SADC Transport Services Liberalisation Forum

Key Issues in the Transport, Communications & Meteorology and the Trade in Services Protocols and

their Linkages

Presentation by Lovemore Bingandadi, SADC Corridors Advisor &

Alfred Ndabeni, SADC Secretariat, SADC Secretariat11-13 September 2012

Riverside Hotel, Durban, South Africa

Benefits of Trade in Services in the SADC Region

Larger markets with growing economies of scaleLower prices and higher efficiency for services consumers(which are often other economic operators) through enhanced competition Employment creationPlatform for enhanced regulatory cooperation (mutual recognition and convergence of requirements)

SADC Work on Trade in Services Liberalization

Work started in 2000 Protocol Adopted by Ministers of Trade in July

2009 Signed by Summit in August 2012,

MozambiqueNegotiations on liberalization of priority

sectors ongoing (2012 -2015)

Scope of Application of the Trade in Services Protocol

Includes

• All measures by state parties, at all government levels, affecting trade in services

• All services and suppliers in any service sector

Excludes

• Measures affecting air transport traffic rights

• Services supplied in the exercise of government authority

• Government Procurement

Covers all Services SectorsBusiness Services Communication Construction Distribution Education Environmental

Services

Health Related Services Financial Services Tourism Recreation, Culture,

Sports Transport Other Services

Priority Sectors under SADC include energy-related services which are comprised of elements of business, distribution and transport services.

Trade in Services through four modes of supply

Mode of Supply Description Example

Mode 1 Cross-border trade A domestic operator transports goods or people from its home base to a destination in another country

Mode 2 Consumption abroad Nationals or companies from one country use transport services within another country to move people or merchandise within that territory

Mode 3 Commercial presence A transport operator from one country sets up a business in another country to supply services from within that country (either domestically or cross-border)

Mode 4 Temporary movement of natural persons

A transport operator uses a local driver/pilot/ crew to deliver cargo or people in a foreign territory or a transport operator uses foreign personnel in the operation of a commercial presence

Main objectives of the ProtocolTo progressively liberalize intra-regional trade in

services (eliminate substantially all discrimination between Member States) with a view to create a single market for services trade

To promote sustainable economic growth and development,

To enhance the capacity and competitiveness of the services sectors of State Parties

To enhance economic development, diversification, local, regional and foreign investment in the services economies of the Region.

Main obligations - Most Favoured Nation Treatment (MFN)

• Art 4:1 for the Protocol & Art II of GATS– Upon entry into force of this Protocol, with respect to

any measure covered by the protocol, each State Party shall accord immediately and unconditionally to services and service suppliers of any other State Party treatment no less favourable than it accords to like services and service suppliers of any other State Party or third country.

MFN applies to all services sectors and all services suppliers

MFN Exemption

• Art 4 (2-5) of the Protocol– Preferences between/among SADC states – Future preferential agreements of SADC MS with 3rd

countries – Existing preferential agreements of SADC MS with third

countries Obligation to afford reasonable opportunity to other Member States to negotiate the preferences on a reciprocal basis

– MFN Exemption Lists (list of inconsistent measure with MFN)

Key Provisions

• Recognition (Protocol Art 7 & GATS art VII) • Recognition of requirements, qualifications, licences

met or obtained in another state party• Transparency (Protocol art 8, GATS art III& III bis)

– Publish all measures of general application pertain to or affecting operations of the Protocol/agreement

– Designate/establish enquiry point• Right to regulate & domestic regulation

– In regulating the sector, measures should not impair rights under obligation

Negotiations on liberalization

• The Protocol calls for liberalization through schedules of commitments:

SCHEDULE OF SPECIFIC COMMITMENTS OF MEMBER X

Sector or Sub-Sector

Limitations on Market Access

(Art 14)

Limitations on National Treatment

(Art 15)

Additional Commitments (only existing GATS ACs)

(1) (1) (2) (2) (3) (3) (4) (4)

(1) (1) (2) (2) (3) (3) (4) (4)

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Classification of Transport ServicesA. Maritime Transport Services Passenger transportation Freight transportation Rental of vessels with crew Maintenance and repair of vessels Push and towing services Supporting services for maritime transport

B. Internal Waterways Transport Passenger transportation Freight transportation Rental of vessels with crew Maintenance and repair of vessels Push and towing services Supporting services for maritime transport

C. Air transport Services Passenger transportation Freight transportation Rental of vessels with crew Maintenance and repair of vessels Supporting services for maritime transport

D. Space Transport

E. Rail transport Passenger transportation Freight transportation Maintenance and repair of vessels Push and towing services Supporting services for maritime transport

F. Road Transport Passenger transportation Freight transportation Rental of vessels with crew Maintenance and repair of vessels Push and towing services Supporting services for maritime transport

G. Pipeline Transportation of fuel Transportation of other goods

H. Services auxiliary to all modes of transport Cargo handling services Storage and warehouse services Freight transport agency services Other

I. Other transport services

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Second Column: Limitations under Article 14 (Market Access)

• In sectors listed in the schedule, Member States must either abolish or list the following types of measures in their schedule – Numerical restrictions (quotas) on number of suppliers,

value of assets or transactions, number of operations– Numerical restrictions on the number of persons to be

employed by an operator– Joint venture requirements– Legal form requirements/prohibitions– Limitations on the investment of foreign capital in a

company

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Third Column: Limitations under Article 15 (National Treatment)

• In sectors listed in the schedule, Member States must in principle not take any measures to “modify the conditions of competition in favour of own like services or service suppliers. “ (foreign services and suppliers not to be accorded less favourable treatment than local services or suppliers)

• Any inconsistent measures have to be listed in the schedule, such as – discriminatory subsidies and other fiscal measures, – market segmentation or prohibitions; – nationality requirements;– Discriminatory licensing/registration/qualification/training

requirements

Starting point: current WTO commitments in Transport Services

• Only Lesotho and South Africa made commitments in the road services sector - in passenger, freight and the maintenance and repair of road transport equipment

• Provision for limitations to market access and national treatment in respect of the presence of natural persons, and horizontal limitations

Provision for limited access for skilled personnel and the provision of training for local personnel

No SADC country made commitments in rail and maritime services sectors under GATS

Only Angola (maritime), South Africa (road), and Swaziland (road) took MFN exemptions covering their bilateral transport agreements

First Round of negotiations

1. Objective for first round of negotiations: – Each Member State will provide better treatment

to SADC MS in each priority sector than is provided in their GATS schedule

– No new restrictions to be introduced during the negotiations (“standstill”)

• Plus: GATS Article V • Negotiations need to result in substantial sectoral coverage

(~ 6 sectors)• And elimination of substantially all discrimination

Timelines for first round of Negotiations

end August 2012

First phase: requests and offers

April 2012

Requests in at least 2 sectors

end November

2012

Offers in at least 2 sectors

end March 2013

Requests in at least 2 sectors

end June 2013

Offers in at least 2 sectors

Begi

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Neg

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Sector focus in the first phase:1) Communication Services

2) Financial Services3) Transport Services4) Tourism Services

Timelines for first round of negotiations (ctd)

-> Thereafter: Energy-related and Construction Services

Requests: end August 2013Offers: End November 2013

Additional Elements:- Sector Studies (market analysis in all MS)- Sector Fora (bringing regional stakeholders together)

- Transport ~ 11-13 September 2012- Communication ~ November 2012

Negotiations under SADC –main principles

• Conducted through request - offer method • Requests exchanged before offers• Requests to one or more trading partner• To be circulated through the SADC Secretariat• Full transparency: requests to any trading

partner shared with all trading partnersRequests received so far by Lesotho and South Africa

Achievement of these goals will depend on the:

active participation of all Member States ongoing cooperation among, and continuous

involvement of all the stakeholders in MS and the SADC Secretariat

SADC Protocol on Transport, Communications and Meteorology (TCM)

TCM Protocol –signed 1996; Ratified 1998, provides a legal and broad policy framework for co-operation, sets principles, & defines the strategic goals for the transport, communications and meteorology sectors. This presentation is focuses on Transport .

The principal focus of the TCM Protocol is the integration of transport regional systems & networks through compatible policies and legislation, but it also contains commitments pertaining to liberalisation and restructuring of the sector.

TCM Protocol General ObjectivesThe TCM Protocol’s “general objective”: “efficient, cost-effective and fully integrated infrastructure and operations, which best meet the needs of customers and promote economic and social development while being environmentally and economically sustainable”.

TCM Protocol ScopeThe TCM Protocol’s “Scope: a) All modes-roads, railways, maritime, ports, inland waterways,

civil aviationb) “all policy, legal, regulatory, institutional, operational,

logistical, technical, commercial, administrative, financial, human resources and other issues”

c) international, continental, regional and national dimensionsd) Public and private sector in each MS as well as collectively in the Region

TCM Protocol Strategic Goals15 mutually-supportive, interrelated “strategic goals” which State Parties undertake to promote by engaging all stakeholders in the sectors.

Some of these goals are particularly relevant for the Transport Services Liberalisation because they pertain either explicitly to the a) reduction of services trade barriers, or related matters

such asb) sectoral harmonisation; c) attraction of investment/investors; and d) promotion of competition.

TCM strategic goals (Art 2.4)1. the elimination or reduction of hindrances and impediments to the

movement of persons, goods, equipment and services 2. the integration of regional TCM networks through the

implementation of compatible policies and regulation3. greater diversity of services and the promotion of competition

between service providers through transparent, flexible, predictable and streamlined regulatory frameworks

4. the achievement of economies of scale between SADC service providers of varying size, increasing their global and regional competitiveness

5. broad-based investment to develop, preserve and improve strategic TCM infrastructure within an investor-friendly environment which facilitates commercial activity

6. restructured state enterprises and public utilities which are financially independent and commercially viable

TCM Protocol Road Transport Policy- Principles

1. Equal Treatment2. Non-discrimination3. Reciprocity4. Fair competition5. Harmonised operating condition

Road TrafficHarmonisation and Standardisation areas

1. Drivers Licences; 2. Training and testing of drivers3. Road traffic signs and nomenclature4. Geometric standards for road design and construction5. Vehicle Overload Control (loads on vehicles incl axle load limits)6. Road User Charges7. Third Party Motor Vehicle Insurance Schemes8. Vehicle Regulations and Standards incl; vehicle safety, fitness and

dimensions / combinations; test stations; transportation of dangerous goods, awkward and abnormal loads

9. Road Traffic Control and Traffic Law Enforcement10. Road Traffic Safety and Incident Management

TCM Protocol-Road Transport Market Liberalisation Agenda

TCM Protocol binds State Parties to liberalise their markets for the international carriage of goods and passengers.

TCM Protocol envisages the conclusion of “standardised bilateral or multilateral agreements based on the principles of non-discrimination, reciprocity and extra-territorial jurisdiction” and which address various “regulatory matters”, inter alia, (a) single SADC carrier permits or licences;(b) carrier registration; (c) quota and capacity (permit) management systems; (d) harmonised administrative (including consultative)

procedures, documentation and fees; and(e) information management, including a harmonised format

of supporting information systems and exchange of information procedures.

Liberalisation RoadmapThe SADC Regional Indicative Strategic Development Plan (RISDP) contains somewhat ambitious target objectives to liberalise regional transport markets and to harmonise transport rules, standards and policies:

Target 1 – Liberalise regional transport markets by 2008Target 2 – Harmonise transport rules, standards and policies by

2008Target 3 – Recovery of all costs of maintenance of infrastructure

by 2008and full infrastructure investment costs by 2013Target 4 – Removal of avoidable hindrances and impediments

to the cross-border movement of persons, goods and services by 2015.

The RISDP places emphasis on regulatory regimes for road transport to reduce interstate transport costs and enhance the economic competitiveness of the region.

TCM & T-i-S Protocol Linkages

1. Single licenses for carriers would go some way to achieve the mutual recognition objective in the T-i-S Protocol (Article 7).

2. Agreements addressing the harmonisation of administrative procedures, documentation and fees would certainly support Article 18 of the T-i-S Protocol which urges State Parties to promote an attractive and stable environment for the supply of services through, inter alia, the development of simplified administrative procedures.

TCM & T-i-S ProtocolsPotential Conflict Areas

Article 5.3 of the TCM Protocol’s emphasis on reciprocity, depending on how this is interpreted, may be inconsistent with the Protocol on Trade in Services’ central general obligation of MFN treatment. MFN exemptions cannot be used to diminish specific commitments made (i.e., including those of market access) but can be listed so that preferential treatment can be accorded to some Members over others.

Article 5.4 also indicates that State Parties to the TCM Protocol may be maintaining “quota and capacity management systems”. Member States, when negotiating their commitments under the T-i-S Protocol should be mindful of this and, should they agree to liberalise road transport (which would in principle have to be done on an MFN basis), might consider either doing away with quota/capacity conditions or listing specific limitations in order to be consistent with Article 14 of the Protocol on Trade in Services (“market access”).

TCM Protocol –Road Traffic- Other Measures

State Parties’ obligation to recognise driving licences issued by other State Parties “according to the agreed SADC codes and format” and that this recognition extends to professional driving permits. In order to facilitate this mutual recognition, State Parties have also agreed to adopt a harmonised format of driving licence, and to harmonise learner drivers’ testing and codes. Angola, Botswana, Lesotho, Malawi, Mauritius, Mozambique, Namibia, South Africa, and Zambia have begun issuing the “SADC Drivers License”.

TCM Protocol –Rail ObjectivesState Parties “shall facilitate the provision of a seamless, efficient, predictable, cost-effective, safe and environmentally-friendly railway service which is responsive to market needs and provides access to major centres of population and economic activity”.

To this end the TCM Protocol provides for, inter alia, 1. the development of a harmonised regional railway policy; 2. monitoring the adequacy of railway infrastructure; 3. co-operation on routes and operational matters; 4. promoting the development and implementation of compatible

technical standards in respect of infrastructure and equipment; and the development of a common syllabus for the training of personnel. Much of this would facilitate trade in services.

Maritime and inland waterway transport –Objective

• State Parties’ objective for maritime transport is to promote regional development by implementing “harmonised international and regional transport policies” which, amongst other things, “maximize regional and international trade and exchange”.

• State Parties have also undertaken to develop “common understanding[s]” on specific matters, such as, “the role of coastal shipping and the encouragement of joint ventures and alliances between ship-owners to promote economies of scale”; and “the role of maritime transport in regional trade within the Region while maintaining its role in international transport through the conclusion of bilateral agreements with SADC's main trading partners”.

TCM Protocol Maritime-Regulation & Competition

• When negotiating their specific commitments under the T-i-S Protocol Member States should note that they have in principle already committed not to restrict cabotage (i.e. shipping between ports in the same country) by ships registered in another party to the TCM Protocol.

• Another provision of the TCM Protocol which complements the T-i-S Protocol is Article 8.3 whereby State Parties—with the overarching aim of ensuring the effective movement of goods and persons through regional ports—have agreed to adopt measures to promote competition in the provision of port services and related services. This provides an example of a specific collective undertaking to take measures to proscribe anticompetitive business practices.

Maritime- Land Side Services

• While the TCM Protocol does not provide for the liberalisation of port and landside services, State Parties’ specific undertaking to adopt measures for harmonised tariff structures and regulation of charges so as to “avoid monopolistic exploitation” is in line with the T-i-S Protocol’s prohibition of abuse of dominant positions by monopoly service suppliers.

• With regard to “the provision of or access to any port services including the freedom to establish facilities”, Member States which are party to the TCM Protocol have already essentially agreed to extend MFN treatment to other parties to the TCM Protocol.

TCM Protocol Civil Aviation-Objectives

• Objective of the Civil Aviation Sector is to ensure the provision of safe, reliable and cost-efficient services in support of socio-economic development in the SADC region.

• In the TCM Protocol, Member States have recognised the need for co-operation in the Region in order to overcome “the constraints of small national markets, market restrictions and the small size of some SADC airlines and further to ensure the competitiveness of regional air services in a global context”, something which immediately indicates a need to open up markets.

Civil Aviation-Liberalisation

• In order to achieve these objectives, Member States agreed to develop a harmonised regional civil aviation policy for the gradual liberalisation of intra-regional air transport markets for the SADC airlines.

• Progress- market liberalisation efforts had been “slow and government-owned airlines dominate[d] the airline sub-sector”. There has been some progress towards liberalisation of the airline industry however.

Yamoussoukro Decision Concerning the Liberalisation of Access to Air Transport Markets in Africa

(“Yamoussoukro Decision” or YD) • The most significant progress towards liberalisation appears to be

the adoption of the YDecision which came into effect on 12 August 2000.

• The aim of the YD is to establish arrangements for the gradual liberalisation of scheduled and non-scheduled intra-Africa air transport services and, importantly, it purports to have “precedence over any [incompatible] multilateral or bilateral agreements on air services between State Parties”.

• Elements of the YD—specifically those relating to the granting “traffic rights”—would not appear to be relevant for forthcoming negotiations given that traffic rights and services directly related to the exercise of traffic rights are expressly outside the scope of the T-i-S Protocol.

YD Framework

However, the YD framework also provides for other matters such as: a) capacity and frequency; b) tariffs; c) the development of competition rules; d) the settlement of disputes; e) the right of airlines to establish offices; and f) the creation of a monitoring body to follow up on

implementation as well as an executing agency to supervise liberalisation.

Implementation of the framework has apparently been poor to date.

Civil Aviation-Sector RestructuringUnder the TCM Protocol State Parties undertook toa) develop a common policy for the staggered and co-ordinated restructuring of the sector that would necessarily cover, inter alia, “the development of ownership options; State Parties’ commitment was further defined as one to foster an environment which would encourage the formation of viable joint venture operations.

b) encourage the mutual recognition of licences and certificates of airworthiness which are in compliance with international standards and progress has been made in this regard.

TCM Protocol appears to recognise the potentially important role of investment from outside the Region but only imposes “soft” obligations in this regard, and there has been little cooperative ventures concluded to this end.

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