GRIDMAP – the Global Regulations, Institutional Development, and Market Authorities Perspective Toolkit – provides emerging markets and developing economies (EMDEs) with a minimum package of policies and practices to foster trustworthy, safe, and competitive markets.
GRIDMAP addresses various regulatory topics or modules that impact markets, such as consumer protection and data markets. Each GRIDMAP module analyzes three key pillars: legal framework, institutional arrangements, and implementation and enforcement. The Minimum Package (MP) for each of these three pillars comes from World Bank experience, expert consultations; international good practice recommendations; and a data survey of dozens of government authorities from both OECD and EMDE.
EMDEs face a challenging gap to effectively implement and enforce the gap between their regulatory aspirations and their capacity to implement and enforce complex regulatory policies they adopt. GRIDMAP bridges this gap by providing a standardized self-assessment tool, enabling EMDEs to identify regulatory and institutional gaps, tailor policies to their context, and prioritize interventions.
Bridging the Gap: GRIDMAP Highlights the Global Challenge of Aligning Regulatory Aspirations with Implementation Capacity
Under this initiative, each analyzed module is accompanied by a report that provides an aggregated analysis by region and income level, with comparisons to the GRIDMAP MP. Findings are also accessible via an online dashboard. These reports and the corresponding dashboard are available on this webpage.
The GRIDMAP Consumer Protection Module (GRIDMAP-CP), the first module developed under the GRIDMAP methodology, identifies a MP of regulations to build consumer trust while promoting informed choices and a fair, secure, and inclusive market.
The evolution of markets, shaped by digitalization and globalization, directly impacts regulations, ultimately affecting the most vulnerable participants in the market ecosystem: individuals and small and medium enterprises (SMEs). Strengthening regulatory frameworks and enforcement in consumer protection can enhance consumer trust, fostering market development, productivity, innovation, and overall economic growth.
Using the GRIDMAP methodology, GRIDMAP-CP is designed to evaluate and enhance consumer policies and practices by focusing on the three key pillars: the legal framework (Pillar 1), institutional arrangements (Pillar 2), and implementation and enforcement (Pillar 3). The World Bank and its partners can use this toolkit to identify gaps and provide tailored recommendations for EMDE policymakers and Consumer Protection Authorities (CPAs). GRIDMAP-CP analyzes 232 datapoints, organized into 11 categories –specific topics of relevance– which are further broken down into 29 components. Every component is analyzed using targeted questions in the GRIDMAP diagnostic self-assessment questionnaire.
The categories and components of GRIDMAP-CP are outlined below:
Notes: a. Payments are covered at the Good Practices for Financial Consumer Protection (2017, WB-FCI); b. Privacy issues will be covered in depth in GRIDMAP Module 2 (Data market).
The aim is for countries to meet at least the Minimum Package for each Pillar and to have a balanced result among the three Pillars. While progress has been made by many countries in adopting the Minimum Package, there remain opportunities for improvement across all regions, with gaps still present in achieving the Minimum Package.
The 2024 GRIDMAP Consumer Protection Module Report (GRIDMAP-CP Report), presents the findings of a data collection effort led by the World Bank between March and June 2024, covering 53 countries across seven regions. Data was collected via an online survey and through direct engagement with CPAs. The report offers a comprehensive assessment of regulatory frameworks, highlights good practices, and identifies areas for improvement by region and income level.
Designed as a practical tool, the 2024 report supports EMDEs in strengthening their legal frameworks, institutional arrangements, and enforcement efforts to advance consumer protection in digital markets. By evaluating MP gaps across categories and pillars, it provides insights that guide policy development and implementation. Complementing the GRIDMAP-CP Report (2024), the online dashboard features interactive visualizations that help users analyze key findings and track progress over time. Together, these tools support informed decision-making and help shape future regulatory strategies and interventions.
The map below provides an overview of the countries and regions included in the GRIDMAP-CP first wave sample. Each dot represents a participating country, and the accompanying chart shows the percentage distribution across regions.
GRIDMAP – Consumer Protection Module Findings
The GRIDMAP-CP results revealed the potential for improvement in each pillar. Overall, the findings highlight disparities in the adoption of consumer protection measures across different income levels and regions, as well as the importance of addressing emerging topics such as online intermediary liability and sustainable consumption.
For Pillar 1, Legal Framework, the key findings can be summarized as follows:
Fair business and advertising practices: While most countries prohibit unfair and deceptive practices, protections for vulnerable consumers remain limited. Regulation of online endorsements is weak –only 53% prohibit fake reviews– and rules on unsolicited commercial communications are inconsistently applied, with just 70% of countries regulating them.
Appropriate disclosures: While most countries require online sellers to provide accessible information, implementation gaps remain across all income levels. Requirements for product details and clear pricing are not consistently in place, especially in low- and middle-income countries.
Transactions, privacy, and safety: Adoption of requirements for transaction records, secure payments, and personal data protection varies widely across regions. Many countries lack adequate safeguards against fraud and do not have consistent data security measures in place.
Dispute resolution and redress: Post-sale warranties and return options vary by region, with gaps more pronounced in markets with second-hand goods. Refunds are unavailable in 33% of low-income countries, and return options are limited in many middle-income economies. Online dispute resolution remains rare, especially in low-income countries where no such mechanisms exist.
Emerging topics: The liability of online intermediaries remains a complex and evolving issue requiring legal clarity to protect consumers without overburdening platforms. Provisions on sustainable consumption also vary, with opportunities to advance it through labeling and information disclosure to support informed consumer choices.
For Pillars 2 and 3, on Institutional Arrangements and Enforcement, the survey revealed that:
Institutional arrangements and enforcement powers of authorities are generally more robust in design than in actual implementation. While scores for Pillar 2 vary across the MP components, CPAs in all regions continue to face challenges in fully meeting the requirements of Pillar 3.
CPAs roles, powers, and responsibilities: Most CPAs have administrative powers to stop business misconduct, levy fines, or recover money for consumers, with variations across income levels. It is critical that enforcers have a range of options and can escalate them if a business continues to engage in unlawful conduct after initial action by a CPA.
Cooperation: Although most CPAs have cooperation agreements with other domestic or foreign regulators, the number of investigations or cases involving the sharing of evidence domestically or with foreign authorities is relatively low.
Self and co-regulation mechanisms: CPAs encourage self- and coregulation mechanisms, but most legal frameworks do not authorize such mechanisms explicitly or provide incentives to businesses that adhere to them. The authorization for and uptake of these mechanisms varies by income and legal system.
Education, awareness, and digital consumer competence: The number of education and awareness raising campaigns conducted by CPAs is lower than expected, perhaps reflecting a lack of resources.
Transparent and clear processes: Some CPAs do not publish key data on complaints, investigations, outcomes, or sanctions. Even when annual reports are available, such information is often missing.
Resources: Higher income countries invest more in staff training and performance evaluations, though career paths remain underdeveloped. Upper-middle-income countries have more staff per digital market users than high-income ones. Limited budgets, especially in low-income countries, constrain enforcement, with fewer digital tools available for case management and complaint handling.
The GRIDMAP Data Markets Module (GRIDMAP-DM) is the second module developed under the GRIDMAP methodology, focusing on establishing trusted data markets to foster private sector innovation and growth while safeguarding personal data. As data usage in transactions by individuals, firms, and governments continues to grow, the benefits for consumers increase, but so do the risks and challenges, particularly for the most vulnerable consumers in the data ecosystem. An effective data protection framework enhances trust and predictability for businesses, ensures proportional remedies, and minimizes unnecessary burdens on businesses.
GRIDMAP-DM provides policymakers and Data Protection Authorities with a standardized evaluation of the legal framework (Pillar 1), institutional arrangements (Pillar 2), and implementation and enforcement (Pillar 3). This approach helps countries identify strengths and areas for improvement, allowing them to receive tailored recommendations and support from the World Bank and its development partners. The Minimum Package (MP) of GRIDMAP-DM is based on previous work by the World Bank and core principles from existing high-level frameworks. It analyzes 301 datapoints, organized into 12 categories and 26 components, across GRIDMAP’s three pillars.
The goal is for countries to meet at least the MP for each Pillar and maintain a balanced outcome among the three Pillars. While many countries have made progress in adopting the MP, there are still opportunities for improvement across all regions. The key findings of GRIDMAP-DM are presented in the 2025 GRIDMAP Data Markets Module Report (GRIDMAP-DM Report) by the World Bank, which encompasses data from 52 countries, with a focus on Latin America and the Caribbean (LAC), Europe and Central Asia (ECA), and Sub-Saharan Africa (AFR). It also includes selected countries whose systems are pivotal for developing economies. Data was gathered between April and December 2024 through an online survey and direct engagement with Privacy and Data Protection Authorities (DPAs).
The 2025 report is designed as a practical tool to aid EMDEs in enhancing their legal frameworks, institutional arrangements, and enforcement strategies, offering insights to guide policy development and implementation. Along with the GRIDMAP-DM Report, an accompanying document of Annexes and a methodology report are available. Complementing these documents, the online dashboard presents interactive graphs that allow end-users to explore and interpret the findings of the GRIDMAP Report, providing a practical tool for monitoring progress and guiding future initiatives.
The map below provides an overview of the countries and regions included in the project’s first wave sample. Each dot represents a participating country, while the accompanying chart shows the percentage distribution across regions.
GRIDMAP – Data Markets Module Findings
The GRIDMAP-DM results reveal a significant disparity between the sophistication of legal frameworks and their effective implementation and enforcement. While many countries demonstrate strength in establishing legal frameworks, few manage to effectively enforce these rules in practice. Only seven out of 52 countries meet the minimum requirements across all pillars.
This gap highlights a critical implementation challenge: some authorities succeed in enforcement despite weaker legal frameworks, often thanks to higher staff-to-case ratios and operational agility.
Across ECA, EAP, LAC and AFR regions, 15 countries exceeded the MP for both the Legal Framework and Institutional Arrangements Pillars, indicating strong institutional foundations. Moreover, ten practices under Pillar 1 were fully adopted by all countries, laying the groundwork for more trustworthy data markets.
However, persistent weaknesses under Pillars 2 and 3, particularly in resource allocation, transparency, and cooperation continue to hinder progress. These challenges lead to three major impacts: 1) Hindered Small and Medium Enterprises (SMEs) growth and innovation, 2) Eroded trust and transparency, and 3) Ineffective implementation and enforcement and legal uncertainty.
For Pillar 1, Legal Framework, the key findings can be summarized as follows:
Adoption of Practices: All sampled countries have fully adopted practices related to the legal framework, indicating alignment with the MP threshold concerning legal provisions.
Areas for Improvement: Even high-income countries have room for improvement, particularly in facilitating compliance, adopting tailored compliance regimes for SMEs, recognizing individuals’ rights to data portability, and addressing advanced technologies like AI and dark patterns.
Cross-Border Data Transfers: While most countries allow cross-border data transfers, few provide mechanisms or guidance to support business compliance.
For Pillars 2 and 3, on Institutional Arrangements and Enforcement, the survey revealed that:
Structural Barriers: Factors such as the underlying legal system, governmental regulatory structure, and economic context affect institutional arrangements, often posing greater challenges for newer Authorities.
Resources and Capacity: While many countries have set up formal institutions, resource constraints and lack of IT tools limit their ability to enforce effectively.
Transparency Deficits: Many countries collect key enforcement data (e.g., complaints, resolutions) but fail to make it public, missing opportunities to boost accountability and public trust.
Authority Powers vs. Usage: Even where enforcement powers exist, there is a significant gap between what authorities are empowered to do and what they actually use.
Low-Cost Wins: Several improvements, such as more frequent and comprehensive publication of activity data can be implemented at minimal cost, helping to build transparency and public confidence.
This project was made possible thanks to the support of the following funds:
SFLAC Fund Spanish Fund for Latin America and the Caribbean
CJET Umbrella Trust Fund Competitiveness for Jobs and Economic Transformation
DATA Fund Digital Advisory and Trade Assistance Fund
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