WEF Enabling Trade 2016

Industry Agenda
January 2016
Enabling Trade
Unlocking the
Potential of Mexico
and Vietnam

2 Enabling Trade
World Economic Forum ®
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REF 281215
Content
In collaboration with Bain & Company
5 Introduction
6 Mexico’s Economic Development and Trade Evolution
6 Overview of Mexico’s current production, exports
and imports
6 Mexico’s role in the global supply chain
7 Mexico’s Approach to Trade Facilitation
7 Increasing Mexico’s Relevance in the Medical
Devices GVC
13 Potential Impact of Trade Barrier Reduction
14 Conclusions and Recommendations
17 Definitions
18 Acknowledgements
19 Vietnam’s Road Ahead to Global Competitiveness
20 Border administration
20 Infrastructure
21 Market access
21 An integrated approach
22 Endnotes

3Unlocking the Potential of Mexico and Vietnam
Preface
By Ildefonso Guajardo Villarreal, Secretary of Economy of Mexico
Mexico’s government has made a strong commitment to boosting the country’s competitiveness
in global trade, and the Ministry of Economy recognizes that trade facilitation is a key element in
achieving this objective. The ministry also recognizes that implementing the Bali Trade Facilitation
Agreement of 2013 offers a unique opportunity to make Mexico a more attractive place for doing
business.
This report is the result of an initiative the ministry undertook towards the implementation of the Bali
agreement. The end-to-end value chain analysis proposed by the World Economic Forum has proved
to be useful methodology, not only to identify trade barriers, but also to highlight the importance of
coordination among public-sector institutions. It is now evident that Mexico’s success in stimulating
trade largely depends on harmonized efforts to overcome obstacles in a number of critical areas.
In addition, this report makes clear that implementing the agreement requires committed participation
by the private sector. Creating and carrying out public policies in collaboration with the private sector
has always been at the core of the ministry’s mission; this is particularly relevant for trade policies
today, as only a holistic view will allow us to target key strategic barriers and make substantial
improvements.
We thank the World Economic Forum for sharing its knowledge and expertise on trade facilitation.
We anticipate that the findings of this report will help Mexico to successfully face its trade challenges,
implement necessary reforms and increase economic growth.

4 Enabling Trade
By Wolfgang Lehmacher, Head, Supply Chain and Transport Industry, World Economic Forum
Trade and foreign direct investment are critical for world economies and the wealth of nations.
Both are linked, and economic success depends more than ever on the attractiveness and
competitiveness of markets, including the availability and ease of moving goods, talent and services
across borders. The global repartition of work, which has fuelled globalization and international trade,
appears to have plateaued. Sluggish global demand in the wake of the financial crisis has forced
growth engines like China, which has driven global growth for decades, to refocus on domestic and
regional markets. As these developments unfold, the Enabling Trade initiative of the World Economic
Forum supports countries in overcoming obstacles to trade and thereby boosting economic growth.
In 2015, the government of Mexico and the World Economic Forum launched a deep-dive project
to analyse three industries: aerospace, preserved fruits and medical devices. The project zeroed in
on the medical devices industry, as representative of the overall Mexico market, to understand the
concrete barriers to trade and investment, and the steps to overcome them.
Vietnam has been selected for a light-touch analysis to shed light on the current state of its trade
ecosystem. A deeper study, similar to that conducted in Mexico, will be necessary to formulate firm
policy and programme recommendations.
The outcome of the Mexico study underlines the need for highly focused measures that (a) are geared
towards boosting key parts of the value chain and (b) target initiatives to improve the entire system
and increase global competitiveness. Success depends on cross-ministerial collaboration throughout
the journey.
It is hoped the recommendations outlined in Enabling Trade: Unlocking the Potential of Mexico
and Vietnam will help the government of Mexico to accelerate its trade facilitation effort and launch
initiatives that will benefit the global manufacturing environment and the nation and people of Mexico.
Foreword

The primary objective of the World Economic Forum’s Enabling Trade initiative is to ensure growth
in trade and momentum for the global implementation of the 2013 Bali Trade Facilitation Agreement.
With that as the goal, the government of Mexico and the Forum launched a joint study to help
catalyse Mexico’s progress; this report represents the majority of the work in 2015. In addition, the
initiative investigated the progress made by Vietnam, the significant remaining trade obstacles it faces
and the vast improvements it can make to become more globally competitive by addressing the
hurdles – and potential gains – in border administration, infrastructure and market access.
The work in Mexico, which comprises the majority of this report, focuses on specific industries
close to the “tipping point” of competitiveness in the global market. After analysing three industries –
aerospace, preserved fruits and medical devices – the latter was chosen to exemplify the barriers and
measures to remove them as the medical devices industry is considered to be representative of the
entire market.
Enabling Trade: Unlocking the Potential of Mexico and Vietnam showcases Mexico’s current trade
facilitation approach, highlights existing trade barriers revealed during interviews with the public and
private sectors, and offers further recommendations for actions. By looking at the end-to-end value
chain of a medical device, the report also presents a rough estimate of the potential impact of trade
barrier removal. Some of the recommendations provided are specific to medical devices; however,
many could have benefits beyond the medical devices industry.
Introduction

6 Enabling Trade
Overview of Mexico’s current production, exports
and imports
Mexico is the second-largest economy in Latin America.
It has a current gross domestic product (GDP) of $1.3
trillion and has been growing at an annual average of 2.6%
for the past 20 years.1
Mexico’s economy is shaped by
three characteristics: the size of the informal economy,
which represented 26% of GDP and 60% of the working
population over the past decade; the relevance of
manufacturing, accounting for 17% of total GDP; and the
concentration of the economic engine, with more than 50%
of GDP generated in six of 32 federal entities.2 3
In 2014, Mexico reached about $380 billion in exports,
representing 33% of GDP – a significant increase over the
approximately 11% prior to the signing in 1994 of the North
American Free Trade Agreement (NAFTA). Despite 13 free
trade agreements with various countries, more than 80%
of Mexico’s exports are to the USA and are concentrated
in a handful of industries, with automotive and electronics
leading the way. Although the bulk of its exports still focus
on a few industries and a few trade partners, certain
dynamic pockets have been growing more than 10% on
average in recent years. 4
These include:
–– Industries such as furniture and lighting, aircrafts and
aerospace, railway and tram equipment, plastics and
iron5
–– Exports to China, Spain, South Korea, Peru, Italy, France
and Switzerland6
Mexico’s Economic Development
and Trade Evolution
Mexico’s imports have also risen significantly since NAFTA,
to approximately 32% of GDP from about 14% prior to
the agreement. While the USA is also the main source of
imports, this is more diversified in terms of countries of
origin and industries.7
Mexico’s role in the global supply chain
Global value chains (GVCs) present enormous opportunities
for markets such as Mexico to participate in industries
without developing capabilities along every step of the
supply chain. Mexico has three key advantages that have
shaped its role in GVCs: cost of labour, presence of free
trade agreements and proximity to the USA. In GVCs,
Mexico tends to participate downstream in the production
process, importing unfinished goods and adding value
domestically before exporting either a finished or nearly
finished product.8
This role has driven the surge of
maquiladoras – companies that temporarily import materials
or components for assembly, manufacturing, processing
or reparation in Mexico for eventual re-exportation – which
are typically concentrated in regional clusters by industry,
leading to low added value in gross exports. 9
In terms
of participation in the GVC, room for improvement exists
compared with international best practices. For example,
some Latin American countries like Chile have found a way
to achieve higher participation in both dimensions.
Domestic value added as % of gross exports
(2000 vs 2009)
Source: OECD
Participation in GVC as % of gross exports
(2014)

Mexico’s Approach to Trade
Facilitation
To overcome barriers and facilitate trade, Mexico has
launched many initiatives driven by both the public and
private sectors. Key programmes from the Secretary of
Economy (SE), including IMMEX (Industria Manufacturera
Maquildora y de Servicios de Exportación), PROSEC
(Program of Sectoral Promotion) and the Regla Octava,
have been designed to ease the import-export process
and lower the transaction costs associated with importing
intermediate goods that are input for export products. 10
11 12
The ministry also is launching new trade facilitation
initiatives, two of which focus on deploying technology
as a tool for improved market access and border
administration:13
–– SNICE (Sistema Nacional de Información de Comercio
Exterior) will be a single user-friendly information
repository for all trade-related information and is
expected to especially benefit small and mid-sized
enterprises (SMEs).
–– COMPEX (Comisión Mixta para la Promoción de las
Exportaciones) will provide a centralized, interactive
portal for user interaction with the Trade Department.
Other initiatives from the Mexican Tax Administration
Service (SAT) related to border administration simplification
and acceleration include reduced import-export permit
issuance times, a simplified version of the tariff code
identification system, and ambitious plans for increased
efficiency and utilization of technology in customs
clearance processes as well as cooperation with foreign
customs agencies.14
Additionally, one vital element is the
implementation of a National Single Window for border
administration in 2012.15
ProMexico, an SE unit, has industry-specific programmes
focused on the promotion of foreign direct investment
and exports, including efforts to provide businesses with
financing and market data, and to improve connections with
international buyers and sellers.16
In terms of transportation, major investments are under way
to expand the quality and coverage of Mexico’s transport
infrastructure. President Enrique Peña Nieto announced
plans to put $5 billion into a network of 117 ports, with
significant investment in the port of Veracruz.17
Mexico City
has a new $12.5 billion airport under construction; work
began at the end of 2014.18
These initiatives, among others, represent significant
progress in trade facilitation across a range of different
areas. However, experience shows that governments
achieve the most success, and reduce the risk of launching
initiatives that fail to drive industries past the tipping point
of competitiveness or increase their share in GVCs, by
focusing on high-potential industries and analysing the
quality of end-to-end value chains, rather than having
entities take independent actions.19

8 Enabling Trade
Published every two years, the World Economic Forum’s
Enabling Trade Index benchmarks the performance
of 138 economies in four areas: market access,
border administration, transport and communications
infrastructure, and regulatory and business environment.
In the index, Mexico ranked 61st overall in 2014 and 65th in
2012.
Market access
Mexico ranks in the top 15% in this index category, thanks
in large part to its proximity to the USA and to the existence
of 13 trade agreements that allow approximately 87% of
USA imports to enter the country tariff-free. 20 21
However,
opportunities still exist to ease the navigation of regulatory
requirements and better connect buyers with sellers.
Border administration
Mexico requires less documentation for import and export
processes than many other countries, but the process
itself is perceived as slow, complex and inconsistent. 22
Key factors include a lack of coordination among customs
officers and an excessive number of checkpoints that rely
on manual inspection. This complexity contributes to the
hidden costs of middlemen and to the burden of corruption
that businesses sometimes face.23
Trade Barriers Affecting
Mexico
Infrastructure: transportation and logistics
Mexico stands in the middle in this category, given the low
quality and limitations of its infrastructure, as well as its
below-average levels of mobile and internet connectivity.24
The greatest improvement opportunities are related to
customs clearance and inland transportation costs.25
Operating environment
In this category, Mexico ranks in the bottom third of global
economies.26
Significant room for improvement exists in
four main areas:
–– Government regulations are difficult for compliance,
inconsistently recognized, and perceived as confusing
and slow. 27
–– The efficiency and accountability of public institutions
are considered to be among the lowest in the world. 28
–– Access and affordability of financing and financial
services is low by global standards.29
–– Gaps in physical security are wide and lead to higher
costs of doing business. 30
These barriers disproportionally affect SMEs, which have
fewer specialized resources and less access to public
decision-makers than do larger businesses and often are
unaware of existing support programmes.31
Finally, more
than half of the labour-cost advantage that Mexico has over
the USA is estimated to be lost because of supply-chain
barriers.32
This information is confidential and was prepared by Bain & Company solely for the use of our client; it is not to be relied on by any 3rd party without Bain's prior written consent 1MEX 151012 IMMEX (1 slide - 19h04)
Note: LAC = Latin America and Caribbean, Approximate rank for LAC was taken considering a country with a similar score
Source: The Global Enabling Trade Report 2014, World Economic Forum
Enabling Trade
Index
Market Access
Border
Administration
Infrastructure
Operating
Environment
Enabling Trade Index and Subindexes
Based on 138 countries — 2014 scores
Note: LAC = Latin America and Caribbean, approximate rank for LAC was taken considering a country with a similar score
Source: The Global Enabling Trade Report 2014, World Economic Forum

Increasing Mexico’s Relevance
in the Medical Devices GVC
Mexico has taken important steps to expand its
participation in the medical devices GVC. Free trade
agreements and the IMMEX programme that offer benefits
to foreign firms looking to manufacture in Mexico, have
helped the country to become the ninth-largest exporter of
medical devices globally and the biggest exporter in Latin
America, exporting $7.7 billion worldwide in 2014.33
However, barriers remain along the value chain that must
be addressed for the industry to go past the “tipping point”.
This report identifies four trade barriers that lead to higher
costs and lower participation in the GVC:
–– Regulatory processes are complex, uncertain and time
consuming.34
–– Few local certified suppliers of biocompatible
materials exist and innovation development is
limited.35
–– Access to the national healthcare market is
challenging and costly, and visibility of foreign
opportunities is limited.36
–– Logistics and border administration processes could
be more efficient.37
Regulatory processes
COFEPRIS (Comisión Federal para la Protección contra
Riesgos Sanitarios), the federal agency responsible for
promoting and protecting public health, has taken steps
to provide better services that have been recognized
by private-sector companies. 38
However, room for
improvement still exists, particularly in reducing process
complexity, increasing visibility, optimizing response times
and improving communication with other public agencies.39
These enhancements could have substantial impact beyond
medical devices, as products regulated by COFEPRIS
represent about 10% of GDP and roughly 11% of Mexico’s
foreign trade.40
Recent positive actions taken by the regulator were aimed
at improving response times for health registries, which
account for the most significant delays:
–– After two deregulation campaigns in 2011 and 2015,
17.4% of medical devices no longer require a health
registry, given their low risk. COFEPRIS estimates
that these changes created annual administrative
savings of more than $1.6 million and generated indirect
economic benefits of approximately $330 million, freeing
up capacity to process riskier class II and class III
products.41
–– An equivalency agreement was put in place in 2011 for
companies with health registries from Japan, the USA
and Canada, which together accounted for about 40%
of foreign applications.42
These companies can now
complete the registration process in 30 working days.43
Unfortunately, this one-way agreement only benefits
importers, and as more companies use this alternative,
the system has become saturated, with response times
again increasing to 4-6 months.44
–– A Single Window for import permit processing
implemented in 2013 has drawn praise from the private
sector. It provides greater transparency on the permits
process and gives companies more information and
updates on their permits’ status.45
However, companies
continue to experience long waits and little agency
support on other types of applications that do not use
the Single Window, like health registries.46

10 Enabling Trade
Other actions taken are considered good starting points
to improve the regulatory environment, but are not enough
to solve the core issues. For example, the publication of
documentation checklists by device-risk level has provided
some level of transparency, but companies consider this
as just the baseline of the support expected. Additional
regulatory actions simply cover underlying inefficiencies,
like the sanction in 2012 to allow authorized third parties to
pre-check documentation and facilitate the review process
for COFEPRIS, which reduced response times to about one
month – for a fee of up to $5,000. 47 48 49
This fee places an
added financial burden on entrepreneurs and SMEs.
Most companies interviewed mentioned the complex
regulatory environment, validity-period differences between
certifications, slow response times and lack of visibility
as the most pressing barriers to trade. They emphasized
that addressing other hurdles without tacking these issues
will not be sufficient to provide incentives to foreign direct
investment and increase trade.50
Local certified suppliers and innovation development
The medical devices industry is highly dependent on
imported raw materials and components, which can
account for up to 70% of costs, depending on the
manufacturer’s level of vertical integration. The most
frequent cause that companies cite is the lack of high-
quality certified local suppliers.51
These materials typically
come at a premium from markets like the USA, Canada,
Europe and Japan.52
Further analysis is needed to identify
the sub-industries in which Mexico has the scale and
capabilities to compete, but improvements in this area
could have a positive impact on costs, inventory levels and
overall GVC participation.
Additionally, although innovation is one priority of the
current administration and much is being done to promote
technological advancement – including public programmes
to stimulate and financially support entrepreneurs from idea
generation to commercialization53
– the medical devices
industry is still seeing very little innovation. To meet Mexico’s
innovation ambitions, it will be necessary to have access
to better information, a clear framework to evaluate longer-
term innovative developments, and a shift in the purchasing
approach of Mexico’s public healthcare institutions.
Access to the national market and visibility of
international opportunities
The complexities of the public healthcare market, which
accounts for about 78% of national consumption, have
a significant impact on the industry.54
Mexico’s public
approach to healthcare procurement has resulted in
widespread use of older technologies, leaving limited space
for innovation and creating a mismatch with the products in
demand from international markets that place more value
on innovation.55
This phenomenon has led to the creation
by multinational players of manufacturing clusters in
northern Mexico that are aimed mainly at the export market,
while national suppliers focus on older technologies that
dominate national purchases.56
Producers also claim that the complexity entailed in
participation in public tenders, which represent about 75%
of purchases, not only leads to higher costs but also limits
their resources available to participate in foreign trade.57
58
Tendered products have to be part of the basic health
formulary (Cuadro Básico), and the process to include
products is complex, time consuming (1-2 years) and often
discretionary.59 60
COFEPRIS Response Times
Health Registries — Months
Source: Bain Analysis

–– Guidelines are typically based on pharmaceuticals,
leading to costly clinical and bio-compatibility
studies.61
–– The process lacks standardization as institutions such
as the IMSS (Instituto Mexicano del Seguro Social or
Mexican Social Security Institute), SEDENA (Secretaría
de la Defensa Nacional or Secretariat of National
Defence) and ISSSTE (Instituto de Seguridad y Servicios
Sociales de los Trabajadores del Estado or Institute
for Social Security and Services for State Workers)
apply different criteria to accept products. Once the
Inter-institutional Commission for the Basic Formulary
approves a product, companies still need to convince
the different public buyers to activate the product in their
own systems.62
–– Cost-benefit studies (at a cost of between $10,000
and $20,000 each) specific to the Mexican population
are requested.63
However, the lack of a framework to
evaluate innovation is shown in that only two new
products were included in 2014 in the basic formulary.64
–– Tender conditions and decisions are communicated
very close to the required delivery dates, which leads
companies to accumulate inventories in case they win
the tender or risk fines of up to 10% of an order for a
delay of just four days.65
–– No guidelines exist on minimum order sizes and
delivery dates, leading suppliers to incur significant
logistics costs or rely on distributors, as deliveries
are not centralized by states and each institution has
different delivery dates.66
–– Order volumes are uncertain (ranging from 40% to
100% of tendered volume) and suppliers have limited
access to usage and inventory statistics, sometimes
leading to inventory levels two to three times above what
companies hold for a product they sell to the private
sector.67
–– Late payments are a significant issue as companies
are forced to continue supplying states like Veracruz
and Sonora, which have a history of not paying, if they
want to participate in the new centralized purchasing
scheme.68
This information is confidential and was prepared by Bain & Company solely for the use of our client; it is not to be relied on by any 3rd party without Bain's prior written consent 1MEX 151012 IMMEX (3 slides - 19h46)
Compared to ROW, time-to-market in Mexico of new
products is ~170% longer for the majority of the population
+167%
Source: AMID, PWC and Strategy&
+4%
Time-to-Market of New Products
Average time in months, 2014
Source: AMID, PWC and Strategy&
Given these constraints and the long response times from
COFEPRIS, it takes 1.7 times longer for products to
reach the majority of Mexico’s population than the
global average.69
Logistics and border administration processes
In the Enabling Trade Index, Mexico ranks 62nd out of
138 countries in border administration, the lowest among
countries in the Organisation for Economic Co-operation
and Development (OECD). The most critical issues are
related to import-export costs and customs services; in
those categories, Mexico ranks in the 90s.70
Complexity on processes and requirements, inefficient
communication among authorities and the predominance
of manual customs processing lead to clearance costs
of between $200 and $300 per container, whereas best-
practice countries have costs of under $100 per container.
71 72

12 Enabling Trade
Grey areas in classification guidelines and rules often result
in shipments delayed or retained at the border – accounting
for 10-20% of total shipments, according to interviews,
that can be subject to incremental storage fees (about
$75 per day), fines (up to 70% of value) or impounding of
merchandise, which sometimes leads to manufacturing
delays and/or contract infringement penalties.73 74
Other
key reasons for costs and delays are related to road
infrastructure and to the additional security checkpoints
required in Mexico’s war on drugs. These lead to inbound
transportation costs of between $900 and $1,000 per
container – about three times the level required for top
quartile performance.75
The implementation of a Single Window in 2011 has already
simplified the process and made it more transparent.76
The
customs authority has ambitious plans to migrate to a more
automated, paperless process, provide facilities for customs
processing for exports at the point of origin, institute
joint checks between origin and destination authorities
to increase process efficiency, and continue pushing
towards a single national certification for foreign trade.77
However, the benefits of certification need to be palpable to
encourage companies to make the necessary investments,
especially when certification costs are high. For example,
the “fast lane” for NEEC (Nuevo Esquema de Empresas
Certificadas)-certified companies loses some of its appeal
since their trucks share lanes with other trucks almost until
the border.
As part of this continuous improvement work, authorities
should find ways to make regulations and requirements
easier to understand for non-expert users; improve
cooperation between public entities and the private sector
on preshipment rulings, particularly for new products; look
to optimize processing capacity; and avoid bottlenecks at
key airports and border locations. For example, Mexico
Source: Interviews with logistics companies and customs agents
U.S. Border
LONGWAITINGTIMES
Fast lane
“NEEC Certified
Companies”
Source: Interviews with logistics companies & customs agents
Fast-lane NEEC-certified
companies
City’s airport is often saturated with goods for export, due
to insufficient operating hours and demand that exceeds
capacity at the Gamma Ray facilities – issues that have not
yet been addressed in the planning for a new larger airport
currently under construction.78
Given Mexico’s high dependence on land transportation
and the related challenges, operators believe an opportunity
exists to cut costs by 15-20%. However, they underscore
that this mode of transportation is particularly vulnerable to
theft, and drug trafficking poses challenges unlikely to be
resolved in the short term.79

To understand the impact that removing trade barriers
could have on innovative medical devices, this report
looked at peripherally inserted central catheters (PICCs) – a
type that is inserted into a vein in the arm rather than in the
chest or neck.80
The USA leads the way in terms of usage,
accounting for about two-thirds of the global market.81
According to experts, adoption in other markets with lower
healthcare spending has been slower than desired. In the
USA, despite the PICC’s price of between $77 and $125,
significantly above that of a substitute like an acute central
venous catheter (CVC) that costs roughly $48, the market
value of PICCs is 1.7 times that of CVCs.82
Mexico could increase its presence in the global value chain
of PICCs and further stimulate demand by:
1. Reducing the complexity and increasing the
efficiency of regulatory processes that currently have
a negative impact on the attractiveness of Mexico as
a production destination and slow market access to
innovation.
2. Increasing Mexico’s share of value-added GVCs
by developing a certified local supplier base of raw
materials or processes with sufficient scale, and where
Mexico has the right capabilities to continue promoting
innovation development, using a framework for
evaluating technologies with a longer development life
cycle.
Potential Impact of Trade
Barrier Reduction
3. Improving market access by easing accessibility to
national healthcare institutions (through consistent
access criteria and improved tender processes), as well
as leveraging local champions and e-commerce tools to
increase visibility of foreign opportunities and Mexican
suppliers overseas.
4. Enhancing clarity on customs requirements via an
easy-to-use online guide for import-export processes,
and targeting higher efficiency goals via process
and technological improvements to reduce delays,
improve communication and increase consistency.
Increased competitiveness should drive up Mexico’s share
of global production and accelerate product adoption in
underpenetrated markets; an early estimate of potential
volume increase is between 10% and 20%.83
This information is confidential and was prepared by Bain & Company solely for the use of our client; it is not to be relied on by any 3rd party without Bain's prior written consent 7MEX Slides documento
PICCs cost reductions
Source: Primary Interviews and Bain Analysis
2 3 4
Improving the regulatory environment is a key
enabler for these improvements
1
Rough estimate of Mexico’s potential competitiveness improvements in PICCs
(cost and expense, %)
Source: Primary Interviews and Bain Analysis
Note: Dark grey denotes the low end of the estimate of potential competitiveness improvement; light grey
denotes the difference between the low and high ends of the estimate

14 Enabling Trade
Mexico’s government has made vital improvements to lower
trade barriers, as this report notes, but these are insufficient
to push many industries and products to their full potential.
The medical devices industry, for example, could be an
engine for Mexico’s economic growth. Yet, although the
actions already taken in the industry are important and
necessary, further efforts are required.
The government is on the right track in working to increase
the efficiency of regulatory and customs processes, and
decrease other trade barriers. However, the problem with
approaching trade barriers generically is that it leaves
unclear whether envisaged measures are sufficient to
help industries and products past the tipping point.
Opportunities to achieve this goal multiply if specific
industries are prioritized, and the true cost structure and
entire value chain of a particular industry is understood in
order to enhance competitiveness. Actions taken for pilot
industries are likely to have a broad application to other
industries.
Working towards a specific target that will take selected
products or industries to global competitiveness will allow
the most effective use of government resources and the
most overall benefit for the economy. A holistic approach,
looking not only at foreign trade policy but also at the
implications of national policies – such as the structure
of public tenders or COFEPRIS regulations for medical
devices – is essential, as both worlds co-exist in the eyes of
producers and consumers.
Ideas and strategies that could help Mexico to take some
industries beyond the tipping point include the following (it
is important to note that each industry faces unique barriers
that should be addressed separately):
Conclusions and
Recommendations

Market
Access
–– Limited knowledge of foreign opportunities and requirements from small and mid-sized enterprises:
Create a portal that integrates all the support programmes (financing, intellectual property protection,
market data, etc.) from the different government institutions. Identify and showcase export champions.
–– Difficulty accessing public markets: Drive consistency on criteria for access to the basic formulary
across public health institutions and, where possible, look for a demand-driven (rather than a budget-
cycle-driven) timeline on public tenders. Assign a working group of experts to create the framework
for evaluating innovative medical devices and promote better and faster patient access to attractive
innovations.
Border
Administration
–– Requirements are complex and hard to understand: Incorporate an import-export requirements guide
for non-expert users in the SAT or Mexican Tax Administration Service portal.
–– Decisions and interpretation of rules are inconsistent across customs offices: Continue to move
towards more automated processes to avoid inconsistency.
–– Limited collaboration across public entities and with private sector: Particularly for new products,
look for ways to optimize collaboration between the public and private sectors to expand the use of
advance rulings on Harmonized Systems codes classification and valuation.
Infrastructure
(Transport&Logistics)
–– High number of checkpoints: Inspections by different government entities should be done simultaneously
rather than in separate steps (e.g., customs, SEDENA, federal police, etc.).
–– Infrastructure bottlenecks driving down efficiency: Conduct a study to identify the main users and root
causes of bottlenecks, and develop a plan to balance capacity and prioritize performance and/or new
investment. (e.g. Gamma Ray arches and operating times at the new airport)
–– Damages and delays at highway checkpoints: Increase use of non-intrusive inspection technologies
and ensure strong coordination among enforcement agencies to limit the number of stops and frequency
of inspections.
Operating
Environment
–– Complex and slow regulatory processes: Conduct analysis to understand the root causes of process
inefficiency by class of device and develop an action plan to optimize end-to-end process. Complement
with an interface such as the Single Window to facilitate simultaneous processing, reduce delays, minimize
errors and increase visibility.
–– National regulations not in line with international standards: Gradually harmonize requirements,
registrations and certifications with international standards, and accelerate the process of regulatory
updates to stay on track.
–– Limited local availability of high-quality certified suppliers: Conduct a market study to identify the
supply gaps that Mexico could be positioned to cover in terms of scale and capabilities, and approve a
plan to develop and promote those supplier bases.
Trade Barriers and Potential
Improvement Levers

16 Enabling Trade
Given that not all potential improvements identified can be addressed at the same time, the recommendation is to focus
first on “non-regret” moves before approaching those considered “bold plays”. However, in order to ensure maximum
impact over the long run, some work might need to start simultaneously, as “bold plays” tend to be longer-term actions.
Market
Access
–– Create portal that integrates all support
programmes
–– Drive simplification and consistency for inclusion
process of new medical devices into the basic
formulary
–– Identify and showcase export champions –– Increase quality and innovation focus of public buyers
–– Modify timeline of public tenders
BorderAdmin.
–– Incorporate import-export requirements
guide for non-expert users in SAT or Mexican
Tax Administration Service portal
–– Move towards more automated customs process to
increase efficiency and avoid inconsistent judgment
–– Improve public- and private-sector
collaboration to drive the use of advance
rulings on Harmonized Systems classification
and valuation
Infrastructure
–– Conduct study and develop action plan on
main root causes of bottlenecks
–– Increase use of non-intrusive inspection technologies
–– Consolidate government inspections
Operating
Environment
–– Optimize end-to-end regulatory process and
develop digital portal
–– Harmonize requirements and certifications with
international standards
–– Conduct a market study to identify supply gaps and
create plan to develop and promote specific supplier
bases
Recent actions by the Mexican government to enable trade
–– Public consultation to understand in more detail the trade barriers businesses face in Mexico
–– Public consultation on implementation of the 6th amendment to the Mexican Harmonized Systems
tariff
–– Development of a portal to gather all relevant import-export information for the private sector (e.g.
SNICE or Sistema Nacional de Información de Comercio Exterior)
–– Design of an interactive portal for collaboration between the public and private sectors to create
solutions to international trade barriers (COMPEX or Comisión Mixta para la Promoción de las
Exportaciones)
–– Mapping of current foreign trade processes across public entities to be redesigned in collaboration
with the private sector as part of the World Trade Organization’s Trade Facilitation Agreement
Non-regrets Bold Plays

–– COMPEX (Comisión Mixta para la Promoción de las Exportaciones): Composed of representatives of the public
and private sectors, its main objective is to promote exports by simplifying administrative procedures and reducing
technical trade barriers, and encouraging an export culture.
–– CVCs (central venous catheters): Long, thin, flexible tubes used to give medicines, fluids, nutrients, or blood products
to a patient over a long period of time, usually several weeks or more. A catheter is often inserted in a large vein in the
arm or chest. The catheter is threaded through this vein until it reaches a large vein near the heart.
–– Equivalency Agreement: COFEPRIS programme allowing foreign manufacturers to use the approval from foreign
health regulators (e.g., the USA’s Food and Drug Administration) to meet some of the requirements for obtaining a
health registry from COFEPRIS in Mexico.
–– IMMEX (Industria Manufacturera Maquiladora y de Servicios de Exportación): The IMMEX programme allows
the temporary importation of goods without paying import duty, taxes and anti-dumping quotas to be processed and
exported.
–– Maquiladora: Company that temporarily imports materials or components for assembly, manufacturing, processing or
reparation in Mexico for eventual re-exportation.
–– PROSEC (Programas de Promoción Sectorial): Instrument that allows certain producers to import, with a
preferential ad valorem tariff (General Imports Tax), various goods to use in the production of specific products,
regardless of whether the goods are intended for export or the domestic market.
–– PICC (peripherally inserted central catheter): Type of venous access device frequently used to obtain central
venous access for patients in acute care, home care and skilled nursing care. PICCs are inserted in the peripheral
vasculature, with a vein in the arm being the most common.
–– Regla Octava: Licence or permit issued by Mexico’s Ministry of Economy that allows companies to import machinery
and equipment, materials, supplies, parts and components with preferential tariffs and administrative facilities.
–– SAT: Mexican Tax Administration Service, which implements fiscal and customs legislation. It ensures that individuals
and corporations contribute proportionately and equitably to public spending.
–– SNICE (Sistema Nacional de Información de Comercio Exterior): Single-point, user-friendly information repository
of trade information expected to be of particular benefit to small and mid-sized enterprises.
Definitions

18 Enabling Trade
Acknowledgements
Key Contributors and Reviewers
–– José Aguilar, Director, Security and Customs
Compliance, DHL International Mexico
–– Ingo Babrikowski, Chief Executive Officer, Estafeta
Mexicana
–– Diana Belanger, Strategic Planning Manager, Industrias
Plásticas Medicas
–– Michael Bentley, Director, Business Planning and
Development, DP World
–– David Bonilla, James Martin Fellow, Institute for Carbon
and Energy Reduction in Transport, Oxford Martin
School, University of Oxford
–– Isabel Clavijo Mostajo, International Customs Affairs
Central Administrator, SAT
–– Pablo Dávila, ‎President of the Board of Directors, AMID
–– Moramay Flores, Public Affairs Director for Latin
America, United Parcel Service
–– Zhu Gaozhang, Director, Compliance and Facilitation,
World Customs Organization
–– Aldo González, Commercial Facilitator and Trade
Services Administrator, SAT
–– María Guadalupe Zurita, Managing Director, Teleflex
Mexico
–– Carlos Jimenez, Managing Director, B. Braun Mexico
–– Kathy Kokotis, Global Clinical Development, Bard
Access Systems
–– Gerard McLinden, Senior Trade Facilitation Specialist,
World Bank
–– Hugo Perezcano, Trade Expert and former Head of the
Trade Remedy Authority, Mexico
–– Neove Pipper, Latina America Government Relations
Manager, Honeywell International
–– Eduardo Porter Ludwig, Chief Executive Officer, Mexico,
Agility
–– Carolyn Robert, International Trade Lead Specialist,
Inter-American Development Bank
–– Roberto Romo Michaud, Special Projects Director, La
Morena Group
–– Edmundo Victoria, Executive Vice-president, CAAAREM
Project Team
–– Jordi Ciuro, Principal, Bain & Company
–– Mark Gottfredson, Partner, Bain & Company
–– Wolfgang Lehmacher, Head of Supply Chain & Transport
Industries, World Economic Forum
–– Gerry Mattios, Principal, Bain & Company
–– Juan Díaz Mazadiego, Director, Foreign Trade,
Secretariat of the Economy, Mexico
–– Victor Padilla-Taylor, Community Lead, Supply Chain &
Transport Industries, World Economic Forum
–– Rodrigo Rubio, Managing Director, Mexico, Bain &
Company
–– Ana Ruth Solano, Deputy General Manager, Foreign
Trade, Ministry of Economy, Mexico
–– Mariana Ulacia, Manager, Bain & Company
In Collaboration With
–– Agility
–– AMID
–– BARD
–– CANACINTRA
–– CANIFARMA
–– COFEPRIS
–– Compañía Mexicana de Radiología
–– Equipos Médicos Vizcarra
–– Estafeta Mexicana
–– IMSS
–– Industrias Plásticas Médicas
–– ProMéxico
–– SAT
–– Secretariat of the Economy, Mexico
–– Teleflex
–– United Parcel Service (UPS)
This report is the result of the active participation and collaboration of many individuals,
firms and government representatives.

When Vietnam set out to develop its economy in 1986, it
embarked on a journey that, so far, has delivered seemingly
impossible results. At that time, the country ranked as
one of the world’s poorest, with a per-capita income that
was under $100. The government devised an aggressive
programme of socio-economic reforms and plans,
identifying specific measures and investments to boost
economic growth. By 2014, incomes had grown 20-fold,
establishing Vietnam as a lower-middle-income country
and sustaining a growth rate that has averaged 6.4% over
the past decade. Exports rose in value by 13.6% in 2014,
with steadily increasing shipments of garments, footwear,
furniture and even high-tech products.
In many ways, however, the nation’s journey has just begun.
Despite its many advances, Vietnam still faces numerous
trade obstacles – from inefficient border administration to
outmoded transportation infrastructure. If the government
takes a methodical approach to reducing these hurdles,
Vietnam stands to become a trade success on par with
its more developed peers in the Association of Southeast
Asian Nations (ASEAN).
Vietnam is a prime example of the benefits that can be
achieved when countries systematically eliminate the supply
chain barriers inhibiting economic growth. As detailed in
previous World Economic Forum reports, improving even a
restricted set of supply chain barriers halfway to global best
practice could increase trade by 15%, and yield a nearly
5% growth in global GDP. For a developing country like
Vietnam, the benefits could be even higher. Based on the
Forum’s research and experience, enabling trade requires
being competitive across four main dimensions: border
administration, infrastructure, market access and business
environment.
Some least-developed countries have relied solely on
measures spelled out in the World Trade Organization’s
Trade Facilitation Agreement and other trade pacts aimed
at streamlining border administration. While important, such
measures are not enough. For example, these countries
grapple with fundamental challenges like poor infrastructure
or an inadequate operating environment for companies to
grow and find external markets for their goods.
Vietnam’s Road Ahead to Global
Competitiveness
Based on this report’s analysis, hurdles in infrastructure
and operating environment undermine competitiveness
and must be addressed before a country can improve
border administration. In fact, such obstacles are a major
reason why some least-developed countries have not
reaped much success from border administration projects.
Morocco, for instance, invested in improvements to
border administration but raised its status on the World
Bank’s Logistics Performance Index only after it prioritized
investment in upgrading the infrastructure of its major ports
and established an agency for logistics development.
Besides relying too heavily on border administration
initiatives at the expense of other supply chain challenges,
another common misstep by governments is taking a
vertical approach to removing trade impediments – they
address issues in a single dimension (e.g. market access)
for all industries.
According to the Forum’s analysis, countries that take a
horizontal approach will have greater success in improving
trade. This involves identifying a few industries that hold the
highest potential for competitiveness, and taking an end-to-
end view of the value chain in each of those industries. That
way, governments can pinpoint the specific trade barriers
to address so that a selected industry can reach the tipping
point at which companies would find it worthwhile to trade.
Once conditions are improved for one industry, tackling the
barriers in other industries is much easier.
In Vietnam, for example, targeting the impediments to
trade in the industries of high technology and apparel and
footwear, could potentially develop a thriving export trade
not only in those industries, but also in others such as
pharmaceuticals and food exports. However, achieving
global competitiveness requires first an understanding of
the obstacles facing those critical industries across all four
dimensions – and devising a game plan for improvement.
This report details the advances made by Vietnam, the
ongoing challenges, and the potential gains that can be
made by addressing three of the four areas where trade
can be inhibited: border administration, infrastructure and
market access.

20 Enabling Trade
Border administration
Although Vietnam has implemented an electronic system,
the potential is plentiful to improve the efficiency and
effectiveness of border administration. According to the
OECD’s trade indicators, the country ranks below its Asian
neighbours and other lower-middle-income countries
in automation, border administration transparency, and
streamlining of procedures and internal border agency
cooperation. Compared with some Asian nations, Vietnam
requires more documents from importing and exporting
companies, and its clearance processes are much slower.
For example, exporting goods from Vietnam takes an
average of 16-21 days, compared with the global best
practice of six days. Importing involves a similarly lengthy
period. The lost time translates into added costs for
importers and exporters, making Vietnam a less attractive
location for trade.
The country’s e-border administration system has not
effectively cut shipping costs. The reasons are several:
little coordination among different agencies, varying
interpretation of regulations, and a lack of standardized
processes. (For example, despite the e-customs system,
ports in the north sometimes still request manual
documents.)
Vietnam could boost its competitiveness by synchronizing
procedures with global standards. The country asks
for significantly more details in an e-manifest than other
countries require. Vietnam also could build on the early
success of its Tao Thuan Export Promotion Zone and
establish more free trade zones around the country, which
ultimately can serve as regional and global hubs.
Moreover, Vietnam could continue to invest, develop and
implement its national electronic clearance system, meeting
the deadlines for integrating with the ASEAN system. It
could encourage all government agencies to participate
in a Single Window platform, and ensure consistency
and reliability of the new system at all locations. (A Single
Window platform is an electronic process in which trade
and transport companies can provide standardized
information and documents to fulfil import, export and
transit-related regulatory requirements.)
The Forum’s analysis has found that by addressing these
numerous challenges in procedures, documentation and
automation, Vietnam could deliver trade savings of 2-3%,
making the country significantly more competitive.
Infrastructure
To maintain trade momentum, Vietnam must continue to
invest in its infrastructure throughout the country – at its
deep seaports, major international airports, railways and
highways.
The government’s efforts over the past decade helped
to boost Vietnam’s transport infrastructure status on the
2014 World Economic Forum ranking to 72nd (from 89th).
However, the country still lags more developed ASEAN
members. Vietnam’s logistics expenditure as a percentage
of GDP is higher than that of the Asia average, according
to an estimate by Maersk, a global shipping company,
says Navigating Vietnam, a report by the CIMB Group.
Infrastructure improvements that reduce logistics costs
will benefit exporters and importers and, as a result, could
exponentially expand domestic trade.
Vietnam has many infrastructure challenges. Overcrowding
of ports in and around Ho Chi Minh City results in a lack
of available berths and an average two-day delay in
shipments. The government used most of its transport and
logistics funds to develop the Cai Mep-Thi Vai deep-sea
port, yet it remains underutilized, currently operating at less
than 30% capacity. Shipping companies are reluctant to
use Cai Mep-Thi Vai, partly because of its inaccessibility to
industrial parks and factories.
Meanwhile, a large global consortium of companies is likely
to require 14 metres of water-depth for vessels making
direct calls to Vietnam, creating the need to adapt the
entrance to the Cai Mep River in accordance with the Port
Master Plan. Vietnam could benefit by dredging the channel
to the required depth and implementing changes to port
dues in order to increase the overall income.
Airport capacity is another burden. In 2014, Tan Son Nhat
International Airport, which services Ho Chi Minh City and
surrounding areas, handled 22 million passengers and 408
kilotons of cargo, and has little capacity for additional traffic.
84
Moreover, the airport’s location amid urban congestion

makes cargo handling difficult. In June 2015, Vietnam’s
parliament approved plans to build the new Long Thanh
International Airport in Dong Nai province, 40 kilometres
from Ho Chi Minh City. The project has been delayed for
years because a few local stakeholders were unconvinced
that it would yield a solid return on investment. Construction
is expected to take decades to complete.
Vietnam needs to continue to improve infrastructure near
the border with China to streamline trade. A big advance
was made in 2014 when the country’s longest (245
kilometres) and most modern expressway was opened,
connecting Noi Bai in Hanoi to north-western Lao Cai
province, which abuts China. The highway has halved travel
time between Hanoi and Lao Cai to three-and-a-half hours.
More highway developments, such as the proposed Dau
Giay-Phan Thiet Expressway Project, could bring further
benefit.
Market access
Vietnam stands to improve its competitiveness by tackling
the significant obstacles facing importers. For example,
burdensome licensing and regulatory compliance
requirements constrain healthcare-related industries,
leading to costly delays. For their part, logistics companies
often face delays in getting approvals for brokerage
licence applications, which are transferred among various
agencies in different cities. A host of other rules restrict
market access. For example, goods sent overseas due
to warranty issues are treated as “refurbished” upon
their return, a designation with unclear regulations.
Moreover, pharmaceuticals companies are required to
conduct local trials even if they have approvals from the
European Medicines Agency or the USA’s FDA, making it
uncompetitive for international companies. Vietnam could
advance towards global competitiveness by complying
these and other import/export licensing regulations and
policies with international norms.
An integrated approach
Since the three supply chain challenges are interrelated,
they must be addressed in an integrated way. Improving
ports or highways alone will not make Vietnam a global
competitor. Border clearance procedures also need to
be streamlined, and the regulatory burden on companies
eased in order to make it profitable for them to use the
upgraded ports and highways.
Governments that are most successful in developing an
integrated plan start by conducting a serious study of the
end-to-end value chain. They use a four-step process:
prepare, diagnose, plan and mobilize.
Preparing includes establishing a governance structure
consisting of the government and private companies.
Diagnosing requires understanding and identifying the
industries with the most potential to benefit from removing
trade barriers across the value chain. The assessments
include benchmarking the country’s processes to global
best practice and learning from global counterparts.
Planning is based on the deep diagnostic, with participants
agreeing on the key actions to attain established objectives
and co-creating a list of initiatives. Mobilizing requires
establishment of proper governance and responsibilities
for each initiative, with milestones defined according to key
performance indicators, and a focus on staying on track.
Given the complex trade barriers and the high stakes, the
government must involve the private sector at the very
start of a project as a way to shape the solution for final
users and enhance potential impact. In the most successful
efforts, governments work in tandem with the private sector
throughout the process. The first step is to collaborate on
identifying the most important supply chain barriers, and
tackling those first. That could mean conducting workshops
and creating a dialogue among government and private
sector to define the most relevant competitive issues and
the projects that would allow them to collectively facilitate
trade. If the answer is a Single Window, the government and
private sector can work together to map current business
processes, identify bottlenecks and discuss solutions. Such
government-private sector collaboration is the best way to
overcome trade barriers and create a win-win scenario.

22 Enabling Trade
1. Mexico 101: The 2015 Country Handbook, 2015, JP
Morgan
2. Instituto Nacional de Estadística y Geografía (INEGI)
http://www.inegi.org.mx/est/contenidos/proyectos/cn/
informal/
Morgan
Morgan
5. http://www.worldsrichestcountries.com/top-mexico-
exports.html
6. Secretaría de Economía, Información Estadística
Arancelaria. - http://www.economia.gob.mx/
comunidad-negocios/comercio-exterior/informacion-
estadistica-y-arancelaria
Morgan
8. “Synchronized Factories: Latin America and the
Caribbean in the Era of Global Value Chains,” Inter-
American Development Bank and Springer Open, 2014
9. “Clusters y Maquiladoras” Maquiladoras en
Manufactura, Año 12, num. 132, México, Junio, 2006,
Jorge Carrillo
10. http://www.economia.gob.mx/industry/foreign-trade-
instruments/immex
11. http://www.economia.gob.mx/comunidad-negocios/
industria-y-comercio/instrumentos-de-comercio-
exterior/prosec
12. http://www.siicex.gob.mx/portalSiicex/Transparencia/
Permisos/infgeneral.htm
13. Interview with Ministry of Economy
14. Interview with SAT
15. http://www.aduanas.gob.mx/aduana_mexico/2008/
sala_prensa/158_22226.html
16. Interview with ProMexico
17. http://www.joc.com/port-news/international-
ports/mexican-government-spending-5-billion-
ports_20150420.html
18. http://www.bnamericas.com/news/infrastructure/new-
mexico-city-airport-the-most-advanced-worldwide-
expert
19. Bain partner expertise
20. Global Enabling Trade Report 2014, World Economic
Forum, p. 11
21. Mining Laws and Regulations Handbook, Vol. 1
Forum, p. 221
23. Interviews with logistics companies
Forum
25. Doing Business 2015, Going beyond efficiency,
Economy Profile 2015 Mexico, The World Bank
Forum
27. Interviews with medical devices companies
Forum
Forum
Forum
31. Interview with Chambers and ProMexico
32. Enabling Trade: Valuing Growth Opportunities, World
Economic Forum
33. http://mim.promexico.gob.mx/wb/mim/vida_perfil_del_
sector
34. Interviews with medical devices companies and
Chambers
Chambers
Chambers
37. Interviews with medical devices and logistics
companies
38. COFEPRIS, Gestión de la Salud Pública en México,
2015
Chambers
2015
2015
42. COFEPRIS, Dispositivos Médicos, esquema de
equivalencias y acuerdos internacionales, 2015
2015
Endnotes

Chambers
45. Ventanilla Única de comercio exterior mexicana,
Gobierno Federal, 2011
Chambers
Chambers
2015
49. Interview with COFEPRIS
50. Interviews with several medical devices companies
51. Interviews with experts
52. Medical devices plant director
53. Catálogo de Programas para el fomento a la innovación
y la vinculación en las empresas 2015, Foro Consultivo
Científico y Tecnológic
54. Dispositivos Médicos, Unidad de inteligencia de
Negocios, PROMEXICO, Secretaría de Economía, 2014
chambers
Chambers
57. Interview with [MISSING INFO]
58. Interview with CANIFARMA and Mexican medical
devices companies
59. Interview with CANIFARMA and AMID
60. Interview with Bard´s public purchases expert
62. Interview with Chambers and IMSS
64. Medical Devices in Mexico, its relevance for the
National Economy and Health System, AMID, PWC and
Strategy&, February 2015
65. Interview with medical devices company’s public
purchases expert
69. Medical Devices in Mexico, its relevance for the
National Economy and Health System, AMID, PWC and
Strategy&, February 2015
Forum
71. Interviews with logistics companies
73. Companies’ ranges
74. Interview with customs agent
76. http://www.economia.gob.mx/eventos-noticias/
informacion-relevante/7871-boletin132-12
77. Interview with SAT and NEEC
78. Interview with logistics companies
79. Interview with logistics companies
80. Medical-Surgical Nursing: Assessment and
Management of Clinical Problems, Sharon L. Lewis,
Shannon Ruff
81. PICCs expert from a medical devices company and
Vascular Access Devices, US 2014, market analysis,
Millennium Research Group
82. Vascular Access Devices, US 2014, market analysis,
Millennium Research Group
83. Bain analysis
84. Ball, L., “Vietnam says Go on Ho Chi Minh Airport,” Air
Cargo World, http://aircargoworld.com/vietna-says-go-
on-ho-chi-minh-airport, accessed September 2015

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contact@weforum.org
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