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Common Market for Eastern and Southern Africa
Common Market for Eastern and Southern Africa
Common Market for Eastern and Southern Africa
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The Common Market for Eastern and Southern Africa (COMESA) is a regional economic community in Africa with twenty-one member states stretching from Tunisia to Eswatini. COMESA was formed in December 1994, replacing a Preferential Trade Area which had existed since 1981. Nine of the member states formed a free trade area in 2000 (Djibouti, Egypt, Kenya, Madagascar, Malawi, Mauritius, Sudan, Zambia and Zimbabwe), with Rwanda and Burundi joining the FTA in 2004, the Comoros and Libya in 2006, Seychelles in 2009, Uganda in 2012[4] and Tunisia in 2018.

Key Information

COMESA is one of the pillars of the African Economic Community.

In 2008, COMESA agreed to an expanded free-trade zone including members of two other African trade blocs, the East African Community (EAC) and the Southern Africa Development Community (SADC). COMESA is also considering a common visa scheme to boost tourism.[5]

Membership

[edit]

Current members

[edit]
Country Joined
Horn of Africa countries
 Djibouti 21 Dec 1981
 Eritrea 1994
 Ethiopia 21 Dec 1981
 Somalia 21 Dec 1981 (PTA) / 19 Jul 2018 (COMESA)[6]
North African countries
 Egypt 6 Jan 1999
 Libya 3 Jun 2005[n 1]
 Sudan 21 Dec 1981
 Tunisia 18 Jul 2018[6]
Indian Ocean
 Comoros 21 Dec 1981
 Madagascar "
 Mauritius "
 Seychelles 2001
African Great Lakes
 Burundi 21 Dec 1981
 Kenya "
 Malawi "
 Rwanda "
 Uganda "
Southern Africa
 Eswatini 21 Dec 1981[n 2]
 Zambia "
 Zimbabwe "
Central Africa
 Democratic Republic of the Congo 21 Dec 1981[n 3]

Former members

[edit]
Country Left
 Lesotho 1997
 Mozambique 1997
 Tanzania 2 Sep 2000
 Namibia 2 May 2004
 Angola 2007 [n 4]

Organs

[edit]

According to the treaties, the following organs have decision-making power:

  • The COMESA Authority, composes of Heads of States or Government and is COMESA's supreme policy-making organ. The Authority is headed by a Chairman elected for an agreed period; the current chairperson from November 2025 is Kenya's President William Ruto. The Authority is tasked with the general policy direction and controlling the overall performance of the executive functions of COMESA. The COMESA Authority meets once a year at Summits which are held in different member States. The hosting government and the COMESA Secretariat bear joint responsibility for their organization. Whilst the hosting country assumes the chairmanship of the Authority for the year, an Extraordinary Summit can be held at the request of any member of the Authority; so long as one-third of the members of the Authority support such a request.[7] The Authority meetings are held in closed sessions and usually decisions are taken by consensus. The session leaders have to issue a communiqué, recording any decisions made. These directives and decisions taken by the Authority are binding on all member States and the other organs to which they are addressed.
  • The COMESA Council of Ministers
  • The COMESA Court of Justice decisions have precedence over any decisions of national courts. The Court of Justice may receive cases not only from member States, but also from natural and legal persons, against the council to determine the legality of any act towards the directive's, regulation or decision made. The Persons are also permitted under the Treaty to sue a member State in the COMESA Court; the legality under the Treaty of any act, directive regulation, or decision of such member State.

In the event that a member State's court is reviewing the application or interpretation of the Treaty, it may request the Courts' opinion on the matter. If the national court is a court from which there is no appeal or remedy, then court is required to refer the question to the COMESA court. The national remedies must be exhausted before a person can bring a matter to the COMESA CJ. The COMESA Court has jurisdiction over suits brought by COMESA employees and third parties against COMESA or its institutions. It also may act as an arbitrary tribunal on any matter arising from a contract to which COMESA or any of its institutions is a party. Further the Court can adjudicate any dispute between member States who agree to bring the dispute before it. Unlike the Statute of the International Court, the treaty does not state the sources of law to be applied by the Court. The Treaty and any COMESA issued legal instruments, will make the initial law to be applied, but municipal law and international law may also be determined applicable by the Court.

While the jurisdiction of the COMESA Court provides multiple avenues for the creation of standard interpretation of the Treaty, there is no specific provision of an avenue for the settlement of disputes between the institutions of the Common Market. The Court is not given the power to interpret the statutes of the other COMESA institutions. Finally, the Treaty does not specify that the Court will have jurisdiction over human rights issues within the context of Community

Due to its varying jurisdictions of the Court, the Eighth Meeting of Ministers of Justice and Attorneys General recommended to the Council of Ministers and the Authority that the Treaty be amended to provide for two divisions in the Court, the Court of First Instance and the Appellate Division. The proposal was adopted and the Court was expanded in June 2005 with the appointment of seven judges in the Court of First Instance and five judges in the Appellate Division. The work of the Court was then suspended until the Appellate Division judges were appointed and the Rules of Court for the Appellate Division were drawn up and adopted. During this reformation of the Court, the previously fully independent Court was made subject to the review of any proposed Rules of Court by the Ministers of Justice and Attorneys-General. The Court was established under the 1994 Treaty, the first set of judges was not appointed until 1998.

Unlike other African regional courts, the COMESA Court continues to receive cases. However, due to lack of funds the Court is unable to hear all its cases at certain times. Funding is only done for one session of the Court per year, these has contributed greatly to piling of cases. The backlog of cases will most certainly increase with the current growth in trade disputes in the region.[8]

The following lower policy organs make recommendations to the above:

Other COMESA institutions created to promote development and regional integration are:

List of secretaries general

[edit]

The United Nations Economic Commission for Africa provided an interim Secretariat for the Preferential Trade Area from December 1981 (signing of the Lusaka treaty) until December 1982 (first meeting of the PTA). UNECA Secretary General Adebayo Adedeji was the interim Secretary General of the PTA during this time. UNECA official Bax Nomvete would go on to serve as PTA Secretary General.[9]

Source:[10]

No. Image Name Country Took office Left office
Secretary General of the Preferential Trade Area
1 Semyano Kiingi Uganda 1983 1984
2 Bax Dale Nomvete United Nations 1984 1990
3 Bingu Wa Mutharika Malawi 1991 1994
Secretary General of the Common Market
– Bingu Wa Mutharika Malawi 1994 1997
4 Erastus J. O. Mwencha Kenya 1998 2008
5 Sindiso Ngwenya Zimbabwe 2008 2018
6 Chileshe Kapwepwe Zambia 2018 Incumbent

Comparison with other regional blocs

[edit]
African Economic Community
Pillar regional
blocs (REC) 		Area
(km²) 		Population GDP (PPP) ($US) Member
states
(millions) (per capita)
EAC 5,449,717 343,328,958 737,420 2,149 8
ECOWAS/CEDEAO 5,112,903 349,154,000 1,322,452 3,788 15
IGAD 5,233,604 294,197,387 225,049 1,197 7
AMU/UMA 4 6,046,441 106,919,526 1,299,173 12,628 5
ECCAS/CEEAC 6,667,421 218,261,591 175,928 1,451 11
SADC 9,882,959 394,845,175 737,392 3,152 15
COMESA 12,873,957 406,102,471 735,599 1,811 20
CEN-SAD 4 14,680,111 29
Total AEC 29,910,442 853,520,010 2,053,706 2,406 54
Other regional
blocs 		Area
(km²) 		Population GDP (PPP) ($US) Member
states
(millions) (per capita)
WAMZ 1 1,602,991 264,456,910 1,551,516 5,867 6
SACU 1 2,693,418 51,055,878 541,433 10,605 5
CEMAC 2 3,020,142 34,970,529 85,136 2,435 6
UEMOA 1 3,505,375 80,865,222 101,640 1,257 8
UMA 2 4 5,782,140 84,185,073 491,276 5,836 5
GAFTA 3 4 5,876,960 1,662,596 6,355 3,822 5
AES   2,780,159 71,374,000 179,347 3
During 2004. Sources: The World Factbook 2005, IMF WEO Database.
  Smallest value among the blocs compared.
  Largest value among the blocs compared.
1: Economic bloc inside a pillar REC.
2: Proposed for pillar REC, but objecting participation.
3: Non-African members of GAFTA are excluded from figures.
4: The area 446,550 km2 used for Morocco excludes all disputed territories, while 710,850 km2 would include the Moroccan-claimed and partially-controlled parts of Western Sahara (claimed as the Sahrawi Arab Democratic Republic by the Polisario Front). Morocco also claims Ceuta and Melilla, making up about 22.8 km2 (8.8 sq mi) more claimed territory.
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See also

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This article is part of a series on
Politics of the African Union
Institutions
Executive
Legislature
Judiciary
Advisory bodies
Financial bodies
Decentralised bodies
Related topics

Notes

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References

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Revisions and contributorsEdit on WikipediaRead on Wikipedia

Common Market for Eastern and Southern Africa

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The Common Market for Eastern and (COMESA) is a regional intergovernmental comprising 21 African member states, formed in December 1994 to replace the earlier Preferential Trade Area (PTA) and promote through progressive trade liberalization, cooperation in resource development, and establishment of a common market. Its member states span eastern, , and parts of northern Africa, including , , , , , , , , , , , , , , , , , , , , and . COMESA's core objectives include creating a , which was launched on 31 October 2000 following tariff reductions, and advancing toward a operationalized in 2009 to harmonize external tariffs and facilitate intra-regional trade. The bloc encompasses a exceeding 640 million people and generates a combined valued at approximately $1 trillion, positioning it as a significant for internal and external , though intra-COMESA trade remains constrained by non-tariff barriers, infrastructure deficits, and overlapping memberships with other regional economic communities like the and . Key achievements include the of trade among participating states and institutional developments such as the COMESA Competition Commission, established to regulate mergers and promote fair competition, despite operational challenges including delays in ratification and enforcement inconsistencies among members. COMESA also engages in broader integration efforts, such as monetary cooperation and participation in tripartite arrangements with the and to expand the to 27 countries, though progress toward deeper unification has been hampered by divergent national policies and external dependencies.

History

Origins in the Preferential Trade Area (1981–1993)

The Preferential Trade Area for Eastern and Southern African States (PTA) originated from efforts to foster regional amid post-independence challenges in , building on the 1978 Declaration of Intent. The PTA was signed on 21 December 1981 in , , by representatives from nine founding states: , , , , , , , , and . The agreement entered into force on 30 September 1982 following by more than seven member states, as required under Article 50 of the treaty. Its primary objectives included promoting cooperation in trade, transport, communications, and industry; gradually reducing and eliminating tariffs and non-tariff barriers; and establishing a framework for eventual progression to a common market and economic community, aligned with the broader African goals outlined in the Lagos Plan of Action for 1980–2000. Membership expanded steadily during the , with additional countries such as joining in 1982, reflecting growing interest in intra-regional trade amid external pressures like commodity price fluctuations and debt crises. By the late , the PTA encompassed around 18 states, though participation varied due to ratification delays. Key institutions were created to support operations, including the PTA Clearing House in 1984 for facilitating payments, the Eastern and Southern African Trade and Development (PTA ) in 1985 for financing trade and projects, and the PTA Reinsurance Company (ZEP-RE) agreement signed in 1990 with operations commencing in 1992. These bodies aimed to address infrastructural and financial bottlenecks, with the PTA specifically tasked with promoting development in member states through loans and equity investments. Trade liberalization began in July 1984 with an initial tariff reduction schedule targeting an 80% average cut over eight years and full elimination for most goods by 1992, though special provisions allowed slower implementation for least-developed members like and . Progress was hampered by challenges including stringent that limited eligible intra-PTA trade, persistent non-tariff barriers, divergent economic systems (e.g., state-controlled economies in several members), and political instability in the region, resulting in modest intra-PTA trade growth averaging below 5% annually during the period. The treaty's foundational provision for evolution into a common market gained momentum in the early 1990s, influenced by the 1991 on the ; this culminated in the signing of the COMESA on 5 November 1993 in , , marking the formal transition from PTA structures.

Establishment and Early Reforms (1993–2000)

The Treaty Establishing the Common Market for Eastern and Southern Africa was signed on 5 November 1993 in , , by representatives of 16 states formerly comprising the Preferential Trade Area (PTA). The treaty aimed to advance regional economic integration beyond the PTA's preferential tariff reductions, targeting the creation of a , common market, and eventual monetary union through harmonized policies on , , and monetary affairs. The treaty entered into force on 8 December 1994 in , , following ratification by at least two-thirds of PTA members, formally replacing the PTA framework established in 1981 under the Lagos Plan of Action. This transition expanded the scope from bilateral preferential to multilateral obligations, including non-tariff barrier elimination and harmonization, while retaining PTA's schedule that had begun in 1984 with phased tariff cuts. Initial membership included core PTA states such as , , , , , , , , , , , Swaziland (now ), , , , and , with additions like , , and others joining shortly after inception in late 1994. Early institutional reforms focused on operationalizing the treaty's organs, including the Authority of Heads of State and Government as the supreme policy body, the Council of Ministers for policy development, and the Secretariat headquartered in , . In 1993, the Federation of National Associations of (FEMCOM) was established to promote gender-inclusive economic participation. By 1996, a standardized COMESA Document was adopted to facilitate cross-border documentation and reduce administrative delays. In 1998, the COMESA Court of Justice was instituted in , , to adjudicate disputes arising from implementation, enhancing legal enforcement mechanisms. These reforms culminated in the launch of the COMESA on 31 October 2000, initially implemented by nine members—, , , , , , , , and —which eliminated duties on substantially all intra-regional trade per the pre-agreed liberalization timetable. This step marked progress toward the phase, though implementation varied due to differing national capacities and external economic pressures.

Key Milestones and Expansions (2000–Present)

On 31 October 2000, COMESA launched its (FTA), initially with nine participating member states—, , , , , , , , and —eliminating customs duties on intra-regional trade to foster . By 2020, the had expanded to include 16 member states, reflecting gradual accessions and commitments to reductions among a broader group. Seychelles acceded to COMESA membership in 2001, enhancing the organization's representation, while joined in 2005, extending its reach into . , however, withdrew its membership in 2000, citing overlapping commitments to other regional economic communities such as the , which complicated its participation. In 2009, COMESA initiated its with the adoption of a structure, though full implementation remains uneven, with only select members actively applying the framework due to varying national capacities and policy alignments. A major expansion effort culminated in the 2008 agreement between COMESA, the (EAC), and the (SADC) to establish a Tripartite Free Trade Area (TFTA), signed in 2015 after negotiations, creating a unified market spanning 26 countries and over 600 million consumers; the agreement entered into force on 25 July 2024 following sufficient ratifications. This tripartite framework aims to harmonize trade rules and reduce non-tariff barriers, building on COMESA's FTA to promote continental integration under the African Union's Agenda 2063.

Objectives and Integration Framework

Primary Economic and Political Goals

The primary aims and objectives of the Common Market for Eastern and Southern Africa (COMESA), as established in Article 3 of its founding signed on 5 November 1993 and effective from 8 December 1994, center on fostering sustainable and among member states through coordinated and policies. These include attaining balanced and harmonious production and supply structures, promoting development in economic activities, and adopting macroeconomic policies and programs designed to raise living standards while strengthening functional cooperation among members. The treaty emphasizes creating an enabling environment for foreign, cross-border, and domestic , including the promotion of joint ventures and adaptation of science and technology for development. Economically, COMESA seeks to develop a self-sustaining common market for and services, culminating in a common currency and monetary union, by liberalizing trade through the elimination of internal tariffs and non-tariff barriers, harmonizing external tariffs, and facilitating the free movement of capital, , services, and eventually persons. Key priorities involve in sectors such as , industry, , , and communications to enhance , competitiveness, and , with specific measures like the establishment of a operationalized on 31 October 2000 among initial participating states and a roadmap adopted in 2004. These efforts aim to overcome the limitations of small national markets by pooling resources across 21 member states, representing a exceeding 640 million and a combined GDP of approximately $1 trillion as of recent assessments. On the political front, while secondary to , COMESA's objectives include promoting peace, security, and stability as foundational prerequisites for development, alongside strengthening in legal, administrative, and diplomatic matters to adopt common positions in international organizations. The framework supports convergence toward the broader by harmonizing policies that underpin regional sovereignty and resource utilization for mutual benefit, without mandating supranational political authority. This dual emphasis reflects a pragmatic approach to integration, prioritizing to mitigate conflicts and enhance power globally.

Stages of Economic Integration

The Common Market for Eastern and Southern Africa (COMESA) structures its progressively, aligning with the treaty's objectives to first eliminate internal barriers, then adopt a , and advance to a common market enabling free flows of production factors. This framework draws from standard models of , with protocols and roadmaps specifying timelines, though implementation has faced delays from non-tariff barriers, infrastructure deficits, and multiple REC memberships. The foundational stage, the , commenced on 31 October 2000 when nine members—, , , , , , , , and —completed tariff elimination on originating goods per the 1992 schedule, building on earlier from 1984. Participation expanded to sixteen states by 2017, including , , , , , , and , fostering annual intra-regional trade growth of 7% post-launch. Remaining members phase in reductions, with the of Congo finalizing its schedule as of 2015. The stage launched on 7 June 2009 at , targeting a 2012 completion of a three-to-five-year transition to align national regimes with a of 0%, 10%, or 25% bands, harmonized where possible with the . A conducts annual monitoring, while the COMESA Fund compensates revenue shortfalls, yet alignment persists as a bottleneck amid overlapping obligations in blocs like the . Full operationalization remains pending, limiting unified external protection and exposing intra-bloc trade to inconsistencies. The common market stage, enshrined in a protocol, seeks free movement of goods, services, capital, labor, and persons, including rights of establishment and residence, phased from visa relaxations (Stage I, ongoing) to skilled labor mobility (Stage II, initiated 2004). The Free Movement Protocol, integral to this, has not entered force, derailing the 2017 target due to unratified elements and dependencies on prior stages. Progress hinges on resolving gaps and harmonizing policies, with empirical intra-trade shares still below 10% of members' totals reflecting incomplete integration.

Membership Dynamics

Current Member States and Accession Process

The Common Market for Eastern and Southern Africa (COMESA) comprises 21 member states, primarily in Eastern and Southern Africa with extensions into , representing a population exceeding 640 million and a combined GDP of approximately $1 trillion as of recent estimates. These states are: , , , , , , , , , , , , , , , , , , , , and . Among them, eight actively implement the COMESA (FTA), while three—, , and —participate as non-FTA members due to incomplete tariff liberalization or suspensions from certain activities. Accession to COMESA is regulated by the COMESA Treaty, which prioritizes former members of the Preferential Trade Area for Eastern and Southern African States (PTA) while allowing the —the supreme policy organ comprising heads of state and —to admit other African states upon application. Prospective members initiate the process by submitting an application to the Secretariat, followed by negotiations on obligations, including commitments. The enters into force for an acceding state upon signature, by domestic authorities, and deposit of the with the depository in , ; this activates full membership rights and duties. Recent examples include Tunisia's accession effective June 19, 2019, after , demonstrating the process's emphasis on alignment with regional trade protocols. No new accessions have been recorded as of 2025, maintaining the membership at 21.

Withdrawals, Suspensions, and Overlaps

formally withdrew from COMESA on October 30, 2000, following threats the previous year, primarily due to dissatisfaction with stalled tariff liberalization and a preference for prioritizing integration within the , where deeper commitments aligned better with its economic interests. and withdrew effective November 12, 1997, amid early challenges in transitioning from the Preferential Trade Area framework to full COMESA implementation. exited on November 9, 2004, reflecting strategic realignment toward priorities. suspended its participation in 2007 and subsequently withdrew, as part of broader patterns where states exited amid overlapping obligations and limited perceived benefits from multiple memberships. Suspensions within COMESA have typically arisen from non-payment of dues or failure to meet obligations, enforcing fiscal discipline. In June 1998, nine states—, , Democratic Republic of Congo, , , , , , and —were suspended for arrears accumulation, disrupting participation until resolutions were reached. 's 2007 self-suspension highlighted internal capacity constraints post-civil war. More recently, in March 2021, COMESA threatened to suspend over approximately Shs4 billion (about $1.1 million USD) in unpaid contributions spanning several years, underscoring ongoing enforcement mechanisms, though full suspension was averted through negotiations. COMESA features extensive overlaps with other (RECs), complicating policy coherence and trade rule application across Africa's variable geometry integration landscape. Nine COMESA members—, of Congo, , , , , , , and —also belong to the (SADC), while five (, of Congo, , , ) overlap with the (EAC). Such dual or triple memberships, affecting over half of COMESA's 21 states, foster forum-shopping and non-tariff barrier proliferation, as states selectively implement rules favoring national interests over regional harmonization. Efforts like the COMESA-EAC-SADC Tripartite , launched in 2015, aim to mitigate these frictions by aligning tariff schedules, but empirical progress remains uneven due to divergent national capacities and priorities.

Institutional Framework

Core Organs and Decision-Making Bodies

The Authority of Heads of State and Government serves as the supreme policy-making organ of COMESA, responsible for determining the general policy direction, approving the budget, and overseeing the overall functioning of the organization. It comprises the Heads of State or Government from the 21 member states and meets at least once every two years, with decisions typically made by consensus or, failing that, by a two-thirds majority vote. The , subordinate to the , oversees the implementation of policies and the day-to-day development of COMESA, including reviewing reports from subordinate bodies and making recommendations to the Authority. Composed of ministers responsible for coordinating ministries (such as , , or planning) from each of the 21 member states, the Council convenes annually and holds decision-making powers on operational matters, again primarily by consensus or two-thirds majority. Sectoral Ministerial Committees, reporting to the Council, address specific areas like , customs, agriculture, and , providing specialized policy input. The Committee of Governors of Central Banks handles monetary and financial cooperation, including oversight of payment systems, banking regulations, and potential monetary union initiatives, with its members drawn from the central banks of all 21 states. Technical Committees, numbering 13 and covering sectors such as and , , and transport, support decision-making by preparing programs, monitoring implementation, and advising higher organs based on input from national technical officials. The COMESA Court of Justice functions as the judicial organ, interpreting the COMESA Treaty, resolving disputes among member states or between states and the Secretariat, and ensuring compliance with regional rules, thereby upholding the rule-based nature of the integration process. The Secretariat, led by a Secretary-General appointed by the for a five-year term and headquartered in , , executes decisions but lacks independent decision-making authority, instead coordinating operations through staff from member states.

Secretariat Operations and Leadership

The Secretariat serves as the executive organ of the Common Market for Eastern and Southern Africa (COMESA), headquartered in , , and is responsible for implementing regulations and directives adopted by the while providing strategic recommendations to support policy execution. It coordinates daily operations across its divisions and units, supports COMESA's overall functions including programme implementation, and conducts investigations as directed by technical committees. The Secretariat's staff is drawn to represent the 21 member states, ensuring regional balance in its administrative and technical roles. Leadership is headed by the Secretary General, appointed by the of Heads of State and Government for a five-year term renewable once, serving as the , legal representative of COMESA, accounting officer, and secretary to summits. The current Secretary General, Chileshe Mpundu Kapwepwe of , assumed office in July 2018. Two Assistant Secretaries General oversee programmes and administration & , each eligible for up to two five-year terms appointed by the . The Secretariat is structured into nine primary divisions—Executive Office, Legal & Corporate Affairs, & Customs, Industry & , & , & Logistics, Information & Networking, Gender & Social Welfare, and Administration—supplemented by specialized units such as , Resource Mobilization & International Cooperation, , Peace & Security, , and COMESA Statistics. These units handle functions ranging from policy harmonization and trade facilitation to , development, , and statistical coordination, with professional grades spanning P1 to P4 and support grades G1 to G7. Operations emphasize technical support for , including strategic planning for multi-year work programmes and collaboration with member states on treaty objectives like industrial cooperation and peace initiatives. The Secretariat reports to higher organs including the and , facilitating decision-making through evidence-based advisory services.

Major Initiatives and Policies

Free Trade Area and Tariff Reductions

The Common Market for Eastern and Southern Africa (COMESA) (FTA) was established on 31 October 2000, when nine member states—, , , , , , , , and —eliminated on goods originating within the bloc, in accordance with a reduction schedule adopted in 1992. This followed a 16-year period of progressive trade liberalization that began in 1984 under the predecessor Preferential Trade Area framework, with interim targets including 60% cuts by October 1993 and 70% by October 1994, culminating in full elimination by 2000 for qualifying intra-COMESA trade. Subsequent accessions expanded participation: and joined the on 1 January 2004, followed by , with , , and others acceding in later years, bringing the number of full members to 14 as of 2023, while the remaining states apply partial reductions (up to 90% on eligible goods). require at least 35% value addition within COMESA for preferential treatment, verified via certificates of origin, to prevent deflection. The treaty mandates elimination of quantitative restrictions and non-tariff barriers alongside tariffs, though implementation varies, with ongoing efforts to resolve persistent administrative hurdles. Empirical assessments indicate the FTA has facilitated modest intra-regional trade growth; for instance, a gravity model analysis found COMESA membership positively impacts bilateral trade flows, with tariff liberalization contributing to higher exports among participants, though overall intra-COMESA trade constitutes only about 5.7% of members' total exports. Utilization rates of preferences remain below potential, with 2019 data suggesting untapped opportunities for an additional US$100 billion in intra-bloc trade if barriers were fully addressed. Despite these gains, disparities in implementation—such as delayed full liberalization by larger economies like Ethiopia and the Democratic Republic of Congo—have limited uniform benefits across the 21-member bloc.

Customs Union, Monetary Union, and Infrastructure Projects

The COMESA (CU) protocol was signed in 2009 with the aim of establishing a single customs territory by eliminating internal tariffs and applying a (CET) on non-member imports, building on the (FTA) operational since 2000. However, full implementation has been delayed due to overlapping memberships in other regional economic communities, such as the (EAC) and (SACU), which impose conflicting CET requirements and hinder . As of 2025, only partial progress has been made, with 14 of 21 member states participating in the FTA but fewer committed to the CU roadmap outlined in the COMESA Medium Term Strategic Plan (MTSP) 2021-2025, which targets policy coordination in trade facilitation and . Efforts to advance the CU include harmonization of excise duties and non-tariff barriers, but empirical data shows limited uptake; for instance, intra-COMESA remains below 10% of total exports, partly attributable to unresolved CET discrepancies. The MTSP emphasizes accelerating CU through bilateral negotiations to resolve overlaps, yet as of October 2025, no unified CET has been enforced across all members, constraining deeper integration. COMESA's monetary union ambitions form part of a phased program initiated in the , targeting macroeconomic convergence criteria such as below 5%, fiscal deficits under 3% of GDP, and stable to pave the way for a common . The COMESA and Monetary Institute, established in 2009 and operationalized in , facilitate cross-border payments and policy dialogue, but progress toward a monetary union has been minimal, with no launch date met despite targets like 2018. The MTSP 2021-2025 prioritizes financial stability and integration via sub-committees on payments and reserves, yet member states' divergent monetary policies—exacerbated by external shocks like commodity price volatility—have stalled convergence, as evidenced by persistent variances exceeding thresholds in countries like and . Infrastructure projects under COMESA focus on , , and digital connectivity to reduce costs, with key initiatives funded by multilateral partners. The Regional Infrastructure Finance Facility (), supported by the World Bank, provides concessional financing for bankable projects, aiming to mobilize private investment in cross-border corridors. Notable efforts include a $50 million World Bank platform launched in 2024 to accelerate access, targeting off-grid solutions and grid extensions in underserved members like and , with expected impacts on 10 million people by enhancing regional power pools. The COMESA Infrastructure Fund seeks to raise at least $1 billion for priority sectors, including rail and road links such as the North-South Corridor, though funding shortfalls and coordination issues have limited execution to pilot phases. Additional programs, like the €40 million EU-funded SWITCH-2-CE initiative started in 2024, address circular economy infrastructure for waste management and e-waste recycling, while digital projects under the COMESA-EU partnership promote e-commerce platforms and cybersecurity to support trade logistics. Overall, these projects have leveraged over $5 billion in World Bank commitments by 2022, but implementation lags due to regulatory bottlenecks and debt constraints in low-income members.

Achievements and Empirical Successes

Increases in Intra-Regional Trade and Investment

Intra-regional trade within COMESA has shown measurable growth following the launch of the in 2000, which eliminated s on most goods among participating members. Empirical analysis indicates that tariff reductions boosted intra-regional exports by approximately 29 percent, reflecting enhanced and reduced trade barriers. The share of intra-COMESA exports in total regional exports increased from 11 percent in 2000 to 13.6 percent by 2016, driven by expanded bilateral flows among key traders like , , and . In 2022, intra-COMESA imports surged by 27.16 percent year-over-year, attributed to policy interventions aimed at lowering non-tariff barriers and improving facilitation. These trade gains stem from causal factors such as harmonized procedures and projects under COMESA auspices, which have reduced costs and border delays, thereby incentivizing cross-border commerce. For example, countries like , , , and recorded the highest ratios of intra-COMESA trade to their global trade totals in recent years, highlighting uneven but positive integration effects. Total intra-COMESA trade grew by over 8 percent in alone, outpacing some external trade segments amid global volatility. Despite persistent low overall shares—hovering around 8-10 percent of total trade—these increments demonstrate incremental progress toward COMESA's strategic goal of elevating intra-exports to 25 percent of totals by 2026. Foreign direct investment (FDI) inflows to the COMESA region have also risen, with intra-regional components benefiting from integration policies that enhance investor confidence through legal harmonization and dispute resolution mechanisms. FDI into COMESA countries jumped 52 percent in 2022 to USD 23 billion compared to 2020 levels, supported by initiatives like the COMESA Court of Justice and investment promotion forums. Empirical evidence confirms that deeper regional integration positively and significantly influences intra-COMESA FDI flows, as larger markets and policy predictability attract capital from within the bloc, including from member states like Egypt and South Africa. COMESA's revised Common Investment Area agreement, advanced in 2025, further liberalizes environments to sustain these trends by promoting transparency and non-discrimination. Overall, FDI promotion efforts yielded significant gains in 2023, with inflows from diverse sources including intra-bloc investors contributing to sectoral expansions in manufacturing and services.

Facilitation of Development and Conflict Resolution

COMESA's Governance, Peace and Security Programme, formalized in 1999 under Article 3(d) of the COMESA Treaty, promotes development by fostering stable environments conducive to and investment. Key initiatives include the "Trading for Peace" programme in the , which established 16 Trade Information Desks at Democratic Republic of Congo border points to enhance cross-border trade and post-conflict reconstruction, thereby supporting local economies emerging from instability. Complementing this, COMESA's trade facilitation efforts have resolved 98% of reported non-tariff barriers since 2008, including import licensing liberalizations and removal of restrictions, which have streamlined business operations and spurred regional development. In parallel, COMESA advances development through infrastructure and energy projects that address structural bottlenecks. A notable example is the 2024 launch of a $50 million regional platform with the World Bank, designed to overcome barriers to energy access in member states, thereby enabling industrialization and in underserved areas. The rollout of the electronic (eCO) system, implemented in countries such as and by January 2025, has further expedited customs processes, reducing trade costs and facilitating intra-regional . On , COMESA emphasizes prevention and management via mechanisms like the COMWARN and the Peace and Prosperity Index, which provide structural vulnerability assessments to member states for proactive intervention. The Committee of Elders has conducted fact-finding and preventive missions, including pre-election assessments for at least six national polls, contributing to democratic stability. Over 30 elections have been observed by COMESA teams, yielding recommendations that have informed improvements in electoral processes across the region. COMESA's institutionalization of support, outlined in its 2023-2030 Mediation Strategy, targets comprehensive through , with a focus on root causes like deficits. Security enhancements include training over 200 unit analysts and 1,400 officers by December 2022 to counter and , bolstering regional resilience against conflict-enabling threats. These efforts, coordinated via annual ministerial meetings since 1999, underscore COMESA's role in linking to , though outcomes depend on member state cooperation.

Criticisms, Failures, and Challenges

Delays in Integration and Coordination Issues

The establishment of COMESA's , launched in June 2009 with a target operationalization by 2015, has faced significant implementation delays due to incomplete alignment of national tariff schedules, unresolved disputes over , and insufficient harmonization of external tariffs among member states. These setbacks have prevented the full realization of benefits, limiting trade liberalization gains despite the Area's uneven rollout since 2000. Ratification and domestication of COMESA legal instruments have been protracted, with s exhibiting systemic slowness in parliamentary approvals and national incorporation, stultifying regional policy uniformity. For instance, the COMESA Common Investment Area Agreement (CCIA), adopted in 2017 to promote cross-border investment, remains unratified by any as of 2023, undermining investor confidence and integration momentum. Coordination challenges among the 21 member states are exacerbated by divergent national priorities and political instability, including ongoing conflicts in , , , and the Democratic Republic of Congo, which disrupt consistent policy alignment and resource commitments. Five countries—Democratic Republic of Congo, , , , and —have delayed signing or ratifying the Tripartite Free Trade Area (TFTA) agreement as of October 2025, stalling its full rollout across COMESA, EAC, and SADC despite entry into force in July 2024 after reaching the 14-ratification threshold. Financial coordination issues further impede progress, as member states' reluctance to fulfill budget contributions—compounded by donor dependency—has strained operational capacity and delayed projects essential for integration, such as facilitation to reduce congestion and procedural delays. Regime transitions in member states have also altered commitments, introducing variability in adherence to COMESA protocols and hindering sustained coordination on economic convergence criteria like harmonization.

Economic Disparities, Rent-Seeking, and Corruption Risks

Significant economic disparities persist among COMESA's 21 member states, with GDP per capita varying widely from lows of approximately $100 in the poorest nations to highs exceeding $17,000 in more developed ones, based on data from exporting members. For instance, projections indicate ' GDP per capita reaching $33,409, while ten low-income countries—including , the , , , and —lag far behind, often below $1,000 annually. These gaps, rooted in differences in resource endowments, institutional quality, and historical development trajectories, hinder balanced , as larger economies like and dominate trade flows and infrastructure benefits, potentially marginalizing smaller or landlocked states. Rent-seeking activities exacerbate these challenges, particularly during tariff reductions and policy harmonization, where interest groups for exemptions, subsidies, or non-tariff barriers to preserve domestic rents rather than pursuing productivity-enhancing reforms. In COMESA's context, such behaviors manifest in resistance to full , as evidenced by uneven implementation of the , where protected sectors in disparate economies seek political influence to delay competition from regional imports. This zero-sum dynamic diverts resources from to redistribution, slowing overall growth and widening inequalities, as empirical models of regional agreements highlight how and thrive amid asymmetric gains. Corruption risks are amplified by these disparities and incentives, with many member states exhibiting systemic public-sector graft that undermines project execution and investor confidence. Empirical studies link high levels in COMESA countries to reduced economic , as theories explain how officials extract bribes in and regulatory processes, particularly in initiatives tied to integration. While COMESA has pursued mitigation through a proposed Regional Model Code on Compliance since 2019 and pilots to curb fraud, persistent low rankings on global indices—such as those from for nations like and —indicate ongoing vulnerabilities that could erode trust in supranational mechanisms. These factors collectively risk entrenching over broad-based development, as causal analyses show interacting with inequality to stifle and intra-regional cooperation.

Overlapping Memberships and Institutional Inefficiencies

COMESA member states frequently hold memberships in multiple (RECs), leading to overlaps that complicate policy coordination and . For example, , , , and participate in both COMESA and the (EAC), while the , , , , , , , and belong to both COMESA and the (SADC). These intersections span 27 countries under the COMESA-EAC-SADC Tripartite arrangement, initiated in 2008 to foster cooperation amid such duplications. Overlapping affiliations impose human and financial costs, including duplicated administrative efforts and attendance at multiple forums, which strain limited national capacities. Businesses face elevated transaction expenses from navigating inconsistent , schedules, and procedures across RECs, often resulting in distortions and enforcement gaps. In COMESA's case, these conflicts hinder the uniform application of its (CET), adopted in 2009 with rates of 0% for raw materials, 10% for intermediates, and 25% for , as members prioritize divergent REC obligations. Institutional inefficiencies within COMESA are amplified by these overlaps, manifesting in bureaucratic redundancies, understaffed programs, and protracted decision-making driven by competing national priorities. The organization's structure—encompassing the Authority of Heads of State and Government, , and Secretariat—relies on political appointees that foster systemic delays and limited , as seen in sectors like with minimal permanent staffing. Non-tariff barriers, including cumbersome procedural requirements, persist due to weak harmonization, increasing trade costs and undermining integration goals. Mitigation attempts include the Tripartite Free Trade Area (TFTA), signed on June 10, 2015, in , which seeks to consolidate markets covering 625 million people and $1.3 trillion in GDP through phased tariff reductions and policy alignment. However, ratification lags—with only 14 of 26 signatories approving by 2023—and ongoing disparities in economic structures perpetuate inefficiencies. The has advocated REC rationalization since its 2006 Treaty framework, recognizing overlaps as a barrier to continental unity, yet multiple memberships continue to fragment efforts and dilute commitments.

Overall Impact and Assessment

Quantitative Economic Outcomes

Intra-COMESA trade volume expanded from approximately USD 3 billion at the launch of the Free Trade Area in 2000 to USD 15.2 billion by recent estimates, reflecting an average annual growth rate of 7 percent. This absolute increase occurred amid tariff reductions across participating states, with 16 of 19 members implementing the by 2017, though non-tariff barriers and deficits constrained deeper integration. The intra-regional export intensity rose modestly from 11 percent in 2000 to 13.6 percent in , indicating persistent reliance on extra-regional markets despite efforts. Aggregate GDP across COMESA member states surpassed USD 1 trillion in , encompassing a market of roughly 400 million consumers. However, regional decelerated slightly in 2023, with total exports and imports declining in value terms relative to 2022 due to softening global demand. Empirical analyses of participation reveal no statistically significant effect on member states' GDP growth rates, contrasting with self-reported trade gains and underscoring challenges like overlapping regional memberships and supply-side constraints. One study attributes a 35 percent boost among members to factors including contiguity and , yet highlights uneven distribution and limited causal linkage to broader growth.
Metric2000 ValueRecent/2024 ValueAnnual Growth (Avg.)
Intra-Regional Trade VolumeUSD 3 billionUSD 15.2 billion7%
Intra-Export Intensity11%13.6% (2016)N/A
Aggregate GDPN/A> USD 1 trillionN/A
Untapped intra-COMESA trade potential exceeds USD 100 billion, per official assessments, limited by coordination gaps rather than tariff elimination alone. These outcomes suggest modest quantitative progress in facilitation but negligible macroeconomic acceleration, aligning with broader patterns in African where absolute volumes rise yet relative shares stagnate below 15 percent of total .

Qualitative Effects on Growth, Poverty, and Governance

COMESA's integration efforts have qualitatively supported by fostering regional value chains and engagement, particularly in and cross-border services, which have encouraged modest diversification away from dependence in more integrated members. However, persistent non-tariff barriers, inadequate , and weak industrial policies have limited transformative effects, resulting in uneven growth patterns that favor larger economies while smaller ones remain marginalized. On poverty, COMESA initiatives in trade facilitation and agriculture have contributed to qualitative improvements in rural livelihoods by enhancing market access for smallholder farmers and promoting employment in export-oriented sectors, as seen in Zambia where programs from 2010 to 2021 bolstered rural development and income stability. Industrialization under COMESA frameworks has further aided poverty reduction through job creation and increased public revenues for social services, addressing multidimensional deprivation beyond mere income metrics. Yet, benefits accrue disproportionately to urban and elite groups, exacerbating rural-urban divides and sustaining poverty traps in conflict-affected or less developed states due to exclusionary trade dynamics. Regarding governance, COMESA has advanced regional institutions through programs like election observation in over 30 instances, conflict early warning via COMWARN, and post-conflict reconstruction efforts such as establishing 16 desks to rebuild ties in areas like the Democratic Republic of Congo. These have qualitatively strengthened preventive diplomacy and policy harmonization, contributing to stability during electoral transitions and reducing interstate tensions. Nonetheless, member states' domestic weaknesses—including , state fragility, and inconsistent implementation—have impeded deeper impacts, with institutional quality directly constraining integration and exposing vulnerabilities to political interference or retaliation risks.

External Relations

Harmonization with Other Regional Economic Communities

COMESA's efforts to harmonize with other regional economic communities (RECs) stem from extensive overlapping memberships among its 21 member states, particularly with the East African Community (EAC) and Southern African Development Community (SADC), where at least 10 countries hold dual affiliations. These overlaps have historically risked policy conflicts and duplicated efforts, prompting cooperative mechanisms to align trade liberalization, customs procedures, and sectoral regulations. COMESA and SADC established a Joint Task Force specifically to harmonize programs and avoid redundancies, while broader coordination addresses institutional inefficiencies arising from multiple affiliations. The cornerstone of these harmonization initiatives is the COMESA-EAC-SADC Tripartite Arrangement, conceived at a 2001 COMESA-SADC summit in Cairo and formalized via a Memorandum of Understanding signed on January 19, 2011. This framework launched negotiations in 2011 to merge COMESA's Free Trade Area, SADC's FTA, and EAC's Customs Union into a unified market spanning 27 countries and over 600 million people. The resulting Tripartite Free Trade Area (TFTA) Agreement, signed on June 10, 2015, in Sharm El Sheikh, Egypt, emphasizes three pillars—market integration through tariff liberalization targeting 100% coverage, industrial development, and infrastructure connectivity—and entered into force on July 25, 2024, after attaining the required 14 ratifications, with Malawi's approval marking the threshold. Further linkages include Memoranda of Understanding with the EAC, (IGAD), and (IOC) to integrate COMESA's facilitation and liberalization programs, alongside joint task forces with EAC and SADC for policy alignment. Sectoral efforts address specific overlaps, such as unified regulatory frameworks to boost agricultural , as demonstrated in COMESA's 2022 regional sharing of successes, and energy regulatory standards prioritized since March 2024 to enhance cross-border access and . These measures, including collaborations under programs like the Eastern Africa-Indian Ocean Energy Gateway and ICT (EGEE-ICT) involving COMESA, EAC, IGAD, IOC, and SADC, aim to streamline regulations and mitigate fragmentation, though implementation varies by sector.

Engagement with Continental and Global Frameworks

COMESA maintains structured cooperation with the (AU) as one of the continent's eight recognized (RECs), serving as a foundational element for broader African integration efforts. In February 2022, COMESA signed a protocol with the AU to strengthen relations, which entered into force on November 10, 2021, following ratification by the AU Commission Chairperson and executives of three RECs, aiming to enhance coordination on trade, economic development, and governance. Joint initiatives include election observation missions, such as the AU-COMESA team deployed to in September 2025 led by former Pakalitha Mosisili, and collaborative pre-election support in in 2025 to improve electoral efficiency. Additional efforts encompass youth engagement in democratic processes, with a pilot phase of the AU-COMESA project concluding in July 2023, and anti-corruption consultations held in in May 2024. As a key REC, COMESA supports the African Continental Free Trade Area (AfCFTA), launched in 2021, by aligning its free trade area and customs union mechanisms to facilitate tariff elimination on intra-African trade. COMESA is developing an AfCFTA implementation strategy to address heterogeneity and enforcement challenges among RECs, while the COMESA-EAC-SADC Tripartite Free Trade Area (TFTA), signed in 2015 and covering 29 countries or 53% of AU members, positions COMESA to bolster continental integration. Economic modeling indicates AfCFTA could add 0.55% to COMESA's GDP growth by 2035, enhancing intra-regional trade, export diversification, and industrialization through increased manufactured goods flows. Practical engagements include workshops on rules of origin cumulation with the World Customs Organization and AfCFTA Secretariat in April-May 2025, and private sector capacity-building to exploit AfCFTA opportunities. On the global stage, COMESA notified its framework to the (WTO) under the Enabling Clause on June 29, 1995, as the first African regional organization to do so, enabling coordinated support for member states in multilateral negotiations and . This includes revisions to facilitation regulations adopted in 2022 under an EU-backed program to streamline cross-border procedures. COMESA also partners with institutions like the World Bank, launching a $50 million regional platform in January 2024 to accelerate energy access for millions in eastern and , targeting sustainable connections for 100 million people by 2030 via initiatives like the ASCENT program and Mission 300. Ties with the include UNCTAD analyses of preference utilization by COMESA members, published in 2023, and UN Volunteers' collaboration on a program adopted by the COMESA . These engagements prioritize empirical data and infrastructure to mitigate barriers like regulatory divergence, though outcomes depend on member state implementation fidelity.

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  114. https://ecoroads.com/news/comesa-leads-regional-energy-regulatory-harmonization-for-enhanced-access-and-trade/
  115. https://www.comesa.int/egee-ict-programme/
  116. https://www.comesa.int/comesa-signs-au-protocol-to-consolidate-relations/
  117. https://www.peaceau.org/en/article/arrival-statement-joint-african-union-and-common-market-for-eastern-and-southern-africa-election-observation-mission-to-the-27-september-2025-general-elections-in-the-republic-of-seychelles
  118. https://www.peaceau.org/en/article/preliminary-statement-african-union-common-market-for-eastern-and-southern-africa-observation-mission-to-the-republic-of-malawi-lilongwe-18-september-2025
  119. https://www.comesa.int/comesa-and-au-aga-push-for-second-phase-of-youth-engagement-project/
  120. https://anticorruption.au.int/en/events/2024-05-06/auabc-consultative-engagement-comesa
  121. https://www.comesa.int/afcfta-will-stimulate-intra-comesa-trade/
  122. https://www.comesa.int/wp-content/uploads/2020/09/Keeping-the-AfCFTA-on-Track.docx.pdf
  123. https://www.comesa.int/wp-content/uploads/2020/09/Tripartite-FTA-is-ideal-for-strengthening-AfCFTA.pdf
  124. https://publications.jrc.ec.europa.eu/repository/handle/JRC138532
  125. https://www.wcoomd.org/en/media/newsroom/2025/may/the-joint-comesa-wco-afcfta-virtual-workshop-on-cumulation-of-origin.aspx
  126. https://www.wcoomd.org/en/media/newsroom/2025/april/comesa-private-sector-gears-up-to-unlock-the-afcfta-potential-through-origin-competency.aspx
  127. https://www.comesa.int/trade-facilitation-programme-records-notable-progress/
  128. https://www.worldbank.org/en/news/press-release/2023/11/28/100-million-people-in-afe-eastern-and-southern-africa-poised-to-receive-access-to-sustainable-and-clean-energy-by-2030
  129. https://unctad.org/publication/utilization-trade-preferences-comesa-member-states
  130. https://www.unv.org/tags/comesa
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