European Commission | 10 June 2026
MEMO: EU-ESA enhanced Economic Partnership Agreement (EPA): Chapter-by-chapter summary
The EU and four Eastern and Southern African countries (ESA4) – Comoros, Madagascar, Mauritius, and Seychelles – have concluded negotiations to deepen their existing interim Economic Partnership Agreement (EPA).
On 10 June 2026, the European Union and four Eastern and Southern African countries (ESA4) – Comoros, Madagascar, Mauritius, and Seychelles – concluded negotiations to deepen their existing interim Economic Partnership Agreement (EPA) into the EU’s first modern and comprehensive free trade agreement with partners in Sub-Saharan Africa. The enhanced EPA will remain open for accession by other ESA countries, with negotiations still ongoing with Zimbabwe.
Chapter-by-chapter summary of the new agreement
Customs and Trade FacilitationThe Customs and Trade Facilitation chapter marks an important step forward in simplifying customs and trade procedures between the EU and the ESA countries. Building on the World Trade Organization's Trade Facilitation Agreement, it introduces practical customs measures that will make it easier, faster, and more transparent for businesses to move goods across borders. Companies will benefit from clearer and more accessible information on rules, procedures, and applicable tariffs, as well as dedicated contact points to address their questions. The agreement also ensures that businesses are consulted before new customs measures are introduced.
By streamlining procedures while maintaining strong customs controls, this chapter will reduce administrative burdens, cut delays, and support smoother, more efficient trade flows between the EU and the ESA countries.
Protocol on Mutual Administrative Assistance in Customs Matters
The Protocol on Mutual Administrative Assistance in Customs Matters attached to the enhanced EPA strengthens customs cooperation, fostering closer cooperation between customs authorities to combat fraud, ensure proper revenue collection, and facilitate legitimate trade.
The revised Protocol introduces key upgrades, including updated personal data protection provisions and a new enabling clause for future automatic exchange of customs information. Additional minor refinements further modernise the framework, ensuring it remains effective, adaptable, and aligned with the evolving trade environment.
Technical Barriers to Trade
Different technical regulations and standards on products in other markets can create trade barriers and increase costs of compliance.
The agreement promotes transparency and the use of international standards to facilitate market access while safeguarding the levels of protection that each party deems appropriate.
Marking and labelling requirements may also be carried out in the territory of the importing party, and both sides are encouraged to cooperate on market surveillance issues.
For key sectors like electronics, machinery, electromagnetic compatibility and energy-efficient products, the ESA countries agreed to accept certificates and test reports from EU-based accredited bodies, subject to national laws and regulations, as well as a best-endeavour commitment to accept SDOC (suppliers’ declaration of conformity) for these sectors.
Rules of Origin
The EU and the ESA countries have agreed rules of origin that are closely aligned with those in recent EU trade agreements while incorporating specific provisions for African, Caribbean and Pacific (ACP) countries, such as the single-transformation rule for clothing. These new rules significantly relax and simplify the rules currently in place under the interim EPA.
The documentation on origin follows the latest standard based on self-certification by businesses to make the utilisation of the agreement as easy as possible, especially for small and medium-sized companies. Moreover, a claim for preference may be based on the importer’s knowledge of the originating status of products.
Sanitary and Phytosanitary Measures
The chapter on Sanitary and Phytosanitary (SPS) measures, which covers food safety, animal and plant health, animal welfare, combatting antimicrobial resistance, audit, transparency, and the establishment of an SPS Committee that will monitor the implementation of the SPS provisions of the agreement, will uphold the EU’s highest standards. Nothing in the agreement changes the way the EU adopts and enforces its food safety rules, be it for domestically produced or imported products.
The agreement reaffirms the principles of the SPS Agreement of the World Trade Organization, including the 'precautionary principle', meaning that public authorities have a legal right to act to protect human, animal or plant health, or the environment, in the face of a perceived risk even when scientific analysis is not conclusive.
Building on the SPS Agreement of the World Trade Organization, the chapter includes trade facilitation measures, including cooperation on regionalization and procedures for approval of the respective market access applications, and equivalence of SPS measures.
The EU and the ESA countries will reinforce joint work on SPS matters to ensure rapid intervention in emergencies related to imports and exports of agriculture and fishery products. Among other things, this will include increased transparency, fast information exchange and technical consultations, bilateral and international cooperation in key areas, official controls and certification, and border import checks.
Partnership in Agriculture
The agreement establishes an agricultural partnership that will combine development cooperation, policy dialogue, and promotion of investments as development tools to enhance sustainable production, transformation, and intra-regional and continental trade of agricultural products.
EU development cooperation, through capacity-building measures, supports farming and rural employment, e.g. through the development of geographical indications, adding value to local production chains, as well as farmers' capacity to comply with sanitary and phytosanitary and other agricultural standards. This alignment of standards makes it easier to comply with the requirements necessary to bring those products into the EU, further opening trading opportunities in the agricultural sector.
Fisheries and Aquaculture
Fisheries and aquaculture constitute a key economic sector of the ESA countries and hold great potential for future development and poverty reduction. The EU and ESA countries renew their cooperation commitment for more sustainable and competitive fisheries and aquaculture sectors in the ESA region. They agree to work towards an enabling environment to cope with the EU's stringent market requirements and promote local value addition.
The updated Fisheries and Aquaculture chapter also clarifies links to related provisions under the Economic and Development Cooperation chapter and ensures coherence and consistency of the EPA-based cooperation in the sector with the Sustainable Fisheries Partnership Agreements with the ESA countries, where those exist.
Furthermore, the Trade and Sustainable Development (TSD) chapter includes binding provisions to protect marine biological resources, in particular to implement long-term conservation and management measures and to combat illegal, unreported and unregulated (IUU) fishing.
Economic and Development Cooperation
The chapter on Economic and Development Cooperation sets out how the EU and the ESA countries will work together to ensure that the EPA delivers concrete, sustainable development benefits through the effective implementation of the agreement. It aims to promote sustained growth, stronger production and supply capacity, structural transformation, competitiveness, diversification and value addition, while supporting deeper regional and continental integration in Africa, including through the African Continental Free Trade Area. Building on the experience of the Cotonou Agreement between the EU and the African, Caribbean and Pacific Group of States and its successor, the Samoa Agreement between the EU and the Organisation of African, Caribbean, and Pacific States (OACPS), it confirms that cooperation must be backed by adequate, predictable and sustainable financing, including in support of Trade and Sustainable Development commitments.
The scope of cooperation is broad, covering the key areas needed to make trade and investment work for development. It includes support for all chapters of the agreement, covering, amongst others, trade in services, investment liberalisation, digital trade, technical barriers to trade, customs and trade facilitation, sanitary and phytosanitary measures, trade and sustainable development, the environment, trade and gender, competition policy, state‑owned enterprises, transparency in public procurement, intellectual property, the sustainable ocean economy and fisheries, and agriculture. It extends even further to include support for energy, mining and minerals, port and airport infrastructure, water resources, healthcare and pharmaceuticals, education, and research and development.
A range of instruments can be used, including technical assistance, capacity building, programmes and projects, as well as blending and guarantee tools in line with the EU’s Global Gateway approach. Specifically, the EU will provide support so that the ESA countries can fully seize these blending and guarantee instruments, including future similar EU tools, through capacity building and technical assistance to public and private financial institutions, with a specific focus on sustainable development projects. The parties also undertake to cooperate to enable ESA countries to access to EU cooperation financial instruments and to facilitate support from other partners.
The implementation of this chapter will rely on strong joint institutions, closer public–private links and alignment with international standards. The parties will encourage – and the EU will support – direct contacts between EU and ESA private sectors, notably through EU–ESA business fora at regional and national level, to stimulate joint projects and investment. They intend to cooperate collectively with EU Member States, using their respective development policies and instruments to support regional economic cooperation, integration and implementation of the agreement, and plan to establish a trilateral platform bringing together the European Commission, EU Member States and the ESA parties to discuss such support. A dedicated Development Sub‑Committee under the Joint Committee will coordinate, monitor and report annually on the implementation of this chapter – including on cooperation related to Global Gateway blending and guarantees – and the Trade and Sustainable Development chapter.
Trade and Sustainable Development
The agreement includes a dedicated chapter on Trade and Sustainable Development (TSD) that covers labour, gender equality, environmental and climate matters, and responsible business conduct. It protects both parties’ right to regulate, and prohibits the parties from weakening or failing to enforce their laws in order to encourage trade or investment. The agreement also offers civil society organisations an active role to monitor the implementation of the entire agreement.
The chapter is grounded in international frameworks and international standards and agreements. Both parties commit to effectively implement all the International Labour Organization (ILO) conventions and the multilateral environmental agreements – including the Paris Agreement on Climate Change and the relevant UN conventions addressing gender equality or women’s rights – that each party has ratified.
It requires the respect of the fundamental ILO principles and rights at work covering freedom of association, the right to collective bargaining, the elimination of all forms of forced and compulsory labour, the abolition of child labour, non-discrimination at work, and a safe and healthy working environment. The agreement commits the EU and ESA countries to effectively implement the Paris Climate Agreement and other multilateral environmental agreements. The parties will strengthen their cooperation on climate-related matters, including carbon pricing, or the transition to a low-carbon economy.
The TSD chapter has a broad range of commitments and cooperation provisions on matters such as decent working conditions, including labour inspection and social dialogue, sustainable management of natural resources, wildlife protection, biological diversity, forestry, fisheries, aquaculture, ocean governance and the promotion of responsible business conduct. It promotes cooperation to encourage the shift to a circular and resource-efficient economy and deforestation-free supply chains. It also contains provisions regarding the relevant UN and ILO conventions advancing women’s economic empowerment and gender equality, including promoting cooperation in international fora to advance these objectives.
TSD commitments are legally binding and enforceable through the agreement’s general dispute settlement, ultimately with the possibility of trade remedies as a matter of last resort for serious violations of ILO fundamental principles or of the Paris Agreement. The agreement is based on the 'essential elements' obligations of the EU-ACP Partnership Agreement, for instance, on human rights, and treats the Paris Agreement on a par with them.
Finally, the agreement includes an ambitious cooperation agenda with numerous areas on labour, gender equality, environmental and climate matters for both sides to work together and promote the implementation of the TSD commitments and sustained growth in the ESA region.
Transparency in Public Procurement
The Public Procurement chapter defines rules on transparency applicable to public procurement procedures in the EU and in the ESA countries. These rules reflect the transparency provisions enshrined in the World Trade Organization Agreement on Government Procurement, including the publication of the contract notices and the contract award notices for all contracts covered by the chapter and their electronic publication on a single portal. The contracts covered by the chapter are defined in the annexes for each party. The chapter also introduces a provision on cooperation on transparency to enhance the mutual understanding of EU and the ESA countries on their respective public procurement systems.
This chapter does not contain market access commitments, and it does not ensure national treatment in public procurement procedures. However, the rules defined in this chapter would provide the EU and ESA economic operators with transparent information on business opportunities in public procurement markets.
Trade in Services and Investment Liberalisation
The agreement will facilitate further access by EU firms to the markets of the ESA countries by providing transparency and predictability regarding their regulatory regimes, by opening new opportunities to invest in both the services and manufacturing sectors, and to deliver services on a cross-border basis. It will ensure a level playing field by eliminating discrimination between EU service providers and investors and other competitors already operating in the ESA countries.
The services covered include a wide range of sectors, including more specific rules for some of them (delivery services, telecommunications, financial services, and international maritime transport services).
The agreement also contains advanced provisions on the movement of professionals for business purposes, such as managers or specialists that EU companies post to their subsidiaries in the ESA countries, or EU professionals supplying certain services for a period of up to six months.
The agreement aims to encourage further investment between the EU and ESA countries, ensuring that EU investors are granted the most favourable treatment given to any foreign investor in these countries.
The agreement does not cover the protection of existing investments.
Digital Trade
The agreement will ensure predictability and legal certainty for businesses and a secure online environment for consumers who engage in digital trade transactions across borders, and will remove barriers and prevent discrimination between online and offline activities.
It will facilitate cross-border data flows by providing a prohibition of unjustified data localisation requirements, while preserving a high level of personal data and privacy protection in the EU, which is an important contributor to trust in the digital environment.
It prohibits the imposition of customs duties on electronic transmissions. It also includes provisions facilitating digital trade.
Capital Movement, Payments and Transfers and Temporary Safeguard Measures
This chapter ensures that when a transaction is covered under the agreement (such as setting up a subsidiary, providing a service on a cross-border basis, or purchasing a good), the associated transfers of capital or payments are permitted as well.
At the same time, it contains important exceptions. This allows the EU and the ESA countries to continue to regulate the financial sector, for example in relation to payments and transfers linked to bankruptcy or money laundering.
Competition Policy
The EU and the ESA countries reflected in the Competition Chapter the importance of free and undistorted competition for their trade and investment relations. They also acknowledged that anticompetitive practices and interventions can distort the proper functioning of markets and undermine the benefits of trade and investment liberalisation.
The EU and the ESA countries agreed to cooperate on the establishment of operationally independent competition authorities in ESA countries where such institutions do not exist yet, and on the strengthening of existing national competition authorities in ESA countries. The EU and the ESA countries also agreed to facilitate and support the review of national competition laws to enhance the effectiveness of their application. Finally, they agreed to develop competition advocacy programmes to raise awareness of the role of competition rules among different stakeholders.
Subsidies Transparency
The EU and the ESA countries agreed on a transparency mechanism which covers subsidies granted to both goods and services providers. This mechanism complements the existing World Trade Organization subsidies transparency arrangements that only concern subsidies for goods. The parties will provide information when requested or will make public the equivalent information.
State-Owned Enterprises
The agreement sets out binding rules on the behaviour of state-owned enterprises, designated monopolies and enterprises granted exclusive or special privileges ('SOEs'). The rules ensure a level playing field by requiring SOEs to act according to commercial considerations and non-discrimination. This means that the buying and selling decisions of SOEs must be commercially motivated, according to market economy principles.
Without effective rules on SOEs, market access could in effect be undermined, since SOEs could otherwise favour domestic suppliers or customers and cause distortions of competition.
The rules concern only the commercial activities of SOEs and only apply to the largest SOEs. Public service obligations are an exception: they are not required to follow commercial considerations.
Rule on transparency allow both sides to seek further information on specific enterprises and their activities on a case-by-case basis.
Specific flexibilities are provided in view of the development needs of the ESA countries. The parties will engage in technical cooperation activities with a view to promoting efficiency and transparency of SOEs.
Intellectual Property
The EU and three ESA countries (Madagascar, Mauritius, and Seychelles) have agreed on a comprehensive and modern framework for the protection and enforcement of intellectual property rights. The Intellectual Property chapter aims to: (i) promote innovation and creativity in the EU and ESA region; (ii) facilitate trade in innovative and creative goods and services; and (iii) support a predictable environment for investment and sustainable economic development.
The agreement provides a broad and coherent level of protection across all major categories of intellectual property rights, including: (i) copyright and related rights; (ii) trademarks; (iii) designs; (iv) protection of trade secrets and undisclosed information; (v) plant varieties; and (vi) geographical indications.
The enforcement section includes measures, procedures and remedies to ensure that intellectual property rights can be effectively enforced. The chapter also identifies relevant international agreements that the parties commit to implement or endeavour to join.
The agreement establishes a structured system for the high-level protection of EU and ESA geographical indications, including rules on homonymous names and protection against subsequent genericness and subsequent trademark registrations. Over time, it will protect 135 EU agri-food, wine, and spirit drinks geographical indications, including some of the most renowned, such as Comté, Feta, Parmigiano Reggiano, Irish Whiskey, and Rum da Madeira. In addition, the agreement foresees the opportunity for both parties to add more geographical indications in the future.
Transitional arrangements and cooperation mechanisms will support ESA countries in implementing the chapter.
Comoros is carved out from the intellectual property chapter as it is a party to the regional Bangui Agreement on intellectual property.
Dispute Settlement
The agreement puts in place a fair, efficient and effective mechanism to avoid and solve disputes regarding the interpretation and application of its provisions. Among other things, it includes independent panellists, due process and transparency involving open hearings, the publication of decisions, and the opportunity for interested parties to submit views in writing. In addition to an independent and binding adjudication, the agreement also provides for an expeditious mediation mechanism to facilitate the finding of agreed solutions with respect to measures adversely affecting trade or investment between the parties. The dispute settlement mechanism will ensure that the EU and the ESA countries fully implement their obligations under the agreement so that businesses, workers and consumers can enjoy its benefits.
Institutional Provisions
Dedicated government-to-government bodies will oversee the implementation of the agreement and ensure its smooth functioning. In addition, domestic advisory groups representing independent economic, social and environmental stakeholders from the EU and the ESA countries will provide advice and recommendations to, respectively, the EU and the ESA countries, on the implementation of the agreement. This can cover all topics under the scope of the agreement, ranging from investment to trade and sustainable development. A Joint Forum will facilitate dialogue between independent representative organisations from both sides and with representatives of the EU and the ESA countries, further enabling economic, social and environmental stakeholders to voice their views and provide input to discussions on how the agreement is being implemented.
