Understanding Human Mobility in Africa / The Regional Economic Communities of African Union: COMESA

Regional Economic Communities (RECs) and the African Union (AU)

The Regional Economic Communities (RECs) are regional groups of African states. The RECs have developed individually and separated from one another and have different roles and structures. Generally, the purpose of the RECs is to facilitate economic integration between members of the individual regions and through the African Economic Community (AEC), which was established under the Abuja Treaty of 1991. The 1980 Lagos Plan of Action for the Development of Africa and the Abuja Treaty proposed the creation of RECs as the basis for wider African integration, with a view of regional and eventual continental integration. The RECs are increasingly involved in coordinating African Union (AU) Member States’ interests on topics such as peace and security, development and governance. The RECs are closely integrated with the AU’s work and serve as its building blocks. The relationship between the AU and the RECs is mandated by the Abuja Treaty and the African Union Constitutive Act and guided by the 2008 Protocol on Relations between the Regional Economic Communities and the African Union, as well as the Memorandum of Understanding (MoU) on Cooperation in the Area of Peace and Security between the AU, RECs and the Coordinating Mechanisms of the Regional Standby Brigades of Eastern and Northern Africa. The AU recognizes eight RECs: 

• Arab Maghreb Union (UMA)

• Common Market for Eastern and Southern Africa (COMESA)

• Community of Sahel–Saharan States (CEN–SAD)

• East African Community (EAC)

• Economic Community of Central African States (ECCAS)

• Economic Community of West African States (ECOWAS)

• Intergovernmental Authority on Development (IGAD)

• Southern African Development Community (SADC).

In addition, the Eastern Africa Standby Force Coordination Mechanism (EASFCOM) and North African Regional Capability (NARC) have liaison offices at the AU. [Source: African Union, RECs].

History of the Common Market for Eastern and Southern Africa (COMESA)

The origins of COMESA date back to the 1960s, a time when the Pan-African movement emphasized unity and cooperation across the continent. As newly independent African states emerged from the decolonization process, political leaders saw regional economic integration as a pathway to growth and development. In 1965, the United Nations Economic Commission for Africa (UN ECA) proposed to Eastern and Southern African countries the establishment of regional trade areas. A Council of Ministers was set up to negotiate the founding treaty of the institution, as well as the main programs on economic cooperation. [Source: African Union, COMESA] In 1978, a meeting of the Ministers of Trade and Finance in Lusaka (Zambia) finally recommended the creation of an economic community for Eastern and Southern Africa: the process should have begun with a sub-regional Preferential Trade Agreement Area, which would gradually be updated – over a ten-year period – to a common market with more and more states, and then to an economic and political community. [Source: African Union, COMESA] These were the main contents of the “Lusaka Declaration of Intent and Commitment to the Establishment of a Preferential Trade Area for Eastern and Southern Africa”, that led to the creation of an Inter-governmental Negotiating Team on the treaty that would establish the PTA. The meeting also agreed on an indicative timetable for the work of the Intergovernmental Negotiating Team. [Source: COMESA. What is COMESA]

On December 21st, 1981, a meeting of Heads of State and Government held in Lusaka signed the PTA, which came into force on 30th September 1982, after it had been ratified by more than seven signatory states, as provided for in Article 50 of the Treaty. This led to the establishment of the Preferential Trade Area (PTA) for Eastern and Southern Africa, under the Organization of African Unity (OAU). The PTA was established to leverage a unified market, foster regional cooperation, and eventually form a regional economic community. The PTA Treaty anticipated the evolution of this first agreement into a Common Market, aligning with the Lagos Plan of Action (LPA) which envisioned regional economic communities as the foundation for the African Economic Community (AEC). The COMESA treaty was signed on the 5th of November 1993 in Kampala, Uganda. The treaty was then ratified on the 8th of December 1994 in Lilongwe (Malawi). [Source: COMESA. What is COMESA]

COMESA was created to replace the PTA and broaden the scope of regional integration beyond trade policies, aiming for deep economic unification of Eastern and Southern Africa. This shift involved establishing a common market, removing trade barriers, and enhancing political and economic cooperation across member states. COMESA’s formation was a strategic move within the OAU’s broader objective of continental integration. The OAU – later the African Union (AU) – actively promoted the creation of Regional Economic Communities (RECs) like COMESA as building blocks for a unified African Economic Union. Today, COMESA and the AU have a close relationship. COMESA is one of eight officially recognized RECs under the AU, and the two entities collaborate closely on various initiatives. [Source: World Bank, 2020] Notably, they work together on the African Continental Free Trade Area (AfCFTA), which seeks to merge Africa's regional markets into a single, continent-wide economic space.

As of October 2024, COMESA has 21 member States:

• Burundi

• The Comoros

• The Democratic Republic of Congo

• Djibouti

• Egypt

• Eritrea

• Eswatini

• Ethiopia

• Kenya

• Libya

• Madagascar

• Malawi

• Mauritus

• Rwanda

• Seychelles

• Somalia

• Sudan

• Tunisia

• Uganda

• Zambia

• Zimbabwe

Member States of COMESA cover most of Eastern and Southern Africa. However, there are some countries that did not sign the COMESA treaty 1993 and have not done so ever since: some examples are South Africa, Tanzania, Mozambique and Botswana. These countries, however, enjoy some degree of free trade with COMESA member states thanks to the Tripartite Free Trade Area (TFTA), which came into effect on July 25, 2024. The TFTA is an economic initiative that aims to enhance trade and economic integration among three major regional blocs in Africa: COMESA, the Southern African Development Community (SADC), and the East African Community (EAC). Signed in 2015 to promote intra-regional trade, the TFTA encompasses 29 countries and over 800 million people, representing a combined GDP of approximately $1.88 trillion. As of July 2024, however, 14 out of 29 countries (Angola, Botswana, Burundi, Egypt, Eswatini, Kenya, Lesotho, Malawi, Namibia, Rwanda, South Africa, Uganda, Zambia and Zimbabwe) have successfully ratified the TFTA agreements, but more are expected to pass it in the future. By reducing tariffs, eliminating trade barriers, and facilitating movement of goods and services, the TFTA seeks to create a unified market for SADC, EAC and COMESA members, foster industrial development, and enhance global competitiveness. The agreement not only aims to boost trade among member states but also serves as a basis towards the broader African Continental Free Trade Area (AfCFTA), promoting growth and sustainable development across the continent. [Source: COMESA. Why the COMESA-EAC-SADC Tripartite Free Trade Area is Ideal for Strengthening African Continental Integration].

Structure and organizations of COMESA

COMESA’s structure is designed to ensure efficient decision-making and implementation of policies across its member states. It is governed by a Council of Ministers, which sets the policies and guidelines of the organization. The Council is composed of ministers designated by each member State and is the supreme decision-making body of the organization. Under the Council of Ministers is the Secretariat, which is responsible for the administration of COMESA. Headquartered in Lusaka, Zambia, the Secretariat is led by a Secretary-General, who oversees the implementation of decisions and the coordination of activities. The Secretariat is divided into various directorates and departments that focus on different areas such as trade, investment, infrastructure development, and agriculture [Source: COMESA. Decision making at COMESA].

Between the Council and the Secretariat, COMESA also has a Committee of Governors of Central Banks and an Intergovernmental Committee. The Committee of Governors of Central Banks within COMESA serves as a key advisory body on monetary and financial issues. Its primary role is to facilitate coordination and harmonization of monetary policies across member states, with the goal of advancing regional economic integration. The Committee monitors financial stability, promotes cross-border banking regulations, and supports efforts to establish a regional payment and settlement system. It also plays a role in steering COMESA toward the eventual establishment of a monetary union [Source: COMESA, 2019]. The Intergovernmental Committee of COMESA is composed of permanent secretaries from member states and acts as a bridge between technical experts and the Council of Ministers. This committee reviews and discusses recommendations on all topics except finance and monetary policies, ensuring that they align with the broader goals of regional integration. It is tasked with overseeing the implementation of COMESA policies, particularly in trade, infrastructure, and customs, and reports its findings to the Council of Ministers for final decisions [Source: COMESA. Decision making at COMESA].

In addition to these institutions, COMESA has a Court of Justice, which was established to ensure that the provisions of the COMESA Treaty are upheld and that member states adhere to the rules of the organization. The court handles disputes related to trade, investment, and other economic activities within the region. This judicial body plays a vital role in maintaining the rule of law within the regional integration process [Source: COMESA. COMESA Institutions].

COMESA also has specialized institutions that focus on specific sectors of the economy. These institutions include the COMESA Trade and Development Bank (TDB), the COMESA Regional Investment Agency (RIA), and the African Trade Insurance Agency (ATIA): in total, COMESA has 12 institutions. Each of these plays a role in fostering economic growth by facilitating trade, providing investment opportunities, and offering insurance solutions to mitigate risks in the region [Source: COMESA. COMESA Institutions]. Additionally, COMESA holds every year a Summit of Heads of State and Government, where the leaders of member states come together to review the progress of the organization and provide political guidance on future directions. These summits are crucial for ensuring that the regional integration process remains on track and that the interests of all member states are represented [Source: COMESA (2024)].

Most important projects of COMESA

Since its inception, COMESA has implemented several key projects aimed at enhancing regional integration, trade, and development [Source: COMESA. COMESA Programmes]. The most significant projects include:

• The COMESA Free Trade Area (FTA): Launched in 2000, the COMESA Free Trade Area is one of the organization’s most prominent achievements. The FTA has 11 active members: nine – Djibouti, Kenya, Madagascar, Malawi, Mauritius, Sudan, Zambia and Zimbabwe – founded it in 2000, while two more (Burundi and Rwanda) joined in 2004. The FTA eliminated tariffs on goods traded between member states, making it easier for businesses to export and import products across borders. This project aimed to increase intra-regional trade and reduce reliance on external markets. Over the years, the FTA has contributed to significant increases in trade volumes in the region, although challenges such as non-tariff barriers remain [Source: World Bank (2020)]

• The COMESA Customs Union: In 2009, COMESA launched its Customs Union, which aims to harmonize customs duties across member states. The goal of the Customs Union is to further streamline trade by creating a common external tariff at the border of COMESA, and by reducing difficulties linked to different customs regimes. While implementation of the Customs Union has faced delays due to the need for extensive legal and policy adjustments, it remains a key component of COMESA’s integration agenda [Source: COMESA. COMESA Programmes]

• The Eastern and Southern Africa Trade and Development Bank (TDB): The TDB, one of COMESA’s most important institutions, has played a crucial role in financing development projects across the region. The bank provides loans and financial services to both public and private entities for projects that promote economic growth and regional integration. By supporting infrastructure development, agriculture, and industrialization projects, the TDB has contributed to the economic transformation of its member states [Source: COMESA. COMESA Institutions].

• The COMESA Regional Investment Agency (RIA): RIA was established to attract investment into Eastern and Southern Africa by providing information on investment opportunities and facilitating partnerships between local and international investors. The agency has been instrumental in promoting foreign direct investment (FDI) and improving the investment climate in member states by advocating for policy reforms and creating investment-friendly environments [Source: COMESA. COMESA Institutions].

• Agricultural Development: Agriculture is a cornerstone of most COMESA economies, and the organization has implemented several different projects aimed at improving agricultural productivity and food security. Through large-scale initiatives such as the Comprehensive Africa Agriculture Development Programme (CAADP), COMESA has worked to modernize agriculture, increase investment in the sector, and promote value addition through agro-processing [Source: COMESA. COMESA Programmes].

• COMESA Small-Scale Cross-Border Trade Initiative: Recognizing the importance of small and medium-sized enterprises (SMEs) in driving economic growth, COMESA launched a Small-Scale Cross-Border Trade Initiative aimed at facilitating trade for small businesses. This initiative provides simplified trade regimes, training, and support for informal traders, helping them to overcome challenges such as bureaucratic bottlenecks and access to finance. The initiative has had a positive impact on women traders, who make up a large proportion of the informal trade sector [Source: COMESA. COMESA Programmes].

• Infrastructure Development: Infrastructure has been a priority for COMESA, as inadequate transportation, energy, and communication systems have long been identified as barriers to trade and investment in Eastern and Southern Africa. Through initiatives such as the North-South Corridor project, COMESA has sought to improve road, rail, and port infrastructure to facilitate the movement of goods across borders. These efforts align with the Program for Infrastructure Development in Africa (PIDA), a continent-wide initiative supported by the African Union to develop transboundary infrastructure and road networks [Source: COMESA. COMESA Programmes].

• Digital Transformation: In recent years, COMESA has embraced digital technologies as a means of enhancing trade facilitation and economic growth. The organization has promoted the use of electronic customs systems, digital payment platforms, and e-commerce to reduce the cost of doing business and improve the efficiency of trade processes. The Digital Free Trade Area (DFTA) is one such initiative that aims to enable member states to leverage digital tools to boost trade across borders [Source: COMESA. COMESA Programmes].

• Peace and Security Initiatives: While being primarily an economic organization, COMESA recognizes that peace and security are essential for sustainable development. As such, the organization has been involved in conflict prevention and resolution efforts in member states facing instability. COMESA has supported peacebuilding initiatives in countries like Sudan, the Democratic Republic of Congo, and Burundi, working with the African Union and the United Nations to restore peace and stability in the region [Source: COMESA. COMESA Programmes].

COMESA and Free Movement of People

The COMESA Protocol on the Global Relaxation and Elimination of Visa Requirements

Adopted in 1984, the COMESA Protocol on the Gradual Relaxation and Elimination of Visa Requirements, known as the Visa Protocol, aims to enhance the movement of businesspersons within the COMESA region. It focuses on two major components: a 90-day visa-free regime, and visa-on-arrival access for all citizens in its member countries. Countries like Kenya, Madagascar, Malawi, Mauritius, Rwanda, Eswatini, Seychelles, Uganda, Zambia, and Zimbabwe have largely implemented this protocol, allowing 90-day visa access and visa-on-arrival for at least half of the member states. Notably, Mauritius, Rwanda, and Seychelles have eliminated visa requirements for all COMESA citizens [Source: COMESA. Immigration and Free Movement of Persons]. In 2013, Zambia, as the host of the COMESA Secretariat, announced a waiver of visas and fees for COMESA citizens on official business. However, the Visa Protocol has faced slow implementation, with numerous decisions from the Council of Ministers of COMESA urging members to expedite ratification. Despite its existence for decades, full implementation of the Visa Act is still far away. The protocol allows member states to maintain or create bilateral or multilateral agreements that offer more favorable conditions for their nationals than those specified in the protocol, encouraging measures like those already implemented by the East African Community (EAC). [Source: COMESA. Immigration and Free Movement of Persons]

The COMESA Protocol on Free Movement of Persons, Labour, Services, and Residence

Adopted in 2001 by the COMESA Authority of Heads of State, the Protocol on the Free Movement of Persons, Labour, Services, Right of Establishment, and Residence is currently in the process of signing and ratification [Source: COMESA. Immigration and Free Movement of Persons]. This protocol aims to operationalize the COMESA Common Market by removing restrictions on the free movement of individuals, labor, and services, as well as by establishing rights to reside and establish businesses within member states. However, only four countries — Burundi, Kenya, Rwanda, and Zimbabwe — have implemented its fundamental principles [Source: COMESA. Immigration and Free Movement of Persons]. Concerned by the slow pace of implementation, the COMESA Council of Ministers has made several decisions to encourage action on this front. This led to the creation of two COMESA Task Forces focused on implementing legal instruments, decisions from the Council of Ministers, and capacity building related to the free movement protocol. Their latest meeting took place in Lusaka, Zambia, from May 30 to June 1, 2022, and was funded by the European Union through the European Development Fund. The objective was to discuss a revised draft strategy for the Protocol, as well as a roadmap or an action plan, and a capacity-building program to support the implementation of COMESA's legal framework on free movement [Source: COMESA, 2022].

Once validated, the draft strategy, roadmap, and action plan will be presented to the COMESA Ministers responsible for immigration for adoption and subsequent implementation. In 2022, Dr. Dev Haman, the COMESA Assistant Secretary General for Administration and Finance, urged members to develop policies that domesticate the principles of free movement. He emphasized the need to expedite the ratification process for the Visa Protocol to ensure its enforcement [Source: COMESA, 2022]. Additionally, Mr. Jason Theede, Acting Regional Director of the International Labour Organisation (ILO), highlighted the importance of improving labor migration in the region [Source: COMESA, 2022]. He urged COMESA member states to remove barriers to the mobility of various groups, including migrants, professional service providers, seasonal workers, and cross-border traders, noting that restricting regular and orderly migration has many adverse economic effects on tourism, trade, and overall economic growth.

COMESA and free movement: looking forward

In August 2024, COMESA and the International Organization for Migration (IOM) convened a two-day dialogue and Stakeholders’ Validation Workshop in Kigali, Rwanda. This event focused on the "Draft Impact Assessment Report" concerning the economic and social benefits of free movement of labor and skills mobility within the region. Participants at the conference included migration and trade experts from the 21 COMESA member states and representatives from the African Union, the European Union, and the ILO Regional Director for Southern Africa. Dr. Mohamed Kadah, COMESA Assistant Secretary General for Programs, emphasized that true regional integration cannot occur without the free movement of production factors such as labor and capital. He acknowledged challenges, including negative political sentiments and rights violations faced by migrants, but stressed that effective migration management could foster regional economic growth. [Source: COMESA, 2024]

To enhance migration management, Kadah announced the development of a regional migration database that will connect with existing regional and international databases, such as those maintained by the IOM and the SADC Labour Migration Observatory. He noted a rise in bilateral agreements among COMESA member states, with recent agreements signed between countries like Burundi, Zambia, Rwanda, and Eswatini, reflecting positive impacts on COMESA’s migration program. He commended Rwanda and Seychelles for implementing the free movement protocol by removing visa requirements for African citizens [Source: COMESA, 2024]. IOM Director, Mme. Mariama Cisse, highlighted that the dialogue provided a valuable opportunity to address labor migration challenges within COMESA. She reaffirmed that protocols for the free movement of persons, labor, services, and establishment rights aim to create a genuine common market for Eastern and Southern Africa. Emphasizing the importance of people movement for regional integration, she noted that it strengthens political and cultural ties and creates job opportunities, particularly for the millions of youths entering the labor market each year [Source: COMESA, 2024].