Rethinking and Unthinking the AfCFTA: Call for an Integrated Economic and Industrial Policy Rethinking and Unthinking the AfCFTA: Call for an Integrated Economic and Industrial Policy Author: Felix Flintwood Brace MA student in International Business (CBS International Business School, Germany) Email: felix.flintwoodbrace@cbs-mail.de The opinions expressed in this article are those of the author and do not necessarily reflect the views of the editorial advisers or The Public Policy in Africa Initiative. We wish to thank the following reviewer: Hugue Nkoutchou, PhD in Management (University of Bath, United Kingdom). Particular thanks are due to Kenneth Nsah (Aarhus University) for editing this article. 2 Rethinking and Unthinking the AfCFTA: Call for an Integrated Economic and Industrial Policy Abstract With the introduction of the AfCFTA, African states are about to enter a new phase of global trade. The opportunities that the countries involved can exploit to finally grow their economies, whose resources set global trade in motion, appear to be a turning point for Africa’s economic outcome. However, many issues appear to be on the horizon. Politically, uniting 54 countries seems to be no mean feat, given the multitude of ethnicities and languages that characterise each of the African countries. In economic terms, macroeconomic convergence and trade diversification are the main points of analysis. Indeed, the possible introduction of a single African currency clashes, as in the case of the CFA franc, with the different monetary structures of African countries, and the similarity of exported goods would certainly not facilitate an African economy in a global context of high competition. Finally, the issue of the autonomy and independence of African institutions remains an open question. Keywords: AfCFTA, Regional Trade Agreements, Regional Economic Communities, Integration, Industrial Policy, Macroeconomic, Africa Rethinking and Unthinking the AfCFTA: Call for an Integrated Economic and Industrial Policy 3 1) Background of the AfCFTA On 30 May 2019, 44 African states signed the agreement on the African Continental Free Trade Area (AfCFTA), with official entry into force on 1 January 2021. AfCFTA is an international treaty that governs the opening of borders and the creation of a free trade area among African member countries. With the entry into force of the agreement, Africa has become the planet’s largest free trade hub that will link 54 out of 55 African economies (except Eritrea) with a total of 1.2 billion people and a total GDP of $2.5 trillion (Food and Agriculture Organisation of the United Nation, 2019). The aim of the agreement is to consolidate regional and continental integration processes by seeking to foster a solid framework for productivity growth that can integrate Africa into international trade and acquire a unified political space in global trade negotiations. The agreement foresees for African signatory countries the progressive harmonisation of customs and tariff regimes, as well as the abolition of tariffs on 97% of goods by 2030 (Faleg, 2021). In addition, it was highlighted that the African infrastructure system is anchored on a functional logic of exporting raw materials outside the continent. The infrastructure deficit is mainly reflected in the need to minimise logistical costs and in the lack of key links between the main urban centres; and this deficit is a factor that slows down the economic development of local communities. In this perspective, the AfCFTA can provide an important stimulus in redefining the map of African infrastructure and, more generally, contribute to an increase in the competitiveness of “Made in Africa” products. Phase I of the agreement covers the intentions of the AfCFTA, the principles of the treaty, key terms, and its institutions. Phase II deals with the investment’s procedures, investments, competitions, and settlements. Finally, Phase III will include the guidelines, protocols, and annexes. Good intentions aside, the real focus of negotiations are the commercial and economic agreements. This paper attempts to analyse the most critical points of this treaty, exploring the trade approach of African countries, the intra-regional trade dynamics, problems that arise in the numerous regional unions, and how they will be able to harmonise national industrial policies within the continental agreement. 2) Africa’s Export and Growth Is Commodity Driven In recent years, the focus of world economies on the role of Africa has again become paramount. With the slowdown of the world economy, starting in 2016, and the subsequent congestion of world trade due to the COVID-19 pandemic, the major industrialised countries are looking for a way out of the impending paradigm shift in the world economy. In this context, African countries are set to play a key role, since, as net exporters of raw materials needed for this global transition, their participation in the global value chain (GVC) will be essential (Geyer, 2019). However, it should be noted that the outward production activity of African countries is concentrated in the upstream segment of the GVC, as these products are then processed by other countries (Foster-McGregor, Kaulich and Stehrer, 2015). 4 Rethinking and Unthinking the AfCFTA: Call for an Integrated Economic and Industrial Policy In this context, Sub-Saharan Africa (SSA) countries have benefited for decades from high income gained from trade with more industrialised countries because of rising commodity prices. The vast natural resources, while representing an important economic income, are also an obstacle for the countries that possess them, as they prevent the diversification of their trade policy, thereby not encouraging emerging manufacturing activities that can concentrate on industrial processes with higher added value (Soderbom, 2003). Since growth is commodity-driven, the peaks of economic growth often do not flow into the real economy, and consequently do not reduce the poverty of the population (Deaton, 1992). In 2012, the African continent had reached a peak in outward exports totalling $625 billion (UNCTAD, 2016), driven by an increase in world commodity prices. However, this value dropped by 57% in the following four years. In a report prepared by UNCTAD (2021) on the growth opportunities of cashew exports in SSA, world trade in cashew has grown significantly in recent years. Analysing the data provided by UNCTAD, Export Planning (2019) showed that in 1995 production of cashew nuts in shell (i.e., low value-added) stood at levels below 100 thousand tonnes. Nevertheless, from 2007 onwards, trade in cashew nuts in shell increased from 200 thousand tonnes to over 1500 thousand tonnes in 2018. During the same period, trade in shelled cashew nuts (i.e., semi-processed), after peaking in 2007, declined steadily, never recovering the values of the previous decade. Following the dynamics of international trade, UNCTAD points out that the largest producers of cashew nuts in shell are found in 20 countries in West and East Africa, which supply 90% of cashew nuts traded globally, with Côte d’Ivoire as the largest exporter. Despite a near-monopoly position in cashew nut production, as much as 85% of cashew nuts are exported to Asia, to proceed with the shelling stage for subsequent sale to Western countries for final processing and sale to the consumer. For instance, at this intermediate stage of value creation, where India and Vietnam imported 98% of the world’s cashew nuts in shell between 2014-2018, once the product had been processed, it was exported for almost four times the price paid to African producers. Despite the prominent position of African products in the globalised world, the African continent seems to be unable to break out of the paradigm in which it has been confined in the previous century. According to the economist Amin (1972), the African continent is divided into three macro-areas: the eastern and southern regions as the Africa of the labour reserve, the western region as the Africa of the colonial economy and the central region as the Africa of the concession-owning companies. This theoretical subdivision of Africa is grounded in their external trade approach. Analysing the data from the World Bank (2021), countries making up the Africa of the concession-owning companies (Angola, Cameroon, Chad, Congo Republic, Democratic Republic of Congo, Equatorial Guinea, Gabon) register a high percentage of total natural reserves rents in % GDP when compared to the countries of West and Southeast Africa. Rethinking and Unthinking the AfCFTA: Call for an Integrated Economic and Industrial Policy 5 In the Africa of the colonial economy (Ghana, Nigeria, and CFA Franc zone), especially the two blocs that made up the former French colonial empire (WAEMU and CAEMC), the link of dependency created during that period remains very tight. In the French case, during the colonial period, France set itself the goal of creating an integrated trade area, to improve its trade balance and thus its external accounts, which by the mid-1940s were showing increasingly large imbalances (Pigeaud and Sylla, 2018). In a “disintegration” of the international market, due to the world wars, the great European powers had created different trade and currency areas: Great Britain and the Commonwealth countries were the first to adopt the principle of “imperial preference” with the Ottawa agreements of 1932 (UK Parliament, 1932) establishing preferential access to their markets and discriminating against products from other economies. France followed, strengthening trade and relations with its colonial dominions. Within these blocs, the “dominant” countries exercised unquestioned economic leadership and promoted a division of labour based on greater complementarity between different national economies. The aim of establishing trade blocs with their African colonies gave rise to a kind of “imperial autarky”, which still has significant social and economic implications (Schuerch, 2017). In contrast, Africa’s reserve labour force has the highest unemployment rates on the continent. Even though South Africa is the most industrialised country on the continent and the second largest in terms of GDP, the South African unemployment rate is the highest in Africa (Bloomberg; Trading Economics). A similar trend is registered by countries whose economies are connected or integrated with South Africa’s, leading to major social and economic inequalities, and a reduction of growth potential that could have benefited the whole region (Mkandawire, 1986). This “population surplus” (Scully and Opokua, 2019), in a regional and continental context undergoing rapid integration, can be an important resource for a structured and homogeneous development of the African market. For this reason, a strengthening of intra-African relations is necessary, not only involving a harmonisation of social and political relations between states, but also at an economic level. This will stimulate an industrial development that can integrate the various regional blocs into a free trade area that can provide an adequate outlet market for large-scale manufacturing. 3) Unsolved Regional Economic Communities (RECs) Integration African regionalism, which has been around since the 1960s, has always been based on cooperation that goes beyond independence from colonialism and focused more on the integration and economic prosperity (Mattheis, 2018). However, the failure to realise pan-Africanist dreams has its reasons in its organisational structure. Often, in regional contexts, the political discourse of the African leadership creates problems of cooperation, as no state wants to give up shares of sovereignty that limit its power of decision-making in national politics and consequently lose its popular consensus. 6 Rethinking and Unthinking the AfCFTA: Call for an Integrated Economic and Industrial Policy This peculiarity has created two different orders of problems, depending on the actors involved in each of the organisations. The first is that, very often, there is no country capable of driving the respective regional organisation, a fact that has led to decision-making paralysis and disinterest in the organisation’s aims. Quite different, but equally problematic, is the case where the leadership of one country within the organisation (e.g. South Africa in the SADC) is too strong, bordering on outright hegemony. A clear example of such imbalances is the role of Nigeria within the Economic Community of West African States (ECOWAS), given the country’s aims of regional hegemony and its leading role in the organisation (Hulse, 2016). This entanglement has often caused internal confrontation among the body’s members, with a strong tension between Nigeria, eager to use ECOWAS to pursue its own ends, and other countries, ready to sabotage the organisation’s interventions if they seemed advantageous to Nigerian hegemony (Adebajo, 2000). It is also no coincidence that the organisation has never intervened in Nigeria’s many internal conflicts, which it has always encouraged other countries to treat these events as internal affairs (Ogbonnaya et al., 2014). Another problem is evident from a first glance at the map of regional organisations: the problem of overlap. Many African countries are members of more than one regional organisation, with the absolute record for the Democratic Republic of Congo and Rwanda, members of 14 and 11 bodies respectively. As can be seen in Figure 1, there are many RECs with different functions. Those recognised by the African Union (AU) and established in 1991 by the Abuja Treaty (AU, 1991), and which have a greater relevance for continental integration purposes are eight: • • • • • • • • Arab Maghreb Union (AMU/UMA) in North Africa Economic Community of West African States (ECOWAS) in West Africa East African Community (EAC) in East Africa Intergovernmental Authority on Development (IGAD) in East Africa Southern African Development Community (SADC) in Southern Africa Common Market for Eastern and Southern Africa (COMESA) in Central-East Africa Economic Community of Central African States (ECCAS) in Central Africa Community of Sahel-Saharan States (CENSAD) in Central-Northern Africa There are also monetary and customs unions: • • • Southern African Customs Union (SACU) West African Economic and Monetary Union (WAEMU) Central African Economic Monetary Cooperation (CAEMC) Rethinking and Unthinking the AfCFTA: Call for an Integrated Economic and Industrial Policy 7 Source: Authors’ compilation based on UNCTAD (2016). This entanglement has weakened the organisations to the extent that some pursue different goals in different groupings, often causing friction or forms of obstructionism depending on their relationship with other members. There is also often a substantial divergence in the aims of individual states from those of the organisations of which they are members, which often leads many countries to cooperate reluctantly or to even obstruct certain activities in their communities. A case is that of COMESA, between South Sudan and Kenya, due the internal conflicts in the former state, have caused numerous financial problems for the Kenyan economy. In fact, during the procedures for the annexation of South Sudan into the EAC, the member states of this region tried to hinder its entry, as the political instability of the country could have led to humanitarian and economic problems for the entire REC (Odhiambo and Muluvi, 2014). 4) Intra-Regional Trade Patterns The problem of overlapping Regional Economic Communities (RECs) shows all its criticality in the shares of intra-regional trade recorded in SSA. In fact, despite a growth in regional trade recorded over the last 30 years (Panke and Stapel, 2016), in 2016 only 15.4% of African countries’ exports were intra-continental. This was a very limited value compared to the vibrant trade relations that European (61.7%) and North American (40.3%) countries have with each other (UNCTAD, 2016). Looking also at the data on trade flows, while some African countries have increased their export shares, most of it has been absorbed by Asian countries. 8 Rethinking and Unthinking the AfCFTA: Call for an Integrated Economic and Industrial Policy UNCTADstat recorded that from 2000-2016 trade between Africa and Asia increased from 20.6% to 35.8%, almost catching up the volume of trade between Africa and Europe, which fell from 48% to 37% over the same period. This change in trade flows to countries regarded as the “factory of the world” underlines how African countries are missing the opportunity to transform their economies, by moving into more industrialised sectors that can contribute to a higher added value of their goods. One of the reasons for this low propensity to intra-regional trade is the specialisation of some countries in exporting a few products and low complementarity in trade dynamics (Keane, Calì and Kennan, 2010). For example, Goretti and Weisfeld (2008) analysed the levels of trade complementarity within ECOWAS and SADC. They found that while in the former region the complementarity index is substantially high and with ample room for improvement, in the latter region the index is strongly negative among the member countries. In the case of ECOWAS, the composition of products exported by member states are similar but differ from products imported from other members, thus increasing the potential for intra-regional economic development. In SADC, where South Africa generates two-thirds of the region’s exports, the complementarity index is even negative, as the products exported are similar to the products imported by the other members. However, for the latter the potential to increase intra-regional trade is limited by an export and import basket that is strongly divergent. A second factor limiting the internal management of regional organisations lies in the fact that they are intergovernmental bodies, with their own institutions, but still dependent on the political decisions of the member states for policy direction. This means that the various national initiatives are not in line with the objectives pursued at regional level, thus creating confusion on the political and economic agendas of the REC, thereby not enabling a full regional integration. 5) Unclear Continental Industrial Agenda Often, small countries in developing regions become part of Regional Trade Agreements (RTAs) that promote their economic growth and greater regional relevance. However, the presence of a regionally dominant country, or membership in several RTAs, clouds any scenario of continental integration. According to Viner (1950), membership of an RTA entails the creation of a greater volume of trade within it, and that, especially in developing contexts, this is a necessary choice. However, in a context such as Africa, which has always pushed for regional cooperation (Yang and Gupta, 2005), the absence of an explicit unified industrial policy seems to be the biggest problem. The various regional blocs have often pursued non-convergent industrial policies that have slowed down the integration process. While in the post-colonial years, the policies of many countries were directed towards an import substitution policy (Ogujiuba, Nwogwugwu and Dike, 2011), then to market-led policies, today they are more oriented towards domestically oriented industry policies (Behuria, 2019). Rethinking and Unthinking the AfCFTA: Call for an Integrated Economic and Industrial Policy 9 This last point, that is, focusing more on the development of the domestic market, trying to protect local producers, has led to a situation of non-coordination between national policies and those of the RTA to which they belong. The choice to protect certain sectors from intra-African competition is often influenced by the balance between the branches of capital in individual countries, particularly through the pressure that representatives of certain sectors put on their politicians. The result is an incentive for political instability and too much homogeneity in the goods produced, without adequate resources being deployed in the development of vital industrial sectors. The adoption of common tariffs to the outside world inevitably shifts trade policy from the state to the regional level, while industrial policies remain a state prerogative. This problem of misalignment leads nation states to draw up lists of products to be excluded from liberalization, which in the short term seem to favour national producers, but in the long-term this runs the risk of becoming an excess tax on the final consumer, thus decreasing profitability and competitiveness for local industries. Odijie (2018, 2020), analysing the industrial policies of ECOWAS member states after the signing of the Economic Partnership Agreement (EPA) with the EU, confirms how the choice to exclude certain sectors from regional competition to protect domestic production pushes other member states to pursue similar policies. As the EPA agreement entails the liberalisation of 75% of product lines (Alaba, 2006), countries that had already undertaken industrial policies in certain sectors nominated these in the list of the remaining 25% to be excluded from liberalisation. However, this choice prompted many member countries to implement identical industrial policies a few months after the agreement was signed. As summarised by Odijie (2020), the tendency of ECOWAS member countries to undertake the same policies as countries that have nominated certain product lines for protection shows the uncoordinated political and industrial policies that African countries need to reverse if they want to achieve an integrated continental market. This not only leads to regional imbalances, but also results in wasteful and unnecessary duplication of investments in sectors that already exist at regional levels. Regional cooperation should invest its resources in infrastructures and technologies that can be shared and used at both national and regional levels, thereby stimulating the collection and exchange of information useful in developing an integrated economy. 10 Rethinking and Unthinking the AfCFTA: Call for an Integrated Economic and Industrial Policy 6) Rethinking the AfCFTA Africa is once again at a turning point that will determine the future of its next generations. Since Nkrumah’s pan-Africanist dreams until today, little has been done to unify the continent and make it politically and economically autonomous. As we have seen, African countries are still unprepared to deal with a continental unification that, while showing significant criticalities, is an opportunity to awaken the “sleeping giant”. For this reason, I believe it is necessary to reformulate the AfCFTA from a less visionary perspective to a more concrete plan (that is evidence-informed, targeted, effective, sustainable, and affordable), which seeks to solve Africa’s real problem, that of autonomy. Firstly, it is necessary to design a continental industrial framework, which considers the different peculiarities of the states and their RTAs. While the idea of using the various RECs as a strategy to harmonise the continental integration process is a welcomed initiative, its implementation has run into the lack of coordination between national and regional industrial policies. Since regional policies are inevitably conditioned by those of the individual member states, it is necessary to establish an industrial path that integrates the various national sectors, even though they are often complementary, in a division of labour that can allow some countries to specialise in sectors where they already have the expertise and infrastructure to supply products to the entire region, without running into harmful internal competition. By dividing the work, member states will not have to exclude the same product lines that they want to protect from internal and external trade but will be able to decide at the regional level how to approach the external market. Secondly, a common regional industrial policy needs infrastructure and human capital that can stabilise the industrialisation process. Infrastructural development is a key factor for increasing productivity and economic growth and can contribute significantly to human development. Indeed, the impact of infrastructural development on the growth of intra-African trade, which is currently severely limited by the numerous bottlenecks in the continent’s transport network, should not be underestimated. This development can be implemented to the extent that the various African states also invest in their population, especially in young people under 25 years, who currently represent over 60% of African population (Kariba, 2020). While the phenomenon of immigration of young Africans in search of work and a better future in Western, especially European, countries is well known, other critical issues may emerge from the management of economic inequalities that the AfCFTA could exacerbate. The growth of intra-African trade and industrial development, combined with the freedom of movement of people, may intensify internal migration to industrial centres. This could contribute to a sharp rise in land and property market prices, with associated rent appropriation by landowners and simultaneous eviction and impoverishment of the poorest inhabitants. This risk is highlighted as even more insidious in view of the role that multinationals will play in land speculation, and in the face of these major challenges, the continental project does not currently provide for adequate rules. Rethinking and Unthinking the AfCFTA: Call for an Integrated Economic and Industrial Policy 11 Finally, the issue that will really decide the fate of the AfCFTA is the economic and financial integration. As all macro-economic transitions, such as the one involving the European countries that decided to join the European Monetary System first, formalised later with the adoption of the Euro, it involves relevant macroeconomic rearrangements. In the African scenario, which has been experiencing balance of trade problems for decades, bringing together the economies of 54 countries, and allowing for sustainable economic growth for all, seems to be a complicated task. Some countries as part of the CFA Franc Zone (WAEMU and CAEMC) and the EAC have already embarked on a process of economic integration. While for the countries in the WAEMU and CAEMC, the CFA Franc is a legacy of the colonial period, in the EAC the goal is a single regional market. An option that is in the plans to accelerate economic and monetary integration among RECs is going on between WAEMU countries and ECOWAS, leading to a regional African currency, the “Eco” (Makonga, 2020). Formulated in the early 1980s, this project has seen many setbacks and doubts over the years from the countries involved in the project themselves. Attempts to speed up convergence have been made by France, with the support of the Ivory Coast, to rename the CFA franc to “eco”, thus anticipating the ECOWAS objectives of a common currency (Keita and Gladstein, 2021). Nevertheless, Nigeria which accounts for more than 70 per cent of ECOWAS’ GDP, has always harboured many doubts about whether its economy should be part of a monetary union with WAEMU, which is strongly influenced by the French authorities. The introduction of a new monetary area appears to be very difficult, especially from a macroeconomic perspective. In fact, a rapid and forced convergence of economies that are not very diversified does not seem to be the best solution. Countries with high levels of inflation and public debt, to the detriment of others, will be forced to adopt restrictive measures to fall within the parameters set by the monetary authorities. The example of the Eurozone, especially that of Greece, shows how forcing a certain economy to adopt economic policies exclusively leaned to “austerity” does not necessarily give the desired effects. On the contrary, it leads to a worsening of the financial and economic situation. Even today, despite timid signs of economic recovery, countries such as Greece, Spain, Portugal, and Italy still experience high levels of unemployment, often among the youngest. After 20 years of the single European currency, not only has there been no real economic and fiscal convergence, but even nominal convergence seems to have remained in the European Treaties (Kotios et al., 2011). Given these precedents, AfCFTA needs to seriously analyse the feasibility of this process. In this sense, African countries need to go beyond the dictates of the Washington Consensus adopted so far and embark on monetary policies aimed at expanding the continent’s economy, a process from which Western states have also benefited for decades in the post-war period. However, for this process to see light, dedicated institutions are needed to govern this transition, operating in full independence (i.e., 100% financed by contributions from African countries), but pursuing the interest of all member states, especially the smaller and more fragile economies. 12 Rethinking and Unthinking the AfCFTA: Call for an Integrated Economic and Industrial Policy A system of financial cooperation and support, such as an African Monetary Fund, should also be set up to deal with any financial imbalances of the member countries, implementing ‘structural adjustment’ policies that do not involve tears and blood adjustments, but which really support the socio-economic situation of the country in difficulty. If the 54 countries that make up the AfCFTA can find a balance and “free” themselves from the hegemony of international institutions, then the process of continental unification will be able to take off. 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