United States International Trade Commission

Investigation No. 332-502

USITC Publication 4078

May 2009

Sub-Saharan African 

Textile and Apparel 

Inputs: Potential for 

Competitive 

Production
Address all communications to 

Secretary to the Commission 

United States International Trade Commission 

Washington, DC 20436

U.S. International Trade Commission

Director, Office of Industries

Karen Laney-Cummings

Director of Operations

Robert A. Rogowsky

COMMISSIONERS 

 

Shara L. Aranoff, Chairman 

Daniel R. Pearson, Vice Chairman 

Deanna Tanner Okun 

Charlotte R. Lane 

Irving A. Williamson 

Dean A. Pinkert
U.S. International Trade Commission

Washington, DC 20436 

www.usitc.gov

Publication 4078 May 2009

Sub-Saharan African Textile and Apparel 

Inputs: Potential for Competitive 

Production

Investigation No. 332-502
Project Leaders

Kimberlie Freund, Project Leader 

Kimberlie.Freund@usitc.gov

Joshua Levy, Deputy Project Leader 

Joshua.Levy@usitc.gov

Principal Authors 

Andrea Boron, Eric Cardenas, Cindy Cohen, Heidi Colby-Oizumi, 

 Daniel Cook, Kimberlie Freund, Dawn Heuschel 

Jackie Jones, Aimee Larsen, Joshua Levy, Laura Polly, 

 Laura Rodriguez, James Stamps, and Philip Stone 

Primary Reviewers 

John Fry and Walker Pollard 

Special Assistance 

Robert Bauchspies, Judith Bryant, Brenda Carroll, Catherine DeFilippo, 

Judith Dean, Nick Grossman, Aaron Miller, and Elizabeth Nesbitt 

Under the direction of

Dennis Rapkins, Chief 

Chemicals and Textiles Division 
i 

Abstract 

This report identifies textile and apparel inputs that can be produced competitively 

through new or increased investment or other measures in the 40 beneficiary sub-Saharan 

African (SSA) countries that are eligible for trade preferences under the African Growth 

and Opportunity Act. Textile and apparel inputs include yarn; knit, woven, and other 

fabric; carded and combed natural fibers; manmade fibers; thread; and zippers, buttons, 

and other types of trim. 

SSA countries have the greatest potential to be competitive in the production of cotton 

textile and apparel inputs. Cotton is the primary fiber currently used in the production of 

yarn and fabric in the subject countries, and it is grown in large quantities in the region. 

SSA countries also have the potential to competitively produce certain niche textile 

items. 

The competitiveness of many textile and apparel inputs already produced in the SSA 

countries can be enhanced through new or increased investment or other measures, 

particularly since production of such inputs is limited and declining in many instances. 

New or increased investment or other measures could assist the industry in maintaining 

or expanding current production and export levels of these inputs, as well as increase the 

potential for production of some new products. 

SSA countries face numerous and substantial challenges in their production of yarn, 

fabric, and other textile and apparel inputs. As a whole, SSA countries have an 

insufficient apparel base through which to develop and sustain upstream production in 

yarn, fabric, and other inputs. SSA countries also face severe challenges with their 

infrastructure, such as inadequate power and water supplies, and inadequate 

transportation networks. These infrastructure challenges not only raise the cost of existing 

production, but also deter significant new investment in the capital-intensive textile 

industry. 

iii 

Abbreviations and Acronyms 

AfDB African Development Bank 

AGOA African Growth and Opportunity Act 

ATC Agreement on Textiles and Clothing 

B2B Business to business 

CEMAC Central African Economic and Monetary Community 

CIA Central Intelligence Agency 

CFA Franc Franc de la Coopération Financière Africaine (CEMAC) and Franc de la Communauté 

 Financière de l’Afrique (WAEMU) 

CMT Cut-make-trim 

COMESA Common Market for Eastern and Southern Africa 

CSP Customised Sector Programme 

EAC East African Community 

EBA Everything But Arms 

ECCAS Economic Community of Central African States 

ECOWAS Economic Community of West African States 

EDBM Economic Development Board of Madagascar 

EIU Economist Intelligence Unit 

EPA Economic Partnership Agreement 

EPZ Export processing zone 

EU European Union 

FAS Foreign Agricultural Service 

FDI Foreign direct investment 

FZA Franc Zone Africa 

GDP Gross domestic product 

GSP Generalized System of Preferences 

HTS Harmonized Tariff Schedule of the United States 

IBRD International Bank for Reconstruction and Development 

ICAC International Cotton Advisory Committee 

ICC International Chamber of Commerce 

IFC International Finance Corporation 

IGAD Intergovernmental Authority on Development in Eastern Africa 

IMF International Monetary Fund 

ITMF International Textile Machinery Federation 

kWh Kilowatt hour 

LTEA Lesotho Textile Exporters Association 

LDC Lesser-developed country 

MFA Multi-fiber Arrangement 

MY Marketing year 

NTR Normal trade relations 

OECD Organization for Economic Co-operation and Development 

OTEXA Office of Textiles and Apparel 

SACU Southern African Customs Union 

SADC Southern African Development Community 

SIPA Swazi Investment Promotion Authority 

SME Square meter equivalent 

SSA Sub-Saharan Africa 

TEU Twenty-foot equivalent unit 

UN United Nations 
iv 

UNDP United Nations Development Programme 

USAID U.S. Agency for International Development 

USDA U.S. Department of Agriculture 

USDOC U.S. Department of Commerce 

USITC U.S. International Trade Commission 

WAEMU West African Economic and Monetary Union 

WITS World Integrated Trade Solution 

WTO World Trade Organization 
v 

Glossary 

Bale—A standard U.S. statistical measurement for cotton is a 480 lb. bale (net weight). One metric ton 

equals 4.59 bales. Individual bales vary in weight. 

Carded fibers—Textile fibers (primarily of cotton, wool, and manmade fibers) that have been partially 

straightened so the fibers are parallel to each other. Carding is also the last stage of the cleaning process 

(in the case of cotton and wool fibers) as it removes most remaining impurities. 

Combed fibers—Textile fibers that, after having been carded, are further straightened and aligned. 

Combed fibers are smoother and more lustrous than carded fibers. 

Cotton lint—Cotton lint is the fibers that surround the cottonseed. 

Cotton staple length—The terms for different lengths are as follows: 

 Short Less than 3/16 inch 

 Medium 3/16 to 1 inch 

 Medium long 1 1/32 to 1 3/32 inches 

 Long 1 4/32 to 1 11/32 inches 

Cut-make-trim (CMT)—A type of apparel manufacturing where the customer specifies design and 

sometimes provides the fabric, trim, and packaging, while the contractor supplies the manufacturing 

expertise to produce the finished garment. 

Dyeing—The process of coloring fiber, yarn, or fabric with natural or synthetic dyes. 

Factory shells—A structure constructed for industrial production, including apparel manufacturing. 

Often, governments in SSA will construct manufacturing facilities to attract industrial investment, 

offering such units at discounted or free rent.

Fast fashion—A merchandising system whereby a retailer introduces small quantities of new, relatively 

exclusive garments at higher prices and keeps these items in the store for a limited time. 

Finishing—Finishing operations are applied to yarn and fabric after bleaching, dyeing, or printing. Such 

operations include pressing, heat-setting, napping, embossing, and applying chemicals that change the 

nature of the fabric. In certain instances, finishing may also include bleaching, dyeing, or printing.

Fully fashioned knitwear—Knitwear produced by knitting each component (i.e., sleeves, front and back 

bodices) to the correct size and shape, and sewing the components together. The machinery to produce 

these components is much more expensive, and it takes longer to produce this type of knitwear versus cutmake-trim knitwear. Therefore, most commercially available knitwear is not produced this way. 

Greige goods—This fabric has not been bleached, dyed, or finished in any way after its initial production. 

Knit fabric—A textile fabric produced by interlooping one or more yarns. 

Lead time—The time frame needed to complete a production order, from the receipt of a purchase order 

through the delivery of the goods. 
vi 

Manmade fibers—Chemically produced fibers created through technological means from chemicals or 

combinations of chemicals and natural materials. 

Manmade-filament fibers—Fibers that are continuous and/or of indefinite lengths; that may be 

considered yarns, some without much further processing. 

Manmade-staple fibers—Fibers that have been cut from filaments usually to the length of natural staple 

fibers, such as cotton or wool. 

Marketing year (MY)—For cotton, the marketing year is August 1 through July 31. 

Narrow fabric—Any woven fabric with a width of 12 inches or less. 

Natural fibers—Fibers made from natural materials, including animal (silk and wool); vegetable (cotton, 

linen, jute, and ramie); and mineral (asbestos) sources as opposed to chemical sources. Natural fibers are 

mostly staple fibers; natural filament fibers come only from silk. 

Nonwoven fabric—This fabric is not knit or woven; it is made by an intermingling of textiles fibers in a 

random manner. 

Other fabric—Textile fabric such as nonwoven fabric, coated or laminated fabric, and fabric bonded with 

plastic. 

 

Parastatal—A corporation that is fully or partially state owned. 

Polypropylene fibers—These fibers are a type of manmade fiber. They are extremely light fibers that 

provide the greatest coverage per pound of any other fiber. They also have high resistance to mechanical 

abuse and chemical attack. 

Seed cotton—Seed cotton is cotton prior to being ginned and it comprises both the cotton lint and the 

cottonseed. 

SSA countries—This group includes the beneficiary SSA countries eligible for AGOA benefits. As of 

May 15, 2009, the 40 countries were: Angola, Benin, Botswana, Burkina Faso, Burundi, Cameroon, Cape 

Verde, Chad, Comoros, Republic of the Congo, Democratic Republic of the Congo, Djibouti, Ethiopia, 

Gabon, The Gambia, Ghana, Guinea, Guinea-Bissau, Kenya, Lesotho, Liberia, Madagascar, Malawi, Mali, 

Mauritius, Mozambique, Namibia, Niger, Nigeria, Rwanda, São Tomé and Príncipe, Senegal, Seychelles, 

Sierra Leone, South Africa, Swaziland, Tanzania, Togo, Uganda, and Zambia. 

Shuttle loom—A loom that uses a shuttle, a boat-shaped device made usually of wood, to carry the filling 

(or horizontal) yarn across (over and under) the warp yarns (vertical yarns) during the weaving process. 

Shuttleless loom—A loom that uses a method other than a shuttle (typically, an air- or water-jet method) 

to insert the filling (or horizontal yarn) when weaving fabric. 

Synthetic fibers— Fibers created from polymers synthesized from chemical compounds, e.g., acrylic, 

nylon, polyester. Synthetic fibers are a subset of manmade fibers. 

Thread—A strong yarn used for sewing the pieces of a garment or some other textile product together. 

Trim—Fasteners or accessories to textile and apparel articles, including zippers, buttons, embroidery in 

the piece, braids, and elastic. 
vii 

Vertically integrated—Production of yarn through to finished fabric, or through to the finished garment 

or other textile article by one company. 

Worsted—A type of woven wool or wool-blended fabric made with combed, long staple wool fiber yarns 

and/or from wool fiber blended yarns. The fabric is tightly woven, resulting in a smooth finish. 

Woven fabric—A textile fabric produced by interlacing or intertwining two or more yarns in some type of 

over-under process or technique. 

Yarn—A continuous strand of material in various forms, made from natural or manmade fibers, filaments, 

and other materials, used for knitting, weaving, or otherwise intertwining to form a textile fabric. 

Yarn spinning—There are two basic mechanized types of yarn spinning, both of which apply twist to 

staple fibers to create yarn. 

Open-end spinning—Staple fibers go through a continuous process, whereby the fibers enter into 

a rotor where twist is applied, ultimately creating spun yarn. 

Ring spinning—Twist is applied to staple fibers by the movement of a spindle and a metal ring 

that moves around the spindle (a long, thin stick used in spinning). Ring spinning tends to be 

slower and more expensive than open-end spinning. Ring-spun yarns tend to be smoother and 

softer than open-end spun yarns. 

Sources: Celanese Corporation, Man-Made Fiber and Textile Dictionary, 1974; Hoechst Celanese, Dictionary of 

Fiber & Textile Technology, 1990; Collier and Tortora, Understanding Textiles, 1997; Britannica Online 

Encyclopedia, “Carding (Yarn Production),” undated (accessed March 30, 2009); Estur, Is West African Cotton 

Competitive? January 7, 2005; TextileGlossary.com, “Open End Spinning Explained,” undated (accessed April 1, 

2009); Indotex India, “Spinning Machines,” undated (accessed April 1, 2009); Byte Software, LLC, “Cut-MakeTrim Manufacturing Solution,” undated (accessed April 1, 2009); KilKeel Knitwear, “Terminology,” undated 

(accessed April 1, 2009); and Answers.com, “Lead-time in Supply Chain Management and Lead-time in 

Manufacturing,” undated (accessed April 6, 2009). 

ix

CONTENTS

Page

Abstract................................................................................................................................... i 

Abbreviations and Acronyms.......................................................................... iii 

Glossary................................................................................................................................... v 

Executive Summary................................................................................................... xv 

Chapter 1. Introduction......................................................................................... 1-1 

 Purpose of report................................................................................................................... 1-1 

 Product and country scope.................................................................................................... 1-1 

 Approach............................................................................................................................... 1-2 

 Analytical framework..................................................................................................... 1-2

 Fieldwork and data sources ............................................................................................ 1-6 

 Organization.......................................................................................................................... 1-8 

 

Chapter 2. Product Summary ........................................................................ 2-1 

 Textile and apparel inputs that can be produced competitively............................................ 2-1 

 Exports of textile and apparel inputs .................................................................................... 2-4 

 

Chapter 3. Factors of Competitiveness................................................. 3-1 

 Factors affecting demand for textile and apparel inputs ....................................................... 3-1 

 Large retailers’ influence on the global apparel industry............................................... 3-1 

 Existence of a viable local or regional apparel industry................................................. 3-3 

 Factors affecting the supply of textile and apparel inputs..................................................... 3-4 

 Power and water ............................................................................................................. 3-4 

 Finance ........................................................................................................................... 3-8 

 Age of existing plant and equipment.............................................................................. 3-10 

 Labor .............................................................................................................................. 3-11 

 Raw materials................................................................................................................. 3-12 

 Factors that affect the entire supply chain ............................................................................ 3-13 

 Business environment..................................................................................................... 3-13 

 Factors affecting movement of goods ............................................................................ 3-14 
x

CONTENTS―Continued

Page

Chapter 3. Factors of Competitiveness―Continued

 Factors that affect the entire supply chain―Continued

 U.S. and EU tariffs and trade preference programs........................................................ 3-18 

 Regional integration ....................................................................................................... 3-20 

Chapter 4. Country Review............................................................................... 4-1

 Overview............................................................................................................................... 4-1 

 Group 1 Countries................................................................................................................. 4-1 

 Ethiopia .......................................................................................................................... 4-2 

 Kenya ............................................................................................................................. 4-11 

 Lesotho ........................................................................................................................... 4-16 

 Madagascar..................................................................................................................... 4-22 

 Mauritius ........................................................................................................................ 4-29 

 Nigeria............................................................................................................................ 4-37 

 South Africa ................................................................................................................... 4-44 

 Swaziland ....................................................................................................................... 4-57 

 Tanzania ......................................................................................................................... 4-62 

 Zambia............................................................................................................................ 4-70 

 Group 2: Selected other SSA exporters of textile inputs or apparel ..................................... 4-80 

 Botswana ........................................................................................................................ 4-80 

 Ghana ............................................................................................................................. 4-84 

 Malawi............................................................................................................................ 4-88 

 Mozambique................................................................................................................... 4-92 

 Namibia .......................................................................................................................... 4-95 

 Uganda ........................................................................................................................... 4-98 

 Group 3: Major West African cotton-producing countries................................................... 4-103 

 Benin .............................................................................................................................. 4-106 

 Burkina Faso .................................................................................................................. 4-109 

 Cameroon ....................................................................................................................... 4-112 

 Mali ................................................................................................................................ 4-115 

 Senegal ........................................................................................................................... 4-118 

 Group 4: Countries that are unlikely candidates for competitive production of textile 

 and apparel inputs .................................................................................................... 4-122

 Group 4 country production of textile and apparel inputs.............................................. 4-122 

 Group 4 country apparel production............................................................................... 4-123 

 Group 4 country infrastructure ....................................................................................... 4-123 

 Group 4 economic indicators ......................................................................................... 4-123 
xi

CONTENTS―Continued

Page

Bibliography....................................................................................................................... Bibl-1

Appendices 

 A. Section 3 of Public Law 110-436.................................................................................... A-1 

 B. Federal Register notice ................................................................................................... B-1 

 C. Spinning, weaving, and knitting machinery data ............................................................ C-1 

 D. List of hearing participants ............................................................................................. D-1 

 E. Summary of views of interested parties .......................................................................... E-1 

 F. Additional trade data........................................................................................................ F-1 

 G. Additional cotton data...................................................................................................... G-1 

 H. Summary of selected regional free trade agreements and organizations ........................ H-1 

 I. Basic economic indicators definitions and sources ......................................................... I-1 

Boxes 

4.1 Ethiopia’s hand-loomed textiles industry................................................................................. 4-5 

4.2 Company profiles: Bedi Investments Limited and Fine Spinners Limited .............................. 4-13 

4.3 Mauritius’s strategies for success............................................................................................. 4-34 

4.4 Cotton production in Nigeria ................................................................................................... 4-42 

4.5 Improving competitiveness through clusters and fast fashion ................................................. 4-55 

4.6 Cotton production in Tanzania................................................................................................. 4-68 

4.7 Cotton production in Zambia ................................................................................................... 4-73 

4.8 Zambia’s premier cotton yarn spinner and AGOA exporter collapses in 

 December 2008.................................................................................................................. 4-75 

4.9 Cotton production in Franc Zone Africa.................................................................................. 4-104 

Tables 

ES.1 Summary of selected SSA textile and apparel input producers............................................... xxii 

1.1 Exports of textile and apparel inputs and apparel by SSA country, 2007 ............................... 1-5 

2.1 SSA exports of textile and apparel inputs, by product group, 2003–07 .................................. 2-4 

3.1 Electricity supply and production constraints: Select SSA countries...................................... 3-6 

3.2 Water supply and constraints: Select SSA countries............................................................... 3-7 

3.3 Selected business environment indicators, 2009 ..................................................................... 3-15 

3.4 Selected infrastructure indicators ............................................................................................ 3-17 

3.5 Eligibility for AGOA apparel and textile preferences............................................................. 3-19 
xii

CONTENTS―Continued

Page

Tables―Continued

4.1 Ethiopia: Basic economic indicators ....................................................................................... 4-3 

4.2 Ethiopia: Exports of textile and apparel inputs, by destination, 2003–07 ............................... 4-5 

4.3 Ethiopia: Exports and imports of textile and apparel inputs, by product group, 2003–07 ...... 4-6 

4.4 Ethiopia: Exports and imports of apparel, 2003–07 ................................................................ 4-7 

4.5 Kenya: Basic economic indicators .......................................................................................... 4-12 

4.6 Kenya: Exports of textile and apparel inputs, by destination, 2003–07 .................................. 4-14 

4.7 Kenya: Exports and imports of textile and apparel inputs, by product group, 2003–07 ......... 4-14 

4.8 Kenya: Exports and imports of apparel, 2003–07 ................................................................... 4-14 

4.9 Lesotho: Basic economic indicators........................................................................................ 4-17 

4.10 Lesotho: Exports and imports of textile and apparel inputs, by product group, 2003–07....... 4-19 

4.11 Lesotho: Exports of textile and apparel inputs, by destination, 2003–07................................ 4-19 

4.12 Lesotho: Exports and imports of apparel, 2003–07................................................................. 4-20 

4.13 Madagascar: Basic economic indicators.................................................................................. 4-23 

4.14 Madagascar: Exports of textile and apparel inputs, by destination, 2003–07 ......................... 4-25 

4.15 Madagascar: Exports and imports of textile and apparel inputs, by product group, 

 2003–07.............................................................................................................................. 4-25 

4.16 Madagascar: Exports and imports of apparel, 2003–07 .......................................................... 4-26 

4.17 Mauritius: Basic economic indicators ..................................................................................... 4-30 

4.18 Mauritius: Exports of textile and apparel inputs, by destination, 2003–07 ............................. 4-33 

4.19 Mauritius: Exports and imports of textile and apparel inputs, by product group, 

 2003–07.............................................................................................................................. 4-33 

4.20 Mauritius: Exports and imports of apparel, 2003–07 .............................................................. 4-34 

4.21 Nigeria: Basic economic indicators......................................................................................... 4-38 

4.22 Nigeria: Major textile exporting firms, 2007........................................................................... 4-39 

4.23 Nigeria: Exports of textile and apparel inputs, by destination, 2003–07................................. 4-41 

4.24 Nigeria: Exports and imports of textile and apparel inputs, by product group, 2003–07........ 4-41 

4.25 Nigeria: Exports and imports of apparel, 2003–07.................................................................. 4-41 

4.26 South Africa: Basic economic indicators ................................................................................ 4-45 

4.27 South Africa: Exports of textile and apparel inputs, by destination, 2003–07 ........................ 4-47 

4.28 South Africa: Exports and imports of textile and apparel inputs, by product group, 

 2003–07.............................................................................................................................. 4-48 

4.29 South Africa: Exports and imports of apparel, 2003–07 ......................................................... 4-49 

4.30 Swaziland: Basic economic indicators .................................................................................... 4-58 

4.31 Swaziland: Exports of textile and apparel inputs, by destination, 2003–07............................ 4-59 

4.32 Swaziland: Exports and imports of textile and apparel inputs, by product group, 

 2003–07.............................................................................................................................. 4-59 

4.33 Swaziland: Exports and imports of apparel, 2003–07............................................................. 4-60 

4.34 Tanzania: Basic economic indicators ...................................................................................... 4-63 

4.35 Tanzania: Exports and imports of textile and apparel inputs, by product group, 2003–07 ..... 4-65 

4.36 Tanzania: Exports of textile and apparel inputs, by destination, 2003–07.............................. 4-66 

4.37 Tanzania: Exports and imports of apparel, 2003–07............................................................... 4-67 

4.38 Zambia: Basic economic indicators......................................................................................... 4-71 
xiii

CONTENTS―Continued

Page

Tables―Continued 

4.39 Zambia: Exports and imports of textile and apparel inputs, by product group, 2003–07........ 4-76 

4.40 Zambia: Exports of textile and apparel inputs, by destination, 2003–07 ................................ 4-76 

4.41 Zambia: Exports and imports of apparel, 2003–07 ................................................................. 4-78 

4.42 Botswana: Basic economic indicators ..................................................................................... 4-81 

4.43 Botswana: Exports of textile and apparel inputs, by destination, 2003–07............................. 4-82 

4.44 Botswana: Exports and imports of textile and apparel inputs, by product group, 

 2003–07.............................................................................................................................. 4-82 

4.45 Botswana: Exports and imports of apparel, 2003–07.............................................................. 4-82 

4.46 Ghana: Basic economic indicators .......................................................................................... 4-85 

4.47 Ghana: Exports of textile and apparel inputs, by destination, 2003–07 .................................. 4-88 

4.48 Ghana: Exports and imports of textile and apparel inputs, by product group, 2003–07 ......... 4-88 

4.49 Ghana: Exports and imports of apparel, 2003–07 ................................................................... 4-88 

4.50 Malawi: Basic economic indicators......................................................................................... 4-89 

4.51 Malawi: Exports of textile and apparel inputs, by destination, 2003–07 ................................ 4-91 

4.52 Malawi: Exports and imports of textile and apparel inputs, by product group, 2003–07........ 4-91 

4.53 Malawi: Exports and imports of apparel, 2003–07 ................................................................. 4-91 

4.54 Mozambique: Basic economic indicators................................................................................ 4-93

4.55 Mozambique: Exports of textile and apparel inputs, by destination, 2003–07........................ 4-94 

4.56 Mozambique: Exports and imports of textile and apparel inputs, by product group 

 2003–07.............................................................................................................................. 4-94 

4.57 Mozambique: Exports and imports of apparel, 2003–07......................................................... 4-94 

4.58 Namibia: Basic economic indicators ....................................................................................... 4-96 

4.59 Namibia: Exports of textile and apparel inputs, by destination, 2003–07............................... 4-98 

4.60 Namibia: Exports and imports of textile and apparel inputs, by product group, 2003–07...... 4-98 

4.61 Namibia: Exports and imports of apparel, 2003–07................................................................ 4-98 

4.62 Uganda: Basic economic indicators ........................................................................................ 4-99 

4.63 Uganda: Exports of textile and apparel inputs, by destination, 2003–07 ................................ 4-101 

4.64 Uganda: Exports and imports of textile and apparel inputs, by product group, 2003–07 ....... 4-101 

4.65 Uganda: Exports and imports of apparel, 2003–07 ................................................................. 4-101 

4.66 Benin: Basic economic indicators ........................................................................................... 4-107 

4.67 Benin: Exports of textile and apparel inputs, by destination, 2003–07 ................................... 4-108 

4.68 Benin: Exports and imports of textile and apparel inputs, by product group, 2003-07........... 4-108 

4.69 Benin: Exports and imports of apparel, 2003–07 .................................................................... 4-108 

4.70 Burkina Faso: Basic economic indicators ............................................................................... 4-109 

4.71 Burkina Faso: Exports of textile and apparel inputs, by destination, 2003–07 ....................... 4-110 

4.72 Burkina Faso: Exports and imports of textile and apparel inputs, by product group 

 2003–07.............................................................................................................................. 4-111 

4.73 Burkina Faso: Exports and imports of apparel, 2003–07 ........................................................ 4-111 
xiv

CONTENTS―Continued

Page

Tables―Continued 

4.74 Cameroon: Basic economic indicators .................................................................................... 4-112 

4.75 Cameroon: Exports of textile and apparel inputs, by destination, 2003–07............................ 4-113 

4.76 Cameroon: Exports and imports of textile and apparel inputs, by product group 

 2003–07.............................................................................................................................. 4-114 

4.77 Cameroon: Exports and imports of apparel, 2003–07............................................................. 4-114 

4.78 Mali: Basic economic indicators ............................................................................................. 4-116 

4.79 Mali: Exports of textile and apparel inputs, by destination, 2003–07 ..................................... 4-116 

4.80 Mali: Exports and imports of textile and apparel inputs, by product group, 2003–07 ............ 4-117 

4.81 Mali: Exports and imports of apparel, 2003–07 ...................................................................... 4-117 

4.82 Senegal: Basic economic indicators ........................................................................................ 4-119 

4.83 Senegal: Exports of textile and apparel inputs, by destination, 2003–07................................ 4-119 

4.84 Senegal: Exports and imports of textile and apparel inputs, by product group, 2003–07 ....... 4-120 

4.85 Senegal: Exports and imports of apparel, 2003–07................................................................. 4-120 

4.86 Per capita electricity production, Internet users, paved roads, and rail lines, Group 4 

 countries, SSA countries, China, and India........................................................................ 4-123 

4.87 Per capita GDP and FDI inflows, Group 4 countries, SSA countries, and the 

 United States ...................................................................................................................... 4-124 

C.1 Spinning machinery: Installed capacity and cumulative shipments ........................................ C-3 

C.2 Installed capacity and cumulative shipments of weaving machinery...................................... C-4 

C.3 Cumulative shipments of large circular knitting machines, 1998–2007 ................................. C-5 

F.1 Exports of textile and apparel inputs, by SSA country, selected other countries, and 

 world, 2003–07................................................................................................................... F-3 

F.2 SSA-country exports of textile and apparel inputs, by product group, 

 by destination, 2003–07 ..................................................................................................... F-5 

F.3 SSA-country exports of textile and apparel inputs, by product group, 2003–07..................... F-6 

F.4 Exports of apparel, by SSA country, selected other countries, and world, 2003–07 .............. F-8 

G.1 Cotton production in SSA-countries, MY 2000–07 ................................................................ G-3 

H.1 Summary of selected regional free trade agreements and organizations................................. H-3 

I.1 Definitions and sources for basic economic indicators ........................................................... I-3 

Figures 

1.1 Map of SSA beneficiary countries ........................................................................................... 1-3 

1.2 Competitive framework for textile and apparel inputs production .......................................... 1-7 

2.1 SSA exports of textile and apparel inputs, by product group, 2007......................................... 2-5 

3.1 Manufacturing firms’ share of investment accounted for by bank financing and lending 

 interest rates in selected SSA countries.................................................................................... 3-9 

3.2 Value added per worker in medium-sized manufacturing firms.............................................. 3-12 

3.3 Index of political troubles for certain SSA countries, 1996–2007 ........................................... 3-16 
xv

Executive Summary 

This report identifies textile and apparel inputs that can be produced competitively1

 in the 

40 sub-Saharan African (SSA) countries that are beneficiaries under the African Growth 

and Opportunity Act (AGOA) (hereafter referred to as “SSA countries”) through new or 

increased investment or other measures. Textile and apparel inputs include yarn; knit, 

woven, and other fabric; carded and combed natural fibers; manmade fibers; thread; and 

zippers, buttons, and other types of trim. 

 

SSA countries appear to have the greatest potential to be competitive in the production of 

cotton textile and apparel inputs. Cotton is the primary fiber currently used in the 

production of yarn and fabric in the SSA countries, and it is grown in large quantities in 

the region. SSA countries also have the potential to competitively produce certain niche 

textile products. Production of such products would entail small quantities of rather 

diverse items for narrow market segments. 

Certain SSA countries are currently producing textile and apparel inputs that are exported 

to, or used in the production of apparel for export to, the United States, the EU, and 

similar markets. Although these products could be considered competitive, production of 

such products is limited and is declining in many instances. Generally, the textile and 

apparel industries in most SSA countries have contracted during the past five years, 

particularly in the largest textile-producing countries—South Africa, Mauritius, and 

Nigeria. Industry sources indicated that it has become difficult to be cost competitive in 

the production of yarn, fabric, and finished apparel compared with large Asian suppliers, 

such as China, India, and Bangladesh, particularly following an increase in competition 

after the phase-out of quotas in the U.S. and EU markets at the end of 2004. More 

recently, industry sources reported a decrease in orders in light of the current global 

economic downturn. Thus, while this report identifies many textile and apparel inputs 

that can be produced competitively through new or increased investment or other 

measures, most of these inputs are already being produced in the subject countries. It is 

likely that any new or increased investment or other measures would bolster the 

competitiveness of existing production of textile and apparel inputs, thereby assisting the 

industry to maintain or perhaps expand current production and export levels of these 

inputs, as well as possibly increase the potential for production of additional textile and 

apparel inputs. 

 

One of the biggest challenges facing SSA countries, both for current and potential future 

production of textile and apparel inputs, is the lack of demand for such products in the 

region. Generally, SSA countries have an insufficient base of apparel manufacturing 

through which to develop and sustain upstream production of yarn, fabric, and other 

inputs. A thriving and relatively stable apparel manufacturing sector is considered an 

important competitive factor for the production of textile and apparel inputs. Because 

textile and apparel input manufacturing is relatively capital intensive, textile and apparel 

 1

 For purpose of this report, “produced competitively” is defined as products that can be produced at 

sufficient cost, quality, style, and timeliness so as to be exported, or used by downstream commercial SSA 

apparel or other finished textile producers/exporters. Exports by such downstream entities to the United 

States or similar markets are central to the Commission’s analysis. Also, to the extent that such information is 

available, this report identifies textile and apparel inputs that appear to be competitive in downstream 

production for local and regional markets. 
xvi

input producers require sufficient levels of consistent demand in order to produce 

efficiently. 

 

SSA countries also face severe challenges concerning the current state and development 

of their infrastructure. Infrastructure constraints not only raise the cost of existing 

production, but also deter significant new investments in capital-intensive yarn- and 

fabric-producing industries. Such infrastructure constraints include unreliable and costly 

electricity; insufficient supplies of clean water and lack of waste water treatment facilities 

for textile finishing operations; and poor road, rail, and port infrastructure. 

A number of other factors inhibit the competitive production of textile and apparel inputs 

in the region. Such factors include the high cost and lack of access to capital; an 

insufficient supply of skilled workers; a lack of regional and foreign market knowledge; 

and obsolete machinery and equipment in many of the existing textile mills. Additionally, 

although cotton is grown in large quantities in the SSA region, the quality of some of the 

cotton is diminished through contamination. Furthermore, although SSA countries 

produce primarily cotton-based textile and apparel inputs, in part due to the ready supply 

of local cotton, AGOA trade preferences offer significantly larger duty savings for 

manmade-fiber products, which face higher U.S. import tariffs than do cotton products. 

The underdevelopment of the manmade-fiber textile and apparel sectors in most SSA 

countries prevents them from taking full advantage of the benefits afforded by AGOA. 

This report also notes examples of strategies that textile and apparel industries, and the 

suppliers of inputs to these industries, have implemented to maintain or enhance the 

competitiveness of their products. These examples include ongoing efforts by Mauritius 

to shorten lead times, which allows it to compete in “fast fashion” market segments and 

provide downstream services such as design and innovative fashion. South Africa has 

attempted to boost competitiveness by creating industry clusters consisting of firms from 

the textile, clothing, retail, and other sectors that work cooperatively toward the goals of 

value chain alignment, world class manufacturing, and human resources development. 

The report notes additional strategies that industry sources think would benefit the textile 

and apparel industries, such as developing or reinforcing linkages between textile and 

apparel suppliers, manufacturers, and retailers through increased exposure at international 

trade shows and business-to-business events sponsored by the U.S. Agency for 

International Development (USAID) trade hubs. 

Overview and Key Findings 

Products That Have the Potential to Be Produced Competitively 

Cotton yarn, cotton knit fabric, denim fabric, and to a lesser extent, cotton woven shirting 

fabric, appear to have the most potential for competitive production in SSA countries 

either for direct export to, or for use in downstream production of apparel for export to, 

the United States, the EU, and similar markets. In addition, there appears to be potential 

for increasing the competitive production of certain niche textile products that are 

currently produced and exported (or used in downstream production for export) in 

relatively limited quantities from the region. All of these products may also be 

competitive in some local and regional markets, as numerous SSA industry sources 

reported producing textile and apparel inputs for both regional consumption and export 

outside of the region. Finally, there are some products that appear best suited for local 
xvii

and nearby regional consumption; however, such production would benefit from many of 

the same types of investments and other measures that would assist production for export 

outside of the region. A summary of the key products identified in this report is provided 

below. 

• Cotton textile products: Many SSA countries have a comparative advantage in the 

production of cotton, most of which has favorable fiber characteristics. In addition, 

many cotton-based products that are large volume basics—T-shirts, polo shirts, 

denim, and khaki pants—generally are less complex to produce and represent many 

companies’ initial venture into global textile and apparel trade. 

 

o Cotton yarn (including cotton/manmade-fiber blends) is currently being 

produced in the region for direct export to the United States, the EU, and similar 

markets, as well as for use in downstream production of apparel for export to 

these markets. 

o Cotton knit fabric (including cotton/manmade-fiber blends) of the type used in 

T-shirts, polo shirts, and other similar types of knit shirts is likely to have the 

most competitive potential. This fabric is generally produced by firms that 

manufacture the garments, which provide a ready market for the fabric. A few 

firms indicated that they also sell some of their knit fabric production to other 

firms. To the extent that there is a thriving apparel sector producing a relatively 

homogenous line of knit apparel, it is possible that production of knit fabric could 

expand through new investment. 

o Cotton denim fabric is produced in a number of SSA countries, including 

Mauritius, Lesotho, and South Africa. There appears to be a sufficient base of 

denim apparel manufacturing in SSA countries to provide a market for some 

regionally produced denim fabric. Nevertheless, one industry source suggested 

that the sector faces significant challenges compared with Asian suppliers. 

o Woven cotton shirting fabric of a suitable quality for export is produced in 

Mauritius and Madagascar by two firms for use in apparel shipped to the United 

States, the EU, and similar markets. 

• Niche products: SSA countries may be potentially competitive in the production of 

niche textile products, as these products sometimes garner premium prices that can 

cover the larger production and transport costs associated with producing in many 

SSA countries, or they fill a specialized market need. In addition, many of these 

products require smaller volumes or are unique, hand-produced inputs. 

o Organic cotton products (particularly yarn and knit fabric used in T-shirts for 

export) are currently being produced in SSA countries such as Swaziland, 

Uganda, and Mauritius. There may be potential for increased production of such 

niche articles, particularly as global demand for organic and environmentally 

friendly goods increases.

o Certain woven wool fabric and certain high-tech and industrial fabric are 

currently produced in South Africa and exported directly to, or used in the 

manufacture of products exported to, the United States, the EU, and similar 

markets. 
xviii

o Yarn and knit fabric of modal and other specialty manmade fibers may have 

some limited potential for use in knit apparel sold at the higher end of the market. 

Although these fibers are not produced in the region, apparel made from these 

fibers has larger duty preference margins under AGOA compared with products 

made of cotton. There are some firms in Mauritius reportedly importing the 

fibers, from which they spin limited quantities of yarn and knit fabric that are 

used in apparel for export. 

 

o A small number of Ethiopian companies produce hand-loomed fabric of cotton 

and silk for home furnishings and apparel. The cotton and some of the silk used 

by these companies are sourced domestically, and the finished articles are 

consumed both locally and exported to niche markets in the United States, 

Canada, and Europe.

o Although the vast majority of African print fabric is produced for local markets, 

some U.S. consultants suggested that there may be potential to produce and 

market such fabric for use in home furnishings for niche U.S. markets. African 

producers currently face strong competition from imports of Chinese fabric, 

some of which is alleged to counterfeit trademarked African prints.

o Industry sources indicated that trim production follows apparel production if 

there is sufficient demand from the apparel sector. Currently, some zippers and 

ornamental trims are being produced competitively for direct export to, and for 

use in apparel for export to, the United States, the EU, and similar markets, as 

well as for apparel sold regionally. A few countries produce specialty buttons

from natural products such as nuts, wood, coconut shell, and horn. 

• Products for local and regional markets: Products targeting domestic or regional 

markets are often competitive because they are too costly to import, or because they 

address specific local or regional needs. In many instances the products are of lower 

quality.

 

o A number of countries produce cotton, wool, and other woven fabric for use in 

uniforms and work wear for local and regional sales. The fabric reportedly is 

not of a quality or variety desired for uniforms produced for the U.S. market.

o Some countries, primarily South Africa, produce knit and woven apparel fabric 

of various fibers for use in garments intended for consumption in domestic, 

regional, and smaller non-regional markets. However, such fabric may not meet 

the quality or cost demands of consumers in the United States, the EU, and 

similar markets.

o A number of SSA countries spin acrylic yarn for local and regional consumption, 

primarily for use as hand-knitting yarn or for use in blankets. Acrylic yarn, 

particularly hand-knitting yarn, is bulky and therefore costly to ship, so it is more 

economical to produce it locally than to import it from Asia.

o A number of countries weave fabric for blankets for local and regional 

consumption, as well as for sale to relief organizations in the region. Other 

woven products for local and regional consumption included woven fabric for 

bedsheets and towels.
xix

o One industry source suggested that some of the West African countries could 

potentially increase capacity utilization in their factories and help their cotton 

sectors by weaving fabric for cotton bale wrap and cotton picking bags, to be 

used in place of the commonly used polypropylene bags and wrap that 

contaminate the cotton.

o Tanzanian firms knit fabric for mosquito nets that are procured by international 

relief organizations for local and regional consumption.

 

Competitive Challenges 

Certain competitive challenges affected nearly all the SSA countries, as described below. 

 

• Insufficient demand from the apparel sector 

Industry sources indicated that it is necessary to have a much larger, sustainable 

apparel sector to encourage new or increased investment in the production of yarn, 

fabric, and trim. A large and viable apparel sector provides the stable market demand 

for the textile and apparel inputs sector that is necessary to support capital 

investments that generally take longer to recoup than investments in the apparel 

industry. 

• Lack of knowledge of regional and international market opportunities 

 

Many industry sources identified a lack of marketing and business connections, both 

within the SSA region and in foreign markets. Industry sources indicated that there is 

often a lack of knowledge of existing production within the SSA region, which 

inhibits increased cooperation along the textile and apparel supply chain. In addition, 

regarding the U.S. market, some industry sources were unaware of what products 

were eligible for AGOA preferences and how their products could qualify for AGOA 

trade benefits. Industry sources indicated that the USAID has helped foster regional 

and international market opportunities, but that greater assistance is required. 

• Insufficient supply of reliable electricity at competitive rates 

The electricity rates in many countries in the SSA region are among the highest in the 

world, and an unreliable supply of electricity in many countries further adds to 

producers’ costs. Electricity outages also reduce efficiencies and decrease quality in 

the production of yarn and fabric. 

 

• Insufficient supply of clean water and wastewater treatment facilities 

Many countries lack an abundant supply of clean water, which is needed for yarn and 

fabric production, particularly for finishing and dyeing operations. Clean water is 

particularly important for accurate dyeing results. Many countries also lack the 

ability to treat the wastewater resulting from the finishing operations. 

 
xx

• Inadequate transportation infrastructure 

Poor roads, railways, and ports, as well as capacity constraints, cause delays and add 

to the cost of importing raw materials and exporting finished goods. The lack of 

sufficient transportation networks within SSA also impedes intraregional trade. 

 

• Lack of access to capital at competitive rates 

The high cost of capital, when available, not only deters new investment in the 

production of yarn, fabric, and other inputs, but it also increases the costs of existing 

production. Industry sources reported difficulties obtaining financing at competitive 

rates for purchasing equipment and raw materials, as well as for financing trade. The 

current global financial crisis may further reduce the availability of capital, as 

international capital flows decrease and international investment declines, especially 

to developing countries including SSA countries. 

 

• Prevalence of old machinery and equipment 

Most of the older textile mills that spin yarn and/or weave fabric use dated and 

inefficient machinery. Finished products made on this machinery, particularly woven 

products, are generally not of sufficient quality for export to, or for use in 

downstream commercial apparel production for export to, the United States, the EU, 

or similar markets. 

 

• Scarcity of trained/skilled labor 

Industry sources identified an insufficiency of trained workers in both the textile and 

apparel sectors, particularly in countries that lack a significant manufacturing base. 

Health problems associated with HIV/AIDS contribute to high worker absenteeism 

and turnover rates, which reduce the productivity of the labor force. 

• Cotton quality issues 

Although SSA cotton is generally considered to be of good quality in terms of staple 

length and other physical characteristics, some of it suffers from contamination from 

polypropylene fibers that are introduced into the cotton during the picking and baling 

process. The polypropylene fibers negatively affect the dyeing process, and thus, the 

quality of the finished fabric. The quality of some cotton is also compromised by 

stickiness resulting from insects, which can cause irregularities in the yarn production, 

including yarn breakages. Contamination and stickiness limit the downstream 

potential for textile products. 

• High cost of organic cotton certification 

Some SSA countries have had success in growing organic cotton that is used in 

downstream yarn and fabric production. However, it is too costly for many cotton 

farmers to go through the multiyear process to plant, produce, and obtain certification 

for organic cotton. 
xxi

Additional Policy Recommendations 

Over the course of the investigation, the Commission received numerous policy 

recommendations to enhance the competitive production of textile and apparel inputs in 

the SSA countries. Highlights of the recommendations discussed throughout the report 

are provided below. 

AGOA-related recommendations: 

• Textile and apparel industry sources suggested that one way to encourage further 

development of the apparel sector (and thus the textile and apparel inputs sector) 

is to extend AGOA preferences and the allowance for use of third-country fabric 

beyond the current expiration dates (suggestions ranged from 10 to 15 years, to 

making the benefits permanent). Nevertheless, there are some textile industry 

sources who oppose the third-country fabric provision. These sources indicated 

that third-country yarn and fabric imports compete with SSA production of such 

items. 

• Sources also suggested that the same benefits be extended to all AGOA-eligible 

countries, including the third-country fabric provision and eligibility for duty-free 

treatment for textile products (including yarn, fabric, and made-up textile articles, 

such as bedsheets). Currently, South Africa is the only major textile and apparel 

producing SSA country that is not eligible for duty-free treatment for textile 

products and third-country fabric preferences. 

• One industry source suggested that AGOA could be amended to encourage the 

use of regional yarn and fabric by providing a variant of the earned import 

allowance program that is currently in place for Haiti and the Dominican 

Republic. Such a program would allow firms to earn the right to use 

third-country fabric provided they use specified volumes of regional fabric. 

 

Trade policy-related recommendations: 

• In written submissions to the Commission, SSA government and industry sources 

recommended changing the rules of origin for other (non-AGOA) U.S. trade 

preference programs and free trade agreements to allow apparel made with 

African fabric to qualify for duty-free treatment into the United States under such 

programs or free trade agreements. 

 

• Industry sources indicated that the USAID has helped foster regional and 

international market opportunities, but that greater assistance is required. 

Industry sources noted that firms need additional assistance to improve SSA 

supply chain linkages, such as those sponsored through USAID trade hub 

business-to-business events, as well as assistance in obtaining increased exposure 

at international trade shows. 

• A COMESA representative and industry sources stated that trade policy should 

focus on regional integration rather than categorizing countries into lesserdeveloped countries (LDCs) and non-LDCs. 

 
xxii

• Industry sources indicated that without duty-free preferences under AGOA, most 

textile and apparel producers that export to the United States likely would not be 

cost competitive vis à vis many of the large Asian suppliers. Sources advised 

caution in expanding duty-free and quota-free treatment to highly competitive 

textile and apparel producing countries such as Bangladesh and Cambodia. 

 

Other measures: 

• Sources indicated a need for significant U.S. government or multilateral support 

for infrastructure development, particularly with respect to transport, electricity, 

water, and wastewater treatment. Sources added that Millennium Challenge 

Corporation (MCC) Accounts should focus on regional programs (rather than just 

national programs), particularly as they relate to the infrastructure and energy 

projects. 

 

• Industry and government sources indicated a need for technical assistance in a 

variety of areas, including worker training, design, marketing, and plant 

management. One source suggested that the United States could provide funding 

to firms to assist in hiring consultants that will advise firms on how they can 

become more competitive, and to co-finance implementation of such 

recommendations. 

 

• A COMESA representative suggested greater integration of investment policy 

with trade policy and identified the need to address development aspects rather 

than focusing solely on trade policy to encourage new investment. He also 

recommended that there be greater coordination between international agencies 

and institutions to strengthen public and private institutions, and suggested that 

such coordination could take place under the MCC. 

 

• The government of Mauritius recommended that the United States provide a line 

of credit for private sector firms to expand and modernize in the textile and 

apparel sector. Further, it recommended the United States consider making an 

equity fund available for co-investment with local and foreign firms in textile and 

apparel projects. 

 

Country Summaries 

For analytical purposes, the 40 SSA countries were placed into four groups; the grouping 

was primarily based on the value of each country’s exports of textile and apparel inputs, 

but also took into account their level of apparel exports and other available information 

concerning the countries’ industries producing textile and apparel inputs. Countries that 

are exporting significant quantities of textile and apparel inputs were either assumed to be 

competitive or to have conditions in place that make them the most likely candidates for 

competitive production of textile and apparel inputs through new or increased investment 

or other measures. 

• Group 1 countries—Ethiopia, Kenya, Lesotho, Madagascar, Mauritius, Nigeria, 

South Africa, Swaziland, Tanzania, and Zambia—accounted for the vast majority 

of total SSA country exports of both textile and apparel inputs (94 percent) and 

apparel (95 percent) in 2007. Table ES.1 provides a summary of the production 

of the Group 1 countries, identifies potential competitive textile and apparel 
xxiii

inputs, and highlights key competitive advantages and disadvantages to 

production. 

• Group 2 countries—Botswana, Ghana, Malawi, Mozambique, Namibia, and 

Uganda—are either the next-largest SSA country exporters of textile and apparel 

inputs (excluding the major cotton producers), or in the case of Malawi, the 

eighth-largest apparel exporter from the region. Textile and apparel inputs are 

primarily produced on outdated machinery, and the products are intended mostly 

for local and regional markets. Uganda is the one notable exception, having 

experienced some success in producing and exporting organic cotton T-shirts to 

the United States (from yarn and knit fabric produced in Uganda). 

• Group 3 countries—Benin, Burkina Faso, Cameroon, Chad, Mali, Senegal, and 

Togo—consist of the major cotton-producing countries in West Africa 

(excluding Nigeria). Textile and apparel inputs are produced on outdated 

machinery, and the products are intended almost entirely for local and regional 

markets. 

 

• Group 4 countries 2

 are the least likely candidates for significant competitive 

production of textile and apparel inputs in the near future. Available information 

indicates that they have no recent or current significant commercial production of 

textile and apparel inputs, and no significant commercial production of apparel. 

 2

 Group 4 countries are Angola, Burundi, Cape Verde, Comoros, Democratic Republic of the Congo, 

Republic of the Congo, Djibouti, Gabon, The Gambia, Guinea, Guinea-Bissau, Liberia, Niger, Rwanda, São 

Tomé and Príncipe, Seychelles, and Sierra Leone. 
TABLE ES.1 Summary of selected SSA textile and apparel input producers 

Group 1 countries Textile and apparel input production 

Potentially competitive textile and apparel input products Competitive factors 

Ethiopia The Ethiopian textile sector includes eight vertically 

integrated textile mills, along with stand-alone spinning mills for yarn and thread production. Most of the yarn spun in Ethiopia is used in the production of woven cotton fabric. In addition to cotton yarn and woven fabric, Ethiopia’s textile sector also produces acrylic yarn, nylon fabric, woolen and waste-cotton blankets, bedsheets, and sewing thread. Ethiopia currently produces cotton and silk yarn for domestic hand-loomed production of niche products, such as home furnishings, for export to the United States, Canada, and Europe. 

U.S. or similar markets

• Cotton yarn • Hand-loomed silk and cotton  fabric Local or regional markets

• Woven fabric for blankets • Acrylic yarn • Nylon fabric • Sewing thread 

Competitive advantages: 

• large potential dome• domestic production • stable political and b• access to Ethiopian 

investment incentive

Competitive disadvantages: 

• import competition fr• low cotton productio• poor transportation i• underutilized industr• outdated machinery • low labor productivity • lack of skilled labor 

Kenya The Kenyan textile industry has contracted since the 

1990s and currently consists of three vertically integrated firms and a few smaller, nonintegrated firms. Kenya’s vertically integrated firms produce cotton (including organic) and synthetic yarn, and knitted and woven fabric for use in apparel exported to the United States and the EU. Some yarn and fabric is also sold regionally. 

U.S. or similar markets

• Organic cotton yarn • Organic cotton knit fabric • Yarn and fabric of  cotton/manmade-fiber  blends • Thread Local or regional markets

• Woven fabric for blankets • Acrylic yarn 

Competitive advantages: 

• export-oriented appa• relatively skilled labo

Competitive disadvantages: 

• poor roads • high-cost electricity • limited and high cost 

equipment 

Lesotho Lesotho has one vertically integrated denim textile 

mill that spins cotton yarn, dyes the yarn, weaves the fabric, and cuts and sews the finished denim jeans. The mill reportedly produces 10,800 tons of openended ring-spun cotton yarn, and 18 million yards of denim fabric a year for regional apparel manufacturers producing for the export market. Lesotho primarily exports woven fabric to other apparel-producing African countries. The vast majority of Lesotho’s apparel exports are to the U.S. market. 

U.S. or similar markets

• Cotton yarn (for knit and  woven) • Knit cotton fabric • Denim fabric 

Competitive advantages: 

• export-oriented appa• government investm

acquisitions 

Competitive disadvantages: 

• poor water/wastewa

infrastructure 

• low labor productivity • high HIV/AIDS preva• lack of skilled labor 

xxiv 
TABLE ES.1 Summary of selected SSA textile and apparel input producers—Continued 

Group 1 countries Textile and apparel input production 

Potentially competitive textile and apparel input products Summary analysis of comp

Madagascar The Malagasy textile industry consists of one large 

vertically integrated woven textile and apparel firm that consumes most of its own fabric production, two small knit apparel firms that produce their own knit fabric, and another firm that weaves fabric for blankets. The Malagasy apparel sector is geared to supply the U.S. and EU markets. 

U.S. or similar markets

• Cotton yarn • Knit cotton fabric • Woven cotton fabric for  shirts • High-end buttons Local or regional markets

• Woven cotton fabric for  blankets • Supplies and trim such as  packaging, hangers,  buttons, and other inputs for  the local textile and apparel  industry

Competitive advantages: 

• export-oriented appa• availability of skilled • government investm

Competitive disadvantages: 

• diminishing supply o• high-cost, unreliable • political instability • high cost of capital • poor road infrastruct

Mauritius The Mauritian industry is concentrated among 10 

large textile and apparel groups that collectively account for 75 percent of total textile and apparel exports. The textile and apparel input industry in Mauritius produces yarn and knit fabric mostly for vertical operations, but also for local and regional apparel manufacturers. Mauritius exports textile and apparel inputs to the region and finished apparel primarily to the EU. 

U.S. or similar markets

• Cotton yarn • Knit cotton fabric • Denim fabric 

Competitive advantages: 

• export-oriented appa• market linkages with • favorable business e• government support 

diversification 

• relatively modern ma• shorter lead times to 

customers 

• availability of skilled 

Competitive disadvantages: 

• small domestic appa• increased labor cost• long lead times to th

EU customers 

• increasing land and • additional costs asso

isolation 

xxv
TABLE ES.1 Summary of selected SSA textile and apparel input producers—Continued

Group 1 countries Textile and apparel input production 

Potentially competitive textile and apparel input products Summary analysis of comp

Nigeria The Nigerian textile industry has contracted since the 

1990s and currently consists of 20 or fewer factories. Some larger textile firms are vertically integrated from cotton ginning to spinning, weaving, dyeing, printing, and finishing. The major textile firms produce a variety of products, including polyester staple fiber and filament, yarn, greige cloth, and wax prints. Nigerian printed fabric is sold as loose cloth, rolls, or pieces to the domestic market. Nigerian textile exports are focused on the EU market. 

U.S. or similar markets

• Cotton yarn • African wax prints as  decorative fabric for blinds  and curtains Local or regional markets

• Ethnic printed fabric for  apparel use 

Competitive advantages: 

• large potential dome• history of cotton and • availability of skilled 

Competitive disadvantages: 

• lack of a developed • increased import fore

and used clothing) 

• cotton quality issues • poor infrastructure, p

South Africa The South African textile sector is relatively large and 

encompasses the full range of manufacturing operations, including production of fiber, thread, yarn, knit and woven fabric, nonwovens, trim and accessories, and dyeing and finishing operations. There are currently 11 firms in South Africa producing yarn. Five firms manufacture nonwovens, and reportedly seven firms produce trim, including elastic, buttons, zippers, and similar items. Approximately 16 firms produce woven fabric, while 15 companies produce knit fabric. Of the country’s textile producing firms, nine are vertically integrated, manufacturing either yarn through fabric, yarn through finished apparel, or yarn through household textiles. Cotton, wool, mohair, manmade fibers, and natural fibers are used in the domestic textile industry. 

U.S. or similar markets• Cotton yarn • Knit cotton fabric • Technical textiles • Performance fabric • Industrial textiles • Work wear fabric • High-quality worsted fabric Local or regional markets

• Carded and combed fibers,  yarn, knit and woven fabric,  nonwoven fabric, trim and  accessories 

Competitive advantages: 

• large domestic appa• developed infrastruc• favorable and stable • large and developed 

Competitive disadvantages: 

• high labor costs • inflexible labor mark• lack of skilled labor i• lack of management

skills 

• lack of investment • long lead times from • highly volatile excha

xxvi
TABLE ES.1 Summary of selected SSA textile and apparel input producers—Continued

Group 1 countries Textile and apparel input production 

Potentially competitive textile and apparel input products Summary analysis of comp

Swaziland Swaziland has one integrated textile producer that 

dyes, spins, and knits cotton fabric (including organic), and then sews the fabric into apparel for export. The firm produces yarn for internal consumption and for export to the region and the EU. Swaziland has an internationally branded zipper producer that supplies local and regional apparel manufacturers. 

U.S. or similar markets

• Zippers • Cotton yarn • Knit cotton fabric Local or regional markets

• Knit cotton fabric for  uniforms • Zippers 

Competitive advantages: 

• export-oriented appa• government incentiv

investment in the tex

• reliable electricity su

Competitive disadvantages: 

• small domestic appa• limited amount of loc• labor unrest • high HIV/AIDS preva

Tanzania The Tanzanian textile sector consists of one 

independent spinning mill and several integrated firms. The industry spins mostly cotton yarns for both knit and woven fabric. A few fabric mills also blend cotton with polyester or other synthetic fibers; however, all synthetic fibers must be imported. Tanzanian textile mills sell these textiles regionally, or minimally process and print fabric to be sold locally as final products. 

U.S. or similar markets

• Cotton yarn • Organic cotton yarn and 

fabric 

Local or regional markets

• Khanga cloth • Kitenge cloth • Knit fabric for mosquito nets • Woven fabric for bedsheets • Printed woven fabric for  traditional wear 

Competitive advantages: 

• availability of good-q• history of cotton yarn • stable political and e

Competitive disadvantages: 

• lack of a developed • unreliable and costly • port delays and cong• lack of skilled labor • lack of market knowl• low labor productivity 

Zambia The Zambian textile sector consists of an estimated 

four knitting/weaving firms and four vertically integrated firms that spin their own yarn for use in finished textile and apparel production. Zambia’s textile sector produces primarily 100 percent cotton yarn, along with small quantities of manmade-fiber yarn, including poly/cotton and acrylic yarn. Most of the yarn produced in Zambia is exported, but a small share is used domestically in the production of woven fabric used to manufacture niche apparel articles such as uniforms and mining work wear, primarily for the local or regional market. 

U.S. or similar markets

• Cotton yarn Local or regional markets

• Yarn and fabric used in the  production of blankets,  school and military  uniforms, mining protective  wear, and hospital scrubs. 

Competitive advantages: 

• domestic availability • open trade regime 

Competitive disadvantages: 

• small domestic appa• insufficient access to • outdated machinery • lack of skilled labor • low labor productivity • high transportation c• unreliable electricity 

xxvii 

1-1 

CHAPTER 1 

Introduction 

Purpose of Report 

Section 3(c)(1) of Public Law 110-436, An Act to extend the Andean Trade Preference 

Act, and for other purposes (hereinafter “the Act”), requires that the Commission 

“conduct a review to identify yarns, fabrics, and other textile and apparel inputs that 

through new or increased investment or other measures can be produced competitively in 

beneficiary sub-Saharan African countries.”1

 The Commission must report the results of 

its review to the House Committee on Ways and Means, the Senate Committee on 

Finance, and the Comptroller General no later than seven months after enactment of the 

law, in this case by May 15, 2009.2

Product and Country Scope 

The product coverage is defined in the Act as “yarns, fabrics, and other textile and 

apparel inputs.” For the purpose of this report, yarn and fabric include any items named 

as such in chapters 50 through 60 of the Harmonized Tariff Schedule of the United States 

(HTS). “Other textile and apparel inputs” include thread, trim (e.g., zippers, buttons, 

embroidery in the piece, and elastic), manmade-staple fibers and manmade-filament 

fibers, and all types of fibers that have been carded or combed (an intermediate stage of 

production) prior to yarn spinning.3

 Yarn and fabric account for most of the production of 

and trade in these products, and as such, the primary focus of the analysis is on yarn and 

fabric. Cotton, other than carded and/or combed cotton fibers, is discussed throughout the 

report as an important raw material to the industry producing textile and apparel inputs, 

but it is considered a product of the agricultural sector and not a textile and apparel input 

in this report. Finally, for the purpose of this report, it is assumed that “textile and apparel 

inputs” include not only inputs that go into the apparel sector, but also inputs that are 

used as part of other finished textile goods, particularly home furnishings such as sheets, 

blankets, and towels. 

For purpose of this study, the “beneficiary sub-Saharan African countries” are the 

countries that are eligible for African Growth and Opportunity Act (AGOA) benefits 

 1

 A copy of section 3(c) of Public Law 110-436 is available in app. A. 2

 Section 3(c)(2) of the Act requires the Comptroller General, after receiving the Commission’s report, 

to submit a report based on the Commission’s report and other available information. The Comptroller 

General’s report is to contain recommendations for changes to U.S. trade preference programs, including the 

African Growth and Opportunity Act (AGOA) and the amendments to AGOA made by that Act, to provide 

incentives to increase investment and other measures necessary to improve the competitiveness of beneficiary 

SSA countries in the production of yarns, fabrics, and other textile and apparel inputs identified in the 

Commission’s report, including changes to requirements relating to rules of origin under such programs. See 

copy of the Federal Register notice in app. B. 3

 “Other textile and apparel inputs” are covered in the following HTS headings: 5004–5007, 5105–

5112, 5203–5212, 5306–5311, 5401–5408, 5501–5516, 5603–5606, 5801–5804, 5806–5811, 5903, 6001–

6006, 8308, 9606, and 9607. 
1-2 

(hereafter referred to as “SSA countries”).4 As of May 15, 2009, the 40 countries eligible 

for AGOA benefits were: Angola, Benin, Botswana, Burkina Faso, Burundi, Cameroon, 

Cape Verde, Chad, Comoros, Republic of the Congo, Democratic Republic of the Congo, 

Djibouti, Ethiopia, Gabon, The Gambia, Ghana, Guinea, Guinea-Bissau, Kenya, Lesotho, 

Liberia, Madagascar, Malawi, Mali, Mauritius, Mozambique, Namibia, Niger, Nigeria, 

Rwanda, São Tomé and Príncipe, Senegal, Seychelles, Sierra Leone, South Africa, 

Swaziland, Tanzania, Togo, Uganda, and Zambia (figure 1.1). 

Approach 

To identify the textile and apparel inputs that can be produced competitively through new 

or increased investment or other measures, the Commission examined the competitive 

factors and the current state of the industry in each SSA country and sought the views of 

industry officials, consultants, and other private- and public-sector officials in identifying 

products that potentially can be produced competitively in the SSA countries. The list of 

products identified is likely not exhaustive, and the potential factors of competitiveness 

vary considerably from country to country. 

The end-use market is an important consideration in determining the criteria that make a 

product competitive. Given that the Commission’s report is to be used by the Comptroller 

General to make recommendations for changes to U.S. trade preference programs, the 

primary focus of this report is on products that can be competitive in the United States 

and similar markets. For purpose of this report, “produced competitively” is defined as 

products that can be produced at sufficient cost, quality, style, and timeliness so as to be 

exported, or used by downstream commercial SSA apparel or other finished textile 

producers/exporters. Exports by such downstream entities to the United States or similar 

markets are central to the Commission’s analysis. 

As part of the analytical process, this report discusses current production of textile and 

apparel inputs in the SSA countries, regardless of the intended end-use market. Currently, 

much of the SSA production of textile and apparel inputs is consumed locally or 

regionally. To the extent possible, this report examines whether such production can also 

be competitively exported to the U.S. and EU markets, or used in downstream production 

of goods sold in these markets. Also, to the extent that such information is available, this 

report identifies textile and apparel inputs that appear to be competitive in downstream 

production for local and regional markets. 

Analytical Framework 

The analytical framework was designed to identify the potential for competitive 

production of textile and apparel inputs at the country and product level. Since many 

factors of competitiveness depend on situations unique to a country (e.g., geography,

 4

 The SSA countries that currently are not beneficiary countries are the Central African Republic, Côte 

d’Ivoire, Equatorial Guinea, Eritrea, Mauritania, Somalia, Sudan, and Zimbabwe. Any reference to these 

countries in the report will name the country specifically. 
1-3 

FIGURE 1.1 Map of SSA beneficiary countries 

South

Africa

Namibia

Botswana

Angola

DR Congo

Rep. Congo

Ethiopia

Tanzania

Madagascar

Mozambique

Zambia

Niger Chad Mali

Nigeria

Mauritius

Seychelles

Comoros

Cape Verde

São Tome

and

Príncipe

Togo Kenya

Ghana

Gabon

Sierra Leone

Liberia

Guinea

Guinea-Bissau

The Gambia

Senegal

Benin

Cameroon

Burkina Faso

Djibouti

Uganda

(Rwanda)

(Burundi)

Malawi

Lesotho

Swaziland
1-4 

government policies, and infrastructure), the analysis was conducted on a 

country-by-country basis.5

 Data and information were collected to the extent feasible on 

each of the 40 countries, including trade data on textile and apparel inputs, apparel, and 

finished textile products (e.g., towels and blankets); and information on the current and 

historical production of textile and apparel inputs. Data were also collected on key 

macroeconomic factors for each of the countries, such as factors related to infrastructure 

and the business environment. 

 

After data were collected, analysis focused on the countries that are already producers 

and exporters of, or are the most likely candidates for production of, textile and apparel 

inputs. Focusing on the countries that are currently exporting textile and apparel inputs 

helps identify the conditions that must be in place to facilitate competitive production of 

such inputs by new SSA exporters, as well as factors that must be in place for continued 

competitive production by existing SSA exporters. Examining countries that are 

successful producers and exporters also helps determine which textile products have the 

greatest potential for future production in these countries or other, similar SSA countries 

though increased investment or other measures. 

 

To facilitate this analysis, the 40 SSA countries were placed into four groups; the 

grouping was primarily based on the value of each country’s exports of textile and 

apparel inputs, but also took into account their level of apparel exports and other 

available information concerning the domestic industries producing textile and apparel 

inputs. Group 1 comprises the SSA countries that were the 10 largest exporters of textile 

and apparel inputs in 2007, excluding Togo and Sierra Leone (table 1.1).6

 The Group 1 

countries accounted for the vast majority (95 percent) of total SSA-country exports of 

textile and apparel inputs in 2007. 7

 Six of the Group 1 countries (Kenya, Lesotho, 

Madagascar, Mauritius, South Africa, and Swaziland) are also among the top 10 SSA 

apparel exporters. Another three of the Group 1 countries (Nigeria, Tanzania, and 

Zambia) are among the top 10 SSA cotton producers. The Group 1 countries also account 

for most of the installed capacity for yarn spinning and shuttleless weaving machinery in 

the SSA region.8

 Group 2 comprises the next-largest SSA beneficiary-country exporters 

of textile and apparel inputs (excluding the major cotton producers), as well as Malawi,

 5

 The important role of country characteristics in assessing international competitiveness was addressed 

at the Commission’s hearing. For example, the Secretary General of COMESA stated that “we have the 

argument that it’s countries that compete. It is the firms that are competitive. But for the firms to be 

competitive there are certain policies by governments. . . that will contribute towards that competitiveness.” 

USITC, Hearing transcript, January 29, 2009, 29 (testimony of The Honorable Sindiso Ngwenya, COMESA). 6

 Togo is a large cotton producer and is covered in Group 3 with the other major cotton-producing 

countries. Although trade data used by the Commission indicate that Togo is a large exporter of textile and 

apparel inputs, there are likely reporting errors in the trade data for Togo. According to the U.S. Department 

of State, Togo does not have any commercial production of textiles. U.S. Department of State, U.S. Embassy, 

Lomé, “Togo: Effects of Infrastructure Conditions on Export Competitiveness,” October 3, 2008. Although 

trade data used by the Commission indicate that Sierra Leone is a large exporter of textile and apparel inputs, 

the Commission has been unable to confirm commercial textile production in Sierra Leone. It is likely that 

there are errors in the reported trade data. 7

 Testimony at the Commission’s hearing highlighted the limited number of countries currently placed 

to potentially produce competitive textile and apparel inputs. For example the Secretary General of 

COMESA stated that few countries were well positioned to benefit from AGOA, and added that, with 

exception of Mauritius and Kenya, few countries in the COMESA region are globally competitive. Mr. 

Ryberg also stated that “The production of export-quality textiles is largely concentrated in just a handful of 

countries: South Africa, Mauritius, Kenya, and Lesotho.” USITC, Hearing transcript, January 29, 2009, 7, 13 

(testimony of The Honorable Sindiso Ngwenya, COMESA), and 114 (testimony of Paul Ryberg, African 

Coalition for Trade). 8

 See app. C for tables on installed capacity and shipments for spinning and weaving machinery, and 

shipments of knitting machinery for the SSA countries. 
1-5 

TABLE 1.1 Exports of textile and apparel inputs and apparel by SSA country, 2007 (1,000 $) 

Country 

Exports of

textile and

apparel 

inputs

% change

(2003-07)

Exports of

apparel 

% change 

(2003-07)

Group 1 countries: 

 South Africa 300,457 1.1 206,913 -49.9

 Mauritius 63,104 97.6 942,147 -2.9

 Nigeria 20,654 -28.3 503 -37.3

 Tanzania 20,349 122.4 7,984 55.1

 Lesotho 19,224 2,929.2 413,792 -3.2

 Zambia 14,532 -44.0 582 500.6

 Madagascar 10,560 23.7 695,774 91.9

 Swaziland 9,803 -31.9 143,184 -6.4

 Kenya 7,998 -10.8 269,584 29.8

 Ethiopia 3,059 -62.9 5,886 180.2

 Subtotal 469,740 8.3 2,686,348 5.7

Group 2 countries:

 Ghana 2,812 -40.0 9,341 77.2

 Uganda 1,833 533.6 1,608 -51.5

 Mozambique 1,754 655.7 960 -77.5

 Namibia 1,550 1,268.8 31,452 -30.2

 Botswana 1,096 5,994.8 43,109 199.7

 Malawi 252 94.1 37,455 -11.2

 Subtotal 9,296 69.4 123,923 8.2

Group 3 countries: 

 Togo 5,470 39.2 5,907 152.9

 Burkina Faso 2,470 38.8 1,293 1,695.1

 Benin 2,118 -47.6 89 -33.7

 Mali 1,411 133.8 3,900 836.3

 Senegal 1,337 116.1 2,605 375.6

 Cameroon 1,137 -27.7 2,724 34.2

 Chad 33 -30.6 71 -84.0

 Subtotal 13,977 11.0 16,590 177.3

Group 4 countries: 

 Sierra Leone 3,424 305.0 2,781 -56.3

 Djibouti 324 1,013.6 86 403.5

 Niger 292 -5.2 411 88.2

 Seychelles 248 2,498.7 381 228.6

 Gambia 238 58.3 449 81.0

 Congo, Dem. Rep. 221 333.4 248 34.4

 Guinea 168 2.5 336 452.5

 Burundi 144 -79.5 127 -36.6

 Cape Verde 143 2,058.2 7,887 5.3

 Comoros 108 884.9 303 384.2

 Liberia 65 -33.3 357 -66.6

 Rwanda 58 -77.5 10 -97.3

 Gabon 45 -24.5 347 291.3

 Sao Tome and Principe 43 -73.7 56 -90.1

 Congo, Rep. 20 -8.7 25 298.8

 Angola 14 -54.5 38 -58.9

 Guinea-Bissau 5 153.2 5 306.7

 Subtotal 5,561 91.1 13,847 -19.4

 Grand Total 498,573 9.6 2,840,709 6.0

Source: World Bank, WITS Database. 
1-6 

which is included because it is the eighth-largest apparel exporter from the region. Group 

3 comprises the major cotton-producing countries in West Africa (excluding Nigeria).9

Finally, Group 4 comprises SSA countries that are the least likely candidates for 

competitive production of textile and apparel inputs in the near future. Information 

available on these countries indicates that they have no recent or current commercial 

production of textile and apparel inputs, and no significant commercial production of 

apparel. While data and information were collected and analyzed for all of the countries, 

the primary focus of the analysis is on the countries in Group 1, followed by the countries 

in Groups 2 and 3. The Commission also identified the most important competitive 

factors related to a country’s ability to competitively produce textile and apparel inputs. 

In order to analyze the factors affecting the competitive production of textile and apparel 

inputs, it was necessary to examine not only factors affecting production of the inputs 

themselves, but also those related to the entire textile and apparel supply chain.10

 

Textile and apparel inputs are intermediate, generally capital-intensive products that are 

produced from raw material such as cotton, and are used in the production of final goods 

such as apparel. Since the retail and apparel sectors decide whether to use SSA 

country-produced textile and apparel inputs, the Commission’s analysis began by 

examining the factors affecting retailers’ and apparel manufacturers’ demand for textile 

and apparel inputs. Next, the factors affecting supply were examined, including factors 

affecting the production of the inputs themselves and the availability of raw materials. 

Finally, the factors that affect the entire supply chain were examined, including the 

business environment and factors affecting trade and the physical movement of goods 

(such as trade preferences, duties, logistics, and transportation infrastructure) (figure 1.2). 

Fieldwork and Data Sources 

The Commission used a variety of sources and information to determine which textile 

and apparel inputs can be produced competitively in SSA countries, and the key factors 

underpinning the competitive production of such products. Primary research included 

gathering information through fieldwork, in-person and telephone interviews, and e-mail 

communications with a variety of stakeholders. As part of this process, Commission staff 

interviewed industry officials from all parts of the textile and apparel supply chain, 

including the retail sector, apparel manufacturers, yarn and fabric producers, and 

representatives of the cotton sector. Commission staff interviewed SSA textile industry 

consultants, including consultants that work on behalf of the U.S. Agency for 

International Development (USAID), the World Bank, and the private sector. 

 9

 Nigeria, along with the other major cotton-producing countries, Tanzania and Zambia, is included in 

Group 1. 10 A traditional value chain analysis accounts for the value that is created in a product as it is 

transformed from raw inputs to the final product consumed by end users. The key steps in the value chain 

analysis include choosing the sector(s) to assess, analyzing the market, mapping the value chain, measuring 

the performance of the chain and establishing benchmarks, analyzing performance gaps, and establishing 

recommendations for policy changes with potential downstream implementation. FIAS, Moving Toward 

Competitiveness, August 2007, ix, 2-9, and 2-10. While it was beyond the scope of this study to determine 

the costs associated with each step of production and movement across the textile and apparel supply chain, 

the analysis in this report attempts to identify the most important factors that contribute to or inhibit the 

competitiveness of the industries or firms in each country. 
1-7 

FIGURE 1.2 Competitive framework for textile and apparel inputs production 

Business environment 

Factors affecting trade and movement of goods 

Yarn, fabric, and other

textile and apparel inputs

Raw 

materials

-------- Factors affecting supply --------

Apparel Retail 

---- Factors affecting demand ----

Source: Commission staff. 

In addition, Commission staff traveled to Ethiopia, Mauritius, Tanzania, and South Africa 

to meet with industry and government officials, as well as private-sector consultants. 

Commission staff interviewed SSA government officials regarding their countries’ textile 

and apparel input industries and efforts their governments have made to support and 

expand competitive production of textile and apparel inputs. Commission staff also met 

with officials of firms from Cameroon, Ghana, Mauritius, Madagascar, Swaziland, South 

Africa, and Uganda exhibiting at a U.S. trade show, as well as officials from USAID, 

who organized and helped sponsor the African representation at the show. In total, 

Commission staff contacted over 130 industry and government officials in the United 

States and SSA countries. 

 

This report also relies on information obtained from prior Commission work and 

fieldwork to Lesotho, Madagascar, Kenya, Senegal, and Swaziland. Finally, this report 

draws on testimony at the Commission’s public hearing held on January 29, 2009, and 

written submissions submitted for this investigation.11 

Secondary sources of information included various U.S. government agencies, 

international organizations, and research institutions that deal with SSA trade-related 

issues. Such institutions include, but are not limited to, U.S. Agency for International 

Development (USAID), the U.S. Department of Agriculture, the U.S. Trade and 

Development Agency, the World Bank, the World Trade Organization, the United 

 11 App. D contains a list of the witnesses who appeared at the Commission hearing. App. E contains 

summaries of the testimony presented at the Commission hearing, as well as the written testimony and 

written positions of interested parties. 
1-8 

Nations, the UN Economic Commission for Africa, the African Development Bank, and 

the International Monetary Fund. Economic and infrastructure measures were assembled 

from the World Bank’s World Development Indicators and Enterprise Survey Indicators 

databases, and business environment measures were collected from the World Bank’s 

Doing Business database. 

The Commission used textile and apparel trade data at the Harmonized System 6-digit 

level from the World Integrated Trade Solution (WITS) database for 2003–07, the most 

recent five-year period for which data were available.12 To increase data accuracy and 

coverage, textile and apparel export values were based on trading partners’ import values 

(mirror data). Nevertheless, in many cases the data likely underestimate trade, 

particularly among the SSA countries, because some countries did not report data or 

reported data only for certain years. In addition, there are likely reporting errors in the 

data that may under- or overestimate reported trade. 

Organization 

Chapter 2 identifies the textile and apparel input products that can be produced 

competitively in SSA countries, based on Commission analysis of the factors of 

competitiveness and industry views. The chapter also provides an overview of SSA 

exports of textile and apparel inputs, with a focus on current exports of textile and apparel 

inputs by type of product. Chapter 3 identifies the factors of competitiveness required for 

the production of textile and apparel inputs in SSA countries. This chapter identifies 

demand and supply factors, as well as factors affecting the entire supply chain that are 

usually associated with competitive production of textile and apparel inputs. Chapter 4 

presents the Commission’s analysis by individual country profiles. Divided according to 

four country groupings, Chapter 4 provides a country-by-country analysis of the 

industries producing textile and apparel inputs and the competitive factors affecting such 

production. 

 12 The database accessed via WITS is the Commodity Trade Statistics database (UN COMTRADE), 

which is maintained by the United Nations Statistics Division. UN COMTRADE contains annual trade flows 

(imports and exports) reported by more than 140 countries or areas, with commodity-by-partner detail at the 

6-digit level of various commodity nomenclatures. For more detailed information on the underlying sources 

and definitions of WITS or UN COMTRADE, see http://wits.worldbank.org/witsweb/.
2-1 

CHAPTER 2 

Product Summary 

In compiling its list of products that can potentially be produced competitively, the 

Commission used data and information from multiple sources, examined key competitive 

factors affecting production in each SSA country, and considered SSA textile and apparel 

input production in the context of the global textile and apparel industry and the current 

world economic climate. 1

 In addition, the Commission examined textile and apparel 

inputs that the SSA countries are currently producing that are exported to, or used in the 

production of apparel for export to, the United States, the EU, and similar markets. Many 

of the textile and apparel inputs that are identified as having the potential to be produced 

competitively through new or increased investment or other measures are inputs that are 

already being produced in the SSA countries, and in many cases are already being 

exported from the SSA countries to other markets. Even though these products could be 

considered competitive, production and exports of such products are declining in many 

instances. It is likely that new or increased investment or other measures would bolster 

the competitiveness of existing production of textile and apparel inputs, thereby assisting 

the industry to maintain or perhaps expand current production and export levels of these 

inputs, as well as possibly increase the potential for production of additional textile and 

apparel inputs. 

 

The list of products identified below that can potentially be produced competitively may 

not be exhaustive. In addition, each country’s competitiveness with respect to the 

identified factors may vary considerably from country to country, and thus, the potential 

for each product to be competitive will also vary by country, as will the response of any 

particular country or industry to new or increased investment or other measures directed 

at the textile and apparel inputs sector. 

Textile and Apparel Inputs That Can Be Produced 

Competitively 

SSA countries appear to have the greatest potential to be competitive in the production of 

textile and apparel inputs made of cotton. Cotton is the primary fiber currently used in the 

production of yarn and fabric in the SSA countries, and it is grown in large quantities in 

the region. Cotton yarn, cotton knit fabric, denim fabric, and to a lesser extent, cotton 

woven shirting fabric appear to have the greatest potential for competitive production in 

SSA countries either for direct export to, or for use in downstream production of apparel 

for export to, the United States, the EU, and similar markets. 

 

In addition, SSA countries also have the potential to increase the competitive production 

of certain niche products; these niche products are currently produced and exported (or 

are used in the production of downstream articles for export). These niche products are 

diverse; their production quantities are small; and they supply narrow markets. Both the 

cotton textile and apparel inputs and the niche products listed below may also be 

 1

 A more detailed discussion of the competitive challenges facing the competitive production of textile 

and apparel inputs is provided in chap. 3, while the individual country industries are discussed in detail in 

chap. 4. 
2-2 

niche products are diverse; their production quantities are small; and they supply 

narrow markets. Both the cotton textile and apparel inputs and the niche products 

listed below may also be competitive in some local and regional markets, as 

numerous SSA industry sources reported producing textile and apparel inputs for 

both regional consumption and export outside of the region. Finally, there are some 

products that appear best suited for local and regional consumption. However, such 

production would also benefit from many of the same types of investments and other 

measures that would assist production for export outside of the region. A summary of 

the potentially competitive products is provided below. 

• Cotton textile products: 

 

o Cotton yarn (including cotton/manmade-fiber blends) is currently being produced 

in the region for direct export to the United States, the EU, and similar markets, 

as well as for use in downstream production of apparel for export to these 

markets. 

o Cotton knit fabric (including cotton/manmade-fiber blends) of the type used in 

T-shirts, polo shirts, and other similar types of knit shirts is likely to have the 

most competitive potential. This fabric is generally produced by firms that 

manufacture the garments, which provide a ready market for the fabric. A few 

firms indicated that they also sell some of their knit fabric production to other 

firms. To the extent that there is a thriving apparel sector producing a relatively 

homogenous line of knit apparel, it is possible that this sector could expand 

through new investment. 

o Cotton denim fabric is produced in a number of SSA countries, including 

Mauritius, Lesotho, and South Africa. There appears to be a sufficient base of 

denim apparel manufacturing in the SSA countries to provide a market for 

regionally produced denim fabric. Nevertheless, one industry source suggested 

that the sector faces significant challenges compared with Asian suppliers, and 

that the viability of the industry depends on the level of demand from the apparel 

sector and the degree to which existing infrastructure is improved. 

o Woven cotton shirting fabric of a suitable quality for export is produced in 

Mauritius and Madagascar by two firms for use in apparel shipped to the United 

States, the EU, and similar markets. 

• Niche products: 

o Organic cotton products (particularly yarn and knit fabric used in T-shirts for 

export) are currently being produced in SSA countries such as Swaziland, 

Uganda, and Mauritius. There may be potential for increased production of such 

niche articles, particularly as global demand for organic and environmentally 

friendly goods increases.

o Certain woven wool fabric and certain high-tech and industrial fabric are 

currently produced in South Africa and exported directly to, or used in the 

manufacture of products exported to, the United States, the EU, and similar 

markets. Industry sources indicated that the industry producing such fabric would 

benefit if textile products from South Africa were covered under AGOA. 

Currently, South Africa is the only SSA country not eligible for duty-free 

treatment for textile products. 
2-3 

o Yarn and knit fabric of modal and other specialty manmade fibers may have 

some limited potential in SSA production of knit apparel sold at the higher end of 

the market. Although these fibers are not produced in commercial quantities in 

the region, apparel made from these fibers has larger duty preference margins 

under AGOA compared with products made of cotton. There are some firms in 

Mauritius reportedly importing the fibers, from which they spin limited quantities 

of yarn and knit fabric that are used in apparel for export. 

o A small number of Ethiopian companies produce hand-loomed fabric of cotton 

and silk for home furnishings and apparel. The cotton and some of the silk used 

by these companies are sourced domestically, and the finished articles are 

consumed both locally and exported to niche markets in the United States, 

Canada, and Europe.

o Although the vast majority of African print fabric is produced for local markets, 

some U.S. consultants suggested that there may be potential to produce and 

market such fabric for use in home furnishings for niche U.S. markets. African 

producers currently face strong competition from imports of Chinese fabric, 

some of which is alleged to counterfeit trademarked African prints.

o Industry sources indicated that trim production follows apparel production, if 

there is sufficient demand from the apparel sector. Currently, some zippers and 

ornamental trims are being produced competitively for direct export to, and for 

use in apparel for export to, the United States, the EU, and similar markets, as 

well as for apparel sold regionally. A few countries produce specialty buttons 

from natural products such as nuts, wood, coconut shell, and horn. 

• Products for local and regional markets: 

o A number of countries produce cotton, wool, and other woven fabrics used in 

uniforms and work wear for local and regional sales. The fabric reportedly is not 

of a quality or variety desired for uniforms produced for the U.S. market.

o Some countries, primarily South Africa, produce knit and woven apparel fabrics 

of various fibers for use in garments intended for consumption in domestic, 

regional, and smaller non-regional markets. However, such fabric may not meet 

the quality or cost demands of consumers in the United States, the EU, and 

similar markets.

o A number of SSA countries spin acrylic yarn for local and regional consumption, 

primarily for use as hand-knitting yarn or for use in blankets. Acrylic yarn, 

particularly hand-knitting yarn, is bulky and therefore costly to ship, so it is more 

economical to produce it locally than to import it from Asia.

o A number of countries weave fabric for blankets for local and regional 

consumption, as well as for sale to relief organizations in the region. Other 

woven products for local and regional consumption included woven fabric for 

bedsheets and towels.

o One industry source suggested that some of the West African countries could 

potentially increase capacity utilization in their factories and help their cotton 

sectors by weaving fabric for cotton bale wrap and cotton picking bags, to be 

used in place of the commonly used polypropylene bags and wrap that 

contaminate the cotton.
2-4 

o Tanzanian firms knit fabric for mosquito nets that are procured by international 

relief organizations for local and regional consumption.

Exports of Textile and Apparel Inputs 

As noted, a number of the textile and apparel inputs identified above are products that 

SSA countries are already producing and exporting. An examination of textile and 

apparel inputs currently exported to the United States or similar markets identified 

trade and production trends, areas of specialization, and patterns of consumption. 

Countries that were successful exporters during the 2003–07 period were also 

evaluated for the competitive conditions that likely contributed to their success in 

export markets. Examining countries that are successful producers and exporters also 

helps determine which textile products have the greatest potential for future 

production in these countries or other, similar SSA countries though increased 

investment or other measures. Finally, exports of textile and apparel inputs were used 

as one indicator of production of textile and apparel inputs, as comprehensive data on 

production of such products in the SSA countries are not available on a comparable 

basis across countries.2

SSA exports of textile and apparel inputs were largely concentrated in a few product 

areas and fiber types. The leading textile and apparel inputs exported by SSA 

countries were woven fabric and yarn (tables 2.1 and F.3 and figure 2.1). About twothirds of SSA’s woven fabric exports in 2007 consisted of cotton fabric, including, 

but not limited to, denim and greige (unfinished) fabric. Mauritius, South Africa, and 

Lesotho, all denim producers, accounted for the largest share of cotton fabric exports. 

TABLE 2.1 SSA exports of textile and apparel inputs, by product group, 2003–07 (Millions of $) 

Product group 2003 2004 2005 2006 2007

Woven fabric 116.5 165.7 137.7 123.1 134.2

Yarn 138.7 167.9 150.9 138.4 128.2

Carded or combed fibers 92.0 102.4 85.8 94.2 92.2

Other fabric 26.7 34.7 29.1 33.3 40.0

Trim 27.3 36.1 36.3 36.9 37.6

Knit fabric 13.3 19.3 19.8 22.1 25.6

Manmade fibers 30.7 32.6 31.4 20.6 24.0

Thread 9.6 14.3 17.2 20.9 16.9

 Total 454.8 573.1 508.3 489.6 498.6

Source: World Bank, WITS Database (accessed December 3, 2008). 

Note: Figures may not sum to total shown due to rounding. 

 2

 Although exports were used as one indicator of production, export data do not reflect production of 

textile and apparel inputs that are consumed within a country. Many of the SSA countries consume at least 

part of their production of textile and apparel inputs in the production of apparel for export. 
2-5 

FIGURE 2.1 SSA exports of textile and apparel inputs, by product group, 2007

0 20 40 60 80 100 120 140

($millions)

Woven fabric

Yarn

Carded or combed fibers

Other fabric

Trim

Knit fabric

Manmade fibers

Thread

Source: World Bank, WITS Database (accessed December 3, 2008). 

Manmade-fiber filament yarn accounted for the largest share of SSA exports of yarn in 

2007 (49 percent), followed by cotton yarn (27 percent). South Africa accounted for 

almost all exports of manmade-filament yarn, but these exports are unlikely to continue at 

current levels, as the last of South Africa’s manmade-filament yarn facilities that 

produces yarn for apparel recently closed.3

 Zambia was the largest exporter of cotton 

yarn ($14.2 million), followed by Tanzania ($4.5 million), Mauritius ($2.9 million), 

Kenya ($2.4 million), and Nigeria ($2.3 million). 

Knit fabric accounted for a comparatively small share of the SSA exports of textile and 

apparel inputs (5 percent in 2007), because knit fabric tends to be produced by vertically 

integrated firms that consume the knit fabric in their production of apparel such as 

T-shirts or polo shirts. Woven fabric mills, by comparison, typically don’t consume all of 

their fabric within vertically integrated firms. Woven fabric mills generally must 

specialize to be cost effective and thus cannot produce all the different fabric types 

required for any one apparel manufacturer. An apparel manufacturer, particularly in the 

case of woven garments, may use hundreds of different types of fabric to achieve the 

desired results required by its customers. 

 

SSA exports of trim consisted of a variety of different products, including braids and 

ornamental trimmings; zippers; narrow fabric;4

 buttons; buckles, eyelets, and clasps; lace; 

labels; and embroidery in the piece or strip.5

 South Africa was the largest exporter for 

most types of trim, including: braids and ornamental trimmings; narrow fabric; buckles, 

eyelets, and clasps; and labels. Swaziland was the largest exporter of zippers, and 

Madagascar was the largest exporter of buttons and embroidery in the piece or strip. 

 3

 SSA industry representative, interview by Commission staff, Johannesburg, South Africa, 

February 23, 2009. 4

 Includes narrow woven and knit fabric, including elastic. Not all narrow fabric is used as trim for 

garments. 5

 Embroidery in the strip or piece consists of pieces of fabric that are embroidered. These pieces are 

later attached to garments. 
2-6 

Carded or combed fibers of wool or animal hair accounted for the vast majority of SSA 

exports of carded or combed fibers in 2007 (90 percent), almost all of which was from 

South Africa.6

 Carded or combed fibers of cotton accounted for another 7 percent of total 

SSA exports of such products, most of which were from Tanzania, a major SSA cotton 

producer. 

 

Exports of “other fabric” consisted primarily of nonwoven fabric (70 percent of the total 

in 2007) and fabric that is coated, covered, or laminated with plastic (21 percent). South 

Africa supplied the vast majority of SSA exports of other fabric in 2007 ($40.0 million, 

or 93 percent). 

South Africa also supplied the vast majority of SSA thread exports (93 percent of the 

total in 2007). Most of South Africa’s thread exports were to the EU (83 percent) and 

consisted of manmade-fiber filament thread. Many vertically integrated textile and 

apparel firms in SSA countries also produce thread as part of their spinning operations 

and consume it in their manufacture of apparel. 

 6

 Carded and combed fibers are an intermediate product in the process of producing spun yarn. To 

produce carded fibers, the bales of fibers are opened, cleaned, aligned, and formed into continuous strands of 

untwisted fibers called “sliver.” Combed fibers go through an additional “combing” process to remove short 

fibers in the sliver. Combed wool fibers are commonly referred to as “wool top.” 
3-1 

CHAPTER 3 

Factors of Competitiveness 

SSA countries face numerous and substantial challenges in their production of yarn, 

fabric and other textile and apparel inputs. As a whole, SSA countries have an 

insufficient apparel base through which to develop and sustain upstream production in 

yarn, fabric, and other inputs. SSA countries also face severe challenges with their 

infrastructure, such as inadequate power and water supply, and inadequate transportation 

networks. These infrastructure challenges not only raise the cost of existing production, 

but also deter significant new investment in capital-intensive yarn- and fabric-producing 

industries. Other factors that inhibit competitive production of textile and apparel inputs 

include insufficient and high-cost capital; lack of a skilled workforce; lack of knowledge 

regarding regional and foreign markets; and outdated machinery and equipment in many 

of the existing textile mills. Additionally, although cotton is grown in large quantities in 

the SSA region, the quality of some cotton is diminished by polypropylene fibers that 

contaminate the cotton during the picking and baling process. 

Many factors that affect textile and apparel input competitiveness in SSA countries are 

addressed below. However, other factors may also affect competitive production of 

textile and apparel inputs in some SSA countries, including exchange rate fluctuations 

and differing levels of market access for each SSA country. A full analysis of these 

factors was beyond the scope of this study. However, to the extent that such factors are 

important to individual countries, they are discussed in chapter 4 under the relevant 

country reviews. 

Factors Affecting Demand for Textile and 

Apparel Inputs 

One of the biggest challenges facing SSA countries for both current and potential future 

production of textile and apparel inputs is the lack of demand for such products. The 

presence of a viable domestic or regional apparel industry, which provides local demand 

for textiles and other inputs produced in the region, and the influence of foreign retailers 

and apparel firms on the global supply chain are key factors affecting demand for SSAproduced textile and apparel inputs. As stated by one industry source, “The African 

apparel industry, the customer base of the textile industry, is too small and too 

geographically fragmented to easily support a textile industry of sufficient size to benefit 

from economies of scale.” 1 Further, the SSA apparel industry faces significant 

competition in both local and foreign markets from large Asian suppliers, and in domestic 

markets from imports of used clothing. 

Large Retailers’ Influence on the Global Apparel Industry 

The emergence of global supply chains for textiles and apparel has resulted in retailers 

increasingly controlling their supply networks, and in increased concentration of 

 1

 USITC, Hearing transcript, January 29, 2009, 73 (testimony of Paul Ryberg, African Coalition for 

Trade). 
3-2 

retailers’ global buying power.2 The sourcing decisions of these large buyers affect the 

entire textile and apparel supply chain. Retail buyers not only purchase apparel, but also 

influence or dictate the choice of fabric used in the apparel they buy, based on the price 

and variety of the fabric (including such things as the hand,3

 finish, color, and quality).4

One industry source suggested that the selection of fabric is so important to retailers 

because “clothing is sold based on the fabric.”5 Retailers and apparel firms also often 

prequalify textile firms for the production of fabric, a process that can take up to four to 

six weeks.6

 

Retail competition is intense, particularly since the final phase-out of quotas under the 

Agreement on Textiles and Clothing (ATC) at the end of 2004. 7 The increased 

concentration of global buying power in the industrialized countries has negatively 

affected SSA textile and apparel export competitiveness. Large buyers in the 

industrialized countries typically require a wide range of product varieties and large 

volume sales at low prices. Asian textile and apparel producers and transnational firms 

(often based in Hong Kong and Taiwan) generally have a competitive advantage in 

organizing large-scale production runs compared with smaller-scale SSA producers. 8

Industry sources indicated that it is difficult for SSA producers to be cost competitive in 

the production of yarn, fabric, and finished apparel compared with many of the large 

Asian suppliers, such as China, India, and Bangladesh, and that without duty-free 

preferences under AGOA, most textile and apparel exports to the United States likely 

would not be cost competitive.9

 

Intense retail competition pushes buyers to focus on low prices and quick delivery times. 

Shorter delivery times allow retailers to make decisions on styles, colors, and the volume 

of orders closer to the selling season, allowing for more accurate forecasting and fewer 

markdowns. The desire for shorter order-to-delivery lead times may increase the 

incentive to use local or regional SSA fabric in apparel for export.10 For example, many 

apparel firms in Mauritius produce their own yarn and fabric, or buy the yarn and fabric 

inputs locally, to reduce the lead times for the European market. However, retailers’ 

desire for shorter lead times may also reduce the competitiveness of SSA apparel exports 

vis-à-vis other suppliers that are able to respond more quickly. 

 2

 By 2010 it is predicted that the largest 10 retailers in the world will account for 25–30 percent of 

world textile and apparel trade. World Bank, Vertical and Regional Integration, July 2007, 7. 3

 The hand of a fabric refers to how the fabric feels and drapes when made into a garment. 4

 USITC, Denim Fabric, 2008, SR-12; SSA industry representative, interview by Commission staff, 

Las Vegas, NV, February 16, 2009. 5

 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 6

 USITC, Commercial Availability of Fabrics and Yarn, 2007, SR-20. 7 The ATC and its predecessor, the Multifiber Arrangement (MFA), governed most world trade in 

textiles and apparel by providing a framework for quotas to limit imports from developing countries into 

developed-country markets. The quotas were removed in phases under the ATC, with the final removal 

taking place after its expiration at the end of 2004. For SSA countries, this meant that its major Asian 

competitors were no longer subject to quotas in the EU and the U.S. markets, and thus competition for SSA 

producers increased substantially in these markets. For additional background on the MFA and ATC, see 

USITC, Textiles and Apparel, 2004, 1-8, 1-9. 8

 Kaplinsky and Morris, “Do the Asian Drivers Undermine Export-oriented Industrialization in SSA?” 

2008, 260. 9

 Ibid., 269; industry consultant, interview by Commission staff, Washington, DC, January 15, 2009. 10 One U.S. importer indicated that the availability of SSA regional yarn and fabric allowed its SSA 

clothing supplier to produce garments with shorter lead times and to quickly replenish its customers’ stock. 

U.S. importer, e-mail message to Commission staff, March 25, 2009. 
3-3 

Existence of a Viable Local or Regional Apparel Industry 

Consistent demand for inputs from a thriving and relatively stable local apparel 

manufacturing sector is considered important for the production of yarn, fabric, and other 

textile and apparel inputs.11 Most SSA countries need long-term, viable apparel sectors to 

develop sustainable backward and forward supply chain linkages to ensure reliable 

demand for textile and apparel inputs.12 Because most yarn, fabric, and other textile and 

apparel input manufacturing requires relatively large levels of capital investment, in some 

cases in excess of $100 million, textile and apparel input producers must run their 

production equipment at high capacity utilization rates in order to cover their fixed 

investment costs.13 For some SSA countries, local and regional apparel producers have 

provided a base level of textile and apparel input demand that has helped textile and 

apparel input manufacturers produce more cost efficiently.14

Given the importance of the retail sector to the entire supply chain, it is important for 

yarn and fabric firms to have linkages with downstream apparel manufacturers that, in 

turn, have sourcing relationships with retail buyers, branded apparel firms, or their 

agents. Many textile operations in the SSA region are part of vertically integrated firms 

that produce yarn, fabric, and apparel for export. One industry source suggested that 

textile (yarn and fabric) mills are better able to succeed if they also have apparel plants to 

process their fabric, and sales teams to sell the apparel.15 Other SSA industry sources 

suggested that firms need assistance in making these linkages, such as through the 

business-to-business (B2B) events sponsored by the USAID trade hubs, as well as 

increased exposure at international trade shows where retail buyers are present.16 The 

trade hubs hold periodic B2B events at which they bring together all parts of the supply 

chain (retailer buyers, apparel manufacturers, and yarn and fabric producers) in targeted 

meetings to help facilitate business across the SSA region and with international buyers.17 

As a whole, the SSA apparel industry is small, and faces intense competition in export 

and domestic markets, particularly from China, which accounted for nearly 40 percent of 

the world’s total clothing exports in 2007 (table F.4). By comparison, SSA apparel 

exports account for less than 1 percent of world apparel exports. SSA apparel exports fell 

by 12 percent in the year following the phase-out of quotas under the ATC, as SSA 

apparel producers faced increased global competition from Asian producers in many of 

their export markets. 18 Although SSA apparel exports recovered somewhat in the 

following years in 2007, export levels were still 7 percent below 2004 levels. 

 11 Production of export-quality fabric depends on having a strong domestic market for the fabric. 

USITC, Hearing transcript, January 29, 2009, 64 (testimony of Anthony Carroll, Manchester Trade Ltd.). 

Reportedly, the number one constraint inhibiting the development of a textile industry in SSA is the 

uncertainty in SSA apparel industry. Industry consultant, interview by Commission staff, Washington, DC, 

December 2, 2008. 12 World Bank, Vertical and Regional Integration, July 2007, xi. 13 USITC, Hearing transcript, January 29, 2009, 75 (testimony of Paul Ryberg, African Coalition for 

Trade). 14 For example, Nigerian textile and apparel plants were built to supply the domestic and regional 

markets. The collapse of Nigeria’s apparel industry has been a factor in the decline of its textile and apparel 

input industry. Industry consultant, interview by Commission staff, Washington, DC, February 17, 2009. 15 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 16 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 17, 2009; 

SSA industry representative, e-mail message to Commission staff, February 12, 2009. 17 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 17, 2009. 18 Not all SSA countries showed apparel export declines in 2005. For example, Nigerian, Ethiopian, 

and Ugandan apparel exports all increased in 2005. However, SSA countries accounting for the vast majority 

of SSA country apparel exports showed apparel export declines in 2005 (table F.4). 
3-4 

In addition to competition in export markets, SSA apparel manufacturing has also faced 

increased competition in local markets from imports of apparel from Asian countries and 

imports of used clothing, and thus supply a shrinking share of their own local and 

regional markets. SSA apparel imports increased by over 200 percent during the 2003–07 

period, with most of the increase (85 percent) coming from China. Further, over the past 

20 years, SSA imports of low-cost used clothing from developed countries have 

increased substantially.19 An October 2008 study assessing the impact of used clothing 

donations on apparel production in Africa estimated that imports of used clothing were 

responsible for roughly 40 percent of the decline in apparel production in an average 

African country over the period 1981 to 2000.20 In addition, a 2005 study found that 

imports of used clothing likely played a role in the decline of industrial textile and 

apparel production and employment in West Africa. 21 However, both studies noted that 

used-clothing imports were not the only cause of the declines, as used-clothing imports 

likely displaced apparel imports from other countries, particularly Asian producers. 

 

Sales of traditional African print fabric, sold in individual pieces for traditional dress, 

have also faced increased competition from imports of print fabric from China.22 Chinese 

exports of textile and apparel inputs to the Group 3 countries, which mostly produce 

traditional print cloth, increased by 77 percent, from $211.5 million in 2003 to $374.3 

million, in 2007. In some cases, Chinese producers are alleged to have violated the 

intellectual property rights of these products by borrowing their copyrights or designs 

without attribution, or by falsely labeling the print fabric as being of African origin.23

Factors Affecting the Supply of Textile and 

Apparel Inputs 

Numerous factors affect the competitive production of textile and apparel inputs. The 

most important factors include the infrastructure to support production of textile and 

apparel inputs, particularly reliable power supplies and abundant clean water; the cost 

and availability of capital; the age of existing plants and equipment; the capabilities, cost, 

and stability of the local labor pool; and the cost and availability of raw materials, such as 

cotton.

Power and Water 

For producers of most textile and apparel inputs, the availability of a steady supply of 

power is one of the critical factors affecting their competitiveness. 24 High electricity 

 19 Fraser, “Used Clothing Donations and Apparel Production in Africa,” 2008, 1765. 

20 Ibid., 1767. 

21 Baden and Barber, The Impact of the Second-hand Clothing Trade on Developing Countries, 

September 2005, 2. 22 USITC, Hearing transcript, January 29, 2009, 65 (testimony of Anthony Carroll, Manchester Trade 

Ltd.). 23 Ibid.; industry consultant, interview by Commission staff, Washington, DC, December 2, 2008; 

Victor Ahiuma-Young, “Chinese Exporters Destroy Nigerian Textile Industry,” October 27, 2008. 24 USITC, Hearing transcript, January 29, 2009, 94 (testimony of Paul Ryberg, African Coalition for 

Trade). 
3-5 

costs25 and electricity disruptions reduce productivity and revenue for SSA textile and 

apparel input manufacturers.26 Most yarn and fabric mills operate around the clock and a 

disruption in the power supply can ruin an entire production run. In addition, an 

unreliable supply of electricity adds to production costs, as firms must use back-up 

generators to operate during disruptions.27 Even with back-up power, productivity may be 

lower if the back-up power does not allow firms to run their production equipment at full 

capacity. In this situation, firms shut down part of their production equipment and/or 

reduce the speed of existing machines.28

 

SSA’s electricity infrastructure is, on average, the least developed, least accessible, least 

reliable, most costly to operate, and highest priced of any region in the world. 29

According to a World Bank enterprise survey of manufacturing firms in selected lesserdeveloped countries, nearly one-half of the surveyed firms in SSA countries reported that 

electricity supply conditions are a major production constraint (table 3.1). 30 Firms 

reported that power outages occurred, on average, 14 times per month, reducing sales by 

5.9 percent. 

Another important factor in the production of yarn and fabric is the availability of an 

abundant supply of clean water and the ability to treat wastewater.31 One U.S. retail buyer 

indicated that many of the SSA countries lack a sufficient supply of clean water, which is 

necessary for accurate dyeing.32 Because many retailers buy large volumes of coordinated 

garments from numerous sources, accurate dyeing results are critical. Improving SSA 

wastewater treatment capabilities would allow manufacturers to meet the environmental 

and compliance standards required by international buyers. Industry sources indicated 

that their U.S. and European customers require certification of social and environmental 

compliance, such as Worldwide Responsible Accreditation Program certification 

(WRAP).33

World Bank data also indicate that freshwater availability varies widely by SSA country 

(table 3.2). For example, South Africa, the largest SSA producer of textile and apparel

 25 For example, the average electricity rate for Kenya is $0.22/kWh, compared with average electricity 

rates for Egypt ($0.04/kWh), China ($0.09/kWh), and the United States ($0.06/kWh). SSA industry 

representative, telephone interview by Commission staff, March 5, 2009. 26 For example, in January 2008, rolling blackouts and load-shedding in South Africa disrupted textile 

and apparel production schedules, resulting in decreased productivity and revenue losses for textile and 

apparel manufacturers. One South African firm indicated that it lost 5,000 kg of dyed fabric as a result of the 

outages. USITC, Sub-Saharan Africa, 2009, 6-39. Another source indicated that electricity rates in Uganda 

are high and the supply is unstable. SSA industry representative, interview by Commission staff, Las Vegas, 

NV, February 16, 2009. 27 USITC, Hearing transcript, January 29, 2009, 30 (testimony of The Honorable Sindiso Ngwenya, 

COMESA). 28 Zaidi, “Optimize Spinning Profits During Power Cuts,” March 9, 2009. 29 USITC, Sub-Saharan Africa: Effects of Infrastructure Conditions, 2009, 5-1. 30 The World Bank enterprise survey data cited in this chapter are based on surveys of manufacturing 

firms in the selected SSA countries. As such, these data are not specific to textile firms, and may vary by 

regions within the surveyed countries. 31 USITC, Hearing transcript, January 29, 2009, 94–95 (testimony of Paul Ryberg, African Coalition 

for Trade). 32 This retail buyer also suggested that the dyeing process for denim can sometimes be more forgiving, 

as denim garments generally go through further washing and finishing operations. Also, denim garments are 

less likely to be part of coordinated color-matching outfits. U.S. importer, telephone interview by 

Commission staff, February 2, 2009. 33 SSA industry representative, interview by Commission staff, Nazareth, Ethiopia, March 4, 2009; 

SSA industry representative, interview by Commission staff, Dar es Salaam, Tanzania, February 24, 2009. 

For more information on WRAP, see http://www.wrapapparel.org/. 
3-6 

TABLE 3.1 Electricity supply and production constraints: Select SSA countries 

Selected SSA countries 

Percentage of

manufacturing firms

identifying electricity

supply conditions

 as a major production

constraint

Number of

power

outages in a

typical month

Value lost due

to power

outages

(% of sales)

Group 1 countries: 

Zambia 11.9 4.2 3.6

Swaziland 12.4 2.5 2.5

South Africa 20.8 2.2 1.6

Ethiopia 21.5 5.1 0.9

Kenya 27.6 7.3 6.4

Mauritius 42.9 3.6 2.2

Lesotho 43.7 7.1 6.0

Madagascar 54.6 13.7 7.7

Nigeria 75.9 26.8 8.9

Tanzania 88.4 12.0 9.6

Group 2 countries: 

Namibia 6.5 1.7 0.7

Botswana 6.8 1.7 1.4

Mozambique 24.8 3.1 2.4

Malawi 60.4 76.9 22.6

Uganda 84.2 11.0 10.2

Ghana 86.2 9.7 6.0

Group 3 countries: 

Burkina Faso 48.9 10.1 3.9

Mali 55.7 4.4 1.8

Senegal 57.7 11.8 5.0

Cameroon 61.1 12.7 3.9

Benin 69.2 (

a

) 6.5

Group 4 countries: 

Niger 21.6 20.7 2.5

Angola 45.8 7.8 3.7

Sierra Leone 53.4 15.9 6.6

Rwanda 55.0 13.7 8.7

Gabon 57.3 7.9 1.8

Liberia 63.6 5.3 3.7

Cape Verde 65.3 12.5 4.3

Congo, Dem. Rep. 70.3 17.8 5.6

Congo, Rep. 71.1 27.4 15.7

Burundi 72.3 12.0 10.7

Guinea-Bissau 74.1 9.2 5.3

Gambia 78.1 23.8 11.8

Guinea 83.6 33.9 14.0

 SSA average 48.1 13.7 5.9

Source: World Bank, IBRD, Enterprise Analysis Unit, Enterprise Surveys Database (accessed April 27, 2009). 

 aData are not available. 

Note: Data for Congo (Rep.), Gabon, Lesotho, Liberia, Madagascar, Mauritius, and Sierra Leone are for 2009. Data 

for Ghana, Kenya, Mali, Mozambique, Nigeria, Senegal, South Africa, and Zambia are for 2007. Data for Angola, 

Botswana, Burkina Faso, Burundi, Cameroon, Cape Verde, Congo (Dem. Rep.), Ethiopia, Gambia, Guinea, GuineaBissau, Malawi, Namibia, Niger, Rwanda, Swaziland, Tanzania, and Uganda are for 2006. Data for Benin are for 

2004. 
3-7 

TABLE 3.2 Water supply and constraints: Select SSA countries 

Selected SSA countries 

Average number of water

shortages in a typical

month (most recent year

available)a

Renewable internal

 freshwater resources

(cubic meters per capita, 

2007)

Group 1 countries: 

Swaziland 1.6 2,300

South Africa 2.4 936

Kenya 6.5 552

Ethiopia 8.3 1,543

Madagascar 9.0 17,133

Zambia 9.3 6,728

Mauritius 12.3 2,182

Tanzania 12.4 2,078

Nigeria 18.5 1,493

Lesotho (b

) 2,607

Group 2 countries: 

Namibia 0.9 2,961

Mozambique 2.3 4,693

Uganda 3.9 1,261

Malawi 4.3 1,159

Ghana 10.6 1,291

Botswana (b

) 1,276

Group 3 countries: 

Mali 5.8 4,865

Senegal 6.9 2,079

Burkina Faso 11.8 846

Cameroon 12.6 14,731

Benin (b

) 1,141

Group 4 countries: 

Guinea-Bissau 3.6 9,441

Burundi 7.8 1,184

Congo, Dem. 7.9 14,423

Angola 7.9 8,696

Gambia 8.4 1,758

Niger 8.4 247

Cape Verde 12.8 566

Guinea 15.7 24,093

Rwanda 17.7 976

Congo, Rep. (

b

) 58,937

Gabon (b

) 123,291

Liberia (b

) 53,852

Sierra Leone (

b

) 27,358

 SSA average 8.3 5,062

Sources: World Bank, IBRD, Enterprise Analysis Unit, Enterprise Surveys Database (accessed April 27, 2009); 

World Bank, World Development Indicators Online (accessed April 27, 2009). 

 a

Data for Madagascar and Mauritius are for 2009. Data for Angola, Ghana, Kenya, Mali, Mozambique, Nigeria, 

Senegal, South Africa, and Zambia are for 2007. Data for Burkina Faso, Burundi, Cameroon, Cape Verde, Congo 

(Dem. Rep.), Ethiopia, Gambia, Guinea, Guinea-Bissau, Malawi, Namibia, Niger, Rwanda, Swaziland, Tanzania, and 

Uganda are for 2006. Data for Benin are for 2004. 

 b

Data are not available. 
3-8 

inputs, reported a relatively low number of average monthly water shortages (2.4). 

Alternatively, Nigeria’s relatively high number of average monthly water shortages 

(18.5) reflects the recent deterioration in Nigeria’s basic infrastructure. Madagascar, 

which has been relatively successful in developing an apparel sector, reported the largest 

per capita supply of renewable internal freshwater resources of the Group 1 countries. 

However, as noted above, the World Bank enterprise survey data cited in this chapter are 

not specific to textile firms, and may vary by manufacturing sector and region within 

each surveyed SSA country. 

Finance 

The cost and availability of capital is an important factor affecting investment in new 

plants and equipment. Additionally, firms need access to working capital to cover 

operating costs such as purchasing raw materials and financing trade. 

According to the secretary general of the Common Market for Eastern and Southern 

Africa (COMESA), COMESA countries have problems accessing financing, and the cost 

of capital in COMESA countries is generally greater than 10 percent.1

 Other SSA textile 

and apparel industry sources indicate the rates for borrowing are as high as 15–17 percent 

in South Africa and even higher in other SSA countries.2

 World Bank data indicate that 

2007 lending rates for the reporting countries in Groups 1–3 ranged from 13 percent for 

Namibia to 45 percent for Madagascar, averaging 19 percent.3

 By comparison, the U.S. 

lending rate (prime) was 8 percent in 2007.4

 One SSA textile and apparel industry source 

suggested that, with borrowing rates as high as 15–17 percent, a borrower would require 

a 20–25 percent return on investment.5

 

Given the relatively high lending rates in SSA countries, SSA firms finance investment 

primarily through internal funds, and generally finance only a small share of their 

investment through bank loans. Figure 3.1 indicates that, in general, private sector firms 

in SSA countries with higher lending rates financed a smaller share of their investment 

through bank loans. For example, Madagascar, The Gambia, and Sierra Leone reported 

relatively high lending rates and low levels of bank-financed investment, whereas South 

Africa and Cape Verde reported relatively low lending rates and accompanying high 

levels of bank-financed investment. This relationship is not evident in all cases, as 

Mauritius and Malawi financed a relatively large share of their investment through bank 

financing, despite relatively high lending rates. 

Foreign direct investment (FDI) has been an important source of capital for certain SSA 

textile and apparel firms, particularly for some of the larger textile and apparel exporters. 

Textile and apparel production facilities in Lesotho are largely foreign owned, and the 

Madagascar apparel industry has attracted investment from France, Taiwan, China, and 

 1

 USITC, Hearing transcript, January 29, 2009, 36 (testimony of The Honorable Sindiso Ngwenya, 

COMESA). The 19 members of COMESA are Burundi, Comoros, Democratic Republic of the Congo, 

Djibouti, Egypt, Eritrea, Ethiopia, Kenya, Libya, Madagascar, Malawi, Mauritius, Rwanda, Seychelles, 

Sudan, Swaziland, Uganda, Zambia, and Zimbabwe. 2

 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 3

 World Bank, World Development Indicators Online (accessed February 5, 2009). The reported 

lending rates are nominal interest rates, which are not deflated to account for inflation rates of the SSA 

countries. 4

 IMF, International Financial Statistics Database. Events of the current financial crisis have likely 

increased lending rates and reduced available capital worldwide. 5

 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 
3-9 

FIGURE 3.1 Manufacturing firms’ share of investment accounted for by bank financing and lending 

interest rates in selected SSA countries 

0 10 20 30 40 50

Madagascar

Gambia

Malawi

Sierra Leone

Mauritius

Mozambique

Uganda

Zambia

Angola

Burundi

Botswana

Tanzania

Rwanda

Liberia

Cameroon

Lesotho

Kenya

South Africa

Swaziland

Namibia

Cape Verde

(percent)

Lending rate Bank financing

Sources: World Bank, IBRD, Enterprise Analysis Unit, Enterprise Surveys Database (accessed April 27, 2009); 

World Bank, World Development Indicators Online (accessed April 27, 2009) 

Note: Bank financing data for Madagascar and Mauritius are for 2009. Bank financing data for Ghana, Kenya, Mali, 

Mozambique, Nigeria, Senegal South Africa, and Zambia are for 2007. Bank financing data for Angola, Botswana, 

Burkina Faso, Burundi, Cameroon, Cape Verde, Congo (Dem. Rep.), Ethiopia, Gambia, Guinea, Guinea-Bissau, 

Malawi, Namibia, Niger, Rwanda, Tanzania, and Uganda are for 2006. Lending interest rate data for all selected 

SSA countries are for 2007.
3-10 

Mauritius. 39 The ownership structure in the Swaziland textile and apparel industries is 

concentrated among Taiwanese, Japanese, and, to a lesser extent, South African 

investment. In Ethiopia, several recent new FDI projects involve Canadian, Indian, 

Japanese, Swedish, and Turkish investors. 

It appears, however, that most of the foreign investment in textile and apparel production 

facilities took place before the removal of quotas at the end of 2004. Since 2004, textile 

and apparel FDI has shifted out of a number of SSA countries. For example, in Mauritius, 

the industry is now largely domestically owned (80 percent), as the industry underwent 

significant restructuring and consolidation since 2004, when 30 foreign firms (mostly 

from Hong Kong) left Mauritius. In 2008, Ramatex, a Malaysian company, closed all of 

its textile and apparel factories in Namibia. 

Age of Existing Plant and Equipment 

The age of existing plant and equipment can affect not only the cost of production, since 

older machinery is less productive than newer equipment, but also the quality and variety 

of products manufactured.40 Less than 20 percent of installed weaving machines in SSA 

countries are shuttleless looms. 41 Compared with shuttle looms, shuttleless looms 

generally weave fabric with fewer defects, in wider widths, and at reduced costs, owing 

to faster operating speeds. Shuttleless looms also require less power, space, and labor.42

According to International Textile Manufacturers Federation data, all of the installed 

capacity in Mauritius, Swaziland, and Lesotho consists of shuttleless looms, and virtually 

all of the installed capacity in South Africa consists of shuttleless looms. By comparison, 

most or all of the installed capacity in Nigeria, Ethiopia, Tanzania, Zambia, and the 

Group 2 and Group 3 countries consists of shuttle looms.43 According to COMESA, 

existing plants within the region were unable to capitalize on AGOA because plants “are 

using old technologies where the quality is not good,” and added that the African Cotton 

and Textile Industries Federation has a program to upgrade older SSA textile plants.44 In 

addition to quality issues with dated equipment, servicing the existing machinery can be a 

problem in the region due to the lack of both skilled technicians and spare parts. Delays 

in servicing machinery and receiving spare parts often result in idle machinery.45

 39 The examples of FDI in this section are drawn from the individual country reviews in chap. 4 of this 

report. 40 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 41 Based on ITMF, International Textile Machinery Shipment Statistics, 2007, app. C. 42 USITC, Textiles and Apparel, 2004, 1–22. 43 Stephen Lande of Manchester Trade Ltd. commented that, “it was unbelievable to me to see how 

little textile machinery is currently in Africa as a percentage in world production and how the share of the 

new purchases of textile machines, the African share, is even going down.” USITC, Hearing transcript, 

January 29, 2009, 60 (testimony of Stephen Lande, Manchester Trade Ltd.). 44 USITC, Hearing transcript, January 29, 2009, 121 (testimony of The Honorable Sindiso Ngwenya, 

COMESA). 45 Industry consultant, interview by Commission staff, Washington, DC, January 15, 2009. 
3-11 

Labor 

Labor is another important consideration in the production of textile and apparel inputs. 

Many countries have identified the lack of skilled labor as an inhibiting factor.46 Because 

the production of most textile and apparel inputs is capital, rather than labor, intensive, 

the labor pool generally must be more educated and have specific technical, marketing, 

design, and/or managerial skills. Some foreign investors employ expatriates to fill these 

positions, which can also add to the cost of production if the firm must pay room and 

board for the employees. One industry source indicated that the management structure 

can have a significant effect on the overhead costs of a firm.47 This source indicated that 

many SSA firms, particularly in South Africa, have multiple tiers of management 

compared with the flatter (and less costly) management structures found in many Asian 

firms. 

Low labor productivity is an inhibiting factor for SSA textile and apparel input producers. 

Labor costs in production are a function of both wage rates and labor productivity. With 

the exception of South Africa, wage rates paid by SSA textile and apparel input 

producers are comparable to those paid by Asian producers.48 However, available data on 

SSA countries’ labor productivity for all manufacturing suggests that SSA labor 

productivity is low relative to labor productivity in other developing countries. For 

example, value added per worker in a medium-sized manufacturing firm in Zambia 

($1,773), Uganda ($3,321), and Nigeria ($4,413) was far lower than in India ($15,238) 

and China ($14,198) (figure 3.2). Value added per manufacturing worker in Kenya 

($9,303) and Tanzania ($11,037) is closer to that of China and India. These data illustrate 

the range of differences across SSA countries and some major competitors; value added 

per worker in the textile and apparel and related inputs industries likely vary to some 

degree from these aggregate manufacturing sector figures. For example, several textile 

manufacturers reported low productivity rates among workers in the textile and apparel 

industry in Tanzania. Some firms reported importing textile workers from neighboring 

Kenya.49

In some SSA countries, the workforce is reportedly not formalized and ready for working 

Western working hours.50 The textile and apparel input workforce often comes from an 

agricultural base, is not used to working with machinery, and requires more training.51

Health problems, particularly related to HIV/AIDS, also affect the productivity of the 

labor force, resulting in high worker turnover and absenteeism rates. 

 46 For example, one industry source maintained that there is a lack of textile industry experts in 

Ethiopia. SSA industry representative, e-mail message to Commission staff, March 18, 2009. Another 

industry source maintained that it is difficult to find qualified people to work in textile plants in South Africa 

because of the skills deficit. SSA industry representative, interview by Commission staff, Cape Town, South 

Africa, February 27, 2009. 47 Industry consultant, interview by Commission staff, Washington, DC, January 15, 2009. 48 Kaplinsky and Morris, “Do the Asian Drivers Undermine Export-oriented Industrialization in SSA?” 

2008, 266; Maliti, “Rise and Fall of African Textile Industry,” March 15, 2005. 49 The secretary general of COMESA acknowledged that textile and apparel producers in China, 

Pakistan, and other Southeast Asian countries may be more competitive overall, but maintains that, in terms 

of factory level labor costs, African textile and apparel producers compare favorably with China. USITC, 

Hearing transcript, January 29, 2009, 9–10 (testimony of The Honorable Sindiso Ngwenya, COMESA); 

Tanzanian government official, interview by Commission staff, Dar es Salaam, Tanzania, February 23-24; 

and industry representative, interview by Commission staff, Arusha, Tanzania, February 26, 2009. 50 Industry consultant, interview by Commission staff, Washington, DC, January 15, 2009. 51 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 
3-12 

FIGURE 3.2 Value added per worker in medium-sized manufacturing firms

0

2,000

4,000

6,000

8,000

10,000

12,000

14,000

16,000

18,000

Zambia

Uganda

Nigeria

Bolivia

Kenya

Tanzania

Nicaragua

China

India

Morocco

(U.S. Dollars)

Source: Subramanian and Matthijs, “Can Sub-Saharan Africa Leap into Global Network Trade?” January 2007, 8. 

Note: Medium-sized is defined as 50–199 workers. 

Raw Materials 

Except for cotton, and some wool and mohair, SSA producers of yarn, fabric, and other 

textile inputs import nearly all raw materials, including manmade fibers, dyes, and 

chemicals. Therefore, the cost and efficiency of producing textile and apparel inputs are 

affected by the ease and cost (such as tariffs and transportation) of importing raw 

materials. 

SSA countries have a competitive advantage in the production of cotton, which is used by 

many SSA countries in the production of yarn and fabric.52 However, the majority of the 

cotton produced, particularly from Group 3 countries, is exported outside the region.53 In 

addition, SSA cotton production declined by approximately one-third from 2003 through 

2007, in large part due to lower cotton prices and increasing costs of agrochemicals and 

seeds.54 Financing is an issue for the cotton sector, as access to short-term financing 

directly affects the ability of producers to purchase fertilizers, seeds, and other farm 

supplies. 

Cotton grown in SSA generally has favorable fiber characteristics, due in part to growing 

conditions and being handpicked. However, the quality is often compromised by 

contamination, particularly from polypropylene that contaminates the cotton from the 

picking bags and bale wrap. Polypropylene results in defects in the cotton yarn or fabric 

after the dyeing process. Besides contamination from polypropylene, the quality of some 

cotton is compromised by factors such stickiness resulting from insects. Sticky cotton, in 

particular, can cause irregularities in the yarn production, including yarn breakages.55

Sophisticated mills use complex systems that employ acoustic, optical, or color sensors to 

 52 See app. G, table G.1. 

53 See chap. 4, Group 3 discussion for additional information. 

54 See app. G, table G.1. 

55 Industry consultant, interview by Commission staff, Washington, DC, February 17, 2009. 
3-13 

remove contamination. Less sophisticated mills manually remove contamination or use 

bleaching or scouring methods. Application of the more sophisticated systems in SSA 

countries is hampered by the same factors that inhibit plant and equipment investment 

(e.g., cost and availability of finance, and lack of skilled labor). 

In 2006, the United States launched the West African Cotton Improvement Program, 

which is intended to increase the yields of and incomes from West African cotton, 

particularly in Benin, Burkina Faso, Chad, Mali, and to a lesser extent, Senegal.56 Among 

other things, the program is designed to improve cotton quality. 57 The program is 

scheduled to end in 2010. 

Some SSA countries have had some success in growing organic cotton for use in 

downstream yarn and fabric production. However, industry sources indicated that it is 

too costly for many farmers to go through the multiyear certification process for organic 

production.58

Finally, while it is an advantage to have a local supply of cotton for use in textile and 

apparel inputs, the duty savings on U.S. imports of apparel made of cotton, available 

through AGOA duty preferences, are significantly less than the duty savings for apparel 

that is primarily of manmade fibers. For example, the U.S. normal trade relations (NTR) 

duty rate for a cotton T-shirt (HTS subheading 6109.10.0000) is 16.5 percent ad valorem. 

By comparison, the U.S. NTR duty rate for a manmade fiber T-shirt (HTS subheading 

6109.90.10) is 32 percent ad valorem. Therefore, under AGOA preferences, there is 

greater incentive, in terms of duty savings, for SSA apparel producers to export apparel 

made with manmade fibers than apparel made with cotton. 

Factors that Affect the Entire Supply Chain 

A number of factors affect the cost and ease of doing business and the ability to attract 

new and increased investment along the entire supply chain. Such factors include the 

business environment (including political stability) and government policies that affect 

the business environment. Transportation infrastructure also has an enormous effect on 

the ability, time, and cost to import raw materials and export finished goods. Preference 

programs, such as AGOA, and regional trade agreements provide incentives to produce 

and export goods for certain markets. 

Business Environment 

The business environment in a country affects the cost of doing business and the time 

required to conduct business and trade. For the apparel sector, one study found a direct 

correlation between a country’s rank in the World Bank’s Doing Business Indicators and 

 56 U.S. Department of State, U.S. Embassy, Ouagadougou, “ West Africa Cotton Improvement 

Program Should Be Extended,” March 5, 2009. 57 Ibid. USAID, West Africa Cotton Improvement Program (WACIP)—Program Description, July 

2006. 58 SSA industry representative, interview with Commission staff, Port Louis, Mauritius, March 3, 2009; 

SSA industry representative, telephone interview by Commission staff, March 5, 2009. 
3-14 

increases in SSA exports of certain apparel from 2001 to 2004.59 In general, 28 of the 40 

SSA countries rank in the bottom third of 181 countries surveyed in terms of ease of 

doing business, based on the 2009 World Bank’s Doing Business Indicators (table 3.3). 

The indicators reflect the impact of SSA government policies on specific factors related 

to starting a business, obtaining construction permits, employing workers, registering 

property, getting credit, protecting investors, paying taxes, trading across borders, 

enforcing contracts, and closing a business. The top-ranked SSA country in 2009 was 

Mauritius (ranked 24th out of 181 countries), followed by South Africa (32nd) and 

Botswana (38th). Of the Group 1 countries, only Mauritius’ indicators are comparable to 

China’s and better than India’s indicators in terms of rank, time, and cost of trading 

across borders. In general, the cost and time associated with trade for SSA countries 

substantially exceed the major world exporters of textiles and apparel (table 3.3). 

Political stability is a major concern for businesses deciding whether to invest in textile 

and apparel input production facilities in SSA countries or to buy textile and apparel 

inputs produced in SSA countries. Figure 3.3 indicates that the incidence of political 

troubles in selected SSA countries generally declined during the 1996–2007 period, 

although there was an increase in political instability in 2007. There have also been more 

recent reports of political unrest in some SSA countries, such as Kenya and 

Madagascar.60

Factors Affecting Movement of Goods 

The cost and time for importing and exporting goods affects total production cost, as well 

as the ability of firms to meet the increasingly tight lead times demanded by retailers. 

Transportation infrastructure, customs clearance procedures, and certain other 

government policies affect the import of raw materials for each segment of the supply 

chain, the movement of goods within the region, and the export of finished goods to 

countries outside of the region. These factors include the quality and density of road, rail, 

and port infrastructure. In general, landlocked countries are at a disadvantage compared 

with those countries that have a port, unless the roads and rail transport between the 

landlocked countries and ports are good. Lesotho, for example, is a landlocked country, 

but it is able to take advantage of South Africa’s more developed infrastructure.61 Based 

on World Economic Forum survey data, South Africa, Mauritius, and Namibia have the 

most developed road, rail, and port infrastructure of the SSA countries (table 3.4). 

Industry sources indicated that lengthy port delays were a deterrent to sourcing from 

certain SSA countries. The cost and time it takes to export or import varies considerably 

by country, with Mauritius ranked the highest in terms of trading across borders 

indicators (20th out of 181 countries) and the Republic of the Congo ranked the lowest 

(176th) in 2009 (table 3.3). 

 59 De Melo and Portugal-Perez, “Rules of Origin, Preferences, and Diversification,” December 2008, 

found a correlation between a country’s business environment (represented by the country’s rank in the 

World Bank’s Doing Business Indicators) and that country’s apparel exports under the third-country fabric 

provision of AGOA. 60 Lough, “Death Toll Nears 40 from Madagascar Unrest,” January 28, 2009; USITC, Denim Fabric 

2008, SR-12. Madagascar is not included in the index in figure 3.3. 61 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 
3-15 

TABLE 3.3 Selected business environment indicators, 2009 

 Trading across borders 

 Exports Imports 

Economy 

Ease of doing

business rank Rank Time Cost Time Cost

 

Days

US $ per

container Days

US $ per

container

Group 1 countries: 

 Ethiopia 116 152 46 2,087 42 2,893

 Kenya 82 148 29 2,055 26 2,190

 Lesotho 123 141 44 1,549 49 1,715

 Madagascar 144 109 23 1,279 27 1,660

 Mauritius 24 20 17 725 16 677

 Nigeria 118 144 25 1,179 42 1,306

 South Africa 32 147 30 1,445 35 1,721

 Swaziland 108 154 21 2,184 33 2,249

 Tanzania 127 103 24 1,262 31 1,475

 Zambia 100 153 53 2,664 64 3,335

 

Group 2 countries: 

 Botswana 38 149 31 2,508 42 3,064

 Ghana 87 76 19 1,003 29 1,130

 Malawi 134 167 45 1,671 54 2,550

 Mozambique 141 140 26 1,200 32 1,475

 Namibia 51 150 29 1,686 24 1,813

 Uganda 111 145 39 3,090 37 3,290

 

Group 3 countries: 

 Benin 169 129 32 1,237 40 1,393

 Burkina Faso 148 173 45 2,132 54 3,630

 Cameroon 164 137 27 995 33 1,672

 Chad 175 159 78 5,367 102 6,020

 Mali 166 166 38 2,012 42 2,902

 Senegal 149 60 14 1,078 18 1,920

 Togo 163 84 24 940 29 963

 

Group 4 countries: 

 Angola 168 172 68 2,250 62 3,325

 Burundi 177 170 47 2,147 71 3,705

 Cape Verde 143 56 19 1,325 18 1,129

 Comoros 155 129 30 1,073 21 1,057

 Congo, Dem. Rep. 181 160 46 2,607 66 2,483

 Congo, Rep. 178 176 50 2,490 62 2,959

 Djibouti 153 35 19 1,058 16 978

 Gabon 151 128 20 1,945 22 1,955

 Gambia 130 73 24 831 23 922

 Guinea 171 110 33 720 32 1,191

 Guinea-Bissau 179 111 25 1,545 24 2,349

 Liberia 157 115 20 1,232 17 1,212

 Niger 172 169 59 3,545 64 3,545

 Rwanda 139 168 42 3,275 42 5,070

 São Tomé and Príncipe 176 88 27 690 29 577

 Seychelles 104 90 17 1,839 19 1,839

 Sierra Leone 156 132 29 1,450 34 1,535

Selected other non-SSA countries: 

 Bangladesh 110 105 28 970 32 1,375

 Cambodia 135 122 22 732 30 872

 China 83 48 21 460 24 545

 India 122 90 17 945 20 960

Source: World Bank, Doing Business 2009 Database. 
3-16 

FIGURE 3.3 Index of political troubles for certain SSA countries, 1996–2007 

0

50

100

150

200

250

300

350

400

1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007

Political troubles Trend line

Source: OECD and AfDB, African Economic Outlook 2007/2008, 2008, 48.

Note: The index is calculated on the basis of 18 SSA countries: Botswana, Burkina Faso, Cameroon, Chad, Ethiopia, 

Gabon, Ghana, Kenya, Mali, Mauritius, Mozambique, Namibia, Nigeria, Senegal, South Africa, Tanzania, Uganda, 

and Zambia. The index is based on the frequency of newspaper reports on indicators of political troubles, such as 

the occurrence of strikes, demonstrations, violence, and coups d’etat. Newspaper reports are taken from the weekly 

newspaper Marches Tropicaux et Mediterraneens. 

Another factor affecting the ability of firms to do business, particularly within the region, 

is the ability for people to travel to and within a country. The more difficult it is to reach 

a location, the less attractive it will be for foreign buyers of textile and apparel inputs to 

visit, unless there is a critical mass of business within a concentrated area. Mauritius 

scored the highest of the SSA countries in terms of quality of domestic transport network 

and road density (table 3.4) 

U.S. and EU Tariffs and Trade Preference Programs 

Both the United States and the EU offer trade preference programs for exports of SSA 

textiles and apparel.62 AGOA provides unilateral trade preferences for exports of SSA 

textiles and apparel to the U.S. market through 2015. Twenty-six of SSA countries are 

eligible to receive preferential treatment under AGOA for exports of yarn, fabric, and 

finished textile articles (such as bedsheets) provided the products originate entirely in one 

 62 The U.S. Generalized System of Preferences excludes most textile and apparel products. 
3-17 

TABLE 3.4 Selected infrastructure indicators 

Country 

Quality of

roadsa

Quality of

railroad 

infrastructureb

Quality

of port 

infrastructurec

Quality of

domestic 

transport 

networkd Road densitye

Group 1 countries: 

 Ethiopia 2.5 1.4 f4.1 4.6 4

 Kenya 2.5 2.1 3.4 4.2 11

 Lesotho 2.1 1.5 f2.8 3.6 20

 Madagascar 2.7 1.6 2.4 4.2 9

 Mauritius 4.4 (

g

) 4.7 5.9 99

 Nigeria 2.2 1.7 2.7 5.1 21

 South Africa 4.7 3.4 4.4 4.8 30

 Tanzania 2.8 2.4 3.2 5.0 9

 Zambia 2.3 1.7 f

3.7 4.8 12

 

Group 2 countries: 

 Botswana 4.2 3.4 f

4.1 4.7 4

 Mozambique 2.0 1.8 2.7 5.1 4

 Namibia 4.9 3.8 5.0 5.3 5

 Uganda 2.5 1.5 f

4.0 5.2 36

 

Group 3 countries: 

 Benin 2.7 1.5 2.9 2.8 17

 Burkina Faso 2.4 1.9 f

3.9 4.6 6

 Cameroon 2.0 1.9 2.6 4.1 11

 Chad 1.5 (

g

) f2.8 3.7 3

 Mali 2.7 1.7 f

3.7 5.3 2

 Senegal 2.6 1.5 3.6 5.6 7

 

Group 4 countries: 

 Burundi 2.0 (

g

) f3.0 3.9 48

 Gambia 3.5 (

g

) 4.1 5.1 37

 Mauritania 2.1 1.9 2.6 5.7 1

Source: Blanke and Chiesa, The Travel & Tourism Competitiveness Report 2008, 2008, 416–20. 

 

Note: Not all Group 4 countries were covered in the Blanke and Chiesa report. aQuality of roads: Roads are (1 = underdeveloped; 7 = extensive and efficient by international standards). bQuality of railroad infrastructure: Railroads are (1 = underdeveloped; 7 = as extensive and efficient as the 

world's best). 

 cQuality of port infrastructure: Port facilities and inland waterways are (1 = underdeveloped; 

7 = as developed as the world’s best). 

 dQuality of domestic transport network: Does the national transport network (domestic flights, buses, trains, 

taxis, etc.) offer efficient, accessible transportation to a wide range of travelers to key business centers and 

tourist attractions? (1 = no, not at all; 7 = yes, it is equal to the best in the world). 

 eRoad density: Kilometers of road per 100 square kilometers of land in 2004. fIndicates landlocked countries. For landlocked countries, port infrastructure measures the ease of access to 

port facilities and inland waterways. 

 gData not available. 
3-18 

or more of the eligible SSA countries (table 3.5).63 South Africa, the largest SSA exporter 

of textile and apparel inputs, is not eligible for this textile preference. Twenty-seven of 

the 40 SSA countries (including South Africa) are eligible for duty-free preferences for 

apparel under AGOA. Qualifying apparel includes apparel made of U.S. yarn and fabric; 

apparel made of SSA yarn and fabric; and apparel made in designated lesser-developed 

SSA countries from third-country (typically Asian) fabric.64 Apparel made with thirdcountry fabric is eligible for duty-free treatment through 2012 for 26 of the 40 SSA 

countries. Over 90 percent of the quantity of U.S. imports of apparel under AGOA 

consisted of apparel made with third-country fabric in 2008.65 In addition to the abovementioned textiles and apparel, other products that are eligible for duty-free treatment 

under AGOA include certain cashmere and merino wool sweaters; eligible hand-loomed, 

handmade, or folklore articles; and ethnic print fabric. 

One of the factors considered by many industry sources to be critical to the health of the 

textile and apparel manufacturing sectors in SSA countries is the long-term stability of 

AGOA trade preferences. A healthy apparel sector provides a demand incentive for new 

or increased investment in yarn, fabric, and other textile and apparel input production. As 

stated by one industry representative, “there is a role to be played by trade policy in 

encouraging the development of vertically integrated industry, but it needs to be a 

consistent policy that takes a long-term approach and does not change from year to 

year.”66 Industry sources suggested that AGOA be made permanent, or extended for at 

least 10 years, to allow sufficient time to recoup the large investments necessary to build 

a textile plant that will have the economies of scale to be competitive, which can run over 

$100 million.67

At the same time, industry sources recommended that the third-country fabric preference 

provision be extended along with AGOA, to allow apparel manufacturers to meet the 

needs of their customers and increase the stability of the apparel sector.68 Without the 

ability to use third-country fabric, buyers may turn to other regions, resulting in the loss 

of business for the apparel sector, as well as the local yarn and fabric sectors. 69

 

 63 As of December 20, 2006, the African Investment Act of 2006 (known commonly as AGOA IV) 

expanded AGOA coverage to include textiles and textile articles originating entirely in one or more lesserdeveloped beneficiary countries. Mauritius was not eligible for such benefits until October 31, 2008. In order 

for countries to be eligible for textile and apparel benefits, they must have in place an effective visa system to 

prevent illegal transshipment and use of counterfeit documentation, as well as effective enforcement and 

verification procedures. USDOC, “Trade Preference Programs: The African Growth and Opportunity Act,” 

undated (accessed May 7, 2009). For additional information, see USDOC, OTEXA, “Trade Preference 

Programs: The African Growth and Opportunity Act (AGOA).” http://www.otexa.ita.doc.gov/. 64 For purposes of AGOA, lesser-developed countries are those with a per capita gross national product 

of less than $1,500 in 1998, as measured by the World Bank. In addition, Botswana and Namibia are 

provided lesser-developed-country status, and Public Law 110-436 signed in October 2008, granted 

Mauritius lesser-developed-country status. 65 USDOC, OTEXA, “Trade Preference Programs by Category, 1/2009 Data.” 66 USITC, Hearing transcript, January 29, 2009, 73–74 (testimony of Paul Ryberg, African Coalition 

for Trade Ltd.). 67 Ibid., 75. 

68 SSA industry representative, telephone interview by Commission staff, January 28, 2009; industry 

consultant, interview by Commission staff, Washington, DC, January 15, 2009. 69 Nevertheless, there are some textile industry sources who oppose the third-country fabric provision. 

These sources indicated that third-country yarn and fabric imports compete with SSA production of such 

items. Industry representative, interview by Commission staff, Johannesburg, South Africa, February 23, 

2009; industry representative, interview by Commission staff, Mauritius, March 4, 2009. 
3-19 

TABLE 3.5 Eligibility for AGOA apparel and textile preferences 

Country 

Eligible for 

apparel 

preferences 

Eligible for thirdcountry apparel 

preferences 

 Eligible for 

textile 

preferences 

Group 1 countries: 

 South Africa Yes No No 

 Mauritius Yes Yes Yes 

 Nigeria Yes Yes Yes 

 Tanzania Yes Yes Yes 

 Lesotho Yes Yes Yes 

 Zambia Yes Yes Yes 

 Madagascar Yes Yes Yes 

 Swaziland Yes Yes Yes 

 Kenya Yes Yes Yes 

 Ethiopia Yes Yes Yes 

 

Group 2 countries: 

 Ghana Yes Yes Yes 

 Uganda Yes Yes Yes 

 Mozambique Yes Yes Yes 

 Namibia Yes Yes Yes 

 Botswana Yes Yes Yes 

 Malawi Yes Yes Yes 

 

Group 3 countries: 

 Togo No No No 

 Burkina Faso Yes Yes Yes 

 Benin Yes Yes Yes 

 Mali Yes Yes Yes 

 Senegal Yes Yes Yes 

 Cameroon Yes Yes Yes 

 Chad Yes Yes Yes 

 

Group 4 countries: 

 Sierra Leone Yes Yes Yes 

 Djibouti Yes Yes Yes 

 Niger No No No 

 Seychelles Yes Yes Yes 

 Gambia No No No 

 Congo, Dem. Rep. No No No 

 Guinea No No No 

 Burundi No No No 

 Cape Verde Yes Yes Yes 

 Comoros No No No 

 Liberia No No No 

 Rwanda Yes Yes Yes 

 Gabon No No No 

 São Tomé and Príncipe No No No 

 Congo, Rep. No No No 

 Angola No No No 

 Guinea-Bissau No No No 

Source: Based on information from the USDOC, “Trade Preference Programs: The African Growth and 

Opportunity Act,” undated (accessed March 17, 2009). 
3-20 

With respect to EU trade preferences for SSA countries, the EU grants duty-free and 

quota-free access to apparel originating in least developed countries under its 

“Everything But Arms” (EBA) initiative, part of the EU Generalized System of 

Preferences. However, the EBA rules of origin for textiles and apparel require double 

transformation (i.e., two significant production processes, such as fabric production and 

sewing of the garment, must be performed within the country), which makes it difficult 

for goods made in SSA countries to qualify. Formerly, the EU also granted preferential 

treatment to African, Caribbean, and Pacific countries (including the SSA countries, 

except South Africa) under the Cotonou Agreement. However, because the trade 

preferences under the Cotonou Agreement discriminated among WTO members, the EU 

had to obtain a WTO waiver to continue the preferences, which ultimately expired on 

December 31, 2007. The EU envisioned replacing the Cotonou preferences with bilateral 

free trade agreements, called Economic Partnership Agreements (EPAs), by January 1, 

2008. However, negotiations on the EPAs have been slow, and currently only 17 of the 

SSA countries have signed interim EPAs.70 The rules of origin under some EPAs allow 

for apparel using third-country fabric to receive duty-free treatment. 

Whereas U.S. and EU average tariffs on all manufactured goods are below 3 percent, the 

average applied tariffs on imports of textiles are 6.7 percent in the EU and 7.5 percent in 

the United States, and are higher for imports of clothing, at 11.5 percent and 10.8 percent, 

respectively.71 However, for many textile and apparel items, the tariffs in the United 

States and the EU exceed 20 percent.72 Therefore, preferential access offered by the 

United States and the EU offers significant competitive advantages to eligible countries 

in terms of duty savings.73 For example, 70 percent of U.S. imports of woven apparel 

from the AGOA beneficiary countries consisted of woven cotton trousers (mostly denim), 

which had an NTR duty rate of 16.6 percent.74 However, AGOA trade preferences offer 

significantly larger duty savings for manmade-fiber products compared with cotton 

products. The underdevelopment of the manmade-fiber textile and apparel sectors in most 

SSA countries prevents them from taking full advantage of the benefits afforded by 

AGOA. 

Regional Integration 

As competition in the global textile and apparel market is based on price and a number of 

other factors related to the efficient management of both production and logistics, 

regional integration could help relatively small SSA textile and apparel producers 

compete with larger, more integrated global competitors. Greater regional integration 

could facilitate access to materials, product specialization, production sharing, and speed 

to market. Cross-country integration could also enable producers to access larger apparel 

markets or to reduce costs associated with transport, storage, border delays, and tariffs.75

Industry sources indicated that because the SSA textile and apparel supply chain is 

 70 SSA countries that have initialed or signed interim EPAs are Botswana, Burundi, Cameroon, 

Comoros, Ghana, Kenya, Lesotho, Madagascar, Mauritius, Mozambique, Namibia, Rwanda, Seychelles, 

Swaziland, Tanzania, Uganda, and Zambia. For additional information on the EPAs, see European 

Commission, “Bilateral Trade Relations,” January 27, 2009. 71 World Bank, Vertical and Regional Integration, July 2007, iii. In 2008, U.S. trade-weighted average 

tariffs for U.S. imports of products entered under NTR rates of duty were 6.4 percent for textiles and textile 

products (SITC 65) and 14.5 percent for apparel (SITC 84). USITC, Dataweb. 72 World Bank, Vertical and Regional Integration, July 2007, iii. 73 World Bank, Vertical and Regional Integration, July 2007, iii. 74 HTS subheadings 6204.62.40 and 6203.42.40. The rate of duty for men’s and boys’ trousers of 

synthetic fibers (subheading 6203.43.40) is 27.9 percent ad valorem. 75 World Bank, Vertical and Regional Integration, July 2007, 20. 
3-21 

dispersed and fragmented across the continent, there is often a lack of knowledge of 

existing production within the SSA region, which inhibits increased cooperation along 

the textile and apparel supply chain.76 As noted above, USAID trade hubs are attempting 

to improve SSA supply chain linkages through B2B exchanges to facilitate trade and 

create better integration along the textile and apparel supply chain in the SSA region.77

There are numerous agreements and organizations in SSA to help facilitate economic 

cooperation and trade between members. The member countries and stages of 

implementation of the agreements vary considerably. To the extent that the agreements 

result in integrated goods, services, labor, or capital markets, or a common currency, they 

may encourage trade among the member countries by reducing production costs or 

exchange rate risk. Duty-free preferences or reduced rates of duty also encourage 

regional trade. In addition, regional integration may also expand the apparel market base 

available to regional producers, thereby encouraging investment in textile and apparel 

input production. Appendix H provides a brief summary of some of the free trade 

agreements and regional organizations that include SSA parties as members. 

 76 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 77 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 

4-1 

CHAPTER 4 

Country Review1

Overview 

To identify the potential for competitive production of textile and apparel inputs, the 

factors of competitiveness outlined in chapter 3 were applied on a country-by-country 

basis, since many of the factors are dependent upon situations unique to a country (e.g., 

geography, government policies, and infrastructure). In analyzing the factors affecting the 

competitive production of textile and apparel inputs, factors affecting production of the 

inputs themselves were examined, as well as factors affecting how the sector fits into the 

entire supply chain. 

 

To present an overall picture of the state of the textile and apparel inputs industry in each 

country and how the industry fits into the domestic, regional, and global supply chain, the 

country reviews provide general country information, an overview of the textile and 

apparel producing sectors, a presentation of trade data and information, and a discussion 

of the factors affecting competitive production. SSA countries were grouped primarily on 

the current level of their exports of textile and apparel inputs, their level of apparel 

exports, and other pertinent information, such as production of textile and apparel inputs 

or cotton. Production of textiles, primarily yarn and fabric, of a quality suitable for export 

to the United States, EU, and similar markets, is largely concentrated in a limited number 

of countries,2

 namely Group 1 countries. Group 1 countries are presented in the greatest 

detail, as they are the most likely locations for competitive production of textile and 

apparel inputs through new or increased investment or other measures. The countries in 

Groups 2 and 3 are generally not producing textile and apparel inputs for export to, or for 

use in downstream production of apparel to be exported to, the United States, the EU, and 

similar markets; however, to the extent applicable, textile and apparel inputs that could be 

produced competitively are identified for some of these countries. Group 4 countries have 

limited or no recent or current commercial production of textile and apparel inputs, or 

have limited or no commercial production of apparel, and they are least likely locations 

for competitive production of textile and apparel inputs in the near future. 

Group 1 Countries 

Together, the Group 1 countries (Ethiopia, Kenya, Lesotho, Madagascar, Mauritius, 

Nigeria, South Africa, Swaziland, Tanzania, and Zambia) accounted for the vast majority 

of total SSA country exports of both textile and apparel inputs (94 percent) and apparel 

(95 percent) in 2007. The countries in Group 1 were the 10 largest SSA exporters of 

 1

 Unless otherwise noted, all trade statistics are from World Bank, WITS Database, retrieved 

December 3, 2008 (textile and apparel inputs), and December 16, 2008 (apparel). 2

 USITC, Hearing transcript, January 29, 2009, 113 (testimony of Paul Ryberg, African Coalition for 

Trade). 
4-2 

textiles and apparel inputs in 2007.3 Six of the Group 1 countries (Kenya, Lesotho, 

Madagascar, Mauritius, South Africa, and Swaziland) are also among the top 10 SSA 

apparel exporters. Another 3 of the Group 1 countries (Nigeria, Tanzania, and Zambia) 

are among the top 10 SSA cotton producers. 

 

Ethiopia 

Potential Competitive Products 

Ethiopia is a cotton-producing country with a history of producing woven cotton fabric 

and hand-loomed finished textile home furnishings and apparel. However, Ethiopia’s 

textile and apparel sector is characterized by significantly underutilized capacity and the 

production of woven fabric that is not generally of export quality. Ethiopia has the 

potential to become a competitive producer of woven cotton fabric, provided the industry 

can obtain upgraded machinery and equipment and factory technical assistance. Poor 

infrastructure remains a significant impediment to the development of Ethiopia’s textile 

and apparel inputs sector. 

Country Overview 

Ethiopia is located in the northeast horn of Africa. It is the second-most-populous SSA 

country with a total population of 79.1 million. In 2007, Ethiopia’s GDP was $19.4 

billion, with a GDP per capita of $245 (table 4.1). Since the fall of the military regime in 

1991, Ethiopia’s economy has undergone an extensive transformation that has included 

market-opening economic reforms, privatization, and the creation of a domestic 

economic environment designed to encourage foreign trade and foreign investment. 4

Development of the textile and apparel sector is an important component of the Ethiopian 

government’s economic development strategy.5

 Textile and apparel production ranks as 

Ethiopia’s largest formal sector manufacturing activity, accounting for about 36 percent 

of the country’s total manufacturing output 6

 and employing nearly one-third of the 

country’s total manufacturing labor force of 100,000 individuals.7

 3

 Togo and Sierra Leone appear among the top 10 exporters in the trade data used by the Commission. 

However, there are likely reporting errors in the data. According to the U.S. Department of State, Togo, 

which is covered in Group 3 with the other major cotton-producing countries, does not have any commercial 

production of textiles. U.S. Department of State, U.S. Embassy, Lomé, “Togo: Effects of Infrastructure 

Conditions on Export Competitiveness,” October 3, 2008. Likewise, the Commission has been unable to 

confirm commercial textile production in Sierra Leone. 4

 The Ethiopian government still reportedly retains control over key economic sectors. EIU, Country 

Profile 2008: Ethiopia, 2008, 30; U.S. Department of State, U.S. Embassy, Addis Ababa, “Ethiopia AGOA 

Country Eligibility Recommendations 2008,” October 8, 2008. 5

 U.S. Department of State, U.S. Embassy, Addis Ababa, “USITC Report: Ethiopia’s Infrastructure 

Effects,” October 17, 2008. 6

 Agridev Consult, Cotton-Textile-Apparel Value Chain Report for Ethiopia, 2005, 13. 7

 U.S. Department of State, U.S. Embassy, Addis Ababa, “USITC Report: Ethiopia’s Infrastructure 

Effects,” October 17, 2008. 
4-3 

TABLE 4.1 Ethiopia: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 19,395

GDP growth (annual %, 2007) 11.1

GDP per capita (current US$, 2007) 245

Population (millions, 2007) 79.1

Goods exports (current US$, millions, 2007) 1,284

Goods imports (current US$, millions, 2007) 5,395

Inflation, consumer prices (annual %, 2006) 17.2

Literacy rate, adult total (% of people ages 15 and above, 2004) 35.9

Labor force, total (millions, 2006) 34.4

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 364

Gross capital formation (current US$, millions, 2007) 4,840

Lending rate (%, 2006) 7.0

Manufacturing value added (current US$, millions, 2007) 923

Prevalence of HIV, total (% of population 15–49, 2007) 2.1

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. 

Industry and Trade Overview 

Ethiopia is a cotton-producing country with a long history of cottage industry-based 

production of hand-woven cotton textiles for the domestic population. Ethiopia’s textile 

and apparel industry consists of approximately 80 textile and apparel firms in operation 

as of July 2008, up from 39 in 2007,8

 of which an estimated 43 were medium- and largescale manufacturing enterprises producing textile and apparel articles for the domestic 

market and for export.9

 The sector includes eight vertically integrated textile mills, as 

well as stand-alone yarn and thread spinning mills, blanket and sack manufacturing 

factories, and an increasing number of private apparel assembly firms mostly operating 

with foreign investment partners.10

Like other sectors of the economy, Ethiopia’s textile and apparel sector currently is made 

up of a combination of publicly and privately owned enterprises, and the Ethiopian 

government has stated its commitment to increasing the role of the private sector in future 

economic growth.11 Several recent new foreign investment projects involve Canadian, 

Indian, Japanese, Swedish, and Turkish investors.12 Most of this investment is by foreign 

vertically integrated textile enterprises that appear to be outsourcing their labor-intensive 

 8

 U.S. Department of State, U.S. Embassy, Addis Ababa, “Ethiopia AGOA Country Eligibility 

Recommendations 2008,” October 8, 2008. According to Ethiopian data, there were 40 textile firms (18 

public, 22 private) and 29 apparel firms (3 public and 26 private) operating in Ethiopia in 2004–05 and 

employing a total of 23,307 workers. Government of Ethiopia, Central Statistics Agency, 2008 National 

Statistics (Abstract), 2008, table F.1.a. 9

 Data reported by the Government of Ethiopia, Ministry of Trade and Industry. U.S. Department of 

State, U.S. Embassy, Addis Ababa, “USITC Report: Ethiopia’s Infrastructure Effects,” October 17, 2008. 10 Government of Ethiopia, Ministry of Trade and Industry, Textile and Leather Industry Development 

Department, “The Ethiopian Cotton-Textile Sector,” slide 10, March 22, 2005; Agridev Consult, CottonTextile-Apparel Value Chain Report for Ethiopia, 2005, 13–14. 11 Government of Ethiopia, Ministry of Trade and Industry, Textile and Leather Industry Development 

Department, “The Ethiopian Cotton-Textile Sector,” slide 10, March 22, 2005; U.S. Department of State, 

U.S. Embassy, Addis Ababa, “2008 Investment Climate Statement,” January 14, 2008. 12 Park Consulting P.L.C., “List of Foreign Investment Projects,” undated (accessed March 15, 2009). 
4-4 

operations to Ethiopia to remain internationally competitive, with production geared for 

export to Europe.13

Textile and apparel inputs 

Textile production in Ethiopia includes yarn spinning, fabric weaving and knitting, 

dyeing and finishing of mainly 100 percent cotton articles produced primarily for the 

domestic market.14 Most of the yarn that is spun in Ethiopia is produced by vertically 

integrated firms and is used in the production of woven cotton fabric. In addition to 

cotton yarn and woven cotton fabric, Ethiopia’s textile sector also produces acrylic yarn, 

nylon fabrics, woolen and waste-cotton blankets, bedsheets, and sewing thread.15 Several 

sources that rely on domestically produced fabric reported that the quality of fabric 

produced in Ethiopia is not adequate for use in apparel exports to the U.S. market.16

Textile mills also supply cotton yarn to Ethiopian hand-loom weavers and cottage 

industries.17

Ethiopia’s hand-loomed industry produces textile home furnishings (such as tablecloths, 

napkins, and table runners) and apparel using local cotton and small quantities of 

domestically sourced raw silk (box 4.1).18 These hand-loomed cotton and silk articles are 

sold locally, as well as exported to niche markets in the United States, Canada, and 

Europe for customers seeking handcrafted textile articles. Ethiopia has the potential to 

expand production of these articles and to domestically supply raw material inputs 

including both cotton and raw silk. 

Sources generally reported that Ethiopia currently has no producers of specific textile and 

apparel inputs such as synthetic thread, yarn, and fabric; interlinings; and accessories and 

trim.19 One source reported that there are three recently established button producers (one 

using cow horns and two using plastic) in Ethiopia, although good quality accessories and 

trim must be imported.20

 13 For example, a Turkish textile enterprise, AYKA Textile Industry and Trade Inc., began plans to 

relocate production from Turkey to Ethiopia in 2007 with the construction of an integrated textile facility 

(from spinning to garment production) in Ethiopia. The availability of lower-wage Ethiopian labor and 

Ethiopia’s tax and investment incentives reportedly were key reasons for this factory relocation. Addis 

Forum, “Ethiopia: Turkish Textile Giant to Invest in Country,” August 19, 2008; Reporter (Ethiopia), 

“Turkish Businesspeople Show Growing Interest in Ethiopia,” December 13, 2008. 14 Government of Ethiopia, Embassy of Ethiopia in China, “Profile of the Textile Industry in Ethiopia,” 

undated (accessed December 8, 2008); Tait, “Potential for Ethiopia’s Garment and Textile Industry,” 

March 2007, 6. 15 Government of Ethiopia, Embassy of Ethiopia in China, “Profile of the Textile Industry in Ethiopia,” 

undated (accessed December 8, 2008); Agridev Consult, Cotton-Textile-Apparel Value Chain Report for 

Ethiopia, 2005, 14. 16 SSA industry representative, interview by Commission staff, Addis Ababa, Ethiopia, March 4, 2009. 17 Agridev Consult, Cotton-Textile-Apparel Value Chain Report for Ethiopia, 14. 18 The cotton and raw silk used by these companies are sourced domestically, although some silk is 

imported due to the current low output of domestically cultivated silkworms. 19 Tait, “Potential for Ethiopia’s Garment and Textile Industry,” March 2007, 7. Sources also reported 

that fabric processing, such as fabric finishing and dyeing, generally was not being done extensively in 

Ethiopia. SSA industry representative, interview by Commission staff, Addis Ababa, Ethiopia, 

March 2, 2009. 20 Tait, “Potential for Ethiopia’s Garment and Textile Industry,” March 2007, 7; SSA industry 

representative, interview by Commission staff, Addis Ababa, Ethiopia, March 4, 2009. 
4-5 

BOX 4.1 Ethiopia’s Hand-loomed Textiles Industry

In addition to the machine-based textile industry, Ethiopia also has a hand-loomed textile industry that produces 

textile and apparel articles for the domestic market and for export.a

 Ethiopia has a long history of cottage 

industry-based production of hand-woven cotton textiles for the domestic population, as well as a long history of silk 

weaving. Ethiopia’s current handicraft sector includes both a village-based cottage industry of spinning and weaving 

in individual households and a factory-based hand-loom industry of medium-sized enterprises. Using locally sourced 

cotton and locally cultivated silk,b as well as imported synthetic fibers, Ethiopia’s hand-loom manufacturing industry 

produces both semifinished and final products by manual spinning and hand looms.c

 The Ethiopian government 

reportedly has encouraged the growth of hand-loom manufacturing by making available abandoned factories or other 

large buildings on favorable terms to entrepreneurs in the hand-loom business.d

 These hand-loomed cotton and silk 

articles are sold locally and are exported to niche markets in the United States, Canada, and Europe. Companies 

typically export finished hand-loomed textile goods in greige fabric state or apply natural dyes.e

 Such articles are 

largely marketed to customers seeking handcrafted textiles produced by Ethiopian companies that support local 

farmers, artisans, and women entrepreneurs. 

_________________________________ 

a

For additional information, see Government of Ethiopia, Ministry of Trade and Industry, FeMSEDA, Ethiopian 

Handloom Product Export Market Study, October 2004. b

Ethiopia has a long history of silk weaving using imported silk. Ethiopia’s Ministry of Agriculture and Rural 

Development imported eri silkworms from Japan in about 2003 to explore the possibility of domestic silk production. 

Industry representative, interview by Commission staff, Addis Ababa, Ethiopia, March 7, 2009. c

Industry representative, interview by Commission staff, Addis Ababa, Ethiopia, March 2, 2009. d

Demessre, Hordofa, and van Duijvenbode, “Fruit of the Loom,” January 2005, 13. e

Industry representative, interview by Commission staff, Addis Ababa, Ethiopia, March 2 and 7, 2009.

In 2007, Ethiopia’s exports of textile and apparel inputs totaled $3.1 million, almost all of 

which (99 percent) were shipped to the EU (tables 4.2 and 4.3). Ethiopia’s exports of 

textile and apparel inputs declined by more than one-half since 2003, largely due to a 

sharp decline in exports to the EU. Woven cotton fabric accounted for almost all (97 

percent) of Ethiopia’s exports of textile and apparel inputs in 2007, and Ethiopia’s 

exports of woven fabric have declined by more than one-half since 2003. 

TABLE 4.2 Ethiopia: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007 

SSA countries 1 3 31 4 5 

EU-27 7,513 6,304 3,414 2,854 3,013 

Rest of world 742 593 141 239 41 

United States 0 0 10 11 1 

 Total 8,256 6,901 3,596 3,108 3,059 

Source: World Bank, WITS Database (accessed December 3, 2008). 

Imports of textile and apparel inputs totaled $72.6 million in 2007 (table 4.3), and major 

suppliers included China ($53.8 million), India ($5.0 million), and the EU ($4.9 million). 

Because Ethiopia’s current level of fabric production is low and the woven fabric being 

produced is generally not export quality, Ethiopia imports a significant amount of woven 

fabric to support its domestic textile and apparel industry. Woven fabric imports 

accounted for two-thirds of the value of Ethiopia’s imported textile and apparel inputs in 

2007, and were approximately 16 times the value of Ethiopia’s woven fabric exports. The 

value of Ethiopia’s woven fabric imports more than doubled during the 2003–07 period; 

imports of knit fabric, manmade fibers, and other fabric also increased significantly. 
4-6 

TABLE 4.3 Ethiopia: Exports and imports of textile and apparel inputs, by product group, 2003–07 (1,000 $)

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 0 0 0 101 0

 Knit fabric 0 48 4 1 6

 Manmade fibers 0 0 0 0 0

 Other fabric 0 0 0 1 0

 Thread 0 0 0 0 0

 Trim 6 4 11 14 16

 Woven fabric 7,901 6,320 3,391 2,896 2,975

 Yarn 350 528 189 95 62

 Total 8,256 6,901 3,596 3,108 3,059

Imports: 

 Carded or combed fibers 0 0 1 10 24

 Knit fabric 1,905 2,714 4,536 7,556 8,063

 Manmade fibers 522 363 861 100 2,748

 Other fabric 1,012 1,012 1,981 2,739 5,567

 Thread 979 544 602 927 1,489

 Trim 783 846 2,600 997 1,673

 Woven fabric 22,203 19,431 38,253 43,389 47,526

 Yarn 2,590 5,150 5,937 2,944 5,533

 Total 29,993 30,060 54,771 58,664 72,624

Source: World Bank, WITS Database (accessed December 3, 2008). 

Apparel 

Ethiopia’s apparel assembly sector uses both domestically produced fabric (integrated 

textile mills), as well as imported fabric (apparel assembly enterprises), to produce woven 

and knitted garments, including mesh shorts and tank tops, T-shirts, knitted and woven 

shirts, trousers, hospital scrubs and gowns, school uniforms, cooks’ uniforms, and socks. 

Most of the apparel factories in Ethiopia are set up to make a mix of woven goods and 

knitwear, but none make fully fashioned knitwear, such as sweaters.21 Typical articles 

produced for local consumption include men’s suits, khaki shorts, and T-shirts, while 

most other shirts and tops sold in Ethiopia’s local market are imported.22

 

Ethiopia’s apparel exports more than doubled during the 2003–07 period, rising from 

$2.1 million to $5.9 million (table 4.4). In 2007, the leading market for Ethiopia’s apparel 

exports was the United States ($5.0 million). Most of Ethiopia’s apparel exports to the 

United States entered under AGOA; U.S. imports under AGOA from Ethiopia increased 

from $1.7 million in 2003 to $4.7 million in 2007.23 Industry representatives estimate that 

95 percent of the 35–40 apparel assembly factories currently operating in Ethiopia were 

established after Ethiopia received AGOA eligibility.24 Ethiopia’s apparel imports also 

more than doubled during the 2003–07 period, rising from $18.3 million to $43.6 million. 

Ethiopia’s leading apparel supplier in 2007 was China ($35.2 million). 

 21 Tait, “Potential for Ethiopia’s Garment and Textile Industry,” March 2007, 6. 22 SSA industry representative, interview by Commission staff, Addis Ababa, Ethiopia, March 4, 2009. 23 USITC, Interactive Tariff and Trade Database (Dataweb), March 30, 2009. 24 SSA industry representatives, interview by Commission staff, Addis Ababa, Ethiopia, March 2, 

2009. 
4-7 

TABLE 4.4 Ethiopia: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007 

Exports 2,100 4,687 5,219 6,177 5,886 

Imports 18,312 18,475 21,894 29,724 43,553 

Source: World Bank, WITS Database (accessed December 16, 2008). 

Despite reports from sources that Ethiopia has the potential to become a significant 

global cotton producer,25 cotton ranks behind coffee, cereals, and pulses in terms of 

importance to Ethiopia’s largely agriculture-based economy. Ethiopia produces primarily 

long staple cotton. 26 Sources reported that Ethiopia has excellent cotton-growing 

conditions27 and a significant amount of land potentially suitable for cotton production.28

Some sources also estimate that, given the relatively limited use of pesticides and 

chemical fertilizers by Ethiopian smallholder farmers, Ethiopia has the potential to 

become a producer of organic cotton. 29 However, Ethiopia currently has no 

administrative bodies to monitor and certify organic farm practices and lacks a separate 

line of ginneries and other processing and handling facilities to manufacture organic 

cotton-based products.30

Factors Contributing to Competitive Production 

Ethiopia has raw materials available domestically, as it is a cotton producer and is 

beginning to produce commercial quantities of raw silk.31 Further, the textile and apparel 

export sector has priority consideration in the government’s economic growth strategy,32

wherein the government is creating a foreign investor-friendly business environment and 

upgrading the country’s physical and transportation infrastructure. Additionally, Ethiopia 

implemented a major privatization initiative in 2006, which resulted in an increase in the 

number of foreign-owned and private enterprises.33

 

Government incentives for the textile and apparel sector include a loan guarantee 

program, under which the Ethiopian government guarantees 70 percent of any new textile 

and apparel sector commercial loan; relatively easy and affordable access to land; tax 

holidays of up to five years; duty-free import of equipment, fabrics for export production, 

or other supplies for investment; and a one-stop shop at the Ethiopian customs 

 25 Agridev Consult, Cotton-Textile-Apparel Value Chain Report for Ethiopia, 2005, 5–6. 26 Opinions vary on the quality of Ethiopia’s current cotton production, and different regions of 

Ethiopia produce different qualities of cotton. Long staple cotton is generally considered to have better 

characteristics for spinning than short staple cotton. Tait, “Potential for Ethiopia’s Garment and Textile 

Industry,” March 2007, 6; Agridev Consult, Cotton-Textile-Apparel Value Chain Report for Ethiopia, 

2005, 6. 27 USITC, Hearing transcript, January 29, 2009, 87–88 (testimony of Anthony Carroll, Manchester 

Trade Ltd.). 28 According to one estimate, Ethiopia has more than 2.5 million hectares of cotton-producing land 

available for farming, nearly equivalent to that of Pakistan, the world’s fourth-largest cotton producer. 

Agridev Consult, Cotton-Textile-Apparel Value Chain Report for Ethiopia, 2005, 5–6. 29 Thomas, “Organic Cotton Production and Products,” 2007; Demessre, Hordofa, and van 

Duijvenbode, “Fruit of the Loom,” January 2005, 11. 30 Demessre, Hordofa, and van Duijvenbode, “Fruit of the Loom,” January 2005, 11; Ethiopian 

government official, interview by Commission staff, Addis Ababa, Ethiopia, March 3, 2009. 31 Tait, “Potential for Ethiopia’s Garment and Textile Industry,” March 2007, 3. 32 U.S. Department of State, U.S. Embassy, Addis Ababa, “USITC Report: Ethiopia’s Infrastructure 

Effects,” October 17, 2008. 33 EIU, Country Profile 2008: Ethiopia, 2008, 30. 
4-8 

authority. 34 The Ethiopian government makes available to exporters an export credit 

guarantee program, duty drawback provisions, and bonded warehouses. 35 The 

government also finances 75 percent of the cost of bringing in foreign technical 

consultants to address the shortage of skilled labor. 36 Other factors contributing to 

competitive textile and apparel inputs production in Ethiopia are the country’s central 

geographic location, which offers strategic proximity to the EU, Middle East, and South 

African markets, and its low wage rates.37 The Ethiopian government is undertaking new 

investments designed to improve the country’s physical infrastructure, including ongoing 

or planned projects to improve the road network, expand and improve air terminals, and 

develop new power plants, although these efforts are far from completion.38

Factors Inhibiting Competitive Production 

Despite government projects to improve the country’s roads and air terminals, 

infrastructure is still an impediment to the development of Ethiopia’s textile and apparel 

inputs sector. Ethiopia ranked lower than most of the other Group 1 countries in terms of 

quality of railroad infrastructure and road density (table 3.4). Ethiopia’s road network is 

in poor condition. Poor roads to and from the port of Djibouti add to transportation time 

and costs and pose significant bottlenecks to international trade for Ethiopia. In addition, 

although Ethiopia’s textile and apparel industry is concentrated mainly around the capital, 

Addis Ababa,39 several enterprises are located in other regions of the country. One source 

stated that, given the poor condition of domestic roads, the geographic dispersion of the 

industry is a significant impediment to future growth and interfirm cooperation in the 

sector.40 Ethiopia’s railroad network has been characterized as “almost obsolete because 

of the lack of maintenance, poor management, the track’s inability to accommodate the 

current transport load demands, and lack of commercial focus.” 41

As a landlocked country, Ethiopia currently ships nearly all of its international freight via 

the port of neighboring Djibouti. The need for overland transportation to ship via Djibouti 

makes shipping cargo to and from Ethiopia a lengthy and expensive process. Sources 

reported that it should take only 14–15 days to ship from Ethiopia to the United States; 

however, the typically small Ethiopian cargo shipments are often routed via Asian ports 

where they are consolidated with other U.S.-bound cargo, which can double the shipping 

time.42 Ethiopia had the second-longest shipping time (behind landlocked Zambia) among 

the Group 1 countries, and shipping costs for Ethiopia ranked among the highest for the 

group (table 3.3). 

 34 U.S. Department of State, U.S. Embassy, Addis Ababa, “USITC Report: Ethiopia’s Infrastructure 

Effects,” October 17, 2008. 35 U.S. Department of State, U.S. Embassy, Addis Ababa, “Ethiopia AGOA Country Eligibility 

Recommendations 2008,” October 8, 2008. 36 Tait, “Potential for Ethiopia’s Garment and Textile Industry,” March 2007, 9. 37 Ibid., 3. 

38 U.S. Department of State, U.S. Embassy, Addis Ababa, “USITC Report: Ethiopia’s Infrastructure 

Effects,” October 17, 2008; U.S. Department of State, U.S. Embassy, Addis Ababa, “Ethiopia AGOA 

Country Eligibility Recommendations 2008,” October 8, 2008. 39 According to Ethiopian government data for 1998, 24 of the country’s 42 large/medium scale textile 

firms (10 or more employees) were located in Addis Ababa, and 25 of the country’s 31 large/medium scale 

apparel firms were located in Addis Ababa. Government of Ethiopia, Central Statistics Agency, Large and 

Medium Manufacturing Industries Survey, 2006–2007, table 3.1. 40 SSA industry representative, interview by Commission staff, Ethiopia, March 6, 2009. 41 U.S. Department of State, U.S. Embassy, Addis Ababa, “USITC Report: Ethiopia’s Infrastructure 

Effects,” October 17, 2008. 42 SSA industry representatives, interview by Commission staff, Addis Ababa, Ethiopia, 

March 2, 2009. 
4-9 

Ethiopia’s telecommunications network is also limited, and the government has achieved 

little progress in upgrading and expanding this important component of business 

infrastructure, despite increasing demand for telephone and Internet services.43 Similarly, 

the demand for electricity has outpaced Ethiopia’s largely rainfall-dependent 

hydroelectric power generation capabilities, resulting in periodic power shortages, 

although the textile and apparel sector reportedly has relatively more reliable access to 

electricity.44

Ethiopia is ranked 116th of 181 economies in terms of the ease of doing business in the 

World Bank’s Doing Business 2009 database, which approximates the average for the 

Group 1 countries (table 3.3). Although some enterprises were privatized in 2006, 

remaining state-owned enterprises and ruling party-owned companies continue to receive 

preferential treatment by the government when it comes to access to foreign exchange 

and favorable loan terms from state-owned banks. In general, land cannot be privately 

owned, but it can be leased for 99 years.45

Wage rates in Ethiopia are reported to be lower than in most neighboring SSA 

countries,46 and low-wage labor is widely available; however, labor skill levels are low 

and absenteeism is high, resulting in low labor productivity.47 In addition, there are too 

few skilled workers and a lack of management skills in all areas, causing firms to 

compete for the small pool of skilled workers. 48 Ethiopia has no apparel design, 

technology, or manufacturing training programs.49

Lack of demand for textile and apparel inputs from the domestic apparel industry 

hampers the sector’s growth. Ethiopia is the second-most-populous SSA country, giving 

it a large potential domestic market to support the development of a local textile and 

apparel industry. However, a significant part of local demand is met through imported 

apparel items,50 with the remainder supplied by local production. Although most apparel 

production in Ethiopia is for the domestic market, domestic production is challenged by 

both low-cost imports and illegally imported used clothing.51

 43 U.S. Department of State, U.S. Embassy, Addis Ababa, “USITC Report: Ethiopia’s Infrastructure 

Effects,” October 17, 2008; SSA industry representatives, interview by Commission staff, Addis Ababa, 

Ethiopia, March 2, 2009. 44 U.S. Department of State, U.S. Embassy, Addis Ababa, “USITC Report: Ethiopia’s Infrastructure 

Effects,” October 17, 2008. 45 U.S. Department of State, U.S. Embassy, Addis Ababa, “Ethiopia AGOA Country Eligibility 

Recommendations 2008,” October 8, 2008. 46 Tait, “Potential for Ethiopia’s Garment and Textile Industry,” March 2007, 22; SSA industry 

representatives, interview by Commission staff, Addis Ababa, Ethiopia, March 2, 2009. 47 Just-style.com, “Ethiopia: The Next Sourcing Hot-Spot?” March 1, 2007. 48 Tait, “Potential for Ethiopia’s Garment and Textile Industry,” March 2007, 9; SSA industry 

representatives, interview by Commission staff, Addis Ababa, Ethiopia, March 2, 2009. 49 Just-style.com, “Ethiopia: The Next Sourcing Hot-Spot?” March 1, 2007. 50 Government of Ethiopia, Embassy of Ethiopia in China, “Profile of the Textile Industry in Ethiopia,” 

undated (accessed December 8, 2008). 51 Ethiopia officially prohibits imports of used clothing, but this prohibition is often circumvented by 

private traders. Ethiopian government official, interview by Commission staff, Addis Ababa, Ethiopia, 

March 3, 2009. 
4-10 

Much of the machinery and equipment in the textile and apparel sector is old and 

unusable because of a lack of spare parts, resulting in underutilized industrial capacity.52

Some sources reported that packaging materials available in Ethiopia generally are not up 

to international packaging standards.53 However, a representative of an export-oriented 

apparel assembly enterprise in Ethiopia stated that his company recently began procuring 

cardboard boxes and polyethylene bags from local manufacturers.54

Another issue facing Ethiopia’s textile and apparel industrial infrastructure is 

underutilization of installed capacity. Recently established export-oriented apparel 

facilities reportedly operate below capacity due to a lack of domestic demand and foreign 

orders. One source reported that many of Ethiopia’s newly built apparel factories “are 

mainly sitting empty, desperate for export orders.”55 One reason given for the shortage of 

foreign orders is a lack of availability of high-quality fabric in reliably consistent 

quantities.56 According to one Ethiopian manufacturer and exporter of home furnishings, 

the lack of domestically available, export-quality fabric led that firm to stop exports of 

textile home furnishings to the U.S. market.57 Other sources reported that they preferred 

to import fabric rather than use inferior, locally produced fabric.58

Apart from cotton and some raw silk, all inputs into textile and apparel production, 

including synthetic thread, yarn, fabric, chemicals, and accessories, are imported. Despite 

the country’s significant cotton potential, cotton production is low. Ethiopia also faces the 

challenges of cotton contamination and the need to improve quality control for its cotton 

crop.59 Cotton contamination reportedly occurs during harvesting and bale formation and 

through impurities introduced by disease.60 The dyed cotton yarn used in the sector is 

produced by Ethiopian state-owned enterprises and is reported to be of generally low 

quality. 61 Due to a shortage of domestically cultivated silkworms, the silk weaving 

company must supplement domestic production with imports of mulberry silk from 

Uganda.62

Other factors that limit the sector’s potential include a lack of awareness among 

international buyers of Ethiopian apparel producers; manufacturing inefficiency; lack of 

speed to market; uncompetitive costs; and a shortage of marketing and manufacturing 

know-how.63 Several sources reported that Ethiopia has been largely overlooked by the 

 52 USITC, Hearing transcript, January 29, 2009, 85 (testimony of Anthony Carroll, Manchester Trade, 

Ltd.); Just-style.com, “Incentives Hope to Entice Garment Makers to Ethiopia,” March 6, 2007; and Tait, 

“Potential for Ethiopia’s Garment and Textile Industry,” March 2007, 8. Equipment in parastatal enterprises 

is generally older than that in private enterprises. USAID official, interview by Commission staff, Addis 

Ababa, Ethiopia, March 3, 2009. Equipment that was 15 years old was considered by Ethiopian industry 

representatives to be in relatively good condition for the country. SSA industry representative, interview by 

Commission staff, Nazreth, Ethiopia, March 4, 2009. 53 Demessre, Hordofa, and van Duijvenbode, “Fruit of the Loom,” January 2005, 15. 54 SSA industry representatives, interview by Commission staff, Nazreth, Ethiopia, March 4, 2009. 55 Just-style.com, “Ethiopia: The Next Sourcing Hot-Spot?” March 1, 2007. 56 SSA industry representatives, interviews by Commission staff, Addis Ababa, Ethiopia, March 2–4, 

2009. 57 SSA industry representative, interview by Commission staff, Addis Ababa, Ethiopia, March 4, 2009. 58 SSA industry representatives, interview by Commission staff, Ethiopia, March 4, 2009. 59 Agridev Consult, Cotton-Textile-Apparel Value Chain Report for Ethiopia, 2005, 6. 60 Demessre, Hordofa, and van Duijvenbode, “Fruit of the Loom,” January 2005, 15. 61 SSA industry representatives, interview by Commission staff, Addis Ababa, Ethiopia, March 2, 

2009. 62 Demessre, Hordofa, and van Duijvenbode, “Fruit of the Loom,” January 2005, 15. 63 U.S. Department of State, U.S. Embassy, Addis Ababa, “USITC Report: Ethiopia’s Infrastructure 

Effects,” October 17, 2008. 
4-11 

global clothing and textiles industry. Sources also reported that Ethiopian producers were 

unfamiliar with international markets. 64

Kenya 

Potential Competitive Products 

Potentially competitive export products for Kenya include yarn and fabric from 

organically grown cotton. Niche products such as these can garner a premium price that 

helps compensate for Kenya’s higher production and transportation costs. Textile and 

apparel inputs that are currently being produced by Kenya’s small but vertically 

integrated industry include cotton yarn (including organic yarn) and certain synthetic 

yarn, knit cotton fabric, and woven fabric for blankets. These products are either exported 

directly or incorporated into products that are exported to the United States and the EU. 

Although Kenya has been successful in developing an export-oriented apparel industry, 

high-cost electricity and poor infrastructure hinder Kenya’s prospects for increased 

competitive production of textile and apparel inputs. 

 

Country Overview 

Kenya is located in East Africa and has a coastline on the Indian Ocean. In 2007, GDP 

was $29.5 billion, and with a population of 37.5 million, Kenya’s GDP per capita was 

$787 (table 4.5). Manufacturing accounts for about 10 percent of GDP.65 Employment in 

the textile and apparel sector represents 17.5 percent of formal employment in 

manufacturing. 66 The textile and apparel industry employed approximately 43,000 

workers in 2004, second only to the food and beverages industry among manufacturing 

industries.67 In general, Kenya also has relatively skilled and productive labor. Kenya is a 

member of the East African Community (EAC) along with Burundi, Rwanda, Tanzania, 

and Uganda. The EAC has had a customs union (table H.1) since January 2005 and is 

planning the formation of a common market in 2010 and a monetary union in 2012.68 The 

EAC has negotiated an interim trade deal with the EU to replace the expired market 

access provisions of the Cotonou Agreement. Kenya has also benefited from apparel 

trade preferences under AGOA (table 3.5). Kenya’s largest city and national capital is 

Nairobi, but the largest port is in Mombasa, the second-largest city, increasing transport 

costs for producers in Nairobi. 

Industry and Trade Overview 

In the early 1980s, the textile and apparel industries were the leading manufacturing 

sectors in Kenya in terms of output and employment; about 30 percent of the 

manufacturing labor force was employed in the textile and apparel industries.69 At that 

time, the textile and apparel industries in Kenya were protected by high tariffs, and they 

primarily supplied the local market.70 In the late 1980s and early 1990s, the government 

 64 Tait, “Potential for Ethiopia’s Garment and Textile Industry,” March 2007, 22; U.S. Department of 

State, U.S. Embassy, Addis Ababa “USITC Report: Ethiopia’s Infrastructure Effects,” October 17, 2008. 65 EIU, Country Profile 2008: Kenya, 2008, 20. 66 KAM, Manufacturing in Kenya, 2006, 113. 67 KAM, Manufacturing in Kenya, 2006, 113. 68 EIU, Country Profile 2008: Kenya, 2008, 11. 69 PKF Consulting, Ltd. and International Research Network, Kenya’s Apparel & Textile Industry 2005, 

2005, 1. 70 Industry representative, interview by Commission staff, Nairobi, Kenya, October, 29, 2008. 
4-12 

TABLE 4.5 Kenya: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 29,509

GDP growth (annual %, 2007) 6.9

GDP per capita (current US$, 2007) 787

Population (millions, 2007) 37.5

Goods exports (current US$, millions, 2007) 4,080

Goods imports (current US$, millions, 2007) 8,989

Inflation, consumer prices (annual %, 2007) 9.8

Literacy rate, adult total (% of people ages 15 and above, 2000) 73.6

Labor force, total (millions, 2006) 16.7

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 51

Gross capital formation (current US$, millions, 2007) 5,762

Lending rate (% 2007) 13.3

Manufacturing value added (current US$, millions, 2007) 3,096

Prevalence of HIV, total (% of population 15–49, 2007) 7.8

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. 

lowered tariffs on textile and apparel products, allowing more imports of these products, 

as well as used clothing, to enter the market. As a result, capacity utilization in domestic 

textile mills dropped below 50 percent, 71 and by 2006, most of the 50 textile mills 

operating in 1990 had closed.72

Textile and apparel inputs 

The textile mills currently operating in Kenya are privately owned. Three of the firms are 

fully vertically integrated. Bedi Investments Ltd. and its subsidiary, Fine Spinners, Ltd., 

spin cotton, polyester, and blended yarn for producing knitted and woven fabric (see 

box 4.2).73 Bedi Investments and Fine Spinners use this fabric to make apparel for export 

to the United States and the EU.74 Vertical integration of these firms allows for shorter 

lead times for delivering orders.75 Bedi Investments and Fine Spinners also sell some of 

their yarn and fabric to other apparel manufacturers in Kenya and the region.76 The third 

vertically integrated firm, Sunflag Group, spins cotton and synthetic yarn, produces 

knitted and woven fabric, and makes apparel for the domestic and regional markets.77

Kenya also has a few smaller textile firms that do not produce apparel. For example, 

Rupa Mills produces cotton yarn in an export processing zone (EPZ) for export to the 

EU.78 Other small firms spin yarn and weave blankets to sell to relief organizations 

 71 PKF Consulting, Ltd. and International Research Network, Kenya’s Apparel & Textile Industry 2005, 

2005, 1. 72 Industry representative, interview by Commission staff, Nairobi, Kenya, December 5, 2006. 73 Industry representative, telephone interview by Commission staff, March 5, 2009. 74 Industry representative, telephone interview by Commission staff, March 5, 2009. 75 Industry representative, telephone interview by Commission staff, March 5, 2009. 76 Industry representative, telephone interview by Commission staff, March 5, 2009. 77 Sunflag Textile & Knitwear Mills Ltd. Web site. http://www.sunflagkenya.com/ (accessed 

March 12, 2009); industry representative, telephone interview by Commission staff, March 5, 2009. 78 Industry representative, interview by Commission staff, Nairobi, Kenya, December 5, 2006; industry 

representative, telephone interview by Commission staff, March 5, 2009. 
4-13 

BOX 4.2 Company Profiles: Bedi Investments Limited and Fine Spinners Limited

Bedi Investments Limited (BIL) began producing apparel in Nakuru, Kenya, in 1976. BIL subsequently added the 

capacity to spin yarn and weave fabric and is today a fully integrated mill. BIL can produce 1,080 tons of yarn, 2.8 

million meters of fabric, and 1.4 million pieces of apparel per year. The yarn and fabric produced by BIL are polyester 

blends and are primarily consumed in-house, with small amounts sold to other firms in eastern and southern Africa. 

BIL’s apparel unit primarily makes formal and casual pants, which are marketed to the United States and the EU. 

Fine Spinners Limited began operations as a government parastatal entity and was sold to private owners in 1996. 

Fine Spinners is now majority owned by BIL. Fine Spinners is a fully integrated mill that spins yarn, knits fabric, and 

makes apparel. Fine Spinners is focused on producing high-value apparel for the EU and U.S. markets with 

organically grown and fair trade cotton imported from neighboring Uganda. The company also manufactures sewing 

thread under a license agreement with American & Efird, Inc. The yarn, fabric, and sewing thread that are not used 

in-house are marketed within COMESA. Fine Spinners has the capacity to produce 1,500 tons of yarn, 360 tons of 

thread, 720 tons of fabric, and 1,800,000 pieces of apparel per year. 

Source: Industry official, company literature e-mailed to Commission staff, March 5, 2009.

operating in the region.79 Another firm imports acrylic fiber and spins it into acrylic yarn 

for retail sale in the region.80

Kenya is also a cotton producer, although relatively small compared with many other 

SSA countries. In 2007, it produced 25,000 bales, compared with, for example, 85,000 

bales in Ethiopia and 310,000 bales in Tanzania.81

In 2007, Kenya registered a trade deficit of $290.3 million in textile and apparel inputs. 

Kenya’s exports of textile and apparel inputs totaled only $8.0 million in 2007, down 

from $10.1 million in 2006 (table 4.6), and consisted largely of yarn and woven fabric 

(table 4.7). Kenya’s largest markets were the EU ($2.7 million), for which the largest 

export item was cotton yarn, and Uganda ($2.4 million). Exports to Uganda are mostly 

accounted for by one company’s shipments of acrylic hand-knitting yarn. By contrast, 

Kenya’s imports of textile and apparel inputs totaled $298.3 million. The largest suppliers 

were China ($153.4 million), India ($36.8 million), and Hong Kong ($27.5 million). 

Apparel 

Kenya was the fourth largest SSA apparel exporter in 2007 (table 1.1). In 2007, Kenya’s 

exports of apparel totaled $269.6 million, down 12 percent from its peak in 2004 

(table 4.8). Apparel made in Kenya is primarily exported to the United States, with 

smaller amounts exported within the region and to the United Kingdom. 82 Kenya’s 

apparel manufacturers are highly dependent on AGOA tariff preferences and the thirdcountry fabric provision.83 Much of the fabric needed by Kenyan manufacturers is not 

 79 Industry representative, telephone interview by Commission staff, March 5, 2009. 80 The acrylic yarn is typically bought by households for hand-knitted sweaters. Because of the bulk of 

acrylic yarn, it is expensive to ship; therefore, it is less expensive to import acrylic fibers and spin them into 

yarn in Kenya than to import the yarn. Industry representative, telephone interview by Commission staff, 

March 5, 2009. 81 For more information, see app. G. 

82 World Bank, Snapshot Africa: Kenya, January 2007, 14. 83 Industry representative, telephone interview by Commission staff, March 5, 2009. 
4-14 

TABLE 4.6 Kenya: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 4,661 4,826 3,570 3,935 3,991

EU-27 2,476 4,291 4,248 4,803 2,715

Rest of world 1,539 760 1,003 475 431

United States 292 66 96 886 861

 Total 8,968 9,944 8,917 10,099 7,998

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.7 Kenya: Exports and imports of textile and apparel inputs, by product group, 2003–07 (1,000 $) 

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 844 75 54 26 17

 Knit fabric 321 496 500 776 369

 Manmade fibers 436 389 706 269 90

 Other fabric 351 128 349 221 411

 Thread 85 81 186 70 72

 Trim 690 109 524 278 432

 Woven fabric 1,740 2,083 1,228 2,395 1,502

 Yarn 4,501 6,583 5,370 6,066 5,106

 Total 8,968 9,944 8,917 10,099 7,998

Imports: 

 Carded or combed fibers 2,442 2,791 10,626 13,625 3,361

 Knit fabric 14,371 38,726 35,539 34,522 40,528

 Manmade fibers 10,650 11,573 16,019 17,189 23,166

 Other fabric 6,083 11,844 12,074 8,677 11,023

 Thread 1,737 2,497 3,094 1,676 2,079

 Trim 8,830 12,067 11,326 12,410 12,782

 Woven fabric 109,579 159,250 192,878 167,559 183,715

 Yarn 11,745 18,513 17,675 16,312 21,608

 Total 165,437 257,260 299,232 271,971 298,262

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.8 Kenya: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 207,741 305,190 296,556 287,010 269,584

Imports 25,272 41,287 60,930 60,835 95,072

Source: World Bank, WITS Database (accessed December 16, 2008). 

produced in Kenya (e.g., denim), and the high costs of intra-SSA transportation often 

make fabric from Asia cheaper than fabric from other countries in SSA.84

Factors Contributing to Competitive Production 

Kenya has a large apparel sector that could provide domestic demand for Kenyan 

production of textile and apparel inputs.85 The government of Kenya has encouraged 

apparel production by establishing EPZs, which allow apparel and other firms to import 

raw materials free of duty if the final products are exported. Firms in the EPZ also 

receive a five-year tax holiday and VAT rebates for exported goods.86 At least one textile 

 84 U.S. Department of State, U.S. Embassy, Nairobi, “Kenyans Urge Extension of Third Country Fabric 

Waiver,” October 8, 2008, 3; industry representative, telephone interview by Commission staff, March 5, 

2009. 85 Industry representatives, interview by Commission staff, Nairobi, Kenya, October 29, 2008. 86 Industry representatives, interview by Commission staff, Nairobi, Kenya, October 29, 2008. 
4-15 

firm in Kenya sells fabric and thread to apparel producers in the EPZs.87 Generally, this 

locally produced fabric and trim is less expensive than imported goods.88

Instead of trying to compete with Asian firms in the entire U.S. market, Kenyan textile 

firms are focusing on niche markets. One integrated textile firm has a mill dedicated to 

the production of yarn and fabric from organically grown cotton.89 The premium that the 

firm can receive for garments made from organically grown cotton compensates for 

Kenya’s higher cost of production and transportation. 90 This integrated firm also 

produces cotton/polyester blended yarn and fabric. Since tariffs in the United States are 

higher for apparel made from synthetic fabric rather than cotton, AGOA tariff 

preferences provide more benefit for these items if they are primarily made of polyester 

fibers. 

Factors Inhibiting Competitive Production 

The major factor inhibiting the growth of a textile industry in Kenya is the high cost of 

electricity. Electricity in Kenya costs approximately $0.22/kWh, which is among the 

highest rates in the region and higher than rates for competitors outside the region.91 The 

cost of electricity accounts for about 35 percent of the cost of fabric production in Kenya, 

compared with 16 percent in India.92 High government tax rates reportedly are one reason 

for high electricity rates. 93 One industry official stated that there was no likelihood of the 

textile industry recovering, despite government efforts to address the industry’s issues, 

unless electricity tax rates were lowered.94 Reliability of electricity is also a concern.95 In 

a World Bank survey, 28 percent of all firms in Kenya reported electricity as a major 

constraint in production (table 3.1). These firms reported that they experienced an 

average of 7.3 power outages per month, which led to a value loss of 6.4 percent of sales. 

Other factors that inhibit competitive production are the lack of financing for new 

equipment, poor transportation infrastructure, and government corruption. Banks in 

Kenya reportedly tend to prefer investments in government bonds to private business 

lending and charge high interest rates (16–18 percent) to businesses.96 According to the 

World Economic Forum, Kenya scored poorly in terms of the perceived quality of 

existing road, railroad, and port infrastructure (table 3.4). Delays caused by congestion at 

the port of Mombasa and poor road conditions can lead to cancelled orders from apparel 

buyers or other penalties incurred by the Kenyan producers.97 One industry source noted 

that it can take up to one week for trucks to travel between the port of Mombasa and 

Nairobi due to poor road conditions.98

 

 87 Industry representative, telephone interview by Commission staff, March 5, 2009. 88 Industry representative, telephone interview by Commission staff, March 5, 2009. 89 Industry representative, telephone interview by Commission staff, March 5, 2009. 90 Industry representative, telephone interview by Commission staff, March 5, 2009. 91 USITC, Sub-Saharan Africa: Effects of Infrastructure Conditions, 2009, 6-32; industry 

representative, telephone interview by Commission staff, March 5, 2009. 92 Industry representative, telephone interview by Commission staff, March 5, 2009. 93 The tax is added to the consumer electricity bill. 94 Africa News, “Kenya: Plans for Power Plant,” September 13, 2008. 95 USITC, Sub-Saharan Africa: Effects of Infrastructure Conditions, 2009, 6-32. 96 Industry representative, telephone interview by Commission staff, March 5, 2009. 97 USITC, Sub-Saharan Africa: Effects of Infrastructure Conditions, 2009. 98 USITC, Sub-Saharan Africa: Effect of Infrastructure Conditions, 2009. 
4-16 

Kenya is ranked 82nd of 181 economies in the World Bank’s Doing Business 2009 

database (table 3.3), lower than its rank of 78 in the previous year.99 Despite the drop in 

rank, Kenya improved in the trading across borders measure, moving from 152 to 148. 

According to the 2009 indicators, importing a standard shipping container for a model 

company in Nairobi took an estimated 26 days and cost $2,190. Exporting a container 

took 29 days and cost $2,055.100 By comparison, firms in Madagascar can expect 27 days 

($1,660) for imports and 23 days ($1,279) for exports (table 3.3). In 2008, Kenya ranked 

147th of 180 countries on Transparency International’s Corruption Perceptions Index.101

Corruption can cause extra expense and delays in getting textile and apparel products into 

and out of Kenya. 

Lesotho 

Potential Competitive Products 

Lesotho has the potential to competitively produce cotton yarn and denim fabric for use 

in downstream apparel manufacturing for the United States, the EU, and similar markets, 

as it currently produces and exports these textile and apparel inputs. Lesotho has one 

denim mill that spins and dyes yarn and then weaves fabric for use in the production of 

apparel for export. The mill also exports yarn and fabric to other apparel manufacturers in 

the region. Industry sources indicate that Lesotho could benefit from new investment in 

knit fabric production, as well as laundering and dyeing facilities for the local apparel 

manufacturing sector. Stabilizing the apparel sector could ensure sufficient demand for 

current producers of textile and apparel inputs while also creating future demand for 

further investment in inputs production. However, Lesotho presently has a shortage of 

factory shells and industrial infrastructure to encourage new investment. 

Country Overview 

Lesotho is a small country landlocked within South Africa. In 2007, Lesotho’s GDP was 

$1.6 billion and its total population was 2.0 million, resulting in a GDP per capita of $800 

(table 4.9). The textile and apparel sector is the largest formal sector employer in Lesotho 

and is vital to the nation’s economy. In 2007, approximately 90 percent of all 

manufacturing jobs were in the textile and apparel sector, and textile and apparel exports 

accounted for 51 percent of total merchandise exports. 102 The sector employs 

approximately 40,000 workers, of which 85 percent are women. 103 Through its 

membership in the Southern African Development Community (SADC) and the Southern 

African Customs Union (SACU), Lesotho has preferential market access to many 

neighboring markets. Lesotho has also benefited substantially from apparel trade 

preferences extended under AGOA (table 3.5). 

 99 World Bank, Doing Business 2009: Country Profile for Kenya, 2008, 2. 

100 World Bank, Doing Business 2009: Country Profile for Kenya, 2008, 37. 101 Transparency International, “2008 Corruption Perceptions Index,” 2008. 102 U.S. Department of State, U.S. Embassy, Maseru, “Lesotho: Textile and Apparel Production,” 

September 28, 2007. 103 LTEA, written submission to the USITC, February 19, 2009, 3. 
4-17 

TABLE 4.9 Lesotho: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 1,600

GDP growth (annual %, 2007) 4.9

GDP per capita (current US$, 2007) 800

Population (millions, 2007) 2.0

Goods exports (current US$, millions, 2007) 805

Goods imports (current US$, millions, 2007) 1,730

Inflation, consumer prices (annual %, 2007) 8.0

Literacy rate, adult total (% of people ages 15 and above, 2001) 82.2

Labor force, total (millions, 2006) 0.7

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 78

Gross capital formation (current US$, millions, 2007) 577

Lending rate (% 2007) 14.1

Manufacturing value added (current US$, millions, 2007) 272

Prevalence of HIV, total (% of population 15–49, 2007) 23.2

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. 

Industry and Trade Overview 

The textile and apparel sector in Lesotho was established in the 1980s when South 

African and Asian investors moved operations to Lesotho to access available quota and 

also to avoid global trade sanctions placed on South Africa’s apartheid government.104

Textile and apparel production facilities in Lesotho are largely foreign-owned and exportoriented. In 2007, most of Lesotho’s apparel factories were Taiwanese-owned, with 

additional FDI received from China and South Africa.105 The government of Lesotho 

promotes the country as an ethical sourcing location, as Lesotho has partnered with the 

International Labor Organization to improve its labor standards. 106 The government 

fosters public-private relationships to improve the competitiveness of the industry and in 

the past has provided factory shells for foreign investors.107

Textile and apparel inputs 

Lesotho has one vertically integrated textile mill, Nien Hsing Textile Co., Ltd., which 

processes cotton lint, spins and dyes yarn, weaves fabric, and manufactures denim 

garments. Nien Hsing has invested $120 million since 2000 in the development of its 

spinning plant, denim mill, and jeans factories in Lesotho,108 which together employ 

8,000 workers.109 Nien Hsing’s garment factories and denim weaving and yarn spinning 

mills in Lesotho annually consume 16,000 tons of cotton from Malawi, Zambia, 

 104 Morris and Sedowski, “Report on Government Responses,” May 2006, 9. 105 The Economist, “Looming Difficulties,” July 21, 2007, 61; World Bank, Snapshot Africa: Lesotho, 

January 2007, 6. 106 U.S. Department of State, U.S. Embassy, Maseru, “Lesotho: Textile and Apparel Production,” 

September 28, 2007. 107 Ibid.; Lesotho government official, interview by Commission staff, Maseru, Lesotho, May 21, 2008. 108 USITC, Hearing transcript, April 9, 2008, 30 (testimony of Chia-Liang Han, Nien Hsing Textile 

Co., Ltd.). 109 Nien Hsing Textile Co., Ltd., written submission to the USITC, February 23, 2009, 1. 
4-18 

Mozambique, Tanzania, and Benin.110 The company produces about 10,800 tons of openended and ring-spun cotton yarn and 18 million yards of denim fabric annually for local 

and regional apparel manufacturers that produce for the export market.111 Nien Hsing also 

produces denim jeans for the U.S. market. 

 

Nien Hsing indicated that it decided to invest in Lesotho with the understanding that the 

third-country fabric provision would expire at the end of 2004, as stipulated in the 

original AGOA legislation.112 One industry source suggested that Nien Hsing, the largest 

manufacturer of jeans in the world, was able to invest successfully in Lesotho due to its 

preexisting global linkages in the textile and apparel supply chain.113 Nien Hsing claims 

that its business in Lesotho has suffered, as what it saw as a potential market in SSA was 

taken away with subsequent renewal of the third-country fabric provision.114 Reportedly, 

Nien Hsing is considering closing its Lesotho operations because of the repeal of the 

commercial availability provision115 and the “general stress in the market for African 

textile companies.”116

Apart from Nien Hsing, there are no manufacturers of textile and apparel inputs in 

Lesotho. Recently, there has been interest in investing in zipper production; however, a 

lack of factory shell availability currently limits such expansion at this time.117

In 2007, Lesotho’s exports of textile and apparel inputs totaled $19.2 million (table 4.10), 

an increase of 52 percent since 2005. This increase largely coincides with the 

establishment of Nien Hsing’s Lesotho operations. Woven fabric (denim) accounted for 

90 percent of Lesotho’s exports of textile and apparel inputs in 2007. Lesotho also 

exported some small quantities of carded or combed wool fibers and cotton yarn. The 

bulk of Lesotho’s exports of textile and apparel inputs (92 percent) were destined for 

other SSA countries, particularly Kenya, Madagascar, and Mauritius (table 4.11). 

Lesotho reported no exports of textile and apparel inputs to the United States in 2007. 

 110 Nien Hsing Textile Co., Ltd. Company Web site. http://www.nht.com.tw/en/about-2.htm (accessed 

January 23, 2009); USITC, Hearing transcript, April 9, 2008, 14 (testimony of Chia-Liang Han, Nien Hsinq 

Textile Co., Ltd.). 111 LTEA, written submission to the USITC, February 19, 2009, 3. 112 USITC, Hearing transcript, April 9, 2008, 14 (testimony of Chia-Liang Han, Nien Hsing Textile 

Co., Ltd.); Nien Hsing Textile Co., Ltd., written submission to the USITC, February 23, 2009, 1. 113 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009; 

Nien Hsing Textile Co., Ltd. Company Web site. http://www.nht.com.tw/en/about-2.htm (accessed 

January 23, 2009). 114 Nien Hsing Textile Co., Ltd., written submission to the USITC, February 23, 2009, 1. 115 In December 2006, the U.S. Congress amended the AGOA preferences, again extending the thirdcountry fabric provision, but also adding the commercial availability provision, also known as the “abundant 

supply” provision. The abundant supply provision was repealed by Public Law 110-436 on October 18, 2008. 

One industry source cautioned that the abundant supply amendments had threatened to lead to the closure of 

denim garment firms in Lesotho, with the possible loss of 15,700 jobs in the industry, claiming U.S. 

importers want the freedom to choose the fabrics used in garment production. African Growth and 

Opportunity Act (AGOA), as amended 19 U.S.C. 3721(c)(2)(C), signed December 20, 2006, 

http://www.agoa.gov/agoa_legislation/HR%206111%20-%20Title%20VI.pdf; USITC, Denim Fabric 2008; 

and Bennett, “Lesotho Info Pack,” (accessed March 24, 2009). 116 USITC, Hearing transcript, January 29, 2009, 69–70 (testimony of Paul Ryberg, African Coalition 

for Trade). 117 Industry representative, e-mail message to Commission staff, January 28, 2009. 
4-19 

TABLE 4.10 Lesotho: Exports and imports of textile and apparel inputs, by product group, 2003–07 

(1,000 $) 

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 0 0 0 1,280 1,240

 Knit fabric 524 0 60 166 0

 Manmade fibers 0 0 0 0 0

 Other fabric 0 0 0 0 1

 Thread 2 0 0 0 0

 Trim 14 1 818 0

 Woven fabric 63 2,579 12,343 14,402 17,288

 Yarn 33 0 225 77 695

 Total 635 2,580 12,635 15,943 19,224

Imports: 

 Carded or combed fibers 0 0 0 0 0

 Knit fabric 59,714 131,886 102,485 107,535 90,401

 Manmade fibers 0 2 292 1,137 39

 Other fabric 3,749 2,660 1,504 1,013 1,575

 Thread 1,042 1,820 1,882 3,726 4,293

 Trim 3,504 7,812 8,323 8,916 7,777

 Woven fabric 31,441 36,007 31,520 25,707 33,324

 Yarn 30 2,327 1,896 1,137 2,290

 Total 99,479 182,514 147,903 149,171 139,698

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.11 Lesotho: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 68 2,421 12,024 14,488 17,766

EU-27 1 0 2 0 3

Rest of world 566 160 609 1,455 1,455

United States 0 0 0 0 0

 Total 635 2,580 12,635 15,943 19,224

Source: World Bank, WITS Database (accessed December 3, 2008). 

Except for domestically produced denim, all other inputs must be imported. In 2007, 

Lesotho imported $139.7 million worth of yarn and fabric, of which knit fabric accounted 

for 65 percent. Most inputs are sourced from Asia, namely Hong Kong, Taiwan, and 

China. Nien Hsing also reported using third-country denim fabric to supplement its own 

production, since it allows the company to provide flexibility to its apparel customers.118

Apparel 

The apparel sector in Lesotho produces almost exclusively for the U.S. market and 

consists principally of cut-make-trim (CMT) apparel assembly. Apparel production grew 

rapidly after 2000, when AGOA benefits were extended to Lesotho. From 2000 to 2005, 

the number of apparel production facilities increased from 6 to 40, and exports of apparel 

to the United States more than doubled.119 However, following the final phase-out of 

quotas on textiles and apparel at the end of 2004, the apparel industry in Lesotho became 

 118 USITC, Hearing transcript, April 9, 2008, 31 (testimony of Chia-Liang Han, Nien Hsing Textile 

Co., Ltd.). 119 Morris and Sedowski, “Report on Government Responses,” May 2006, ii. 
4-20 

highly vulnerable to global competition and contracted. 120 Further, orders from U.S. 

retailers have slowed recently due to the global economic slowdown.121

 

According to the Lesotho Textile Exporters Association (LTEA), there are currently 11 

firms involved in woven garment production, 28 firms specializing in knit garments, and 

6 garment-finishing operations performing screen printing and/or embroidery. 122 The 

industry produces about 116 million garments per year, including 90 million knit 

garments and 26 million pairs of jeans. Reportedly, Lesotho has specialized in basic 

garments due to lower skill levels of workers and long shipping lead times to developedcountry markets. 123 Nevertheless, some garment manufacturers also make more 

complicated garment styles.124 These complicated styles must be made in large volumes 

to allow for the longer learning curve required for workers.125 In recent years, Lesotho 

apparel companies produced for U.S. brands and retailers such as Wal-Mart, JC Penney, 

Children’s Place, GAP, Levi’s, and Gloria Vanderbilt. 126 Production of textiles and 

apparel in Lesotho totaled approximately $269.5 million during the January–August 2007 

period.127

 

From 2004 to 2007, Lesotho’s total exports of apparel decreased by 16 percent by value 

to $413.8 million (table 4.12), and consisted mainly of denim jeans, T-shirts, and 

sweaters. Lesotho was the largest SSA exporter of apparel to the United States in 2007, 

with apparel exports totaling $402 million, or just over 97 percent of Lesotho’s total 

apparel exports. Manufacturers in Lesotho also shipped small quantities of apparel to 

Canada, the EU, and Japan. The lack of market diversification inhibits the 

competitiveness of the apparel sector, and reliance on a single market leaves Lesotho 

particularly susceptible to downturns in the U.S. market. However, apparel producers 

reportedly lack business leads or contacts within the EU, making it difficult to expand 

into the European market.128

TABLE 4.12 Lesotho: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 427,502 494,244 421,636 418,338 413,792

Imports 348 2,628 1,895 4,188 4,051

Source: World Bank, WITS Database (accessed December 16, 2008). 

Factors Contributing to Competitiveness 

Lesotho’s potential for competitive production of textile and apparel inputs derives 

largely from downstream demand from its fairly developed apparel sector. The apparel 

sector in Lesotho seems to benefit somewhat from clustering or external economies of 

 120 U.S. Department of State, U.S. Embassy, Maseru, “Lesotho: Textile and Apparel Production,” 

September 28, 2007. 121 Industry representative, e-mail message to Commission staff, January 28, 2009. 122 LTEA, written submission to the USITC, February 19, 2009, 3. 123 Morris and Sedowski, “Report on Government Responses to New Post-MFA Realities in Lesotho,” 

May 2006, 11. 124 Industry representatives, interview by Commission staff, Maseru, Lesotho, May 23, 2008. 125 Industry representatives, interview by Commission staff, Maseru, Lesotho, May 23, 2008. 126 Bennett, “Lesotho Infopack: Overview of Textile and Apparel Industry, undated. 127 U.S. Department of State, U.S. Embassy, Maseru, “Lesotho: Textile and Apparel Production,” 

September 28, 2007. 128 Industry representative, interview by Commission staff, Maseru, Lesotho, May 23, 2008. 
4-21 

scale, with a few companies reportedly sharing production for large orders.129 It is likely 

that Lesotho would benefit from investment in a knit fabric mill, as well as 

laundering/dyeing facilities, as there appears to be sufficient demand from its exportoriented garment sector. 

Compared to the industries in its SSA neighbors, the textile and apparel industry in 

Lesotho is organized and works together to address collective problems.130 Further, the 

apparel industry in Lesotho has historically received government support in the form of 

favorable labor and import policies, as well as the construction of factory shells for 

industry expansion.131

Factors Inhibiting Competitiveness 

Despite existing demand for textile and apparel inputs in Lesotho, several factors impede 

further development of the textile sector in Lesotho, including underdeveloped 

infrastructure, lack of skilled labor, high transport costs, and a lack of market 

information. Lesotho’s only textile mill, Nien Hsing, stated that the most important 

challenges include improving infrastructure and maintaining an adequate inputconsuming apparel industry.132 

Of critical importance is the lack of infrastructure to attract new investment. Lesotho has 

a shortage of factory shells and industrial infrastructure to encourage new investment, 

despite reported interest in industry expansion. Moreover, due to its geography, Lesotho 

is hampered by long shipping times to its export markets. Although the country benefits 

from access to South Africa’s developed transportation system, the quality of its own 

roads and rail are low compared with regional competitors, according to the World 

Economic Forum’s Enabling Trade Report.133

 

Industry sources repeatedly cite water and wastewater treatment infrastructure as key 

areas for improvement. While Lesotho has adequate water supplies, the water is 

reportedly hard and not good for dyeing yarn, fabric, or garments. Improvements to water 

infrastructure would make it possible to invest in a knit fabric mill. Sufficient demand for 

such a mill appears to exist; a new mill would also help apparel manufacturers in terms of 

lead times, particularly as over 62 percent of Lesotho’s apparel exports to the United 

States are knit garments. Lesotho lacks a water treatment system to address waste created 

during finishing operations.134 Upgrading water infrastructure could allow for increased 

investment in finishing operations; the ability to wash garments would allow Lesotho 

garment manufacturers move up the value chain. According to the LTEA, garment 

producers in Lesotho have been unable to manufacture more complex garments requested 

by international buyers, to the disadvantage of the industry.135

 

While Lesotho has many unskilled workers available for its apparel industry, the 

HIV/AIDS epidemic has led to a significant loss of working hours due to employee 

illness and time spent caring for family members. According to the World Bank, the adult 

 129 Industry representative, interview by Commission staff, Maseru, Lesotho, May 23, 2008. 130 Industry representative, interview by Commission staff, Maseru, Lesotho, May 23, 2008. 131 Lesotho government official, interview by Commission staff, Maseru, Lesotho, May 21, 2008. 132 Nien Hsing Textile Co., Ltd., written submission to the USITC, February 23, 2009, 3. 133 World Bank, Snapshot Africa: Lesotho, January 2007, 6. 134 Industry representative, telephone interview by Commission staff, Maseru, Lesotho, January 28, 

2009. 135 LTEA, written submission to the USITC, February 19, 2009, 6. 
4-22 

HIV prevalence rate was 23 percent in 2007 (table 4.9), although by some industry 

estimates, as much as 60 percent of the working age population is infected with the 

disease. 136 Lesotho’s minimum wage in the apparel sector is equivalent to $100 per 

month and labor is relatively expensive in terms of productivity, especially when 

compared with the low-cost Asian suppliers that are Lesotho’s competitors in the U.S. 

market.137 Further, apparel manufacturers report that there is a limited pool of workers 

with management skills. Firms rely heavily on expatriate managers, as well as expatriate 

machine technicians.138

Although Lesotho benefits from a demand for textile and apparel inputs from an existing 

apparel sector, the apparel sector is currently experiencing a decline in orders and is 

struggling to compete globally. 139 Industry sources state that the uncertainties and 

temporary nature of AGOA also discourage investment both in the apparel and the textile 

and apparel inputs sectors. They suggest that the immediate extension of AGOA and the 

third-country fabric provision through 2020 would provide sufficient long-term certainty 

for textile investors to recoup investment, as well as certainty for existing producers to 

upgrade their facilities. 140 The LTEA suggested that expanded support for USAID’s 

Trade Hubs would also help encourage intra-African trade in textile and apparel inputs 

and provide marketing knowledge to help expand Lesotho’s apparel exports to the United 

States and the EU.141

Finally, all textile and apparel production facilities in Lesotho are foreign-owned, with 

limited local involvement in terms of management and investors.142 Thus, the viability of 

the industry is not in the hands of local stakeholders, but rather at the discretion of 

foreign multinationals whose primary concern may not necessarily be the long-term 

development of the industry in Lesotho. Unlike other SSA countries such as Mauritius, 

Lesotho has received minimal technology transfers from apparel investment and 

primarily produces lower-value, basic apparel articles. 

Madagascar 

Potential Competitive Products 

Madagascar has limited textile capacity, but appears to competitively produce of woven 

cotton fabric.143 Cotona, Madagascar’s largest textile producer, benefits from its long 

presence in the country; a successful local apparel industry, which serves as an important 

market; and government incentives. However, political instability during the past decade 

has diminished Madagascar’s prospects as an investment destination. In addition, 

although Cotona reportedly is considering increasing woven cotton fabric production in 

the country, high-cost, unreliable electricity, high-cost capital, and a diminishing supply 

 136 Industry representative, interview by Commission staff, Maseru, Lesotho, May 23, 2008. 137 U.S. Department of State, U.S. Embassy, Maseru, “Lesotho: GOL Discusses Trade Complexities,” 

March 10, 2008. 138 Industry representative, interview by Commission staff, Maseru, Lesotho, May 23, 2008. 139 Industry representative, telephone interview by Commission staff, Maseru, Lesotho, 

January 28, 2009. 140 Industry representative, e-mail message to Commission staff, January 28, 2009; LTEA, written 

submission to the USITC, February 19, 2009, 8. 141 LTEA, written submission to the USITC, February 19, 2009, 2. 142 Industry representative, interview by Commission staff, Maseru, Lesotho, May 23, 2008. 143 However, the current political climate may impact new investment in, and sourcing from, 

Madagascar. 
4-23 

of local raw materials such as cotton weaken Madagascar’s prospects for increased 

apparel production and competitive upstream textile production. 

Country Overview 

Madagascar, the world’s fourth-largest island (after Greenland, New Guinea, and 

Borneo), is located in the Indian Ocean off the east coast of southern Africa. In 2007, 

GDP was $7.3 billion and, with a population of 19.7 million, GDP per capita stood at 

$372 (table 4.13).144 Manufacturing value added contributes a relatively small share to 

GDP. In 2007, manufacturing accounted for 12 percent of the country’s total GDP. 

Employment in Madagascar is concentrated in the agricultural sector (78 percent), 

followed by employment in services (15 percent) and industry (7 percent).145 Apparel 

production is a key source of employment in the manufacturing sector, accounting for 28 

percent of all manufacturing employment in 2007.146

Industry and Trade Overview 

Madagascar has been successful in developing an apparel sector and produces limited 

quantities of textiles; overall apparel production capacity is roughly 20 to 30 times larger 

(in value terms) than overall textile production capacity.147 

TABLE 4.13 Madagascar: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 7,326

GDP growth (annual %, 2007) 6.5

GDP per capita (current US$, 2007) 372

Population (millions, 2007) 19.7

Goods exports (current US$, millions, 2007) 1,190

Goods imports (current US$, millions, 2007) 2,590

Inflation, consumer prices (annual %, 2007) 10.3

Literacy rate, adult total (% of people ages 15 and above, 2000) 70.7

Labor force, total (millions, 2006) 8.9

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 230

Gross capital formation (current US$, millions, 2007) 2,140

Lending rate (% 2007) 45.0

Manufacturing value added (current US$, millions, 2007) 856

Prevalence of HIV, total (% of population, 15–49, 2007) 0.1

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. 

Textile and apparel inputs 

The Malagasy textile industry consists of one large vertically integrated textile firm 

producing woven fabrics (Cotona), two small knit apparel firms that produce their own 

 144 World Bank, World Development Indicators Online. 145 UNDP, Human Development Report 2007/2008, 2007, 300. 146 U.S. Department of State, U.S. Embassy, Antananarivo, “Request for Information on Textiles and 

Apparel Production,” September 12, 2007. 147 USITC, Sub-Saharan Africa: Factors Affecting Trade Patterns of Selected Industries, 2008, 3-46. 
4-24 

knit fabric (Festival and Samaf), and another firm that weaves fabrics for blankets 

(Somacou). Cotona produces open-ended, combed, and ring-spun cotton yarn, woven 

cotton fabric, and apparel for export. Cotona has an estimated 15,897 spindles, an annual 

woven cotton fabric capacity of 24 million square meter equivalents (SMEs), and 

produces greige, piece-dyed, printed, and white fabric.148 In 2007, Cotona produced 3,300 

tons of woven cotton fabric, the majority of which was consumed within its own apparel 

factory.149 Cotona generally used locally grown cotton and supplemented local supplies 

with cotton from other SSA countries. However, as discussed later in this section, there is 

currently no viable source for cotton in Madagascar. Cotona’s apparel segment also uses 

imported fabric and trim to satisfy customer demand for a broad range of fabric options. 

 

Somacou produces small amounts of woven fabric used mostly to produce blankets, 

Festival and Samaf produce circular-knit fabric for use in apparel production,150 and all 

three firms rely on imported yarn. In 2007, Festival and Samaf produced 1,000 tons of 

knit cotton fabric.151 Floreal, part of the Mauritian-based Ciel Group, produces high-end 

knit-to-shape sweaters for the EU market using imported yarn spun by its sister company, 

Ferney Spinning, in Mauritius. 

 

Several firms in Madagascar produce trim such as buttons for the textile and apparel 

industry. Two firms, Tana Crex and Dextermad, reportedly produce high-end buttons 

using natural products such as nuts, wood, and coconut shells, as well as plastic, for 

domestic apparel producers and for export to the EU.152

 

During the 2004–07 period, Madagascar’s exports of textile and apparel inputs were 

small but relatively steady, valued at $10.2 to $11.2 million (table 4.14). Madagascar’s 

export markets are highly concentrated, with over 60 percent of such exports destined for 

the EU ($6.4 million) in 2007. SSA countries were the second-largest export market, and 

accounted for 31 percent of Madagascar’s total textile and apparel input exports. In 2007, 

27 percent of Madagascar’s exports were destined for Mauritius ($2.9 million), followed 

by South Africa, which accounted for 3 percent ($339,000). As several textile producers 

based in Mauritius also have apparel production in Madagascar, some bilateral trade 

consists of shipments between related firms. The range of products exported is also 

highly concentrated, with exports of woven fabric (mostly cotton) accounting for $5.5 

million (52 percent) and trim (mostly buttons) accounting for $4.2 million (40 percent) of 

total textile and apparel inputs shipments in 2007 (table 4.15).153 

 148 Cotona is a sister company of Mauritian-based Socota. In January 2009, Socota reportedly ceased 

operations in Mauritius with the intent to relocate its production to Madagascar. The intended disposition of 

the equipment is unclear at this time. Industry representative, interview by Commission staff, Port Louis, 

Mauritius, March 4, 2009; and U.S. Department of State, “Textile and Apparel Production Capabilities in 

AGOA-eligible Countries,” August 2006. 149 Cotona reportedly consumes the majority of its fabric production and sells small quantities of fabric 

and yarn to local apparel manufacturers also producing for export. Industry representative, telephone 

interview by Commission staff, March 11, 2009. 150 Global Development Solutions, “Integrated Value Chain Analysis,” June 2007, 34. 151 Industry representative, telephone interview by Commission staff, March 11, 2009. 152 Industry representative, telephone interview by Commission staff, March 11, 2009. 153 Thirty-three percent of total woven fabric exports consisted of cotton fabric destined for the EU, and 

43 percent consisted of cotton fabric destined for Mauritius. Seventy-nine percent of total trim exports 

consisted of buttons shipped to the EU, followed by exports of embroidery (16 percent) and zippers (1 

percent). 
4-25 

TABLE 4.14 Madagascar: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 4,336 2,779 3,470 3,220 3,249

EU-27 2,288 5,895 6,365 6,496 6,363

Rest of world 1,882 1,498 1,101 1,435 863

United States 33 69 45 67 85

 Total 8,538 10,241 10,982 11,217 10,560

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.15 Madagascar: Exports and imports of textile and apparel inputs, by product group, 2003–07 

(1,000 $) 

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 0 0 0 0 0

 Knit fabric 21 96 158 95 34

 Manmade fibers 0 0 1 0 2

 Other fabric 1 191 34 2 67

 Thread 13 7 6 1 18

 Trim 1,538 2,712 4,736 4,066 4,227

 Woven fabric 2,202 5,413 5,072 6,360 5,513

 Yarn 4,762 1,823 975 693 698

 Total 8,538 10,241 10,982 11,217 10,560

Imports: 

 Carded or combed fibers 86 428 201 134 169

 Knit fabric 36,753 67,750 50,427 46,165 71,144

 Manmade fibers 371 73 288 160 1,342

 Other fabric 5,659 6,422 7,119 5,744 6,006

 Thread 3,813 3,925 3,277 2,561 3,844

 Trim 18,194 23,008 21,262 21,030 30,059

 Woven fabric 106,579 111,323 114,626 106,594 127,366

 Yarn 51,767 72,989 81,832 111,742 118,842

 Total 223,222 285,916 279,033 294,132 358,771

Source: World Bank, WITS Database (accessed December 3, 2008). 

In 2007, Madagascar posted a $348.2 million trade deficit with the world in textile and 

apparel inputs (table 4.15). Imports of textiles and apparel inputs totaled $358.8 million 

in 2007; major suppliers included China ($118.6 million), Hong Kong, ($87.1 million), 

the EU ($59.6 million), and Mauritius ($52.2 million). Madagascar’s imports of textile 

and apparel inputs increased by 61 percent during the 2003–07 period, in response to 

increasing demand from the country’s growing apparel industry. Fabric demand far 

outweighs local supply in Madagascar, where total capacity to produce woven fabric is 

20–25 million SMEs per year and the demand for woven fabric is about 100–120 million 

SMEs.154

Apparel 

Madagascar has a long history of apparel production compared with other SSA 

countries.155Apparel production in Madagascar is largely geared toward the EU and U.S. 

markets, with an estimated 95 percent of total production destined for export. In 2007, 

one-half of Madagascar’s total exports consisted of apparel, mostly basic apparel items 

such as T-shirts, pullovers, knit sweaters, and trousers. In 2007, the apparel industry 

 154 Global Development Solutions, “Integrated Value Chain Analysis,” June 2007, 8. 155 U.S. Department of State, U.S. Embassy, Antananarivo, “Request for Information on Textiles and 

Apparel Production,” September 12, 2007. 
4-26 

comprised roughly 120 firms employing 113,000 workers and accounted for one-third of 

the country’s total formal employment.156 The industry has attracted investment from 

France, Taiwan, China, and Mauritius. One-half of all firms granted EPZ status have 

some level of Asian investment. 157 Mauritian textile firms invested in apparel 

manufacturing facilities in Madagascar due to lower wages, high labor productivity, and 

the country’s proximity to Mauritius. Madagascar’s apparel industry has developed 

successfully during the past decade and serves as an important market for local and 

regional textile producers. In addition to the competitive factors in the textiles sector, 

skilled, low-wage, high-productivity labor, and openness to trade serve as competitive 

advantages in the apparel sector. 

 

Madagascar nearly doubled its apparel exports in five years, from $362.6 million in 2003 

to $695.8 million in 2007, making it the second-largest SSA apparel exporter to the world 

(table 4.16). Madagascar has experienced significant growth in its apparel exports to the 

United States and the EU since 2005. Madagascar’s apparel exports to South Africa have 

also significantly increased in recent years; during the 2003-2007 period, Madagascar’s 

apparel exports to South Africa increased by an average of 225 percent per year, to 3.4 

million in 2007.158

TABLE 4.16 Madagascar: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 362,559 560,570 538,767 576,546 695,774

Imports 23,600 18,861 17,606 29,059 43,338

Source: World Bank, WITS Database (accessed December 16, 2008). 

Factors Contributing to Competitive Production 

Madagascar reportedly has one of the lowest wage rates and most productive, skilled 

workforces in SSA, with wages in the textiles and apparel industry averaging around $70 

per month. Compared with other SSA countries, Madagascar has a very low prevalence 

of HIV/AIDS—less than 1 percent of the population in 2005.159 Textile and apparel 

workers in Madagascar benefit from various opportunities for local training and skills 

development. Programs sponsored by the EU and the World Bank provide technical 

training to support the industry.160

The government of Madagascar has placed a high priority on the development of the 

apparel sector, creating a new agency to assist foreign investors and introducing 

legislation aimed at streamlining incentives offered to industry investors. In an effort to 

facilitate foreign investment, the government established the Economic Development 

Board of Madagascar (EDBM) in 2006, a one-stop shop that facilitates administrative 

procedures and provides technical assistance to investors. Also, to harmonize the 

incentives offered to local and foreign investors, Madagascar reformed and enhanced its 

EPZ law in 2008. Firms that export 95 percent of their production, whether foreign or 

 156 Global Development Solutions, “Integrated Value Chain Analysis,” June 2007, 9. 157 U.S. Department of State, U.S. Embassy, Antananarivo, “Textiles and Apparel Sector,” 

September 8, 2006. 158 IFC and Economic Development Board of Madagascar, “Opportunities for Investors,” January 

2009; World Bank, WITS Database (accessed December 16, 2008). 159 UNDP, Human Development Report 2007/2008, 2007, 259. 160 IFC and Economic Development Board of Madagascar, “Opportunities for Investors,” January 

2009. 
4-27 

domestic owned, are eligible for various benefits, including duty-free imports of 

equipment and raw materials, streamlined customs procedures, a five-year tax holiday, 

low corporate taxes, and general liquidity of profits.161 In coordination with international 

donors, the government of Madagascar has adopted customs measures to simplify loading 

and unloading of goods,162 reportedly resulting in significant improvements in customs 

clearance times.163

Madagascar receives duty-free access for textile and apparel products to the United States 

under AGOA and to South Africa under SADC, and for apparel products to the EU under 

the interim EPA. Madagascar’s apparel exports to the United States and the EU are 

subject to a single-transformation rule of origin. Industry experts in Madagascar indicate 

that the single-transformation rule of origin broadens the fabric options available to 

customers and thus adds to the competitiveness of the industry.164 In comparison, exports 

within the SADC region are subject to a double-transformation rule of origin and a 35 

percent value-added requirement.165 Madagascar has recently applied for designation as 

an LDC member of SADC, which would allow it to ship apparel duty free to South 

Africa, subject to a single-transformation rule of origin and a cap.166

Further, the EDBM and the Economic Processing Zone Association have employed a 

strategy to attract new investment into the apparel industry, which they believe will also 

draw in investment into the textile industry.167 Malagasy textile and apparel producers 

also benefit from duty-free access to raw materials from, and close integration with, 

Mauritius, an important source for textile and apparel inputs and industry expertise, under 

SADC, COMESA, and the Indian Ocean Commission. 168 Mauritius and Madagascar 

share a similar history and French language that encourage investment and synergies 

between the countries’ textile and apparel industries. 

Overall, infrastructure conditions in Madagascar are poor; however, inexpensive water 

supply and real estate contribute to Madagascar’s competitiveness. An abundant supply 

of water is necessary for producing textiles, especially for dyeing and finishing. Water 

cost $0.26 per cubic meter in 2007, well below the costs incurred by key regional 

competitors in South Africa, Lesotho, Kenya, and Mauritius. 169 However, industry 

sources indicate that the water supply is limited in the country.170 Real estate prices are 

also generally lower in Madagascar than in other textile and apparel producing SSA 

countries. For example, in 2007, the cost to lease an industrial site in Madagascar was 

$9.00 per square meter, compared with $47.50 in Kenya and $61.60 in Mauritius.171

 161 Industry representative, telephone interview by Commission staff, February 23, 2009. 162 WTO, “Trade Policy Review: Report by Madagascar 2008,” February 27, 2008, 28. 163 IFC and Economic Development Board of Madagascar, “Opportunities for Investors,” January 

2009. 164 Industry representative, telephone interview by Commission staff, February 23, 2009. 165 A single transformation rule of origin requires that the product be transformed from fabric to 

garment, and a double transformation rule of origin requires both that the yarn be transformed into fabric and 

that the fabric be transformed into the garment. Therefore, under a single transformation rule of origin, fabric 

imported from third countries can be used in the production of apparel and qualify under the rule. Under a 

double transformation rule of origin, both the fabric and apparel must be produced locally. 166 Industry representative, telephone interview by Commission staff, February 23, 2009. 167 Industry representative, telephone interview by Commission staff, February 23, 2009. 168 The Indian Ocean Commission has five member states: Comoros, Madagascar, Mauritius, Réunion 

(France), and Seychelles. The commission was established in 1984 to, among other things, promote trade 

among its members. 169 World Bank, Snapshot Africa: Madagascar, January 2007, 49. 170 Industry representative, interview by Commission staff, Las Vegas, NV, February 17, 2009. 171 World Bank, Snapshot Africa: Madagascar, January 2007, 48. 
4-28 

In 2005, the government of Madagascar privatized port operations at the country’s main 

port of Tamatave, and port upgrades are being implemented, including expanding 

existing capacity from 100,000 twenty-foot equivalent units (TEUs) in 2005 to 350,000 

TEUs in 2010. Since 2005, the quantity of cargo processed has doubled and the average 

time to process a container has reportedly been cut in half.172

Factors Inhibiting Competitive Production 

Political crises in Madagascar in 2002 and 2009 adversely affected the textile and apparel 

industry. In 2002, the apparel sector reportedly recovered relatively quickly after a sharp 

decline in production and exports following an eight-month long political crisis.173 In late 

January 2009, a second wave of civil unrest ensued, leading to at least 135 deaths as of 

March 9, 2009. 174 Several U.S. retailers have reported delays in shipments from 

Madagascar since the civil unrest began. 175 In addition to the current uncertainty 

associated with Cotona’s planned expansion in Madagascar, another Mauritian-based 

firm that had planned on investing in apparel operations in Madagascar has postponed its 

consideration of the investment due to the current political climate. On the other hand, 

one industry source with a significant presence in Madagascar indicated that his firm was 

operating without any obstructions.176

Madagascar ranked 125th out of 134 countries surveyed in the World Economic Forum’s 

2008–2009 Global Competitiveness Report. According to the report, the most 

problematic factor for doing business in Madagascar was access to finance, and 

respondents reported that the cost of capital was a major factor inhibiting the country’s 

overall competitiveness.177 In 2007, the lending rate in Madagascar was 45 percent, the 

costliest in the region—more than double the rate charged in Mauritius (22 percent), and 

more than three times the rate in key competitors—Lesotho (14 percent) and Kenya (13 

percent).178

Poor infrastructure conditions, including electricity and roads, also inhibit competitive 

production. In 2008, Madagascar ranked 104th out of 134 countries in terms of the 

quality of overall infrastructure.179 The government of Madagascar reported in its 2008 

WTO Trade Policy Review Statement that the country could increase trade by 20 percent 

“with appropriate infrastructure support.” 180 Electricity costs are high compared with 

other key textile and apparel producers, and a lack of a reliable electricity supply is 

problematic. Madagascar ranked 123rd out of 134 countries surveyed in terms of quality 

of electricity supply. 181 In 2007, electricity cost $0.08/kWh for industrial users, 16 

percent higher than the cost in Lesotho and 25 percent higher than the cost in 

 172 IFC and Economic Development Board of Madagascar, “Opportunities for Investors,” January 

2009. 173 USITC, Hearing transcript, January 29, 2009, 151 (testimony of Paul Ryberg, African Coalition for 

Trade). In that year, a disputed election spurred civil unrest and resulted in a nearly 13 percent drop in the 

country’s GDP. U.S. Department of State, Bureau of African Affairs, “Background Note: Madagascar,” 

January 2009. 174 Lough, “Where is Madagascar’s Political Crisis Going?” March 9, 2009. 175 Industry representative, telephone interview by Commission staff, February 5, 2009. 176 Industry representative, interview by Commission staff, Port Louis, Mauritius, March 4, 2009. 177 Porter and Schwab, eds., The Global Competitiveness Report 2008–2009, 2008, 226. 178 World Bank, World Development Indicators Online. 179 Porter and Schwab, eds., The Global Competitiveness Report 2008–2009, 2008, 384. 180 WTO, “Trade Policy Review: Report by Madagascar 2008,” February 27, 2008, 14. 181 Porter and Schwab, eds., The Global Competitiveness Report 2008–2009, 2008, 390. 
4-29 

Mauritius.182 Road conditions in Madagascar are generally poor (table 3.4). However, the 

government reportedly has improved an average of 7,000 kilometres of road per year 

since 2003.183

Until recently, Malagasy cotton was produced under an out-grower scheme 184 by 

Hasyma, a company owned by Dagris, a French state-run firm. Cotton was ginned using 

relatively modern equipment at one of three ginneries owned by Hasyma or at one roller 

gin owned by ODER, with a combined total annual capacity of 55,500 tons.185 However, 

cotton lint production has decreased by 65 percent since 1998. 186 Declining cotton 

production in the country has resulted in declining output from local cotton gins, which 

ran at an estimated 28 percent utilization in 2006.187 In 2007, Madagascar’s total output 

of seed cotton amounted to less than 16,000 tons, yielding an estimated 5,500 tons of 

cotton lint available locally. Of this, Cotona reportedly was guaranteed 4,800 tons 

through long-term supply contracts.188

 

In 2007, Hasyma was privatized and sold to Sofiproteol, an oilseeds and grain 

producer,189 and, in December 2008, the company filed for bankruptcy protection.190 As 

such, there is currently no viable source for local cotton in Madagascar. In light of this, 

Cotona reportedly has switched from spinning cotton into yarn to importing yarn 

directly.191

Mauritius 

Potential Competitive Products 

Mauritius has one of the most developed textile and apparel sectors in SSA and is cited as 

being among the most competitive producers in the region. 192 Potential competitive 

products include cotton yarn and cotton/manmade fiber-blended yarn, knit fabric, denim, 

and some cotton shirting fabric. Such inputs have the greatest potential for competitive 

production because they are already produced in Mauritius and are used in apparel that is 

exported to the United States, the EU, and similar markets. Reportedly, Mauritius’s 

competitive advantage lies in niche, higher-value-added products; thus, potential 

competitive textile and apparel inputs would be of a higher quality and for use in higherend apparel. 

 182 World Bank, Snapshot Africa: Madagascar, January 2007, 49. 183 IFC, Economic Development Board of Madagascar, “Opportunities for Investors,” January 2009. 184 An out-grower scheme refers to a contractual partnership between growers or landholders and a 

company for the purpose of commercial cotton production. The partnerships vary and can be short or longterm, and growers may either act on their own or as a group. 185 Hasyma reportedly set a goal of increasing production to 50,000 tons of seed cotton in the medium 

term. WTO, “Trade Policy Review: Madagascar 2008,” February 27, 2008, 59. One source noted that the 

cotton industry could not recover from a situation that occurred in 2001–02, when Hasyma reportedly failed 

to pay for its crop as the world price of cotton dropped below the price at which Hasyma contracted with 

local suppliers. Global Development Solutions, “Integrated Value Chain Analysis,” June 2007, 7, 18. 186 Staff calculations derived from data found in RATES, Cotton-Textile-Apparel Value Chain Report 

Madagascar, February 2005, 6. 187 Global Development Solutions, “Integrated Value Chain Analysis,” June 2007, 8. 188 Ibid. 189 Ibid., 18. 190 Industry representative, telephone interview by Commission staff, March 11, 2009. 191 Industry representative, telephone interview by Commission staff, March 11, 2009. 192 USITC, Hearing transcript, January 29, 2009, 114 (testimony of Paul Ryberg, African Coalition for 

Trade). 
4-30 

Country Overview 

Mauritius is a small island nation located in the Indian Ocean off the southeast coast of 

Africa. In 2007, Mauritius had a GDP of $6.4 billion and a relatively high GDP per capita 

of $4,895, compared with most other SSA countries (table 4.17). The Mauritian economy 

has grown significantly since the country’s independence in 1968, and the economy is 

outwardly oriented in large part because of its small domestic market. Along with 

tourism, sugar, and financial services, the textile and apparel sector is a major contributor 

to the economy. Textiles and apparel accounted for 77 percent of industrial production 

and 53 percent of manufacturing employment in Mauritius in 2007.193 

TABLE 4.17 Mauritius: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 6,363

GDP growth (annual %, 2007) 4.7

GDP per capita (current US$, 2007) 4,895

Population (millions, 2007) 1.3

Goods exports (current US$, millions, 2007) 2,231

Goods imports (current US$, millions, 2007) 3,895

Inflation, consumer prices (annual %, 2007) 9.3

Literacy rate, adult total (% of people ages 15 and above, 2000) 84.3

Labor force, total (millions, 2006) 0.6

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 107

Gross capital formation (current US$, millions, 2007) 1,661

Lending rate (% 2007) 21.9

Manufacturing value added (current US$, millions, 2007) 987

Prevalence of HIV, total (% of population 15–49, 2007) 1.7

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. 

Industry and Trade Overview 

Mauritius’s textile and apparel sector was established in the 1970s, when the government 

began its export promotion strategy. Through the establishment of export processing 

zones and efforts to attract foreign investment, Mauritius built a competitive, mature, 

vertically integrated textile and apparel industry. In the late 1990s, Mauritius received 

significant FDI and technology transfer from Hong Kong. Since the final phase-out of 

quotas at the end of 2004, the industry has undergone restructuring and consolidation to 

move into higher-value goods. Thirty foreign firms left Mauritius at the end of 2004, 

leaving the sector largely domestically owned (80 percent). 194 In 2007, there were an 

estimated 211 textile and apparel firms in Mauritius employing roughly 55,000 

workers.195 The industry is concentrated among 10 large textile and apparel groups that 

 193 U.S. Department of State, U.S. Embassy, Port Louis, “Information on Textile and Apparel 

Production,” September 28, 2007. 194 Industry representative, interview by Commission staff, Mauritius, March 3, 2009. 195 U.S. Department of State, U.S. Embassy, Port Louis, “Information on Textile and Apparel 

Production,” September 28, 2007. 
4-31 

collectively accounted for 75 percent of total textile and apparel exports and 55 percent of 

sector employment in 2007.196

 

Compared with other SSA countries, the textile and apparel sector in Mauritius is 

relatively vertically integrated, especially for knitwear. Several new investments have 

been made in the textile and apparel inputs sector in recent years; machinery and 

technology in Mauritius are generally modern. 

 

Textile and apparel inputs 

The large, vertically integrated textile groups include the Ciel Group and Compagnie 

Mauricienne de Textile Ltée. (CMT), as well as denim firms RS Denim and Denim de 

L’Île (DDI). There are five yarn spinners currently operational in Mauritius―two firms 

that spin yarn exclusively (Tian Li and Ferney) and three additional firms (CMT, DDI, 

and RS Denim) that produce yarn through finished garments. Spinning activities employ 

1,005 workers, and the industry has the capacity to produce roughly 30,000 tons of cotton 

yarn for knits and 21,000 tons of denim yarns per year.197

Tian Li198 is the sole independent spinner in Mauritius. The company, which was started 

by Chinese investors in 2002, produces 100 percent cotton yarn and small quantities of 

viscose rayon and modal yarn. Most of Tian Li’s customers are in Mauritius, and most 

yarn produced is sold locally as greige yarn for use in knitting tops. However, Tian Li 

also exports small amounts of open-end spun yarn for use in weaving jeans and towels. 

The other spinning facility, Ferney, operates as part of the Ciel Group and spins wool 

yarn. 199 Ferney primarily supplies other firms within the group, but also sells to 

independent local and foreign knitwear producers.200 The Ciel Group comprises a variety 

of textile and apparel firms with wool yarn spinning, knit and woven fabric production, 

dyeing, and cutting and sewing operations.201

CMT202 is a vertically integrated firm producing yarn through downstream production of 

knit shirts for export. The firm employs 10,000 workers and exports mostly to the EU. In 

2008, it was the largest private-sector employer in Mauritius.203 CMT supplies the “fast 

fashion”204 segment of the apparel industry and has invested in backward linkages to 

decrease lead times. RS Denim, a vertically integrated cotton yarn spinning and denim 

mill, began operations in 2008 and sells denim locally in Mauritius and also to regional 

markets.205 Another vertically integrated denim manufacturer, DDI, produces cotton yarn 

through to denim fabric and jeans. DDI currently produces for its own apparel 

 196 U.S. Department of State, U.S. Embassy, Port Louis, “Information on Textile and Apparel 

Production,” September 28, 2007. 197 Embassy of the Republic of Mauritius, written submission to the USITC, January 15, 2009, 4. 198 All information on Tian Li was obtained from interview unless otherwise noted. Industry 

representative, interview by Commission staff, Mauritius, March 4, 2009. 199 Industry representative, interview by Commission staff, Mauritius, March 5, 2009; Ciel Group Web 

site. http://www.cielgroup.com (accessed February 5, 2009). 200 Industry representative, interview by Commission staff, Mauritius, March 5, 2009. 201 The Ciel Group encompasses several different business units spanning the production chain, from 

yarn to finished knit and woven garments. Ciel also has production units in Madagascar. Ciel Group Web 

site. http://www.cielgroup.com (accessed February 5, 2009). 202 All information on CMT was obtained from interview unless otherwise noted. Industry 

representative, interview by Commission staff, Mauritius, March 5, 2009. 203 Hawkins, “Textiles: Restructured and Refocused,” March 11, 2008. 204 Fast fashion is a merchandising system whereby a retailer introduces small quantities of new, 

relatively exclusive garments at higher prices and keeps these items in the store for a limited time. 205 Industry representative, interview by Commission staff, Mauritius, March 4, 2009. 
4-32 

manufacturing operations and also sells to local and export markets. 206 It recently 

purchased additional apparel manufacturing facilities and plans to increase its exports of 

apparel.207 DDI’s denim fabric is used in apparel for the EU, U.S., and South African 

markets.208

Until recently, Socota Textile Mills, part of Groupe Socota Industries, produced mainly 

yarn-dyed woven fabric used for blouses, shirts, pants, and other lightweight 

applications.209 The mill recently closed, reportedly due to rising costs of production.210

Industry sources indicate the factory’s equipment remains in Mauritius; there is 

speculation that the plant will move its facility to Madagascar, or, in light of the recent 

unrest there, re-open in Mauritius.211

Mauritian textile and apparel inputs producers reported decreased sales resulting from the 

current economic downturn and decreased global demand for apparel.212 In addition, one 

industry representative noted that his firm had been adversely affected by the political 

instability in Madagascar, Mauritius’s largest export market for textile and apparel 

inputs.213 The representative noted that orders had declined dramatically since the onset 

of the unrest in January 2009.214

Mauritius is a net importer of textile and apparel inputs. Mauritian exports of textile and 

apparel inputs totaled $63.1 million in 2007 (table 4.18), while imports totaled $256.5 

million (table 4.19). Exports of textile and apparel inputs have increased by 30 percent 

since 2005, though exports have only recently recovered to 2004 levels. Two-thirds of 

exports went to other SSA countries and consisted mostly of yarn and woven fabric. 

Madagascar and South Africa are the largest regional consumers of Mauritian yarn and 

fabric. In 2007, Mauritius’s yarn and fabric imports totaled $207.5 million, of which 

woven fabric accounted for 51 percent of the total, while yarn accounted for 42 percent of 

the total. India was the major source for Mauritius’s yarn imports, accounting for 54 

percent of the total, and China was the largest source for its woven fabric imports, with 

44 percent of the total. With respect to raw materials, Mauritian imports of cotton have 

increased by 145 percent since 2003. In 2007, 77 percent of cotton imports came from 

SSA countries. With the recent AGOA amendments, Mauritius may now use thirdcountry yarn and fabric in apparel while still qualifying for duty-free treatment in the 

U.S. market.215

 206 Industry representative, interview by Commission staff, Mauritius, March 5, 2009. 207 Fibre2fashion.com, “Mauritius: DDI Aspires for Expansion,” February 15, 2008. 208 Hawkins, “Textiles: Restructured and Refocused,” March 11, 2008. 209 Industry representative, interview by Commission staff, Mauritius, May 28, 2008. 210 U.S. Department of State, U.S. Embassy, Antananarivo, “Obstacles to Investment,” 

November 5, 2008. 211 U.S. Department of State, U.S. Embassy, Antananarivo, “Obstacles to Investment,” 

November 5, 2008; industry representative, interview by Commission staff, Mauritius, March 4, 2009. 212 Industry representatives, interviews by Commission staff, Mauritius, March 4 and 5, 2009. 213 Industry representative, interview by Commission staff, Mauritius, March 4, 2009. 214 Industry representative, interview by Commission staff, Mauritius, March 4, 2009. 215 Section 3(a) of Public Law 110-436, (app. A). 
4-33 

TABLE 4.18 Mauritius: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 16,756 37,944 27,887 29,319 41,589

EU-27 8,441 10,180 8,518 15,686 17,899

Rest of world 6,737 15,727 12,042 6,942 3,612

United States 1 67 7 2 4

 Total 31,936 63,918 48,454 51,949 63,104

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.19 Mauritius: Exports and imports of textile and apparel inputs, by product group, 2003–07 

(1,000 $) 

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 0 3 172 46 4

 Knit fabric 3,057 4,747 8,023 9,160 10,975

 Manmade fibers 75 3 3 5 0

 Other fabric 135 268 278 204 154

 Thread 835 1,465 958 1,156 581

 Trim 1,800 2,402 2,090 2,514 2,613

 Woven fabric 23,848 44,745 28,095 25,349 30,166

 Yarn 2,187 10,286 8,835 13,513 18,610

 Total 31,936 63,918 48,454 51,949 63,104

Imports: 

 Carded or combed fibers 5,580 5,893 4,478 7,241 10,074

 Knit fabric 23,493 24,933 11,770 6,072 7,152

 Manmade fibers 985 965 867 880 1,823

 Other fabric 11,444 9,182 5,689 4,880 7,758

 Thread 4,486 3,530 2,719 3,280 3,796

 Trim 36,689 33,606 27,364 28,897 33,299

 Woven fabric 124,969 98,109 80,047 86,353 105,534

 Yarn 122,286 106,323 90,602 103,301 87,015

 Total 329,933 282,540 223,535 240,906 256,452

Source: World Bank, WITS Database (accessed December 3, 2008). 

Apparel 

Mauritian apparel firms aim to compete based on quality, design, lead times, and fashion, 

rather than cost (box 4.3).216 Mauritius has large, vertically integrated knit and denim 

apparel firms (discussed above), as well as small- and medium-sized companies involved 

in cut-make-trim operations. Apparel firms currently have the flexibility to use thirdcountry fabrics in garment manufacturing, while maintaining eligibility for duty-free 

exports under AGOA. Mauritian exports of apparel are traditionally oriented toward 

European markets due to historical linkages, shared language, and similar time zones.217

Mauritius’s apparel exports totaled $942.1 million in 2007 (table 4.20). T-shirts, trousers, 

sweaters, and shirts account for the bulk of Mauritian apparel exports. Exports to the EU 

accounted for 80 percent of total apparel exports in 2007, followed by exports to the 

United States at 12 percent. In that same year, knit apparel accounted for roughly 77 

percent of textile and apparel exports to the EU, whereas woven apparel accounted for 65 

percent of total sector exports to the United States. In 2007, U.S. imports of apparel from 

Mauritius totaled $120.1 million, down from $175.4 million in 2005. Similar to the 

export trend exhibited by textile and apparel inputs, exports of apparel have almost 

 216 Mauritian government official, interview by Commission staff, Mauritius, March 4, 2009. 217 Industry representative, interview by Commission staff, Mauritius, March 3, 2009. 
4-34 

returned to 2004 levels, indicating that the textile and apparel industry in Mauritius seems 

to have recovered successfully following consolidation and restructuring (table 4.20). 

BOX 4.3 Mauritius’s Strategies for Success 

Despite the numerous challenges facing Mauritius as a small, comparably high-cost, and export-dependent producer, 

Mauritian textile and apparel producers have managed to remain competitive by upgrading capabilities and moving 

into higher-value-added sectors of production. Mauritius has one of the most vertically integrated sectors in SSA in 

terms of upstream production of yarn and fabric, and the industry has also been successful in adjusting to buyer 

demands by providing downstream services such as design and innovative fashion, as well as moving into highervalue garments.a

 Mauritius has university-level training programs for textile engineers, and the industry also has 

brought in European consultants to assist the industry with improving design capabilities. 

Some manufacturers have repositioned themselves to compete in the fast fashion market in the EU against suppliers 

such as Portugal, Turkey, Greece, and Morocco.b The availability of local yarn and fabric, combined with regular air 

flights to the EU (owing to the Mauritian tourism industry) allow Mauritian firms to compete in this short-lead-time 

market segment. Fast fashion garment production is generally for mid- to high-end retailers, enabling manufacturers 

to recoup the higher costs associated with production and shipment of such goods. Star Knitwear indicated that it can 

produce fast fashion garments for EU retailers with lead times as short as two to four weeks.c

 Working with lead time 

and quality advantages allows the firm to be competitive, even though its prices can be 30 percent higher than 

China’s.d In addition, Mauritian firms are reportedly monitoring their customers’ retail sales in an effort to anticipate 

customers’ future replenishment orders.e

 Such monitoring is especially advantageous given the economic downturn 

and lean buying strategies of retailers. Other Mauritian garment manufacturers have moved into the production of 

higher-end fabrics and garments. For example, some Mauritian firms are making fashion jeans, which differ from the 

basic jeans commonly produced in the region in terms of the level of finishing detail and quality of fabric used. 

Mauritian garment manufacturers are also adopting green strategies of production, moving toward a more sustainable 

industry. RT Knits, for example, uses green energy sources, such as solar panels and wind energy, to reduce its 

long-term costs of production.f Movement toward green production methods helps producers to stay ahead of 

international buyers’ environmental and social compliance requirements.g

_________________________________ a

Mauritian government official, interview by Commission staff, Port Louis, Mauritius, May 26, 2008; Bhurtun, 

Kistamah, and Chummun, “Energy Saving Strategies,” March 27, 2009. b

Industry representative, interview by Commission staff, Mauritius, March 4, 2009; Mauritian government official, 

interview by Commission staff, Mauritius, March 5, 2009. c

Hawkins, “Textiles: Restructured and Refocused,” March 11, 2008. d

Ibid.

e

Retailers have reportedly delayed placing orders as a result of the increased uncertainty in the market associated 

with the current economic downturn, placing increased demands on manufacturers to produce and ship the garments 

more quickly. f

Ackbarally, “Mauritius: Textile Manufacturing Goes Green and Clean,” November 1, 2008. g

Ibid. 

TABLE 4.20 Mauritius: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 970,002 955,126 804,680 836,398 942,147

Imports 18,228 22,798 25,013 37,008 48,093

Source: World Bank, WITS Database (accessed December 16, 2008). 
4-35 

Factors Contributing to Competitive Production 

Mauritius stands out among SSA countries as a favorable place to do business in terms of 

institutions, infrastructure, and investment.218 It ranks 24th globally out of 181 countries 

in the World Bank’s Doing Business 2009 database, the highest ranking of any SSA 

country (table 3.3). Openness to FDI in all sectors of the economy has provided the 

Mauritian apparel industry with access to the latest technology and also market linkages. 

Today, textile and apparel producers in Mauritius benefit from longstanding relationships 

with customers in key European markets. One industry source noted that firms in 

Mauritius have a competitive edge over Asian competitors because they are culturally 

closer to Europe and can “feel” what the customer wants.219

 

The successful development of a competitive and diversified apparel industry over the 

past 30 years created demand for backward linkages in the production of textile and 

apparel inputs. Apart from South Africa, Mauritius has the most vertically integrated 

textile and apparel sector in SSA. Mauritian producers were able to reposition themselves 

following the final phase-out of quotas to maintain their competitiveness as global 

suppliers of apparel, even after several foreign firms closed Mauritian operations in 

2004. 220 Because investment in the Mauritian textile and apparel industry is 

overwhelmingly local, ownership in the sector is seriously committed to the long-term 

strength of the industry. This commitment stands in striking contrast to the apparel 

sectors in several other SSA countries, where apparel production is largely conducted by 

foreign firms operating basic cut and sew operations. 

Additionally, Mauritian textile producers have also taken advantage of the highefficiency, low wage apparel manufacturers in nearby Madagascar. Outsourcing cut and 

sew operations to Madagascar allows Mauritian firms to expand production while also 

creating regional demand for Mauritian textile and apparel inputs. 

Mauritian apparel firms are the most recent beneficiaries of the third-country fabric 

provision under AGOA, receiving this benefit with the most recent amendments to 

AGOA in late 2008. Even vertically integrated firms reported that the extension of the 

third-country fabric provision to Mauritius has been helpful to the industry. Firms report 

that they will use local fabric when it is available to meet lead times required by 

customers, but third-country fabrics allow maximum flexibility in terms of the range of 

fabric they are able to use in production for their customers.221 Reportedly, customers 

value this flexibility, and it increases Mauritius’ attractiveness as a sourcing 

destination.222 Additionally, Mauritius benefits from trade preferences extended by the 

EU. Through an interim EPA agreement, Mauritius can export apparel to the EU under 

rules of origin similar to that under AGOA.223 To further promote investment in textiles, 

one industry source indicated that the best course of action is to encourage a critical mass 

 218 In 2008, the World Economic Forum ranked Mauritius 57th out of 134 countries in its Global 

Competitiveness Index. Mauritius’s ranks were particularly high in terms of the sophistication of its financial 

markets (32), institutions (39), and infrastructure (43). Porter and Schwab, eds., Global Competitiveness 

Report 2008–2009, 2008, 10, 15–17, and 35. 219 Industry representative, interview by Commission staff, Mauritius, March 5, 2009. 220 Industry representative, interview by Commission staff, Mauritius, May 26, 2008. 221 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 222 Industry representative, interview by Commission staff, Mauritius, March 5, 2009. 223 Industry representative, e-mail message to Commission staff, May 7, 2009. 
4-36 

in apparel production and allow the maximum variety of fabrics to be eligible for dutyfree treatment.224

Further, the government of Mauritius is committed to preserving textile sector 

employment and has worked with the industry to develop a market sustainability 

strategy.225 The strategy includes decreasing direct competition with Asia by moving 

away from basic textile and apparel articles and moving up the value chain to produce 

fashion/semifashion goods with short runs and shorter lead times, and increasing the 

range and styles of product offerings. Another goal of the strategy includes diversifying 

target markets beyond the United States and the EU to South Africa, India, Australia, and 

Russia.226 Thus far, market diversification has been somewhat successful; for example, in 

2007, South Africa was Mauritius’s third-largest export market for textile and apparel 

inputs. 

In an effort to stem losses resulting from the global economic downturn, in December 

2008, the government of Mauritius approved a 10 billion rupee ($292 million) economic 

stimulus package, titled the Mechanism for Transitional Support to the Private Sector.227

The stimulus package includes an estimated 1 billion rupees ($29 million) to support the 

manufacturing sector (largely textiles and apparel), one-half of which is funded by the 

government and the other half by Mauritian financial institutions.228 As of February 2009, 

several companies had requested funding through the program, and one textile company 

has been approved to date.229

Factors Inhibiting Competitive Production 

Mauritian firms are seeking out new apparel markets to foster increased inputs demand. 

The country’s own domestic market for clothing is too small to provide sufficient 

demand to support a large textile and apparel sector, forcing Mauritius to be outward 

oriented. Further, although Mauritius benefits from demand for textile and apparel inputs 

from its competitive export-oriented apparel sector, its isolated location makes it difficult 

for input producers to identify and/or increase business with apparel manufacturers in 

other SSA countries. The country’s geographic isolation also results in long shipping lead 

times for apparel manufacturers compared with competitors for the United States and the 

EU. Reportedly, lead times in particular limit Mauritius’ ability to penetrate the U.S. 

market for apparel. In addition, the small size of the island (smaller in land area than the 

State of Rhode Island) and lack of available land for potential expansion of production 

ultimately constrain the development of Mauritius’s textile and apparel industry. 

Mauritius faces rising costs in terms of energy, land prices, and labor, which impede 

sector competitiveness.230 For example, one firm stated that spinning is more expensive 

in Mauritius than in China because of energy costs.231 An industry representative noted 

that the spinning segment had also been adversely affected by the global economic 

downturn and increasing competition from Indian spinners, noting that sales have 

 224 Industry representative, interview by Commission staff, Mauritius, March 5, 2009. 225 Industry representative, interview by Commission staff, Mauritius, March 5, 2009. 226 Industry representative, interview by Commission staff, Mauritius, March 5, 2009. 227 Industry representative, interview by Commission staff, Mauritius, March 3, 2009. 228 Industry representative, interview by Commission staff, Mauritius, March 3, 2009. 229 Industry representatives, interviews by Commission staff, Mauritius, March 3 and 4, 2009. 230 U.S. Department of State, U.S. Embassy, Antananarivo, “Obstacles to Investment,” 

November 5, 2008. 231 Industry representative, interview by Commission staff, Mauritius, March 4, 2009. 
4-37 

declined by 30 percent compared to 2008. The source further noted that Indian yarn was 

sold at very low prices in Mauritius and supplied roughly 80 percent of the Mauritian 

market. 

 

Wages are relatively high in Mauritius, especially when compared with other major SSA 

or Asian textile and apparel producers. This is due, in part, to the fact that workers in 

Mauritius earn an hourly wage plus bonus wages based on the quantities they produce.232

According to one industry source, workers can earn up to $400 per month, versus $50 per 

month in Bangladesh.233 Further, there is a shortage of workers in the textile sector, 

especially for shift work.234 It has been reported that few Mauritians are interested in the 

textile and apparel sector for employment, and most do not want to work in factories.235

Therefore, Mauritian firms import workers from China, Bangladesh, Sri Lanka, and 

India, who are more experienced and more efficient than local labor. 236 Reportedly, 

factories provide transportation, room, and board for foreign workers, who represent an 

estimated 25 percent of total employment in the textile and apparel sector in Mauritius.237

Nigeria 

Potential Competitive Products 

Nigeria has a history of cotton production and integrated textile production, and it 

maintains available capacity and a skilled labor force. However, infrastructure problems, 

particularly with electricity, as well as cotton quality issues and lack of an apparel 

industry hinder the resurgence of the textile industry. If infrastructure were improved, 

cotton yarn and manmade fibers, which are products that Nigeria currently exports to the 

EU, and niche products such as ethnic printed fabrics might be produced competitively. 

For example, wax print decorative fabrics for blinds and curtains were identified as 

potential niche products.238 

Country Overview 

Nigeria is the most populous country in Africa (148.0 million in 2007) and the secondlargest economy in SSA, with a GDP of $165.7 billion in 2007 (table 4.21). It is a lowincome country with a per capita GDP of $1,120 in 2007. Oil is a major contributor to 

GDP and accounts for 90 percent of export earnings.239 Agriculture and services are the 

other major contributors to GDP, while manufacturing (including textile and apparel 

inputs) accounts for less than 5 percent of GDP. Basic infrastructure in the country has 

deteriorated over the past 20 years.240

 232 Industry representative, interview by Commission staff, Mauritius, March 3, 2009. 233 Industry representative, interview by Commission staff, Mauritius, March 3, 2009. 234 Industry representative, interview by Commission staff, Mauritius, May 26, 2008. 235 Industry representative, interview by Commission staff, Mauritius, March 3, 2009. 236 Industry representative, interview by Commission staff, Mauritius, March 3, 2009. 237 U.S. Department of State, U.S. Embassy, Port Louis, “Information on Textile and Apparel 

Production,” September 28, 2007; industry representative, interview by Commission staff, Mauritius, May 

28, 2008. 238 USITC, Hearing transcript, January 29, 2009, 87 (testimony of Anthony Carroll, Manchester 

Trade Ltd). 239 EIU, Country Profile 2008: Nigeria, 2008, 24. 240 U.S. Department of State, Bureau of African Affairs, “Background Note: Nigeria,” December 2008. 
4-38 

TABLE 4.21 Nigeria: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 165,690

GDP growth (annual %, 2007) 6.3

GDP per capita (current US$, 2007) 1,120

Population (millions, 2007) 148.0

Goods exports (current US$, millions, 2007) 65,500

Goods imports (current US$, millions, 2007) 29,500

Inflation, consumer prices (annual %, 2007) 5.4

Literacy rate, adult total (% of people ages 15 and above, 2004) 69.1

Labor force, total (millions, 2006) 52.7

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 5,445

Gross capital formation (current US$, millions) b

Lending rate (%, 2007) 16.9

Manufacturing value added (current US$, millions, 2006) 3,760

Prevalence of HIV, total (% of population 15–49, 2007) 3.1

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. bNot available. 

Industry and Trade Overview 

The industry in Nigeria is dominated by the production of textiles with minimal apparel 

production. Nigeria’s industrial textile industry is over 50 years old and once served a 

large domestic market as well as export markets within the region and to the EU. The 

industry, which was once one of the country’s largest employers, contracted significantly 

beginning in the 1990s. Employment fell from 137,000 workers in 1996 to 24,000 in 

2008, and many factories closed in recent years due to high production costs and 

competition from imports.241 The industry is reportedly struggling to survive, and many 

more firms are facing closure.242 

Textile and apparel inputs 

Currently, the industry producing textile and apparel inputs in Nigeria consists of 20 or 

fewer factories employing an estimated 20,000 workers.243 Existing factories reportedly 

produce at less than 25 percent of installed capacity.244 The general decline of the textile 

industry can be attributed to the final phase-out of quotas in the major markets, declining 

infrastructure, the decline in the cotton marketing boards, the shift of focus to the oil 

industry, and competing imports of print fabric from China.245 Recent plant closures have 

been attributed to power and water supply problems, high fuel costs, and competition 

 241 In 2007, a number of textile firms closed, including UNT, the largest textile firm in Nigeria, with a 

total loss of 10,000 jobs. In 2008, 5,000 more jobs were lost in the industry as more factories closed down. 

Imhonlene, “Nigeria’s Textile Industry Heads for Total Collapse,” January 16, 2009; Yee and Paludetto, 

Nigeria: Value and Supply Chain Study, March 2005, 23; ifashion.com, “UNIDO Decries Collapse of 

Nigeria’s Textile Industry,” March 13, 2009 (accessed April 14, 2009). 242 ifashion.com, “UNIDO Decries Collapse of Nigeria’s Textile Industry,” March 13, 2009 (accessed 

April 14, 2009). 243 USITC, Hearing transcript, January 29, 2009, 64 (testimony of Anthony Carroll, Manchester Trade 

Ltd); Adenekan, “Government Should Declare Emergency,” January 18, 2009. 244 Obi, “GDP Growth, Minus the Textile Industry,” November 21, 2008. 245 USITC, Hearing transcript, January 29, 2009, 65 (testimony of Anthony Carroll, Manchester 

Trade Ltd). 
4-39 

from smuggled counterfeit prints.246 In particular, it has been reported that cloth from 

China falsely labeled as made in Nigeria competes with Nigerian brands in the domestic 

market and in regional markets.247 Other problems facing the industry are old machinery, 

lack of dyes and industrial starch, and poor yarn quality.248 Although the government 

promised loans to textile factories and cotton growers in 2007, the funds have not yet 

been distributed, and the industry has continued to contract.249

 

Nigeria previously benefited from preferential treatment for textile exports to the EU 

under the Cotonou Agreement but has not signed an interim EPA. Under AGOA, Nigeria 

qualifies for textile and apparel preferences (see table 3.5), as well as duty-free treatment 

for ethnic printed fabric and folklore and handmade articles. Although Nigeria prohibits 

imports of ethnic printed fabric and used clothing, these items are allegedly smuggled 

into the country in large quantities.250

Some of the larger Nigerian textile firms are vertically integrated from cotton ginning to 

yarn spinning, fabric weaving, dyeing, printing, and finishing. Many of the large mills are 

owned by international conglomerates, including the Hong Kong-based Cha group and 

the Kenyan Sunflag group. Textile plants are located in Kano and Kaduna in the north 

near the cotton-growing areas and in Lagos. Most of the northern plants have closed 

down, and some have reportedly moved to nearby countries such as Ghana because of 

comparatively high production costs and unstable energy supply in Nigeria. 251 Five 

textile firms were listed in Nigeria’s top 100 nonoil exporters in 2007 (table 4.22).252 

TABLE 4.22 Nigeria: Major textile exporting firms, 2007 

Firm name Products Major export market 

Alkem Nigeria Ltd Polyester staple fiber South Africa 

Angel Spinning and Dyeing Cotton African real wax print cloth Congo 

UNTP-Ikorodu Wax printing, polyester fiber and filament, yarn, greige 

cloth, dyeing, printing 

 Senegal 

Spintex Mills Yarn Portugal 

African Textiles Manufacturing Cotton spinning, weaving, dyeing, printing, finishing, wax 

prints 

 France 

Source: Government of Nigeria, Central Bank of Nigeria, Annual Report and Statement of Accounts, 2008. 

Nearly all of the installed spinning and weaving capacity in Nigeria is more than 10 years 

old. 253 Spinning capacity consists of 700,000 short-staple spindles, 3,000 long-staple 

spindles, and 23,000 open-end rotors.254 Weaving capacity consists of 2,500 shuttleless 

 246 Fibre2fashion.com, “Declare State of Emergency,” November 18, 2008. 247 USITC, Hearing transcript, January 29, 2009, 65–66 (testimony of Anthony Carroll, Manchester 

Trade Ltd); Victor Ahiuma-Young, “Chinese Exporters Destroy Nigerian Textile Industry,” 

October 27, 2008. 248 Okere, “Waiting for the Textile Revival Fund,” December 4, 2008. 249 EIU, “The Domestic Economy,” August 2, 2007; Gulloma, “Nigeria: Bureaucracy Stalls Release of 

N70 Billion Textile Fund,” February 12, 2009. 250 Imhonlene, “Smuggling Remains Major Threat,” December 23, 2008. 251 Ajakaiye, “Energy Crisis,” July 23, 2008. 252 Government of Nigeria, Central Bank of Nigeria, Annual Report and Statement of Accounts, 

table 63, 2008, 244. 253 The spinning and weaving machinery capacity and shipment information in this paragraph is from 

ITMF, International Textile Machinery Shipment Statistics, 2007. 254 Shipments of spinning machinery from 1998 to 2007 were 26,172 short-staple spindles and 8,480 

open-end rotors. 
4-40 

looms and 11,000 shuttle looms.255 Printing and dyeing capacity was estimated in 2006 to 

be 1,500 million meters.256 Cotton fiber production was estimated in 2006 to be 70,000 

metric tons per year, and polyester/filament production was estimated to be 25,000 metric 

tons per year.257 Cotton woven fabric production in 2005 was 25 million square meters, 

manmade fiber production was 511 million square meters, and knitted fabric production 

was 111 million square meters.258

 

There is some production of manmade fibers in Nigeria, although plants are small and 

production has been declining.259 Producers include Alkem Nigeria, producing polyester 

staple fibers, and Globe Spinning and Horizon Fibres, producing filament yarn. Capacity 

is 6,000 tons for textile filament and 5,000 tons for polyester staple. Synthetic fiber 

production fell from 13,400 metric tons in 2004 to 9,100 metric tons in 2007.260

 

Total textile exports were $20.7 million in 2007 (table 4.23). The EU was the main 

destination for textile exports, accounting for 77 percent of exports in 2007. Exports to 

the EU were mostly manmade fibers, as well as some yarn and woven cotton fabric. 

Other destination markets include South Africa (synthetic polyester staple fiber), Niger, 

and Côte d’Ivoire. The major export products were manmade fibers ($12.5 million), 

woven fabric ($3.5 million), yarn ($2.4 million), and carded/combed fibers ($2.2 million) 

(table 4.24). Overall, exports of textile and apparel inputs have declined, with the value of 

exports decreasing by nearly 50 percent from 2005 to 2007. 

TABLE 4.23 Nigeria: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 1,172 3,861 3,278 5,013 4,283

EU-27 26,408 40,861 34,258 14,750 15,844

Rest of world 941 3,186 2,636 1,102 487

United States 292 197 15 34 40

 Total 28,814 48,106 40,186 20,900 20,654

Source: World Bank, WITS Database (accessed December 3, 2008). 

 255 Shipments of weaving equipment from 1998 to 2007 consisted of 30 shuttleless looms and 70 

shuttle looms. 256 U.S. Department of State, “Textile and Apparel Production Capabilities,” August 2006. 257 U.S. Department of State, “Textile and Apparel Production Capabilities,” August 2006. 258 Government of Nigeria, National Bureau of Statistics, “Manufacturing, Production and 

Consumption,” 2006. 259 Industry consultant, e-mail message to Commission staff, January 16, 2009; Fiber Economics 

Bureau, Fiber Organon, June 2008. 260 Ibid. Of the 9,100 metric tons of synthetic fiber produced, 5,000 tons were textile filament yarn and 

4,100 tons were polyester staple. 
4-41 

TABLE 4.24 Nigeria: Exports and imports of textile and apparel inputs, by product group, 2003-07 (1,000 $)

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 181 149 734 2,307 2,214

 Knit fabric 9 76 4 3 2

 Manmade fibers 9,007 15,791 17,592 10,461 12,485

 Other fabric 22 38 13 97 20

 Thread 113 195 55 55 42

 Trim 204 113 84 204 68

 Woven fabric 4,049 8,417 4,983 4,023 3,460

 Yarn 15,228 23,327 16,723 3,749 2,363

 Total 28,814 48,106 40,186 20,900 20,654

Imports: 

 Carded or combed fibers 4,530 5,419 5,801 4,666 2,297

 Knit fabric 8,977 3,997 4,998 2,588 2,854

 Manmade fibers 18,387 23,447 36,510 44,539 54,022

 Other fabric 17,892 23,529 17,751 17,164 33,240

 Thread 4,128 4,037 2,443 1,671 2,827

 Trim 286,760 261,559 233,372 227,753 195,653

 Woven fabric 324,641 217,754 173,311 130,770 107,965

 Yarn 19,266 13,282 11,644 16,686 22,270

 Total 684,580 553,025 485,828 445,836 421,127

Source: World Bank, WITS Database (accessed December 3, 2008). 

Apparel

There is virtually no apparel production in the country. In 2007, apparel exports were just 

$0.5 million (table 4.25). Apparel producers are mostly small operators producing 

custom-tailored clothing for the domestic market. However, much of the “apparel” is 

ethnic printed fabric sold in individual pieces to be worn as clothing. 261 Nigerianproduced fabric accounted for about 20 percent of the 1.2 billion meter domestic fabric 

market in 2006.262

 

TABLE 4.25 Nigeria: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 802 531 601 1,159 503

Imports 162,241 110,535 97,423 82,028 103,292

Source: World Bank, WITS Database (accessed December 16, 2008). 

Factors Contributing to Competitive Production 

Nigeria has a large domestic market, and at one time was the largest cotton producer in 

SSA and had one of the largest textile industries in the region.263 Nigeria still has a large 

supply of domestic cotton (box 4.4); it is the largest cotton producer among the Group 1 

countries. Despite the decline in the textile industry, some of the factories and machinery 

are still in place. With experienced managers and a trained labor force, the textile 

industry benefits from high labor productivity relative to labor costs.264 In 2007, the 

 261 USITC, Hearing transcript, January 29, 2009, 63 (testimony of Anthony Carroll, Manchester 

Trade Ltd). 262 ICAC, “Nigeria,” October 22–26, 2007. 263 USITC, Hearing transcript, January 29, 2009, 63 (testimony of Anthony Carroll, Manchester 

Trade Ltd). 264 Ibid., 83.; Yee and Paludetto, Nigeria: Value and Supply Chain Study, March 2005, 49. 
4-42 

BOX 4.4 Cotton Production in Nigeria 

In marketing year (MY) 2007, Nigeria was the third-largest SSA cotton-producing country, accounting for 12 percent 

of SSA production (app. G). During the MY 2003–07 period, Nigerian cotton production was fairly stable, ranging 

from 400,000 bales in MY 2005 and MY 2006 to 450,000 bales in MY 2007 (see table below). In MY 2007, Nigeria 

consumed 62 percent of domestic cotton supplies, down from 73 percent in MY 2003, corresponding to the long-term 

downward trend in textile productiona

 and government encouragement of cotton exports through the Export 

Expansion Grant program.b

 Nigerian cotton exports accounted for one-third of the MY 2007 cotton crop, up from just 

over one-fifth in MY 2003. Most Nigerian cotton exports were destined for Asia and Europe, and only limited 

quantities were exported to other SSA countries.c

 Small volumes of cotton were reportedly imported into Nigeria from 

Niger and Chad to meet local demand for longer-staple cottons for use in higher-quality textiles.d

Nigeria: Cotton production, consumption, and trade 

Marketing year (Aug. 1–July 31) 

Source 2003 2004 2005 2006 2007 

Beginning stock 144 129 144 129 119 

Production (1,000 bales) 415 420 400 400 450 

 % of SSA production 7 7 7 9 12 

 Average yields (kg/ha) 241 241 229 229 248 

 Area harvested (ha) 375 380 380 380 395 

Consumption (1,000 bales) 410 375 360 360 350 

 Ratio of consumption to domestic supplies1 (%) 73 68 66 68 62 

Imports (1,000 bales) 70 70 70 75 70 

Exports (1,000 bales) 90 100 125 125 150 

 % of production exported 22 24 31 31 33 

 % of total exports from SSA to world 2 2 2 3 5 

Exports (US $, millions) 14.77 27.87 25.71 26.87 12.81 

 % of exports from Nigeria to SSA (2

) (2) (

2

) (

2

) (

2

)

Source: USDA, FAS, Production, Supply and Distribution Online; World Bank, WITS Database (accessed March 

9, 2009). 

1

Domestic supplies are equivalent to the sum of beginning stocks and production. Beginning stocks are the 

quantity of cotton carried over (not consumed or exported) from the previous year. 2

Values round to zero. 

Nigerian cotton has good fiber characteristics,e

 but overall qualityf remains very low. As a result, Nigerian cotton 

received a discount under the Cotlook A Index, a common international standard.g

 This discount is primarily a 

consequence of contamination from polypropylene fibers from sacks being used to harvest cotton.h

 Polypropylene 

fibers, as well as other extraneous fibers, have different dye absorption rates than cotton fibers, resulting in uneven 

coloring in dyed yarns and fabrics containing such fibers.i

 In addition, local textile mills classify cotton as either 

a

Imhonlene, “Nigeria’s Textile Industry Heads for Total Collapse,” January 16, 2009. b

The Export Expansion Grant provides cotton exporters 20 percent of the free on board value of all cotton exports 

as compensation for the low value of Nigerian cotton on international markets. David, Nigeria: Cotton and Products 

Annual 2007, September 24, 2007, 5. c

Ibid. 

d

Ibid. 

e

Fiber characteristics refer to the actual attributes of the cotton lint fibers, such as staple length, micronaire, fiber 

strength, and length uniformity. Most African upland cottons have fiber characteristics equal to or above the Cotlook 

A Index benchmark. Fiber characteristics are fairly homogenous across Africa due to similar growing conditions and 

the limited number of varieties planted. However, micronaire and length uniformity vary depending on specific 

varieties, weather conditions, growing areas, and production practices. Estur, “Quality and Marketing of Cotton Lint in 

Africa,” July 2008, 13. f

Overall cotton quality refers to both the fiber characteristics of the lint, along with other nonlint attributes of the 

cotton lint, such as contamination and stickiness. g

The Cotlook A Index sets the international benchmark for quality, with all cotton traded receiving a premium or 

discount price based on its quality in relation to the benchmark. Estur, Is West African Cotton Competitive?, January 

7, 2005, 1–20. h

Industry representative, interview by Commission staff, Dar es Salaam, Tanzania, February 25, 2009. 

i

SSA industry representative, interview by Commission staff, Las Vegas, NV, February 17, 2009. 
4-43 

BOX 4.4 Cotton Production in Nigeria—Continued

polypropylene-free or contaminated and provide premiums for cotton classified as polypropylene-free.j

 Other types of 

contaminates (e.g., sand and water) used by producers to unfairly increase the weight of the cotton are also of 

concern for buyers.k Quality is also compromised by the lack of a seed multiplication program to ensure the quality of 

seeds used for planting. As a result, ginners distribute seeds to producers that are often of mixed varieties, which 

over time, through genetic variations, reduce specifically developed traits such as disease resistance, yields, and 

fiber characteristics.l 

j

This premium is approximately $0.067 per kg. David, Nigeria: Cotton and Products Annual 2007, September 24, 

2007, 4. k

Ibid.; UPI, “Nigeria: Goje Advises Farmers on Cotton Production,” June 11, 2007. l

Flake and David, Nigeria: Cotton and Products Annual 2008, November 19, 2008, 5.

government set up a 70 billion naira fund (equivalent to about $590 million based on an 

annual 2008 exchange rate) for the cotton and textile industries, although the funds have 

not yet been released.265

Factors Inhibiting Competitive Production 

Textile manufacturers in Nigeria face high electricity costs, unreliable supply, and power 

outages. Diesel used for backup generators is very expensive as is the fuel oil used for 

steam generation. In a survey of business environment obstacles faced by enterprises in 

Nigeria, 76 percent of firms identified electricity as a major constraint (compared to 48 

percent of firms in SSA as a whole).266 Inadequate water supply also increases costs for 

manufacturers.267 

The quality of roads, railroad infrastructure, and port infrastructure scores between 1.7 

and 2.7 on a scale of 1 to 7, below the average for Group 1 countries (table 3.4). One-half 

of roads were rated as collapsed and impassable, and 35 percent were rated to be in poor 

structural condition.268 Delays and congestion at ports and borders are a problem, along 

with onerous inspections procedures and uneven application of import and labeling 

regulations.269 Nigeria ranked 118th out of 181 countries in the World Bank’s Doing 

Business 2009 database, and the cost to export ($1,179 per container), while among the 

lowest of the Group 1 countries, is higher than the cost to export for countries such as 

China and India (table 3.3). 

 

Nigeria’s raw material resources, cotton and petroleum, could potentially provide an 

advantage to textile producers. However, the cotton produced is generally of low quality 

due to poor growing and harvesting practices.270 Despite the petroleum resources in the 

country, polyester chips for textile production are often imported, as are most other raw 

materials such as dyes and industrial starches, often at high prices.271

 265 Gulloma, “Nigeria: Bureaucracy Stalls Release of N70 Billion Textile Fund,” February 12, 2009. 266 World Bank, IBRD, Enterprise Analysis Unit, Enterprise Surveys: Nigeria, 2007, 13. 267 Yee and Paludetto, Nigeria: Value and Supply Chain Study, March 2005. 268 U.S. Department of State, U.S. Embassy, Abuja, “Nigeria: Infrastructure Conditions Hinder Export 

Competitiveness,” October 16, 2008. 269 U.S. Department of State, Bureau of African Affairs, “Background Note: Nigeria,” December 2008. 270 El-Wahab, “Summary of Nigeria Value Chain Analysis,” Summer 2005. 271 Government of Nigeria, Federal Ministry of Science and Technology, Raw Materials Research and 

Development Council, Multi-disciplinary Committee Report, December 2003. 
4-44 

South Africa 

Potential Competitive Products 

Potential competitive products include higher-value-added or specialty fabrics, such as 

technical textiles, performance fabric, industrial textiles, work wear fabric, and highquality worsted fabric. These products are largely niche fabrics that South Africa is 

currently manufacturing and exporting in small amounts directly to, or for use in 

downstream products for, the United States, the EU, and similar markets. Trade data and 

interviews with industry sources also suggest that there could potentially be some 

competitive production of yarn and knit fabric of cotton or cotton blends that could be 

used in vertical production of apparel exported to the U.S. and EU markets. 

 

In recent years, the textile industry in South Africa has contracted and has been 

negatively affected by import competition. Most yarns and fabrics produced in South 

Africa are consumed within the domestic market, and there is limited competitive 

production of textile and apparel inputs for export. Further, a key aim of the textiles and 

apparel sector is reportedly reclamation of the domestic market via a robust and locally 

focused apparel sector. As a result, textile and apparel inputs that could be produced 

competitively in South Africa are likely those products the country is already producing 

successfully for export markets. Increased investment or other measures would help such 

products to remain competitive or allow for some expansion in the production of these 

and similar products. 

 

Country Overview 

South Africa, the southernmost country on the African continent, is the most 

economically diverse of all SSA countries and has one of the larger and more developed 

textile industries in the region. In 2007, GDP totaled $277.6 billion, growing nearly 5 

percent over the previous year. Compared with the majority of AGOA beneficiaries, 

South Africa’s GDP per capita is comparatively high at $5,832 (table 4.26). 

Manufacturing accounts for 16 percent of GDP. However, the textile sector accounts for 

less than 4 percent of total manufacturing employment.272 Sales of textiles and textile 

products account for just over 1 percent of total sales of manufactured goods. Total trade 

in goods represented 58 percent of GDP in 2007, of which imports and exports of textile 

and apparel inputs accounted for less than 1 percent. In recent years, the textile industry 

has experienced severe import competition from China, which currently accounts for the 

vast majority of imports of textiles and finished apparel. 

Industry and Trade Overview 

The South African textile and apparel industry has a long history. Under apartheid, the 

textile and apparel sector was self-sufficient, protected, and focused on import 

substitution. Because the industry was established to satisfy local demand and operated in 

the absence of competition from external suppliers, production was substantial and 

encompassed a wide range of products.273 The industry became subject to international

 272 Statistics South Africa, Manufacturing: Production and Sales (Preliminary), February 10, 2009. 273 SSA industry representative, interview by Commission staff, Johannesburg, South Africa, 

February 23, 2009. 
4-45 

TABLE 4.26 South Africa: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 277,581

GDP growth (annual %, 2007) 4.8

GDP per capita (current US$, 2007) 5,832

Population (millions, 2007) 47.6

Goods exports (current US$, millions, 2007) 69,788

Goods imports (current US$, millions, 2007) 90,990

Inflation, consumer prices (annual %, 2007) 7.1

Literacy rate, adult total (% of people ages 15 and above) (

b

)

Labor force, total (millions, 2006) 20.0

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) -120

Gross capital formation (current US$, millions, 2007) 55,718

Lending rate (%, 2007) 13.2

Manufacturing value added (current US$, millions, 2007) 44,819

Prevalence of HIV, total (% of population 15–49, 2007) 18.1

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. bNot available. 

competition following apartheid, and in recent years, the sector has been significantly 

affected by imports from China and large fluctuations in the value of the South African 

rand. According to industry sources, South Africa used to be the most competitive textile 

producer in SSA but has since relinquished that position. 274 The sector is currently 

undergoing restructuring and consolidation, with a number of manufacturers pursuing a 

more cohesive and strategic sectoral approach to competitiveness in light of the current 

challenges faced by the industry. 

 

Textile and apparel inputs 

Production of textile and apparel inputs in South Africa encompasses the full range of 

manufacturing operations, including fiber production, thread production, yarn spinning, 

knit and woven fabric production, production of nonwovens, production of trims and 

accessories, and dyeing and finishing operations. The industry is largely concentrated in 

the Western Cape, KwaZulu-Natal, and Gauteng provinces. Most firms are South African 

owned, although there is limited European and Asian ownership in the industry as well.275

In 2008, the South African textile industry recorded sales of approximately $1.7 billion 

and employed around 50,000 workers.276 Employment has declined by 20,000 since its 

peak in 2003, and sales have declined by 18 percent since the industry high in 2002.277 In 

addition, on average, South African textile firms are operating at roughly 20 percent 

below full capacity, largely as a result of insufficient demand.278

 274 USITC, Hearing transcript, January 29, 2009, 81 (testimony of Paul Ryberg, African Coalition for 

Trade). 275 Vlok, “South Africa,” 2006, 227–29; SSA industry representative, interview by Commission staff, 

Johannesburg, South Africa, February 23, 2009. 276 Statistics South Africa, Manufacturing: Production and Sales (Preliminary), February 10, 2009; 

SSA industry representatives, interviews by Commission staff, Johannesburg, South Africa, February 23, 

2009, and Cape Town, South Africa, February 29, 2009. 277 Statistics South Africa, Manufacturing: Production and Sales (Preliminary), February 10, 2009; 

The Textile Federation Web site. http://www.texfed.co.za (accessed March 9, 2009). 278 Statistics South Africa, Manufacturing: Utilisation of Production Capacity, February 5, 2009. 
4-46 

There are currently 11 firms in South Africa producing yarn.279 Five firms manufacture 

nonwovens, and there are reportedly seven firms producing trim, including elastics, 

buttons, zippers, and similar items. Approximately 16 firms produce woven fabric, while 

15 companies produce knit fabric. Industry sources reported that between 8 and 11 fabric 

mills have closed in the past few years.280 According to industry sources, the woven 

fabric industry in South Africa has largely declined, while knit fabric production has 

remained relatively robust. Of the country’s textile producing firms, nine are vertically 

integrated, manufacturing either yarn through fabric, yarn through finished apparel, or 

yarn through household textiles. The largest vertically integrated firm is Frame, which is 

a division of Seardel, the largest clothing manufacturer in South Africa. Frame produces 

knit, woven (including denim), and nonwoven fabric, including garment fabrics and 

household textiles, and accounts for the vast majority of domestic output of textile 

products. Frame consumes most of its output of textile and apparel inputs but also exports 

some fabric to the region.281 Frame currently accounts for the vast majority of domestic 

output of textile products and is the largest producer of cotton yarn in the SSA region. 

However, in April 2009, Seardel announced that it would close all Frame units, including 

the spinning, weaving, finishing, and denim divisions, in July 2009.282 The second-largest 

integrated manufacturer, DaGama, is a vertical fabric mill producing textiles for 

garments, work wear, home sewing, and household applications. In addition to a large 

number of firms producing textiles for garments and household items, there is a strong 

niche industry making export-quality wool and wool-blended yarns and fabrics; 

performance fabric for garments and outerwear; technical fabric for parachutes, airbags, 

and medical applications; and specialty fabric for uniforms, upholstery, and industrial 

applications. 

Cotton is by far the dominant fiber used in the domestic textile industry. About 80 

percent of spun yarn produced in South Africa is of pure cotton or poly/cotton blends.283

Cotton and cotton blends are also widely used in knit and woven fabric production. 

Cotton is sourced from the region, primarily from Zimbabwe and Malawi, followed by 

Zambia and Mozambique. South Africa is also a cotton producer, with 2007 production 

of 46,000 bales. 

 

In addition to producing cotton, South Africa is the world’s largest producer of mohair 

and a significant global producer of wool. However, there is limited domestic 

downstream processing of such fibers. Because there is reportedly limited local demand, 

most South African mohair is exported in an unprocessed or semiprocessed state to the 

EU and Asia. Although a substantial amount of wool is also exported, again to the EU 

and Asia, there is comparatively more domestic processing (i.e., carding and combing) of 

wool fibers. There are two vertically integrated textile mills producing yarn and worsted 

 279 Unless otherwise noted, information in this paragraph is from SSA industry representative, 

interview by Commission staff, Johannesburg, South Africa, February 23, 2009. 280 SSA industry representatives, interviews by Commission staff, Durban, South Africa, February 24, 

2009, and Cape Town, South Africa, February 27, 2009. 281 SSA industry representative, interview by Commission staff, Johannesburg, South Africa, 

November 2, 2007. 282 Just-style.com, “South Africa: Seardel to Close Frame Textile Units” April 15, 2009; Times (South 

Africa), “Seardel Cuts Nearly 10% of Workforce,” April 14, 2009; AllAfrica..com, “South Africa: Lame DTI 

Can’t Deal with Textile Realities” April 15, 2009. 283 SSA industry representative, interview by Commission staff, Johannesburg, South Africa, 

February 23, 2009. 
4-47 

fabric of pure wool and wool blends,284 which is used by downstream apparel producers 

in South Africa, as well as exported. 

 

South Africa also produces textile products of natural fibers, such as flax, jute, and 

cellulosic fibers. Although South Africa is also a producer of synthetic filament yarns, 

and to a lesser extent synthetic fibers, the last remaining producer of such yarns for the 

garment industry, SANS, recently ceased production. Remaining synthetic yarn and fiber 

production is reportedly intended primarily for industrial applications. 

 

South Africa does not export a significant amount of its production of textile and apparel 

inputs; approximately two-thirds or more of domestic production of textiles is for the 

domestic market. 285 Nonetheless, with exports of $300.5 million (table 4.27), South 

Africa is by far the largest exporter of textile and apparel inputs among SSA countries, 

accounting for 60 percent of the total value of regional exports of such products (table 

1.1). Aside from an isolated spike in 2004, South African exports of textile and apparel 

inputs remained relatively flat during the 2003–07 period, while exports to the United 

States declined by 28 percent during the period. 

TABLE 4.27 South Africa: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 42,667 41,605 34,697 32,400 40,040

EU-27 140,968 161,096 136,188 135,046 142,004

Rest of world 87,802 112,225 103,013 107,726 100,006

United States 25,720 27,689 24,953 28,917 18,407

 Total 297,158 342,615 298,851 304,090 300,457

Source: World Bank, WITS Database (accessed December 3, 2008). 

In 2007, nearly 28 percent of South African exports of textile and apparel inputs 

consisted of carded and combed fibers, chiefly wool and mohair (table 4.28). Yarn 

exports, principally synthetic filament yarn, accounted for another 23 percent of textile 

and apparel inputs exports. However, synthetic filament yarn exports are expected to 

decline drastically in 2009 with the exit of SANS from the industry. Notwithstanding 

South African exports of fibers and synthetic filament yarn, which account for roughly 

one-half of total exports of textile and apparel inputs, South Africa is a rather marginal 

supplier of other textile products to the world, although it is still a large exporter 

compared with other SSA countries. 

Other exports of South African textile and apparel inputs consisted largely of knit, 

woven, and other fabrics, totaling $98.1 million in 2007. South Africa is rivaled by 

Mauritius in terms of the value of knit fabric exports; Mauritian exports of knit fabric 

were just 10 percent less than South African exports of knit fabric in 2007. In addition, 

South Africa was the largest SSA-country exporter of woven fabrics, accounting for 36 

percent of the SSA-country total, followed by Mauritius and Lesotho, which accounted 

for 22 percent and 13 percent, respectively. Although South Africa is by far the largest 

 284 According to industry sources, there were at one time six mills producing yarn and fabric from wool 

and other animal hair. Currently, production of wool and wool-blend yarns and worsted fabrics contributes 

only a small amount to total production of yarn and fabric. 285 SSA industry representative, interview by Commission staff, Johannesburg, South Africa, 

February 23, 2009. 
4-48 

TABLE 4.28 South Africa: Exports and imports of textile and apparel inputs, by product group, 2003–07 

(1,000 $) 

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 89,134 97,362 80,524 85,664 82,643

 Knit fabric 8,014 12,439 9,882 10,768 12,149

 Manmade fibers 20,504 15,813 12,600 9,077 10,769

 Other fabric 25,536 32,571 26,823 30,890 36,973

 Thread 8,301 11,809 15,383 19,301 15,764

 Trim 19,249 25,934 23,043 22,347 22,841

 Woven fabric 55,825 67,624 59,255 49,972 48,944

 Yarn 70,594 79,063 71,341 76,070 70,374

 Total 297,158 342,615 298,851 304,090 300,457

Imports: 

 Carded or combed fibers 6,508 6,934 5,940 5,521 8,103

 Knit fabric 55,881 97,378 78,346 93,184 87,713

 Manmade fibers 29,831 46,544 55,436 71,547 80,156

 Other fabric 56,100 68,880 76,497 89,105 110,566

 Thread 9,989 13,297 11,895 13,202 12,718

 Trim 35,689 55,360 53,548 60,519 60,504

 Woven fabric 291,299 402,252 405,104 426,405 402,789

 Yarn 79,144 114,679 104,327 124,593 124,667

 Total 564,440 805,324 791,092 884,077 887,216

Source: World Bank, WITS Database (accessed December 3, 2008). 

knit and woven fabric producer among SSA countries, most fabric produced in South 

Africa is likely used in vertically integrated apparel firms or sold to domestic apparel 

firms rather than exported. South Africa is the largest SSA-country supplier of “other 

fabric,” which is largely nonwoven and coated or laminated fabric; these fabrics 

accounted for 93 percent of SSA exports of other fabrics in 2007. 

 

The EU is South Africa’s largest export market for textile and apparel inputs (table 4.27), 

accounting for 47 percent ($142.0 million) of such exports in 2007. The EU was the 

number one export destination for all product groupings except knit fabrics (shipped 

primarily to Australia and Norway) and manmade fibers (sent largely to Zimbabwe, 

followed by the EU and China). In three product groups—fibers, thread, and other 

fabrics—the EU absorbed 60 percent or more of South African exports in 2007. Other 

SSA countries accounted for a 13 percent share of South Africa’s exports of textile and 

apparel inputs, consisting primarily of cotton woven fabric and manmade-fiber woven 

fabric. Wool fibers, manmade fibers, and zippers were other significant export products 

to the SSA region. The United States accounted for just $18.4 million, or 6 percent, of 

textile and apparel inputs exports from South Africa in 2007, and those exports consisted 

primarily of synthetic filament yarns, and braiding and other ornamental trims. Because 

synthetic filament yarn shipments were most likely from SANS to its joint venture 

partner in North Carolina, future exports to the United States are expected to decline 

significantly because of the closure of SANS. 

While the textile industry in South Africa is more developed, produces a greater range of 

products than in most other SSA countries, and reportedly produces some good-quality 

textiles, industry sources indicated that many of the fabrics needed for apparel production 

are not available in South Africa in the styles and quantities required, and therefore must 
4-49 

be imported.286 As a result, South Africa is a significant importer and registers a large 

trade deficit in textile and apparel inputs. In 2007, total South African imports of textile 

and apparel inputs totaled $887.2 million and exceeded exports by a ratio of roughly 3 to 

1. South African imports of textile and apparel inputs increased by 57 percent during the 

2003–07 period. Primary suppliers of textile and apparel inputs to the South African 

market included China (accounting for 38 percent of imports), the EU (18 percent), 

Pakistan (9 percent), and Taiwan (9 percent). Roughly one-half of 2007 imports were 

woven fabrics, largely of cotton and manmade fiber, while another 45 percent of imports 

consisted of yarn, other fabric, knit fabric, and manmade fibers. South Africa imported 

only $15.7 million in textile and apparel inputs from other SSA countries in 2007, and 71 

percent of such imports were cotton fibers, cotton yarn, and cotton woven fabrics. 

Apparel 

Unlike most SSA countries, South Africa has a large and sophisticated domestic market 

for apparel and boasts a substantial garment manufacturing industry. The South African 

apparel industry consists of over 1,000 firms287 that produce a wide range of apparel 

products. The sector employs approximately 67,000 workers, and production totaled an 

estimated $1.5 billion in 2008.288 A significant portion of production is destined for the 

domestic retail market; exports account for a smaller share of production and are largely 

destined for the United States and the United Kingdom.289 As with textiles, South Africa 

registers a substantial trade deficit in apparel (table 4.29). The value of South African 

clothing imports in 2007 was 670 percent higher than the value of such exports, and the 

deficit has steadily increased since 2003. Nearly 80 percent of apparel imports were 

supplied by China. Mauritius was the largest SSA supplier to the South African market, 

but nonetheless accounted for less than 3 percent of South African imports of apparel in 

2007. 

TABLE 4.29 South Africa: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 412,868 329,339 240,277 200,268 206,913

Imports 500,676 767,351 944,130 1,550,953 1,594,528

Source: World Bank, WITS Database (accessed December 16, 2008). 

The domestic apparel industry has faced severe competitive challenges in the past several 

years, including the final phase-out of quotas at the end of 2004, volatility of the local 

currency, increasing import competition from China, ineffective or delayed government 

policies affecting the textile and apparel sector, and the conservative mindset of many 

 286 SSA industry representatives, interviews by Commission staff, Durban, South Africa, February 24, 

2009, and Cape Town, South Africa, February 27, 2009; South African government officials, interview by 

Commission staff, Johannesburg, South Africa, October 29, 2007. 287 U.S. Department of State, U.S. Embassy, Pretoria, “Textiles and Apparel Sector,” 

September 28, 2007; SSA industry representative, interview by Commission staff, Cape Town, South Africa, 

February 27, 2009. 288 Statistics South Africa, Manufacturing: Production and Sales (Preliminary), February 10, 2009; 

SSA industry representative, interview by Commission staff, Cape Town, South Africa, February 29, 2009. 289 SSA industry representative, interview by Commission staff, Johannesburg, South Africa, October 

29, 2007. Although trade data used by the Commission indicate that approximately 50 percent of South 

African exports of apparel are shipped to Namibia, such data are likely in error. Comparable South African 

statistics show no exports to Namibia of clothing, and industry sources also did not indicate that Namibia was 

a market for South African apparel. 
4-50 

domestic firms.290 Several domestic apparel firms are experiencing financial difficulties, 

many are not operating at full capacity, and a number of firms have closed over the past 

five years. While domestic consumption of apparel has risen and stands at roughly $5.5 

billion per annum, the increase in domestic demand for garments has been supplied 

almost exclusively by imports.291

 

Many apparel producers are struggling to recapture market share, some have begun 

cooperating with other firms in the industry, and still others are trying to differentiate 

themselves in specific market segments in order to improve firm level and sector 

competitiveness. Firms are also hoping that government initiatives to help labor-intensive 

industries such as apparel manufacturing as a means of maintaining and creating 

employment will spur action on a Customised Sector Programme for the industry.292

Industry sources stressed that, unless South Africa can rebuild a robust domestic apparel 

sector, the critical mass necessary to sustain a sufficiently sized and competitive textile 

and apparel inputs sector will not exist.293

Factors Contributing to Competitive Production 

A key competitive factor differentiating South Africa from other textile and apparel 

producing SSA countries is its advanced infrastructure network, which is far more 

developed than nearly all other African countries.294 South Africa is the top ranking 

Group 1 country in terms of the quality of roads and the quality of the country’s railways 

(table 3.4). South Africa also has better quality ports and domestic transport network 

compared with most other Group 1 countries, an important advantage facilitating the 

delivery of goods to both domestic and overseas customers.295 However, industry sources 

report that additional investment is needed, as transport can be slow and there is overuse 

of roads versus other means of transportation.296 South Africa also has good electricity 

and water infrastructure, although water costs are reportedly high and blackouts 

occasionally occur. 

 

The South African government has made infrastructure a priority, and government 

expenditures on infrastructure will total around $50 billion through 2010, with 

approximately $11 billion directed towards energy creation and $5 billion directed at 

 290 SSA industry representatives, interviews by Commission staff, Johannesburg, South Africa, 

February 23, 2009, Durban, South Africa, February 24 and 25, 2009, and Cape Town, South Africa, 

February 25 and 27, 2009. 291 SSA industry representatives, interviews by Commission staff, Cape Town, South Africa, 

February 25 and 27, 2009. 292 The Customised Sector Programme (CSP) is a strategy document for sector development that was 

initially completed in 2006. The CSP for the textile and apparel sector has reportedly faced difficulty in 

implementation because of the competing goals of affected interest groups. The initial plan was reworked by 

the labor union, rendering the document unacceptable to manufacturers and retailers. The current 

administration is reportedly trying to resuscitate the plan by focusing on the core aims of recapitalization, 

development of efficiencies and competitiveness, and a reestablishment of the skills base, and there appears 

to be a level of consensus among government, labor, and industry. SSA industry representative, interview by 

Commission staff, Cape Town, South Africa, February 25, 2009. 293 SSA industry representative, interview by Commission staff, Cape Town, South Africa, 

February 27, 2009. 294 USITC, Hearing transcript, January 29, 2009, 81 (testimony of Paul Ryberg, African Coalition for 

Trade). 295 Blanke and Chiesa, The Travel & Tourism Competitiveness Report 2008, 2008, 416–20. 296 SSA industry representative, interview by Commission staff, Johannesburg, South Africa, 

October 14, 2008. 
4-51 

harbors, ports, railways, and petroleum pipelines.297 In addition to transport, water, and 

electricity, South Africa benefits from a substantially developed manufacturing 

infrastructure, owing to its long history of industrial production.298

 

Despite the challenges facing the South African apparel industry, South Africa is one of 

the few SSA countries to have a well-established and comparably large domestic apparel 

manufacturing sector and a substantial domestic market for apparel. The large number of 

apparel manufacturers in South Africa and the diversity of manufacturing across the total 

supply chain combine to provide firms with a readily accessible customer base and 

contribute to demand for domestically produced fiber, yarn, fabric, and trim. Moreover, 

as a number of textile firms are vertically integrated, their downstream fabric mills or 

apparel plants absorb some if not all of production, providing predictable sales and 

contributing to economies of scale. According to industry sources, a number of South 

African apparel manufacturers prefer to source textile and apparel inputs locally, as it is 

faster and more comfortable to do business with local suppliers.299 Retailers also reported 

using South African firms for fashion items and replenishment stock, which generally 

entails the use of locally available yarns and fabrics to meet quick turnaround times. 

Another source suggested that there is still a case to be made for new investment in the 

South African textile and apparel sector, not necessarily for export but rather for the 

domestic market.300

 

Amidst the SSA group of primarily lesser-developed countries, many of which exhibit 

political instability, civil unrest, and/or inhibitive business climates, South Africa stands 

out as having a comparably favorable business environment. South Africa has an 

excellent anticorruption regulatory framework,301 and in terms of ease of doing business, 

South Africa ranks highly among the 10 largest SSA exporters of textile and apparel 

inputs (outranked only by Mauritius) according to the World Bank’s Doing Business 

2009 database. South Africa’s financial institutions and capital markets are welldeveloped for business,302 although the cost of finance is high and capital is reportedly 

less accessible to firms that do not contribute to the government’s affirmative action 

initiatives.303

 

Factors Inhibiting Competitive Production 

South Africa is a comparatively high-cost producer and is generally not price competitive 

with respect to textile products. According to one industry source, the South African 

textile industry has “gone to the dogs” because of its high costs.304 Unlike other SSA 

countries that have lower wage rates, greater flexibility in hiring foreign workers, and 

greater options regarding compensation (such as piece rates versus hourly rates), the 

South African textile sector faces comparatively high labor wages of roughly $2.50 an 

hour or $500 per week and little flexibility with a workforce that is highly unionized and 

 297 U.S. Department of State, U.S. Embassy, Pretoria, “South Africa Input for 2009 AGOA Eligibility 

Review,” October 6, 2008. 298 McRee and Cassill, “Sub-Saharan Africa,” Summer 2002. 299 SSA industry representative, interview by Commission staff, Cape Town, South Africa, February 

27, 2009. 300 U.S. importer, telephone interview by Commission staff, Washington, DC, January 28, 2009. 301 U.S. Department of State, U.S. Embassy, Pretoria, “South Africa Input for 2009 AGOA Eligibility 

Review,” October 6, 2008. 302 McRee and Cassill, “Sub-Saharan Africa,” Summer 2002. 303 SSA industry representatives, interviews by Commission staff, Las Vegas, NV, February 16, 2009, 

and Durban, South Africa, February 24, 2009. 304 SSA industry representative, telephone interview by USITC staff, February 10, 2009. 
4-52 

politically influential.305 Workers who are in short supply, such as pattern makers, expect 

very high salaries, and companies must compensate or risk losing talent to competing 

firms. 306 Overhead costs are high and exacerbated by the multitiered management 

structure in South Africa.307 Reportedly, many companies would rather operate below 

capacity than take orders at or below cost, which adds to the level of overhead expenses 

the firm must cover.308 According to the World Bank’s Doing Business 2009 Database, it 

also costs more to import and export goods from South Africa compared with many of 

the other top textile and apparel producing SSA countries, which translates into higher 

costs for producers sourcing machinery and raw materials and higher costs for the 

finished products. 

 

Cost pressures for the South African industry have been further exacerbated by the 

fluctuating value of the South African rand, which has been problematic for the industry 

and has greatly affected export performance.309 Following implementation of AGOA, the 

value of the South African currency went from approximately 7 rand to the U.S. dollar to 

as high as 14 rand to the dollar, boosting the export competitiveness of South African 

goods. South African textile and apparel manufacturers received increased orders for 

overseas markets, including the United States, and neglected their South African 

customers, which then turned to alternative sources of supply (namely Asia).310 When the 

rand appreciated to 6 rand or less to the dollar beginning in 2004, export markets dried 

up, yet the domestic value chain was irreversibly altered.311 A number of firms that made 

money in the export market took their profits and exited the business, while others chose 

not to reinvest in their businesses and found themselves uncompetitive in the domestic 

market against a growing number of import suppliers.312 Reportedly, the depreciation of 

the rand beginning in late 2007 improved the position of the textile sector somewhat, but 

the volatility of the currency irreparably damaged the competitive position of the 

industry.313

 

Although South Africa enjoys a rather robust apparel manufacturing sector compared 

with other SSA countries, the apparel industry has shrunk considerably in terms of size 

and output in recent years, largely as a result of intense import competition from China. 

In January 2007, South Africa implemented import quotas on selected categories of 

textile and apparel products from China.314 Industry sources reported that the imposition 

of quotas, undertaken without industry consultation, resulted in a number of problems, 

 305 Werner International Management Consultants, “Primary Textiles Labor Cost Comparisons 2008,” 

2009; SSA industry representative, interview by Commission staff, Durban, South Africa, February 24, 2009; 

and USITC, Hearing transcript, January 29, 2009, 81–82 (testimony of Paul Ryberg, African Coalition for 

Trade). 306 SSA industry representatives, interviews by Commission staff, Las Vegas, NV, February 16, 2009, 

and Cape Town, South Africa, February 25, 2009. 307 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 308 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 309 U.S Department of State, U.S. Embassy, Pretoria, “South Africa Input for 2009 AGOA Eligibility 

Review,” October 6, 2008. 310 SSA industry representative, interview by Commission staff, Cape Town, South Africa, 

February 24, 2009; Morris, “Globalisation, Welfare and Competitiveness,” 2008, 362–63. 311 Morris and Einhorn, “Globalisation, Welfare and Competitiveness,” 2008, 363. 312 SSA industry representative, interview by Commission staff, Durban, South Africa, 

February 24, 009. 313 SSA industry representative, interview by Commission staff, Johannesburg, South Africa, 

February 23, 2009. 314 A memorandum of understanding was concluded and initialed by the governments of South Africa 

and China on June 21, 2006. The agreement laid out quantitative limits on imports from China for 31 product 

categories for a period ending December 31, 2008. For more information, see Brink, “The Memorandum of 

Understanding and Quotas,” October 2006. 
4-53 

including quota levels that were overly high and various loopholes that allowed for 

circumvention of the quotas. 315 In addition, certain items not produced by local 

manufacturers fell under quota. For example, quotas placed on fabric not produced by 

South African mills, but necessary for domestic production of garments not covered by 

the quotas, created incentives for firms to import the finished apparel rather than import 

the fabric to produce the garments locally.316 Domestic apparel firms have also had to 

compete against transshipments and underinvoiced goods from China. Sources reported 

that following the quotas, apparel came into South Africa from countries that did not 

even have production capacity.317 With respect to the undervaluation of imports, Chinese 

textiles and apparel are reportedly coming into the country at the price of the raw 

materials.318 Such practices have contributed to the demise of several companies over the 

past five years,319 and domestic producers have lost market share. In 2003, just prior to 

the surge in Chinese imports, domestic apparel producers held an 80 percent share of the 

domestic market; that share has dropped to below 60 percent.320

 

Aside from China, there is also concern about import competition from regional 

producers. Given the current economic climate, South African producers fear that apparel 

producers in Lesotho, Madagascar, Kenya, and similar countries that lose orders and 

sales in the United States and other declining markets will target the South African 

market, resulting in even greater pressure on South African apparel firms.321 A number of 

SSA producers have openly stated that South Africa is a target market for them. 

Moreover, South Africa is increasingly outsourcing CMT operations to countries such as 

Swaziland, Lesotho, and Botswana, although in some cases, such production incorporates 

South African fabric.322

 

Firm-level factors inhibiting South Africa’s competitiveness include a deficiency of skills 

and a lack of investment in the sector. Skilled labor is difficult to attract and retain, and 

companies experience problems with absenteeism and low productivity.323 Management 

capabilities are low, and multiple layers of management add to inefficiencies and high 

overhead costs.324 South African firms also lack marketing intelligence,325 and there are 

reportedly domestic producers that are completely unaware of the existence of potential 

suppliers and customers operating in the domestic market, let alone in neighboring 

 315 For example, industry sources reported that, while there were quotas on imports from China of tops 

and skirts, there was no quota on the category “ensembles.” Therefore, firms simply shipped separates 

together as ensembles to circumvent the quotas on the tops and skirts. SSA industry representative, interview 

by Commission staff, Johannesburg, South Africa, February 23, 2009. 316 SSA industry representative, interview by Commission staff, Cape Town, South Africa, 

February 29, 2009. 317 SSA industry representatives, interviews by Commission staff, Johannesburg, South Africa, 

October 14, 2008, and Cape Town, South Africa, February 29, 2009. 318 SSA industry representatives, interviews by Commission staff, Johannesburg, South Africa, 

February 23, 2009, and Durban, South Africa, February 24, 2009. 319 SSA industry representative, telephone interview by Commission staff, Washington, DC, 

February 10, 2009. 320 SSA industry representative, interview by Commission staff, Cape Town, South Africa, 

February 29, 2009. 321 SSA industry representative, interview by Commission staff, Durban, South Africa, 

February 24, 2009. 322 SSA industry representative, telephone interview by USITC staff, February 10, 2009; SSA industry 

representative, interview by Commission staff, Cape Town, South Africa, February 29, 2009. 323 SSA industry representatives, interviews by Commission staff, Durban, South Africa, February 24, 

2009, and Cape Town, South Africa, Febraury 25, 2009. 324 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 325 SSA industry representative, telephone interview by Commission staff, February 10, 2009. 
4-54 

countries.326 Regarding production capabilities, one industry source estimates that only 

around 20 percent of domestic textile producers can be considered world-class producers, 

while the rest cannot supply the fabrics desired by domestic apparel producers (e.g., 

fashion fabrics), which are largely imported from Asia.327 Further, as the industry is 

largely focused on the domestic market, firms are not able to satisfy demand, particularly 

with respect to quality and variety, at the international level.328 Design skills are lacking, 

and technical innovation in the sector is low, the result of sparse investment in the textile 

industry over the last decade. Generally, firms have not invested in their businesses or 

updated workforce skills, resulting in an erosion of the overall skills base.329 There also 

has been limited investment in capital equipment by South African textile firms. 

Machinery is generally dated, and most existing mills are only making replacement 

investments.330 Investment in both skills and facilities is now beginning to pick up, but 

there is reportedly still a large gap between actual and required levels of investment.331

The South African industry suffers from long shipping times, due to port capacity 

constraints and South Africa’s geographical location relative to large consuming markets 

and other top suppliers. Shipping times from South Africa to the United States and the 

EU are approximately 23–26 days, whereas Chinese producers can reportedly ship goods 

in as little as 12 days. 332 Shipping costs are also reportedly high compared with other 

countries; in the South African textile industry, transport costs account for approximately 

12 percent of total operational costs.333 South Africa is also considered weak in terms of 

lead times, and one source reported that it takes months to get even samples delivered.334

One company noted that delivery times from South Africa are particularly problematic 

with respect to fashion items, which means styles produced in South Africa are 

“perishable” and sensitive to shipping delays.335

Integration helps to shorten the pipeline and improve speed to market, and many firms in 

the industry have joined industry clusters and are looking to adapt new models of 

production as a way to decrease lead times and boost overall competitiveness (box 4.5). 

Reportedly, the clustering initiative has resulted in shorter lead times as well as a 25 

percent reduction in shipping costs. 336 Some firms that are cluster members can 

reportedly turn product around for the domestic market (from order through delivery of 

the final product to retail) in as quickly as two to three weeks, with a pricing differential 

 326 SSA industry representative, telephone interview by Commission staff, February 10, 2009. 327 South African government officials, interview by Commission staff, Johannesburg, South Africa, 

October 29, 2007; SSA industry representatives, interviews by Commission staff, Cape Town, South Africa, 

February 25 and 26, 2009. 328 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009; 

McRee and Cassill, “Sub-Saharan Africa,” Summer 2002. 329 SSA industry representatives, interviews by Commission staff, Johannesburg, South Africa, 

February 23, 2009, and Cape Town, South Africa, February 25, 2009. 330 SSA industry representative, interview by Commission staff, Johannesburg, South Africa, 

October 29, 2007. 331 SSA industry representative, interview by Commission staff, Cape Town, South Africa, 

February 25, 2009. 332 U.S. Department of State, U.S. Embassy, Pretoria, “South Africa’s Response to USITC Study,” 

October 1, 2008; SSA industry representative, interview by Commission staff, Mauritius, March 5, 2009; 

U.S. retailer, e-mail message to Commission staff, February 6, 2009. 333 U.S. Department of State, U.S. Embassy, Pretoria, “South Africa’s Response to USITC Study,” 

October 1, 2008. 334 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 335 SSA industry representative, interview by Commission staff, Johannesburg, South Africa, 

November 2, 2007. 336 SSA industry representative, telephone interview by Commission staff, February 10, 2009. 
4-55 

BOX 4.5 Improving Competitiveness through Clusters and Fast Fashion

South Africa and a few other SSA countries are attempting to boost the competitiveness of their textile and apparel 

industries through various initiatives, including the creation of industry clusters. South Africa appears to have the 

most developed industry clusters in the region. The Cape Clothing and Textile Cluster, based in Cape Town, was 

launched in 2005 and consists of 41 firms in the textile, clothing, retail, and CMT sectors.a

 The KwaZulu-Natal 

Clothing and Textile Cluster, based in Durban, was also formed in 2005 and has 29 member companies.b

 The 

clusters operate as partnerships between private industry and the local government (in this case, the provincial 

government), with the local government providing significant financial support.c

 The clusters were set up to address 

the challenges facing the textile and clothing sectors, improve member firm competitiveness, and ensure the 

sustainability of the industry. The work of the clusters centers around three core programs: value chain alignment, 

world class manufacturing, and human resources development. Member firms share information with other cluster 

firms, which allows companies to see how they compare against their competitors and reveals areas where a firm 

might need to upgrade their capabilities. The clusters appear to be successful. In just a few years, cluster firms have 

greatly improved in terms of quality, cost, and delivery. Over a two-year period, firms in both the Cape Clothing and 

Textile Cluster and the Kwa-Zulu Natal Clothing and Textile Cluster reported lower customer return rates, lower 

internal rejection rates, reduced costs, and shorter lead times.d

 In addition, the clusters have fostered cooperation 

among the textile producers, apparel manufacturers, and retailers, parties that have historically had a discordant 

relationship.e

 Industry sources indicated that the clusters are aimed at developing the competitiveness of the industry 

producing for the domestic market and not the industry producing for export.f

 However, the efficiencies gained 

through the work of the clusters could likely extend to the export sector. 

Another initiative the South African textile and clothing sector is considering is the production of fast fashion items for 

the domestic consumer market. Because the value chain feeding into the domestic market cannot compete at the 

commodity end, particularly against dominant producers such as China, the industry sees fast fashion as a way to 

differentiate itself and boost competitiveness.g

 Fast fashion, most notably associated with clothing retailers Zara and 

H&M, relies on small runs, fast turnaround, fresh designs, and flexibility. In contrast to traditional retailers, which 

place large quantities of an item in their stores and gradually mark the item down in price until it sells, a store 

operating under a fast fashion system will constantly introduce small quantities of new garments and keep those 

items in the store for a limited time. Because of the relative exclusivity of the items, they sell at higher prices and 

usually move quickly. Clothing manufacturers producing for a fast fashion retailer must have fast response times and 

flexibility. Good communication and responsiveness throughout the supply chain are crucial. Textile firms in the fast 

fashion model produce a core base of fabrics and hold stock in these fabrics, which designers bear in mind as they 

come up with new products. According to industry sources, South African textile and apparel manufacturers are 

currently not capable of operating under the fast fashion model. The industry reportedly needs investment in skills 

and machinery, as well as access to fabric to be able to produce small runs and fashionable items. As with clustering, 

the interest in fast fashion is geared toward the large and sophisticated South African clothing market. However, to 

the extent that the fast fashion model is implemented and improves the competitiveness and capabilities of South 

African textile and apparel firms, such firms could potentially then become more competitive in export markets. 

_________________________________ 

a

Information on the Cape Clothing and Textile Cluster is available at http://www.capeclothingcluster.org.za. b

Information on the KwaZulu-Natal Clothing and Textile Cluster is available at http://www.kznctc.org.za. c

SSA industry representative, interview by Commission staff, Durban, South Africa, February 23, 2009. d

Morris and Einhorn, “Globalisation, Welfare and Competitiveness,” 2008, 371. e

SSA industry representative, interview by Commission staff, Cape Town, South Africa, February 25, 2009; Bleby, 

“Will ‘the Biggest Thing in 20 Years’ Be Enough?” July 10, 2006. f

SSA industry representative, interview by Commission staff, Cape Town, South Africa, February 25, 2009. g

SSA industry representative, interview by Commission staff, Cape Town, South Africa, February 25, 2009. 

that can compete with China.337 Nonetheless, South African producers of textile and 

apparel inputs are more likely to be competitive with respect to lead times and delivery in 

local and regional markets rather than the U.S. and EU markets. 

 

 337 SSA industry representative, interview by Commission staff, Cape Town, South Africa, 

February 25, 2009; South African government officials, interview by Commission staff, Johannesburg, 

South Africa, October 29, 2007. 
4-56 

South Africa does not enjoy the flexibility and market access afforded other SSA 

countries under preferential trading arrangements with the United States and EU. As a 

non-LDC beneficiary, South Africa is the only SSA country for which textile products 

are not eligible for duty-free treatment into the U.S. market under AGOA. Moreover, 

South Africa has never qualified for the third-country fabric provision, unlike other nonLDC beneficiaries, such as Mauritius, that have been granted special LDC derogation. 

Industry sources stated that with respect to U.S. trade preferences, South Africa is “the 

odd man out” and the only country currently facing restrictions under AGOA. 338

Likewise, South Africa is not a signatory to the SACU interim EPA with the EU, and is 

therefore subject to more restrictive rules of origin for textile and apparel exports to the 

EU under the South Africa-EU Trade, Development, and Cooperation Agreement. 

Industry sources stress that duty-free eligibility in the U.S. and EU markets for South 

African textiles could make a substantial contribution to the industry’s competitiveness 

and that the downward trend in the industry might be reversed if rules of origin were 

amended to allow greater access to third country fabrics for South African apparel 

exporters.339 Such action may lead to greater economies of scale and expansion in the 

apparel industry, which would help to spur and support backward integration and 

development in the textile sector.340

South African firms do not have the economies of scale to produce the volumes needed 

for certain export markets and larger customers. One South African textile producer 

noted that it cannot deliver huge volumes, which makes it challenging to sell to the U.S. 

market.341 Another apparel-producing firm in a neighboring SSA country noted that, even 

for its smaller volume requirements, South African producers could not produce enough 

of the particular type of fabric that the firm required.342 Because production of textile and 

apparel inputs in South Africa is largely geared toward the local market, firms are not 

accustomed to producing these larger orders and are unfamiliar with the typical business 

practices for bulk sales. For example, one SSA industry representative reportedly 

encountered a South African mill that was offered a sizeable order but did not offer a 

discount for large quantities (standard practice for other firms in the global market) 

because the firm was unfamiliar with such protocol and did not know how to provide 

volume discounts. 343 Rather than trying to compete in overseas markets on orders 

requiring economies of scale and low cost, another industry source suggested firms in 

SSA should specialize in a limited number of products that they can produce more 

efficiently.344

 338 USITC, Hearing transcript, January 29, 2009, 102 (testimony of Paul Ryberg, African Coalition for 

Trade). 339 SSA industry representatives, interviews by Commission staff, Durban, South Africa, 

February 25, 2009, and Cape Town, South Africa, February 29, 2009; U.S. Department of State, U.S. 

Embassy, Pretoria, “Textiles and Apparel Sector,” September 28, 2007. 340 SSA industry representatives, interviews by Commission staff, Johannesburg, South Africa, 

February 23, 2009, and Cape Town, South Africa, February 29, 2009. 341 SSA industry representative, interview by Commission staff, Johannesburg, South Africa, 

November 2, 2007. 342 SSA industry representative, interview by Commission staff, Antananarivo, Madagascar, 

November 6, 2007. 343 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 344 SSA industry representative, telephone interview by Commission staff, February 10, 2009. 
4-57 

Swaziland 

Potential Competitive Products 

Swaziland produces zippers competitively for use in apparel production in the local and 

regional SSA markets and appears to produce organic cotton knit fabric competitively for 

a niche market. Important factors contributing to Swaziland’s competitiveness are dutyfree access to the U.S., EU, and South African markets, access to South Africa’s welldeveloped infrastructure, and government incentives directed at FDI in the textile and 

apparel industry, which resulted in the development of an apparel industry and created a 

market for textile and apparel inputs. Manufacturing in Swaziland is constrained by a 

small domestic market, labor unrest, and limited access to the raw materials necessary to 

produce textiles. 

 

Country Overview 

Swaziland is a small, landlocked country bordering South Africa and Mozambique. 

Swaziland’s GDP amounted to $2.9 billion in 2007, and with a population of about one 

million, its GDP per capita stood at $2,675 in 2007 (table 4.30). In 2006, Swaziland 

ranked 147 out of 177 countries in the UN’s Human Development Report and had a Gini 

coefficient rating of 60.9, making it one of the countries with the greatest income 

disparity in the world.345 In 2007, manufacturing accounted for 31 percent of GDP (table 

4.3), the largest share of any SSA country. Swaziland’s manufacturing base is highly 

concentrated in textile and apparel production. In 2008, these industries served as the 

largest source of formal employment in the country. 

Industry and Trade Overview 

The Swazi textile and apparel inputs industry is small, and Swaziland’s exports of both 

apparel and textile and apparel inputs declined during the 2004–07 period. However, the 

country has achieved some success in the production and export of certain textile inputs, 

such as zippers. 

Textile and apparel inputs 

The textile and apparel inputs industry in Swaziland consists of two large firms: Tex-Ray, 

which produces yarn, knit fabric, and apparel, and YKK Swaziland, which produces 

zippers for local and regional apparel manufacturers and retailers. Tex-Ray is a vertically 

integrated textile and apparel manufacturer with six factories, including four garment 

factories, one yarn spinning plant, and one knitting and dye house, and is the largest 

employer in Swaziland with 10,000 workers. Tex-Ray dyes, spins, and knits cotton fabric 

and then sews the fabric into apparel for export.346 In 2002, Tex-Ray established Taitex, 

its yarn spinning operation with a capacity of one million pounds per month. It produces 

carded and combed cotton yarn, spun polyester yarn, and a variety of blends such as

 345 EIU, Country Profile 2007: Swaziland, 2007, 10. The Gini coefficient measures inequality within a 

country, and varies from 0 (complete equality) to 100 (complete inequality). 346 Tex-Ray Industrial Co., Ltd. Company Web site. http://www.texray.com/ (accessed 

February 11, 2009). 
4-58 

TABLE 4.30 Swaziland: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 2,942

GDP growth (annual %, 2007) 2.4

GDP per capita (current US$, 2007) 2,675

Population (millions, 2007) 1.1

Goods exports (current US$, millions, 2007) 2,450

Goods imports (current US$, millions, 2007) 2,650

Inflation, consumer prices (annual %, 2006) 5.3

Literacy rate, adult total (% of people ages 15 and above, 2000) 79.6

Labor force, total (millions, 2006) 0.4

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 36

Gross capital formation (current US$, millions, 2007) 460

Lending rate (%, 2007) 13.2

Manufacturing value added (current US$, millions, 2007) 905

Prevalence of HIV, total (% of population 15–49, 2007) 26.1

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. 

polyester/rayon, rayon/cotton, and polyester/cotton.347 The firm reportedly imports its 

manmade fibers. It supplements the small amount of locally grown organic cotton that it 

uses with imports of cotton from Zambia and Mozambique. It produces yarn for internal 

consumption and for export to South Africa and the EU.348 Tex-Ray has been vertically 

integrated since the establishment of its knitting and dyeing plant, TQM, in 2006. TQM 

has the capacity to produce a total of two million pounds per month of knit single-jersey, 

Pique, rib, interlock, drop needle, French terry, flat knit, and Spandex fabrics. 349

Although most of Tex-Ray’s fabric production is reportedly consumed internally, 

industry sources report small shipments of knit fabric to Lesotho and Madagascar for use 

in apparel.350

 

YKK Swaziland, a subsidiary of a Japan-based zipper manufacturer, produces zippers to 

supply local and regional apparel manufacturers. YKK Swaziland is reportedly 

increasingly competitive in the regional market owing in part to the depreciation of the 

rand and rising costs among major competitors such as China. 351 The factory in 

Swaziland is operating at full capacity, producing zippers from imported components. 

The factory has reduced its lead time from three weeks to one week during the past 

several years.352 One-half of its production is used in apparel production in South Africa, 

and the remainder is shipped to other SSA apparel manufacturers in Lesotho, Kenya, 

Madagascar, and Mauritius.353

 347 Ibid. 348 Industry representative, interview by Commission staff, Mbabane, Swaziland, October 23, 2008; 

U.S. Department of State, U.S. Embassy, Mbabane, “Textiles and Apparel Production-Swaziland,” 

October 1, 2007. Tex-Ray indicated that it has entered into an arrangement with the Swazi government to 

purchase domestically produced and ginned organic cotton from 70 Swazi farmers. 349 Tex-Ray Industrial Co. Ltd. Company Web site. http://www.texray.com/ (accessed 

February 11, 2009). 350 Industry representative, interview by Commission staff, Mbabane, Swaziland, October 23, 2008; 

industry representative, telephone interview by Commission staff, February 4, 2009. 351 Industry representative, interview by Commission staff, Durban, South Africa, February 24, 2009. 352 Industry representative, interview by Commission staff, Durban, South Africa, February 24, 2009. 353 Industry representative, interview by Commission staff, Durban, South Africa, February 24, 2009. 
4-59 

Swaziland’s exports of textile and apparel inputs remained consistent during the 2005–07 

period and totaled $9.8 million in 2007 (table 4.31).354 The largest markets for Swazi 

textile and apparel inputs outside of the SACU region in 2007 included the EU ($3.3 

million), Madagascar ($2.0 million), and Kenya ($1.5 million). 355 Exports generally 

consisted of trim (mostly zippers) ($5.3 million) and yarn ($3.9 million) (table 4.32). 

Zippers were primarily destined for Madagascar ($1.9 million), Kenya ($1.5 million), and 

Mauritius ($884,000); yarn was primarily destined for the EU ($3.2 million). 

TABLE 4.31 Swaziland: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 2,334 2,867 3,514 4,875 4,876

EU-27 8,694 4,901 2,370 3,085 3,346

Rest of world 3,371 4,152 3,765 1,620 1,578

United States 1 39 122 13 2

 Total 14,400 11,959 9,771 9,594 9,803

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.32 Swaziland: Exports and imports of textile and apparel inputs, by product group, 2003–07 

(1,000 $) 

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 0 0 0 0 0

 Knit fabric 26 48 28 85 49

 Manmade fibers 167 14 29 0 25

 Other fabric 7 112 197 50 41

 Thread 199 626 165 58 97

 Trim 3,275 3,040 3,571 5,495 5,265

 Woven fabric 809 796 1,245 692 415

 Yarn 9,918 7,323 4,536 3,212 3,910

 Total 14,400 11,959 9,771 9,594 9,803

Imports: 

 Carded or combed fibers 76 0 0 347 115

 Knit fabric 13,265 32,025 22,942 23,293 26,858

 Manmade fibers 289 275 192 48 99

 Other fabric 364 1,134 630 1,374 1,968

 Thread 27 220 191 375 352

 Trim 2,125 9,985 6,746 4,943 5,437

 Woven fabric 2,570 7,316 7,725 7,640 7,212

 Yarn 1,422 254 115 307 1,195

 Total 20,139 51,210 38,541 38,327 43,237

Source: World Bank, WITS Database (accessed December 3, 2008). 

Swaziland’s imports of textile and apparel inputs amounted to $43.2 million in 2007. 

Imports largely consisted of knit fabric ($26.9 million), woven fabric ($7.2 million), and 

trim ($5.4 million) (table 4.32). The largest sources for Swaziland’s textiles and apparel 

inputs in 2007 were China (27 percent), Hong Kong (24 percent), and Taiwan (21 

percent). 

 354 World Bank, WITS Database (accessed December 3, 2008). Note that these data do not include 

Swazi shipments to other SACU members, including large apparel producing countries South Africa and 

Lesotho. Neither Swaziland nor Lesotho reported trade within the SACU region. 355 Industry sources also report shipments of cotton yarn, fabric, and zippers from Swaziland to South 

Africa and Lesotho. Industry representative, interview by Commission staff, Durban, South Africa, 

February 24, 2009. 
4-60 

Apparel 

The apparel industry in Swaziland emerged largely to target the U.S. market after the 

passage of AGOA in 2001. The industry currently consists of approximately 20 firms 

producing mostly CMT apparel for export, using fabric largely imported from Taiwan 

and China. In 2007, Swaziland’s exports of apparel totaled $143.2 million, a decline of 

25 percent from $190.6 million in 2004 (table 4.33). Ninety percent of Swazi apparel 

production is destined for low- to mid-priced retailers in the United States, and the 

remainder is primarily destined for the South African market. 356 As with the textile 

sector, the Swazi apparel industry is a critical source of employment in the country, with 

an estimated 17,000 workers, down 44 percent from its peak in 2004. Apparel firms 

produce T-shirts, polo shirts, and sweatshirts using mostly imported and some local 

cotton yarn and fabric; they also produce woven cotton tops and bottoms, such as pants, 

skirts, and uniforms, using imported fabric. Many apparel firms ceased operations after 

the full phase-out of quotas at the end of 2004, which resulted in increased competition in 

the U.S. market from countries formerly subject to quotas.357 One source indicated that 

the industry has begun to shift its focus from the U.S. market to the South African 

market.358 For example, one apparel manufacturer producing CMT apparel for export has 

shifted from producing basic knitwear for U.S.-based customers to producing uniforms 

for South African customers.359

TABLE 4.33 Swaziland: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 153,052 190,550 169,532 142,822 143,184

Imports 2,815 6,352 4,431 3,211 2,500

Source: World Bank, WITS Database (accessed December 16, 2008). 

Ownership of producers in the yarn, fabric, and other textile and apparel inputs industries 

is concentrated among Taiwanese, Japanese, and, to a lesser extent, South African firms. 

Taiwanese firms began investing in Swaziland in 1999 to gain preferential access to the 

U.S. market under AGOA. 360 South African investment is concentrated in apparel 

production for the South African market and consists of two firms, including Fashion 

International, which sells 80 percent of its production to South African retailer 

Woolworths.361

 

Factors Contributing to Competitive Production 

Swaziland benefits from proximity to South Africa and the use of its well-developed 

roads, port, and electricity supply.362 Electricity is reliable and inexpensive in Swaziland, 

 356 U.S. Department of State, U.S. Embassy, Mbabane, “Swaziland Economic Reaction to the Global 

Financial Crisis,” November 10, 2008. 357 See USITC, Sub-Saharan Africa: Factors Affecting Trade Patterns, 2007. 358 Industry representative, interview by Commission staff, Nhlangano, Swaziland, October 22, 2008. 359 Industry representative, interview by Commission staff, Nhlangano, Swaziland, October 22, 2008. 360 USITC, Sub-Saharan Africa: Factors Affecting Trade Patterns, 2007. 361 U.S. Department of State, U.S. Embassy, Mbabane, “Textiles and Apparel Production-Swaziland,” 

October 1, 2007. Fashion International reportedly had plans to expand its apparel production in Swaziland. 

The firm reportedly used fabric sourced from China, Taiwan, and South Africa in its apparel production. 

Fibre2fashion.com, “Swaziland: Fashion International on an Expansion Spree,” January 18, 2007. 362 Information in this section drawn from USITC, Sub-Saharan Africa: Effect of Infrastructure 

Conditions, 2009. 
4-61 

with rates around $0.023/kWh, 363 and industrial users are generally subject to few 

blackouts. 364 In the World Bank’s Doing Business 2009 database, Swaziland ranked 

second to Mauritius in terms of the average time associated with shipping a container 

(table 3.3). The report indicated that exports from Swaziland average 21 days, compared 

to 23 days from Madagascar and 30 days from South Africa. In addition, textile and 

apparel producers benefit from well-developed roads between the country’s main 

industrial areas and the South African border, as well as South Africa’s relatively highquality transportation infrastructure. Industry sources indicate that Swazi customs 

officials are proficient and border crossings into Swaziland are relatively straightforward, 

with an average crossing time of 30 minutes at Swaziland’s main border post with South 

Africa. 

 

The government of Swaziland has placed a high priority on the development of an 

apparel sector and offers a variety of incentives to attract investors. Incentives include a 

10-year tax holiday and access to one of the country’s main industrial areas. In 1998, the 

government established the Swazi Investment Promotion Authority (SIPA) to serve as a 

one-stop shop for industry investors. SIPA has reportedly been successful at securing 

Taiwanese investment by providing factory shells at reduced rent in the Matsapha and 

Nhlangano industrial areas. 365 Industry sources also indicate that the Taiwanese 

government has encouraged Taiwanese textile and apparel firms to invest in 

Swaziland.366

 

Swaziland is eligible to export apparel duty free, subject to a single transformation rule of 

origin, to the United States under AGOA and to the EU under an interim EPA. Swaziland 

is also a member of several key regional economic organizations, including SACU, 

SADC, and COMESA. The aforementioned agreements allow Swaziland to trade many 

textile and apparel inputs duty free with regional trade partners. SACU membership 

allows firms producing textile and apparel inputs to supply South African and Lesotho 

apparel manufacturers and apparel consumers duty free. Further, Swaziland’s economy is 

reportedly “extremely open” to trade and investment, and FDI-driven exports, such as 

apparel, are the leading sources of export revenue.367

 

Factors Inhibiting Competitive Production 

Swaziland is constrained in the use of its water resources. Although the country has a 

reasonable supply of clean water; its ability to make use of the water flowing in its rivers 

is limited, as all four of its major river systems flow into either South Africa and/or 

Mozambique, and water usage is governed by a Tripartite Permanent Technical 

Committee among the countries.368

 

 363 Swaziland Electricity Board, “Tariff Rates for 2006 and 2007,” undated (accessed March 17, 2009). 

Converted to US$ using representative exchange rate of 10.1. Representative exchange rates can be found at 

http://www.imf.org/external/np/fin/data/rms_mth.aspx?SelectDate=2008-12-31&reportType=REP. 364 Industry representative, interview by Commission staff, Nhlangano, Swaziland, October 22, 2008. 365 USITC, Sub-Saharan Africa: Factors Affecting Trade Patterns, 2007; industry representative, 

interview by Commission staff, Nhlangano, Swaziland, October 22, 2008. 366 Industry representative, interview by Commission staff, Nhlangano, Swaziland, October 22, 2008. 

Taiwan is one of only nine foreign entities with embassies in Swaziland; others include Canada, Cyprus, 

Finland, Indonesia, Mozambique, the Netherlands, the United Kingdom, and the United States.

GoAbroad.com, “Embassies/Consulates in Swaziland,” undated (accessed February 18, 2009). 367 EIU, Country Profile 2007: Swaziland, 2007, 23–25. 368 FAO, Irrigation in Africa in Figures, (accessed April 13, 2009) 

www.fao.org/docrep/V8260B/V8260B11.htm. 
4-62 

Allegations of labor abuse persist in Swaziland. In 2005, the U.S. Department of State 

reported that limits on labor rights in Swaziland included restrictions on freedom of 

assembly and association, discrimination and violence against women,369 and antiunion 

discrimination.370 In 2008, 16,000 of the estimated 17,000 textile and apparel workers 

employed in the country voted to strike, demanding increased wages and improved 

working conditions and management.371

 

Swaziland has one of the highest HIV/AIDS infection rates in the world, which 

contributed to an average life expectancy of 31.3 years in 2004. 372 Industry sources 

reported that labor productivity is negatively affected by a high HIV/AIDS infection rate 

among workers. One source indicated that his firm had lost some of its best workers to 

HIV/AIDS.373

Swaziland does not produce the necessary raw materials to supply large-scale textile 

manufacturing. Cotton production in Swaziland is small and declining, reportedly as a 

result of price uncertainty and persistent drought conditions in most cotton-growing 

areas. An estimated 90 percent of cotton producers are small-holder farmers with average 

holdings of three hectares. Production of seed cotton declined from an estimated 1,700 

tons during the 1997–98 season to an estimated 400 tons during the 2001–02 season.374

Despite small and declining cotton production, the Swazi government recently initiated a 

program that grants price support and financial assistance to growers for purchasing seeds 

and other raw materials in order to revitalize the industry.375

Swaziland relies heavily on the SACU customs-sharing scheme for its national budget. 

SACU customs revenue accounts for an average of 60 percent of Swaziland’s annual 

budget.376 As such, one source noted that Swaziland has found it challenging to balance 

its objective of enhancing trade facilitation while recognizing the importance of customs 

revenue to its national budget.377

Tanzania 

Potential Competitive Products 

Textile and apparel inputs that could be produced competitively in Tanzania include 

products that the country already has experience producing and exporting, such as cotton 

yarn and cotton fabric. Currently, most production is for regional and local markets, and 

significant investment in machinery and workforce training would be required to expand 

production of export-quality textile and apparel inputs for the United States, EU, and 

similar markets. The country faces several competitive disadvantages in the production of 

textile and apparel inputs, including a lack of reliable power, an undeveloped apparel 

 369 The vast majority of workers in the textile and apparel industries in Swaziland are women. 370 U.S. Department of State, Bureau of Democracy, Human Rights, and Labor, “Swaziland: Country 

Reports on Human Rights Practices,” March 8, 2006. 371 Fibre2fashion.com, “Swaziland: Textile Workers at Strife with Management,” March 1, 2008. 372 UNDP, Human Development Report 2007/2008, 2007, 259. 373 The source further noted that his company had secured foreign assistance to establish a clinic to treat 

HIV/AIDS patients in the Nhlangano area. Industry representative, interview by Commission staff, 

Nhlangano, Swaziland, October 22, 2008. 374 Government of the Kingdom of Swaziland Web site. http://www.gov.sz/home.asp?pid=1877

(accessed February 18, 2009). 375 Fibre2fashion.com, “Swaziland: Government Undertakes Revival,” September 1, 2008. 376 Industry representative, interview by Commission staff, Mbabane, Swaziland, October 23, 2008. 377 Industry representative, interview by Commission staff, Mbabane, Swaziland, October 23, 2008. 
4-63 

industry, lack of a skilled labor force, and limited market knowledge. Additionally, major 

delays at the port of Dar es Salaam inhibit importation of inputs and capital equipment 

and cause export delays that are likely unacceptable to international buyers that place a 

premium on short delivery times. 

Country Overview 

Tanzania is centrally located within eastern Africa, sharing borders with eight countries 

and the Indian Ocean. In 2007, Tanzania’s GDP was $16.2 billion and its population was 

40.4 million, resulting in a per capita GDP of just $401 (table 4.34). Compared with other 

SSA countries, Tanzania has a history of stable democracy and strong macroeconomic 

performance. Tanzania ranked 127th out of 181 countries in the World Bank’s Doing 

Business 2009 database, the second lowest aggregate ranking of any of the Group 1 

countries (table 3.3). However, it is one of the top destinations for FDI in Africa, 

receiving investment from South Africa, the United Kingdom, Ghana, Australia, Canada, 

Kenya, and the United States. 378 Agriculture is vital to the Tanzanian economy, 

contributing 44 percent to GDP and accounting for 80 percent of employment.379 The 

textile and apparel industry plays a much smaller role in the economy, although the sector 

employs 12,700, of which more than one-half are women.380 The sector also accounts for 

a large percentage of Tanzania’s exports of AGOA-eligible products. 

TABLE 4.34 Tanzania: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 16,181

GDP growth (annual %, 2007) 7.1

GDP per capita (current US$, 2007) 401

Population (millions, 2007) 40.4

Goods exports (current US$, millions, 2007) 2,022

Goods imports (current US$, millions, 2007) 5,337

Inflation, consumer prices (annual %, 2007) 7.0

Literacy rate, adult total (% of people ages 15 and above, 2002) 69.4

Labor force, total (millions, 2006) 19.3

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 474

Gross capital formation (current US$, millions, 2006) 2,372

Lending rate (%, 2007) 16.0

Manufacturing value added (current US$, millions, 2006) 819

Prevalence of HIV, total (% of population 15–49, 2007) 6.2

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. bNot available. 

Industry and Trade Overview 

 

There are several commercial producers of textiles and apparel in Tanzania, mainly 

producing for local or regional markets. Tanzania’s textile sector developed in the 1970s, 

 378 World Bank, Snapshot Africa: Tanzania, January 2007, 6. 379 CIA, “Tanzania,” (accessed March 17, 2009). 380 U.S. Department of State, U.S. Embassy, Dar es Salaam, “AGOA: Tanzania’s Textile Sector,” 

August 16, 2006. 
4-64 

when the government of Tanzania encouraged industrialization of the economy through 

import substitution.381 With increased global competition and privatization in the 1980s 

and 1990s, the industry contracted significantly, from 30 to 14 firms. In 2007, only 5 of 

Tanzania’s 14 textile and apparel firms exported their production.382 Since 2000, the 

sector has received increased investment, as several private firms have purchased 

government mills for refurbishment. 383 However, these former government mills 

reportedly require significant investments in facility modernization and new 

machinery.384

Textile and apparel inputs 

The textile industry in Tanzania focuses primarily on processing locally grown cotton and 

spinning it into yarn for both knit and woven fabric. A few fabric mills also blend cotton 

with polyester or other synthetic fibers; however, all synthetic fibers must be imported. 

Tanzanian textile mills sell these inputs regionally or minimally process and print woven 

fabrics to be sold as final products. Inputs for local consumer products are used to 

produce khanga,385 kitenge,386 mosquito nets, and bedsheets for the local and regional 

markets. Reportedly, several textile mills also produce greige yarn and fabric for export. 

The textile sector in Tanzania currently consists of one independent yarn spinner, New 

Tabora Textiles (Tanzania) Ltd., and several integrated fabric mills, including Afritex 

Ltd., 21st Century Holdings Ltd., New Musoma Textile Ltd., NIDA Textiles, Karibu 

Textiles, and Urafiki Textiles.387 Two vertically integrated firms, Sunflag388 and A to Z 

Textile, process cotton and other fibers through to garments or other made-up textile 

articles. 

Sunflag produces both knit and woven fabrics and has certified processing for organic 

yarn and knit fabric for internal consumption. It also produces yarn and fabric for sale. 

Sunflag manufactures mosquito nets, home linens, khangas, T-shirts, and polo shirts for 

local and regional markets. Roughly two-thirds of the company’s production is exported, 

with the remainder sold domestically. Sunflag exports knit garments to the United States, 

the EU, and South Africa, and reportedly is the only Tanzanian firm currently exporting 

apparel to the U.S. market under AGOA.389 Sunflag uses all of its own fabric to make 

garments, though it must import all trim and other inputs. Recently, Sunflag closed one of 

its two factories in Arusha due to a market slowdown and decreased export demand.390

The company employs 2,100 workers.391

 381 Baffes, “Tanzania’s Cotton Sector,” December 2002, 9. 382 U.S. Department of State, U.S. Embassy, Dar es Salaam, “Tanzania: Input for 2007 President’s 

Report,” March 14, 2007. 383 Baffes, “Tanzania’s Cotton Sector,” December 2002, 9. 384 Industry representatives, interviews by Commission staff, Dar es Salaam, Tanzania, February 23, 

2009. 385 Khanga is traditional East African printed fabric. Generally, there are four borders surrounding a 

central design. Khanga often contain printed messages in Swahili, as well as the name of the mill that 

produced the fabric. 386 Kitenge is woven, printed cloth of traditional East African patterns. Kitenge can be used as a wrap 

or to construct garments. 387 RATES, Cotton-Textile-Apparel Value Chain Report Tanzania, undated (accessed January 16, 

2009), 38. 388 Sunflag (Tanzania) Ltd. is part of Kenya’s Sunflag Group. 389 Industry representative, interview by Commission staff, Arusha, Tanzania, February 26, 2009. 390 Ubwani, “Tanzania: Textile Factory Shuts As Orders Decline,” July 8, 2008. 391 Young, “Tanzania’s Textile Trade Unravels,” March 12, 2009. 
4-65 

A to Z Textile Mills spins yarn, including specially treated synthetic-filament yarn 

incorporating the insecticide permethrin, and produces knit fabric. From such inputs, it 

manufactures insecticide-treated antimalaria nets and knit apparel for the local market. In 

2006, A to Z Textiles formed a multimillion dollar joint venture with Japanese firm 

Sumitomo Chemicals Company to produce malaria nets for East Africa.392 A to Z holds 

several contracts with international nongovernmental organizations to provide bed nets to 

neighboring countries in SSA. One factory located within an EPZ is dedicated 

exclusively to the production of bed nets for export to other SSA countries. The firm also 

produces cotton and cotton-polyester-blended T-shirts and polo shirts for local 

consumption. A to Z employs roughly 6,000 workers in its two factories.393

In 2007, Tanzanian exports of textile and apparel inputs totaled $20.3 million 

(table 4.35), representing a 72 percent increase from 2005. Woven fabric (43 percent), 

yarn (29 percent), and carded or combed fibers394 (19 percent) accounted for the majority 

of Tanzanian exports of textile and apparel inputs by value in 2007. The bulk of 

Tanzania’s textile exports are destined for other SSA countries (65 percent) or the EU (27 

percent) (table 4.36). Exports of textile and apparel inputs to the United States accounted 

for only 2 percent (roughly $450,000) of total Tanzanian textile exports and consisted 

mainly of woven fabric. Textile and apparel inputs of cotton dominate exports from 

Tanzania, accounting for 56 percent of the total; however, Tanzania also exports woven 

manmade-fiber fabric, which accounted for 30 percent of its total textile exports by value 

in 2007. 

TABLE 4.35 Tanzania: Exports and imports of textile and apparel inputs, by product group, 

2003–07 (1,000 $) 

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 1,003 2,349 2,810 4,049 3,892

 Knit fabric 346 921 694 910 1,672

 Manmade fibers 154 5 25 7 66

 Other fabric 0 5 30 192 34

 Thread 0 15 9 3 20

 Trim 103 357 115 62 36

 Woven fabric 4,979 8,806 4,084 5,067 8,763

 Yarn 2,567 4,192 4,075 5,752 5,866

 Total 9,151 16,651 11,842 16,041 20,349

Imports: 

 Carded or combed fibers 4 170 60 63 1

 Knit fabric 503 909 1,766 1,635 4,192

 Manmade fibers 1,349 1,771 3,259 2,554 3,841

 Other fabric 737 731 1,887 1,648 2,295

 Thread 376 443 1,529 729 1,139

 Trim 776 910 4,791 1,718 8,474

 Woven fabric 33,565 38,393 93,060 69,261 98,837

 Yarn 6,856 5,993 7,587 7,877 12,357

 Total 44,166 49,321 113,938 85,485 131,136

Source: World Bank, WITS Database (accessed December 3, 2008). 

 392 Industry representative, interview by Commission staff, Arusha, Tanzania, February 26, 2009. 393 Industry representative, interview by Commission staff, Arusha, Tanzania, February 26, 2009. 394 Industry sources indicate that Tanzania is not exporting carded or combed cotton fibers; hence, it is 

likely that such products are misidentified in the trade data. Industry representative, interview by Commission 

staff, Dar es Salaam, Tanzania, February 23, 2009. 
4-66 

TABLE 4.36 Tanzania: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 4,651 9,456 5,420 9,325 13,215

EU-27 1,783 4,682 4,285 4,960 5,427

Rest of world 1,687 1,708 1,193 1,004 1,257

United States 1,030 805 944 752 450

 Total 9,151 16,651 11,842 16,041 20,349

Source: World Bank, WITS Database (accessed December 3, 2008). 

Tanzania registered a large trade deficit in textile and apparel inputs in 2007. Imports of 

$131.1 million in 2007 were over six times greater than exports of textile and apparel 

inputs. Such imports consisted mostly of woven fabric, likely for use in traditional 

apparel. The government of Tanzania provides tax exemptions for imported woven fabric 

from China and India395 to help meet domestic market demand. 

Apparel 

There is limited local demand for textile inputs for apparel, as there is little commercial 

production of apparel in Tanzania.396 Most local production ceased after the sector was 

privatized in the 1990s, although there is some remaining apparel production for the local 

and export markets. With respect to the domestic market, Tanzanians have little 

disposable income and rely heavily on imports of low-priced used clothing. The 

government of Tanzania has imposed duties on such goods in an effort to preserve the 

domestic apparel industry, with limited success.397

 

One Tanzanian firm currently producing apparel for the local market indicated that it 

hopes to export apparel to the United States under AGOA, although it admits it is 

currently not prepared to enter the U.S. market due to a lack of skilled labor and old 

machinery.398 The firm uses production for local markets as a means to train workers to 

meet a higher level of quality needed for export markets. Other firms have struggled to 

penetrate the U.S. market due to capacity constraints and lack of historical relationships 

with U.S. buyers.399 Apparel manufacturers producing for the export market also face 

supply-side constraints and delays in transport. Reportedly, local fabric is of low quality, 

limited volume, and is not price competitive.400 

In 2007, Tanzania’s exports of apparel totaled $8.0 million, making it the 11th-largest 

SSA exporter of apparel by value (table 4.37). Major export markets include the EU and 

United States. Exports of apparel to the United States totaled $2.7 million in 2007 and 

consisted largely of T-shirts. Since 2005, apparel exports have increased by 8 percent. 

Whereas apparel exports to the United States and the EU declined by 22 percent and 16 

percent, respectively during this period, regional exports of apparel to Kenya, Malawi, 

Uganda, and South Africa increased. 

 395 U.S. Department of State, U.S. Embassy, Dar es Salaam, “Tanzania’s Textiles,” October 4, 2006. 396 Tanzanian government official, interview by Commission staff, Dar es Salaam, Tanzania, 

February 23, 2009. 397 RATES, Cotton-Textile-Apparel Value Chain Report Tanzania, undated (accessed 

January 16, 2009), 14. 398 Industry representative, interview by Commission staff, Tanzania, February 26, 2009. 399 U.S. Department of State, U.S. Embassy, Dar es Salaam, “Tanzania’s Textiles,” October 4, 2006. 400 Industry representative, interview by Commission staff, Dar es Salaam, Tanzania, 

February 24, 2009. 
4-67 

TABLE 4.37 Tanzania: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 5,146 8,097 7,380 8,635 7,984

Imports 32,060 35,462 56,987 65,257 95,689

Source: World Bank, WITS Database (accessed December 16, 2008). 

Tanzania’s total imports of apparel are nearly 12 times greater than exports, totaling 

$95.7 million in 2007. Over two-thirds of Tanzanian apparel imports come from China, 

with other shipments from India and Thailand. Local manufacturers complain that 

Chinese goods are brought into Tanzania at below raw material costs, although local 

customs officials are ill-equipped to deal with underinvoicing and underdeclaration of 

imported textile and apparel articles. 

Factors Contributing to Competitive Production 

Tanzania’s large population and location at the hub of East Africa, coupled with market 

access to several regional partners through SADC and East African Community (EAC) 

membership, render it a comparatively favorable location to establish textile and apparel 

inputs production. Further, Tanzania has access to a large domestic cotton crop (box 4.6) 

that could be processed downstream through new or increased investments in the textile 

and apparel inputs sector. Compared with other regional competitors, Tanzania also 

enjoys a stable political and economic landscape. The country is generally safe and has 

investment protection measures in place. With respect to trade-specific doing business 

indicators in the World Bank Doing Business 2009 database, such as trading across 

borders or cost to import, Tanzania ranks better than almost all of its Group 1 cohorts 

(table 3.3). 

Factors Inhibiting Competitive Production 

Tanzania does not currently have an apparel industry of sufficient size to support further 

investment in textile and apparel inputs production. One of the few successful exporters 

of apparel, Sunflag, reported that it has no orders due to the global economic recession.401

One industry source estimated that a country needs at least 50 apparel firms to create 

sufficient demand for a fabric mill.402 Although a few CMT factories exist in Tanzania 

for the export market, they do not enjoy economies of scale and struggle to find 

experienced workers. Tanzania faces a shortage of skilled labor in the textile and apparel 

industry. Reportedly, there are no textile-specific vocational, design, or engineering 

schools to train workers in Tanzania. As such, firms must bear the costs of training 

workers, many of whom are completely unfamiliar with textile and apparel-producing 

machinery. Further, the Tanzanian textile and apparel sector has recently experienced 

labor unrest and riots, with workers at Sunflag and A to Z striking for increased pay403

when the Tanzanian government granted the textile and apparel industry a waiver to pay 

less than the minimum monthly wage (80,000 Tanzanian shillings (roughly $60) versus 

the 150,000 ($115) government minimum wage). Although wages are relatively low,

 401 Young, “Tanzania’s Textile Trade Unravels,” March 12, 2009. 402 Industry representative, interview by Commission staff, Dar es Salaam, Tanzania, 

February 24, 2009. 403 Ubwani, “Tanzania: Textile Factory Shuts As Orders Decline,” July 8, 2008; Ubwani, “Tanzania: 

Textile Mill Workers End Three-day Strike,” February 6, 2009. 
4-68 

BOX 4.6 Cotton Production in Tanzania

In marketing year (MY) 2007, Tanzania was the third-largest SSA cotton-producing country, accounting for 8 percent of 

all SSA production. During MY 2003–07, Tanzanian cotton production fluctuated significantly year to year, with a high of 

575,000 bales in MY 2005 and a low of 200,000 bales in MY 2006 (see table below). The significant increase in 

production in MY 2004 and MY 2005 was due to increased harvested areas, as producers responded to higher cotton 

prices relative to competing crops in the previous years,a

 and producers became more confident in being able to obtain 

inputs (e.g., pesticides and insecticides).b

 High production levels in MY 2004 and MY 2005 were also associated with 

high yields in response to ideal weather conditions.c

 The significant decline in MY 2006 production was almost entirely 

due to a severe drought.d

 Domestic consumption increased in MY 2005 and MY 2007, resulting in cotton consumption 

more than doubling during the MY 2003–07 period. During the same period, domestic consumption accounted for 10–28 

percent of domestic supplies, while exports were equivalent to 48–70 percent of domestic cotton production. 

Tanzania: Cotton production, consumption, and trade 

Marketing year (Aug. 1–July 31) 

Source 2003 2004 2005 2006 2007

Beginning stocks 142 152 248 302 295

Production (1,000 bales) 235 525 575 200 310

 % of SSA production 4 8 10 4 8

 Average yields (kg/ha) 132 229 245 145 150

 Area harvested (ha) 387 500 510 300 450

Consumption (1,000 bales) 70 70 120 110 170

 Ratio of consumption to domestic supplies1

 (%) 19 10 15 22 28

Imports (1,000 bales) 0 0 0 0 0

Exports (1,000 bales) 155 359 401 97 150

 % of production exported 66 68 70 49 48

 % of total exports from SSA 3 8 8 2 5

Exports (US dollars, millions) 33.25 64.89 89.98 86.16 40.21

 % of exports from Tanzania to SSA 6 3 3 1 4

Source: USDA, FAS, Production, Supply and Distribution Online; World Bank, WITS Database (accessed March 9, 

2009). 

1

Domestic supplies are equivalent to the sum of beginning stocks and production. Beginning stocks are the quantity of 

cotton carried over (not consumed or exported) from the previous year. 

a

Due to the lack of pricing information, producers typically make planting decisions based on prices received during 

the previous season. b

In MY 2003, Tanzania introduced a program allowing a significant number of farmers for the first time to be able to 

obtain inputs regardless of their cash situation at the time of input purchasing (typically when producer cash reserves 

are lowest). c

Government of Tanzania, “The Cotton and Textiles Sector in Tanzania,” 2007, 4. d

Production for MY 2006 was originally estimated to be 750,000 bales before the drought occurred. Ibid.; ICAC, 

“Tanzania: Cotton Report,” November 22, 2007. 
4-69 

BOX 4.6 Cotton Production in Tanzania―Continued

Tanzanian cotton has favorable fiber characteristics,e

 but is rated by the International Cotton Advisory Committee as 

the poorest qualityf African cotton.g

 As a result, Tanzanian cotton receives one of the lowest premiums over the 

Cotlook A Index, a common international standard, among major SSA cotton exporters.h

 In MY 2006, Tanzanian 

cotton premiums were less than $0.01 per lb., as compared to $0.02 per lb. or more for other major SSA cotton 

exporters.i Tanzanian cotton fiber characteristics benefit from cotton being picked by handj and approximately onehalf of the crop being roller ginned.k

 Premiums on Tanzanian cotton are eroded as a consequence of contamination 

from polypropylene fibers from sacks being used to harvest cotton.l

 Polypropylene fibers, as well as other extraneous 

fibers, have different dye absorption rates than cotton fibers, resulting in uneven coloring in dyed yarns and fabrics 

containing such fibers.m Production and processing practices have lowered Tanzanian fiber characteristics and cotton 

quality, as producer and processors are often unaware of the quality requirements of consumers.n

 For example, 

Tanzania has no seed certification program to ensure the quality of seeds used for planting. As a result, seeds 

distributed to producers by ginners are often of mixed varieties, which over time, through genetic variations, reduces 

specifically developed traits such as disease resistance, yields, and fiber characteristics.

o

e

Fiber characteristics refer to the actual attributes of the cotton lint fibers, such as staple length, micronaire, fiber 

strength, and length uniformity. Most African upland cottons have fiber characteristics equal to or above the Cotlook A 

Index benchmark. Fiber characteristics are fairly homogenous across Africa due to similar growing conditions and the 

limited number of varieties planted. However, micronaire and length uniformity vary depending on specific varieties, 

weather conditions, growing areas, and production practices. Estur, “Quality and Marketing of Cotton Lint in Africa,” 

July 2008, 13. f

Overall cotton quality refers to both the fiber characteristics of the lint along with other nonlint attributes of the 

cotton lint, such as contamination and stickiness. g

Government of Tanzania, “The Cotton and Textiles Sector in Tanzania,” 2007, 7. h

The Cotlook A Index sets the international benchmark for quality, with all cottons traded receiving a premium or 

discount price based on its quality in relation to the benchmark. Estur, Is West African Cotton Competitive? January 

7, 2005, 1–20. i

These premiums reflect estimates for the top type of lint in each country as quoted by the Cotlook A Index. The 

average price of the Cotlook A Index in MY 2006 was $0.6053 per lb. Estur, “Quality and Marketing of Cotton Lint in 

Africa,” July 2008, 21. j

Cotton picked by machine requires additional ginning, which causes greater deterioration of the cotton fibers, as 

compared with hand-picked cotton. Estur, Is West African Cotton Competitive? January 7, 2005, 4; industry 

representative, interview by Commission staff, Dar es Salaam, Tanzania, February 25, 2009. k

Roller gins are more effective than saw gins at preserving fiber quality. Roller-ginned Tanzanian cotton can receive 

a premium of $0.01 per lb. over identical cotton that is saw ginned. Estur, “Quality and Marketing of Cotton Lint in 

Africa,” July 2008, 18. l

Industry representative, interview by Commission staff, Dar es salaam, Tanzania, February 25, 2009. mSSA industry representative, interview by Commission staff, Las Vegas, NV, February 17, 2009. 

n

Government of Tanzania, “The Cotton and Textiles Sector in Tanzania,” 2007, 7; industry representative, interview 

by Commission staff, Dar es Salaam, Tanzania, February 25, 2009. o

Proper management of seed use, such as through privatization of seed distribution, can remedy this situation. 

Government of Tanzania, “The Cotton and Textiles Sector in Tanzania,” 2007, 26. 

labor remains unproductive, especially compared with Asian competitors. Finally, firms 

in the sector lack market knowledge regarding export opportunities; for example, several 

firms were unaware that AGOA benefits had been extended to textiles in late 2006.404

The Tanzanian textile sector also suffers from a deficiency of investment in capital 

equipment. Less than 7 percent of Tanzania’s spinning machinery has been updated in the 

past 10 years. 405 However, some investments have been made in recent years in 

 404 Industry representatives, interviews by Commission staff, Dar es Salaam, Tanzania, February 23 and 

24, 2009. 405 ITMF statistics do not account for purchases of used equipment. ITMF, International Textile 

Machinery Shipment Statistics, 2007, 11. 
4-70 

modernizing Tanzania’s woven fabric industry.406 In addition, several Tanzanian firms 

reported purchasing newer used equipment from closing U.S. textile mills.407

Tanzania ranks well below other Group 1 countries in terms of port infrastructure and 

road density (table 3.4). As lead times are crucial to international buyers, and given that 

Africa is already starting from a geographically isolated position vis-à-vis world markets, 

the severe delays currently occurring at the port of Dar es Salaam critically hamper the 

export competitiveness of Tanzania’s textile and apparel industry. Port congestion also 

causes delays in imports of fabric, sewing thread, and trim needed to produce garments 

for export. Once ships reach the port, they often must wait up to four weeks to unload 

cargo.408 Manufacturers typically bear the costs of both delays in receiving their inputs 

and exporting their final products. Shipping delays also increase the cost of capital, as 

manufacturers assume the costs of the raw materials. Reportedly, the government is 

working to remedy this issue through the use of inland container depots.409 

The sector also faces the challenge of an unreliable and expensive power supply.410

Frequent occurrences of power disruption seriously impede competitiveness in Tanzania, 

contributing to higher production costs.411 Eighty-eight percent of firms surveyed by the 

World Bank indicated that electricity is a major constraint to operating in Tanzania. 

These firms reported an average of 12.0 outages in a typical month, resulting in a lost 

value of 9.6 percent of sales (table 3.1). 

 

Zambia 

Potential Competitive Products 

Zambia is an established manufacturer and regional SSA exporter of cotton yarn. In 

addition, it appears to be competitive in the production of yarn and fabric used in the 

production of blankets, school and military uniforms, mining protective wear, and 

hospital scrubs for local and regional markets. 

Zambia has a very small domestic market and most of the country’s apparel demand is 

met through imported used apparel. Zambia’s obsolete industrial base of spinning and 

weaving machinery precludes any significant production of globally competitive finished 

apparel articles. Zambia’s poor infrastructure results in higher shipping costs and 

shipping times than for all of the other Group 1 countries. 

 406 Ibid., 28. 407 Industry representatives, interviews by Commission staff, Dar es Salaam, Tanzania, 

February 23, 2009. 408 Industry representative, interview by Commission staff, Dar es Salaam, Tanzania, 

February 23, 2009. 409 Tanzanian government official, interview by Commission staff, Dar es Salaam, Tanzania, 

February 23, 2009. 410 U.S. Department of State, U.S. Embassy, Dar es Salaam, “Tanzania: Effects of Infrastructure 

Conditions,” October 8, 2008. 411 U.S. Department of State, U.S. Embassy, Dar es Salaam, “Tanzania’s Textiles,” October 4, 2006. 
4-71 

Country Overview 

Zambia is a southern African country with a GDP of $11.4 billion and a total population 

of 11.9 million in 2007, resulting in a GDP per capita of $955 in 2007 (table 4.38). 

Copper mining is the primary economic activity in Zambia, and world copper prices are a 

key factor determining the overall performance of Zambia’s economy. Zambia also is a 

large cotton-producing country and has extensive arable land and water resources. The 

Zambian government is encouraging private investment in all major sectors of the 

economy through measures to open the economy to global trade and investment. Zambia 

is ranked 100th of 181 economies in terms of the ease of doing business in the World 

Bank’s Doing Business 2009 database, which is about average for the Group 1 countries 

(table 3.3). 

Industry and Trade Overview 

Zambia’s once thriving textile and apparel sector has significantly contracted as sector 

output and the number of enterprises engaged in textile and apparel production have 

declined sharply since 2003.412 At its zenith in the late 1980s, Zambia’s textile and 

apparel sector comprised more than 140 parastatal and privately owned enterprises 

employing more than 25,000 individuals.413 These enterprises, which flourished during an 

TABLE 4.38 Zambia: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 11,363

GDP growth (annual %, 2007) 6.0

GDP per capita (current US$, 2007) 955

Population (millions, 2007) 11.9

Goods exports (current US$, millions, 2007) 4,619

Goods imports (current US$, millions, 2007) 3,971

Inflation, consumer prices (annual %, 2007) 10.7

Literacy rate, adult total (% of people ages 15 and above) (b)

Labor force, total (millions, 2006) 5.0

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 575

Gross capital formation (current US$, millions, 2007) 2,739

Lending rate (%, 2007) 18.9

Manufacturing value added (current US$, millions, 2007) 1,187

Prevalence of HIV, total (% of population 15-49, 2007) 15.2

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. bNot available. 

 412 Chitah, Zambia Country Report, November 17–21, 2008, 5–7. 413 De Voest and Schultz, “Stimulating Growth of Trade and Investment,” September 2002, 29; World 

Bank, Vertical and Regional Integration, July 2007, 58. 
4-72 

era of high trade barriers that protected Zambian industries from foreign competition, 

included a mix of vertically integrated textile enterprises and stand-alone spinning, 

weaving/knitting, and apparel assembly firms.414

Beginning in the 1990s, Zambia reoriented its trade policies to open the economy to 

foreign trade and investment. Although FDI increased following the new policy 

orientation, Zambian textile and apparel producers found it increasingly difficult to 

compete with imported fabric and imported used apparel in the domestic market, and 

many firms were forced to cease operations. 415 Zambia’s remaining state-owned, 

vertically integrated textile enterprises had outdated machinery and equipment, and 

generally were unable to produce the higher quality articles required to become globally 

competitive. 416 Zambia’s largest remaining parastatal textile mill, Zambia China 

Mulungushi Textile Limited (ZCMT), ceased operations in January 2007. 417 Despite 

significant privatization in the sector since the late 1990s, Zambian firms have found it 

increasingly difficult to compete in global export markets against large apparel exporting 

countries such as China, India, and Pakistan.418

Zambia is a producer of high-quality cotton (box 4.7). Zambia’s textile sector currently 

consists of an estimated four privately owned stand-alone knitting/weaving firms and 

four privately owned vertically integrated textile enterprises that spin their own yarn for 

use in producing finished textile and apparel articles.419 One of the vertically integrated 

textile mills, Swarp Spinning Mills, Plc., entered into receivership in December 2008, 

and has ceased operations pending sale of the company (box 4.8).420

Textile and apparel inputs 

Zambia’s textile sector produces primarily 100-percent cotton yarn along with small 

quantities of manmade fiber yarns, including polyester/cotton and acrylic yarns.421 Most 

of the yarn produced in Zambia is exported, but a small share is used domestically in the 

production of woven fabric, including canvas, drill, and suiting and dress fabric. This 

woven fabric is used to manufacture niche apparel, such as uniforms and mining work 

wear, primarily for the local market or for export mainly to other SSA countries. Zambian 

yarn is also used to produce terry toweling, blankets, and rugs for both the domestic 

 414 De Voest and Schultz, “Stimulating Growth of Trade and Investment,” September 2002, 30–33. 415 Sources report that Zambia’s low-income domestic market for apparel is largely met through 

imported used goods and tailor-made garments, while middle- and upper-income demand is being met 

through South African retail stores that operate in Zambia and sell internationally sourced apparel. Hansen, 

Salaula: The World of Secondhand Clothing and Zambia, 179; RATES, Cotton-Textile-Apparel Value Chain 

Report Zambia, August 2003, 28 and 30; and World Bank, Vertical and Regional Integration, July 2007, 60. 416 USITC, Hearing transcript, January 29, 2009, 121–122 (testimony of Frank D. Mugyenyi, 

COMESA). 417 ZCMT was a parastatal joint venture between the Chinese and Zambian governments. RATES, 

Cotton Textile Apparel Value Chain Report Zambia, August 2003. 418 One source observed that Zambia produces raw cotton and exports cotton lint to Pakistan, while it 

imports apparel from Pakistan. USITC, Hearing transcript, January 29, 2009, 22 (testimony of The Honorable 

Sindiso Ngwenya, Secretary General, COMESA). 419 According to updated information provided by one source, two of the integrated mills currently 

operate at a very low capacity. Industry representative, telephone interview by Commission staff, February 

10, 2009; de Voest and Schultz, “Stimulating Growth of Trade and Investment,” September 2002, 29–39; and 

RATES, Cotton Textile Apparel Value Chain Report Zambia, August 2003, 24–29. 420 Industry representative, telephone interview by Commission staff, February 10, 2009. 421 RATES, Cotton Textile Apparel Value Chain Report Zambia, August 2003, 25; de Voest and 

Schultz, “Stimulating Growth of Trade and Investment,” September 2002, 20. 
4-73 

BOX 4.7 Cotton Production in Zambia 

In marketing year (MY) 2007, Zambia was the eighth-largest SSA cotton-producing country, accounting for 4 percent of 

all beneficiary countries’ production. Zambian cotton production increased from 325,000 bales in MY 2003 to a record 

400,000 bales in MY 2005 (see table below). However, production then declined to 160,000 bales each in MY 2006 and 

MY 2007, primarily because of lower domestic producer prices caused by appreciation of the Zambian kwacha against 

the U.S. dollar,a

 and a shifting of acreage to corn production following increased government support of production and 

marketing of that crop.b

 Exports also declined in MY 2006 and domestic consumption accounted for only 10–22 percent 

of Zambian cotton supplies during MY 2003–07. Reportedly, limited quantities of cotton were imported from Zimbabwe 

and Malawi to supplement Zambian yarn spinners’ demand for longer-staple cottonsc and from Mozambique to increase 

ginners’ capacity utilization in border regions.d

 The majority of Zambia’s exports of ginned cotton were destined for SSA, 

primarily South Africa and Mauritius, and Zambia typically accounts for 75 percent of all intra-SSA cotton trade. 

Zambia: Cotton production, consumption, and trade 

Marketing year (Aug. 1–July 31) 

Source 2003 2004 2005 2006 2007

Beginning stock 145 255 315 320 205

Production (1,000 bales) 325 350 400 160 160

 % of SSA production 6 6 7 3 4

 Average yields (kg/ha) 236 203 249 194 174

 Area harvested (ha) 300 375 350 180 200

Consumption (1,000 bales) 65 65 70 75 80

 Ratio of consumption to domestic supplies1 (%) 14 11 10 16 22

Imports (1,000 bales) 0 0 0 0 0

Exports (1,000 bales) 150 225 325 200 125

 % of production exported 46 64 81 125 78

 % of total exports from SSA 3 5 6 5 4

Exports (US dollars, millions) 35.30 92.48 120.73 71.13 35.76

 % of exports from Zambia to SSA 85 46 32 36 75

Source: USDA, FAS, Production, Supply and Distribution Online; World Bank, WITS Database (accessed March 9, 

2009). 

1

Domestic supplies are equivalent to the sum of beginning stocks and production. Beginning stocks are the quantity of 

cotton carried over (not consumed or exported) from the previous year. 

a

Although ginners’ announced prices for MY 2006 were higher than in MY 2005, producers’ lack of confidence in 

announced prices, following substantially lower prices than announced in MY 2005 due to the appreciation of the 

Zambian kwacha against the U.S. dollar, resulted in a significant decline in area cultivated for cotton. Tschirley and 

Kabwe, “Cotton in Zambia,” September 2007, 7. b

Chitah, Zambia Country Report, November 17–21, 2008, 2. c

RATES, Cotton-Textile-Apparel Value Chain Report Zambia, August 2003, 22. d

Ibid., 16.
4-74 

BOX 4.7 Cotton Production in Zambia―Continued

Zambian cotton has favorable fiber characteristicse and is one of the highest-qualityf cottons in SSA.g As a result, 

Zambian cotton received the highest premiums over the Cotlook A Index, a common international standard, among 

major SSA cotton exporters.h

 For example, in MY 2006, Zambian cotton premiums were $0.06 per lb., as compared 

to $0.04 per lb. or less for other major SSA cotton exporters.i

 The high premiums for Zambian cotton are largely 

attributed to the successful efforts by the two largest ginners in the country to eliminate most contamination and to 

improve overall cotton quality by financing input supplies and extension services for producers.j

 The primary source 

of contamination comes from polypropylene fibers from sacks used to harvest cotton.k

 

Despite improvements in the quality of Zambian cotton, declining quality is of concern to the industry due to increased 

competition in the Zambian ginning sector from several new entrants.l

 Zambia was originally able to overcome 

contamination issues due to limited competition among ginners. However, new entrants will likely reduce the financial 

solvency of ginners’ programs, as in other countries, designed to help farmers improve quality and yields and reduce 

contamination due to the increased likelihood of producers breaking their contracts to sell their cotton to competing 

gins.m

e

Fiber characteristics refer to the actual attributes of the cotton lint fibers, such as staple length, micronaire, fiber 

strength, and length uniformity. Most African upland cottons have fiber characteristics equal to or above the Cotlook A 

Index benchmark. Fiber characteristics are fairly homogenous across Africa due to similar growing conditions and the 

limited number of varieties planted. However, micronaire and length uniformity vary depending on specific varieties, 

weather conditions, growing areas, and production practices. Estur, “Quality and Marketing of Cotton Lint in Africa,” 

July 2008, 13. f Overall cotton quality refers to both the fiber characteristics of the lint, along with other nonlint attributes of the 

cotton lint, such as contamination and stickiness. g

Estur, “Quality and Marketing of Cotton Lint in Africa,” July 2008, 18. h

The Cotlook A Index sets the international benchmark for quality with all cottons traded receiving a premium or 

discount price based on its quality in relation to the benchmark. Estur, Is West African Cotton Competitive? 

January 7, 2005, 1–20. i

Cameroon, another country that has significantly improved contamination issues, received the next highest 

premium ($0.04 per lb.). Tschirley and Kabwe, “Cotton in Zambia,” September 2007, 31; Estur, “Quality and 

Marketing of Cotton Lint in Africa,”July 2008, 21. j

Reliable supplies of inputs (e.g., fertilizers) can directly improve yields and fiber characteristic of cotton through 

sufficient and timely application. Tschirley and Kabwe, “Cotton in Zambia,” September 2007, 12. k

The significant increase in Zambian cotton premiums from $0.01 per lb. in the mid-1990s is largely due to the 

reduction in contamination. Estur, “Quality and Marketing of Cotton Lint in Africa,” July 2008, 21. l

SSA countries with less concentrated ginning sectors have typically experienced lower qualities on average than in 

countries with concentrated ginning sectors. Tschirley and Kabwe, “Cotton in Zambia,” September 2007, 1; Chitah, 

Zambia Country Report, November 17–21, 2008, 3; and Larsen, Quality Standard-Setting, August 2003, 26. mTschirley and Kabwe, “Cotton in Zambia,” September 2007, 1; Chitah, Zambia Country Report, November 17–21, 

2008, 3; and Larsen, Quality Standard-Setting, August 2003, 26.
4-75 

BOX 4.8 Zambia’s premier cotton yarn spinner and AGOA exporter collapses in December 2008

Swarp Spinning Mills, a private Zambian company, was one of two major stand-alone spinning mills that coexisted 

with Zambia’s state-owned fully integrated textile mills during the 1980s. Swarp grew to become one of Zambia’s 

largest 100 percent cotton spinning companies. Swarp sourced 90 percent of its cotton lint domestically. In addition, 

Swarp sourced longer staple cotton varieties (and varieties of different colors) from Zimbabwe and Malawi to provide 

high-quality yarn. Swarp spun various types of cotton yarn, including open end, ring, and combed yarns.a

 

At its peak, Swarp employed more than 1,000 workers and was by far Zambia’s largest textile mill and one of SSA’s 

leading producers of 100 percent cotton yarns and blended cotton/polyester yarns.b

 Swarp exported yarn as 

domestic demand for yarn declined, because apparel companies found it cheaper to import fabric than to weave in 

Zambia.c Swarp exported 97 percent of its production and was one of the leading SSA exporters of yarn to Europe. 

Swarp’s use of modern machinery allowed the company to develop a reputation as a producer of quality cotton yarn.d

Swarp shifted to producing short-runs of specialty yarns with specific counts customized to individual customer 

specifications to avoid direct competition with standardized yarn producers in China, India, and Pakistan.e

Swarp did not export directly to the United States after Zambia received AGOA eligibility status in 2004. Instead, 

Swarp exported cotton yarn to Mauritius, South Africa, and Botswana for their use in AGOA-eligible products.f

 In 

recent years, the SSA regional market for Swarp’s yarn declined as a result of reduced demand from Mauritius, 

appreciation of the Zambian currency that made Zambian exports relatively more expensive in major markets, and 

increased competition from suppliers based in Asia.g

 Despite its record as a Zambian success story in terms of 

becoming internationally competitive in the production and export of cotton yarn, Swarp encountered labormanagement problems beginning in 2003, resulting in strikes and production shortfalls. Swarp entered into 

receivership in December 2008 and has ceased operations.h

a

Times of Zambia, “Swarp Spinning Mills Benefits from AGOA,” January 13; Tschirley and Kabwe, “Increasing 

Demand for Quality in World Cotton Markets,” 18; and World Bank, Vertical and Regional Integration, July 2007. b

Tschirley and Kabwe, “Increasing Demand for Quality in World Cotton Markets,” 18. c

Sibanda, “Zambian Textile Industry Collapsing,” undated (accessed December 14, 2008). d

Just-style.com, “AGOA: A Good Deal for the EU Too,” September 4, 2002. e

World Bank, Vertical and Regional Integration, July 2007. f

RATES, Cotton Textile Apparel Value Chain Report Zambia, August 2003, 9; Times of Zambia, “Swarp Spinning 

Mills Benefits from AGOA,” January 13, 2004. g

World Bank, Vertical and Regional Integration, July 2007. h

Times of Zambia, “1,000 Swarp Spinning Workers Granted Injunction,” July 7, 2003; Just-style.com, “Zambia: 

Swarp Spinning Mills Up for Sale,” December 23, 2008. 

market and for export. Sources reported that Zambian textile mills have engaged in 

circular knitting in the past, but those facilities may no longer be operational.422 Zambia 

also produces non-apparel articles such as cotton and acrylic blankets, which are sold in 

the domestic market and exported to neighboring SSA countries. 

In 2007, Zambia’s exports of textile and apparel inputs totaled $14.5 million and largely 

consisted of cotton yarn (accounting for greater than 98 percent of Zambia’s textile 

exports) (table 4.39). Zambia’s yarn exports grew in value from $25.5 million in 2003 to 

a period high of $34.9 million in 2005, before declining to $14.3 million in 2007. This 

decline in yarn exports during 2005–07 reflects reduced domestic yarn production due to 

the declining number of yarn spinning mills operating in Zambia 423 in the face of 

increasing global competition from yarn spinners in Eastern Europe, India, and Asia.424

Zambia does not export its yarn to the United States. In 2007, the EU was the leading 

destination for Zambian yarn, accounting for almost 93 percent of Zambia’s yarn exports, 

up from 59 percent in 2003 (table 4.40). SSA countries accounted for about 5 percent of 

Zambia’s yarn exports in 2007, down from 41 percent in 2003. In 2005, Zambia’s peak 

 422 RATES, Cotton Textile Apparel Value Chain Report Zambia, August 2003, 28–29; industry 

representative, telephone interview by Commission staff, February 10, 2009. 423 Chitah, Zambia Country Report, November 17–21, 2008, 6. 424 De Voest and Schultz, “Stimulating Growth of Trade and Investment,” September 2002; RATES, 

Cotton Textile Apparel Value Chain Report Zambia, August 2003, 20. 
4-76 

TABLE 4.39 Zambia: Exports and imports of textile and apparel inputs, by product group, 2003–07 (1,000 $) 

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 77 6 37 8 0

 Knit fabric 2 68 201 0 9

 Manmade fibers 9 0 10 0 0

 Other fabric 2140 0

 Thread 0 0 301 0 0

 Trim 4 207 0 1 12

 Woven fabric 350 152 69 216 188

 Yarn 25,502 30,969 34,882 20,014 14,323

 Total 25,947 31,404 35,505 20,239 14,532

Imports: 

 Carded or combed fibers 86 55 125 31 9

 Knit fabric 97 207 599 546 1,585

 Manmade fibers 926 1,002 1,432 1,251 1,203

 Other fabric 458 1,167 865 770 970

 Thread 151 247 127 42 81

 Trim 428 870 1,265 563 1,084

 Woven fabric 7,103 8,434 8,325 5,073 6,876

 Yarn 620 1,286 744 704 520

 Total 9,870 13,269 13,481 8,979 12,328

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.40 Zambia: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007 

SSA countries 10,658 8,605 5,217 1,898 779 

EU-27 15,277 22,562 21,792 18,269 13,476 

Rest of world 10 237 8,496 72 278 

United States 2 0 0 0 0 

 Total 25,947 31,404 35,505 20,239 14,532 

Source: World Bank, WITS Database (accessed December 3, 2008). 

year of yarn exports, 61 percent of such exports went to the EU, about 15 percent to other 

AGOA countries, and 24 percent to the rest of the world. Mauritius was once an 

important market for Zambian yarn, but demand by Mauritius for imported yarn has 

declined in recent years in part because Mauritius has built up its own yarn spinning 

capacity.425

Zambia’s imports of textile and apparel inputs totaled $12.3 million in 2007, more than 

one-half of which consisted of woven fabric. Major suppliers included India ($3.9 

million) and China ($3.2 million). Zambia’s total imports of textile and apparel inputs 

increased by 25 percent during 2003–07; during this period, imports of woven fabric 

declined marginally, while imports of knit fabric, manmade fiber, other fabric, and trim 

all increased. Apart from domestically produced cotton yarn and small amounts of 

cotton/polyester and acrylic yarns, all other inputs used by Zambia’s apparel industry are 

imported. 

 425 For further information, see the section on Mauritius earlier in this chapter. 
4-77 

Apparel 

There are currently fewer than 10 stand-alone apparel assembly firms in Zambia.426 The 

number of apparel assembly firms in Zambia has declined significantly since the 1990s as 

a result of increased competition from lower-cost imported apparel. Zambian domestic 

demand for apparel is mostly met by imported used goods or other non-Zambian 

suppliers.427 Imported used apparel supplies an estimated 60–65 percent of Zambia’s total 

domestic apparel demand.428 Foreign-owned retail stores and mail order services supply 

most of the remaining demand. 429 According to one estimate, Zambian apparel 

manufacturers supply only 10–15 percent of domestic apparel demand, primarily 

producing niche articles such as work wear and uniforms.430 Such niche articles face 

limited competition from imports, do not need to be produced on modern machinery and 

equipment, and are not time sensitive. As a result, such articles can be produced in long 

production runs and do not need to meet high consumer quality standards.431 Zambia’s 

generally obsolete industrial base of spinning and weaving machinery precludes any 

significant production of globally competitive finished apparel articles that meet the 

quality standards generally expected in the United States, the EU, or other comparable 

international markets. 432 Foreign exchange shortages, which arise during cyclical 

downturns in global copper prices, regularly prevent local apparel manufacturers from 

importing fabric. 433

Zambia’s global apparel exports were valued at $582,000 in 2007 (table 4.41). Most of 

Zambia’s exports are niche military, police, and school uniforms; the leading markets 

were the DRC, Malawi, Zimbabwe, Tanzania, and South Africa. Only a small fraction of 

Zambia’s apparel exports were to the U.S. market under AGOA provisions. 434 Two 

Zambian companies have exported to the United States under AGOA: Unity Garments, 

the first Zambian company to export under AGOA, 435 exported hospital scrubs, and 

ZCMT (through its apparel manufacturing plant Golden Ocean, both no longer 

operational) exported shorts and cargo pants made from its own fabric.436 However, there 

were no recorded U.S. imports of textile and apparel articles from Zambia under AGOA 

in 2007.437

 426 Chitah, Zambia Country Report, November 17–21, 2008, 6–7; industry representative, telephone 

interview by Commission staff, February 10, 2009. 427 Zambia also has a small domestic tailoring industry that supplies made-to-order garments. Hansen, 

Salaula: The World of Secondhand Clothing and Zambia, 237–8. 428 Zambia permits unlimited imports of second-hand clothing. Zambia imposes a 25 percent tariff on 

imported new and used apparel imports. Nevertheless, imported used apparel has so little value in the country 

of supply that these articles are imported at little or no cost. Koyi, The Textile and Clothing Industry in 

Zambia; Hansen, Salaula: The World of Secondhand Clothing and Zambia, 238–40. 429 Hansen, Salaula: The World of Secondhand Clothing and Zambia, 237–8. 430 World Bank, Vertical and Regional Integration, July 2007, 60. 431 Koyi, The Textile and Clothing Industry in Zambia; World Bank, Vertical and Regional Integration, 

July 2007, 61. 432 RATES, Cotton Textile Apparel Value Chain Report Zambia, August 2003, 25. 433 For a discussion of the impact of the current downturn in global copper prices on the Zambian 

economy, see “Country Profile: Zambia,” BBC News, November 3, 2008, 

http://news.bbc.co.uk/2/hi/africa/country_profiles/1069294.stm. 434 U.S. Department of State, U.S. Embassy, Lusaka, “Textile and Apparel Sector in Zambia,” 

October 16, 2006. 435 Times of Zambia, “Canadian Market Opens to CB Firms,” 2005. 436 RATES, Cotton Textile Apparel Value Chain Report Zambia, August 2003, 30. 437 USITC, Dataweb, (accessed March 30, 2009). 
4-78 

TABLE 4.41 Zambia: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007 

Exports 97 367 339 92 582 

Imports 8,498 8,893 10,043 8,755 11,636 

Source: World Bank, WITS Database (accessed December 16, 2008). 

Factors Contributing to Competitive Production 

Zambia has a reputation as a producer of high quality cotton with relatively low levels of 

contamination. Thus, the domestic spinning industry has a readily available source of 

high quality raw materials. Zambian yarn is of a quality desired by international 

consumers, as evidenced in its exports to the EU. 

The World Bank ranked Zambia as having one of the most open trade regimes in SSA.438

With respect to tariffs, customs duties are suspended for a period of five years on inputs 

used in the textile and apparel industry, such as greige fabric, machinery, sewing thread, 

sewing machine spare parts, and trim.439 Membership in COMESA and SADC gives 

Zambian exports preferential market access to 25 regional markets. 

Factors Inhibiting Competitive Production 

Relative to some of its regional SSA neighbors, Zambia has a small population. With 

most domestic apparel demand met by imported used goods or other non-Zambian 

sources, there is essentially no domestic market for locally produced apparel fabric.440

Zambian defense and mining ministries reportedly have purchased imported apparel 

instead of sourcing from Zambian firms. 441 Because domestic demand is so small, 

Zambian textile and apparel producers do not benefit from scale economies.442

Insufficient access to affordable credit is a significant problem for Zambian producers.443

Most new investment in manufacturing is from FDI. Local real interest rates are high, and 

local commercial banks are risk averse and not willing to lend because of the poor track 

record of debt repayment prevalent in Zambia.444

Wage rates in Zambia are generally low and most labor is unskilled. However, 

manufacturing sector labor can demand higher wages when copper mining activity 

increases. Workers trained as electricians or engineers by textiles companies tend to 

relocate to the mining sector when copper prices are high and that sector is growing and 

is able to offer relatively higher wages.445 Zambia ranked as one of the lowest SSA 

countries in terms of worker productivity as measured by value added per worker (figure 

3.2.). Worker productivity is well below that in China and India. There is no textile 

training available nationally; companies must conduct all textile-specific training inhouse and at their own expense.446

 438 World Bank, Zambia: Diagnostic Trade Integration Study, October 10, 2005, vii. 439 U.S. Department of State, U.S. Embassy Lusaka, “2008 Investment Climate Statement,” 

January 15, 2008. 440 De Voest and Schultz, “Stimulating Growth of Trade and Investment,” September 2002, 33. 441 De Voest and Schultz, “Stimulating Growth of Trade and Investment,” September 2002, 30. 442 World Bank, Vertical and Regional Integration, July 2007, 59. 443 World Bank, Zambia: Diagnostic Trade Integration Study, October 10, 2005, x. 444 EIU, Country Profile 2008: Zambia, 2008, 17–18. 445 World Bank, Vertical and Regional Integration, July 2007, 60. 446 World Bank, Vertical and Regional Integration, July 2007, 60. 
4-79 

Much of the existing machinery and equipment in Zambia’s textile and apparel sector is 

old.447 According to one source, “[m]ost (95 percent) of the weavers and apparel/garment 

machinery of existing weaving companies are more than fifteen and twenty years old, 

some were even secondhand when originally installed.”448 Excel Textiles has the most 

modern equipment, and its equipment is 10–11 years old. This restrains productivity and 

limits Zambia’s ability to produce high-quality textile and apparel articles that could be 

competitive in the U.S market. 449 Other problems facing the industry include low 

machine utilization rates, high use of imported spare parts (which are both expensive and 

not readily available) due to old machinery, and inadequate cash flow.450

As a landlocked country, access to ports requires going through at least one other 

country, adding to delivery times and freight costs. 451 Zambia’s transportation 

infrastructure ranks below average among the Group 1 countries in terms of quality of 

road and rail infrastructure, but above average among landlocked countries in terms of 

ease of access to port facilities and inland waterways and quality of domestic 

transportation network (table 3.4). Reportedly, good existing rail connections exist to 

Durban, South Africa, and Dar es Salaam, Tanzania, primarily to service Zambia’s 

copper industry, but there is no rail link to the Atlantic via Angola for direct export to the 

U.S. or EU markets.452 However, shipping costs and shipping times were higher for 

landlocked Zambia than for all of the other Group 1 countries (table 3.3). Zambia’s road 

network is in need of additional upgrading and improvements to facilitate freight 

shipments. 453 Zambia Railway is a parastatal characterized by weak management, 

overstaffing, and poor service.454 Sources reported that it takes 8–10 days by road to get 

from Lusaka, Zambia, to the port at Durban, South Africa. This length of transportation 

times requires firms to maintain relatively large inventories in order to guarantee 

production continuity.455

 

Utility costs, especially electricity, are high. Despite Zambia’s hydroelectric power 

generation potential, energy generation has fallen short of rapidly increasing demand in 

recent years, leading to rationing and frequent blackouts.456

 447 De Voest and Schultz, “Stimulating Growth of Trade and Investment,” September 2002, 52. 448 Chitah, Zambia Country Report, November 17–21, 2008. 449 RATES, Cotton Textile Apparel Value Chain Report Zambia, August 2003, 9. 450 RATES, Cotton Textile Apparel Value Chain Report Zambia, August 2003, 28. 451 World Bank, Zambia: Diagnostic Trade Integration Study, 28; World Bank, Vertical and Regional 

Integration, July 2007, 60. 452 World Bank, Zambia: Diagnostic Trade Integration Study, October 10, 2005, 30. 453 EIU, Country Profile 2008: Zambia, 12–13. 454 EIU, Country Profile 2008: Zambia, 2008, 2, 13. 455 World Bank, Zambia: Diagnostic Trade Integration Study, October 10, 2005, 30. 456 EIU, Country Report: Zambia, 2008, 6. 
4-80 

Group 2: Selected Other SSA Exporters of 

Textile and Apparel Inputs 

The countries in Group 2 consist of the next-largest SSA-country exporters of textile and 

apparel inputs after the Group 1 countries. The Group 2 countries are Botswana, Ghana, 

Malawi, Mozambique, Namibia, and Uganda. In 2007, Group 2 countries collectively 

accounted for almost 2 percent of the total value of SSA exports of textile and apparel 

inputs and 4 percent of the total value of SSA apparel exports. 

 

Botswana 

Potential Competitive Products 

Because it is currently successfully producing and exporting toweling, Botswana could 

potentially enhance its competitive position as a toweling supplier to a larger number of 

markets. Botswana’s toweling production is largely for the domestic and regional 

markets, particularly Mauritius. The potential for increasing the competitiveness of 

towels and toweling production, however, is constrained by a lack of skilled labor, low 

labor productivity, unreliable or insufficient energy and water supply, and relatively high 

transportation costs because Botswana is landlocked. Aside from some noteworthy 

investment in the production of toweling by one producer, there is currently very limited 

production of textiles and apparel in Botswana. 

Country Overview 

Botswana is a landlocked country that shares borders with Angola, Namibia, South 

Africa, Zambia, and Zimbabwe. Since its independence in 1966, Botswana has been one 

of the fastest-growing economies in Africa. Botswana is considered a middle-income 

developing country,457 with a GDP of $11.8 billion and a per capita income of $9,818 in 

2007 (table 4.42). Manufacturing value added (including textiles and apparel value 

added) accounted for 3.4 percent of GDP in 2007, and Botswana had a trade surplus of 

$1.1 billion. 

In 2009, Botswana ranked 38th out of 181 countries in terms of ease of doing business 

(table 3.3), and was second only to South Africa among the SSA countries. Compared 

with other African countries, Botswana also has the highest sovereign debt ratings and 

the best Transparency International anticorruption rank. 458 In addition, Botswana’s 

exchange rate is stable.459 However, Botswana was in the bottom half of SSA countries in 

terms of the ease of trading across borders, and the country ranked below the SSA 

average in terms of time and cost to import, and cost to export, due in large part to its 

landlocked location. 

 457 U.S. Department of State, U.S. Embassy, Gaborone, “2008 Botswana Investment Climate 

Statement,” January 16, 2008. 458 OECD and AfDB, “Botswana,” 2008, 153. 459 Ibid., 159, 160. 
4-81 

TABLE 4.42 Botswana: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 11,781

GDP growth (annual %, 2007) 3.8

GDP per capita (current US$, 2007) 9,818

Population (millions, 2007) 1.2

Goods exports (current US$, millions, 2007) 5,117

Goods imports (current US$, millions, 2007) 4,035

Inflation, consumer prices (annual %, 2007) 7.1

Literacy rate, adult total (% of people ages 15 and above, 2003) 81.2

Labor force, total (millions, 2006) 0.7

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 486

Gross capital formation (current US$, millions, 2007) 2,575

Lending rate (% 2007) 16.2

Manufacturing value added (current US$, millions, 2007) 399

Prevalence of HIV, total (% of population 15–49, 2007) 23.9

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. 

The quality of Botswana’s roads and railroad infrastructure, compared with many other 

SSA countries, is good. In terms of roads, only Namibia, South Africa, and Mauritius had 

a higher rating than Botswana; for railroad infrastructure, only Namibia had a higher 

rating, and Botswana had the same rating as South Africa (table 3.4). 

 

Industry Overview 

There is only one large-scale textile company in Botswana—Nortex Textiles.460 Nortex is 

a fully integrated towel company; its factory in Francistown engages in all toweling 

production stages, including spinning yarn; weaving fabric; dyeing, washing, and 

finishing fabric; stitching towels; and packaging. Nortex claims to account for more than 

70 percent of the domestic market, and to export to South Africa, Mauritius, Tanzania, 

Zimbabwe, and the United States. The company reportedly upgrades its state-of-the-art 

production line every five years, and states that its vertical integration protects the 

company from “external shocks to production while maximizing efficiency and quality 

control measures.”461

A 2007 report stated that there are 31 small apparel firms in Botswana; collectively, the 

main output of these firms is T-shirts and denim apparel.462 Only two firms import yarn 

(from Zimbabwe, India, and South Africa) and knit into fabric for use in T-shirts and 

polo shirts. The remaining companies import preknit fabrics, and cut and sew the final 

product.463 Based on export trade data, Botswana appears also to be producing some 

acrylic yarn. 

 460 U.S. Department of State, U.S. Embassy, Gabarone, “Gabarone Information on AGOA Component 

Production Capabilities,” August 16, 2006. 461 Northern Textile Mills, “Company Profile,” undated (accessed January 27, 2008). 462 Allen, et al., The Botswana Textile Cluster, Spring 2007, 17. 463 Ibid., 17–18. 
4-82 

Trade 

Botswana’s exports of textile and apparel inputs were extremely small in 2003, valued at 

$18,000 (table 4.43). In 2007, however, these exports jumped to $1.1 million, mostly due 

to exports to Zimbabwe and Mauritius. In 2007, the preponderance of Botswana’s exports 

to Zimbabwe was acrylic spun yarn, likely intended for hand knitting or other sweater 

production, and to Mauritius, terry toweling. Together, terry toweling and acrylic yarn 

accounted for 75 percent of Botswana’s exports of textile and apparel inputs. Imports of 

trim and knit fabric accounted for the largest shares of Botswana’s imports of textile and 

apparel inputs in 2007 (table 4.44). Botswana’s apparel exports grew steadily, from $14.4 

million in 2003 to $43.1 million in 2007 (table 4.45). The United States is the largest 

export market, accounting for 76 percent of Botswana’s apparel exports in 2007. 

TABLE 4.43 Botswana: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 18 286 208 151 535

EU-27 0 0 2 0 110

Rest of world 0 28 0 102 450

United States 0 0 0 6 1

 Total 18 314 211 259 1,096

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.44 Botswana: Exports and imports of textile and apparel inputs, by product group, 2003–07 

(1,000 $) 

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 10000

 Knit fabric 0 0 0 0 0

 Manmade fibers 0 0 2 0 110

 Other fabric 0 212 133 142 531

 Thread 10265

 Trim 13 62 4 33 30

 Woven fabric 2 38 11 50 13

 Yarn 1 2 58 29 407

 Total 18 314 211 259 1,096

Imports: 

 Carded or combed fibers 0 0 0 92 93

 Knit fabric 696 3,617 4,018 6,225 3,781

 Manmade fibers 55 77 263 19 1

 Other fabric 59 410 421 500 248

 Thread 15 69 109 249 154

 Trim 136 282 718 1,858 4,379

 Woven fabric 2,242 3,013 5,323 7,132 2,966

 Yarn 2,594 3,539 2,729 2,942 2,887

 Total 5,797 11,006 13,581 19,017 14,508

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.45 Botswana: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 14,386 34,871 37,665 36,397 43,109

Imports 11,262 28,461 32,821 28,449 66,081

Source: World Bank, WITS Database (accessed December 16, 2008). 
4-83 

Factors of Competition 

 

Generally, Botswana offers a favorable business environment that should contribute to 

the competitive production of textile and apparel inputs. Botswana has a history of a 

sound legal system, no currency controls, no labor disputes, competitive labor rates, and a 

relatively high level of personal security.464 Botswana is a member of SACU and SADC, 

and enjoys preferential tariff treatment under AGOA. 465 Further, bilateral investment 

treaties with a variety of countries enhance Botswana’s attractiveness as a location for 

FDI. 

With respect to resources important to textile manufacturing, there reportedly are factory 

shells suitable for textile manufacturing available at reasonable rates, and Chinese 

investors plan to build a textile industrial park in Gabarone by 2011, to house over 60 

textile and apparel entities and employ 8,000 workers.466 Additionally, Botswana is close 

to cotton sources in Zambia and Zimbabwe.467 

The labor market in Botswana can be considered a factor inhibiting competitive textile 

and apparel input production. Reportedly, there has been a lack of skilled labor, high 

HIV/AIDS rates, and although labor wages have been characterized as “moderate” or 

“competitive,” labor productivity has been reportedly low.468 There have been few trained 

technicians and supervisors, and no training facilities in place to develop these skill 

sets.469

Perhaps more challenging than labor limitations are resource constraints. According to 

one local manufacturer, Botswana has not had the raw materials base that would permit 

firms to vertically integrate.470 Moreover, without a sizeable apparel sector, there is no 

domestic demand pull for textiles and other inputs. The lack of vertical integration limits 

the profit potential and competitiveness of Botswana firms.471 In addition, historically 

there has been no domestic support for the textile and apparel inputs industry in terms of 

parts and service for manufacturing equipment. Most parts, supplies, and services have 

come from South Africa or even further abroad.472

Infrastructure is another major competitive disadvantage. Industry reportedly experiences 

frequent water shortages due to climate, meaning that fabric dyeing and washing are 

more difficult and therefore not likely to be areas of production that companies would 

enter. Those that have pursued dyeing have reportedly adopted innovative water 

recycling technology. 473 Reportedly, although energy is “moderately priced,” 474 there 

 464 Salm, et al., Botswana Textile and Apparel Sub Sector Study, October 2004, 34. 465 SADC is currently negotiating an EPA with the EU. Government of Botswana, Ministry of Trade 

and Industry, “Botswana Raring or [sic] Trade with EU,” February 20, 2009. 466 Salm, et al., Botswana Textile and Apparel Sub Sector Study, October 2004, 34; Just-style.com, 

“Botswana: China’s Touchroad Investing in Industrial Park,” May 30, 2008; and Fibre2fashion News Desk 

India, “Textile Industrial Park to be Set Up,” April 3, 2009. 467 Salm, et al., Botswana Textile and Apparel Sub Sector Study, October 2004, 34. 468 Ibid., 30, 31. 469 Ibid., 35. 470 Industry officials, interview by Commission staff, Gaborone, Botswana, March 10, 2005. 471 Allen, et al., The Botswana Textile Cluster, Spring 2007, 17–18. 472 Salm, et al., Botswana Textile and Apparel Sub Sector Study, October 2004, 35. 473 Allen, et al., The Botswana Textile Cluster, Spring 2007, 19. 474 Ibid., 21. 
4-84 

have been frequent electricity supply disruptions. 475 The Mmamabula Export Power 

station is expected to reduce Botswana’s dependence on imported power from South 

Africa;476 however, engineering and construction delays have pushed the plant’s initial 

operation date to late 2012 or early 2013.477

As a landlocked country, firms in Botswana incur higher transportation costs and require 

longer lead times. Firms in Botswana have access to only one port—Durban, in South 

Africa.478 Historically, reliance on Durban alone reportedly has resulted in “frequent and 

unpredictable” import and export shipment delays.479 The ability to use Walvis Bay in 

Namibia, which is currently under development,480 could improve the competitiveness of 

Botswana’s textile industry. A 2004 estimate stated that a Walvis Bay port presented a 

potential 30 percent time savings compared with contemporary transit times through 

South Africa.481

Ghana 

Potential Competitive Products 

Ghana has a long tradition of producing woven cotton African print fabrics, and regional 

demand exists for this niche product.482 Nevertheless, Ghana’s textile production has 

contracted substantially over the past few decades. Industry sources attribute at least 

some of the decline in Ghana’s textile manufacturing to intensifying competition from 

allegedly smuggled imports of inexpensive Asian fabrics with pirated African designs, as 

well as the growing preference of Ghanaian youth for Western-style clothing. 483 In 

addition, despite the modest successes in the apparel sector noted below, the apparel 

sector in Ghana has not developed to the point to attract investment in commercial-scale 

production of textile and apparel inputs. 

Country Overview 

Ghana, located in West Africa on the Gulf of Guinea, had a GDP of $15.2 billion, and per 

capita GDP totaled only $649 in 2007 (table 4.46). Despite its coastal location, industry 

sources report that Ghana’s three ports (of which one, Takoradi, is dedicated to textile

 475 Salm, et al., Botswana Textile and Apparel Sub Sector Study, October 2004, 35. The Botswana 

Power Corp. had been importing 70 percent of its power supplies from Eskom in South Africa. In early 2008, 

Botswana began to purchase power from Mozambique as a short-term alternative. Botswana’s investments of 

$1.2 billion to expand the Moruple coal-fired power station (its only power plant) from 130 MW to 600 MW, 

and $6 billion to construct the 3,600 MW Mmamabula combined power station and coal mine, is an effort to 

reduce the country’s reliance on power imports. The Moruple expansion is due to be completed in 2009, and 

Mmamabula is scheduled for completion in 2011. Oxford Analytica, “Southern Africa: Eskom Exports its 

Energy Shortfall,” February 4, 2008. 476 OECD and AfDB, “Botswana,” 2008, 154. 477 Van der Merwe, “Mmamabula Energy Project Delayed by Months,” January 24, 2008. 478 Allen, et al., The Botswana Textile Cluster, Spring 2007, 14. 479 Salm, et al., Botswana Textile and Apparel Sub Sector Study, October 2004, 35. 480 U.S. Department of State, U.S. Embassy, Windhoek, “Namibia’s Infrastructure,” October 3, 2008. 481 Salm, et al., Botswana Textile and Apparel Sub Sector Study, October 2004, 52. 482 World Bank, Snapshot Africa: Ghana, January 2007, 10. Ghanaian fabric producers make mostly 

white fabric, some blue fabric, and wax print fabric. SSA industry representative, interview by Commission 

staff, Las Vegas, NV, February 16, 2009. 483 Fibre2fashion.com, “Ghana: Textile Sector Reels Under Chinese Onslaught,” August 31, 2006;

Fibre2fashion.com, “Ghana: Pirated Designs Ruin Textile Industry,” September 5, 2006; and De Voest and 

Holtzman, “Adding Value to West African Cotton,” December 2006, 85. 
4-85 

TABLE 4.46 Ghana: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 15,246

GDP growth (annual %, 2007) 6.3

GDP per capita (current US$, 2007) 649

Population (millions, 2007) 23.5

Goods exports (current US$, millions, 2007) 4,214

Goods imports (current US$, millions, 2007) 8,043

Inflation, consumer prices (annual %, 2006) 10.9

Literacy rate, adult total (% of people ages 15 and above, 2000) 57.9

Labor force, total (millions, 2006) 10.3

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 435

Gross capital formation (current US$, millions, 2007) 5,012

Lending rate (%) (

b

)

Manufacturing value added (current US$, millions, 2007) 1,250

Prevalence of HIV, total (% of population 15–49, 2007) 1.9

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. bNot available. 

trade) are inefficient,484 and delivery delays of several weeks are considered normal.485

The lack of direct shipping routes to the United States486 also slows transit times. The 

roads between Ghana’s major cities reportedly are good; the condition of other roads, 

however, is poor.487 Ghana’s rail network is in poor condition and used primarily for 

mining exports.488

Industry Overview 

Ghana produces little cotton compared with other SSA countries such as Benin, Burkina 

Faso, and Mali.489 The quality of Ghana’s cotton reportedly falls below par for use in 

apparel exports.490 Ghana has a tradition of weaving high-quality African print cotton 

fabric such as Kente, batik, and Adinkra cloth.491 Its commercial textile sector produces a 

limited number of bedsheets and towels. The brilliant colors and uniquely patterned 

designs of goods such as Kente cloth require significant technical and artistic skill, on 

small, narrow looms,492 and labor-intensive stitching together of narrow cloth pieces. 

Most of Ghana’s textile production is confined to such artisanal fabrics. 

 484 Ghana’s ports reportedly lack sufficient berthing facilities, which increases transport time required 

for offloading goods. SSA industry representative, interview by Commission staff, Accra, Ghana, 

October 20, 2008. 485 SSA industry representative, e-mail message to Commission staff, February 12, 2009. 486 U.S. Department of State, U.S. Embassy, Accra, “USITC Study on Sub-Saharan Africa,” 

October 16, 2008. 487 SSA industry representative, e-mail message to Commission staff, February 12, 2009; U.S. 

Department of State, U.S. Embassy, Accra, “USITC Study on Sub-Saharan Africa,” October 16, 2008. 488 U.S. Department of State, U.S. Embassy, Accra, “USITC Study on Sub-Saharan Africa,” 

October 16, 2008. 489 De Voest and Holtzman, “Adding Value to West African Cotton,” December 2006, 19. 490 Industry consultant, interview by Commission staff, Washington, DC, February 17, 2009. 491 Blauer and Laure, Ghana, 1999, 85. 492 Usually, these small looms cannot be adjusted to produce other types of fabric. 
4-86 

Recent, reliable data on Ghana’s commercial textile production are not readily available. 

Some industry sources noted that employment fell from an all-time high of 25,000 

workers producing 130 million meters per year in the 1970s to an estimated 3,000 

workers weaving about 39 million meters per year in 2008.493 

Only two firms, Akosombo Textiles Limited (ATL) (originally established by Chinese 

investors in the 1960s and 1970s494) and Dutch-owned Vilsco are believed to produce 

textiles on a commercial scale at this time.495 ATL is the only remaining cotton spinner in 

Ghana, producing greige cotton fabric and cotton yarn on shuttle looms that date to the 

1960s and 1970s.496 Like other West African nations, most of Ghana’s limited yarn and 

fabric production is consumed domestically. 497 Ghana’s key competitors in textile 

spinning, weaving, and printing include Nigeria, Côte d’Ivoire, India, Pakistan, and 

China.498

 

Ghana’s apparel industry emerged more recently than its textile industry, and has been 

receiving government recognition and support. A special program for apparel, the 

Presidential Special Initiative, was launched in recent years to provide loan guarantees 

for equipment, training, and factory sites in the free trade zones.499 Also, the USAID 

West Africa Trade Hub provides assistance that includes industry training and 

information on AGOA, pre-export financing, business leads, and marketing assistance for 

apparel producers wishing to participate in annual apparel trade shows.500

Ghana’s apparel industry reportedly has about 11 firms producing for domestic, regional, 

and U.S. consumption. Most inputs, including fabric, buttons, zippers, and other trim, are 

sourced from China.501 Reliance on imported textile and apparel inputs (particularly for 

manmade-fiber fabrics because no Ghanaian producers spin synthetic or mixed 

cotton/synthetic yarn)502 increases Ghana’s apparel delivery times503 and the potential for 

delivery disruption,504 thus hampering its competitiveness in a global economy where 

speed to market and the ability to respond quickly to fashion changes are increasingly 

important.505 

 

In the past several years, a few Ghanaian apparel firms have successfully exported 

apparel (primarily medical and military uniforms and polo shirts, and some trousers)506 to 

 493 AllAfrica.com, “Ghana: Secondhand Clothes Collapsing Textile Industry,” March 11, 2004. 494 De Voest and Holtzman, “Adding Value to West African Cotton,” December 2006, 19. 495 Industry consultant, interview by Commission staff, Washington, DC, February 17, 2009, 496 De Voest and Holtzman, “Adding Value to West African Cotton,” December 2006, 19. 497 USITC, Hearing transcript, January 29, 2009, 63 (testimony of Anthony Carroll, Manchester 

Trade Ltd.). 498 U.S. Department of State, U.S. Embassy, Accra, “Ghana: Information on Textiles and Apparel 

Production,” October 2, 2007. 499 USAID, West Africa Trade Hub, “Outfitting for Export Success in Ghana,” undated (accessed 

January 28, 2009). 500 Ibid.; Abt Associates, Inc., “West African Apparel,” February/March 2005. 501 U.S. Department of State, U.S. Embassy, Accra, “Ghana: Information on Textiles and Apparel 

Production,” October 2, 2007; De Voest and Holtzman, “Adding Value to West African Cotton,” December 

2006, 23. 502 De Voest and Holtzman, “Adding Value to West African Cotton,” December 2006, 19. 503 Quin, “Wanted: Textile Factories in West Africa,” undated (accessed December 18, 2008). 504 U.S. Department of State, U.S. Embassy, Accra, “Ghana: Information on Textiles and Apparel 

Production,” October 2, 2007. 505 West Africa has no textile producers that provide the fabric that global apparel producers need. 

Brenton, “Clothing and Export Diversification,” February 19, 2009. 506 Industry consultant, telephone interview by Commission staff, February 13, 2009; USAID, Source 

Africa, undated; and Japan International Cooperation Agency, “Focus on Ghana,” March 2008. 
4-87 

the United States, which likely is related to preferential treatment under AGOA.507 One 

firm, Global Garments, reportedly employs 250 workers and imports fabric and trim to 

produce uniforms for export to the United States.508 However, apparel exporting success 

stories seem limited to a handful of Ghanaian companies. The ability of Ghana’s apparel 

industry to significantly increase its production to encourage new investment in the 

textile sector appears limited. 

Trade 

Ghana’s exports of textile and apparel inputs fluctuated during the 2003–07 period, 

declining overall from $4.7 million in 2003 to $2.8 million in 2007 (table 4.47). Most of 

these exports (80 percent in 2007) went to Ghana’s SSA neighbors and consisted largely 

of woven fabric throughout the period (table 4.48). During the 2003–07 period, Ghana’s 

imports of textile inputs more than doubled, from $111.1 million to $265.0 million. 

Because Ghana’s textile input production is limited to cotton fabric, industry sources 

report that Ghana’s textile sector imports primarily fabrics of synthetic blends from Asia 

for use in apparel production.509

Ghana’s imports of apparel were consistently higher than its exports during the 2003–07 

period (table 4.49). Ghana’s imports of apparel were valued at $74.4 million in 2007, 

compared with Ghana’s exports of apparel, which were valued at $9.3 million. 

Factors of Competition 

Ghana’s textile and apparel input sector faces numerous challenges to improving its 

competitiveness, including a lack of capital to upgrade aging, obsolete textile machinery; 

high interest rates for trade financing; rationed electricity; rising energy costs and wages; 

and limited existing commercial-scale textile production. 510 In addition, issues with 

transportation infrastructure and logistics affect the movement of goods in both the textile 

and apparel inputs and the apparel sectors. 

 507 “AGOA clearly has driven the emergence of apparel exporters in SSA that target the U.S. market. 

Many Asian investors have come to countries such as Lesotho, Botswana, and Ghana to set up stitch-and-sew 

operations, bringing in equipment (for cutting, sewing, and embroidering).” De Voest and Holtzman, 

“Adding Value to West African Cotton,” December 2006, 1. 508 Japan International Cooperation Agency, “Focus on Ghana: Cheaper Than China,” March 2008. 509 Quin, “Wanted: Textile Factories in West Africa,” undated (accessed December 18, 2008). 510 U.S. Department of State, U.S. Embassy, Accra, “Ghana: Information on Textiles and Apparel 

Production,” October 2, 2007. Industry representatives report electricity is expensive now and no longer 

subsidized. SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 

Ghanaian textile workers earn about $220 per month plus benefits. De Voest and Holtzman, “Adding Value 

to West African Cotton,” December 2006, 25. 
4-88 

TABLE 4.47 Ghana: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 4,163 5,326 4,308 1,163 2,243

EU-27 461 448 102 76 31

Rest of world 17 585 147 209 475

United States 44 23 45 28 62

 Total 4,686 6,381 4,602 1,477 2,812

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.48 Ghana: Exports and imports of textile and apparel inputs, by product group, 2003–07 (1,000 $)

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 51100

 Knit fabric 12 20 2 2 1

 Manmade fibers 0 5 34 0 2

 Other fabric 7 52 11 24 220

 Thread 8 12 14 23 33

 Trim 23 153 36 15 23

 Woven fabric 4,621 6,028 4,457 1,349 2,498

 Yarn 9 110 46 65 35

 Total 4,686 6,381 4,602 1,477 2,812

Imports: 

 Carded or combed fibers 15 0 108 3 226

 Knit fabric 1,659 3,102 2,498 4,102 3,496

 Manmade fibers 708 1,853 2,720 4,006 4,400

 Other fabric 3,870 3,824 4,549 5,341 9,718

 Thread 1,740 1,740 3,490 5,584 9,843

 Trim 3,126 5,475 8,370 9,365 11,600

 Woven fabric 96,728 131,369 144,651 181,269 211,231

 Yarn 3,226 5,380 5,132 8,586 14,481

 Total 111,074 152,742 171,519 218,256 264,995

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.49 Ghana: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 5,271 8,732 7,921 10,822 9,341

Imports 24,841 31,308 30,304 35,797 74,372

Source: World Bank, WITS Database (accessed December 16, 2008). 

Malawi 

Potential Competitive Products 

Malawi lacks a textile sector that produces export-quality textile and apparel inputs. 

Malawi’s sole textile producer supplies the local market. Poor infrastructure and high 

transport and capital costs inhibit the development of an industry producing textile and 

apparel inputs. 

Country Overview 

Malawi is a landlocked country in East Africa, with a GDP of $3.6 billion in 2007 (table 

4.50). Its per capita GDP of $256 makes it one of the world’s poorest countries. With its 

high incidence of HIV/AIDS, Malawi has one of the lowest life expectancies (46.3 years 
4-89 

TABLE 4.50 Malawi: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 3,552

GDP growth (annual %, 2007) 7.4

GDP per capita (current US$, 2007) 256

Population (millions, 2007) 13.9

Goods exports (current US$, millions, 2007) 710

Goods imports (current US$, millions, 2007) 1,450

Inflation, consumer prices (annual %, 2007) 8.0

Literacy rate, adult total (% of people ages 15 and above, 2005) (b)

Labor force, total (millions, 2006) 6.3

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 30

Gross capital formation (current US$, millions, 2007) 1,012

Lending rate (% 2007) 27.7

Manufacturing value added (current US$, millions, 2007) 442

Prevalence of HIV, total (% of population 15–49, 2007) 11.9

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. bNot available. 

in 2005), which reduces its skilled labor base.511 Malawi’s economy is dependent on 

agriculture, which accounts for over 90 percent of its export earnings and 35–40 percent 

of its GDP.512 Manufacturing value added (including textile and apparel value added) 

accounted for 12 percent of the Malawi’s GDP in 2007. Employment in the 

manufacturing sector totaled 58,190 in 2006, with 10 percent of these workers employed 

by the textile and apparel industry.513

Historically, goods from Malawi were mostly exported via Nacala and Beira ports in 

Mozambique. 514 However, the civil war in Mozambique during the 1980s and early 

1990s disrupted these routes, and goods entering and leaving Malawi were rerouted to 

ports in South Africa and Tanzania, which added extra time and cost. Although the routes 

to the ports in Mozambique have been reopened, the volume of goods transported on 

those roads reportedly has not reached previous levels because reconstruction of those 

routes has not been completed.515 In 2009, it took 45 days to export goods from Malawi 

and 54 days to import goods to Malawi; this compares with 39 days to export and 37 days 

to import for Uganda, another landlocked country in East Africa (table 3.3). Malawi 

ranked 134th out of 181 economies in terms of ease of doing business indicators. 

 511 EIU, Country Profile 2008: Malawi, 2008, 13. 512 Ibid., 17. 513 U.S. Department of State, U.S. Embassy, Lilongwe, “Textiles and Apparel Production,” 

September 26, 2007. 514 EIU, Country Profile 2008: Malawi, 2008, 14. 515 EIU, Country Profile 2008: Malawi, 2008, 14. 
4-90 

Industry Overview516

Malawi’s textile and apparel industry is small and underdeveloped. Textile and apparel 

production in Malawi totaled $48.1 million in 2006, up from $37.0 million in 2005. A 

large part of this production consisted of apparel that was exported mostly to the United 

States and, to a lesser extent, South Africa. Employment in the textile and apparel 

industry in Malawi totaled 6,075 workers in 2006, with 80 percent of these workers 

employed by the exporting apparel producers. Malawi’s workforce has a reputation of 

being reliable, honest, and hardworking. 

 

Many textile and apparel firms are foreign owned, especially by Chinese firms, which set 

up operations in Malawi to take advantage of AGOA trade preferences. There is one 

textile factory, Mapeto (David Whitehead & Sons, Ltd.), which produces low-quality 

fabric for the small-scale apparel producers that supply the domestic market. There are 

five apparel producers that export to the United States and South Africa, and numerous 

small-scale producers that sell to the domestic market. One apparel company was 

reportedly considering a partnership with an Indian firm to establish an integrated cottontextile production operation. For the most part, the apparel producers that export use 

third-country fabric. 

 

Trade 

Malawi’s exports of textile and apparel inputs were small during the 2003–07 period, 

increasing from $130,000 in 2003 to $252,000 in 2007 (table 4.51). Most of these exports 

consisted of cotton woven fabric (table 4.52). Malawi’s imports of textile and apparel 

inputs were much larger than its exports of these products. Imports fluctuated during the 

period, and totaled $26.0 million in 2007. These imports consisted mostly of woven 

fabric and some knit fabric, and were likely imported by Malawi’s apparel companies 

producing for export. 

Malawi was the eighth-largest apparel exporter of the SSA countries in 2007, although its 

exports accounted for 1 percent of total SSA countries’ exports that year. During the 

2003–07 period, Malawi’s exports of apparel peaked at $48.5 million in 2005 before 

declining in 2007 to the lowest level during the period ($37.5 million) (table 4.53). 

Malawi’s apparel exports to the United States consist of a variety of apparel, including 

men’s and boys’ athletic wear, children’s wear, and uniforms. 

Factors of Competition 

In 2007, Malawi’s apparel companies claimed that improving the country’s business 

environment would help improve their competitiveness in the global market. The 

companies pointed to high transport costs, high capital costs, the unreliability and high 

cost of utilities, inadequate infrastructure, and an underdeveloped textile industry as the 

reasons behind their uncompetitiveness. Companies particularly cited the lack of progress 

by both the public and private sectors in improving the reliability of the railway between 

Malawi and Nacala, the closest and preferred port in Mozambique. Malawi’s poor 

infrastructure may be the largest obstacle to improving competitiveness.517

 516 Unless otherwise noted, the remaining sections on Malawi were sourced from U.S. Department of 

State, U.S. Embassy, Lilongwe, “Textiles and Apparel Production,” September 26, 2007. 517 EIU, Country Report: Malawi, 2008, 10. 
4-91 

TABLE 4.51 Malawi: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 51 100 84 46 235

EU-27 61 50 37 1 0

Rest of world 18 99 43 39 17

United States 0 0 0 0 0

 Total 130 249 165 86 252

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.52 Malawi: Exports and imports of textile and apparel inputs, by product group, 2003–07 (1,000 $)

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 0 0 0 24 0

 Knit fabric 0 13 0 3 0

 Manmade fibers 0 0 0 0 0

 Other fabric 0 0 0 0 20

 Thread 1 7 2 0 1

 Trim 1 65 0 9 0

 Woven fabric 126 153 92 49 231

 Yarn 3 10 71 1 0

 Total 130 249 165 86 252

Imports: 

 Carded or combed fibers 465 24 28 13 13

 Knit fabric 605 3,583 3,776 3,836 5,077

 Manmade fibers 45 152 12 245 403

 Other fabric 805 369 467 371 575

 Thread 321 222 356 252 487

 Trim 323 1,048 1,115 905 737

 Woven fabric 16,978 23,020 11,510 20,625 16,680

 Yarn 803 10,080 1,611 1,808 2,058

 Total 20,344 38,497 18,874 28,054 26,029

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.53 Malawi: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 42,200 48,209 48,492 40,444 37,455

Imports 4,215 5,238 3,944 4,391 8,073

Source: World Bank, WITS Database (accessed December 16, 2008). 

Although cotton has traditionally been an important cash crop in Malawi, cotton 

production has encountered numerous problems. Both production levels and quality 

dropped considerably in the past 20 years.518 Poor production practices, use of lowquality seed varieties, declining soil fertility, and frequent droughts have reduced cotton 

quality in Malawi.519

 518 RATES, Cotton-Textile-Apparel Value Chain Report Malawi, July 2003, 9. 519 Government of Malawi, Ministry of Agriculture and Food Security, “Cotton Production in Malawi,” 

September 11–15, 2006, 3. 
4-92 

Mozambique 

Potential Competitive Products 

There is currently no commercial production of textiles and very limited production of 

apparel in Mozambique, although there has been some recent new investment in the 

textile and apparel industries. While the long-staple cotton grown in the country and 

access to the South African and other regional markets are potential advantages to textile 

producers, there are a number of constraints to investment in the sector, including 

inadequate transportation infrastructure, unfavorable business environment, and lack of 

skilled labor. 

Country Overview 

Located on the southeastern coast of Africa, Mozambique borders South Africa, 

Swaziland, Zimbabwe, Malawi, Zambia, and Tanzania. It had a GDP of $7.8 billion and a 

per capita GDP of $362 in 2007 (table 4.54). A stable government and macroeconomic 

environment have contributed to recent high growth rates, with real GDP growth 

exceeding 7 percent per year during the 2004–07 period.520 As a member of SADC, 

Mozambique benefits from preferential access to other member markets, including South 

Africa. Mozambique also qualifies for preferential access to the U.S. market under 

AGOA, and also to the EU market under an interim EPA. Mozambique’s three major 

ports are at Maputo, Beira, and Nacala. Rail and road transportation provide shipping 

access to neighboring landlocked countries and northern South Africa.521

Industry Overview 

There is currently no commercial textile production and only one commercial apparel 

producer in Mozambique.522 South African-owned Maputo Clothing began operation in 

2003 and employs 400 workers producing uniforms for export to South Africa, the 

United States, and the EU.523 This is a significant decline from the 19 textile and 26 

apparel factories that operated in the 1990s.524 After Mozambique’s 16-year civil war 

ended in 1994, investment in the textile industry was hindered by shortages in working 

capital and spare parts, restrictive labor laws, and poor local management.525 Poverty and 

competition from imports of used clothing limited domestic demand for locally produced 

textiles and apparel. In 2006, the installed capacity for spinning was 50,000 short-staple 

spindles, and for cotton weaving, 2,500 shuttle looms.526 Most equipment is more than 10 

years old.527

 520 EIU, Country Report: Mozambique, 2009, 5. 521 EIU, Country Report: Mozambique, 2008, 20–21. 522 U.S. Department of State, U.S. Embassy, Maputo, “USITC Study On Sub-Saharan Africa,” 

October 10, 2008. 523 U.S. Department of State, U.S. Embassy, Maputo, “USITC Study On Sub-Saharan Africa,” 

October 10, 2008; Nathan Associates, Developing A Cotton Textile And Apparel Value Chain, 

January 2007, 8. 524 U.S. Department of State, “Textile and Apparel Production Capabilities,” August 2006. 525 Nathan Associates, Strategies for Mozambique’s Textile and Apparel Sector, March 2005, 2-3. 526 ITMF, International Textile Machinery Shipment Statistics, 2007, 11, 28. 527 Nathan Associates, Developing A Cotton Textile And Apparel Value Chain, January 2007, 8. 
4-93 

TABLE 4.54 Mozambique: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 7,752

GDP growth (annual %, 2007) 7.0

GDP per capita (current US$, 2007) 362

Population (millions, 2007) 21.4

Goods exports (current US$, millions, 2007) 2,700

Goods imports (current US$, millions, 2007) 3,300

Inflation, consumer prices (annual %, 2007) 8.2

Literacy rate, adult total (% of people ages 15 and above) (b)

Labor force, total (millions, 2006) 9.8

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 154

Gross capital formation (current US$, millions, 2007) 1,852

Lending rate (% 2007) 19.5

Manufacturing value added (current US$, millions, 2007) 1,109

Prevalence of HIV, total (% of population 15–49, 2007) 12.5

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. bNot available. 

Mozambique recently announced that it will offer tax incentives for investors in the 

textile and apparel industry in the form of exemption from corporate taxes for the first 10 

years, followed by a 50 percent reduction for the next five years.528 Also, firms that add at 

least 20 percent value are eligible to import raw materials duty free. 

Two textile factories reportedly will reopen this year.529 One of the factories is Texlom, 

located in the southern city of Matola, which produced printed cloth until closing in 1997. 

The Aga Khan Foundation plans to reopen the factory, initially to produce apparel for 

export to the EU, with future plans to integrate upstream to cotton (including fabric and 

yarn). The other factory is Texmoque, which is located in the northern city of Nampula 

and which closed in 1994. It was purchased by METL (Mohammed Enterprises Tanzania 

Ltd.), which is reportedly installing new equipment to produce printed fabric for domestic 

consumption and for export to Tanzania.530

Trade 

Exports of textile and apparel inputs were valued at $1.8 million in 2007, up from 

$232,000 in 2003 (table 4.55). The main export products were carded or combed cotton 

fibers (to South Africa) and cotton yarn (to the EU, South Africa, and Tanzania) (table 

4.56). The largest market is South Africa, although Mozambique also exported to the EU 

and to other SSA countries, including Tanzania, Zambia, and Mauritius. Mozambique 

imports nearly all of its textile and apparel inputs; imports totaled $33.3 million in 2007. 

 528 Agencia de Informacao de Mocambique, “Mozambique: Tax Breaks for Textile Investors,” 

February 6, 2009. 529 Agencia de Informacao de Mocambique, “Mozambique: Textile Factories May Reopen,” 

September 4, 2008; Agencia de Informacao de Mocambique, “Mozambique: Texlom to Reopen this Year,” 

February 5, 2009; and MacauHub, “Mozambique: Former Textile Factory Texlom Due to Reopen in First 

Half,” February 5, 2009. 530 Agencia de Informacao de Mocambique, “Mozambique: Tax Breaks for Textile Investors,” 

February 6, 2009. 
4-94 

TABLE 4.55 Mozambique: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 156 5 213 312 1,581

EU-27 61 33 167 111 170

Rest of world 3 72 16 3 2

United States 12 2 0 0 0

 Total 232 112 396 425 1,754

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.56 Mozambique: Exports and imports of textile and apparel inputs, by product group, 2003–07 

(1,000 $) 

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 0 2 196 284 635

 Knit fabric 34 48 0 0 0

 Manmade fibers 0 21 0 6 0

 Other fabric 0 3 0 3 7

 Thread 10000

 Trim 17 1 0 9 20

 Woven fabric 107 3 45 14 245

 Yarn 73 32 154 109 847

 Total 232 112 396 425 1,754

Imports: 

 Carded or combed fibers 6 2 26 45 19

 Knit fabric 986 2,518 1,356 530 374

 Manmade fibers 1,133 1,132 1,282 1,785 2,720

 Other fabric 1,087 1,503 1,309 1,011 1,677

 Thread 90 155 299 302 215

 Trim 522 942 1,021 842 1,165

 Woven fabric 21,671 27,195 33,706 32,219 25,583

 Yarn 841 1,406 1,266 1,249 1,576

 Total 26,336 34,853 40,265 37,982 33,328

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.57 Mozambique: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 4,262 4,589 5,418 3,007 960

Imports 12,149 14,900 13,080 16,104 20,335

Source: World Bank, WITS Database (accessed December 16, 2008). 

Imports were primarily woven cotton and manmade fabric from Asian countries and, to a 

lesser extent, from regional suppliers, particularly South Africa and Tanzania. Exports of 

apparel fluctuated between $3.0 and $5.4 million during the 2003–06 period, but fell to 

less than $1.0 million in 2007 (table 4.57). Imports of apparel totaled $20.3 million in 

2007. 

Factors of Competition 

Mozambique has access to locally grown raw materials. Long-staple cotton is produced 

in the northern part of the country and, in marketing year 2006, Mozambique recorded its 

largest cotton harvest (122,000 tons) in 30 years.531 There are 17 ginneries in operation 

 531 OECD and AfDB, “Mozambique,” 2008, 462. Production declined in 2007 due to drought. 
4-95 

with a capacity of 200,000 tons, and there has been ongoing investment in ginning 

machinery.532 The long-staple fiber can be used to produce a wide variety of products, 

including denim jeans, T-shirts, sweaters, knit and woven shirts, and higher-end 

bedsheets and towels.533 However, since there is currently no spinning industry, all cotton 

lint is exported. Moreover, the best infrastructure and shipping routes in the country are 

in the south; transport links between Maputo (in the south) and northern areas of 

Mozambique are not well developed,534 and shipping costs from the cotton-growing areas 

in the north can be prohibitively high.535

 

Mozambique ranked 141st out of 181 economies in ease of doing business in 2009 

(table 3.3). Access to finance is a major constraint to investment. 536 Although 

infrastructure is improving, quality varies greatly throughout the country. With respect to 

transportation infrastructure, the quality of road, railroad, and port infrastructure rated 

among the lowest of SSA textile and apparel exporters (table 3.4). There can be shipping 

delays from the port of Durban to Maputo since ships only load cargo for Maputo if there 

is sufficient volume; however, in 2007, reports indicated that the port of Maputo was 

being expanded.537 Air freight rates from Maputo are very expensive, although there has 

been recent investment in airports.538 Electricity costs are generally low, but supplies are 

inconsistent and outages are frequent, particularly in the north. The electricity grid and 

generation capacity are being expanded.539

Namibia 

Potential Competitive Products 

Since Malaysian textile and apparel company Ramatex closed all of its factories in 

Namibia in 2008, there is no production of textile and apparel inputs suitable for export 

beyond the region. 

Country Overview 

Namibia borders the Atlantic Ocean to the west, Botswana to the east, and is located just 

north of South Africa. It is territorially one of the larger SSA countries, with one of the 

smallest populations.540 It had a GDP of $6.7 billion and a population of 2.1 million in 

2007 (table 4.58). With significant deposits of gem-quality diamonds, uranium, copper, 

zinc, lead, and gold, mining accounts for approximately 60 percent of Namibia’s exports,

 532 Nathan Associates, Developing A Cotton Textile And Apparel Value Chain, January 2007, 7. 533 Ibid. 534 EIU, Country Profile 2008: Mozambique, 2008, 20. 535 Nathan Associates, Developing A Cotton Textile And Apparel Value Chain, January 2007, 20. 

Ocean shipping from the northern part of the country to the south can be as expensive as shipping from Asia 

to South Africa. 536 Fifty percent of firms surveyed identified access/cost of finance as a major constraint. World Bank, 

IBRD, Enterprise Analysis Unit, Enterprise Surveys: Mozambique, 2007, 13. 537 Nathan Associates, Developing A Cotton Textile And Apparel Value Chain, January 2007, 16; 

Games, “Mozambique: The Business View,” November 2007, 16–17. 538 Ibid., 23; Nathan Associates, Developing A Cotton Textile And Apparel Value Chain, 

January 2007, 8. 539 EIU, Country Profile 2008: Mozambique, 2008, 26. 540 EIU, Country Report: Namibia, 2008, 3. 
4-96 

TABLE 4.58 Namibia: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 6,740

GDP growth (annual %, 2007) 5.9

GDP per capita (current US$, 2007) 3,210

Population (millions, 2007) 2.1

Goods exports (current US$, millions, 2007) 2,919

Goods imports (current US$, millions, 2007) 3,420

Inflation, consumer prices (annual %, 2007) 6.7

Literacy rate, adult total (% of people ages 15 and above, 2001) 85.0

Labor force, total (millions, 2006) 0.7

Foreign direct investment, net inflows (BoP, current US$, millions) (b)

Gross capital formation (current US$, millions, 2007) 2,026

Lending rate (% 2007) 12.9

Manufacturing value added (current US$, millions, 2007) 699

Prevalence of HIV, total (% of population 15–49, 2007) 15.3

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. bNot available. 

 

but employs only a small part of the population.541 Manufacturing value added (including 

textile and apparel value added) accounted for 10.4 percent of the GDP. Namibia’s labor 

force totaled 700,000 in 2007.542

Namibia has two ports, Luderitz and Walvis Bay. The Namibian government is trying to 

develop the port of Walvis Bay, with hopes of making it a major port for Namibia’s 

neighbors.543 In all, Namibia’s infrastructure is fairly well developed relative to other 

SSA countries. 

Industry Overview 

Namibia currently produces only a limited amount of textiles and apparel, mostly for 

internal consumption. The government of Namibia strongly encouraged foreign 

investment in textile and apparel production in its EPZ by offering special tax incentives 

and by relaxing the regulations in Namibia’s Labour Act of 1992 for foreign companies 

investing there.544

Apparel production for export out of Africa did not exist in Namibia until Ramatex, a 

Malaysian company, set up vertically integrated apparel production in 2001. 545 The 

government of Namibia’s goal was for Ramatex and eventually other apparel 

manufacturers to produce apparel for export to the United States under AGOA. 546

Ramatex produced yarn and fabric for internal consumption. In 2005, Ramatex reportedly 

employed 5,000 Namibians and 3,000 Asian workers (many from Bangladesh) to 

 541 Ibid. 542 Ibid., 24. 543 U.S. Department of State, U.S. Embassy, Windhoek, “Namibia’s Infrastructure,” October 3, 2008. 544 Seen, “Ramatex Textiles,” undated (accessed October 17, 2008), 1; Jauch, “Africa’s Clothing and 

Textile Industry,” 2006, 216. 545 USITC, Export Opportunities and Barriers, 2005, 6-27. 546 Jauch, “Africa’s Clothing and Textile Industry,” 2006, 218. 
4-97 

produce apparel for export to the United States.547 However, as a result of labor and 

environmental problems, Ramatex’s production declined and, by 2008, Ramatex closed 

all of its textile and apparel factories.548 A second apparel producer, Rhino Garments, 

backed with investment from Taiwan, also produced apparel for export beginning in 

2002.549 However, in spring 2005, Rhino Garments ceased production in Namibia.550

 

Trade 

Namibia’s exports of textile and apparel inputs rose from $113,000 in 2003 to $1.6 

million in 2007 (table 4.59). The majority of these exports consisted of yarn, valued at 

almost $1.4 million in 2007 (table 4.60), and were sent to Malaysia, where Ramatex is 

headquartered. Namibia’s imports of textile and apparel inputs were considerably higher 

than exports, although imports declined steadily during the 2003–07 period, from $25.1 

million to $8.3 million. In 2007, most imports of textile and apparel inputs consisted of 

knit fabric and, to a lesser extent, woven fabric. Namibia’s imports of apparel totaled 

only $3.6 million in 2007. Namibia’s exports of apparel fluctuated during the 2003–07 

period, peaking in 2004 at $83.4 million before declining to $31.5 million in 2007 

(table 4.61). 

Factors of Competition 

A major impediment to the competitiveness of production of textile inputs in Namibia is 

the country’s desert geography. Textile dyeing and finishing processes require a large 

water supply, and reportedly, this is one reason Ramatex was unable to successfully 

develop vertically integrated apparel manufacturing in Namibia.551 Current textile and 

apparel production in Namibia is small and focused on locally produced fabric and 

apparel for sale in the local market. 

 547 Seen, “Ramatex Textiles,” undated (accessed October 17, 2008), 2. 548 EIU, Country Report: Namibia, 2008, 23. 549 USITC, Export Opportunities and Barriers, 2005, 6-27. 550 Dentlinger, “Namibia and the Textile Industry,” April 22, 2005; Just-style.com, “Malaysia Textile 

Giant Ramatex Set to Quit?” May 16, 2006. 551 Seen, “Ramatex Textiles,” undated (accessed October 17, 2008), 3. In addition, there were concerns 

about Ramatex’s fabric-dyeing processes polluting some of Namibia’s water supply. 
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TABLE 4.59 Namibia: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 35 3 15 1 39

EU-27 48 575 215 81 68

Rest of world 29 299 460 3,666 1,441

United States 0 175 2 119 1

 Total 113 1,052 691 3,868 1,550

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.60 Namibia: Exports and imports of textile and apparel inputs, by product group, 2003–07 

(1,000 $) 

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 0 93 174 222 67

 Knit fabric 0 0 93 35 4

 Manmade fibers (a) 0 0 426 (a)

 Other fabric 0 0 151 22 24

 Thread 00000

 Trim 12 29 28 0 27

 Woven fabric 83 50 72 10 69

 Yarn 18 880 174 3,153 1,358

 Total 113 1,052 691 3,868 1,550

Imports: 

 Carded or combed fibers 0 0 16 180 456

 Knit fabric 11,615 16,221 5,919 5,656 4,494

 Manmade fibers 10 162 43 98 62

 Other fabric 78 20 62 76 189

 Thread 114 67 19 60 18

 Trim 2,628 464 333 453 875

 Woven fabric 1,989 2,966 2,279 2,002 2,042

 Yarn 8,623 6,687 1,225 245 174

 Total 25,057 26,587 9,896 8,770 8,311

Source: World Bank, WITS Database (accessed December 3, 2008). 

 aNot available. 

TABLE 4.61 Namibia: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 45,089 83,366 56,569 35,505 31,452

Imports 3,525 4,263 3,099 2,952 3,573

Source: World Bank, WITS Database (accessed December 16, 2008). 

Uganda 

Potential Competitive Products 

Although Ugandan producers face high transportation costs and lengthy delivery times, 

the textile and apparel industry is competitive in the niche market for apparel made of 

organic cotton. Phenix Logistics, Ltd. successfully produces and exports to the United 

States apparel of locally spun yarn made from locally grown organic cotton.552

 552 CottonAfrica.com, “Uganda: President Flags Off Phenix,” undated (accessed February 25, 2009); 

SSA industry representatives, interviews by Commission staff, Las Vegas, NV, February 16, 2009. 
4-99 

Country Overview 

Uganda is a landlocked country located in East Africa. Kenya and Tanzania, Uganda’s 

largest neighbors to the east, have port facilities—Mombasa in Kenya and Dar es Salaam 

in Tanzania. Uganda had a GDP of $11.2 billion, with a per capita GDP of $363, in 2007 

(table 4.62). Reportedly, the entire textile-apparel value chain (from growing cotton to 

apparel production) employs 2.5 million people.553 Manufacturing value added (including 

textiles and apparel value added) accounted for 8 percent of GDP in 2007 (table 4.62). 

TABLE 4.62 Uganda: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 11,214

GDP growth (annual %, 2007) 6.5

GDP per capita (current US$, 2007) 363

Population (millions, 2007) 30.9

Goods exports (current US$, millions, 2007) 1,623

Goods imports (current US$, millions, 2007) 3,466

Inflation, consumer prices (annual %, 2007) 6.1

Literacy rate, adult total (% of people ages 15 and above, 2002) 66.8

Labor force, total (millions, 2006) 12.6

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 392

Gross capital formation (current US$, millions, 2007) 2,743

Lending rate (%, 2007) 19.1

Manufacturing value added (current US$, millions, 2007) 910

Prevalence of HIV, total (% of population 15–49, 2007) 5.4

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. 

Industry Overview 

Uganda’s textile and apparel industry consists of producers that sell to the local and 

regional markets, and one producer that currently exports apparel to the United States. 

Most of Uganda’s textile sector sells to the local market and tends to produce small runs 

of fabric for local production; none are major exporters. 554 Uganda’s apparel sector 

largely consists of small, locally owned companies that produce apparel and uniforms for 

domestic and regional markets. Most of these apparel producers use domestically 

produced yarn or fabric, or they import from Asia.555

 

Currently, there are two major vertically integrated apparel producers.556 One of these 

firms, Southern Range Nyanza Limited (SRN Ltd.), produces only for the local or 

regional markets.557 SRN Ltd. performs spinning, weaving, dyeing and finishing, and 

produces garments. It produces 100 percent cotton, polyester/cotton-blended, and 100 

percent polyester fabric, mostly for internal consumption. SRN Ltd. uses its yarn and 

fabrics in the production of bedsheets, dress materials, local Kitenge prints, shorts, 

 553 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 554 World Bank, Snapshot Africa: Uganda, January 2007, 10. 555 Ibid., 14. 556 Fibre2fashion.com, “Cheap Chinese Importers Impede Growth,” July 9, 2008. 557 University of Georgia, “Southern Range Nyanza,” undated (accessed February 25, 2009), 3–4. 
4-100 

blouses, skirts, shirts, and uniforms such as school, security, and army uniforms.558 The 

company recently invested in new machinery, thereby increasing its capacity to produce 

garments and a variety of printed and dyed fabrics.559

The other vertically integrated apparel producer in Uganda—Phenix Logistics Uganda 

Ltd.— successfully exports T-shirts produced of local organic cotton to the United States; 

it also supplies the local market. Another relatively large producer—LAP Textiles, 

formerly Tri-Star—exported to the U.S. market.560 LAP produces garments for Phenix 

with fabrics supplied by Phenix.561 Phenix is a joint venture with investors from Japan, 

Singapore, and Uganda,562 and specializes in the production of knitwear, primarily Tshirts and polo shirts, made of locally produced organic cotton. 563 Phenix also 

manufactures knitted underwear and baby garments from organic cotton.564 The company 

produces both carded and combed ring-spun yarn and uses circular and flat-bed knitting 

machines. 565 It sells some of its yarn for knitting 566 and has dyeing and finishing 

operations. Phenix employs 300 workers and has the monthly capacity to produce 54 tons 

of cotton yarn, 4,000 dozen T-shirts, and 2,000 dozen polo shirts; Phenix can also 

produce 2,000 dozen dress shirts made of imported fabric per shift.567

Although cotton production has fluctuated considerably in recent years, the government 

of Uganda continues to consider cotton, including organic cotton, a “strategic crop” 

because it is a “poverty-alleviating crop,” and it is important to the cotton-textile-apparel 

value chain.568 Uganda produces some organic cotton, which is used in niche production 

of yarn, knit fabric, and apparel. Uganda had just fewer than 30 cotton ginneries in 

2006,569 many of which were in poor condition.570

Trade 

Uganda’s exports of textile and apparel inputs increased considerably, from $289,000 in 

2003 to $2.5 million in 2004, before declining to $1.8 million in 2007 (table 4.63). 

Approximately 74 percent of the total value of these exports in 2007 consisted of woven 

fabrics and went to other SSA countries, mainly Rwanda (table 4.64). Uganda’s imports 

of textile and apparel inputs were fairly stable, between $10.7 million and $12.9 million, 

during the 2003–07 period and consisted mostly of yarn and woven fabric. 

Uganda’s apparel exports peaked at $5.7 million in 2005 during the 2003–07 period, 

before declining to $1.6 million in 2007 (table 4.65). The United States was the main 

 558 Ibid. 559 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009; 

U.S. Department of State, U.S. Embassy, Kampala, “Uganda: Parliament Investigates AGOA Issues,” 

October 31, 2007. 560 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 561 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 562 University of Georgia, “Phenix Logistics,” undated (accessed February 25, 2009), 1. 563 Phenix Logistics Web site. http://www.phenixuganda.com/products.htm (accessed 

February 25, 2009). 564 Ibid. 565 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 566 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 567 The dress shirts are used primarily as part of uniforms and for local consumption. University of 

Georgia, “Phenix Logistics,” undated (accessed February 25, 2009), 1. 568 Government of the Republic of Uganda, “Republic of Uganda Country Statement,” November 17–

21, 2008, 3. 569 World Bank, Snapshot Africa: Uganda, January 2007, 10. 570 EIU, Country Profile 2008: Uganda, 2008, 24. 
4-101 

destination for these apparel exports, accounting for 74 percent of total exports in 2007. 

The next-largest destination market was Rwanda. 

Uganda’s apparel imports rose steadily, by 55 percent, from $24.4 million in 2003 to 

$37.9 million in 2007 (table 4.65). Together, China and Hong Kong accounted for 74 

percent of the total value of these imports in 2007. Reportedly, imports from China, some 

of which allegedly enter the country illegally, have contributed to the closure of several 

textile mills that served the local market in Uganda.571

TABLE 4.63 Uganda: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 47 2,005 1,587 1,871 1,449

EU-27 207 181 364 79 72

Rest of world 35 312 438 309 300

United States 1 0 5 3 12

 Total 289 2,498 2,394 2,262 1,833

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.64 Uganda: Exports and imports of textile and apparel inputs, by product group, 2003–07 

(1,000 $) 

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 45 1,662 18 0 49

 Knit fabric 13 127 25 9 1

 Manmade fibers 23 84 0 0 0

 Other fabric 0 16 1 0 0

 Thread 0 0 0 1 34

 Trim 12 59 118 85 94

 Woven fabric 186 251 1,447 1,758 1,364

 Yarn 10 300 786 408 290

 Total 289 2,498 2,394 2,262 1,833

Imports: 

 Carded or combed fibers 127 0 39 72 177

 Knit fabric 574 606 380 534 665

 Manmade fibers 464 411 543 895 1,179

 Other fabric 261 619 327 1,474 416

 Thread 157 287 227 258 343

 Trim 594 500 757 404 609

 Woven fabric 7,871 7,567 5,974 6,176 4,381

 Yarn 2,898 1,722 2,407 3,128 5,180

 Total 12,946 11,712 10,654 12,942 12,949

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.65 Uganda: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 3,318 4,789 5,702 1,665 1,608

Imports 24,420 25,918 29,730 37,396 37,867

Source: World Bank, WITS Database (accessed December 16, 2008). 

 571 Fibre2fashion.com, “Cheap Chinese Imports Impede Growth,” July 9, 2008. 
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Factors of Competitiveness 

The major impediments to the competitiveness of Uganda’s textile and apparel industries 

are that the country is landlocked; has poor infrastructure, including high and fluctuating 

electricity costs; and imposes high taxes on imported raw materials.572 In addition, the 

industry does not have the capacity to meet customers’ orders.573 The poor condition of 

Uganda’s roads impedes regional sourcing of textile and apparel inputs, as well as 

exports. Transport costs are high, ranging from 5–10 percent of the cost of the garment.574

It takes 39 days for exports leaving Uganda and 37 days for imports entering Uganda in 

2009 (table 3.3). In addition, the shipping cost per container from Uganda was 

considerably higher than that of most of the major suppliers. For example, it cost $3,090 

for a Ugandan firm to ship a container out of the country, compared with $2,055 for a 

Kenyan firm and $1,279 for a Malagasy firm. It also costs Ugandan firms considerably 

more to import raw materials per container, compared with the costs to import per 

container for Kenyan and Malagasy firms. Inefficiencies at the border with Kenya and 

delays at the port are also said to contribute to long transport times.575 USAID has a 

project to build a weigh station on the road from Kampala to Mombasa, hoping to 

improve efficiency.576

Another major impediment to the successful development of textile and apparel 

industries in Uganda is the cost of capital needed to modernize and purchase raw 

materials for textile and apparel products.577 Unless special financing can be arranged 

with major Ugandan banks, firms must rely on local banks, which charged rates ranging 

from 18 percent to 30 percent in 2005.578

Uganda’s competitiveness has been enhanced by the successful cultivation of small 

quantities of organic cotton by its farmers. Even though cotton production has fluctuated 

considerably in recent years, the government of Uganda continues to consider cotton, 

including organic cotton, a “strategic crop” because it is a “poverty-alleviating crop,” and 

it is important to the cotton-textile-apparel value chain.579 Uganda’s production of organic 

cotton is used in niche production of yarn, knit fabric, and apparel. Organic cotton is 

grown without the use of synthetic pesticides, herbicides, and fertilizers. Cotton farmers 

do not have to use chemical pesticides in Uganda because of the ants that kill insects that 

infest the cotton plants.580

 572 SSA industry representative, interview by Commission staff, Las Vegas, NV, February 16, 2009. 573 China Daily, “Organic Cotton,” August 14, 2006. 574 U.S. government official and SSA industry representative, interview by Commission staff, Uganda, 

March 7, 2005. 575 U.S. government official and SSA industry representative, interview by Commission staff, Uganda, 

March 8, 2005. 576 Industry consultants, interview by Commission staff, Washington, DC, December 2, 2008. 577 U.S. government official and SSA industry representative, interview by Commission staff, Uganda, 

March 7, 2005. 578 U.S. government official and SSA industry representative, interview by Commission staff, Uganda, 

March 7, 2005. 579 Government of the Republic of Uganda, “Republic of Uganda Country Statement,” November 17–

21, 2008, 3. 580 SSA industry representative, interview by Commission staff, Uganda, March 7, 2005. 
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Group 3: Major West African 

Cotton-Producing Countries 

Group 3 consists of the major cotton-producing countries in West Africa (Benin, Burkina 

Faso, Cameroon, Chad, Mali, Senegal, and Togo).581 Benin, Burkina Faso, Mali, Senegal, 

and Togo are members of ECOWAS and share a common currency, the CFA franc. 

Cameroon and Chad are members of the Economic Community of Central African States 

and also uses the CFA franc. This section provides country overviews of Benin, Burkina 

Faso, Cameroon, Mali, and Senegal. Country overviews are not provided for Chad or 

Togo, since there is no reported industrial production of textile products in either of these 

countries.582 Box 4.9 also provides an overview of the cotton sector in Franc Zone Africa 

(FZA), which includes, but is not limited to, the Group 3 countries. Appendix G provides 

data on cotton production for all SSA countries. 

 

Although the Group 3 countries are major cotton producers, they are not major producers 

of yarn, fabric, and other textile inputs. For the most part, textile production in these 

countries is characterized by old equipment that spins cotton yarn and weaves fabric for 

African print cloth, and to a lesser extent, bale wrap for the cotton sector. The weaving 

machinery consists mostly of old shuttle looms that are inefficient and produce fabric that 

is of lower quality and narrower widths than modern, shuttleless looms. Cotton 

contamination and stickiness caused by pests further impairs the quality of most fabric 

production because it affects the quality of dyeing and yarn spinning.583 The development 

of textile industries in these countries is also hindered by poor infrastructure, especially 

unreliable and high-cost electricity, and lack of clean water for dyeing. 

Producers of yarn and fabric in these countries face significant increased competition 

from imports of lower-priced print cloth from China and imports of used clothing, which 

are being purchased in place of print cloth for traditional African garments.584 The Group 

3 countries also do not have substantial commercial apparel manufacturing sectors. To 

the extent that apparel firms are producing for export, they generally use third-country 

fabric designated by their customers. 

 581 Nigeria is also a major West African cotton producer, but it is covered in Group 1. 582 According to the U.S. Department of State, Togo does not have any commercial production of 

textiles. U.S. Department of State, U.S. Embassy, Lomé, “Togo: Effects of Infrastructure Conditions on 

Export Competitiveness,” October 3, 2008. According to the former U.S. Ambassador to Chad, “Chad has a 

textile plant that was constructed 30 or 40 years ago and until the era of the civil wars produced textiles.” He 

indicated that “the cost of power makes it uncompetitive with textiles produced in neighboring countries and 

even Asia.” USITC, Hearing transcript, October 28, 2008, 39 (testimony of The Honorable Christopher E. 

Goldthwait, former U.S. Ambassador to Chad). 583 Cotton may be contaminated during the picking and baling stages through the use of polypropylene 

bags (for picking) and bale wrap. Polypropylene fibers may mix with cotton fibers and may not be 

differentiated until the dyeing process. Fabric made with contaminated cotton cannot be dyed properly. Pests 

on the cotton fibers cause the cotton to become sticky, which can cause irregularities in the yarn and yarn 

breakages during the spinning operations. Industry representative, interview by Commission staff, Las Vegas, 

NV, February 17, 2009. Industry representative, interview by Commission staff, Washington, DC, 

February 17, 2009. 584 Reportedly, products from China come into West Africa “falsely” labeled, for example, with the 

brands of Nigerian producers. USITC, Hearing transcript, January 29, 2009, 65–66 (testimony of Anthony 

Carroll, Manchester Trade, Ltd.). 
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BOX 4.9. Cotton Production in Franc Zone Africaa

In marketing year (MY) 2007, FZA was the largest cotton-producing region in SSA, accounting for 60 percent of all SSA 

production (see table below). FZA includes 6 of the 10 largest SSA cotton producers: Burkina Faso, the largest, followed 

by Benin (2nd largest), Mali (4th largest), Cameroon (6th largest), Chad (7th largest), and Togo (10th largest) (table 

G.1).b

 With limited domestic consumption, FZA is also the largest cotton-exporting region among SSA countries and 

ranks as the fourth-largest global exporter of cotton. In this report, cotton industries of the individual FZA countries are 

discussed jointly due to commonalities in climatic and growing conditions, lint quality and varieties, industry structure, 

government involvement, and importance of cotton to each country’s foreign exchange revenues and GDP.c

FZA cotton production increased to a record level in MY 2004, but subsequently declined by approximately one-half 

through MY 2007 (see table below), as profitability in the sector declined due to low cotton prices and increasing input 

costs (e.g., agrochemicals and seeds).d Similarly, exports declined as local consumption in the region, which accounts 

for less than 5 percent of domestic supply, remained unchanged throughout the period. 

Franc Zone Africa: Cotton production, consumption, and trade 

Marketing year (Aug. 1–July 31) 

Indicator 2003 2004 2005 2006 2007

Beginning stock 1,057 968 1,465 1,153 898

Production (1,000 bales) 3,955 4,236 3,722 3,317 2,228

 % of SSA production 71 68 65 71 60

 Average yields (kg/ha) 390 403 365 347 344

 Area harvested (ha) 2,069 2,195 2,041 1,955 1,352

Consumption (1,000 bales) 133 133 133 136 136

 Ratio of consumption to domestic supplies1 (%) 3 3 3 3 4

Imports (1,000 bales) 0 0 0 0 0

Exports (1,000 bales) 3,911 3,606 3,901 3,436 2,326

 % of production exported 99 85 105 104 104

 % of total exports from SSA 84 77 76 80 75

Exports (US$, millions) 667.16 1,052.34 820.29 840.19 778.58

 % of exports from FZA to SSA 2 1 1 1 1

Source: USDA, FAS, Production, Supply and Distribution Online; WITS Database. 

1

Domestic supplies are equivalent to the sum of beginning stocks and production. 

a

FZA consists of Benin, Burkina Faso, Cameroon, Chad, Republic of the Congo, Equatorial Guinea, Gabon, Guinea 

Bissau, Mali, Niger, Senegal, and Togo, all members of the West African Economic Monetary Union or the Economic 

and Monetary Community of Central Africa (CEMAC), which use the CFA franc as common currencies. FZA also 

includes Côte d’Ivoire and the Central Africa Republic, which are not SSA countries as defined for the purposes of this 

report. b

Côte d’Ivoire would be ranked sixth were it an SSA country as defined for the purpose of this report. 

c

In MY 2004, the peak year of production, cotton accounted for 5–10 percent of total GDP and 50–75 percent of 

exports in Mali, Burkina Faso, and Benin. In Chad, cotton exports accounted for 90 percent of nonoil exports. Mitchell 

Group, “Summary of Findings of the West African Cotton Assessment,” January 13, 2005, 6–7. d

In FZA, inputs are priced in euros and cotton lint in U.S. dollars. Because of the export orientation of the FZA cotton 

industry, the foreign exchange rate of the CFA franc (pegged to the euro) against the U.S. dollar can easily influence 

producer and ginner decisions. For example, the devaluation of the CFA in 1994 contributed to increased cotton 

production through MY 2004. Reid, Côte d’Ivoire: Cotton and Products, March 16, 2006, 3. 
4-105 

BOX 4.9. Cotton Production in Franc Zone Africa―Continued

FZA cotton has favorable fiber characteristics, but overall quality remains low.e

 Although FZA cotton received price 

premiums on the Cotlook A Index,f

 a common benchmark for international pricing, premiums on FZA cotton have eroded 

as a consequence of contamination from polypropylene fibers from sacks being used to harvest cotton and from 

stickiness due to pests.g

 As a result, FZA cotton received premiums ranging from $0.02 to $0.04 per lb., while U.S. 

cotton of similar fiber characteristics received a premium of $0.10 per lb. in MY 2006.h

 Polypropylene fibers have 

different dye absorption rates than cotton fibers, resulting in uneven coloring in dyed yarn and fabric.i

 Stickiness can 

cause irregularities in yarn production and excessive yarn breakages.j

 

FZA countries have attempted to improve quality and reduce contamination in domestic cotton supplies, with mixed 

results. For example, Cameroon successfully improved its cotton quality and is considered to have one of the strictest 

and most consistent lint grading systems in SSA.k Meanwhile, because of a lax lint grading system in Mali, cotton is 

commonly sold by producers at inflated grading premiums. As a result, producers have little incentive to improve quality, 

and the country currently faces severe contamination issues. The situations in Cameroon and Mali are reflected in 

changes in the estimated premiums in each country.l

 Finally, the United States has a three-year program, called the 

West African Cotton Improvement Program (WACIP), which is intended to increase the yields of West African cotton, 

particularly in Benin, Burkina Faso, Chad, Mali, and to a lesser extent, Senegal.m Among other things, the program is 

designed to improve cotton quality. 

e

Fiber characteristics refer to the actual attributes of the cotton lint fibers, such as staple length, micronaire, fiber 

strength, and length uniformity. Estur, “Quality and Marketing of Cotton Lint in Africa,” July 2008, 13. Overall cotton 

quality refers to both the fiber characteristics of the lint along with other nonlint attributes of the cotton lint, such as 

contamination and stickiness. f The Cotlook A Index sets the international benchmark for quality, with all cottons traded receiving a premium or 

discount price based on its quality in relation to the benchmark. Estur, Is West African Cotton Competitive? January 7, 

2005, 1–20. 

g

Cotton stickiness is caused by excessive insect- or plant-derived sugars present on the cotton fibers. h

These premiums reflect estimates for the top type of lint in each country as quoted by the Cotlook A Index. The 

average price of the Cotlook A Index in MY 2006 was $0.6053 per lb. Estur, “Quality and Marketing of Cotton Lint in 

Africa,” July 2008, 20; Estur, Is West African Cotton Competitive? January 7, 2005, 8. i

Industry representative, interview by Commission staff, Las Vegas, NV, February 17, 2009. j

Industry consultant, interview by Commission staff, Washington DC, February 17, 2009. k

Estur, Is West African Cotton Competitive? January 7, 2005, 17. l

Cameroon premiums increased $0.05 per lb. from the mid-1990s through MY 2006, while Mali premiums declined 

$0.01 per lb. Estur, Is West African Cotton Competitive? January 7, 2005, 21. mU.S. Department of State, U.S. Embassy, Ouagadougou, “ West Africa Cotton Improvement Program Should Be 

Extended,” March 5, 2009; USAID, West Africa Cotton Improvement Program (WACIP)—Program Description, July 

2006. 

Several industry consultants noted potential export opportunities for these countries. One 

stated that the West African countries potentially could export traditional print cloth, 

given the right market opportunities.585 Other industry sources suggested that Burkina 

Faso potentially could produce high-end bed linens, such as embroidered sheets and 

duvets,586 or that some of these countries could make better use of their yarn spinning and 

weaving equipment by focusing on cotton bags and bale wrap to replace the 

polypropylene bags and wraps that currently contaminate the cotton.587

 585 Ibid., 87. 586 Industry consultant, interview by Commission staff, Washington, DC, February 17, 2009. 587 Industry representative, interview by Commission staff, Las Vegas, NV, February 17, 2009. 
4-106 

Benin 

Country Overview 

Benin is a coastal country and shares borders with Nigeria, Niger, Burkina Faso, and 

Togo. Benin’s GDP was $5.4 billion and its population was 9.0 million in 2007, resulting 

in a GDP per capita of $603 (table 4.66). Benin has registered gradual economic growth 

since 1990, but implementation of structural reforms has been slow. Little progress has 

been made in privatizing state-owned enterprises, including the cotton parastatal, 

Sonapra, and the management of the port of Cotonou. 588 Benin’s economy is based 

predominantly on agriculture589 and on the activity of the port of Cotonou, which has 

been losing revenue due to competition with other regional ports.590 

Benin ranked 169th out of 181 economies in terms of the ease of doing business in 2009 

(table 3.3). Government priorities include improving the quality of port infrastructure in 

Cotonou and increasing the efficiency of import-export procedures. 591 Due to its 

geographical position, Benin plays a significant role in regional trade by providing both 

internal and international transit services to neighboring landlocked countries.592

Industry Overview593

In 2007, Benin was the second-largest cotton producer in the SSA countries (table G.1) 

The cotton sector accounts for 10 percent of GDP and supports approximately 40 percent 

of the population.594 Despite large production volumes of cotton, Benin’s textile and 

apparel sector is undeveloped relative to other SSA producers. Most of the cotton 

produced is exported; only 2 percent is consumed domestically.595

Benin’s textile and apparel inputs industry began in the 1970s, and focused primarily on 

spinning cotton yarn and weaving cotton fabric for print cloth. Benin has two plants that 

spin and weave fabric (SITEX and CBT); a third plant (COTEB) closed in 2006. All 

three facilities reportedly are currently owned by the government of Benin.596 CBT was 

established in 2003 through Chinese investment to meet local and regional demand for 

fabric to be printed. However, demand for African print fabric has since collapsed due to 

increased competition from imports of Chinese print fabric and Westernization of the 

urban population. CBT reportedly makes good-quality cotton yarn, but uses mostly old 

shuttle weaving equipment.597 Presently, there is little capacity for dyeing and finishing in 

Benin; COTEB had a facility to dye fabric, but only in widths of 1.8 meters, and all the 

equipment installed in 1990 is of 1974 vintage. Moreover, problems with water

 588 EIU, Country Profile 2008: Benin, 2008, 6–7. 589 The primary sector (agriculture, fishing, forestry, and mining) accounted for 36 percent of GDP in 

2005 and employed almost 54 percent of the population. OECD and AfDB, “Benin,” 2008, 124. 590 EIU, Country Profile 2008: Benin, 2008, 12–13. 591 Blanke, et al., The Global Enabling Trade Report 2008, 2008, 112. 592 OECD and AfDB, “Benin,” 2008, 128–30. 593 Unless otherwise noted, this section is based on De Voest and Holtzman, “Adding Value to West 

African Cotton,” December 2006, 45–50. 594 OECD and AfDB, “Benin,” 2008, 124. 595 USDA, FAS, Production, Supply and Distribution Online. 596 Industry representative, interview by Commission staff, Las Vegas, NV, February 17, 2009. 597 Industry representative, interview by Commission staff, February 17, 2009. 
4-107 

TABLE 4.66 Benin: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 5,428

GDP growth (annual %, 2007) 4.6

GDP per capita (current US$, 2007) 603

Population (millions, 2007) 9.0

Goods exports (current US$, millions, 2007) 650

Goods imports (current US$, millions, 2007) 1,500

Inflation, consumer prices (annual %, 2007) 1.3

Literacy rate, adult total (% of people ages 15 and above, 2002) 34.7

Labor force, total (millions, 2006) 3.4

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 63

Gross capital formation (current US$, millions, 2005) 840

Lending rate (%) (

b

)

Manufacturing value added (current US$, millions, 2005) 322

Prevalence of HIV, total (% of population 15–49, 2007) 1.2

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. bNot available. 

availability hinder production levels in the dye houses, which need a steady supply of 

water with a balanced pH. Sobetex, a textile printer, was operating at only 20 percent 

capacity as of 2006, with equipment reportedly from the 1960s. 

The apparel sector in Benin essentially comprises artisanal operations using older 

domestic sewing machines with limited factory space to expand operations. Two of 

Benin’s garment manufacturers (NIRC and Lolo Andoche) produce lace/embroidery and 

shirts that are exported to the EU; however, production levels are low and the estimated 

employment for the two manufacturers combined was 92 people in 2006. 

 

Trade 

Benin’s exports of textile and apparel inputs totaled $2.1 million in 2007, about one-half 

of the value it exported in 2003 (table 4.67). Woven fabric accounted for nearly all of 

Benin’s exports (table 4.68); most of which consisted of cotton woven fabric shipped to 

other countries in the West African region. Benin also exported some semiprocessed 

(carded or combed) cotton to Mauritius. Other countries reported substantial exports of 

woven fabric and trim to Benin ($926 million and $236 million, respectively, in 2007). 

However, Commission staff was unable to identify substantial commercial apparel 

production facilities in Benin, suggesting that these exports to Benin may be 

transshipments or may be misclassified.598 Benin’s small exports of apparel declined 

from $134,000 in 2003 to $89,000 in 2007 (table 4.69). 

 598 Benin reported substantially lower imports of textile and apparel inputs ($5.2 million in 2003, $4.5 

million in 2004, $4.9 million in 2005; did not report import data in 2006 or 2007). China accounted for the 

vast majority of reported exports of textile and apparel inputs to Benin in 2007 ($1.1 billion, or 89 percent). 

However, Benin does not report any imports of textile and apparel inputs from China. 
4-108 

TABLE 4.67 Benin: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 2,633 2,723 481 942 1,268

EU-27 105 54 74 121 199

Rest of world 1,138 536 407 63 650

United States 165 80 0 0 1

 Total 4,041 3,393 963 1,127 2,118

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.68 Benin: Exports and imports of textile and apparel inputs, by product group, 2003–07 

(1,000 $) 

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 0 438 0 1 550

 Knit fabric 740 0 0 0 5

 Manmade fibers 0 0 0 2

 Other fabric 82 0 0 0 4

 Thread 2 1 0 0

 Trim 70 95 156 30 14

 Woven fabric 3,145 2,809 758 1,095 1,543

 Yarn 4 51 48 0 0

 Total 4,041 3,393 963 1,127 2,118

Imports: 

 Carded or combed fibers 65 0 0 0 84

 Knit fabric 324 414 1,426 3,598 3,237

 Manmade fibers 14 112 182 22 168

 Other fabric 1,584 1,680 3,414 7,712 8,443

 Thread 839 971 2,628 4,080 6,344

 Trim 13,780 61,019 93,492 179,159 235,889

 Woven fabric 314,633 340,011 446,445 616,132 925,923

 Yarn 2,064 711 1,011 1,848 7,782

 Total 333,303 404,918 548,597 812,550 1,187,869

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.69 Benin: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 134 106 108 91 89

Imports 26,294 12,081 31,605 71,783 158,220

Source: World Bank, WITS Database (accessed December 16, 2008). 

Factors of Competitiveness 

Benin has a large pool of unskilled workers and offers competitive wage rates. While 

low-skilled labor is needed in the apparel sector, it does not represent a competitive 

advantage in the textile sector, which requires technically skilled labor. The high cost of 

energy in Benin, particularly electricity, is a major constraint. Frequent power outages 

have negatively impacted business productivity. 599 Benin’s textile mills benefit from 

lower electricity rates, but only during specific operating hours.600 Benin’s small and 

largely artisanal apparel sector provides little local demand for Benin’s textile and 

apparel inputs industry. 

 599 EIU, Country Profile 2008: Benin, 2008, 12–13. 600 De Voest and Holtzman, “Adding Value to West African Cotton,” December 2006, 50. 
4-109 

Burkina Faso 

Country Overview 

Burkina Faso is a landlocked country with a GDP of $6.8 billion in 2007 (table 4.70). Its 

per capita GDP of $459 makes it one of the world’s poorest countries. Approximately 90 

percent of the population relies on subsistence agriculture.601 However, Burkina Faso has 

experienced steady economic growth in the last 10 years, with average GDP growth of 

5.9 percent between 1997 and 2006, compared to average GDP growth of 3.1 percent for 

the West African Economic and Monetary Union during the same period. 602 Burkina 

Faso was not granted preferential terms by the United States under AGOA until January 

2005.603

TABLE 4.70 Burkina Faso: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 6,767

GDP growth (annual %, 2007) 4.0

GDP per capita (current US$, 2007) 459

Population (millions, 2007) 14.8

Goods exports (current US$, millions, 2007) 607

Goods imports (current US$, millions, 2007) 1,650

Inflation, consumer prices (annual %, 2007) -0.2

Literacy rate, adult total (% of people ages 15 and above, 2005) 23.6

Labor force, total (millions, 2006) 6.5

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 26

Gross capital formation (current US$, millions, 2006) 1,045

Lending rate (%) (

b

)

Manufacturing value added (current US$, millions, 2006) 775

Prevalence of HIV, total (% of population 15–49, 2007) 1.6

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. bNot available. 

Industry Overview604 

Burkina Faso was the largest cotton producer in the SSA countries in 2007 (G.1). 

However, the textile industry was significantly impacted when the transit corridor 

through Côte d’Ivoire was cut off in 2002.605 Delivery costs and times are high, as cotton 

production, ginning, and spinning are concentrated in the southwest, far from the ports in 

 601 Hanson, Senegal: Cotton and Products, May 21, 2007, 5. 602 OECD and AfDB, “Burkina Faso,” 2008, 167. 603 EIU, Country Profile 2007: Burkina Faso, 2007, 11. 604 Unless otherwise noted, this section is based on De Voest and Holtzman, “Adding Value to West 

African Cotton,” December 2006, 37-44. 605 Burkina Faso traditionally depended on road and rail links to the port of Abidjan in Côte d’Ivoire for 

most of its external trade. But when civil war erupted in Côte d’Ivoire, with rebels seizing the north of the 

country in 2002, trade was diverted to Ghana and other ports in West Africa. The unrest in Côte d’Ivoire 

strongly affects Burkina Faso’s cotton-textile value chain because cotton production, ginning, and spinning 

are concentrated in the southwest of the country, closest to Côte d’Ivoire and the sea. Diverting trade through 

the farther ports in Ghana and Togo increases transit times and costs. 
4-110 

Togo and Ghana. Despite Burkina Faso’s large cotton resources, the textile and apparel 

sector is relatively small. Most of the cotton produced is exported; only 1 percent is 

consumed domestically. 

Burkina Faso has one industrial spinner, FILSAH, which became operational in 2000. 

FILSAH spins approximately 1 percent of Burkina’s lint, using open-end spinning 

technology to produce 100 percent cotton yarn. The factory does not work at full 

capacity, and its work force is made up of 60 full-time workers and approximately 60 

part-time workers. FILSAH uses its waste from carding and other short fibers to produce 

nonwoven cotton fabric, bags, and rags. FILSAH exports most of its yarn to the EU and 

to other West African countries. It also sells its yarn to domestic users that largely consist 

of artisanal weavers that weave, dye, and finish traditional garments and textiles. 

The only industrial-scale printing operation in Burkina Faso is FASOTEX, which began 

operations in March 2006. FASOTEX produces African prints and Real Wax, which is 

fabric printed identically on both sides. As of 2006, all finished fabric was sold 

domestically. The firm sources all of its 100 percent cotton cloth from SITEX, a Beninese 

firm. 

The rest of Burkina Faso’s textile and apparel industry comprises small artisanal weavers, 

subsidized by the government, that produce traditional-style apparel. Many weaving 

groups have closed. Burkina Faso’s domestic and regional market for traditional fabric is 

estimated to be no larger than 800 to 1,000 meters per year, and is not expected to grow. 

Burkina Faso’s artisanal production remains small-scale with limited potential for 

expansion; demand for this production is highest during holidays and from expatriates 

traveling home. 

Trade 

Burkina Faso’s exports of textile and apparel inputs fell by nearly 30 percent in 2007, 

largely due to a sharp decline in exports to the EU (table 4.71). Burkina Faso’s exports of 

textile and apparel inputs consisted mostly of fabric in 2007 (table 4.72), of which the 

bulk was cotton woven fabric exported to Mali.606 Burkina Faso’s yarn exports fluctuated 

significantly during the 2003–07 period, reaching a high of $2.0 million in 2006, before 

declining to $0.4 million in 2007. Burkina Faso’s apparel exports have increased, but are 

still at relatively low levels ($1.3 million in 2007) (table 4.73). 

TABLE 4.71 Burkina Faso: Exports of textile and apparel inputs, by destination, 2003–07 

(1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 1 885 598 1,421 1,759

EU-27 1,476 319 460 1,802 333

Rest of world 302 38 25 267 378

United States 0 0 1 3 0

 Total 1,779 1,242 1,083 3,493 2,470

Source: World Bank, WITS Database (accessed December 3, 2008). 

 606 It is possible that this fabric was misclassified as being a product of Burkina Faso. 
4-111 

TABLE 4.72 Burkina Faso: Exports and imports of textile and apparel inputs, by product group, 2003–07 

(1,000 $) 

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 0 61 185 0 25

 Knit fabric 110103

 Manmade fibers (

a

)1000

 Other fabric 74 19 9 10 39

 Thread (a) 27 43 52 54

 Trim 0 96 40 29 24

 Woven fabric 96 787 350 1,399 1,928

 Yarn 1,598 252 454 2,003 398

 Total 1,779 1,242 1,083 3,493 2,470

Imports: 

 Carded or combed fibers 0 0 144 0 0

 Knit fabric 86 15 106 496 38

 Manmade fibers 0 82 2 0 947

 Other fabric 224 1,709 816 748 870

 Thread 12 19 19 53 16

 Trim 83 237 331 679 510

 Woven fabric 5,495 4,843 4,942 b

230,274 10,525

 Yarn 335 752 767 802 929

 Total 6,235 7,657 7,127 233,052 13,836

Source: World Bank, WITS Database (accessed December 3, 2008). 

 aNot available. bGhana accounted for the vast majority of reported exports of woven fabric to Burkina Faso in 2006 

($225.6 million, or 98 percent). Given that Burkina Faso’s apparel industry comprises small, artisanal 

operations, these relatively large exports of woven fabric from Ghana may represent transshipments. 

TABLE 4.73 Burkina Faso: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 72 799 640 600 1,293

Imports 5,270 3,879 3,531 3,078 4,101

Source: World Bank, WITS Database (accessed December 16, 2008). 

Factors of Competitiveness 

Burkina Faso was among the lowest 20 percent of countries worldwide in the terms of the 

ease of doing business, ranking 148th out of 181 economies in 2009 (table 3.3). Because 

of Burkina Faso’s geographic location and inadequate road network, firms in Burkina 

Faso face high transportation costs. These costs, coupled with limited energy resources, 

undermine the competitiveness of the economy as a whole.607

Despite recent investment in Burkina Faso’s transport system, it remains poorly 

developed and transport costs are significant for businesses involved in the export or 

import of bulky goods.608 Despite the reliability of electricity supply in Burkina Faso, 

electricity costs reportedly are the highest in the region.609 The limited water sources 

hinder the expansion of textile dyeing and finishing. Burkina Faso’s small-scale, artisanal 

apparel sector provides little local demand for textile and apparel inputs production. High 

 607 OECD and AfDB, “Burkina Faso,” 2008, 168. 608 EIU, Country Profile 2007: Burkina Faso, 2007, 15. 609 Shea industry representative, interview by Commission staff, Ouagadougou, Burkina Faso, 

October 23, 2008. 
4-112 

energy costs, obsolete machinery for which it is difficult to obtain spare parts, and the 

closure of certain transport routes due to the Côte d’Ivoire conflict substantially hamper 

the competitiveness of the textile and apparel inputs industries. 

Cameroon 

Country Overview 

Cameroon is situated on the west coast of Africa, with a GDP of $20.6 billion, a GDP per 

capita of $1,116, and a population of 18.5 million in 2007 (table 4.74). Cameroon has 

considerable petroleum reserves and favorable agricultural conditions. In 2007, the 

manufacturing sector accounted for 17 percent of GDP. 

 

TABLE 4.74 Cameroon: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 20,644

GDP growth (annual %, 2007) 3.3

GDP per capita (current US$, 2007) 1,116

Population (millions, 2007) 18.5

Goods exports (current US$, millions, 2007) 3,604

Goods imports (current US$, millions, 2007) 3,760

Inflation, consumer prices (annual %, 2007) 0.9

Literacy rate, adult total (% of people ages 15 and above, 2001) 67.9

Labor force, total (millions, 2006) 7.0

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 309

Gross capital formation (current US$, millions, 2007) 3,582

Lending rate (% 2007) 15.0

Manufacturing value added (current US$, millions, 2007) 3,612

Prevalence of HIV, total (% of population 15–49, 2007) 5.1

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. 

Industry Overview610 

Cameroon’s industrial textile industry is more than 50 years old, but investment in this 

industry has declined recently. Most investment in Cameroon has gone to mineral 

extraction projects such as aluminum, iron, nickel, and cobalt. 

 

Cameroon’s cotton textile industry, an effective monopoly, is protected by high import 

duties (47 percent on cotton fabric), and has been the beneficiary of tax breaks. 

Cameroon has only one integrated cotton spinning and weaving mill, SOLICAM, which 

is a subsidiary of CICAM. SOLICAM produces yarn and greige fabric that are later dyed 

and finished by its parent company, CICAM, which produces African print fabric for the 

domestic market. SOLICAM has difficulty filling demand for yarn but only operates at 

approximately 50 percent of capacity. As of 2004, there was also an acrylic yarn spinning 

plant, Noufil, which produced yarn for artisanal knitters of pullovers.611 

 610 Unless otherwise noted, this section is based on De Voest and Holtzman, “Adding Value to West 

African Cotton,” December 2006, 51-56. 611 IMF, “Cameroon: Poverty Reduction Strategy Paper,” August 2003. 
4-113 

In addition to SOLICAM, Cameroon has three other firms with weaving operations.612

These firms use mostly old shuttle looms, producing greige fabric for print cloth and 

blankets.613 There are two knitting companies in Cameroon, Buetec and SOTEXCAM. 

Buetec started as an embroidery plant, but has since purchased new circular knitting 

machines and a dye house that became operational at the end of 2008.614 It has complete 

cut and sew capabilities, and is looking for additional financing or a partner to put in a 

spinning plant.615 Using imported embroidery yarn, Buetec embroiders T-shirts, work 

wear/overalls, caps, and bags. As of 2006, SOTEXCAM was not yet operational. 

The apparel sector in Cameroon comprises numerous small-scale and micro-enterprises, 

which primarily supply the local market. The principal garment manufacturers include 

Socolim, Groupe YVY, Ken Atlantic (Brodwell), Blaz Designs, Mandalaris, and 

Bococam. Ken Atlantic and Mandlaris have a factory layout that is geared to mass 

production. Ken Atlantic produces knit and woven garments (medical and restaurant chef 

uniforms in particular) for export to Europe. Its customers supply the fabric and patterns, 

which are not available locally.616 According to Ken Atlantic, its customers typically use 

a polyester/cotton-blend fabric that has special finishes for its intended end use.617

 

Trade 

Cameroon’s exports of textile and apparel inputs totaled $1.1 million in 2007 (table 4.75), 

and consisted mostly of cotton woven fabric (table 4.76). The EU was the largest market 

for Cameroon’s exports, accounting for 58 percent of the total value in 2007 (table 4.75). 

Cameroon’s apparel exports are relatively small, totaling $2.7 million in 2007 

(table 4.77). Its apparel imports are substantially larger and increased from $18.8 million 

in 2003 to $44.1 million in 2007. The substantial increase in apparel imports in 2007 

indicates increasing foreign competition in Cameroon’s apparel sector. 

TABLE 4.75 Cameroon: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 4 161 343 264 26

EU-27 1,466 664 567 622 658

Rest of world 89 530 171 261 445

United States 14 4 9 6 8

 Total 1,573 1,359 1,090 1,153 1,137

Source: World Bank, WITS Database (accessed December 3, 2008). 

 612 Ibid. 613 In 2006, the installed weaving capacity in Cameroon consisted of 1,000 shuttle looms and 200 

shuttleless looms. Table C.2. 614 USAID, West Africa Trade Hub, “An Entrepreneur’s Vision,” undated (accessed April 1, 2009). 615 Industry representative, interview by Commission staff, Las Vegas, NV, February 17, 2009. 616 Industry representative, interview by Commission staff, Las Vegas, NV, February 17, 2009. 617 Industry representative, interview by Commission staff, Las Vegas, NV, February 17, 2009. 
4-114 

TABLE 4.76 Cameroon: Exports and imports of textile and apparel inputs, by product group, 2003–07 

(1,000 $) 

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 400070

 Knit fabric 15 11 7 0 74

 Manmade fibers 4 0 0 0 61

 Other fabric 25 153 34 9 90

 Thread 1 13 4 2 0

 Trim 8 18 66 83 160

 Woven fabric 1,478 1,025 896 861 604

 Yarn 4 139 82 190 147

 Total 1,573 1,359 1,090 1,153 1,137

Imports: 

 Carded or combed fibers 8 26 12 8 223

 Knit fabric 101 129 642 1,682 1,026

 Manmade fibers 2,989 2,745 2,836 3,253 2,122

 Other fabric 1,248 1,448 1,164 1,170 3,254

 Thread 525 285 654 547 597

 Trim 787 1,046 1,428 1,261 2,531

 Woven fabric 17,047 16,329 25,772 27,340 40,554

 Yarn 555 593 334 606 1,441

 Total 23,260 22,602 32,842 35,868 51,747

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.77 Cameroon: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 2,030 1,832 1,923 3,075 2,724

Imports 18,794 23,609 19,676 19,827 44,053

Source: World Bank, WITS Database (accessed December 16, 2008). 

Factors of Competitiveness 

The Cameroonian textile and apparel inputs industry benefits from proximity to local 

high-quality cotton, and the country reportedly has one of the strictest and most 

consistent cotton quality grading systems in the SSA region (box 4.9). Cotton is 

Cameroon’s fourth-largest cash crop618 and more than 95 percent of the country’s cotton 

fiber is currently exported. 

Although poor road infrastructure is reportedly a major constraint to Cameroon’s 

competitiveness,619 the country reportedly has the second-lowest electricity costs in the 

region and reliable electricity and water supplies, and is investing in improving its road 

and maritime infrastructure.620 Cameroon has four ports and is in the process of building 

one in Kribi through a public-private partnership.621 The Kribi port will be the largest port 

 618 EIU, Country Profile 2008: Cameroon, 2008, 21. 619 More than 50 percent of the road network in Cameroon is classified as primary roads, and only a 

fraction of the primary road network is sealed. The remaining primary road network consists of dirt roads and 

tracks, which become impassable after rain. Further delays and costs of road transport are caused by the road 

network’s many checkpoints and tolls. With the backing of its development partners, the government has 

increased spending on road infrastructure. EIU, Country Profile 2008: Cameroon, 2008. 620 De Voest and Holtzman, “Adding Value to West African Cotton,” December 2006, 4. 621 EIU, Country Profile 2008: Cameroon, 2008, 15; Nyuylime, “Cameroon: Kribi Deep Sea Port—16 

Companies Short Listed For Investment,” September 18, 2008 (accessed April 13, 2009). 
4-115 

in West Africa with a depth of 15–18 meters.622 Construction of the deep water port is 

due to start in September 2009, and is needed for the commercial development of large 

mineral deposits in southern Cameroon. 623 Additionally, further investment has been 

allocated to Cameroon’s road infrastructure in and around the capital of Douala and to 

neighboring countries.624 

Without an export-oriented domestic apparel sector, Cameroon does not have a local 

market for export-ready, domestically-produced textile and apparel inputs. Other issues 

currently hindering Cameroon’s competitiveness include a lack of vertical integration, 

old spinning and weaving machinery,625 a lack of adequate financing, high transportation 

costs despite access to four ports,626 and lengthy shipping times (e.g., five weeks to 

export to the United States).627 Cameroon also has an unfavorable business environment, 

ranking 164th out of 181 economies in terms of the ease of doing business in 2009 

(table 3.3). Corruption, weak legal and regulatory systems, and limited access to financial 

services are reported barriers to stimulating the private sector.628

Mali 

Country Overview 

Mali is a landlocked, major cotton-producing country with a GDP of $6.9 billion and a 

population of 12.3 million, resulting in GDP per capita of $558 in 2007 (table 4.78). Mali 

has historically been one of the largest cotton-producing countries in the region, but its 

production has declined in recent years (table G.1). Most of Mali’s cotton production is 

exported; only 1 percent of the cotton produced is processed locally.629 Overall, Mali’s 

manufacturing sector (including textile and apparel value added) accounted for less than 

3 percent of GDP. 

Industry Overview630

Mali currently has two privately held, medium-sized cotton spinning companies 

(Comatex and Bakary Textiles Commerce Industrie). A third company, FITINA, is 

closed. 631 Mali has two weaving plants (Comatex and Batex-CI). Both plants focus 

primarily on African prints, and to a lesser extent, cotton bale wrap. Mali’s weaving 

sector uses old shuttle looms (table C.2). Fabric made with this machinery is more 

suitable for local consumption (such as African prints), because it is of a narrower width 

than that used in commercial operations. Additionally, shuttle looms used by Mali 

weaving plants have limitations on the weight of the fabric that can be woven. 

 622 EIU, Country Profile 2008: Cameroon, 2008, 23. 623 Ibid. 624 De Voest and Holtzman, “Adding Value to West African Cotton,” December 2006, 51. 625 Ibid., app. C. 626 EIU, Country Profile 2008: Cameroon, 2008. 627 IMF, “Cameroon: Poverty Reduction Strategy Paper,” August 2003. 628 OECD and AfDB, “Cameroon,” 2008, 190. 629 UN and ICC, An Investment Guide to Mali, October 2006, 39. 630 Unless otherwise noted, this section is based on De Voest and Holtzman, “Adding Value to West 

African Cotton,” December 2006, 29-35. 631 Industry representative, interview by Commission staff, Las Vegas, NV, February 17, 2009. 
4-116 

TABLE 4.78 Mali: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 6,863

GDP growth (annual %, 2007) 2.8

GDP per capita (current US$, 2007) 558

Population (millions, 2007) 12.3

Goods exports (current US$, millions, 2007) 1,480

Goods imports (current US$, millions, 2007) 2,255

Inflation, consumer prices (annual %, 2007) 1.4

Literacy rate, adult total (% of people ages 15 and above, 2003) 24.0

Labor force, total (millions, 2006) 4.8

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 185

Gross capital formation (current US$, millions, 2007) 1,598

Lending rate (%) (

b

)

Manufacturing value added (current US$, millions, 2007) 195

Prevalence of HIV, total (% of population 15–49, 2007) 1.5

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. bNot available. 

Trade 

Mali’s exports of textile and apparel inputs more than doubled in value from 2003 to 

2007 (table 4.79). These exports were primarily to other SSA countries in 2007. Exports 

consisted chiefly of semiprocessed cotton (carded or combed cotton) and cotton fabric 

(table 4.80). In 2007, the Mauritian market accounted for nearly 50 percent of the value 

of Mali’s exports, consisting mostly of carded or combed cotton. Another 14 percent of 

Mali’s exports consisted of cotton fabric shipped to Niger. Mali’s apparel exports 

increased significantly in 2007, but were still substantially below the increasing level of 

apparel imports (table 4.81). 

TABLE 4.79 Mali: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 40 231 536 405 933

EU-27 32 378 135 137 295

Rest of world 513 218 471 406 135

United States 19 30 28 11 49

 Total 604 857 1,170 959 1,411

Source: World Bank, WITS Database (accessed December 3, 2008). 
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TABLE 4.80 Mali: Exports and imports of textile and apparel inputs, by product group, 2003–07 (1,000 $) 

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers 0 0 412 12 679

 Knit fabric 2 0 1 1 7

 Manmade fibers 219 392 4 1 0

 Other fabric 20 1 24 106 123

 Thread 06050

 Trim 22 18 10 14 7

 Woven fabric 182 236 330 393 505

 Yarn 159 204 389 426 90

 Total 604 857 1,170 959 1,411

Imports: 

 Carded or combed fibers 0 48 0 9 3

 Knit fabric 149 85 342 169 206

 Manmade fibers 232 274 307 48 0

 Other fabric 302 1,402 850 1,108 1,362

 Thread 167 130 101 101 106

 Trim 2,048 1,301 1,424 770 642

 Woven fabric 40,067 54,345 58,183 71,510 88,075

 Yarn 691 1,024 626 320 739

 Total 43,656 58,609 61,832 74,034 91,133

Source: World Bank, WITS Database (accessed December 3, 2008). 

TABLE 4.81 Mali: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 417 200 746 526 3,900

Imports 4,471 6,297 7,414 11,242 24,291

Source: World Bank, WITS Database (accessed December 16, 2008). 

Factors of Competitiveness 

Like many West African countries, Mali’s textile sector is based on its large cotton 

sector, which suffers from quality problems such as contamination. The cotton grading 

system in Mali is lax, and thus producers sell their cotton at inflated premiums, reducing 

the incentive to improve cotton quality (box 4.9). Fabric made with contaminated cotton 

cannot be dyed properly. According to one industry source, contaminated cotton may be 

best used to make bale wrap or bags for picking cotton, as these do not require dyeing.632

 

According to the World Bank, Mali ranked 166th out of 181 countries in 2009 for ease of 

doing business (table 3.3). Mali lacks the specialized and skilled workers needed for 

textile production, which increases cost in many Mali textile firms when expatriates have 

to be employed.633 Poor infrastructure continues to hinder economic growth, although 

improvements have been made in recent years. Because of its geographical position, 

coupled with its poor road network, firms in Mali face substantially high transportation 

costs. 634 In 2008, a World Bank project to finance road transport and transit 

improvements in Mali, Ghana, and Burkina Faso was initiated, with the goal to facilitate 

trade and regional economic integration.635 Improvements to Mali’s energy sector have 

 632 Industry representative, interview by Commission staff, Las Vegas, NV, February 17, 2009. 633 De Voest and Holtzman, “Adding Value to West African Cotton,” December 2006, 32. 634 EIU, Country Profile 2008: Mali, 2008, 11. 635 World Bank, “Regional Highway Initiative to Curb Illicit Payments, Cut Transit Cost,” (accessed 

April 14, 2009), September 18, 2008. 
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also begun. The government has invested in several new hydropower stations,636 and has 

implemented a program for the extension of electricity coverage.637 These investments 

have created a more stable energy supply, which has begun to positively impact 

production levels within the industrial sector.638 However, poor cotton quality, inadequate 

road and electricity infrastructure, lack of skilled labor, and a small apparel sector 

substantially constrain competitiveness in the textile and apparel inputs industry. 

Senegal 

Country Overview 

Located between Guinea-Bissau and Mauritania and bordering the Atlantic Ocean, 

Senegal had a population of 12.4 million and a GDP of $11.2 billion in 2007 (table 4.82). 

Senegal remains one of the most stable democracies in Africa.639

Industry Overview640

Senegal is not a significant producer of textile and apparel inputs, and is considered a 

minor cotton producer compared with Benin, Burkina Faso, and Mali (table G.1). The 

annual capacity of the Senegalese yarn and fabric industry is around 8,000 tons for 

spinning, 20 million meters for weaving, and 8 million meters for knitting; however, this 

capacity is not being fully utilized. 

Nearly one-half of the 42 textile firms in Senegal (13 of which also produce apparel) are 

locally owned; the remainder are split between foreign-owned operations and joint 

ventures between local and foreign interests.641 The five major textiles companies in 

Senegal are ICOTAF, NSTS-INDOSEN, SOTIBA, COSETEX, and COTOA. NSTSINDOSEN and ICOTAF specialize in spinning, weaving, dyeing, and knitting. NSTSINDOSEN also produces and supplies industrial fabric for hospitals.642 COTA specializes 

in heavy textiles, while SOTIBA and COSETEX specialize in dyeing and printing. 

SOTIBA also manufactures West African prints for clothing. 643 The main textile 

companies primarily operate for the domestic market, and have been negatively impacted 

by the increasing supply of cheaper textile imports from Asia as a result of trade 

liberalization.644

 636 EIU, Country Profile 2008: Mali, 2008, 12. 637 OECD and AfDB, “Mali,” 2008, 419. 638 EIU, Country Profile 2008: Mali, 2008, 17. 639 CIA, “Senegal,” (accessed January 28, 2009); World Bank, Snapshot Africa: Senegal, January 

2007, 6. 640 Unless otherwise noted, this section is based on U.S. Department of State, U.S. Embassy, Dakar, 

“Senegal’s Textile and Apparel Production,” October 1, 2007. 641 World Bank, Snapshot Africa: Senegal, January 2007, 9. 642 De Voest and Holtzman, “Adding Value to West African Cotton,” December 2006, 60. 643 Ibid., 61. 644 EIU, Country Profile 2008: Senegal, 2008, 21. 
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TABLE 4.82 Senegal: Basic economic indicators

Indicator Most recent yeara

GDP (current US$, millions, 2007) 11,151

GDP growth (annual %, 2007) 4.8

GDP per capita (current US$, 2007) 899

Population (millions, 2007) 12.4

Goods exports (current US$, millions, 2007) 1,698

Goods imports (current US$, millions, 2007) 4,452

Inflation, consumer prices (annual %, 2007) 5.9

Literacy rate, adult total (% of people ages 15 and above, 2002) 39.3

Labor force, total (millions, 2006) 4.8

Foreign direct investment, net inflows (BoP, current US$, millions, 2006) 58

Gross capital formation (current US$, millions, 2007) 3,558

Lending rate (%) (

b

)

Manufacturing value added (current US$, millions, 2007) 1,305

Prevalence of HIV, total (% of population 15–49, 2007) 1.0

Sources: World Bank, World Development Indicators Online; WTO, Statistics Database: Time Series on 

International Trade. GDP per capita calculated by Commission staff. 

Note: Indicator definitions are provided in app. I. 

 aMost recent year for which data are available. bNot available. 

Trade 

Senegal’s exports of textile and apparel inputs increased to $1.3 million in 2004, declined 

to one-half that amount in 2006, then returned to $1.3 million in 2007 (table 4.83). The 

majority of these exports consisted of woven fabric and yarn, and other SSA countries 

were the primary export destination in 2007 (table 4.84). Senegal’s trade deficit in 

apparel ($63.0 million in 2007) reflects, in part, the limited size of Senegal’s apparel 

industry (table 4.85). 

TABLE 4.83 Senegal: Exports of textile and apparel inputs, by destination, 2003–07 (1,000 $) 

Destination 2003 2004 2005 2006 2007

SSA countries 105 307 167 80 961

EU-27 204 260 166 161 121

Rest of world 251 682 492 336 246

United States 59 24 24 26 10

 Total 619 1,273 848 603 1,337

Source: World Bank, WITS Database (accessed December 3, 2008). 
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TABLE 4.84 Senegal: Exports and imports of textile and apparel inputs, by product group, 2003–07 

(1,000 $) 

Product group 2003 2004 2005 2006 2007

Exports: 

 Carded or combed fibers (a) 0 0 0 47

 Knit fabric 5 2 15 2 2

 Manmade fibers 4 5 0 2 0

 Other fabric 10 30 32 22 184

 Thread 1 0 0 0 59

 Trim 24 169 18 23 140

 Woven fabric 503 835 652 370 607

 Yarn 72 233 131 185 299

 Total 619 1,273 848 603 1,337

Imports: 

 Carded or combed fibers 30 57 46 135 107

 Knit fabric 824 748 1,660 9,318 2,233

 Manmade fibers 5,648 6,571 5,859 7,975 10,112

 Other fabric 2,704 3,925 2,205 2,047 3,563

 Thread 895 1,503 1,945 1,360 3,459

 Trim 7,001 10,358 20,943 13,723 22,128

 Woven fabric 55,267 61,815 74,590 98,245 119,217

 Yarn 4,386 5,553 4,884 4,824 7,452

 Total 76,756 90,529 112,132 137,626 168,271

Source: World Bank, WITS Database (accessed December 3, 2008). 

 aNot available. 

TABLE 4.85 Senegal: Exports and imports of apparel, 2003–07 (1,000 $) 

Item 2003 2004 2005 2006 2007

Exports 548 758 723 1,074 2,605

Imports 28,710 32,798 30,365 26,017 65,612

Source: World Bank, WITS Database (accessed December 16, 2008). 

Factors of Competitiveness645

Senegal is one of the most industrialized countries in the region,646 offering investors a 

stable political environment and an advantageous geographic location with major sea 

ports and nonstop flights from the United States.647 Senegal is considered competitive in 

air and sea transport costs relative to Asia and other West African countries.648 Senegal 

improved its standing between 2008 and 2009 in the World Bank’s Doing Business 2009 

ranking, moving from 168 out of 181 countries to 149.649 The improvement reflects 

regulatory reforms such as a “one-stop” shop for new businesses and customs clearance 

procedural improvements.650

 

Despite its geographic advantages and relative political stability, Senegal reportedly is a 

difficult place for textile and apparel firms to do business. Lack of access to bank loans is 

still a key constraint for small and medium-sized enterprises, as bank credit remains 

 645 Unless otherwise noted, this section is based on De Voest and Holtzman, “Adding Value to West 

African Cotton,” December 2006, 57-65. 646 World Bank, Snapshot Africa: Senegal, January 2007, 6. 647 U.S. Department of State, U.S. Embassy, Dakar, “Senegal: 2009 Investment Climate Report,” 

January 27, 2009. 648 World Bank, Snapshot Africa: Senegal, January 2007, 6. 649 World Bank, Doing Business 2009 Database (accessed March 3, 2009). 650 World Bank, Doing Business 2009: Country Profile for Senegal, 2008, 51. 
4-121 

concentrated in a few large corporations.651 Additionally, Senegalese textile firms have 

had a history of not repaying loans, which caused banks to stop financing Senegalese 

textile firms in the past. Further, the high cost and unreliability of electricity make it hard 

for Senegalese textile firms to compete. In addition, even though Senegal is aggressively 

trying to reduce contamination in cotton lint, the problem persists. The combination of 

Senegalese textile firms’ lack of access to credit, competition from large-scale imports of 

second-hand clothing, and low-quality cotton, reportedly have put many Senegal textile 

manufacturers on the verge of bankruptcy.652 

 651 OECD and AfDB, “Senegal,” 2008, 546. 652 World Bank, Snapshot Africa: Senegal, January 2007, 10. 
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Group 4: Countries that are Unlikely Candidates for 

Competitive Production of Textile and Apparel Inputs 

Group 4 consists of SSA countries that are unlikely candidates for competitive production 

of textile and apparel inputs in the near future.653 Commission staff has been unable to 

identify recent or current significant production of textile and apparel inputs, or 

significant commercial production of apparel in these countries. These countries 

generally lack sufficient infrastructure (e.g., reliable electricity supply, clean water for 

dyeing, paved roads, access to ports) for competitive production of textile and apparel 

inputs. In addition, the Group 4 countries tended to be relatively poor countries with 

weak domestic demand and low levels of FDI inflows. 

Group 4 Country Production of Textile and Apparel Inputs 

Available data indicate that Group 4 countries have no significant production of textile 

and apparel inputs. Group 4-country exports of textile and apparel inputs accounted for 

less than 0.5 percent of SSA country exports of textile and apparel inputs and less than 

0.005 percent of world exports of these products in 2007 (table 2.1).654

Available data indicate that Group 4 countries do not have sufficient levels of spinning 

and weaving capacity to produce textile and apparel inputs competitively. Based on 

ITMF data, only Angola and Niger reported spinning capacity (50,000 spindles and 

14,000 spindles, respectively), and only Angola reported weaving capacity (800 shuttle 

looms) in 2006 (table C.1). However, the U.S. Embassy in Angola reported that there is 

no commercial production of textile and apparel inputs in Angola.655 The U.S. Embassy 

in Niger reported that the lone remaining textile producer in Niger ceased manufacturing 

fabric in 2007.656 Group 4 countries’ spinning capacity accounted for only 2.5 percent of 

reported SSA spinning capacity, and their reported weaving capacity accounted for less 

than one percent of reported SSA weaving capacity in 2006. 

 653 Group 4 countries include Angola, Burundi, Cape Verde, Comoros, Democratic Republic of the 

Congo, Republic of the Congo, Djibouti, Gabon, The Gambia, Guinea, Guinea-Bissau, Liberia, Niger, 

Rwanda, São Tomé and Príncipe, Seychelles, and Sierra Leone. 654 WITS trade data indicate that Sierra Leone exported $3.4 million worth of textile and apparel inputs 

in 2007. However, Commission staff has been unable to identify any significant textile or apparel production 

in Sierra Leone. According to the EIU, “Industry is fairly limited in Sierra Leone: most local manufacturers 

produce consumer goods or building materials for the domestic market, such as beer and stout, oxygen, 

plastic footwear, paints, confectionery, salt, cement and soft drinks.” EIU, Country Profile 2008: Sierra 

Leone, 2008, 18. Given that Commission staff has been unable to identify significant textile and apparel 

production in Sierra Leone, Sierra Leone’s exports of textile and apparel inputs may represent 

transshipments. 655 The U.S. Embassy in Angola reported that “Angola has no textile or apparel industry. The last 

textile plant in Angola closed in 1998. One company twice attempted making clothing in Angola, but 

abandoned the effort because of costs and the difficulty in training staff. That company moved its operations 

to India.” U.S. Department of State, U.S. Embassy, Luanda, “USITC Study on Sub-Saharan Africa: Angola 

Overview,” October 17, 2008. 656 The U.S. Embassy in Niger reported that “Niger’s textile and apparel industry is tiny. The only 

remaining textile company, ENITEX, was privatized in 1998 and has had Chinese expatriate management 

since then. By 2005, ENITEX reported growing losses due to high costs of production, competition from 

firms in Asia and Nigeria, and soaring costs for imported inputs, including cotton and energy. In 2007, 

ENITEX ceased manufacturing fabric, but continues to produce printed fabric for local and regional markets 

using cotton fabric imported from China.” U.S. Department of State, U.S. Embassy, Luanda, “USITC Study 

on Sub-Saharan Africa: Angola Overview,” October 17, 2008. 
4-123 

Group 4 Country Apparel Production 

Available data also indicate that Group 4 countries have no significant apparel 

production. Group 4-country apparel exports accounted for less than 0.5 percent of 

SSA-country apparel exports and less than 0.005 percent of world exports of apparel in 

2007. Excluding Cape Verde and Sierra Leone, Group-4 country apparel exports 

accounted for only 0.1 percent of SSA country apparel exports in 2007.657

Group 4 Country Infrastructure 

Group 4 countries’ infrastructure is underdeveloped relative to other SSA countries, and 

to competitive textile and apparel input producing countries such as China and India. 

Group 4 countries’ per capita electricity production, number of Internet users, and paved 

roads were all lower than such infrastructure indicators for SSA countries as a whole, and 

for China and India (table 4.86). However, Group 4 countries’ per capita rail lines were 

comparable to per capita rail lines for SSA countries as a whole, and were higher than per 

capita rail lines for China and India. 

TABLE 4.86 Per capita electricity production, Internet users, paved roads, and rail lines, Group 4 countries, SSA 

countries, China, and India 

Country/region 

Per capita 

electricity 

production, 2005

Per capita 

Internet users

2006

Per capita 

paved roads, 

2004

Per capita

rail lines,

2005

 kWhs Meters 

Group 4 countries 150 0.007 0.140 0.104

SSA countries 633 0.031 0.209 0.108

China 1,914 0.104 1.169 0.048

India 639 0.108 (a) 0.058

Source: World Bank, World Development Indicators Online (accessed March 13, 2009 and April 13, 2009). 

 aData not available. 

Group 4 Economic Indicators 

Group 4 countries are relatively poor, with generally low levels of domestic demand, FDI 

inflows, and manufacturing value added (table 4.87). Group 4 countries’ comparatively 

low per capita GDP implies that Group 4 countries’ domestic demand for textile and 

apparel products is weak relative to other SSA countries, and to China and India.658

 657 WITS trade data indicate that Cape Verde exported $7.9 million worth of apparel in 2007. However, 

according to the EIU, the Cape Verde economy is dominated by the services sector—mainly tourism, 

transport, commerce and government services—which accounted for 76 percent of GDP in 2006. The Cape 

Verde manufacturing sector, which is dominated by clothing and shoes, has been declining as a fraction of 

GDP in the last 10 years as the services and construction sectors have grown more rapidly. EIU, Country 

Profile 2008: Cape Verde, 2008, 15. Therefore, it appears that the economy of Cape Verde is shifting away 

from textile and apparel manufacturing. As noted above, Commission staff has been unable to identify any 

significant textile or apparel production in Sierra Leone. Therefore, Sierra Leone’s reported exports of 

apparel may represent transshipments. 658 Seychelles per capita GDP is relatively high ($7,408 in 2007). However, according to the EIU, the 

services sector in Seychelles dominates the economy, accounting for nearly 70 percent of GDP in recent 

years. Canning tuna is the main manufacturing activity in Seychelles; apart from the tuna cannery, 

manufacturing in Seychelles is constrained by the small size of its local market. This suggests that Seychelles 

has little incentive or ability to develop commercial production of textile and apparel inputs. EIU, Country 

Profile 2008: Seychelles, 2008, 11, 15. 
4-124 

Group 4 countries’ per capita FDI net inflows and manufacturing value added were also 

substantially below such indicators for SSA countries as a whole, and for China and 

India. Low levels of FDI net inflows and manufacturing value-added suggest that Group 

4 countries’ manufacturing sector is relatively undeveloped. 

TABLE 4.87 Per capita GDP and FDI inflows, Group 4 countries, SSA countries, and the United States (US $) 

Country/region Per capita GDP, 2007

Per capita

FDI, net 

inflows, 2006

Per capita 

manufacturing

value-added,2005

Group 4 countries 368 9 20

SSA countries 615 17 102

China 2,485 60 576

India 1,042 16 107

Source: World Bank, World Development Indicators Online (accessed March 13, 2009). 

 aData not available. 
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APPENDIX A 

Section 3 of Public Law 110-436 

PUBLIC LAW 110–436—OCT. 16, 2008 

ANDEAN TRADE PREFERENCE EXTENSION 


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122 STAT. 4976 PUBLIC LAW 110–436—OCT. 16, 2008 

Public Law 110–436 

110th Congress 

An Act 

To extend the Andean Trade Preference Act, and for other purposes. 

Be it enacted by the Senate and House of Representatives of 

the United States of America in Congress assembled, 

SECTION 1. EXTENSION OF ANDEAN TRADE PREFERENCE ACT. 

(a) EXTENSION.—Section 208 of the Andean Trade Preference 

Act (19 U.S.C. 3206) is amended to read as follows: 

‘‘SEC. 208. TERMINATION OF PREFERENTIAL TREATMENT. 

‘‘(a) IN GENERAL.—No duty-free treatment or other preferential 

treatment extended to beneficiary countries under this title shall— 

‘‘(1) remain in effect with respect to Colombia or Peru 

after December 31, 2009; 

‘‘(2) remain in effect with respect to Ecuador after June 

30, 2009, except that duty-free treatment and other preferential 

treatment under this title shall remain in effect with respect 

to Ecuador during the period beginning on July 1, 2009, and 

ending on December 31, 2009, unless the President reviews 

the criteria set forth in section 203, and on or before June 

30, 2009, reports to the Committee on Finance of the Senate 

and the Committee on Ways and Means of the House of Representatives pursuant to subsection (b) that— 

‘‘(A) the President has determined that Ecuador does 

not satisfy the requirements set forth in section 203(c) 

for being designated as a beneficiary country; and 

‘‘(B) in making that determination, the President has 

taken into account each of the factors set forth in section 

203(d); and 

‘‘(3) remain in effect with respect to Bolivia after June 

30, 2009, except that duty-free treatment and other preferential 

treatment under this title shall remain in effect with respect 

to Bolivia during the period beginning on July 1, 2009, and 

ending on December 31, 2009, only if the President reviews 

the criteria set forth in section 203, and on or before June 

30, 2009, reports to the Committee on Finance of the Senate 

and the Committee on Ways and Means of the House of Representatives pursuant to subsection (b) that— 

‘‘(A) the President has determined that Bolivia satisfies 

the requirements set forth in section 203(c) for being designated as a beneficiary country; and 

‘‘(B) in making that determination, the President has 

taken into account each of the factors set forth in section 

203(d). 

Foreign 

countries. 

Time period. 

Reports. 

Deadline. 

President. 

Oct. 16, 2008 

[H.R. 7222] 


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PUBLIC LAW 110–436—OCT. 16, 2008 122 STAT. 4977 

‘‘(b) REPORTS.—On or before June 30, 2009, the President shall 

make determinations pursuant to subsections (a)(2)(A) and (a)(3)(A) 

and report to the Committee on Finance of the Senate and the 

Committee on Ways and Means of the House of Representatives 

on— 

‘‘(1) such determinations; and 

‘‘(2) the reasons for such determinations.’’. 

(b) TREATMENT OF CERTAIN APPAREL ARTICLES.—Section 

204(b)(3) of such Act (19 U.S.C. 3203(b)(3)) is amended— 

(1) in subparagraph (B)— 

(A) in clause (iii)— 

(i) in subclause (II), by striking ‘‘6 succeeding 1- 

year periods’’ and inserting ‘‘7 succeeding 1-year 

periods’’; and 

(ii) in subclause (III)(bb), by striking ‘‘and for the 

succeeding 1-year period’’ and inserting ‘‘and for the 

succeeding 2-year period’’; and 

(B) in clause (v)(II), by striking ‘‘5 succeeding 1-year 

periods’’ and inserting ‘‘6 succeeding 1-year periods’’; and 

(2) in subparagraph (E)(ii)(II), by striking ‘‘December 31, 

2008’’ and inserting ‘‘December 31, 2009’’. 

SEC. 2. EARNED IMPORT ALLOWANCE PROGRAM. 

(a) IN GENERAL.—Title IV of the Dominican Republic-Central 

America-United States Free Trade Agreement Implementation Act 

(Public Law 109–53; 119 Stat. 495) is amended by adding at the 

end the following: 

‘‘SEC. 404. EARNED IMPORT ALLOWANCE PROGRAM. 

‘‘(a) PREFERENTIAL TREATMENT.— 

‘‘(1) IN GENERAL.—Eligible apparel articles wholly assembled in an eligible country and imported directly from an eligible 

country shall enter the United States free of duty, without 

regard to the source of the fabric or yarns from which the 

articles are made, if such apparel articles are accompanied 

by an earned import allowance certificate that reflects the 

amount of credits equal to the total square meter equivalents 

of fabric in such apparel articles, in accordance with the program established under subsection (b). 

‘‘(2) DETERMINATION OF QUANTITY OF SME.—For purposes 

of determining the quantity of square meter equivalents under 

paragraph (1), the conversion factors listed in ‘Correlation: U.S. 

Textile and Apparel Industry Category System with the Harmonized Tariff Schedule of the United States of America, 2008’, 

or its successor publications, of the United States Department 

of Commerce, shall apply. 

‘‘(b) EARNED IMPORT ALLOWANCE PROGRAM.— 

‘‘(1) ESTABLISHMENT.—The Secretary of Commerce shall 

establish a program to provide earned import allowance certificates to any producer or entity controlling production of eligible 

apparel articles in an eligible country for purposes of subsection 

(a), based on the elements described in paragraph (2). 

‘‘(2) ELEMENTS.—The elements referred to in paragraph 

(1) are the following: 

‘‘(A) One credit shall be issued to a producer or an 

entity controlling production for every two square meter 

equivalents of qualifying fabric that the producer or entity 

Applicability. 

19 USC 4112. 


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122 STAT. 4978 PUBLIC LAW 110–436—OCT. 16, 2008 

controlling production can demonstrate that it has purchased for the manufacture in an eligible country of articles 

like or similar to any article eligible for preferential treatment under subsection (a). The Secretary of Commerce 

shall, if requested by a producer or entity controlling 

production, create and maintain an account for such producer or entity controlling production, into which such 

credits may be deposited. 

‘‘(B) Such producer or entity controlling production may 

redeem credits issued under subparagraph (A) for earned 

import allowance certificates reflecting such number of 

earned credits as the producer or entity may request and 

has available. 

‘‘(C) Any textile mill or other entity located in the 

United States that exports qualifying fabric to an eligible 

country may submit, upon such export or upon request, 

the Shipper’s Export Declaration, or successor documentation, to the Secretary of Commerce— 

‘‘(i) verifying that the qualifying fabric was 

exported to a producer or entity controlling production 

in an eligible country; and 

‘‘(ii) identifying such producer or entity controlling 

production, and the quantity and description of qualifying fabric exported to such producer or entity controlling production. 

‘‘(D) The Secretary of Commerce may require that a 

producer or entity controlling production submit documentation to verify purchases of qualifying fabric. 

‘‘(E) The Secretary of Commerce may make available 

to each person or entity identified in the documentation 

submitted under subparagraph (C) or (D) information contained in such documentation that relates to the purchase 

of qualifying fabric involving such person or entity. 

‘‘(F) The program shall be established so as to allow, 

to the extent feasible, the submission, storage, retrieval, 

and disclosure of information in electronic format, including 

information with respect to the earned import allowance 

certificates required under subsection (a)(1). 

‘‘(G) The Secretary of Commerce may reconcile discrepancies in the information provided under subparagraph 

(C) or (D) and verify the accuracy of such information. 

‘‘(H) The Secretary of Commerce shall establish procedures to carry out the program under this section by September 30, 2008, and may establish additional requirements to carry out the program. 

‘‘(c) DEFINITIONS.—For purposes of this section— 

‘‘(1) the term ‘appropriate congressional committees’ means 

the Committee on Ways and Means of the House of Representatives and the Committee on Finance of the Senate; 

‘‘(2) the term ‘eligible apparel articles’ means the following 

articles classified in chapter 62 of the HTS (and meeting the 

requirements of the rules relating to chapter 62 of the HTS 

contained in general note 29(n) of the HTS) of cotton (but 

not of denim): trousers, bib and brace overalls, breeches and 

shorts, skirts and divided skirts, and pants; 

‘‘(3) the term ‘eligible country’ means the Dominican 

Republic; and 

Procedures. 

Deadline. 


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PUBLIC LAW 110–436—OCT. 16, 2008 122 STAT. 4979 

‘‘(4) the term ‘qualifying fabric’ means woven fabric of 

cotton wholly formed in the United States from yarns wholly 

formed in the United States and certified by the producer 

or entity controlling production as being suitable for use in 

the manufacture of apparel items such as trousers, bib and 

brace overalls, breeches and shorts, skirts and divided skirts 

or pants, all the foregoing of cotton, except that— 

‘‘(A) fabric otherwise eligible as qualifying fabric shall 

not be ineligible as qualifying fabric because the fabric 

contains nylon filament yarn with respect to which section 

213(b)(2)(A)(vii)(IV) of the Caribbean Basin Economic 

Recovery Act applies; 

‘‘(B) fabric that would otherwise be ineligible as qualifying fabric because the fabric contains yarns not wholly 

formed in the United States shall not be ineligible as 

qualifying fabric if the total weight of all such yarns is 

not more than 10 percent of the total weight of the fabric, 

except that any elastomeric yarn contained in an eligible 

apparel article must be wholly formed in the United States; 

and 

‘‘(C) fabric otherwise eligible as qualifying fabric shall 

not be ineligible as qualifying fabric because the fabric 

contains yarns or fibers that have been designated as not 

commercially available pursuant to— 

‘‘(i) article 3.25(4) or Annex 3.25 of the Agreement; 

‘‘(ii) Annex 401 of the North American Free Trade 

Agreement; 

‘‘(iii) section 112(b)(5) of the African Growth and 

Opportunity Act; 

‘‘(iv) section 204(b)(3)(B)(i)(III) or (ii) of the Andean 

Trade Preference Act; 

‘‘(v) section 213(b)(2)(A)(v) or 213A(b)(5)(A) of the 

Caribbean Basin Economic Recovery Act; or 

‘‘(vi) any other provision, relating to determining 

whether a textile or apparel article is an originating 

good eligible for preferential treatment, of a law that 

implements a free trade agreement entered into by 

the United States that is in effect at the time the 

claim for preferential treatment is made. 

‘‘(d) REVIEW AND REPORT.— 

‘‘(1) REVIEW.—The United States International Trade 

Commission shall carry out a review of the program under 

this section annually for the purpose of evaluating the effectiveness of, and making recommendations for improvements in, 

the program. 

‘‘(2) REPORT.—The United States International Trade 

Commission shall submit to the appropriate congressional 

committees annually a report on the results of the review 

carried out under paragraph (1). 

‘‘(e) EFFECTIVE DATE AND APPLICABILITY.— 

‘‘(1) EFFECTIVE DATE.—The program under this section 

shall be in effect for the 10-year period beginning on the date 

on which the President certifies to the appropriate congressional 

committees that sections A, B, C, and D of the Annex to 

Presidential Proclamation 8213 (December 20, 2007) have taken 

effect. 

President. 

Certification. 


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122 STAT. 4980 PUBLIC LAW 110–436—OCT. 16, 2008 

‘‘(2) APPLICABILITY.—The program under this section shall 

apply with respect to qualifying fabric exported to an eligible 

country on or after August 1, 2007.’’. 

(b) CLERICAL AMENDMENT.—The table of contents for the 

Dominican Republic-Central America-United States Free Trade 

Agreement Implementation Act is amended by inserting after the 

item relating to section 403 the following: 

‘‘Sec. 404. Earned import allowance program.’’. 

SEC. 3. AFRICAN GROWTH AND OPPORTUNITY ACT. 

(a) IN GENERAL.—Section 112 of the African Growth and Opportunity Act (19 U.S.C. 3721) is amended— 

(1) in subsection (b)(6)(A), by striking ‘‘ethic’’ in the second 

sentence and inserting ‘‘ethnic’’; and 

(2) in subsection (c)— 

(A) in paragraph (1), by striking ‘‘, and subject to 

paragraph (2),’’; 

(B) by striking paragraphs (2) and (3); 

(C) in paragraph (4)— 

(i) by striking ‘‘Subsection (b)(3)(C)’’ and inserting 

‘‘Subsection (b)(3)(B)’’; and 

(ii) by redesignating such paragraph (4) as paragraph (2); and 

(D) by striking paragraph (5) and inserting the following: 

‘‘(3) DEFINITION.—In this subsection, the term ‘lesser developed beneficiary sub-Saharan African country’ means— 

‘‘(A) a beneficiary sub-Saharan African country that had a per capita gross national product of less than $1,500 

in 1998, as measured by the International Bank for 

Reconstruction and Development; 

‘‘(B) Botswana; 

‘‘(C) Namibia; and 

‘‘(D) Mauritius.’’. 

(b) APPLICABILITY.—The amendments made by subsection (a) 

apply to goods entered, or withdrawn from warehouse for consumption, on or after the 15th day after the date of the enactment 

of this Act. 

(c) REVIEW AND REPORTS.— 

(1) ITC REVIEW AND REPORT.— 

(A) REVIEW.—The United States International Trade 

Commission shall conduct a review to identify yarns, fabrics, and other textile and apparel inputs that through 

new or increased investment or other measures can be 

produced competitively in beneficiary sub-Saharan African 

countries. 

(B) REPORT.—Not later than 7 months after the date 

of the enactment of this Act, the United States International Trade Commission shall submit to the appropriate 

congressional committees and the Comptroller General a 

report on the results of the review carried out under 

subparagraph (A). 

(2) GAO REPORT.—Not later than 90 days after the submission of the report under paragraph (1)(B), the Comptroller 

General shall submit to the appropriate congressional committees a report that, based on the results of the report submitted 

19 USC 3721 

note. 


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PUBLIC LAW 110–436—OCT. 16, 2008 122 STAT. 4981 

under paragraph (1)(B) and other available information, contains recommendations for changes to United States trade preference programs, including the African Growth and Opportunity Act (19 U.S.C. 3701 et seq.) and the amendments made 

by that Act, to provide incentives to increase investment and 

other measures necessary to improve the competitiveness of 

beneficiary sub-Saharan African countries in the production 

of yarns, fabrics, and other textile and apparel inputs identified 

in the report submitted under paragraph (1)(B), including 

changes to requirements relating to rules of origin under such 

programs. 

(3) DEFINITIONS.—In this subsection— 

(A) the term ‘‘appropriate congressional committees’’ 

means the Committee on Ways and Means of the House 

of Representatives and the Committee on Finance of the 

Senate; and 

(B) the term ‘‘beneficiary sub-Saharan African countries’’ has the meaning given the term in section 506A(c) 

of the Trade Act of 1974 (19 U.S.C. 2466a(c)). 

(d) CLERICAL AMENDMENT.—Section 6002(a)(2)(B) of Public Law 

109–432 is amended by striking ‘‘(B) by striking’’ and inserting 

‘‘(B) in paragraph (3), by striking’’. 

SEC. 4. GENERALIZED SYSTEM OF PREFERENCES. 

Section 505 of the Trade Act of 1974 (19 U.S.C. 2465) is 

amended by striking ‘‘December 31, 2008’’ and inserting ‘‘December 

31, 2009’’. 

SEC. 5. CUSTOMS USER FEES. 

(a) IN GENERAL.—Section 13031(j)(3) of the Consolidated Omnibus Budget Reconciliation Act of 1985 (19 U.S.C. 58c(j)(3)) is 

amended— 

(1) in subparagraph (A), by striking ‘‘November 14, 2017’’ 

and inserting ‘‘February 14, 2018’’; and 

(2) in subparagraph (B)(i), by striking ‘‘October 7, 2017’’ 

and inserting ‘‘January 31, 2018’’. 

(b) REPEAL.—Section 15201 of the Food, Conservation, and 

Energy Act of 2008 (Public Law 110–246) is amended by striking 

subsections (c) and (d). 

SEC. 6. TIME FOR PAYMENT OF CORPORATE ESTIMATED TAXES. 

The percentage under subparagraph (C) of section 401(1) of 

the Tax Increase Prevention and Reconciliation Act of 2005 in 

effect on the date of the enactment of this Act is increased by 

2 percentage points. 

SEC. 7. TECHNICAL CORRECTIONS. 

Section 15402 of the Food, Conservation, and Energy Act of 

2008 (Public Law 110–246) is amended— 

(1) in subsections (a) and (b), by striking ‘‘Carribean’’ each 

place it appears and inserting ‘‘Caribbean’’; and 

Ante, p. 2289. 

26 USC 6655 

note. 

Ante, p. 2262. 

19 USC 3721. 


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A-9
122 STAT. 4982 PUBLIC LAW 110–436—OCT. 16, 2008 

LEGISLATIVE HISTORY—H.R. 7222: 

CONGRESSIONAL RECORD, Vol. 154 (2008): 

Sept. 29, considered and passed House. 

Oct. 2, considered and passed Senate, amended. 

Oct. 3, House concurred in Senate amendment. 

WEEKLY COMPILATION OF PRESIDENTIAL DOCUMENTS, Vol. 44 (2008): 

Oct. 16, Presidential remarks. 

Æ 

(2) in subsection (d), by striking ‘‘231A(b)’’ and inserting 

‘‘213A(b)’’. 

Approved October 16, 2008. 


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A-10
APPENDIX B 

Federal Register Notice

Federal Register / Vol. 73, No. 228 / Tuesday, November 25, 2008 / Notices 71681 

Commission Building. Oral testimony 

and written materials to be submitted at 

the public hearing are governed by 

sections 201.6(b)(2), 201.13(f), and 

207.24 of the Commission’s rules. 

Parties must submit any request to 

present a portion of their hearing 

testimony in camera no later than 7 

business days prior to the date of the 

hearing. 

Written submissions.—Each party 

who is an interested party shall submit 

a prehearing brief to the Commission. 

Prehearing briefs must conform with the 

provisions of section 207.23 of the 

Commission’s rules; the deadline for 

filing is February 12, 2009. Parties may 

also file written testimony in connection 

with their presentation at the hearing, as 

provided in section 207.24 of the 

Commission’s rules, and posthearing 

briefs, which must conform with the 

provisions of section 207.25 of the 

Commission’s rules. The deadline for 

filing posthearing briefs is March 4, 

2009; witness testimony must be filed 

no later than three days before the 

hearing. In addition, any person who 

has not entered an appearance as a party 

to the investigation may submit a 

written statement of information 

pertinent to the subject of the 

investigation, including statements of 

support or opposition to the petition, on 

or before March 4, 2009. On March 18, 

2009, the Commission will make 

available to parties all information on 

which they have not had an opportunity 

to comment. Parties may submit final 

comments on this information on or 

before March 20, 2009, but such final 

comments must not contain new factual 

information and must otherwise comply 

with section 207.30 of the Commission’s 

rules. All written submissions must 

conform with the provisions of section 

201.8 of the Commission’s rules; any 

submissions that contain BPI must also 

conform with the requirements of 

sections 201.6, 207.3, and 207.7 of the 

Commission’s rules. The Commission’s 

rules do not authorize filing of 

submissions with the Secretary by 

facsimile or electronic means, except to 

the extent permitted by section 201.8 of 

the Commission’s rules, as amended, 67 

FR 68036 (November 8, 2002). Even 

where electronic filing of a document is 

permitted, certain documents must also 

be filed in paper form, as specified in II 

(C) of the Commission’s Handbook on 

Electronic Filing Procedures, 67 FR 

68168, 68173 (November 8, 2002). 

Additional written submissions to the 

Commission, including requests 

pursuant to section 201.12 of the 

Commission’s rules, shall not be 

accepted unless good cause is shown for 

accepting such submissions, or unless 

the submission is pursuant to a specific 

request by a Commissioner or 

Commission staff. 

In accordance with sections 201.16(c) 

and 207.3 of the Commission’s rules, 

each document filed by a party to the 

investigation must be served on all other 

parties to the investigation (as identified 

by either the public or BPI service list), 

and a certificate of service must be 

timely filed. The Secretary will not 

accept a document for filing without a 

certificate of service. 

Authority: This investigation is being 

conducted under authority of title VII of 

the Tariff Act of 1930; this notice is 

published pursuant to section 207.21 of 

the Commission’s rules. 

Issued: November 18, 2008. 

By order of the Commission. 

William R. Bishop, 

Acting Secretary to the Commission. 

[FR Doc. E8–27911 Filed 11–24–08; 8:45 am] 

BILLING CODE 7020–02–P 

INTERNATIONAL TRADE 

COMMISSION 

[Investigation No. 332–502] 

Sub-Saharan African Textile and 

Apparel Inputs: Potential for 

Competitive Production 

AGENCY: United States International 

Trade Commission. 

ACTION: Institution of investigation. 

SUMMARY: Pursuant to section 3(c)(1) of 

Public Law 110–436, An Act to extend 

the Andean Trade Preference Act, and 

for other purposes (‘‘the Act’’), and 

pursuant to section 332(g) of the Tariff 

Act of 1930 (19 U.S.C. 1332(g)), the U.S. 

International Trade Commission 

(Commission) has instituted 

investigation No. 332–502, Sub-Saharan 

African Textile and Apparel Inputs: 

Potential for Competitive Production. 

DATES: 

January 15, 2009: Deadline for filing 

request to appear at the public hearing. 

January 17, 2009: Deadline for filing 

pre-hearing briefs and statements. 

January 29, 2009: Public hearing. 

February 12, 2009: Deadline for filing 

post-hearing briefs and statements. 

February 24, 2009: Deadline for filing 

all other written submissions. 

May 15, 2009: Transmittal of 

Commission report to the appropriate 

congressional committees and the 

Comptroller General. 

ADDRESSES: All Commission offices, 

including the Commission’s hearing 

rooms, are located in the United States 

International Trade Commission 

Building, 500 E Street, SW., 

Washington, DC. All written 

submissions should be addressed to the 

Secretary, United States International 

Trade Commission, 500 E Street, SW., 

Washington, DC 20436. The public 

record for this investigation may be 

viewed on the Commission’s electronic 

docket (EDIS) at http://www.usitc.gov/ 

secretary/edis.htm. 

FOR FURTHER INFORMATION CONTACT: 

Project leader Kimberlie Freund (202– 

708–5402 or 

kimberlie.freund@usitc.gov) or deputy 

project leader Joshua Levy (202–205– 

3236 or joshua.levy@usitc.gov) for 

information specific to this 

investigation. For information on the 

legal aspects of this investigation, 

contact William Gearhart of the 

Commission’s Office of the General 

Counsel (202–205–3091 or 

william.gearhart@usitc.gov). The media 

should contact Margaret O’Laughlin, 

Office of External Relations (202–205– 

1819 or margaret.olaughlin@usitc.gov). 

Hearing-impaired individuals may 

obtain information on this matter by 

contacting the Commission’s TDD 

terminal at 202–205–1810. General 

information concerning the Commission 

may also be obtained by accessing its 

Internet site (http://www.usitc.gov). 

Persons with mobility impairments who 

will need special assistance in gaining 

access to the Commission should 

contact the Office of the Secretary at 

202–205–2000. 

Background: On October 16, 2008, the 

President signed into law Public Law 

No. 110–436, An Act to extend the 

Andean Trade Preference Act, and for 

other purposes. Section 3(c)(1) of the 

Act requires the Commission to conduct 

a review to identify yarns, fabrics, and 

other textile and apparel inputs that 

through new or increased investment or 

other measures can be produced 

competitively in beneficiary subSaharan African (SSA) countries (as 

defined in section 506A(c) of the Trade 

Act of 1974, 19 U.S.C. 2466a(c)). The 

Act requires the Commission to report 

the results of its review to the House 

Committee on Ways and Means and the 

Senate Committee on Finance (the 

committees), and the Comptroller 

General, not later than 7 months after 

enactment of the law (by May 15, 2009). 

Section 3(c)(2) of the Act requires the 

Comptroller General to submit a report 

to the committees based on the 

Commission’s report and other available 

information not later than 90 days after 

receiving the Commission’s report. The 

Comptroller General’s report is to 

include recommendations for changes 

in U.S. trade preference programs, 


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B-3
71682 Federal Register / Vol. 73, No. 228 / Tuesday, November 25, 2008 / Notices 

including the African Growth and 

Opportunity Act (19 U.S.C. 3701) and 

amendments made by that act, to 

provide incentives to increase 

investment and other measures to 

improve the competitiveness of 

beneficiary SSA countries in the 

production of yarns, fabrics, and other 

textile and apparel inputs identified in 

the Commission’s report, including 

changes to requirements relating to rules 

of origin under such programs. 

The Commission also instituted this 

investigation pursuant to section 332(g) 

of the Tariff Act of 1930 to facilitate 

docketing of submissions and public 

access to Commission records through 

the Commission’s EDIS electronic 

records system. 

Public Hearing: A public hearing in 

connection with this investigation will 

be held at the U.S. International Trade 

Commission Building, 500 E Street, 

SW., Washington, DC, beginning at 9:30 

a.m. on January 29, 2009. Requests to 

appear at the public hearing should be 

filed with the Secretary not later than 

5:15 p.m., January 15, 2009, in 

accordance with the requirements in the 

‘‘Submissions’’ section below. All prehearing briefs and statements should be 

filed not later than 5:15 p.m., January 

17, 2009, and all post-hearing briefs and 

statements responding to matters raised 

at the hearing should be filed not later 

than 5:15 p.m., February 12, 2009. In the 

event that, as of the close of business on 

January 15, 2009, no witnesses are 

scheduled to appear at the hearing, the 

hearing will be canceled. Any person 

interested in attending the hearing as an 

observer or nonparticipant may call the 

Office of the Secretary (202–205–2000) 

after January 15, 2009, for information 

concerning whether the hearing will be 

held. 

Written Submissions: In lieu of or in 

addition to participating in the hearing, 

interested parties are invited to submit 

written statements concerning this 

investigation. All written submissions 

should be addressed to the Secretary 

and should be received not later than 

5:15 p.m., February 24, 2009. All 

written submissions must conform with 

the provisions of section 201.8 of the 

Commission’s Rules of Practice and 

Procedure (19 CFR 201.8). Section 201.8 

of the rules requires that a signed 

original (or a copy designated as an 

original) and fourteen (14) copies of 

each document be filed. In the event 

that confidential treatment of the 

document is requested, at least four (4) 

additional copies must be filed, in 

which the confidential information 

must be deleted (see the following 

paragraph for further information 

regarding confidential business 

information). The Commission’s rules 

do not authorize filing submissions with 

the Secretary by facsimile or electronic 

means, except to the extent permitted by 

section 201.8 of the rules (see Handbook 

for Electronic Filing Procedures, http:// 

www.usitc.gov/secretary/ 

fed_reg_notices/rules/documents/ 

handbook_on_electronic_filing.pdf); 

persons with questions regarding 

electronic filing should contact the 

Secretary at 202–205–2000. Any 

submission that contains confidential 

business information must also conform 

with the requirements of section 201.6 

of the Commission’s Rules of Practice 

and Procedure (19 CFR 201.6). Section 

201.6 of the rules requires that the cover 

of the document and the individual 

pages be clearly marked as to whether 

they are the ‘‘confidential’’ or ‘‘nonconfidential’’ version, and that the 

confidential business information be 

clearly identified by means of brackets. 

All written submissions, except for 

confidential business information, will 

be made available in the Office of the 

Secretary for inspection by interested 

parties. The Commission anticipates 

that the report it sends to the 

committees and the Comptroller General 

in this investigation will be made 

available to the public in its entirety. 

Consequently, the report that the 

Commission sends to the committees 

and the Comptroller General will not 

contain any confidential business 

information. Any confidential business 

information received by the 

Commission in this investigation and 

used in preparing its report will not be 

published in a manner that would 

reveal the operations of the firm 

supplying the information. 

By order of the Commission. 

Issued: November 19, 2008. 

William R. Bishop, 

Acting Secretary to the Commission. 

[FR Doc. E8–27903 Filed 11–24–08; 8:45 am] 

BILLING CODE 7020–02–P 

DEPARTMENT OF JUSTICE 

Antitrust Division 

United States v. Inbev NV/SA; 

Proposed Final Judgment and 

Competitive Impact Statement 

Notice is hereby given pursuant to the 

Antitrust Procedures and Penalties Act, 

15 U.S.C. 16(b)–(h), that a proposed 

Final Judgment, Hold Separate 

Stipulation and Order, and Competitive 

Impact Statement have been filed with 

the United States District Court for the 

District of Columbia in United States v. 

InBev NV/SA, Civ. Action No. 08–cv– 

01965. On November 14, 2008, the 

United States filed a Complaint alleging 

that the proposed acquisition by InBev 

NV/SA of Anheuser-Busch Companies, 

Inc., would violate section 7 of the 

Clayton Act, 15 U.S.C. 18. The 

Complaint alleges that the acquisition 

would substantially reduce competition 

for sale of beer in the Buffalo, Rochester, 

and Syracuse, New York metropolitan 

areas. The proposed Final Judgment, 

filed at the same time as the Complaint, 

requires InBev to divest Labatt USA and 

grant a perpetual license to the acquirer 

to brew and sell Labatt brand beer for 

consumption throughout the United 

States. 

Copies of the Complaint, proposed 

Final Judgment, and Competitive Impact 

Statement are available for inspection at 

the Department of Justice, Antitrust 

Division, Antitrust Documents Group, 

450 Fifth Street, NW., Suite 1010, 

Washington, DC 20530 (202–514–2481), 

on the Department of Justice Web site 

(http://www.usdoj.gov/atr), and at the 

Office of the Clerk of the United States 

District Court for the District of 

Columbia. Copies of these materials may 

be obtained from the Antitrust Division 

upon request and payment of the 

copying fee set by Department of Justice 

regulations. 

Public comment is invited within 60 

days of the date of this notice. Such 

comments, and responses thereto, will 

be published in the Federal Register 

and filed with the Court. Comments 

should be directed to Joshua H. Soven, 

Chief, Litigation I Section, Antitrust 

Division, Department of Justice, 1401 H 

Street, NW., Suite 4000, Washington, 

DC 20530 (202–307–0001). 

Patricia A. Brink, 

Deputy Director, Office of Operations. 

United States of America, 1401 H 

Street, NW.,—Suite 4000, Washington, 

DC 20530. Plaintiff, v. Inbev N.V./S.A. 

Brouwerijplein 1, 3000 Leuven, 

Belgium, Inbev USA LLC, 50 Fountain 

Plaza—Suite 900, Buffalo, NY 14202, 

and Anheuser-Busch Companies, Inc., 

One Busch Place, St. Louis, MO 63118, 

Defendants. Case: 1:08–cv–01965, 

Assigned to: Robertson, James, Assign. 

Date: 11/14/2008, Description: 

Antitrust. 

Complaint 

The United States of America, acting 

under the direction of the Attorney 

General of the United States, brings this 

civil action to enjoin the proposed 

acquisition of Anheuser-Busch 

Companies, Inc. (‘‘Anheuser-Busch’’) by 

InBev N.V./S.A. (‘‘InBev’’) and to obtain 


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B-4
APPENDIX C 

Spinning, Weaving, and Knitting Machinery 

Data 

C-3 

TABLE C.1 Spinning machinery: Installed capacity and cumulative shipments 

2006 installed spinning capacity Cumulative shipments, 1998–2007 

Country Short staple Long staple

Open-end 

rotors Short staple Long staple 

Open-end 

rotors

Group 1 

 Ethiopia 200,000 1,000 5,000 19,824 120 5,016

 Kenya 100,000 4,000 1,200 5,856 0 0

 Lesotho 0 0 2,000 0 0 2,016

 Madagascar 19,968 0 1,296 0 0 0

 Mauritius 88,000 1,000 800 112,800 0 800

 Nigeria 700,000 3,000 23,000 26,172 0 8,480

 South Africa 158,964 60,000 15,556 197,160 1,152 4,520

 Swaziland 54,000 0 0 0 0 0

 Tanzania 400,000 3,000 0 26,880 0 0

 Zambia 100,000 3,000 2,500 10,920 0 0

 Subtotal 1,820,932 75,000 51,352 399,612 1,272 20,832

Group 2 

 Botswana 15,000 0 1,500 0 0 0

 Ghana 120,000 0 0 0 0 0

 Malawi 50,000 0 0 0 0 0

 Mozambique 50,000 0 0 0 0 0

 Namibia (a

) (a) (a) (a) (a) (a)

 Uganda 50,000 0 1,200 11,088 0 1,112

 Subtotal 285,000 0 2,700 11,088 0 1,112

Group 3 

 Benin 60,000 0 0 21,000 0 5,988

 Burkina Faso 7,000 0 0 0 0 0

 Cameroon 55,000 1,000 0 0 0 0

 Chad 8,000 0 35,000 18,144 0 0

 Mali 40,000 0 0 10,500 0 0

 Senegal 25,000 0 0 0 0 0

 Togo 25,000 0 0 0 0 0

 Subtotal 220,000 1,000 35,000 49,644 0 5,988

Group 4 

 Angola 50,000 0 0 0 0 0

 Burundi (

a

) (a) (a) (a) (a) (a)

 Cape Verde (

a

) (a) (a) (a) (a) (a)

 Comoros (

a

) (a) (a) (a) (a) (a)

 Congo, Dem. Rep. (

a

) (a) (a) (a) (a) (a)

 Congo, Rep. (

a

) (a) (a) (a) (a) (a)

 Djibouti (

a

) (a) (a) (a) (a) (a)

 Gabon (

a

) (a) (a) (a) (a) (a)

 Gambia, The (

a

) (a) (a) (a) (a) (a)

 Guinea (

a

) (a) (a) (a) (a) (a)

 Guinea-Bissau (

a

) (a) (a) (a) (a) (a)

 Liberia (

a

) (a) (a) (a) (a) (a)

 Niger 14,000 0 0 0 0 0

 Rwanda (

a

) (a) (a) (a) (a) (a)

 São Tomé and Píincipe (

a

) (a) (a) (a) (a) (a)

 Seychelles (

a

) (a) (a) (a) (a) (a)

 Sierra Leone (

a

) (a) (a) (a) (a) (a)

 Subtotal 64,000 0 0 0 0 0

 Total, SSA countries 2,389,932 76,000 89,052 460,344 1,272 27,932

 World total 202,979,125 14,747,700 7,974,883 68,266,258 2,410,670 3,181,004

Source: ITMF, International Textile Machinery Shipment Statistics, 2007, 10, 11. 

a Not available. 
C-4 

TABLE C.2 Installed capacity and cumulative shipments of weaving machinery a

Installed capacity, 2006 Cumulative shipments, 1998–2007

Country Shuttleless Shuttle Shuttleless Shuttle

Group 1 

 Ethiopia 500 2,500 41 1

 Kenya 200 600 6 0

 Lesotho 40 0 49 0

 Madagascar 118 330 32 326 

 Mauritius 600 0 139 0

 Nigeria 2,500 11,000 30 70 

 South Africa 1,243 48 799 344 

 Swaziland 110 0 0 0

 Tanzania 150 5,000 44 0

 Zambia 160 1,000 48 0

 Subtotal 5,621 20,478 1,188 671

Group 2 

 Botswana 180 0 11 0

 Ghana 0 3,500 8 0

 Malawi 100 500 0 0

 Mozambique 0 2,500 0 0

 Namibia (b

) (b) (b) (b)

 Uganda 0 1,000 24 0

 Subtotal 280 7,500 43 0 

Group 3 

 Benin 0 2,000 0 768 

 Burkina Faso (b

) (b) (b) (b)

 Cameroon 200 1,000 0 0

 Chad 0 250 0 0

 Mali 0 1,000 0 0

 Senegal 150 500 0 0

 Togo (b

) (b) (b) (b)

 Subtotal 350 4,750 0 768 

Group 4 

 Angola 0 800 0 0

 Burundi (b

) (b) (b) (b)

 Cape Verde (b

) (b) (b) (b)

 Comoros (b

) (b) (b) (b)

 Congo, Dem. Rep. (b

) (b) (b) (b)

 Congo, Rep. (b

) (b) (b) (b)

 Djibouti (b

) (b) (b) (b)

 Gabon (b

) (b) (b) (b)

 Gambia (b

) (b) (b) (b)

 Guinea (b

) (b) (b) (b)

 Guinea-Bissau (b

) (b) (b) (b)

 Liberia (b

) (b) (b) (b)

 Niger 0 0 0 38 

 Rwanda (b) (b) (b) (b)

 São Tomé and Príncipe (b

) (b) (b) (b)

 Seychelles (b

) (b) (b) (b)

 Sierra Leone (b

) (b) (b) (b)

 Subtotal 0 800 0 38 

 Total, SSA countries 6,251 33,528 1,231 1,477

World Total 970,029 1,562,281 558,977 101,277

Source: ITMF, International Textile Machinery Shipment Statistics, 2007, 26, 28. 

a Data do not include weaving machinery that is intended primarily for weaving for filament yarn or wool yarn. b Not available. 
C-5 

TABLE C.3 Cumulative shipments of large circular 

knitting machines, 1998–2007 

Source Shipments

Group 1: 

 Ethiopia 47

 Kenya 27

 Lesotho (

a

)

 Madagascar 5

 Mauritius 613

 Nigeria 75

 South Africa 199

 Swaziland (a

)

 Tanzania 36

 Zambia (a)

 Subtotal 1,002 

Group 2: 

 Botswana 20

 Ghana 12

 Malawi (

a

)

 Mozambique (a

)

 Namibia (a

)

 Uganda 3

 Subtotal 35

Group 3: 

 Benin (a

)

 Burkina Faso (a

)

 Cameroon 4

 Chad (a

)

 Mali (a

)

 Senegal 4

 Togo (a

)

 Subtotal 8

 Total, SSA countries 1,045

World total 172,225

Source: ITMF, International Textile Machinery 

Shipment Statistics, 2007, 39, 41. 

Note: No reported shipments for any of the Group 4 

countries. 

 a No reported shipments. 

APPENDIX D 

List of Hearing Participants 

D-3

APPENDIX E 

Summary of Views of Interested Parties 

E-3 

Summary of Views of Interested Parties 

The Commission held a public hearing on January 29, 2009, and also invited interested 

persons to file written submissions. This appendix provides summaries of hearing 

testimony for each interested party and a full copy of their written testimony. 1

 The 

Commission received five written submissions, which are included in their entirety. 

Below is a list of the written testimonies and written submissions. 

Written Testimonies 

Organization Representative Date Filed 

Common Market for Eastern and 

Southern Africa (COMESA) 

Sindiso Ngwenya, Secretary General 

Frank D. Mugyenyi, Senior 

Economist/Industry Expert 

January 29, 2009 

African Coalition for Trade, Inc. Paul Ryberg, President January 29, 2009 

Manchester Trade Ltd. Stephen Lande, President 

Anthony Carroll, Vice President 

January 29, 2009 

Written Submissions 

Embassy of the Kingdom of Lesotho David Mohlomi Rantekoa, Ambassador February 24, 2009 

Embassy of the Republic of Mauritius Keerteecoomar Ruhee, Ambassador January 15, 2009 

Embassy of the United Republic of 

 Tanzania 

Omgeni Sefue, Ambassador February 6, 2009 

Lesotho Textile Exporters Association Jennifer Chen, President February 19, 2009 

Nien Hsing Textile Co., Ltd. John Chen, Representative February 26, 2009 

Common Market for Eastern and Southern Africa2

In hearing testimony presented before the Commission, the Honorable Sindiso Ngwenya, 

Secretary General of COMESA, stated that COMESA’s membership is 19 countries 

having a total population of 400 million and GDP of $350 billion. COMESA has a free 

trade area, and is launching a customs union with a common external tariff, and also has a 

Cotton and Textile Association. Mr. Ngwenya said that only five countries in the

 1

 In many instances, the appendix reflects only the principal points made by the particular party. The 

views expressed in the summarized materials should be considered to be those of the submitting parties and 

not the Commission. In preparing this summary, Commission staff did not undertake to confirm the accuracy 

of, or otherwise correct, the information summarized. For the full text of hearing testimony and written 

submissions, see entries associated with investigation no. 332-502 (2009) at the Commission’s Electronic 

Docket Information System (http://searchapp.usitc.gov/edis3/app). 2

 USITC, Hearing transcript, January 29, 2009, 5–52. 
E-4 

COMESA region (Kenya, Mauritius, Madagascar, and Swaziland, as well as Lesotho, 

which is not a member country) benefit from the cotton apparel sector, and that exports of 

textiles and apparel from these countries to the U.S. market have declined since the final 

phase-out of quotas at the end of 2004. 

 

The secretary general said that only a few COMESA countries export textiles and 

apparel, and that most member countries’ competitive advantage is in other products, 

particularly agri-products. He therefore emphasized the need to diversify AGOA exports 

to nonapparel products and recommended that COMESA countries focus on the 

production and trade promotion of other AGOA-eligible products. 

 

Mr. Ngwenya also highlighted the need for consistency between trade policy and 

investment policy, and the need to address development aspects rather than focusing 

solely on trade policy. He said that COMESA countries do not have the capacity to 

supply inputs to the apparel industry, and that there is a need to increase investment and 

reduce the costs of doing business. However, he noted that U.S. institutions, such as the 

Overseas Private Investment Corporation (OPIC), restrict the type of investments they 

support. For example, he said that OPIC will finance cotton ginning but does not support 

investment up the value chain. 

According to the secretary general’s testimony, labor costs in SSA countries are 

competitive with those in China, but transportation and logistics costs, and particularly 

utility costs, are much higher. He recommended interventions to lower these costs. He 

suggested that the Millennium Challenge Corporation (MCC) Accounts could help with 

investments to lower these costs, but said that the MCC currently only deals with national 

programs instead of focusing on regional programs. He also maintained that trade policy 

should focus on regional integration rather than categorizing countries into LDCs and 

non-LDCs. He also suggested more coordination among international agencies and 

institutions to strengthen public and private institutions. 

Paul Ryberg, President, African Coalition for Trade, Inc.3

In his hearing testimony, Mr. Ryberg, president of the African Coalition for Trade, Inc. 

(ACT), stated that ACT is a nonprofit association representing private-sector African 

companies, with a focus on exports of AGOA-eligible products to the United States. Mr. 

Ryberg said that, while SSA apparel exports doubled under AGOA, African textile firms 

have been struggling since the final phase-out of quotas at the end of 2004. He said that 

imported textiles have taken over African domestic markets, and that several major SSA 

textile firms have ceased operations as a result. He noted that African apparel made from 

third-country fabric is much more competitive than apparel made from African fabric. 

According to Mr. Ryberg, issues facing the SSA textile industry are lack of economies of 

scale, since apparel industries are small and geographically fragmented; inadequate 

infrastructure; and lack of access to financing. 

 

Mr. Ryberg also maintained that inconsistent U.S. trade policies have challenged the 

African textile industry. He said the commercial availability provision failed because it 

was punitive, and he suggested a more positive approach. He also suggested that, to 

encourage textile and apparel production in Africa, South African-produced fabrics 

should receive the same treatment as fabrics produced in LDCs. 

 3

 USITC, Hearing transcript, January 29, 2009, 67–74. 
E-5 

Manchester Trade Ltd.4

In their hearing testimony, Mr. Stephen Lande, President of Manchester Trade Ltd., 

discussed the effects of trade policy on the African textile industry, and Mr. Anthony 

Carroll, Vice President of Manchester Trade Ltd., discussed the Nigerian textile industry 

and factors contributing to its decline, particularly intellectual property rights violations 

on ethnic cloth imports from China. Mr. Lande stated that trade policy measures to 

encourage the use of African textile fabrics and yarns have not been successful, and that 

the textile industry has declined since AGOA was instituted. According to Mr. Lande’s 

testimony, trade policy promoting integrated textile production has not worked, and trade 

legislation cannot force producers to make particular sourcing decisions. He also 

maintained that policy should not focus on only one product, such as textiles. Mr. Lande 

recommended a focus on infrastructure problems rather than on trade policy, and 

indicated his support for adding a capacity-building component to trade policy. 

According to Mr. Lande, regional integration should be a priority to promote economies 

of scale, rather than the MCC’s focus on individual countries or WTO policies of 

separating countries into LDCs and non-LDCs. He also said production of trim and 

handicrafts are not transformational for an economy, and that developing a competitive 

textile yarn and fabric industry will encourage production of trim and accessories. 

 4

 USITC, Hearing transcript, January 29, 2009, 53–67. 









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EMBASSY OF THE KINGDOM OF LESOTHO 

251 1 MASSACHUSETTS AVENUE, N.W. 

WASHINGTON, D.C. 20008 

TEL: [202] 797-5533 FAX: (2021 234-6815 

LWIGOVl24 

February 24,2009 

Ms. Marilyn R. Abbott 

Secretary 

United States International Trade Commission 

500 E Street, SW 

Washington, D.C. 20436 

Dear Ms. Abbott: 

Submission of Lesotho’s Testimony on the Study by the Commission (ITC) 

on “Sub-Saharan African Textiles and Apparel Inputs: 

Potential for Competitive Production” .I L-....l...~.....l.~........~.....~..~..~~.~....~.....~~.....~~..... 

I am pleased to submit, on behalf of the Kingdom of Lesotho, the attached Testimony relating to 

ITC’s ongoing study on the textile and apparel inputs in the Sub-Saharan AGOA eligible countries. 

I regret very much the fact that due to conflicting schedule, I was not able to give a viva voce 

account of our views to the Commission on this important subject for the growth and sustainability of 

Lesotho’s textile and apparel sectors. 

I look forward to your invitation on this and other issues of mutual interest in the future. 

Yours sincerely, 

AMBASSADOR 

Enc. 

cc. PS Foreign Affairs and International Relations 

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1 

EMBASSY OF THE KINGDOM OF LESOTHO 

251 1 MASSACHUSETTS AVENUE. N W --. -- - -. WASHINGTON, D.C. 20008 February TEL: (202) 797-5533 FAX: (2021 234-681 5 249 2009 

H.E. David Rantekoa 

Ambassador of the Kingdom of Lesotho to the United States 

Post Hearing Brief 

United States International Trade Commission Hearing 

Sub-Saharan African Textile and Apparel Inputs: Potential for Competitive Production 

I would like to thank the U.S. International Trade Commission for the opportunity to submit 

testimony for this important investigation into sub-Saharan Africa’s textile and apparel sectors. I 

would also like to thank the government and the people of the United States of America for their 

generosity and the opportunities presented to Lesotho by the African Growth and Opportunity 

Act (AGOA) and all of the continuing work to expand and improve U.S. and sub-Saharan 

African economic relations. 

Introduction 

The purpose of this study is to identify yarns, fabrics, and other textile and apparel inputs that 

through new measures can be produced competitively in sub-Saharan Africa. As you know, 

Lesotho’s textile sector is small compared to the apparel sector, as is the case for sub-Saharan 

Africa in general. The region as a whole remains a net importer of textiles, but several countries 

have managed to create important apparel export industries with support from preferential trade 

arrangements. Indeed, the apparel sector is Lesotho’s largest formal sector employer, with the 

vast majority of production aimed at export to the US market. As regional supply of many 

textile and apparel inputs is insufficient for Lesotho’s current production needs, vertical 

integration of the textile and apparel sectors remains a priority for the Government of Lesotho 

(GoL). Vertical integration will support the long-term export competitiveness of the apparel 

sector, and the GoL has pursued a variety of efforts to support development of the textile sector, 

including the development of industrial infrastructure, discounted rates on factory rent, and a 

variety of labor development and tax incentives. 

Overview 

The GoL stands ready to facilitate investment in textile and apparel inputs, yet patterns in 

international trade and developments in international trade policy continue to pose significant 

challenges for development in sub-Saharan’s Africa’s textile sector. Lesotho’s own apparel 

sector is directly supported by the special rules of origin granted to certain ‘least developed 

country’ (LDC) beneficiaries under AGOA, also known as the third country fabric rule. Due to 

the previously noted inadequacies in regional textile and apparel input production, our apparel 

sector is dependent on the importation of raw materials into Lesotho. In the past, our apparel 

exporters have experienced significant export disruptions due to changing rules of origin (ROO) 

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2 

allowances under trade relations with our major trading partners, the US and the EU, 

underscoring the precarious nature of dependency on temporary terms of trade. 

The temporary nature of preferential trade arrangements creates further complications for 

attracting investment, as expiration of certain benefits may eliminate market incentives for 

investment. For example, Lesotho’s apparel industry experienced a sharp decline upon expiration 

of a special derogation allowing relaxed apparel input rules of origin under the EU Lom6 

Agreement in 1995. Several factories were forced to reduce production, shut down, or to shift 

production to the US market. AGOA played a critical role in the recovery of Lesotho’s apparel 

sector since 2000, but ROOs under AGOA continue to play a critical role in our trading 

relationship with the US. In 2006, the US generously extended AGOA’s third country fabric 

provisions from 2008 to 2012, creating a small window of opportunity for development in the 

textile and apparel sector. As of the 2nd quarter of 2008, 31.6% of Lesotho’s exports were 

destined for the U.S. market - the majority of that total being apparel -Lesotho’s apparel 

producers are continually mindful of the looming expiration of access to third country fabrics 

under AGOA in 20 12. 

Challenges in Lesotho’s Textile and Apparel Sectors 

Despite such generous treatment from our major trading partners, development in each sector 

remains a constant challenge, as our producers face intense competition from very well 

established producers around the world, particularly in Asia. Several developments beyond the 

scope of AGOA have affected Lesotho’s textile and apparel industry in recent years. For 

example, Lesotho’s apparel industry has not yet recovered from the 2005 expiration of WTO 

Multi-Fibre Arrangement (MFA) apparel quotas. Lesotho’s apparel exports to the US peaked in 

2004 at over $455 million, declining sharply to $390 million in 2005 and falling slightly in each 

of the following years. Over the last one year period from December 2007 to December 2008, 

Lesotho’s textile and apparel exports to the U.S. declined by I I .43 percent, a loss of almost $44 

million in business and approximately 7000 jobs; the sharpest year-on-year decline witnessed 

since 2005. 

Trade over the last year has no doubt suffered due the global recession and the impact on US 

consumption. In addition to these recessionary effects, Lesotho’s producers have faced 

uncertainty created by the December 31, 2008 expiration of US imposed safeguard quotas on 

imports of Chinese apparel products, part of the continuing impact of the 2005 expiration of the 

WTO MFA. When quotas were initially removed from Chinese imports in 2005, many buyers 

witnessed significant pricing adjustments. Even under a quota scenario, China constitutes some 

35% of the US textile and apparel import market, while all of sub-Saharan Africa makes up little 

more than 1 percent of the US market. (Lesotho makes up just 0.36 percent of the US import 

market according to the most recent data from the U.S. International Trade Administration). The 

uncertainty associated with China’s impact on apparel trade combined with continuing fierce 

competition from other Southeast Asian producers, notably Bangladesh and Vietnam, has hurt 

production and investment prospects in Lesotho and Sub-Saharan African in general. 

Additionally, the overall decline in regional exports over the last few years, especially exports 

from South Africa, has exacerbated the regional shortage of textile and apparel inputs. 

As noted, the capacity to produce yam and fabric has been degraded due to declining exports 

from our regional partners over the last few years. Not only is the quantity of fabric produced in 

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3 

sub-Saharan Africa insufficient for global export markets, but the region also lacks the variety of 

production available in other markets. Even in Lesotho’s largely vertically integrated denim 

industry, our denim mills do not produce every type of fabric required by our buyers, nor do we 

have the capacity for dying and finishing services required for all types of apparel orders. 

Additionally, Lesotho is dependent on importing a large variety of non-textile apparel inputs, 

including zippers, buttons, hangers, boxes and other packaging. Each of these areas presents an 

opportunity for additional local production and employment, and new investments to produce 

these input items in Lesotho may increase the utilization of available industrial facilities, reduce 

the lead time on apparel products, and reduce production costs for apparel producers. 

Opportunities for Development 

Some constraints on Lesotho’s textile and apparel input sectors could be alleviated through 

development of industrial infrastructure, particularly in the water and land transportation 

services. As Lesotho is a land-locked country, all of our apparel inputs are imported by truck or 

rail. The majority of our apparel inputs travel by rail, and additional investment in Maseru’s rail 

yard are needed to facilitate processing and storage of shipping containers. Shipment by truck is 

sometimes more expedient, but tends to be more costly as less than a quarter of Lesotho’s road 

network is paved. 

As the textile production, dying and finishing industries are highly dependent on access to water 

infrastructure, the GoL has made development of water infrastructure a major component of our 

recently awarded Millennium Challenge Corporation Compact. Even so, additional water sector 

development is necessary in many other areas of the country, particularly in the Northern District 

of Leribe, where Maputsoe and Nyenye apparel production hubs are located. 

Accordingly, in addition to projects such as our MCC partnership, the GoL has rolled out 

ambitious measures for the development of industrial infrastructure through a variety of Lesotho 

National Development Corporation projects, the Lesotho Highlands Water Project partnership 

with South Africa, and other GoL road, water, and energy development initiatives. The GoL is 

contributing $3 1.8 million, or 9.1 percent of the capital budget this year, to water and sanitation 

infrastructure which will benefit communities across the country, both in urban and rural areas. 

In fact, the GoL has set aside $60 Million over the next two years to support specific investments 

related to the provision of water, roads, factory shells and communications to the new firms that 

want to locate in our industrial estates. 

We have developed a specific program aimed at restructuring the textile and clothing sector. We 

will create n ew institutional and financial facilities to support export-import businesses for 

existing and new foreign and local exporting firms; encourage existing firms to invest in the 

modernization and upgrading of their operations to take advantage of new global opportunities 

when the world economy recovers; and explore new export products and markets, including 

exports to SACU, SADC, EU and to the US. 

As part of this textile and apparel sector recovery plan, the GoL will take equity in some of these 

companies; establish export-import facilities to be implemented by the Central Bank; ensure that 

Lesotho’s Commercial Banks can issue pre and post-shipping Letters of Credit and negotiate 

appropriate discounted Letters of Credit; gradually bring the work being done by Agents in the 

Far-East to Lesotho; cooperate with China and its firms to deepen the skills in textiles and join 

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4 

the African Export-Import Bank that was launched in 1993 by the African Development Bank to 

support African exports. 

For construction and maintenance of urban and rural roads, $87.3 million or 25% of the capital 

budget, has been set aside. Rural roads and bridges will receive $21.5 million or 6.2 percent of 

the capital budget. Urban and main roads will receive $63.9 million or 18.3 percent of the capital 

budget. In addition, part of the economic stimulus package has been set aside to finance 

industrial infrastructure development in Maseru and to complete infrastructure development for 

Ha Tikoe Industrial Estate as well as the expansion of Ha Nyenye Industrial Estate. 

Recommendations for US Policies and Programs 

As noted above, investment in the textile and apparel industry is necessary for Lesotho to take 

optimal advantage of AGOA and increase the long-term export competitiveness of our apparel 

industry. However, it is important to emphasize that increased investment in textiles or increased 

production of textiles is not the panacea for Lesotho’s downstream apparel industry. Buyers 

demand a whole range of pre and post apparel production services that are lacking in Lesotho, 

many of which require capital intensive investment and long lead times for investments to come 

to fruition. As such, US policymakers must take a holistic approach to encouraging vertical 

integration of the textile and apparel industries in sub-Saharan Africa, being careful to improve 

incentives to increase investment in textile and apparel inputs while not undermining the 

critically important downstream apparel industry. Among other initiatives, the following 

changes to US policies and programs would support this goal: 

0 Extend the third country fabric provision of AGOA far beyond 2012. 

o Africa does not produce enough fabric to satisfy demand in the downstream 

apparel assembly industry. Without access to this provision, the industry faces 

collapse in 2012. 

0 Ensure that Sub-Saharan African countries’ margin of tariff preference is maintained as 

progress is achieved on the WTO Doha Development Agenda. 

o While all WTO member countries should be encouraged to honor the 

commitments of the 2005 Hong Kong Ministerial Declaration, caution must be 

exercised in expanding duty-free and quota-free (DFQF) treatment to highly 

competitive textile and apparel export industries in the WTO LDC block. Even 

under duty paying schemes, many of sub-Saharan Africa’s competitors in Asia are 

witnessing expansions in the US market as AGOA apparel trade continues to 

decline. A concerted effort must be made to balance the opening of new market 

opportunities for all LDCs against the need to protect critical sectors in small and 

vulnerable economies from highly competitive industrial competition. 

0 Allow new privileges for apparel made with African produced textiles. 

o In order to encourage investment and industrial development in AGOA eligible 

countries, the US could consider conferring relaxed rules of origin to products 

made in third countries (Le. non AGOA states) using certain ranges of African 

made textiles. 

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5 

0 Enact new investment incentives to encourage vertical integration of the textile and 

apparel industries in LDC AGOA beneficiary countries. 

o Tax credits or investment financing should support the existing apparel sector as 

well as new investments in textiles and apparel inputs, there is a long lead time on 

textile investments, approximately two years, in which time the apparel industry 

may suffer further decline. 

Enact new funding for industrial infrastructure related to textile and apparel production 

and support additional financing mechanisms for private sector investments in the water, 

power, and transportation infrastructure sectors. 

o The global financial crisis has exacerbated the cost of capital for these already 

capital intensive projects, making government intervention or special partnership 

mechanisms all the more necessary. 

Conclusion 

If urgent measures are not taken to address the above challenges, there is a very serious 

likelihood that in as little as 3 years, sub-Saharan African developing countries like Lesotho will 

face economic collapse in their nascent textile and apparel industries. This would mean the loss 

of thousands of jobs in the world’s poorest region and the unraveling of much of the progress 

achieved by AGOA and other preferential trade programs aimed at encouraging development 

through trade in Africa. The GoL welcomes the continued engagement and support from the US 

to facilitate trade development in Africa, and the opportunity to work with investors and our 

other international partners in trade to facilitate investment in Lesotho’s textile and apparel 

sectors. 

I again thank the Commission for the opportunity to contribute to this important study. 

Sincerely, 

mDavid Mohlomi Rantekoa 

Ambassador 

Kingdom of Lesotho 

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Embassy of the Republic of Mauritius 

ME W/ECO/O 1 15 January 2009 

Dear Madam, 

Investigation No: 332-502 

Sub-Saharan Textile and Apparel Inputs: Potential for Competitive Production 

I have the honour to submit herewith the written statement by His Excellency 

Keerteecoornar Ruhee, Ambassador of the Republic of Mauritius for the hearing 

scheduled to be held on 29 January 2009 on Investigation No: 332-502 Sub-Saharan 

Textile and Apparel Inputs: Potential for Competitive Production. 

Please accept the assurances of my highest consideration. 

Ms. Marilyn Abbott 

Secretary to the Commission 

United States International Trade Commission 

500 E St. SW 

Washington, D.C. 20436 

J. Nayeck 

Deputy Chief of Mission 

4301 CONNECTICUT AVE., N. W., Suite 44 1, Washington, D.C. 20008 

Tel: (202) 244-1 49 1, Fax: (202) 966-0983 

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Before the 

U.S. SNTEMATIONAL TUDE COMMISSION 

Washington, D.C. 

Investigation No. 332-502 

Sub-Saharan Textile and Apparel Inputs: 

Potential for Competitive Production 

Written Statement 

Submitted by 

Ambassador Keerteecoomar Ruhee 

Republic of Mauritius 

15 January 2009 

1 

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ITC Investigation 

Sub-Saharan African 

Textile and Apparel Inputs: 

Potential for Competitive Production 

This statement is respectfully submitted by the Government of 

Mauritius in connection with the January 29, 2009 hearing before 

the U.S. International Trade Commission in Investigation No.332- 

502. 

1. Introduction 

A major objective of AGOA is to help Sub Saharan African countries 

develop a competitive textile and apparel sector with higher value 

addition. Fulfilment of this objective would necessarily call for 

vertical integration on a regional basis. 

As far as Mauritius is concerned, given that textiles and apparel 

constitute the bulk of our manufactured exports, the vertical 

integration of the industry has always been given due prominence 

in our industrial strategy. 

Vertical integration brings many advantages to local manufacturers 

who increasingly face tighter deadlines and fiercer cost competition. 

Moreover, it also increases the sophistication of the textile industry. 

2 

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2. Investment in Spinning Activities in Mauritius 

Recognising that vertical integration requires substantial 

investment, human and technological expertise, as well as a 

considerable time lag before yielding benefits, the Government of 

Mauritius adopted a package of incentives as from July 2002 to 

encourage spinning activities in Mauritius. 

Moreover, the tariff liberalisation which started in 2005 is aimed at 

achieving a low and uniform level of protection for the 

manufacturing sector while preparing Mauritius to become a ‘duty 

free island’. As of date 87% of tariff lines from our HS tariff book is 

duty free. All Industrial inputs including, cotton, yarn and textile 

are duty free in Mauritius, thus providing a significant impetus for 

spinning and weaving activities. 

Four spinning mills are presently operating in Mauritius. The two 

mills that spin cotton yarn for knitwear are Tianli Spinning Co Ltd 

and CMT Spinning Ltd with a total capacity of 30,000 tons. Given 

that the local demand for cotton yarn for knitwear in Mauritius is 

48,000 tons, there is a shortage of 18 000 tons of cotton yarn. The 

two mills that spin cotton yarn for denim fabric are Denim de 1’Ile 

and RS denim with total capacity of 21 000 tons. For denim yarn 

there is a yearly surplus of 9000 tons. A more detailed breakdown 

is given below: 

3 

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Table 1: Spinning Operations in Mauritius 

2 

3 

1Cotton Yarn [Denim Yarn t 

, 

CMT Spinning Ltd 17,000 300 

Denim de L'lle Ltee 9.000 150 

-i 30,000 

12,000 

21,000 

300 

1005 

___ 

It is important to note that several textile groups have in-house spinning 

activities but these have not been included since they produce for their 

own consumption only. 

3. Competitive Production in the Region 

Imports of Cotton by Mauritius 

The increase in spinning activities in Mauritius has boosted our imports 

of raw cotton. The table below gives an indication of the evolution of 

cotton imports (not carded or combed) for the period 2003-2007, 

including the percentage of imports from AGOA eligible countries. 

4 

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Table 2: Imports of Cotton by Mauritius 

Year 

2003 

2004 

2005 

2006 

2007 

Total Imports of 

cotton not carded or 

combed 

(Rs million) 

(Avg. exchange rate: 

US $1= Rs.30) 

442,300,154 

786,636,127 

697,115,628 

1,088,2 18,009 

1,082,098,072 

Imports from AGOA 

eligible countries as a 

YO of total imports 

(Yo) 

82.23 

39.57 

54.61 

57.90 

76.72 

The preceding table shows that between 2003 and 2007, the 

consumption of cotton by Mauritian enterprises has more than doubled. 

Moreover, as from 2003, imports of cotton from the region have 

consistently increased. For the year 2007, 76.72% of imports of cotton 

(not carded or combed) came from AGOA eligible countries which 

included, Zambia, Mali, Cameroon, Chad, Mozambique, Burkina Faso. 

South Africa, Benin, Tanzania, Ethiopia, Uganda. It is worth noting that 

for the year 2007, Zambia was the largest supplier of cotton to Mauritius 

with imports from this country totalling Rs 390,32 1,750. 

The above data demonstrate that the Sub Saharan African region is 

competitive in the supply of raw cotton. Mauritius has been a consistent 

buyer for its spinning activities and thus contributes to vertical 

integration in the region. The import figures also show that the region is 

5 

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as good as traditional suppliers of cotton outside Sub Saharan Africa, 

such as India, Pakistan, Egypt, China. 

Yarn 

Fabrics 

Exports of Cotton Yarn and Fabric by Mauritius to the Region 

35,072,382 15,176,511 20,464,958 5,666,188 

232,843,788 68,997,072 135,763,109 58,184,9 17 

Given that spinning activities boosted our yarn and fabric production, 

this has enabled Mauritius to export on the regional market. Madagascar 

and South Africa constitute our main buyers in the region. 

The table below illustrates cottQn yarn and fabrics exports from 

Mauritius to Madagascar and South Africa: 

Table 3: Exports of Cotton Yarn and Fabrics to Madagascar (Rs. 

Million) (Avg. exchange rate US$l=Rs 30) 

i I I 2007 Jan - Sept 08 I 

I I Madagascar I South Africa I Madagascar I South Africa I 

The fact that these two apparel producing countries are buying raw 

materials from Mauritius indicates that a key objective of AGOA, namely 

regional sourcing of materials is being achieved, albeit on a fairly small 

scale so far. 

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4. Future Investment in the Textile and Apparel - Sector of Mauritius 

The development of the textile and apparel sector has thus far been 

largely in response to the incentives provided by the AGOA duty 

preference. As preferential market access gives way to a globalized 

economy characterized by market liberalization, Mauritius has adopted 

a bold economic reform program to enhance our competitiveness. 

In this context, Mauritius would welcome more investment in the 

spinning sector, especially for synthetic yarn for which there is no 

spinning mill at present. The attractive business environment fostered by 

the Business Facilitation Act of 2006 would help promote higher value 

addition in our manufacturing sector. The procedures relating to Foreign 

Direct Investment have also been substantially simplified and 

streamlined. At present the time for setting up of businesses is 3 days for 

a small and medium enterprise and 14 days for other businesses. 

Subsequent to the passage of the Business Facilitation Act, Mauritius 

has improved its ranking in the World Bank Doing Business 

classification: Mauritius is now 24" in the world and first in Africa in 

terms of the ease of doing business. 

5. Conclusion 

Given that spinning and fabric production require huge investment, we 

propose that the US explores the possibility of making available to all 1 AGOA eligible countries a line of credit (which could take place via OPIC, 

EXIM or other financial facilities) for private sector firms with viable 

expansion/ modernisation projects in the textile and apparel sector. To 

assist further in overcoming financing constraints to competitive textile 

and apparel production, the US may also wish to consider making 

available an equity fund that would co-invest with local and foreign 

7 

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enterprises in the equity of projects in the sector. Mauritius would 

welcome investments by US firms in the textile and apparel sector. 

Respectfully submitted, 

Keerteecoomar Ruhee 

Ambassador of the Republic of Mauritius 

15 January 2009 

8 

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EMBASSY OF THE UNITED REPUBLIC OF TANZANIA 

WAS HTNGTON , D . C . 

Ambassador 

Ref : No. m.10/25/43 February 6,2009 

Ms. Marilyn R. Abbott, 

Secretary, 

United States International Trade Commission, 

500 E Street, S.W., 

WASHINGTON, DC 20436. 

F.7 

'J 

L"d 

Madam Secretary, 

I have the honor to attach herewith the original and fourteen (14) copies of 

my government's written submission in connection with the United States 

International Trade Commission's public hearings related to Investigation No. 

332-502 on Sub-Saharan African Textile and Apparel Inputs: Potential for 

Competitive Production. 

Sincerely, 

.- 

Ombeni Sefue 

AMBASSADOR 

2139 R. Street NW, Washington, D.C. 20008 

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TESTIMONY BY WRITTEN SUBMISSION ON ITC INVESTIGATION 

PRODUCTION OF TEXTILE AND APPAREL INPUTS. 

N0.332-502 ON TANZANIA’S POTENTIAL FOR COMPETITIVE 

1.0 Introduction 

The textile industry is one of the economic sectors with the highest 

potential of boosting Tanzania’s capacity for industrial production and 

national development due to its extensive value chain and labor intensive 

nature. Strengthening and making this sector competitive will, among 

other things, create employment, increase government revenue, increase 

and stabilize farmers’ incomes and engender rural development and 

poverty reduction in cotton growing areas. 

2.0 The Current Status of the Textile Sector in Tanzania 

Tanzania has more than 20 large scale textile industries. Most of them 

were established in the 1970s as state-owned enterprises. As part of 

Tanzania’s economic reforms in the mid and late 1990s, all these industries 

have been privatized and are all privately owned now. Most of them are 

integrated. In eight (8) of them, manufacturing processes start from 

spinning to printing. Four (4) extend their processes to garment 

manufacturing. The rest are not integrated. Two (2) undertake spinning 

only, one (1) does the pruning and two (2) are engaged in garment 

manufacturing. 

The quality of woven fabrics from Tanzania is, at the moment, not 

competitive. As a result, producers of garments for export rely on 

imported fabrics. The textile sector absorbs only 30% of the cotton 

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produced in the country. 

textiles and only 39.1% on apparel. 

Industrial capacity utilization is 47.2% on 

The apparel sector is less diversified. Most of the industries are engaged 

in printed fabrics (khanga and kitenge) for the local and regional market. 

The applied technology is old (more than 30 years old) and inefficient. 

This further undermines the sector’s competitiveness. 

3.0 Potential for Competitive Production of the Textile Sector in Tanzania 

Tanzania has a very favorable environment for the development of the 

textile sector, for the following reasons: 

a) Tanzania has one of the largest cotton growing areas in the whole 

of Africa. According to January 2009 statistics from the 

International Cotton Advisory Committee in Washington, DC, 

Tanzania with 450,000 hectares under cotton cultivation is second 

only to Burkina Faso (466,000 hectares) on the African continent. 

Quality cotton can be grown in more than 13 out of 21 regions in 

mainland Tanzania. 

b) Tanzania has a sizeable domestic market of about 40 million 

people, and a regional preferential market of over 200 million 

people. Tanzania is a member of both the Southern African 

Development Community (SADC) and the East African 

Community (EAC). 

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2 
c) Tanzania has access to other preferential markets in rich 

industrialized countries in the USA (through AGOA), the EU 

(through Everything but Arms), Japan, China and Canada. Because 

of capacity issues, Tanzania is using only a tiny fraction of these 

opportunities for export of textiles and apparel. 

d) Tanzania has an attractive and competitive investment regime 

managed by the Tanzania Investment Centre (TIC), as well as the 

Export Processing Zones (EPZ) and Special Economic Zones (SEZ) 

managed by the Export Processing Zones Authority (EPZA). With 

support to build more such zones, and make them efficient, 

Tanzania can easily double or triple its textile and apparel exports. 

4.0 Challenges in Tanzania’s Textile and Apparel Sector 

The following challenges facing the textile sector in Tanzania need to be 

addressed in order to realize the underlying opportunities in this sector: 

Outdated and inefficient technologies, which results in poor quality 

products and low productivity. 

Inadequate skilled labor in the textile industry. 

Stiff competition from other countries such as China which 

produces at low cost because of cheap labor and better technology. 

Limited diversification of production in the industries in terms of 

product mix (home textiles, clothing textiles, hospital textiles such 

as bandages and industrial textile). 

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3 
e) Lack of finance for long term investments. 

f) Infrastructural bottlenecks, including unreliable power and water. 

g) Insufficient local production of high quality fabrics to feed the 

apparel industries. 

5.0 The AGOA Market Access Opportunity 

Tanzania has not fully utilized the AGOA market access opportunity 

despite its potential in view of the country’s abundant resource base. For 

example, exports of textile and apparel products to the US under AGOA 

were approximately only US$2.8 million, $3 million and $2.8 million for 

the years 2005,2006 and 2007 respectively (see table below). 

The textile and apparel exports constitute, on average, about 90% of all 

exports to the US under AGOA. This indicates that the sector has the 

potential to perform much better and be competitive quickly, if the 

challenges and constraints mentioned in this submission are addressed. 

Current production remains small and cannot fulfill large orders from US 

importers. Local manufacturers/ exporters of textiles and garments, as 

well as other products, are encouraged to team up and form associations 

such as export houses to meet US orders which are normally too large for 

a single Tanzanian exporter to sustainably handle. 

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4 
Tanzania Exports to the United States under AGOA (in USD 1000) 

Source: US Department of Commerce 

6.0 Policy and Strategic Issues for the Development of the Textile Sector 

It is the policy of Tanzania to maximize access to preferential markets in 

the region and internationally. Access to the AGOA market is a top 

priority. This can be achieved through strengthening the textile sector 

which has huge potential and whose global exports are to be increased 

from USD$130 million currently to USD$l, 300 million by 2020. Some of 

the strategic actions to be taken by Tanzania (and for which US support is 

needed) in tackling the challenges include: 

a) Encouraging the textile industries to produce under Export 

Processing Zones (EPZ) in which different factories engage in 

different stages of the textile value chain and complement each 

other. 

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5 
Facilitating the establishment of textile design centres and 

engineering colleges. 

Improving accessibility to diverse financial products through 

establishing a policy framework that favors credit financing and 

credit guarantees. Credit facilities in terms of direct loans, preexport financing and loan guarantees are especially important. 

Designing sector specific incentives for the textile sector, such as tax 

reduction and inexpensive production sheds within Export 

Processing Zones. 

Facilitating financing and product marketing of individual small 

scale garment establishments. 

Provision of technical assistance and transfer of technology. 

Capacity building under competitive hubs to be done frequently to 

provide specialized business development to improve 

competitiveness of SMEs in respect of AGOA related activities. 

Encouraging and faciliting foreign investment in the textile and 

apparel sector from the U.S. and elsewhere. 

Investments to guarantee power and water in textile and apparel 

Special Economic Zones. 

E-47

6 
7.0 Conclusion 

Tanzania’s textile sector has the potential to grow and can contribute 

significantly to the country’s export earnings. It has a latent capacity to 

be competitive. However, the sector needs to be revamped, new 

investments have to be made, and skills and technical expertise need to be 

developed. The US government is requested to provide technical 

assistance in this area, as well as work with Tanzania to address the 

supply-size constraints mentioned in this written submission. This will 

build physical, human and institutional capacities in Tanzania to take full 

advantage of existing market opportunities. 

Ombeni Sefue 

AMBASSADOR OF TANZANIA TO THE USA 

E-48

7 














the viability of the African denim industry thereby maintained, by taking addressing two issues: 

(1) maintaining an adequate market base; and (2) improving infrastructure. 

As noted above, the now-repealed commercial availability provision was intended to 

provide a stable market base for African textiles that is necessary to attract the large investment 

required to build a textile plant. Although the commercial availability provision has been 

repealed, the need for such incentives remains if Africa is to develop a competitive textile 

industry. Nien Hsing respectfully suggests that the market for African-origin textiles can be 

dramatically expanded by amending AGOA to provide that garments made with African-origin 

textiles would qualify for duty-free eligibility under the United States’ various free trade 

agreements (FTAs) and trade development programs for other regions (such as the Caribbean 

Basin Initiative and the Andean Trade Promotion and Drug Eradication Act). This “cumulation” 

would provide access to a new customer base, estimated to be significantly larger than under 

AGOA, that is currently unavailable to African textile producers. Although significant 

transportation costs would be involved in any such sales, we believe the 16% duty preference 

would offset such transportation costs. 

Second, as noted above, inadequate African infrastructure, especially transportation 

infrastructure, is constraining the development of a competitive textile industry. Significant U.S. 

Government and/or multilateral support for infrastructure development will probably be 

necessary if textile production in Africa is to become more internationally competitive. 

Nien Hsing is available at the convenience of the Commission and your staff to provide 

whatever assistance may be needed in this investigation. 

John Chen 

Nien Hsing Textile Co., Ltd. 

13F, No., 306, Neihu Road, Section 1, Neihu 

Taipei, Taiwan 11 4 

+886-2-2656-8808 

E-63

APPENDIX F 

Additional Trade Data 

F-3 

TABLE F.1 Exports of textile and apparel inputs, by SSA country, selected other countries, and world, 2003–07 

(1,000 $) 

Country 2003 2004 2005 2006 2007

Group 1 countries: 

 South Africa 297,158 342,615 298,851 304,090 300,457

 Mauritius 31,936 63,918 48,454 51,949 63,104

 Nigeria 28,814 48,106 40,186 20,900 20,654

 Tanzania 9,151 16,651 11,842 16,041 20,349

 Lesotho 635 2,580 12,635 15,943 19,224

 Zambia 25,947 31,404 35,505 20,239 14,532

 Madagascar 8,538 10,241 10,982 11,217 10,560

 Swaziland 14,400 11,959 9,771 9,594 9,803

 Kenya 8,968 9,944 8,917 10,099 7,998

 Ethiopia 8,256 6,901 3,596 3,108 3,059

 Subtotal 433,801 544,317 480,738 463,179 469,740

Group 2 countries: 

 Ghana 4,686 6,381 4,602 1,477 2,812

 Uganda 289 2,498 2,394 2,262 1,833

 Mozambique 232 112 396 425 1,754

 Namibia 113 1,052 691 3,868 1,550

 Botswana 18 314 211 259 1,096

 Malawi 130 249 165 86 252

 Subtotal 5,468 10,606 8,458 8,379 9,296

Group 3 countries: 

 Togo 3,929 3,138 8,858 4,586 5,470

 Burkina Faso 1,779 1,242 1,083 3,493 2,470

 Benin 4,041 3,393 963 1,127 2,118

 Mali 604 857 1,170 959 1,411

 Senegal 619 1,273 848 603 1,337

 Cameroon 1,573 1,359 1,090 1,153 1,137

 Chad 48 50 42 106 33

 Subtotal 12,593 11,312 14,053 12,027 13,977

Group 4 countries: 

 Sierra Leone 845 1,772 1,974 3,487 3,424

 Djibouti 29 565 396 603 324

 Niger 307 1,099 698 294 292

 Seychelles 10 672 300 346 248

 Gambia 150 763 425 277 238

 Congo, Dem. Rep. 51 62 32 89 221

 Guinea 164 95 114 258 168

 Burundi 701 207 34 139 144

 Cape Verde 7 139 105 94 143

 Comoros 11 49 0 17 108

 Liberia 97 132 248 25 65

 Rwanda 258 522 282 103 58

 Gabon 59 455 77 164 45

 São Tomé and Príncipe 165 85 11 6 43

 Congo, Rep. 22 41 38 5 20

 Angola 30 36 10 21 14

 Guinea-Bissau 2 129 266 69 5

 Subtotal 2,910 6,821 5,009 5,999 5,561

 Total, SSA countries 454,772 573,057 508,258 489,585 498,573
F-4 

TABLE F.1 Exports of textile and apparel inputs, by SSA country, selected other countries, and world, 2003–07 

(1,000 $)—Continued

Country 2003 2004 2005 2006 2007

Selected other countries and world: 

 China 17,981,607 22,202,533 25,590,702 28,562,818 29,403,449

 India 3,454,472 4,082,057 4,123,694 4,067,153 4,688,820

 Vietnam 197,181 309,949 349,174 470,933 695,791

 Cambodia 180,500 261,083 252,978 253,354 257,547

 Bangladesh 10,779 17,258 24,046 15,207 11,164

 World 125,138,957 142,654,498 144,869,637 145,917,316 149,185,911

Source: World Bank, WITS Database (accessed December 3, 2008). 
F-5 

TABLE F.2 SSA-country exports of textile and apparel inputs, by product group, by destination, 2003–07 (1,000 $) 

Product group and destination 2003 2004 2005 2006 2007

Carded or combed fibers: 

 SSA countries 2,503 5,819 4,356 9,156 10,101

 Rest of world 31,310 36,578 32,937 33,901 29,631

 EU 57,572 57,559 47,933 49,905 51,254

 United States 641 2,407 585 1,199 1,179

 Total 92,025 102,363 85,811 94,160 92,165

Knit fabric: 

 SSA countries 4,233 8,615 9,465 10,828 14,044

 Rest of world 5,186 6,327 7,821 8,453 8,661

 EU 2,527 2,688 1,353 1,030 881

 United States 1,316 1,690 1,187 1,822 1,998

 Total 13,262 19,320 19,826 22,133 25,584

Manmade fibers: 

 SSA countries 2,750 2,867 3,367 3,443 3,628

 Rest of world 10,524 6,040 6,093 6,280 6,188

 EU 17,329 23,668 21,908 10,909 14,195

 United States 73 1 1 1 6

 Total 30,677 32,576 31,368 20,634 24,016

Other fabric: 

 SSA countries 3,749 4,074 4,078 3,870 4,461

 Rest of world 3,488 7,285 4,333 6,528 8,914

 EU 17,370 22,228 18,134 18,740 26,167

 United States 2,056 1,144 2,585 4,189 394

 Total 26,663 34,730 29,130 33,327 39,936

Thread: 

 SSA countries 1,130 1,455 1,731 1,985 1,423

 Rest of world 1,014 2,638 1,993 2,239 2,144

 EU 7,412 10,214 13,450 16,700 13,349

 United States 52 11 37 13 10

 Total 9,608 14,318 17,210 20,937 16,927

Trim: 

 SSA countries 7,495 10,839 12,804 12,381 13,405

 Rest of world 5,581 5,849 5,288 5,643 5,993

 EU 7,368 9,662 10,724 12,116 12,885

 United States 6,886 9,733 7,483 6,777 5,302

 Total 27,331 36,083 36,299 36,917 37,586

Woven fabric: 

 SSA countries 45,490 67,598 62,785 59,495 76,534

 Rest of world 23,568 39,813 33,607 22,902 18,242

 EU 42,514 52,636 36,963 35,821 36,407

 United States 4,917 5,671 4,365 4,864 3,025

 Total 116,489 165,718 137,720 123,082 134,209

Yarn: 

 SSA countries 30,682 28,627 18,258 15,596 22,813

 Rest of world 28,269 41,728 46,638 42,848 36,302

 EU 67,979 88,472 75,897 67,818 60,903

 United States 11,788 9,122 10,100 12,132 8,132

 Total 138,718 167,949 150,893 138,394 128,151

 Total, SSA countries 454,772 573,057 508,258 489,585 498,573

Source: World Bank, World Integrated Trade Solution Database (accessed December 3, 2008). 
F-6 

TABLE F.3 SSA-country exports of textile and apparel inputs, by product group, 2003–07 (1,000 $) 

Product group and SSA country 2003 2004 2005 2006 2007

Carded or combed fibers: 

 South Africa 89,134 97,362 80,524 85,664 82,643

 Tanzania 1,003 2,349 2,810 4,049 3,892

 Nigeria 181 149 734 2,307 2,214

 Lesotho 0 0 0 1,280 1,240

 Mali 0 0 412 12 679

 All others 1,707 2,503 1,331 848 1,498

 Total 92,025 102,363 85,811 94,160 92,165

Knit fabric: 

 South Africa 8,014 12,439 9,882 10,768 12,149

 Mauritius 3,057 4,747 8,023 9,160 10,975

 Tanzania 346 921 694 910 1,672

 Kenya 321 496 500 776 369

 Djibouti 0 0 1 1 88

 All others 1,524 718 726 519 331

 Total 13,262 19,320 19,826 22,133 25,584

Manmade fibers: 

 Nigeria 9,007 15,791 17,592 10,461 12,485

 South Africa 20,504 15,813 12,600 9,077 10,769

 Togo 51 53 178 188 261

 Botswana 0 0 2 0 110

 Kenya 436 389 706 269 90

 All others 678 531 291 639 302

 Total 30,677 32,576 31,368 20,634 24,016

Other fabric: 

 South Africa 25,536 32,571 26,823 30,890 36,973

 Sierra Leone 56 518 796 948 833

 Botswana 0 212 133 142 531

 Kenya 351 128 349 221 411

 Ghana 7 52 11 24 220

 All others 713 1,249 1,018 1,102 969

 Total 26,663 34,730 29,130 33,327 39,936

Thread: 

 South Africa 8,301 11,809 15,383 19,301 15,764

 Mauritius 835 1,465 958 1,156 581

 Congo, Dem. Rep. 3 0 1 1 107

 Swaziland 199 626 165 58 97

 Kenya 85 81 186 70 72

 All others 186 337 517 352 306

 Total 9,608 14,318 17,210 20,937 16,927

Trim: 

 South Africa 19,249 25,934 23,043 22,347 22,841

 Swaziland 3,275 3,040 3,571 5,495 5,265

 Madagascar 1,538 2,712 4,736 4,066 4,227

 Mauritius 1,800 2,402 2,090 2,514 2,613

 Togo 23 59 1,489 1,307 1,417

 All others 1,447 1,936 1,371 1,186 1,222

 Total 27,331 36,083 36,299 36,917 37,586
F-7 

TABLE F.3 SSA-country exports of textile and apparel inputs, by product group, 2003–07 (1,000 $)—Continued

Product group and SSA country 2003 2004 2005 2006 2007

Woven fabric: 

 South Africa 55,825 67,624 59,255 49,972 48,944

 Mauritius 23,848 44,745 28,095 25,349 30,166

 Lesotho 63 2,579 12,343 14,402 17,288

 Tanzania 4,979 8,806 4,084 5,067 8,763

 Madagascar 2,202 5,413 5,072 6,360 5,513

 All other 29,572 36,550 28,871 21,931 23,535

 Total 116,489 165,718 137,720 123,082 134,209

Yarn: 

 South Africa 70,594 79,063 71,341 76,070 70,374

 Mauritius 2,187 10,286 8,835 13,513 18,610

 Zambia 25,502 30,969 34,882 20,014 14,323

 Tanzania 2,567 4,192 4,075 5,752 5,866

 Kenya 4,501 6,583 5,370 6,066 5,106

 All others 33,368 36,857 26,391 16,979 13,872

 Total 138,718 167,949 150,893 138,394 128,151

Source: World Bank, WITS Database (accessed December 3, 2008). 
F-8 

TABLE F.4 Exports of apparel, by SSA country, selected other countries, and world, 2003–07 (1,000 $) 

Country 2003 2004 2005 2006 2007

Group 1 countries: 

 Mauritius 970,002 955,126 804,680 836,398 942,147

 Madagascar 362,559 560,570 538,767 576,546 695,774

 Lesotho 427,502 494,244 421,636 418,338 413,792

 Kenya 207,741 305,190 296,556 287,010 269,584

 South Africa 412,868 329,339 240,277 200,268 206,913

 Swaziland 153,052 190,550 169,532 142,822 143,184

 Tanzania 5,146 8,097 7,380 8,635 7,984

 Ethiopia 2,100 4,687 5,219 6,177 5,886

 Zambia 97 367 339 92 582

 Nigeria 802 531 601 1,159 503

 Subtotal 2,541,869 2,848,701 2,484,988 2,477,444 2,686,348

Group 2 countries: 

 Botswana 14,386 34,871 37,665 36,397 43,109

 Malawi 42,200 48,209 48,492 40,444 37,455

 Namibia 45,089 83,366 56,569 35,505 31,452

 Ghana 5,271 8,732 7,921 10,822 9,341

 Uganda 3,318 4,789 5,702 1,665 1,608

 Mozambique 4,262 4,589 5,418 3,007 960

 Subtotal 114,526 184,556 161,768 127,841 123,923

Group 3 countries: 

 Togo 2,336 1,879 6,753 4,977 5,907

 Mali 417 200 746 526 3,900

 Cameroon 2,030 1,832 1,923 3,075 2,724

 Senegal 548 758 723 1,074 2,605

 Burkina Faso 72 799 640 600 1,293

 Benin 134 106 108 91 89

 Chad 446 38 490 655 71

 Subtotal 5,983 5,613 11,383 10,997 16,590

Group 4 countries: 

 Cape Verde 7,487 8,456 7,620 6,112 7,887

 Sierra Leone 6,370 3,442 1,308 1,856 2,781

 Gambia 248 282 283 399 449

 Niger 218 234 85 297 411

 Seychelles 116 20 406 557 381

 Liberia 1,068 376 900 181 357

 Gabon 89 411 67 183 347

 Guinea 61 137 154 179 336

 Comoros 63 311 36 36 303

 Congo, Dem. Rep. 185 240 789 337 248

 Burundi 200 495 460 160 127

 Djibouti 17 96 2,135 397 86

 São Tomé and Príncipe 566 39 5 10 56

 Angola 92 31 256 19 38

 Congo, Rep. 6 78 33 15 25

 Rwanda 387 192 22 63 10

 Guinea-Bissau 1 33 11 3 5

 Subtotal 17,173 14,873 14,568 10,804 13,847

 Total, SSA countries 2,679,551 3,053,743 2,672,707 2,627,086 2,840,709
F-9 

TABLE F.4 Exports of apparel, by SSA country, selected other countries, and world, 2003–07 (1,000 $)—Continued

Country 2003 2004 2005 2006 2007

Selected other countries and world: 

 China 59,689,176 70,318,393 89,149,423 100,431,095 115,460,327

 Bangladesh 6,332,666 7,937,933 8,026,906 10,391,892 11,117,914

 India 6,192,628 7,005,535 9,461,037 10,343,893 10,973,151

 Vietnam 3,930,908 4,481,528 4,821,399 6,037,498 7,770,533

 Cambodia 1,965,326 2,433,113 2,697,289 3,320,103 3,753,441

 World 222,577,855 248,309,858 265,954,493 285,747,305 310,780,523

Source: World Bank, WITS Database (accessed December 3, 2008). 

APPENDIX G 

Additional Cotton Data 

G-3 

TABLE G.1 Cotton production in SSA-countries, MY 2000—07 (1,000 bales) 

Marketing year 

Country 2000 2001 2002 2003 2004 2005 2006 2007

Group 1 countries: 

 Ethiopia 64 64 92 60 92 82 85 85

 Kenya 20 20 20 20 20 25 25 25

 Lesotho (

a

) (a) (a) (a) (a) (a) (a) (a)

 Madagascar 73 55 18 37 60 60 60 60

 Mauritius (

a

) (a) (a) (a) (a) (a) (a) (a)

 Nigeria 400 450 390 415 420 400 400 450

 South Africa 155 83 70 125 95 68 52 46

 Swaziland (

a

) (a) (a) (a) (a) (a) (a) (a)

 Tanzania 188 230 280 235 525 575 200 310

 Zambia 133 170 240 325 350 400 160 160

Group 2 countries: 

 Botswana (

a

) (a) (a) (a) (a) (a) (a) (a)

 Ghana 87 37 32 25 30 40 40 23

 Malawi 44 46 48 80 90 90 109 130

 Mozambique 75 110 95 153 110 165 165 100

 Namibia (

a

) (a) (a) (a) (a) (a) (a) (a)

 Uganda 85 90 95 125 200 90 95 60

Group 3 countries: 

 Benin 640 790 640 635 750 367 475 500

 Burkina Faso 525 725 750 965 1,180 1,367 1,300 675

 Cameroon 430 450 425 500 500 415 365 210

 Chad 300 325 325 225 350 335 200 190

 Mali 480 1,100 825 1,200 1,026 1,003 792 450

 Senegal 40 65 65 100 100 90 100 88

 Togo 225 275 320 325 325 140 80 110

Group 4 countries: 

 Angola 20 5 5 5 5 5 5 5

 Burundi (

a

) (a) (a) (a) (a) (a) (a) (a)

 Cape Verde (

a

) (a) (a) (a) (a) (a) (a) (a)

 Comoros Islands (

a

) (a) (a) (a) (a) (a) (a) (a)

 Congo, Dem. Rep. 15 15 15 15 15 15 15 15

 Congo, Rep. (

a

) (a) (a) (a) (a) (a) (a) (a)

 Djibouti (

a

) (a) (a) (a) (a) (a) (a) (a)

 Gabon (

a

) (a) (a) (a) (a) (a) (a) (a)

 Gambia (

a

) (a) (a) (a) (a) (a) (a) (a)

 Guinea 37 69 55 40 14 14 14 14

 Guinea-Bissau (

a

) (a) (a) (a) (a) (a) (a) (a)

 Liberia (

a

) (a) (a) (a) (a) (a) (a) (a)

 Niger 5 5 5 5 5 5 55

 Rwanda (

a

) (a) (a) (a) (a) (a) (a) (a)

 São Tomé and Príncipe (a

) (a) (a) (a) (a) (a) (a) (a)

 Seychelles (

a

) (a) (a) (a) (a) (a) (a) (a)

 Sierra Leone (

a

) (a) (a) (a) (a) (a) (a) (a)

Source: USDA FAS, PS&D Online. 

 aNo production available. 

APPENDIX H 

Summary of Selected Regional Free Trade 

Agreements and Organizations 

TABLE H.1 Summary of selected regional free trade agreements and organizations 

Agreement Member states Key characteristics Common Market for Eastern and Southern Africa (COMESA) 

Burundi, Comoros, Democratic Republic of the Congo, Djibouti, Egypt, Eritrea, Ethiopia, 

Kenya, Libya, Madagascar, Malawi, Mauritius, Rwanda, Seychelles, Sudan, Swaziland, Uganda, Zambia, and Zimbabwe 

• COMESA was founded in 1981 as the Preferential Trad

1994 was renamed the Common Market for Eastern an

• COMESA plans to achieve an economic community wit

unified monetary policy. Stage one of the integration pla

with lower tariffs on intraregional trade. Stage two is a frand four are a customs union and a common market. Cthe first and second stages. 

East African Community (EAC) 

Burundi, Kenya, Rwanda, Tanzania, and Uganda 

• Agreement for the establishment of the permanent Tripa

African Cooperation was signed on November 30, 1993

• The EAC’s customs union became effective on January 

a common external tariff. The EAC countries are workin

a common market by 2010, a monetary union by 2012, federation of the East African states. 

Economic Community of Central African States (ECCAE) 

Angola, Burundi, Central African Republic, Chad, Democratic Republic of the Congo, Equatorial Guinea, Gabon, Republic of the Congo, Rwanda, and São Tomé and Príncipe 

• The ECCAE was established in December 1981. The E

1992 and was reactivated in February 1998. 

• The ECCAE seeks economic cooperation and a regiona

Economic Community of West African States (ECOWAS) 

Benin, Burkina Faso, Cape Verde, Côte d’Ivoire, The Gambia, Ghana, Guinea, Guinea-Bissau, Liberia, Mali, Niger, Nigeria, Senegal, Sierra Leone, and Togo 

• ECOWAS was established on May 28, 1975. An update

signed in 1993. 

• The 1993 treaty seeks increased political cooperation, a 

currency, a common parliament, a Court of Justice, and solving regional conflicts. 

Inter-Governmental Authority on Development in Eastern Africa (IGAD) 

Djibouti, Eritrea, Ethiopia, Kenya, Somalia, 

Sudan, and Uganda 

• IGAD began in 1996. • IGAD’s purpose is to enhance cooperation and coordina

policies, agricultural development and food security, and encourage conflict prevention, management, and resoluthe rights of persons to benefit from humanitarian assistthe harmonization of trade, transport, and communicatio

H-3 
TABLE H.1 Summary of selected regional free trade agreements and organizations—Continued

Agreement Member states Key characteristics Southern African Customs Union (SACU) 

Botswana, Lesotho, Namibia, South Africa, and Swaziland 

• SADC began in 1990. Updated agreements were reach• Under SACU, the member states form a single customs 

other barriers are eliminated on substantially all the tradfor products originating in these countries; there is a comapplies to nonmembers. All members except Botswana area (CMA), and within the CMA, the currencies of Leso(lilangeni), and Namibia (dollar) are tied to the South Af

Southern African Development Community (SADC) 

Angola, Botswana, Democratic Republic of the Congo, Lesotho, Madagascar, Malawi, Mauritius, Mozambique, Namibia, Seychelles, South Africa, Swaziland, Tanzania, Zambia, and Zimbabwe 

• SADC was established in April 1980. • SADC seeks economic cooperation, regional economic 

system choices, and regional solidarity. The SADC trad2000. By 2012, 98 percent of SADC merchandise trade making SADC a free trade area. 

West African Economic and Monetary Union (WAEMU) 

Benin, Burkina Faso, Côte d’Ivoire, GuineaBissau, Mali, Niger, Senegal, and Togo • WAEMU was established on January 10, 1994. 

• WAEMU’s goals include tariff elimination and common m

policies for its members. A common monetary zone was WAEMU Inter-Parliamentary Committee has held discuregional framework. 

Source: Compiled by Commission staff. 

H-4 
APPENDIX I 

Basic Economic Indicators Definitions and 

Sources 

I-3 

TABLE I.1 Definitions and sources for basic economic indicators 

Indicator Definitions Source 

GDP (current US$) GDP at purchaser's prices is the sum of gross 

value added by all resident producers in the 

economy plus any product taxes and minus any 

subsidies not included in the value of the products. 

It is calculated without making deductions for 

depreciation of fabricated assets or for depletion 

and degradation of natural resources. Data are in 

current U.S. dollars. Dollar figures for GDP are 

converted from domestic currencies using single 

year official exchange rates. For a few countries 

where the official exchange rate does not reflect 

the rate effectively applied to actual foreign 

exchange transactions, an alternative conversion 

factor is used. 

GDP growth (annual percent) Annual percentage growth rate of GDP at market 

prices based on constant local currency. 

Aggregates are based on constant 1995 U.S. 

dollars. 

GDP per capita (current US$) GDP per capita is gross domestic product in 

current US$ divided by total population, calculated 

by Commission staff. 

Population (millions) Total population is based on the de facto definition 

of population, which counts all residents regardless 

of legal status or citizenship—except for refugees 

not permanently settled in the country of asylum, 

who are generally considered part of the 

population of their country of origin. 

Inflation, consumer prices 

(annual percent) 

Inflation as measured by the consumer price index 

reflects the annual percentage change in the cost 

to the average consumer of acquiring a fixed 

basket of goods and services that may be fixed or 

changed at specified intervals, such as yearly. The 

Laspeyres formula is generally used. 

Literacy rate, adult total 

(percent of people ages 15 and above) 

Adult illiteracy rate is the proportion of the 

population 15 years of age and older who cannot, 

with understanding, read and write a short simple 

statement on everyday life. 

Labor force, total (millions) Total labor force comprises people who meet the 

International Labour Organization definition of the 

economically active population: all people who 

supply labor for the production of goods and 

services during a specified period. It includes both 

the employed and the unemployed. While national 

practices vary in the treatment of such groups as 

the armed forces and seasonal or part-time 

workers, in general the labor force includes the 

armed forces, the unemployed, and first-time jobseekers, but excludes homemakers and other 

unpaid caregivers and workers in the informal 

sector. 

World Bank, 

World Development 

Indicators Online. 
I-4 

TABLE I.1 Definitions and sources for basic economic indicators—Continued

Indicator Definitions Source 

Foreign direct investment, net inflows 

(BoP, current US$, millions) 

Foreign direct investment is net inflows of 

investment to acquire a lasting management 

interest (10 percent or more of voting stock) in an 

enterprise operating in an economy other than that 

of the investor. It is the sum of equity capital, 

reinvestment of earnings, other long-term capital, 

and short-term capital as shown in the balance of 

payments. This series shows net inflows in the 

reporting economy. 

Gross capital formation 

(current US$, millions) 

Gross capital formation (formerly gross domestic 

investment) consists of outlays on additions to the 

fixed assets of the economy plus net changes in 

the level of inventories. Fixed assets include land 

improvements (fences, ditches, drains, and so on); 

plant, machinery, and equipment purchases; and 

the construction of roads, railways, and the like, 

including schools, offices, hospitals, private 

residential dwellings, and commercial and 

industrial buildings. Inventories are stocks of goods 

held by firms to meet temporary or unexpected 

fluctuations in production or sales, and "work in 

progress." According to the 1993, net acquisitions 

of valuables are also considered capital formation. 

Lending rate (percent) Lending rate is the bank rate that usually meets the 

short- and medium-term financing needs of the 

private sector. This rate is normally differentiated 

according to creditworthiness of borrowers and 

objectives of financing. 

Manufacturing value added 

(current US$, millions) 

Manufacturing value added refers to the net output 

of industries belonging to International Standard 

Industrial Classification divisions 15–37 after 

totaling outputs and subtracting intermediate 

inputs. 

Prevalence of HIV, total 

(percent of population 15–49) 

Prevalence of HIV, adults is the percentage of 

people ages 15–49 who are infected with HIV. 

Goods exports (current US$, millions) Goods exports include all merchandise that 

subtract from the stock of material resources of 

a country or territory by leaving the country’s 

economic territory.

Goods imports (current US$, millions) Goods imports include all merchandise that add 

to the stock of material resources of a country or 

territory by entering the country’s economic 

territory.

WTO, Statistics 

Database: Time 

Series on 

International Trade. 

Source: As cited. Compiled by the Commission.