export  G/SPS/GEN/900 
 Page 33 
 
 
  potential crops are lacking or outdated.  Laborat ories lack skilled human resources and equipment. 
Lack  of accurate analyses of mycotoxins, pestic ide residues or heavy metals makes it difficult to 
ensure the quality of products such as maize, mani oc or cashew nuts and therefore to develop export 
market. There is no epidemiological surveillance of food borne disease.  Misuse of pesticides and 
mainly the use of cotton pesticides for food crops  such as Alphacal P 318 EC and Callisulfan 350 EC, 
both highly toxic for humans, have serious adverse effects on human health.      
B. OVERVIEW OF SPS-R ELATED TECHNICAL COOPERATION  
7. The total value of support received by Benin in the agriculture, rural development and 
environment sectors amounts to €268m over the peri od 2000-2010.  Economic integration and private 
sector support received  €99m over the same period.  
8. The UEMOA Quality Programme Phase II whic h amounts to US$599,000.  This project 
started in 2007 and builds on the results obtained during Phase I.  In particular, it aims at consolidating all the structures/bodies created for implementing trade support services and quality 
policies. It will reinforce the Regional Accred itation Body and the various Technology Centers 
catering for priority export industries such as cott on, fruits and vegetables, meet and milk products, 
and fisheries. The programme is run by UNIDO and funded by the EC.  
9. The PADSA Phase II funded by DANIDA (2004-2009, total value US$34m) include a 
component related to private sector support and mainly  four value chains maize, manioc, cashew and 
shea which covers aspects indirectly related to SPS issues through actions to improve the quality of 
the end product.  The PDSA contains also a si gnificant component on public sector support which is 
dedicated to enhancing the capacity of the SPS sy stem for laboratory testing, standard setting, 
inspection etc.  Likewise, some of the activities conducted by the PASP (2006-2009, €5m) target the 
enhancement of laboratory capacity  and improving the quality of some selected products including 
fisheries.  The US-funded WATH supports exporters in West Africa in enhanc ing their market access 
though providing them with market information, export guides but also value chains studies that 
contain information on improving the quality of their products such as cashew nuts, cotton and shea 
butter. 
10. Other programmes directly or indirectly rela ted to SPS measures include FAO implemented 
projects.  FAO has started recently a project in Be nin on capacity building for the implementation of a 
regulatory framework for biosecurity TCP/BEN/3103.  This US$260,000 project will update the legislation with respect to the use of GMOs in  agriculture and will build the capacity for the 
assessment and the management of risk associated with them.   
11. Benin also benefits from tec hnical assistance provided on multiple country basis for which it 
is difficult to establish the share of funding pertaining to a single country.  Most of these projects are related to avian influenza (AI) including FAO's SIDA-funded emergency assistance for the control 
and prevention of AI in Sub-Saharan Africa ( 2006-2008, total value of US$3.4m) and its second 
cooperation agreement on support for the control and prevention of Highly Pathogenic Influenza 
(HPAI) in Sub-Saharan Africa (2007-2008, total value of US$3.7m).  FAO's Global AI eradication 
programme encompasses regional activities in W est Africa which are supported by the US (2007-
2009, total value of US$225,000).  The US also supports FAO/OIE/WHO Collaboration on HPAI Rapid Response and Containment which includes actions in Benin (2007-2009, US$1m) as well as HPAI Early Warning, Early response and prepar edness strategy support in Western and Central 
Africa  (2008-2009, US$432,000).  Likewise, the World Bank programme on Rapid Assessment of 
Avian and Human Influenza in Sub-Saharan A frica covers Benin (2007-2008, US$ 1.6m).  
12. Benin also benefits from the EU-funded SFP proj ect on health and sanitary requirements.  
The project has a total budget of approximately €56 m and is being implemented over a period of 5 G/SPS/GEN/900 
Page 34  
 
  years.  The SFP programme started a regional proj ect (No: 21/07/04/FWA) with Benin, Cameroon 
and Togo in January 2005. 
C. STDF
 ACTIVITIES IN BENIN  
13. A multi-country STDF-funded project on capacity building for improving the fish trade 
performance in five African countries (2008-2010, to tal value US$469,000) is being implemented by 
FAO.  
14. STDF is funding two SPS capacity building projects in Benin funded for a total amount of 
US$834,433 (details on these projects are included in Ta ble 8 of the main report). The projects deal 
with the enhancement of information flows within the SPS system and with the control of mycotoxins 
in selected products. The projects are being implemented by FAO and IITA, respectively.  G/SPS/GEN/900 
 Page 35 
 
 
  ANNEX II:  CAMBODIA 
 
A. OVERVIEW OF SPS  SITUATION  
1. The updated DTIS completed in 2007 identif ied 19 product sectors of export potential on 
which to focus strategies.  Among these, nine we re agrifood products (rubber, cashew nuts, cassava, 
corn, fishery, fruits and vegetables, livestock, ri ce and soyabeans).  Among the strategies identified as 
necessary to stimulate export growth was better management of SPS issues.  
2. An estimate is that more than one third of th e volume of agri-food export is associated with a 
high SPS risk, mostly plant health-related given th e predominance of plant products in Cambodia's 
export basket (64% of total exports  in 2004 were phytosanitary risk sensitive). Rice is the mainstay of 
the Cambodian agricultural economy.  Rice production in Cambodia has increased rapidly in the past 
decade due mainly to improved productivity and ar ea expansion. Cambodia has developed into a net 
rice exporter.  In December 2004, China added ad ditional requirements for all plants (and rice) 
imported from Cambodia which included requirements for risk analysis and field inspections in Cambodia.  As a result of these actions, Chinese im ports of Cambodian rice have stopped. Likewise, 
raw cashew nuts have been iden tified in the DTIS as a product with medium export development 
opportunities.  
3. Agricultural productivity is still undermined by a large number of weeds, insects and diseases. 
Control of the pest and disease situation will impr ove agricultural productivity and may help resolve 
export problems which have arisen. Agri-food product export would also be boosted by the 
implementation of Good Agricultural Practices a nd Good Manufacturing Practices for post-harvest 
processing.  For instance, excessive use or use of unapproved pesticides may limit Cambodia's access 
to developed country markets for products such as soybeans, rice, corn, fruits and vegetables. Also, inappropriate use of pesticides in the production of fresh food and vegetables is a food safety hazard, 
an occupational safety issue for farmers and a c oncern for water supplies and eco-system health.  
Training and laboratory capacity to control mycotoxin contamination are required to ensure access to 
high return markets for the processed product.  
4. Export expansion opportunities for the livestoc k sector were assessed as low in the DTIS 
2007 due to the prevalence of various animal di seases, including Foot and Mouth Disease (FMD), 
Classical Swine Fever (CSF), Newcastle Disease and Highly Pathogenic Avian Influenza (HPAI).   
Animal diseases also affect domestic trade and pub lic health through lower productivity and reduced 
income for producers as well as through risks to hu man heath associated with zoonoses. Cambodia 
reported 20 outbreaks of HPAI in the period 2003- April 2008 and a total of seven human fatalities in 
the same period.  The outcomes of the OIE PVS tool  applied in June-July 200 7 should provide further 
guidance as to the needs and constraints of the Cambodian veterinary services.   
5. Cambodia’s fisheries sector enco mpasses extensive freshwater fisheries within floodplains, 
river and lakes, marine fisheries, rice field fi shery and some aquaculture.  Cambodia enjoys high 
export potential in fishery products and is expanding fast – an almost 30% increase in Cambodia's fish 
exports was recorded between 2001 and 2005.  The expor t of shrimp and tuna to Japan has grown to a 
value of approximately US$10m annually.  
6. A barrier to further export growth in the fisher ies sector, in particular to high value OECD 
countries, relates to sanitary conditions in the Ca mbodian fisheries sector.  Cambodia is not been 
included in the list of countries approved for export to  the EU and its fish and fish products have been 
banned since 1997.  A number of conditions must b een met to obtain approval, including giving the 
Department of Fisheries the legal basis to func tion as the competent authority, ensuring compliance 
with standards such as antibiotics residues, hygiene etc and health certification in line with the OIE 
standards. Additionally, since 2004, the EU has banned the import of tuna and swordfish from G/SPS/GEN/900 
Page 36  
 
  Cambodia and a number of other countries as a result of  concerns over failure to respect conservation 
rules.  
7. The poor food safety situation in Cambodia resu lts in important health hazards and economic 
losses due to cost of illness and lo ss of healthy and productive life.  The absence of a coordinated 
programme of surveillance of food borne disease at  the national level makes it difficult to report 
morbidity and mortality arising from ingestion of contaminated foodstuffs. Ho wever, it was estimated 
that hospital admissions for diarrhoea and dysen tery syndromes represented 5% of total hospital 
admissions for 2002 with a fatality rate exceeding 3% for these two diseases.   
8. Although SPS is widely recognized as a major brake to Cambodian agri-food exports, 
assessments of SPS needs for Cambodia are fragmented.   SPS received little concerted attention in the 
National Strategic Development Plan (2006-2010) or  the DTIS. The establishment of an SPS Action 
Plan has been identified as a priority need for Cambodia during the STDF workshop on “Mobilizing 
Aid for Trade for SPS related technical assistance in the Greater Mekong Sub-region” held in Phnom 
Penh, Cambodia on 21-22 May 2008 (see STDF activiti es below). Other outstanding needs identified 
in the balance sheet include:  
• Strengthening the legislative framework for SPS management .  There is a continuing need 
to clearly identify roles and responsibilities of  institutions involved in SPS management, 
mainly for those with potential overlapping mandates such as the Ministry of Commerce (MOC) and the Ministry of Agriculture, Fish eries and Forestry (MAFF), and within the 
MAFF, the Department of Animal Health  and Protection (DAHP) and the Fisheries 
Administration (FiA).  The institutional and legi slative frameworks for fi sheries, animal and 
plant health, need strengthening to include  the necessary provisions for enforcement. 
Mechanisms of coordination among various  institutions should be established.  
 
• Enhance capacity for di agnosis and enforcement . There is a need to build overall capacity 
for diagnosis and enforcement for all areas of f ood safety, plant health and animal health. This 
refers to capacities for inspection and certific ation, surveillance and monitoring and risk 
analysis, among others, and includes facilities, e quipment and human resour ces. Yet prior risk 
evaluations for all three areas would be need ed to correctly identify needs and proper 
allocation of resources. 
  
• Promote greater awareness and informatio n for senior and provincial government 
officials . This is necessary to mainstream SPS issu es into sector development activities and to 
improve coordination and communication among central and decentralized institutions. 
Capacity of the SPS Enquiry Point to act as an  interface between international partners and 
national institutions and to disse minate SPS information within th e country to all stakeholders 
should be enhanced.  Likewise, the National Codex Committee could be strengthened to act 
as a vehicle of continuous update of officials on international standards and to raise awareness 
of relevance of Codex work to the national ec onomy by bringing industry's concerns onto the 
agenda of senior officials.   
 
• Enhance awareness and skills of food producers and processors .  This could be 
implemented through training of trainers to d esign tailor-made curricula to enhance the skills 
of operators to achieve compliance with intern ational standards in their particular area of 
operation. Strengthening of extension capacity an d of the link between ex tensions and applied 
agronomic research could greatly benefit the farmers. Multiplying Farmer Field Schools, 
reinforcing producer associations and provincial chambers of agriculture are other possible 
ways to improve phytosanitary and animal health situations in the country. 
  G/SPS/GEN/900 
 Page 37 
 
 
  • Enhance awareness of consumers on food safety risks . This could be conducted through 
assisting relevant institutions to design food safety campaigns and to strengthen consumer 
association's capabilities to act as an intermediary.  
• Develop coordinated surveillance programmes for plant and animal pests and diseases 
and for food-borne disease and enhance capacity for diagnosis . This should include 
training on data collection and dissemination and on the use of data to develop science-based 
food control strategies.   
 B. O
VERVIEW OF SPS-R ELATED TECHNICAL COOPERATION  
9. Technical assistance in the area of SPS has been  surveyed in Cambodia as part of the STDF 
Aid for Trade related work.  For the period 2001- 2006, Cambodia benefited from 14 country projects 
(with a total of about US$16m) and a number of multi-country projects (total value of US$200m for 
all multi-country projects).  Table 1 below gives an overview of SPS assistance received in the period 
2001-2006. 
Table 1:  Direct SPS assistance received by Cambodia (2001-2006) 
 
Number of projects  Value of Projects (US$’000)  
Food safety 2 Food safety 301 
Animal health 3 Animal health 6,931 
Plant health 1 Plant health 56 
HPAI 5 HPAI 4,633 
General 3 General 3,629 
Total 14 Total 15,550 
 
10. The table shows the predominance of donor suppor t oriented towards animal disease control, 
and mainly the control of HPAI.  Further significan t  donor assistance can be expected in the area of 
HPAI.  At the end of 2006, some US$27m in committed funds for HPAI had not yet been disbursed. 
For instance, ongoing projects include continua tion of EC support on smallholder livestock 
production (2007-2010, total value US$1.85m), three FAO projects on HPAI prevention, preparedness and control funded by Germany and USA (2006-2009, total value US$8.6m) and 
US$11m assistance on avian and human influenza c ontrol and preparedness managed by the World 
Bank. 
11. Ongoing projects specific to Cambodia include assistance to the fisheries sector provided by  
FAO (2008-2009, total value of US$311,000) an d by DANIDA/DFID (2006-2010, US$321,000). 
Cambodia benefits from another support project from FAO to enhance the phytosanitary system 
(2008-2009, total value of US$264,000). 
12. A multi-donor trust fund (around €10m) for implemen tation of the DTIS priority actions is 
being prepared with EC, DANIDA and UNIDO as ma in contributors.  The programme concept note 
include reference to SPS issues.  Projects will ta rget actions recommended by the DTIS to promote 
export of the nineteen products with high export po tentials, with a focus on trade facilitation. The SPS 
Action Plan developed by the STDF will help in id entifying capacity building activities required to 
achieve this objective (see STDF activities below).  
13. Another area where Cambodia can expect further assistance is in relation to implementation 
of the Greater Mekong Subregion (GMS) Cross-Bo rder Transport Agreement.  The ADB/GMS 
Secretariat is in charge of a technical assistance project aimed at enhancing Transport and Trade facilitation in the GMS.  The project will build on the ongoing project on implementation if the cross-border transport agreement. It will comprise four components: i) trade facilitation, ii) SPS measures, G/SPS/GEN/900 
Page 38  
 
  iii) business and logistic support and iv) regional information sharing.   The SPS component aims at 
strengthening cooperation between  SPS regulatory institutions th rough common risk management, 
laboratory mutual recognition, etc. The technical assistance provides for 14 man/month expertise to 
assess the institutional framework in GMS countries, assess risk management systems and develop an 
implementation plan on SPS, assess the laborator y situation and ISO 17025 compliance, etc. 
14. Other technical assistance not directly focused on SPS could be provided through 
programmes targeting private sector support.  The ADB Cambodia Private Sector Development Program currently under preparation as well as th e activities planned by the Mekong Private Sector 
Development Facility (MPDF) of the International Finance Corporation (IFC) to enhance the business 
environment and remove key barriers to Small and Medium Sized Enterprise development in 
Cambodia, with particular support to the developmen t of SMEs in the agro-industry (total budget of 
the project €15m  with EC contributing €8.9m). 
15. Regional economic integration is an important driver for  technical assistance provided to 
South East Asia. Consequently, a large proportion of  technical assistance for SPS has been carried out 
on a “multi-country” basis.  As one of the more  recent members of ASEAN, Cambodia has been 
eligible to benefit from a wide range of project s totalling approximately US$200m.  Table 2 below 
summarizes multi-country SPS assistance which included support to Cambodia. 
Table 2: Multi-country SPS assistance (2001-2006) 
 
Number of projects  Value of Projects (US$’000)  
Food safety 29 Food safety 24,909 
Animal 
health 9 Animal 
health 8,023 
Plant health 15 Plant health 9,819 
HPAI 20 HPAI 130,608 
General 17 General 26,328 
    
Total 90 Total 199,687 
 
16. Ongoing multi-country projects pertaining to Cambodia include the NZAID/FAO/WHO food 
safety project (2003-2008, budget US$1,28m), the Southeast Asian Foot and Mouth Disease Control 
Programme (SEAFMD) funded by Australia (total value of US$3m), phytosanitary capacity building 
projects funded by NZAID and Japan (total value of US$2.25m), ASEAN-EU Programme on 
Regional Integration Support Phase II (APRIS II) which includes a component on SPS integration 
(2006-2009, total value of the programme €8.4m), two projects on ASEAN GAP and fisheries funded 
by the ASEAN-Australia Development Coope ration Programme (2007-2008, total value 
US$677,000), projects on spread of transboundary anim al diseases and livesto ck movement (total 
value of US$1, 22m) and various donor projects on avian influenza (total value exceeding US$94m).  
C. STDF  ACTIVITIES IN CAMBODIA  
17.   In March-May 2008, the STDF undertook a field research in Cambodia to collect 
information on the ongoing SPS related technical assistance. In parallel, a review of exiting evaluations of SPS capacity in the country was undert aken. This review allowed the establishment of 
an inventory of SPS needs which were matched to t echnical assistance provision in a balance sheet to 
identify outstanding needs which are not covere d by on-going of planned technical assistance 
programmes. The work involved a thorough interaction with stakeholders in the country to identify 
priority needs in the SPS area. Th e balance sheet was first validated at the country level and then 
presented at the regional workshop held in P hnom Penh, Cambodia 21-22 May 2008 and further  G/SPS/GEN/900 
 Page 39 
 
 
  amended by participants from the country to reflect the discussions held with development partners at 
the meeting.  
18. The need for a comprehensive and coherent SPS Action Plan was identified as a priority by 
Cambodia and its development partners during the STDF workshop on “Mobilizing Aid for Trade for SPS related technical assistance in the Greater Me kong Sub-region” held in Phnom Penh, Cambodia 
on 21-22 May 2008. The STDF Working Group has approved funding for a project aiming at 
developing such an Action Plan. The SPS Action Plan will aim at identifying precisely the actions to be taken to strengthen the legislative framewo rk for SPS management, to enhance capacity for 
diagnosis and enforcement, to promote greater aw areness and information for senior and provincial 
government officials, to enhance awareness and sk ills of food producers and processors, to enhance 
awareness of consumers on food safety risks and to develop coordinated surveillance programmes for 
plant and animal pests and diseases and for food-borne disease. G/SPS/GEN/900 
Page 40  
 
  ANNEX III:  LAO PDR 
 
A. O
VERVIEW OF SPS  SITUATION  
1. SPS issues were identified as high priority in the DTIS validated in September 2006. 
According to health statistics reported by the World Bank, food-borne and water-borne diseases are 
the major cause of morbidity in the general popul ation.  Dysentery, typhoid, hepatitis A, E.coli, 
salmonella and vibrio cholera are all hazards in the fo od supply.  A particular issue relates to intestinal 
helminth and fluke infections rela ted to consumption of raw or un dercooked fish.  The prevalence of 
contaminants in foodstuffs and misuse of agro-chemical s represents also a threat not only to domestic 
consumers, but also to export opportunities.   
2. Animal husbandry of buffalo, pigs, poultry and cattle is a growing sector, but hampered by a 
variety of different diseases.  Anthrax, haemo rrhagic septicaemia, black leg disease, classical swine 
fever (CSF), Newcastle disease and various  parasites all inflict production losses.   
Lao PDR is one of seven Southeast Asian countries where foot and mouth disease (FMD) is endemic.  
In January 2004, highly pathogenic avian influenza (HPAI) was also reported.  Since that time, a 
further ten outbreaks of HPAI have been reported in poultry and a total of two human fatalities have 
occurred.  Control of animal diseases is hamper ed by Lao PDR's position as a major transit corridor 
for livestock trade between Cambodia, China, Th ailand and Viet Nam and the impracticality of 
implementing quarantine measures at frontiers give n porous borders and scarce human and budgetary 
resources to run these facilities.  Efforts to control diseases through vaccination are also hampered by 
difficulties in establishing movement controls, the ge neral weakness of national veterinary services 
and the cost of instituting such campaigns.  The animal disease status of Lao PDR severely limits its 
opportunities for formal livestock and meat trade.  In practice, what trade that does take place is 
mostly on an informal basis through porous border regions.   
3. Food and water-borne diseases, the prevalence of  contaminants in foodstuffs and misuse of 
agro-chemicals represent a threat not only to domestic consumers, but also to export opportunities.  At 
present, these are latent threats.  Fish exports are a good example.  At present, regional exports of fish 
are small or take place on an informal basis.  Expa nsion of Laotian fish exports to higher value raw 
fish products will be increasingly called into question or  subjected to costly sub-deep freezing 
treatments if the general sanitary (and in particular  the trematode) situation stays the same.  Thus the 
current sanitary situation acts as a potential brake on future growth. 
4. Overall, Lao PDR lacks a functioning SPS manage ment system.  It has insufficient ability to 
assess the situation on plant pests, animal diseases an d food hazards and to provide basic data on these 
hazards for trading partners.  It has very little ability to control agro-che micals and imported genetic 
material.  The components of the SPS management system – regulatory and institutional frameworks, 
standards, diagnostic capacity, surveillance and insp ection and quarantine – still have major gaps and 
are not sufficiently connected.  This forms a threat  to sustainable growth of exports and imports.  
While significant potential exists to promote produc tion of high-value horticultural products and 
export-oriented agriculture, this is seriously c onstrained by a general lack of awareness among 
producers, government and the private sector about good agricultural practices (GAPs), good hygiene practices (GHPs), good manufacturing practices (GMPs) and quality assurance schemes (e.g. 
HACCP), and inadequate capacity to implement such  schemes.  Moreover, the food safety situation in 
the country is very poor, and productivity of crops and livestock is negatively affected by 
insufficiently controlled pests and diseases.
 
5. An absolute priority is to get the basics of th e system right.  This requires not only additional 
donor support, but raising awareness among political leaders that more government resources are needed for building and operating an effective SPS syst em.  Integration into the global trading system  G/SPS/GEN/900 
 Page 41 
 
 
  through WTO membership and implementation of ASEAN Free Trade Area (AFTA) commitments 
represent an opportunity to create the necessary awareness.   
6. Fundamental constraints still exist in the SPS system in Lao PDR, the components of the SPS 
management system – institutional capability, regul ations and standards, diagnostic capacity, 
surveillance, inspection and quarantine – are still not in  place.  This is particularly the case in the food 
safety and plant health sectors which have received re latively less focus in donor attention.  A further 
need exists to promote the adoption of GAPs,  GHPs, GMPs and quality  assurance sch emes among 
exporters as a means to enhance access to intern ational markets, particularly for high-value 
horticultural products.  Furthermore, there are still ma jor gaps in the capability to collect and evaluate 
basic data on pests, diseases and food hazar ds and to conduct basic risk management.  
7. The following SPS capacity building needs were id entified as a result of the work undertaken 
by the STDF within the framework of Aid for Tr ade related activities (see STDF activities below):  
• Assistance in the accelerated drive for WTO membership .  Information and training has 
been provided on the WTO SPS Agreement to senior officials in the Ministries of Industry and Commerce (MOIC), Agriculture and Forestry (MAF), Health (MOH) and the National Science and Technology Authority (NSTA) in preparation for WTO accession. However, 
among middle rank managers and specialists in these ministries and in the provinces (who are 
responsible for SPS implementation) there is s till little awareness about the implications of 
WTO membership.  It is recommended that a major in-country training event for middle-level management and specialists in MAF, MOH,  NSTA and provinces be provided on WTO 
accession.  This training should build on the Cambodian and Vietnamese experiences of 
accession.  As part of this training, focused help should be given to make the SPS/TBT 
Enquiry Point operational.  
• Efforts to control endemic animal diseases have no "easy fix".  In addition to the 
economic losses in terms of animal productiv ity and market access forgone, the continued 
prevalence of these diseases may create diffi culties in implementing aspects of the GMS 
Cross-Border Transport Agreement,  particularly in respect of the facilitation of transit trade.  
It would appear appropriate thus that this i ssue be addressed in forthcoming support projects.  
Addressing the underlying disease situation will require sustained long-term investment and 
technical assistance programmes designed at a regional level.  In this regard, the SEAFMD programme is a model that deserves further st udy for possible broader application for other 
diseases.  
• Assistance to increase awareness about, and facilitate the implementation of relevant 
international standards, GAPs, GHPs and GMPs .  To complement the above support for 
WTO membership, assistance is also required to ensure that government departments, 
producers and the domestic private sector are know ledgeable about nationa l, international and 
regional regulations and standa rds related to food safety and quality, and that the required 
institutional framework and human resources are in place to facilitate the effective application 
of good agricultural, hygiene and manufacturing practices.   
• Assistance in surveillance of food-borne hazards, pests and diseases .  A project is required 
that would help with the design and implementa tion of surveillance and data collection on the 
most important pests, diseases and food hazards, assist in the evaluation and sharing of data, 
in particular with trading partners.  A second stage to such a project would focus on using the 
data to establish risk-based management system s for food safety, plant health and animal 
health risks. G/SPS/GEN/900 
Page 42  
 
  • Assistance in training and development of academic/vocational training in the SPS area .  
Training of staff and specialists is crucial for building a viable SPS system.  The current 
skilled labour shortage is also a constraint  which reduces the absorptive capacity of the 
country for SPS technical cooperation.  In part  this constraint is caused by an absence of 
academic and vocational training opportunities in  Lao PDR.  Thus as part of a training 
programme for Laotian officials, considerati on should be given to the development of 
academic and vocational training courses in the SPS area.  This would help in delivering 
training opportunities which are in-country and on-the-job. 
B. O
VERVIEW OF SPS-R ELATED TECHNICAL COOPERATION  
8. Information on donor assistance to Lao PDR in the SPS area was compiled during the field 
research undertaken in preparation for the Aid for Trade events organized by the STDF for the GMS 
region. The results obtained indicated a signifi cant increase in SPS assistance provided to Lao PDR 
during the period 2001-2006.  Table 1 below giv es an overview of SPS assistance received in the 
period 2001-2006.  The data showed that the count ry benefited from 14 country projects (valued at 
about US$24m).   
Table 1: Direct SPS assistance received by Lao PDR (2001-2006) 
 
Number of projects  Value of Projects (US$’000)  
Food safety 1 Food safety 750 
Animal health 4 Animal health 7,056 
Plant health 0 Plant health 0 
HPAI 4 HPAI 12,295 
General 5 General 3,815 
Total 14 Total 23,916 
 
9. Significant donor support has been provided for animal disease control, led by efforts to 
control HPAI, including the World Bank HPAI Cont rol and Preparedness project (2006-2009, total 
value of US$ 13.56m), a project funded by Germany to  build capacity at Grass-roots Level to Control 
Avian Influenza (2006-2009, US$3.2m) as well as a US-funded project to strengthen emergency 
preparedness for HPAI (2006-2009, US$2,284,990).  Animal disease control projects other than AI 
currently under implementation include support by the Australia on Classical Swine Fever and FMD 
(2003-2008, valued at US$414,000) and ADB-IFAD on livestock in the northern region (2007-2013, 
total value of US$18.4m). 
10. Lao PDR is a member of the IF.  In September 2006, a National Workshop took place to 
validate the DTIS, in which SPS constraints figured highl y.  To help turn the DTIS priority areas into 
action, a multi-donor trust fund, the Trade Developm ent Facility (TDF), has been established.  This 
trust fund is managed by the World Bank and incl udes an SPS component (total value of US$1.77m) 
that consists primarily of strengthening the SPS institutional, legal and regulatory framework, 
promoting the private sector and developing ri sk-based SPS management.  Further funding is 
expected to be added to the TDF in the coming y ears.  Additional financing should also become 
available through the enhancement of the IF.  
11. Other trade related ongoing projects include World Bank support for trade facilitation and 
export development (2008-2011, total value of US $1.77m) and the EC funded project aiming at 
enhancing the capacity of Lao PDR to integrate in to regional and international trade systems through 
developing national capacity in the fields of sta ndards, quality, metrology, accreditation, conformity 
assessment principles and best practices (2004-2008, US$621,000).  G/SPS/GEN/900 
 Page 43 
 
 
  12. As for Cambodia, the GMS Cross-Border Trans port Agreement is a driver for additional 
assistance to Lao PDR. The World Bank and ADB are considering a lending project with a SPS component to assist implementation of the Cross-Border Transport Agreement. 
13. As a member of ASEAN, Loa PDR has benef ited and is currently benefiting from all the 
regional technical assistance programmes detailed for Cambodia (Annex II). 
14. One particular constraint is the low absorptive capacity of Lao PDR for technical cooperation.  
The establishment and maintenance of a fully functioning SPS system will require long-term 
commitment from both the Government and donor agencies.  In the World Bank Action Plan, a strong argument was made that due to the limited human and financial resources available, it was important 
that additional funding should be selectively applied,  include efforts by the private sector, and be 
effectively prioritized.  It was recommended that major investments in diagnostics, inspection and 
surveillance should be sequenced and delaye d for a second phase of capacity building.   
C. STDF
 ACTIVITIES IN LAO PDR 
15. In March-May 2008, a country survey was conducted in Lao PDR to identify outstanding 
needs of SPS technical assistance which are not c overed by on-going or planned programmes. The 
survey consisted in a review of all exiting evalua tion of the SPS system in Lao PDR and an extensive 
field research to identify on-going activities and outstanding gaps. The field survey involved 
interaction with all stakeholders in the country to  assess the remaining constraints to be solved and to 
establish a list of priority needs to be used for mobilisation of future Aid for Trade resources. The 
results obtained were presented in a balance sh eet outlining the needs and the corresponding donor 
response and highlighting the needs still to be a ddressed. The balance sheet was validated once at 
country level in the presence of representatives from various institutions involved in SPS management 
and of representatives from donor agencies active in  the country. A second validation and further 
refining of the balance sheet took place during the regional workshop organized by the STDF on 
“Mobilizing Aid for Trade for SPS related technical assistance in the Greater Mekong Sub-region” in 
Phnom Penh, Cambodia on 21-22 May 2008. 
16. The STDF is currently funding a project prep aration grant to assist the Department of 
Agriculture in designing a project aiming at setting up legislative and institutional infrastructure for the implementation of GAP. A LaoGAP scheme will be created and tested on pilot crops. 
Certification and inspection bodies will be estab lished to enforce the new regulatory framework. G/SPS/GEN/900 
Page 44  
 
  ANNEX IV:  LESOTHO 
 
A. O
VERVIEW OF SPS  SITUATION  
1. Lesotho is small, landlocked and surrounded by South Africa, the region's largest economy. 
About 70% of the population derives its livelihood,  in part, from agriculture which contributes 
approximately 17% to GDP.  Sma llholder farmers, mostly subsistence-oriented, dominate agricultural 
production with small surpluses being sold in local ma rkets.  Maize is the most popular crop, followed 
by sorghum, wheat, beans and peas.  According to the DTIS, validated  in 2003, agriculture prospects 
are not encouraging due to inter alia  lack of arable land and modern farming equipment, low soil 
quality, high prevalence of HIV/AIDS and periodic droughts.   
2. There are opportunities for import substitution on the one hand and niche market production 
and export on the other.  Examples include fru it (peaches, apples, grapes and berries), traditional 
vegetables (cabbage, carrots and b eets) and other specialized products such as honey, mushrooms, 
asparagus, garlic and paprika.  Di versification of exports and market s, however, will require exporters 
to comply with international standards and pr ivate retailer schemes, where applicable.    
3. Livestock production is a substa ntial contributor to rural income and includes cattle (690,000 
units), sheep (1.1 million), goats (850,000) and pigs (100,000).  Sheep and goats  are kept primarily for 
production of wool and mohair, the two major agricultural exports from Lesotho.  Limited 
opportunities exist to expand production and serve the local - and perhaps regi onal - market for meat, 
dairy and poultry products (including hides and sk ins).  Among the constraints holding back further 
commercial production are scarce land (for fodder) and better handling and processing facilities.  
Additionally, information on OIE' s website reveals the presence of various endemic OIE notifiable 
diseases, which limits the scope to increase farmers' incomes and access to regional markets.  It is 
recommended that the results of the OIE PVS tool be used to design actions to strengthen the 
performance of veterinary services.  The fact that South Africa surrounds Lesotho might indicate that it already benefits from existing disease eradica tion and prevention measures undertaken in South 
Africa.  Fish production in Lesotho is limited to village-level fish pond projects, farming carp and 
other freshwater species. 
4. Given that most of Lesotho's food exports are destined for South Africa and should meet 
South Africa's import standards, the main recommend ation stemming from the DTIS is to integrate its 
SPS measures into South Africa's regime rather than to attempt implementing the SPS Agreement on 
its own.  This would include support to harmoni ze its legal framework with South Africa's and 
support to further develop local expertise, includi ng support to participate in the international 
standard-setting process (Codex, OIE, IPPC). 
B. O
VERVIEW OF SPS-R ELATED TECHNICAL COOPERATION  
5. FAO is currently implementing three SPS-related projects, one aiming to improve the animal 
disease information management system (2006- 08, total value US$159, 000), one on emergency 
control of anthrax (2008, total value US$239,438) and one to strengthen productivity and 
competitiveness of the smallholder dairy sector (i ncluding Zambia, 2007-11, total value US$80,000).  
Other FAO activities at regional level concentrate on control and prevention of avian influenza.  
Under the Integrated Framework, one Window II project (2004-07, total value US$440,335) had been 
launched, implemented by UNDP/ITC, aiming at expo rt and market development of mushrooms and 
peaches.  Some years ago, FAO supported a project  to strengthen Lesotho's domestic food control 
system - including the creation of a National Codex Committee - but no information is available about 
its current status.    G/SPS/GEN/900 
 Page 45 
 
 
  6. Lesotho benefits from a number of programmes and initiatives at regional level.  Generally, 
however, country-specific allocations and/or a llocations to SPS issues within these regional 
programmes are not known.  The EC, for instance, provides support to various regional programmes in the SADC region focusing on Foot and Mouth Disease (FMD, 2006-11, total value US$15m), capacity building on MRLs (2006-10, total value, €7. 5m), promotion of regional integration in the 
livestock sector (PRINT, 2004-09, total value US$9.5m ) and support for standards, quality assurance, 
accreditation and metrology (SQAM, 20 06-11, total value US$17m).  
7. Lesotho is also eligible under the Regiona l Standards Programme (RSP, 2006-10) funded by 
DFID and implemented by ComMark - although no speci fic projects have been reported for Lesotho. 
The RSP's objective is to help SADC countries and fi rms to meet international food quality and safety 
standards for agri-business products.  USAID/USDA  provide support to key SPS policy objectives 
under the African Global Competitiveness Initiative ( AGCI, 2006-11, total value US$11.5m) with the 
objective to build capacity of African countries to export plant, horticultural, and animal products 
internationally.  Assistance is  primarily implemented through USAI D's regional trade hubs, including 
the Southern African Trade Hub in Gaborone, Botswana.   
8. At ACP level, various projects funded by th e EC include SPS elements.  The Programme 
Initiatives Pesticides (PIP-COLEACP, 2003-08, total va lue €29.1m) aims to enable ACP countries to 
comply with European food safety and traceability re quirements and includes in-depth analysis of the 
impact for ACP countries of the new European SPS regul ations on official feed and food controls.  A 
second phase of PIP is being considered.  The EC programme "Trade.com" (2004-09, total value 
€50m) focuses inter alia  on implementation of WTO Agreements and preparation of pilot projects 
with special attention to SPS/TBT issues.  The Support Programme to Integrated National Action 
Plans for Avian and Human Influenza (SPINAP-AHI , 2007-10, total value €22.5m, implemented by 
AU-IBAR)  aims to strengthen capacity for early detection and rapid response to AHI. 
9. Upcoming ACP-wide programmes include Particip ation of African Nations in Sanitary and 
Phytosanitary Standard Setting Organiza tions (PAN-SPSO, 2008-10, total value €3.85m, 
implemented by AU-IBAR and AU-IAPSC) aiming to enhance effective participation of African 
countries in the activities of Codex, OIE and IPPC ).  The programme Strengthening Food Safety 
Systems Through Sanitary and Phytosanitary ( SPS) Measures (2008-2012, estimated value US$32m) 
will aim to establish risk-based food and feed safet y systems for export products in ACP countries in 
line with regional, international and EU standards. 
10. Reportedly, the EC, FAO, ITC, UNCTAD and th e World Bank are currently considering an 
African wide support programme on agricultural co mmodities.  The aim would be to strengthen 
capacity to develop and implement sustainable commodity strategies that improve farmers' productivity and their rural livelihoods a nd reduce income vulnerability (including inter alia  
elaborating strategies covering critical parts of th e commodities chain; supporting diversification; 
helping integrate commodities dependent countries in the international trading system). Total 
estimated value is US$54m.  Finally, the World Ba nk is planning to establish an Africa-wide Multi-
Donor Trust Fund (MDTF) for Trade and Developmen t. Pilot activities will take place in Madagascar, 
Tanzania and Senegal.  G/SPS/GEN/900 
Page 46  
 
  ANNEX V:  MOZAMBIQUE 
 
A. O
VERVIEW OF SPS  SITUATION  
1. Agriculture is the main source of income fo r more than 65% of the population, contributes 
significantly to GDP (21.8% in 2005) and, along with fisheries, is one the main export earners.  Less 
than 15 % of Mozambique's arable land is under cultiv ation and the agriculture sector is dominated by 
smallholders, predominantly subsis tence-oriented.  Basic food crops include maize, rice, cassava, 
sorghum, sweet potatoes and horticultural products .  Major cash crops, mainly tobacco, cashew, 
cotton and sugar, account for 6% of the cultivated land.  Several initiatives are currently taking place 
with regard to biofuel, with future investments planned in bio-ethanol from sugarcane and bio-diesel 
from copra and oilseeds. 
2. The DTIS identifies a range of factors holding  back growth in Mozambique's agriculture 
sector: poor access to finance, the absence of tradable land use rights,  low productivity, the absence of 
SPS control, weak agro-processing, costly logistics (including transport), the absence of effective 
producer organizations, scant export development serv ices, and obstructive red tape.  To confront 
these constraints, the DTIS recommends inter alia  to: (1) intensify production by promoting 
commercial farming among smallholde rs and larger operations; and (2 ) diversify into higher value 
product lines, such as horticultural and cut flower exports to Europe, but also mangoes to the Middle 
East and the Indian subcontinent during these count ries' off-seasons, as well as exports of ginger and 
honey to South Africa.  Market opportunities also exist for value-added and agro-processed products 
(coconut products, fruit, beans, maize, oilseeds,  cashew, pulses and pigeon pea) and for some 
traditional crops (tobacco, cassava, rice). 
3. Fruit exports, notably citrus and, more recen tly, bananas and mangoes, in particular show 
considerable potential and are growing rapidly,  although from a low base.  Further export 
opportunities also exist for a host of other tropical  fruit (melons, papaya, pineapples, litchi, etc.), 
vegetables (baby corn, bell peppers, paprika, etc.) a nd cut flowers.  Fruit exports are primarily focused 
on the South African market, although there are so me exports to Asia a nd Europe.  SPS-related 
constraints in the trade of fruit and vegetables ar e mainly related to traceability, hygiene requirements, 
private standards in certain markets, appropriate u se of pesticides and presence of residues in fresh 
produce.  In this trade, and that of cut flowers, th ere are also concerns over international transmissions 
of plant pests (notably fruit fly).   
4. At present, Mozambique's phytosanitary contro l system is weak, causing major annual losses 
to pest damage and restricting further access to fore ign markets, including South Africa.  In order to 
maintain access to existing markets and further develop horticulture over time, Mozambique must 
strengthen its plant health services, develop capacity  to undertake pest risk analysis, update its 
national pest list, develop national surveillance pr ogrammes and establish and/or maintain pest free 
areas in accordance with international (IPPC) requireme nts.  The results of the IPPC PCE tool provide 
a good starting point.  Over and above compliance with official food safety and plant health 
requirements, entering higher value markets in Eu rope (supermarkets, retaile rs) may require producers 
and processors to be certified for GlobalGAP and/or to follow other private standard schemes.     
5. SPS-related constraints also play a role in the trade of other agricultural commodities.  
Cashew nuts are currently exported unprocessed to India or processed in Mozambique and exported, 
mainly to Europe.  Opportunities exist to further expand small-scale cashew processing, which in turn 
would require farmers and processors to comply w ith internationally recognized systems, such as 
Good Agricultural Practice (GAP) and Hazard Anal ysis Critical Control Point (HACCP), and to 
respect limits on mycotoxin and pesticide residues.  Similar requirements also apply to the trade in 
"diversification crops" (beans, pulses, oilseeds and groundnuts), i.e. annual crops that smallholders 
cultivate, partly for cash and partly to complement  their own food supply.  Pigeon peas (lentils), for  G/SPS/GEN/900 
 Page 47 
 
 
  instance, are currently exported to Malawi fo r processing and re-export to India but could be 
processed in-country and exported directly.  Lim ited opportunities also exist to increase regional 
exports of maize to Malawi.  The coconut industry (fresh, dried, copra, oil) is severely affected by Lethal Yellowing Disease (LYD) and South Africa h as reportedly closed its market to coconut 
products from Mozambique.  Controlling LYD will require inter alia  implementation of a national 
surveillance programme and establishment and/or maintenance of pest free areas. 
6. Livestock production is modest with a total nati onal herd of cattle of about 1.5 million heads, 
with goats accounting for 4.4 million units and pigs for a further 1.3 million units.  Livestock, goat 
and poultry production, predominantly used for supporting rural households, is increasing.  
Mozambique's animal health status is of major concern.  Information on OIE's website reveals the 
presence of various endemic OIE notifiable diseases in the country, which limits the scope to increase 
farmers' incomes and access to regional and internati onal markets.  Disease concerns also play a role 
in Mozambique's exports of raw hides and skins.   Although no information is available, potential 
shortcomings may exist in sanitary controls at slaughterhouses, handling and processing facilities for 
meat, dairy and poultry products, and in the availability of animal feed.  It is recommended that the 
results of the OIE PVS tool be used to design ac tions to strengthen the performance of veterinary 
services, establish animal disease surveillance programmes, etc. 
7. Limited information is available about Mo zambique's food safety control system, which 
typically involves a wide range of actors.  Sta ndard-setting is the responsibility of the National 
Institute for Normalization and Qu ality under the Ministry of Industry and Trade. The Ministry of 
Health is responsible for establishing and enforc ing food legislation and cooperates with other 
ministries such as agriculture (animal products) and fisheries (export of fish and fishery products).  
Among the food safety and quality problems encountered  by the country are a high percentage of 
small-scale importation by small traders and lack of or limited food inspection and control at the 
border. 
8. Mozambique's fisheries sector is an important source of food, employment and revenue.  An 
estimated 480,000 people are economically dependent on the sector, directly or indirectly.  The 
marine fisheries sector has three broad segments:  industrial fishing, semi-industrial fishing and 
artisanal fishing.  Industrial fishing is conducte d by foreign vessels outfitted with processing facilities 
that target shrimp and tuna.  More than half of the Total Allowable Catch is taken by foreign vessels 
and sold directly to international markets.  The se mi-industrial fleet consists mostly of national vessels 
with onboard holding facilities fo r shrimp and fish, mostly for export.  Approximately 70,000 
artisanal fishermen sell their catch on the domestic market.  Concerns exist over illegal, unreported 
and unregulated (IUU) fishing and depletion of the national shrimp resources.  Mozambique's inland 
fisheries sector is well exploited and does not a ppear to have much potential for expansion.  
Freshwater fish is popular in the regional market.   
9. The EU market is important and mostly imports shrimp.  Since 2001, three notifications with 
regard to frozen shrimp imported from Mozambique  were received from the Rapid Alert System for 
Food and Feed (RASFF).  Two missions carried out by the European Commission's Food and 
Veterinary Office (FVO) in 2006 and 2007, respectiv ely, concluded that the system of official 
controls and of export certification, although adequa te in certain respects, cannot be considered in 
compliance with the requirements of Community le gislation.  Several deficiencies were found in 
relation to the implementation of the official pro cedures (auditing, approval, inspection, sampling and 
certification procedures), assessment of HACCP plans, official sampling for environmental 
contaminants, and analyses of potable water and ic e.  No major deficiencies were found in listed 
establishments and vessels authorized for export though several other fishing vessels (not listed but 
providing primary products to the listed establishm ents) did not present good structural and hygiene 
conditions. Efforts to assess and accredit all laboratories should also be continued. G/SPS/GEN/900 
Page 48  
 
  10. Significant opportunities also exist to further in crease fresh fish exports, notably involving the 
artisanal sector, but this would require fishermen and processing facilities to meet stringent quality and health standards.  Depending on economic vi ability, increasing investment in cold storage and 
transport capabilities (including the availability of ice) and upgrading shore processing facilities 
should be considered, accompanied by training in processing and handling techniques.  Other related 
recommendations include research to identify pote ntial new species for commercial exploitation, 
research to determine sustainable volumes of fish eries capture, improving regional cooperation for 
fishery stock monitoring and surveillance, and devel oping a strategy to combat IUU fishing.  Finally, 
significant opportunities exist for non-traditional ma rine products such as seaweed farming (following 
Tanzania's example) and shrimp aquaculture.  In particular aquaculture development would require 
development of a sound and sustainable strategy - given the stringent quality and health requirements 
attached, its potential adverse impacts on the environment, etc. 
11. Typically, Mozambique's overall food safety and agricultural health system comprises 
multiple government institutions located over variou s ministries, including Agriculture, Health and 
Trade.  Reportedly, efforts have been made  to improve the coordination among the various 
institutions, in particular through the establis hment of an SPS/TBT Working Group, though recent 
information on the status of this initiative is not available.  Recommendations in the DTIS include 
further streamlining of the standard-setting process.  No information is available on the current status 
and the need to update food safety, animal and plant health legislation.  There is a general need to 
develop more diagnostic capacity across all SPS areas through the upgrading and accreditation of laboratories.  Recent reports refer to the need to  generally promote private sector development and 
improve the business environment.  Specifically rela ted to SPS, this might include establishing and/or 
strengthening trade associations to suppor t SPS improvements, training programmes for 
farmers/entrepreneurs on good practices, HACCP, etc.   Finally, support is needed to enhance 
Mozambique's capacity to participate more activel y in the international standard-setting process 
(Codex, OIE, IPPC) and fully implement the SPS Ag reement (i.e. functioning notification authorities 
and enquiry points). 
B. O
VERVIEW OF SPS-R ELATED TECHNICAL COOPERATION  
12. Under the IF, several Window II projects have been launched at nati onal level focusing on 
fishery laboratory equipment, fish quality control and standards development.  The implementation 
period and total value of these projects is not know n.  FAO supports and implements various small 
projects at national level related to the contro l of African Swine Fever (2006-08, total value 
US$256,000), cassava production and processing (2008- 09, total value US$500,000), strengthening 
animal disease control (2006-08, total value US$15 9,000), and prevention and disposal of obsolete 
pesticides (2005-08, total value US$2.64m).  FAO ac tivities at regional level concentrate on control 
and prevention of avian influenza and fisheries management.  
13. World Bank support to Mozambique is focused on inter alia  agriculture, rural and private 
sector development.  Studies have been carried out on value chain analysis and horticulture 
development. 
14. Switzerland has funded a project (2005-07, US$2. 23m, implemented by UNIDO) to facilitate 
increased food-based exports through strengthening the national food safety system, upgrading of 
testing and metrology laboratories, improvement of  national food legislatio n, and dissemination of 
standards and technical guidelines among f ood manufacturers and stakeholders.   
15. In response to the FVO mission in 2005, the UK (DFID) provided grant funding to prepare 
and implement an action plan through its Region al Standards Programme (RSP) at ComMark.  
Similar grant funding was provided to implement a project on standards compliance in the horticulture sector developed by the STDF.  The RSP runs from 2006-10 and its objective is to help  G/SPS/GEN/900 
 Page 49 
 
 
  SADC countries and firms to meet international food quality and safety standards for agri-business 
products.  
16. Support provided by the Millennium Challenge Corporation (MCC) includes a project aiming 
at reducing the spread of Lethal Yellowing Disease (LYD), improving productivity of coconut 
products, and encouraging diversification into ot her cash-crop production (total value US$17.4m).  
This project will be complemented by a second pr oject developed with STDF support focusing on the 
establishment and/or maintenance of pest free areas.  
17. Mozambique's National Indicative Programme for support under the 10th European 
Development Fund (EDF) indicates that €622m will be  provided to the country over the next five 
years, with 46-50 % to be allocated in the form  of general budget support.  Agriculture, rural 
development and regional economic integration will benefit from 12-15 % of the total.  Additional 
support for trade may be considered to compleme nt the 10th EDF Regional Indicative Programme.  
International standards and certification, notably re lated to constraints in the fisheries sector, are 
explicitly mentioned as focal areas.   
18. Mozambique also benefits from a number of programmes and initiatives at regional level.  
Generally, however, country-specific allocations and/or allocations to SPS issues within these 
regional programmes are not known.  The EC, for instance, provides support to various regional 
programmes in the SADC region focusing on F oot and Mouth Disease (FMD, 2006-11, total value 
US$15m), capacity building on MRLs (2006-10, total value, €7.5m), promotion of regional 
integration in the livestock sector (PRINT, 2004-09, total value US$9.5m) and support for standards, 
quality assurance, accreditation and metrology (SQAM, 2006-11, total value US$17m).   
19. At COMESA level, the EC-funded Regional In tegration Support Programme (RISP, 2005-12, 
total value €30m) includes a component of capac ity building to develop standards and meet 
international SPS requirements.  The Agricultura l Marketing Promotion a nd Regional Integration 
Project (AMPRIP, implementation period and total value not known) supported by the African Development Bank (AfDB) focuses on capacity bu ilding, establishment of regional reference 
laboratories, institution of an SPS legal framework  and establishment of a regional technical sub-
committee on SPS measures. 
20. At ACP level, various projects funded by the EC include major SPS components.  The 
Programme Initiatives Pesticides (PIP-COLEACP, 2003-08,  total value €29.1m) aims to enable ACP 
countries to comply with European food safety and traceability requirements and includes in-depth 
analysis of the impact on ACP countries of the new European SPS regulations on official feed and 
food controls.  A second phase of PIP is being considered.  Focus areas of the programme 
Strengthening Fishery Products Health Conditions in ACP countri es (SFP, 2003-10, total value €46m) 
are competent authorities, test laboratories, the fi sh industry and small-scale fisheries.  No specific 
project for Mozambique have been reported.  Th e EC programme "Trade.com" (2004-09, total value 
€50m) focuses inter alia  on implementation of WTO Agreements and preparation of pilot projects 
with special attention to SPS/TBT issues.   
21. Upcoming ACP-wide programmes include Particip ation of African Nations in Sanitary and 
Phytosanitary Standard Setting Organiza tions (PAN-SPSO, 2008-10, total value €3.85m, 
implemented by AU-IBAR and AU-IAPSC) aiming to enhance effective participation of African 
countries in the activities of Codex, OIE and IPPC ). The Support Programme to Integrated National 
Action Plans for Avian and Human Influen za (SPINAP-AHI, 2007-10, total value €22.5m, 
implemented by AU-IBAR)  aims to strengthen cap acity for early detection and rapid response to 
AHI.  The programme Strengthening Food Safety Sy stems Through Sanitary and Phytosanitary (SPS) 
Measures (2008-2012, estimated value US$32m) will aim to establish risk-based food and feed safety 
systems for export products in ACP countries in line with regional, internati onal and EU standards. G/SPS/GEN/900 
Page 50  
 
  22. USAID has provided support to the Eastern a nd Southern Africa region under its Regional 
Agriculture Trade Expansion Support programme  (RATES, 2004-08, total value US$26m).  Among 
the deliverables are regional dairy and maize standa rds adopted by key countries involved in 80 % of 
the regional trade and a COMESA dairy SPS protoc ol adopted by at least five dairy producing 
countries by September 2008.  USAID/USDA also provide support to key SPS policy objectives 
under the African Global Competitiveness Initiative ( AGCI, 2006-11, total value US$11.5m) with the 
objective to build capacity of African countries to export plant, horticultural, and animal products 
internationally.  Assistance is  primarily implemented through USAI D's regional trade hubs, including 
the Southern African Trade Hub in Gaborone, Botswana.   
23. Reportedly, the EC, FAO, ITC, UNCTAD and th e World Bank are currently considering an 
African wide support programme on agricultural comm odities (including cotton).  The aim would be 
to strengthen capacities to devel op and implement sustainable commodity strategies that improve 
farmers' productivity and their rural livelihoods  and reduce income vulnerability (including inter alia  
elaborating strategies covering critical parts of th e commodities chain; supporting diversification; 
helping integrate commodities dependent countries in the international trading system). Total 
estimated value is US$54m.  Finally, the World Ba nk is planning to establish an Africa-wide Multi-
Donor Trust Fund (MDTF) for Trade and Developmen t. Pilot activities will take place in Madagascar, 
Tanzania and Senegal.  
C. STDF
 ACTIVITIES IN MOZAMBIQUE  
24. The STDF is currently funding a project prep aration which aims at designing a project 
proposal for the implementation of a national surv eillance programme for Lethal Yellowing Disease 
(LYD) in palms, including establishment and/or maintenance of pest free areas.  
25. Another project under implementation concerns  improving SPS compliance for horticulture 
exporters in regional and international markets. Th is project was developed with STDF funding, is 
funded by DFID and implemented by ComMark.  G/SPS/GEN/900 
 Page 51 
 
 
  ANNEX VI:  RWANDA 
 
A. OVERVIEW OF SPS  SITUATION  
1. Agriculture accounts for approximately 42% of GDP and employs about 90% of the 
population. Beans, sorghum, sweet potatoes and cassav a are the main food staples.  Coffee, tea, 
bananas and potatoes are the main domestic cash crops.  Europe has traditionally been the main 
destination for Rwandan exports, reflecting the dominance of traditional commodity exports, coffee 
and tea.  Coffee growers represent about 400,000 pe ople.  Tea production and processing is primarily 
managed by state-owned factories employing about 53,000 workers.  Rwanda's DTIS, validated in 
2005, acknowledges that - in the short-term  – reinforcement of these sectors through inter alia  
increasing productivity and raising qua lity is key to poverty reduction.   In addition, standards for 
product safety and quality and opportunities for in creasing horticultural exports from Rwanda are 
sections that figure prominently in the DTIS. 
2. Over the last two decades, the share of coffee and tea exports has declined or stagnated, 
mainly due to non-SPS reasons such as falling inte rnational prices, growing competition and various 
supply-side factors including quality, climatic c onditions and institutional issues.  Rwanda has not 
been infected by the Coffee W ilt Disease (CWD) which has severely hit its neighbouring countries 
(Uganda, Democratic Republic of Congo and Tanzania) - but is at risk.  Ochratoxin A, a mycotoxin 
hazardous to human health, may pose another potential  SPS constraint.  There is a need to continue 
awareness raising on these issues among coffee pr oducers through extensive training programmes 
focusing inter alia  on good hygiene practices along the chain.  In the tea sector, ma rket demands such 
as testing requirements for pesticides and heavy me tals may have a direct impact on producers. 
3. One of the priorities in Rwanda is the devel opment of horticulture exports where the country 
has comparative advantages such as a favourable climate and a la rge and relatively cheap labour 
force.  The DTIS identifies the following constrai nts undermining the country's competitiveness:  lack 
of technical know-how, poor quality, high transport costs, weak marketing channels, lack of basic 
infrastructure, and lack of access to finance and credit.  Other issues facing the development of the 
sector include lack of a strategy, poor institutio nal capacity, and the small scale of production at 
which most farmers are operating. Various reports have identified products that hold significant 
export potential including inter alia  passion fruit, apple bananas, tree tomato, avocado, pineapple, 
pyrethrum and roses.  Further analysis through a series of market and feasibility studies on selected 
products is recommended, given the investments th at will be required.  Horticulture is an SPS 
sensitive industry, with fresh fruit and vegetables being increasingly susceptible to pests and diseases 
and generally more delicate in nature than trad itional crops.  Rwandan farmers do not typically use 
pesticides, and there could be potential to further deve lop organic produce, if profitable markets exist.   
4. Diversification of exports into higher valu e-added products, such as horticulture, will 
necessarily require building the country's SPS manage ment capacities and addressing the weaknesses 
that undermine product quality.  According to the DT IS, the main priority is in awareness, recognition 
and application of basic good practices for hygien e and safety among farmers and industry to provide 
the foundation for a strong food standards system.  To this end, assistance and training will be 
required on internationally recognized systems, such as Good Agricultural Practice (GAP) and Hazard Analysis Critical Control Point (HACCP) to help ma naging SPS risks effectively.   In addition, results 
of the PCE tool show that Rwanda is currently neith er able to adequately secure its borders against the 
introduction of pests and diseases nor to provide conf idence to its trading partners that agricultural 
produce imported from Rwanda is pest and disease-free.  Plant health services need strengthening and capacity to undertake pest risk analysis need to developed and pest free areas in accordance with 
international (IPPC) requirements established and/or  maintained.  Reportedly, a list of crops was 
recently drawn up in terms of national importance (food security) and export potential - including 
cassava, maize, Irish potato, sweet potato, rice,  beans, banana, tree tomato and passion fruit. G/SPS/GEN/900 
Page 52  
 
  5. Livestock rearing is mostly small-scale - main ly at family level - acting as a source of food 
and fertiliser.  Rwanda's cattle herd is estimated at  1.1 million units, goats at 1.8 million units and pigs 
accounting for a further 570.000 units.  Rwanda's anim al health status is of concern and several 
disease-related quarantines have been reported, notab ly in the east of the country.  Information on 
OIE's website reveals the presence of various ende mic OIE notifiable diseases in the country, which 
limits the scope to increase farmers' incomes as well as access to regional and global markets.  
Disease concerns also play a role in Rwanda's exports of raw hides and skins.
6  Although no 
information is available, potential shortcomings may exist in sanitary controls at slaughterhouses, 
handling and processing facilities for meat, dairy a nd poultry products, and in the availability of 
animal feed.  It is recommended that a planned OI E mission to apply the PVS tool in the second half 
of 2008 be used to design actions to strengthen the performance of veterinary services, establish 
animal disease surveillance programmes, stre ngthen quarantine and border inspection, etc.   
6. Limited information is available about the domes tic food safety situation, incidences of food 
borne diseases, etc. but there seems to be room for improvement in the safety and quality of food 
products sold on the local market.  Reportedly, the Rwanda Bureau of Standa rds (RBS) is responsible 
for inspection of agricultural products entering and leaving the country and for inspection and 
certification of food handling premises, in collaborati on with the Ministry of Health.  Rwanda's food 
testing laboratory is currently bein g upgraded.  Reportedly, detecti on of mycotoxins in cassava flour 
exports have posed problems in the past.   
7. The DTIS includes several recommendations to  enhance Rwanda's standards management 
system to promote exports of food and agri cultural products such as the introduction of good 
practices, food safety and quality management systems into farming and other activities of the 
production cycle, the establishment of conformity  assessment mechanisms, and the development of 
certification capacity.  Regional cooperation must be sought in standard-setting, conformity 
assessment and laboratory services and the accreditati on system.  A national notification authority and 
enquiry point should be nominated to comply with WTO obligations under the SPS Agreement - 
coupled with the creation of an information servi ce for Rwandan exporters.  Rwanda is about to 
become a party to the IPPC.  Support is needed to  enhance Rwanda's capacity to participate more 
actively in the international standard-setting process (Codex, OIE and,  shortly, IPPC).  
8. There is interest among key stakeholders to adopt an integrated "biosecurity" approach 
towards "SPS sensitive" trade - including envir onmental and GMO issues - through a coordinated 
multi-agency approach.  To this end, it was rece ntly proposed and agreed in a multi-stakeholder 
workshop (November 2007) to expand the terms of  reference of a proposed national SPS Committee 
to include biosecurity.  The new body would be involved in the revision of biosecurity-related 
legislation and the drafting of memoranda of understanding on topics such as border inspection 
(pooling of resources), national surveillance systems, laboratories, etc.  
B. OVERVIEW OF SPS-R ELATED TECHNICAL COOPERATION  
9. Following validation of the DTIS in 2005, activiti es have been initiated by donors to address 
several needs formulated in the Action Matrix.  Fo r instance, funding from the EC (totalling €1.9m) is 
currently being used to develop and build an expo rt-related standards architecture.  According to 
information from the IF Focal Point in Rwanda, this includes inter alia  support to RBS, development 
of SPS/TBT enquiry points linked to an informati on service for producers and exporters, and training 
and technical assistance to farmers/producers on GAP and HACCP.   
                                                      
6 The DTIS refers to an example of a shipment of  artisan drums rejected by US authorities because raw 
cattle hide had been used as drum skin.  As a consequence of an SPS measure designed to protect against cattle 
diseases, the import was prevented and the drums destroyed.   G/SPS/GEN/900 
 Page 53 
 
 
  10. The Netherlands has supported the development of cold storage facilities at the airport in 
Kigali, a necessary element in the development of horticultural exports.   
11. The Rwanda Horticulture Export Standards Initiative with support from STDF (RHESI, 2007-
09, total value US$530,000) aims to foster horticu ltural exports through good practice promotion, 
regulatory reform, training, and information and da tabase development in the plant health area.  
12. World Bank support to Rwa nda is concentrated inter alia  on agriculture, forestry and fisheries 
as well as industry and trade.  In June 2008, th e World Bank approved a US$35m financing grant for 
the Rwanda Second Rural Sector Support Project  (RSSP2).  One component of RSSP2 will support 
the commercialization of smallholder agriculture  in targeted marshland and hillside areas by 
intensifying production, promoting agricultural valu e addition, and expanding access to markets.   
13. FAO support in the SPS area is mainly relate d to the control of avian influenza and 
strengthening of Rwanda's veterinary services.  Possible assistance to Rwanda's National Codex 
Committee is currently being discussed.  
14.  Rwanda's National Indicative Pr ogramme for support under the 10th EDF indicates that 
€290m will be disbursed over the next five years, with approximately 60  % to be allocated in the form 
of general budget support. Focal areas are rural and infrastructure development.  About €6m of the 
amount is allocated for support to trade, regiona l integration and private sector development - 
including implementation of the DTIS.  In add ition, Rwanda is part of the 10th EDF Regional 
Indicative Programme.   
15. Rwanda benefits from a number of programmes and initiatives at regional level.  Generally, 
however, it is difficult to identify country-specific a llocations and/or allocations to SPS issues within 
these programmes.  At EAC level, UNIDO implemen ts a project funded by Norway (2008-11, total 
value US$5.3m) aiming to enhance trade capacity building in agro-industry products for the 
establishment and proof of compliance with intern ational market requirements.  Reportedly, the 
project will support development of th e Rwandan food control system.   
16. The German metrology institute (PTB, 2007-10 ) supports the establishment of regional 
quality infrastructure in the EAC region (mutual r ecognition of conformity assessment procedures, 
accreditation etc.).   
17. At regional level, STDF supports the creation of  a Centre of Phytosanitary Excellence in 
Eastern Africa (COPE, 2008-10, total value US $800,000, implemented by CABI/KEPHIS with 
support from US/Netherlands), i.e. a model regional training centre on phytosanitary issues – including creation of a regional pest risk analysis (PRA) unit. 
18. At COMESA level, the EC-funded Regional In tegration Support Programme (RISP, 2005-12, 
total value €30m) includes a component of capac ity building to develop standards and meet 
international SPS requirements.  The Agricultura l Marketing Promotion a nd Regional Integration 
Project (AMPRIP, implementation period and total value not known) supported by the AfDB focuses 
on capacity building, establishment of regional refe rence laboratories, institution of an SPS legal 
framework and establishment of a regional technical sub-committee on SPS measures.  
19.  Worth mentioning is also upcoming support for small-scale coffee, dairy and cassava farmers 
in East Africa by the Bill and Melinda Gates Founda tion.  The total regional value of these projects is 
reported to be approximately US$123m. 
20. USAID has provided support to the Eastern a nd Southern Africa region under its Regional 
Agriculture Trade Expansion Support programme  (RATES, 2004-08, total value US$26m).  Among G/SPS/GEN/900 
Page 54  
 
  the deliverables are regional dairy and maize standa rds adopted by key countries involved in 80 % of 
the regional trade and a COMESA dairy SPS protoc ol adopted by at least five dairy producing 
countries by September 2008.  USAID/USDA also provide support to key SPS policy objectives under the African Global Competitiveness Initiative ( AGCI, 2006-11, total value US$11.5m) with the 
objective to build capacity of African countries to export plant, horticultural, and animal products 
internationally.  Assistance is  primarily implemented through USAI D's regional trade hubs, including 
the East and Central African Trade Hub in Nairobi, Kenya.   
21. At ACP level, various projects funded by the EC include major SPS components.  The 
Programme Initiatives Pesticides (PIP-COLEACP, 2003-08,  total value €29.1m) aims to enable ACP 
companies to comply with European food safety and traceability requirement s and includes in-depth 
analysis of the impact for ACP countries of the new European SPS regulations on official feed and 
food controls.  A second phase of PIP is being c onsidered.  The EC programme "Trade.com" (2004-
09, total value €50m) focuses inter alia  on implementation of WTO Agre ements and preparation of 
pilot projects with special attention to SPS/TBT issues.  The Support Programme to Integrated 
National Action Plans for Avian and Human Infl uenza (SPINAP-AHI, 2007-10, total value €22.5m, 
implemented by AU-IBAR)  aims to strengthen cap acity for early detection and rapid response to 
AHI.   
22. Forthcoming ACP-wide programmes include Partic ipation of African Nations in Sanitary and 
Phytosanitary Standard Setting Organiza tions (PAN-SPSO, 2008-10, total value €3.85m, 
implemented by AU-IBAR and AU-IAPSC) aiming to enhance effective participation of African 
countries in the activities of Codex, OIE and IPPC ). The programme Strengthening Food Safety 
Systems Through Sanitary and Phytosanitary ( SPS) Measures (2008-2012, estimated value US$32m) 
will aim to establish risk-based food and feed safet y systems for export products in ACP countries in 
line with regional, international and EU standards. 
23. Reportedly, the EC, FAO, ITC, UNCTAD and th e World Bank are currently considering an 
African-wide support programme on agricultural comm odities (including cotton).  The aim would be 
to strengthen capacities to devel op and implement sustainable commodity strategies that improve 
farmers' productivity and their rural livelihoods  and reduce income vulnerability (including inter alia  
elaborating strategies covering critical parts of th e commodities chain; supporting diversification; 
helping integrate commodities dependent countries in the international trading system). Total 
estimated value is US$54m.  Finally, the World Ba nk is planning to establish an Africa-wide Multi-
Donor Trust Fund (MDTF) for Trade and Developmen t. Pilot activities will take place in Madagascar, 
Tanzania and Senegal.  
C. STDF
 ACTIVITIES IN RWANDA  
24. The STDF is currently funding the Rwanda Ho rticulture Export Standards Initiative (RHESI) 
which aims at increasing Rwanda’s exports of fru it, vegetables and flower s in international and 
regional markets. This project resulted from a project preparation grant funded by the STDF.  G/SPS/GEN/900 
 Page 55 
 
 
  ANNEX VII:  SENEGAL 
 
A. OVERVIEW OF SPS  SITUATION  
1. The SPS system in Senegal has been subject to  various evaluations as part of technical 
cooperation projects such as the FAO/UEMOA project (PSRSA) or TCP/FAO/SEN/2907 (2003-
2004) which aimed at controlling pesticides residu es in export oriented fruits and vegetables.  
2. An evaluation of veterinary services has been  conducted using the PVS tool. Likewise, the 
phytosanitary system has been assessed using th e PCE tool. Reports of these evaluations are not 
available. The DTIS study for Senegal was validat ed in 2003. Limited attention was given to SPS 
constraint in the evaluation of agricultural expor t performance although quality and standards issues 
were recognized as major axis of intervention to enha nce agricultural productivity and export output.  
3. Although agriculture contributes less than 20% to GDP, it employs over 60% of the labour 
force and represents the main income source for th e majority of rural households.  The sector faces 
outstanding problems such unavailability of inpu t and lack of access to rural credit to finance 
production cycle; overuse and deterioration of  land; non-availability of good-quality seeds in 
sufficient quantity (especially apparent in th e groundnut segment); obsolescence of  farming 
equipment; urban drift and the resultant aging of farm operators, notably in the groundnut basin; 
inadequate freight capacity for horticultural prod ucts; insufficiency and poor quality of growers’ 
roads, and lack of infrastructures for storage and processing.  
4. Over one third of the value-added from Senegal ese agriculture is attributed to livestock both 
for subsistence and commercial purposes.  Senegal' s Second Poverty Reduction Strategy Paper (PRSP 
II), covering 2006-10 recognizes the importance of a ddressing issues behind low productivity of cattle 
and outlines strategic axes to overcome the obs tacles to livestock development identified:  
• animal feed insecurity resulting from the extens ive method of cattle raising based on natural 
pastures subject to the variations of rainfall, brush fires, and encroachment of farming;  
• the threat of emerging and re-emerging transboundary animal diseases; 
• under-equipped producers lacking technical sophistication;  
• rudimentary guidance and training of livestock producers;  
• the existence of numerous intermediaries in th e animal marketing system, resulting in higher 
prices for meat;  
• lack of reliable statistics on livestock raising;  
• absence of an adequate industrial fabric for processing animal products;  
• absence of land security for stock raising activities;  and 
• inadequate energy available for preservi ng and processing stock raising products. OIE's 
Animal Health Information Database reports  the presence of several animal diseases in 
Senegal. These include African Swine Fever, African horse sickness, Foot and Mouth Disease, Anthrax, blackleg, Lumpy skin disease,  Newcastle disease, Rabies, Trypanosomosis, 
Peste des Petits Ruminants, Haemorrhagic septicaemia etc. 
 
5. The main crops are groundnuts, drought-tolerant staples such as sorghum, millet and cassava, 
and other cereals such as rice and maize. Production of industrial crops is limited to sugarcase. SPS 
problems limit groundnut exports as cake for livestoc k.  Fruits and vegetables are produces for local 
consumption with a small share destined for expor t . Senegal's fruit production is estimated at around G/SPS/GEN/900 
Page 56  
 
  120,000 tons.  The main fruits produced in Senega l are banana, mango, papaya, citrus (orange, 
clementine, lemon, grapefruit), avocado, water mel on, melon and pineapple. Melon exports increased 
50% between 2000 and 2006 from 500 tons to over 760 to ns. 88% of melon exports are destined to 
France and Spain, representing respectively  56% and 32% of exports. Several important fruit flies of  
cucurbits occur in Senegal including Bactocera cucurbitae , Dacus vertebratus , Dacus bivittatus, 
Dacus ciliatus. In 2006, national estimated average loss in fruit productions due to fruit flies attack 
was estimated to 60%, the loss reached 80% in some regions such as in Casamance, considered as the 
food basket of Senegal. 
6. Mango production and export in Se negal is threatened mainly by one specie of fruit fly 
Bactocera invadens . The main recipient of Senegalese ma ngoes is Benelux with  55% of export, 
followed by the United Kingdom (29%) and by France (11%). Mango export progressed from 1600 
tons to over 7000 tons per year between 2002 to 2006 . Operators remain convinced that losses due to 
the fruit fly have prevented them from reaching the 10,0 00 tons objective that they have fixed for the  
2006 campaign. Losses due B. invadens  in the Niayes zone, which produces over 60% of mangoes 
exported from Senegal have been estimated be tween 20 and 60%. Losses in two other main 
production zones of mango are typically higher due to the type of orchards, they average between 50 
and 85 %, and in extreme cases reaching 100% in th e Petite Côte and Bas Saloum region and they 
range between 50 and 75% in the Casamance region. According to the data r ecorded by the European 
Commission’s Food and Veterinary Office (data at end of 2008), 6 and 15 phytosanitary interceptions of mango consignments were made in the EU in 2006 and 2007, respectively. Most of the seizures 
were made in France. 
7. Senegal's agricultural exports are dominated by  groundnut oil and cake, the latter used for 
animal feed. Other relatively significant agricu ltural exports are fresh fruit and vegetables export 
(which grew 41% in volume terms between 1998 a nd 2001), hides and skins, cotton, and tobacco 
products. The growth in fresh fruit and vegetable e xport is largely attributable to the momentum 
generated by the Agricultural Export Promotion Pr oject (AEPP) of the World Bank (1997-2004, US$ 
8 million) and to the subsequent renewed interest by  several international co mpanies in investing in 
aspects of the Senegalese supply chain.  
8. To sustain increases in crop export and enhan ce incomes throughout the export supply chain, 
Senegal will need to overcome a number of constr aints and begin to broaden market destinations 
beyond the current focus on the French and Belgian mark ets. Challenges that need  to be dealt with in 
such a strategy include: (i) alleviating infrastruct ure bottlenecks and developing the export cold chain; 
(ii) improving quality and meeting product and process standards in importing countries; (iii) 
diversifying the areas of production; and (iv) improving managerial capabilities within the sector and specialized business support services.  
9. To improve the quality of export produce, the DTIS  identified the need to  put in place 
systems for total quality management which will embrace the application of ‘good agricultural 
practices’ (GAP), the development of sound record -keeping systems (to facilitate traceability), the 
implementation of Hazard Analysis Critical Cont rol Point (HACCP) principles throughout the supply 
chain, strict adherence to pesticide-related regul ations, and dedicated quality control arrangements for 
different products. Establishing a th ird party certification system is also necessary to help companies 
benefit from upgrading their quality assurances systems.  
10. Further assistance is needed to overcome SPS issues such as fruit flies and fungi and to 
reduce misuse of pesticides by producers. 
11. 
The fisheries sector has long been a promisi ng economic growth engi ne for Senegal. It 
contributed up to 11% of the GDP in 2005.  However, the sector is facing challenges from the depletion of fisheries resources due to over-fishing. Total fish production was estimated at  405,265  G/SPS/GEN/900 
 Page 57 
 
 
  metric tons in 2005. Fish and fish products co nstitute the largest export category in Senegal, 
contributing to an average of around 37 percent of total exports between 1996-2000.  Total seafood 
export value reached US$251m  in 2005.   
12. Frozen fish makes up by far the largest component  of fish exports, followed by fresh fish and 
processed fish. Artisan fishermen are responsible for 90% of Senegal’s harvest, especially small 
pelagics and sardines.  
13. Concerning sanitary conditions of fishery prod ucts, the last mission of the FVO of the EC 
undertaken in April 2007 has noted the persistence of shortcoming related to compliance with EU 
regulation and hygiene. Issues noted concern inad equate storage temperature for fresh product in 
artisanal boats, landing sites and ice factories. Needs related to lack of staff training of the Competent 
Authority and absence of accredited labo ratory for analyses were highlighted. 
B. OVERVIEW OF SPS-R ELATED TECHNICAL COOPERATION  
14. According to Senegal's Triennial Public Inv estment Programme (PTIP) for the period 2007-
09, donors were supporting 75 ongoing projects in agro-based private sector development in 2007. 
Including aid for basic economic infrastructure devel opment, donor support to this  area is estimated at 
US$332m (on commitment basis).  At enterpri se/farm level, assistance reached US$4m (on 
commitment basis).  Other support to agricultural production, processing  and marketing is valued at 
US$27.3m. 
15. The main on-going SPS related project (US$60m) is the Agricultural Markets and 
Agribusiness Development Program (2006-11). The programme aims to increase non-traditional 
agricultural exports and farm revenues for project pro ducers. It is composed of four components, two 
of which have an SPS focus:  improving food safety and the performance of the domestic distribution 
channels for crop and livestock pr oducts and expanding non-traditi onal agricultural exports (i.e., 
horticultural products, confectionary nuts, essentia l oils and spices, and processed foodstuffs) by 
leveraging the results achieved under the pilot AEPP mainly in terms of quality management  
16. Senegal is benefiting from va rious multi-country projects and mainly those aiming at 
prevention, preparedness and control of HPAI programmes in Africa implemented mainly by FAO 
(see Annex I above).  
17. At a regional level, Senegal is one of the beneficiaries of the UEMOA Quality phase II 
programme (2007-2010, total value US$599,000).  FA O's field school programme on Integrated Pest 
Management for Africa covers also Senegal (2006-2010 , total value of US$ 9.5m).  At ACP level, 
Senegal was one of the target countries of the EC funded COLEACP-PIP project (see Annex IV 
above).,  
18. Senegal is also benefiting from projects wh ich do not have SPS as main objective but which 
may include SPS related activities as part of valu e chain support or export promotion oriented 
assistance such as Senegal Accelerated Growth a nd Increased Competitiveness (SAGIC)  funded by 
USAID (2005-2010, total value of US$0.5m). The project seeks to support the Government of 
Senegal and help stimulate accelerated growth, competitiveness and trade. The project comprises 
activities focusing on expanding the value chain for a variety of products produced in Senegal, 
including cashew nuts, mangos, bissap syrup, fonio (a local grain), fish, textiles, milk products and horticulture.  
19. Another value chain support project is the IF  funded project on peach export development and 
the AfDB funded Promotion d’une Agriculture Compé titive et Durable (PACD, total value of €3.5m).  G/SPS/GEN/900 
Page 58  
 
  20. Larger rural development and poverty a lleviation programmes possibly containing SPS 
related activities include Agricultural Services and Producers Organizations (PSAOP2), total value of 
US$47m, and the World Bank funded West Afri ca Agricultural Productivity Program (WAAPP) 
Support Project (2007-2011, total value of US$51m).  
C. STDF
 ACTIVITIES IN SENEGAL  
21. At a regional level Senegal is also one of the beneficiary countries of the STDF funded 
project on fisheries (2008-2010, total value US$469,000), under implementation by FAO.  
  G/SPS/GEN/900 
 Page 59 
 
 
  ANNEX VIII:  YEMEN 
 
A. OVERVIEW OF SPS  SITUATION  
1. Yemen's oil reserves currently provide most of  its export income.  As these reserves are 
gradually exhausted, the government 's economic strategy is focused on promoting development of the 
non-oil sector including services, tourism, agriculture a nd fisheries.  Agriculture remains the mainstay 
of the domestic economy, accounting for approxima tely 13% of GDP, employing about half of 
Yemen's population and sustaining the livelihood of two-thirds.  Crops include inter alia  sorghum, 
cotton, tobacco, millet, coffee, maize, pulses and qat.7  Exports are modest, with less than 2% of 
agricultural output exported, mainly coffee, and fruit and vegetables.  Examples include dates, melon, 
grapes, papaya and bananas.  Honey is mentioned as a promising sector.  The main features of 
agriculture are low productivity and high post- harvest losses. The main causes are harvesting 
techniques, rough handling and poor packaging and weaknesses in tran sport networks.  Water is a 
core issue in agricultural production, utilizing a pproximately 90% of the total water resources 
available in the country. 
2. The main markets for coffee and fruit and vegetables from Yemen are the Middle East 
(notably Saudi Arabia) and countries in Asia.  No information is available on SPS-specific constraints 
hindering access to these markets.  With regard to other developed country markets, notably the EU, 
the US, and Japan, Yemen's DTIS  (validated in 2003) acknowle dges difficulties in meeting SPS 
requirements.  Diversification of exports and ma rkets, however, requires building the country's SPS 
management capacities and addressing the weaknesse s that undermine the safety and quality of 
Yemeni fruit and vegetable exports, including cap acity to address plant pests and diseases.  
Awareness, recognition and application of basic good practices for hygiene and safety among farmers 
and industry will be key in provi ding the foundation for a strong standards system.  This requires 
targeted training on internationally recognized sy stems, such as Good Agricultural Practice (GAP) 
and Hazard Analysis Critical Control Point (HACCP),  which, in turn, would also reduce post-harvest 
losses.  
3. Fisheries is a major source of employment and nutrition and plays an important role in 
alleviating poverty.  It is estimated that some  400,000 people earn their livelihoods from fishing or 
fish related activities.  Aquaculture is still in its infancy, with no operations of significant commercial 
scale.  Reportedly, the Government ceased industrial fishing activities in 2003.  This implies that the 
country no longer loses the industrial catch that left the country with few on-shore benefits, but also 
resulted in lost public income from industrial license  fee payments.  Two con cerns counterbalance the 
overall bright economic picture of the sector.  Fishin g pressure has continued to grow rapidly, notably 
on some high value fish stocks.  There is a need to strengthening fisheries resource management in 
terms of research, stock assessme nt, etc.  In addition, the performance of public institutions, 
responsible for sector and resource management, qualit y control, monitoring control and surveillance, 
statistics and public infrastructure has lagged fa r behind the changing requirements of the sector. 
4. Improving safety and quality standards is essentia l to maintain access to the EU as well as 
important Gulf and Asian markets. Since 2001, several  notifications with regard to fishery products 
imported from Yemen were received from the Rapid Alert System for Food and Feed (RASFF).  Two 
missions carried out by the European Commission' s Food and Veterinary Office (FVO) in 2004 and 
2006 respectively, revealed deficiencies in the fi sheries control system varying from the lack of 
consistent and reliable official c ontrols (histamine, heavy metals) to concerns over establishments and 
laboratories.  Improving fisheries infrastructure (fish landing sites, auction areas, transport) and improving fish quality (handling procedures on-board and at landing sites, availability of ice, etc.) are 
                                                     
 
7 The DTIS estimates qat production to make up around 44% of the total value of agriculture 
production. G/SPS/GEN/900 
Page 60  
 
  key elements in establishing a quality control system consistent with internat ional standards.  A new 
fisheries law was adopted in 2006, defining the responsibilities of the competent authority (Ministry of Fish Wealth) with regard to inspection and co ntrol of establishments, auctions, vessels etc. for 
export.  The new law also includes a chapter on aquaculture. A follow-up FVO mission is planned for 
early 2009. 
5. Livestock is estimated to contribute about 20% of agricultural GDP and mainly constitutes of 
goats (8 million units), sheep (8.1 million units), ca ttle (1.4 million units), with camels accounting for 
a further 360,000 units.  Systems vary from traditiona l pastoralist to agro-pastoral systems and, more 
recently, small-scale intensive animal production units.  Yemen's animal health status is of primary 
concern.  Information on OIE's website reveals the presence of various endemic OIE notifiable 
diseases in the country, which limits the scope to increase farmers' incomes as well as access to 
regional markets.  Diseases include Rinderpest, Foot and Mouth Disease, Rift Valley Fever and Sheep Pox.  Since 2000, Saudi Arabia has imposed a ban on much of the animal imports from Yemen. Awareness is high among farmers about the need for animal health care due to losses from diseases.  
Other constraints in lives tock production relate to inter alia  lack of high quality animal feed, 
inefficient production, etc.  Although no information is available, potential shortcomings may exist in 
sanitary controls at slaughterhouses, handling and pro cessing facilities for meat and dairy products.  It 
is recommended that the results of the OIE PVS tool  be used to design actions to strengthen the 
performance of veterinary services, establish an imal disease surveillance programmes, strengthen 
quarantine and border inspection, etc. 
6. Yemen is dependent on food imports to meet a substantial share of domestic food needs, 
especially cereals, sugar and dairy products.  An in creasing amount of food, however, is manufactured 
in Yemen, contributing to a growing food processing industry, mainly oils, dairy products, fruit juices, 
beverages and flour.  The food control system in  Yemen faces a number of challenges. A clearly 
articulated policy on food control is lacking a nd responsibilities for food control are fragmented 
across various agencies.  There is no coordination mechanism between them.  Records of food-borne 
diseases do not exist and legislation is incomplete and weakly enforced.  The overall training level of 
food inspectors is inadequate.  Field testing of fo od consignments is limited to sensory examination 
and the collection of samples for further testing.  An alysis is performed in laboratories that belong to 
different government agencies with inadequate infr astructure and equipment.  Laboratory staff have 
insufficient skills and experience to adequately ad dress food testing requirements, particularly with 
regard to food additives and contaminants.   
7. The weak capacity of the food control system in Yemen negatively affects public health and 
also hinders opportunities to promote economic de velopment through trade in agricultural products. 
FAO has recommended the creation of a National Food Safety Council to implement and coordinate a 
thorough "farm to fork" approach.    
8. The Yemen Standards, Metrology and Qua lity Control Organization (YSMQCO) is 
responsible for formulating technical regulati ons and standards of products and processes and 
enforcing conformity of importers, exporters and ma nufacturers with these regulations and standards. 
A draft UNIDO report on the food sector (March 2002) recommended that the organization's 
enforcement functions be separated from its sta ndard formulation function to avoid conflicts of 
interest and the capacity of YSMQCO be strengthe ned with a view to certify Yemeni exporters and 
laboratories to meet international standards.  
9.  Yemen has been  an observer member of th e WTO since 2000 and in the process of bringing 
its legislation in conformity with WTO require ments, including the SPS Agreement.  Support is 
needed to enhance Yemen's capacity  to participate more actively in the international standard-setting 
process (Codex, OIE, IPPC).  G/SPS/GEN/900 
 Page 61 
 
 
  B. OVERVIEW OF SPS-R ELATED TECHNICAL COOPERATION  
10. A search in the TCBDB on previous SPS-relate d projects and activities in Yemen results in 
only three entries, totalling US$543,000, mainly co ncerning small FAO interventions in the animal 
and plant health area.  Other - unreported - FAO activities in Yemen relate to development of a 
Fisheries Information System (2007-08, total value US$201,000) and regional assistance on the 
control and prevention of avian influenza.  Alt hough not many donors in Yemen are active in areas 
such as agriculture and fisheries, the figures in  the TCBDB do not reflect the actual status of SPS-
related technical cooperation.     
11. The fisheries sector has received most donor attention. The World Bank/EC funded Fisheries 
Resource Management and Conservation Project ( 2006-11, total value US$25m) addresses many of 
the outstanding needs related to safety and quality, notably in the public sector.  The project supports 
artisan fishermen through improved fish landing and au ction facilities and ice plants for improved fish 
preservation. The project also helps the Ministry of Fish Wealth in undertaking more effective 
research, resource management planning and fi sh landing regulation activities for sustainable 
management and conservation of fisheries resource s.  The project subsumed most activities of a 
previous pilot project in the fisheries sector developed by UNIDO in 2002.  
12.  The World Bank/EC project is complemented by an STDF funded project monitored by ITC 
(2007-09, total value US$463,000) to assist the Yemeni Seafood Exporters Association (YSEA) to 
develop capacity among its members to better meet the SPS requirements of their trading partners. 
13. Since 2004, three small IF Window II projects ha ve been launched.  One project (2005-06, 
total value US$350,000) aimed at upgrading the fisher ies laboratory in Hodeidah through provision of 
equipment, technical assistance and training to labor atory staff and fishing communities.  Another IF 
project looked at promotion of fruit and vegetabl e exports.  In 2007, USAID signed an agreement 
with Yemen’s Ministry of Agriculture to assist in improving the marketing and trade capacity of farming associations and cooperatives, with a focus on increasing exports of agricultural goods and, in 
turn, raising the income of agricultural commun ities.  The World Bank's Rainfed Agriculture and 
Livestock project (2006-12, total value US$33.8m) supports farmers in seed and livestock husbandry 
improvement and management.  The project also  supports the General Directorate for Animal 
Resources in improving livestock owners’ access to  quality services to enhance the health and 
productivity of their animals. 
14. According to its Strategy Paper (2007-13) for Ye men, the EC will target the agriculture/food 
processing and fisheries sectors, amongst others, no tably through private sect or development.  The 
paper specifically mentions that support in both sectors should cover aspects to facilitate trade, in 
particular quality control and SPS standards.  Market  opportunities in the Gulf countries and in the EU 
could expand, should Yemen succeed in guaranteeing st able flows of products and improving safety 
and quality standards. At the same time, the impact  of agriculture development on the environment, 
notably the scarce water resources, should be carefully assessed.     
C. STDF
 ACTIVITIES IN YEMEN  
15. The STDF is currently providing assistance to Yemeni Seafood Exporters Association 
(YSEA) to improve quality and safety of Yemeni seafood products. The project was developed from 
an STDF project preparation grant and b ased on recommendations of the DTIS.   G/SPS/GEN/900 
Page 62  
 
  ANNEX IX:  OVERVIEW OFCAPACITY EVALUATION TOOLS 
 
1. The overview of SPS needs in the eight LDCs surv eyed is primarily based on a survey of their 
Diagnostic Trade Integration Studies (DTIS) prepared  under the Integrated Framework (IF).  Some of 
the more recent studies, as will be seen below, cl early recognize the country's standard regime, 
including SPS measures, as having an important impact on 
the country's integration into the world 
economy and identify SPS capacity among the factors affect ing the country’s performance in 
agricultural trade, notably with regard to certain products.  In other studies, notably the ones prepared 
in the early days of the IF, SPS issues feature less prominently.   
2. The DTIS is an example of a needs assessment  that may treat (certain aspects of) SPS in a 
more general - trade capacity building - setting.  However, compliance with food safety, animal 
and/or plant health measures is a highly technical area and specialized organizations involved in SPS 
capacity building have developed specific evaluation tools.  A general overview of the various tools 
available is provided below.  They can be categor ized  into sector-specific tools (looking exclusively 
at a particular thematic area within SPS), cross-cu tting tools (looking at the SPS system as a whole) 
and related approaches (treating one aspect of SPS in  a more general setting, such as the DTIS).  
Sector-specific tools  
 3. The World Organization for Animal Health (OIE ) has developed a Perfo rmance of Veterinary 
Services (PVS) Tool  to help veterinary services establish thei r level of performance, identify gaps and 
weaknesses, and establish priorities for strategic initiatives to improve performance in key areas.  
Evaluations are conducted at the request of an OI E member.  The OIE does not publish or distribute 
the findings of evaluations without formal author ization from the member.  Currently, the OIE is 
considering expanding the PVS Tool to provide a similar framework for evaluating aquatic animal 
health services.  The PVS Tool has been a pplied in seven of the eight LDCs surveyed. 
4. The Food and Agriculture Organization of the United Nations (FAO), in collaboration with 
the World Health Organization (WHO), has deve loped a "Quick Guide" and complementary 
Guidelines to Assess Capacity Buil ding Needs in National Food C ontrol Systems.  The tools are 
targeted at officials in national authorities who are responsible for various aspects of food control 
systems at policy and/or operational level, as well as external organizations and consultants involved 
in food safety capacity building activities.  The Qu ick Guide and Guidelines can be applied as a self 
assessment tool and/or with the support of an external  facilitator.  The tools have been applied in three 
of the eight LDCs surveyed.   
5. The Phytosanitary Capacity Evaluation (PCE) Tool of the International Plant Protection 
Convention (IPPC) Secretariat examines the capacity  of National Plant Protection Organizations in 
relation to implementation of inte rnational standards and the rights  and responsibilities described in 
the IPPC.  Although the PCE was designed as a "sel f-assessment" exercise, in practice, however, an 
external consultant usually facilita tes application of the PCE.  The findings are not publicly released 
unless a country wishes to use or present their PCE resu lts externally.  The PCE Tool has been applied 
in six of the eight LDCs surveyed. 
Cross-cutting tools
 
 6. Biosecurity is defined as a strategic and integrat ed approach to analyze and manage relevant 
risks to human, animal and plant life and health and associated risks to th e environment.  The FAO 
Guide to Assess Biosecurity Capacity offers an in ter-disciplinary approach for assessing dimensions 
of biosecurity capacity.  It is built on the recogn ition of the critical linkages between sectors and the 
potential for hazards to move across sectors,  potentially with far-reaching cross-sectoral 
consequences.  It aims to support countries in  developing and implementing national biosecurity  G/SPS/GEN/900 
 Page 63 
 
 
  frameworks, in accordance with thei r international obligations and pa rticular needs.  The Guide may 
be used as a self-assessment tool or applied by an ex ternal consultant.  The tool has been applied in 
two of the eight LDCs surveyed. 
7. The World Bank is involved in the preparation of  national and regional st rategies to build SPS 
capacity.  National and regional Agricultural Hea lth and Food Safety action plans have been 
developed for a selected group of countries.  The ac tion plans provide a compre hensive approach that 
considers SPS capacity in both public and private sectors, recognizing the cross-cutting nature and 
different institutions involved in SPS management.  Typically, the plans summarize goals, strategic 
priorities, performance indicators and recommended actions including information on responsibilities, 
timeframes and current and expected  donor support.  The World Bank h as developed an action plan in 
one of the eight countries surveyed (Lao PDR).   
Related approaches  
 8. The United Nations Industrial Development Organization (UNIDO) uses a multifaceted 
approach to make SPS and TBT compliance measures effective in developing countries.  Since 2004, 
UNIDO has been building up a comp etitiveness analysis programme to  help countries identify sectors 
and products with competitive potential and supply-dr iven obstacles affecting their export growth.  
For this purpose, UNIDO has developed a Trade and Industry Competitiveness Analysis tool 
comprising several services/products.  UNIDO has also developed a methodology for enterprise-level 
surveys on "Trade-Related Challenges Faced by  Exporters" aimed to qualify and quantify the 
problems faced by exporters in developing countri es in regional and international trade.  UNIDO has 
used its approach in two of the eight LDCs surveyed. 
9. Under the Convention on Biological Diversity  (CBD) and its Cartagena Protocol on 
Biosafety, a National Capacity Self Assessment Tool  has been developed to help developing countries 
examine their global environmental commitments in an holistic and integrated fashion.  Since 2002, 
over 150 countries have engaged in this process a nd at least 68 countries are reported to have 
completed the assessment of their needs and priorities using this Tool.  The Tool has been applied in 
two of the eight LDCs surveyed. 
10. Finally, national trade policies of WTO Members are periodically reviewed through the Trade 
Policy Review Mechanism, the frequency of each c ountry’s review varying according to its share of 
world trade.  Reviews are conducted by the Trad e Policy Review Body on the basis of a policy 
statement by the Member under review and a report pr epared by economists in the WTO Secretariat.  
Each report consists of detailed chapters examin ing the trade policies and practices of the Member 
and describing trade policymaking institutions a nd the macroeconomic situation.  Trade Policy 
Reviews (TPRs) have been conducted in  five of the eight LDCs surveyed. G/SPS/GEN/900 
Page 64  
 
  ANNEX X:  REFERENCES 
 
Brattinga, P. (2007). Overview of SPS related assistance for Kenya, Tanzania and Uganda (2001-
2006).  Report presented on 30 September 2007 at Aid for Trade workshop Dar es Salaam, Tanzania. 
 
Bigot, Y. (2005) PCT/BEN/ 2904 (A)  Etude hygiène alimentaire. Appui à la mise en place d’une 
stratégie nationale de réduction de l’impact de la  pollution urbaine sur la sécurité alimentaire.  FAO  
 Carlson, C. and Clark, R. (2007). Trip Report: Sanitary and Phytosanitary Survey . United States 
Agency for International Developm ent  / Southern Africa, Gaborone. 
 
Cassidy, D. (2007). Assessment of Biosecurity and Phytosanitary Capacity in Rwanda .  Rwanda 
Horticulture Exports Standards Initiative, Kigali.  Cassidy, D (2008). Economic analysis of patterns in Mozambican SPS sensitive trade . United States 
Department for Agriculture / Southern Africa. 
 COLEACP/CIRAD (2008). Fighting Fruit and Vegetable Flies Regionally in Western Africa. 
Information Letter N°3, August 2008.  Economist Intelligence Unit. (2008). Country Profiles of  Benin, Cambodia, Lao PDR, Lesotho, 
Mozambique, Rwanda, Senegal and Yemen . The Economist, Economist Intelligence Unit. 
 European Commission (2004). Final report of a mission carried out in Yemen  from 25 November to 6 
December 2004 assessing the public health cond itions  of production of fishery products  intended for 
export to the European Union. Food and Veterinary Office, Dublin. 
 
 European Commission (2005) Final report of a mission carried out in Cambodia from 19 to 30 
September 2005 for the assessment of the conditions of  production of fishery pr oducts intended to be 
exported to the European Union. Food and Veterinary Office, Dublin. 
 European Commission (2006). Final report of a follow-up mission carried out in Yemen  from 18 to 
27 February  2006 assessing the public health conditions  of production of fishery products  intended 
for export to the European Union. Food and Veterinary Office, Dublin. 
 European Commission (2006). Final report of a mission carried out in Mozambique  from 27 March 
to 6 April 2006  in order to assess the public hea lth controls and the cond itions of production of 
fishery products . Food and Veterinary Office, Dublin. 
 European Commission (2007). Final report of a mission carried out in Mozambique from 6 to 16 
November 2007  in order to evaluate the control systems in place governing the production of fishery 
and aquaculture products intended for expor t to the European Union (follow up) . Food and 
Veterinary Office, Dublin. 
 
European Commission (2007). Rapport d'une mission réalisée au Sénégal du 17 au 27 avril 2007  
afin d'évaluer les conditions de production et d'ex portation des produits de la pêche vers l'Union 
Européenne. DG (SANCO)/2007-7511.  Food and Veterinary Office, Dublin. 
 
FAO. Country Profiles and Mapping Information System  (http://www.fao.org/
) 
 
FAO (2005). Food Control System in Yemen: A situati on analysis study and suggested restructuring 
of the system (TCP/YEM/3003) . FAO, Rome. 
  G/SPS/GEN/900 
 Page 65 
 
 
  Gavard, P. (2007) La problématique des laborat oire au Bénin.  Rapport de mission PASP 
 Gavard, P. (2007) Maintenance dans l es laboratoires.  Rapport de mission PASP 
 Henson, S. (2007). Review of Case Studies and Evaluations of Sanitary and Phytosanitary Capacity: 
Kenya, Tanzania and Uganda . Report presented at an STDF Aid for Trade workshop on 30 
September 2007 in Dar es Salaam, Tanzania.  Integrated Framework (2003). Yemen Diagnostic Trade Integration Study .  
 
Integrated Framework (2003). Lesotho Diagnostic Trade Integration Study .  
 Integrated Framework (2003). Senegal Diagnostic Trade Integration Study .  
 Integrated Framework (2004). Mozambique Diagnostic Trade Integration Study .  
Integrated Framework (2005). Rwanda Diagnostic Trade Integration Study .  
 Integrated Framework (2005). Benin Diagnostic Trade Integration Study .  
 Mangana, S., Timana, A., Benjamim , C. and Rodrigues, P. (2004). SPS in Mozambique: 
Development, Challenges and Prospects .  Report presented at a workshop on business implications of 
the SPS Agreement on 10-12 October 2004 in Cairo, Egypt. 
 Matsumoto-Izadifar, Y (2008) Senegal: Making better use of agri-business potential . OECD 
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