COMMITTEE ON AGRICULTURE IN SPECIAL SESSION (CoA‑SS)

30 April 2025

Oral Report by the Chairperson, Ambassador Ali Sarfraz Hussain

Introduction

1.  I would like to extend a warm welcome to all delegations attending either physically or virtually this informal open-ended meeting of the Committee on Agriculture in Special Session. This is our first informal open-ended meeting since my election as CoA-SS Chair on 1 April 2025.

2.  I would like to take this opportunity to express my heartfelt gratitude to all Members for the trust you have bestowed upon me.

3.  I will do my utmost to merit this trust. As we move ahead with our work, I will be constantly guided by the principles of respect, fairness, inclusiveness, and transparency.

4.  As indicated in my convening messages circulated on 1 and 15 April, the primary aim today is to report on the consultations I have conducted since assuming the role of Chair.

5.  In the absence of new submissions or inputs forwarded to the Secretariat prior to this meeting, I will immediately open the floor following my report to give Members the opportunity to react and exchange views on the way forward, including expectations for MC14 and possible new approaches to achieve progress aligned with our objectives.

6.  Following this meeting, we will turn to the two Dedicated Sessions on Public Stockholding for Food Security Purposes and on the Special Safeguard Mechanism, to have more focussed discussions on these topics.

Report on consultations

7.  Let me now report on my consultations.

8.  All together I have held 28 meetings with various groups and individual Members.

9.  In my message circulated on 1 April, I invited Members to respond to the following questions:

·_              Considering that we barely have one year until MC14, what can we realistically target as an outcome?

·_              In your view, how can we best organize our work taking into account the need for full transparency and inclusiveness?

10.  I also invited Members to raise any additional issue of interest to them.

Possible outcome for MC14

11.  Members acknowledge the vital importance of agriculture within the WTO considering the crucial role that a well-functioning and market-oriented agricultural trading system plays in addressing major challenges such as food insecurity, poverty alleviation and economic development.

12.  Most Members expressed concerns about the current uncertainties facing the international trading system which, in their view, made it difficult to achieve major reforms on the key pillars at MC14. Most of them opined that the agriculture negotiations cannot take place in a vacuum and have to take into account the ongoing and evolving situation.

13.  Given this context and considering the intrinsic complexities and sensitivities in the agriculture negotiations, these Members highlighted that comprehensive modalities on the topics under negotiation seem to be out of reach, at this point, for MC14.

14.  Most Members are hopeful that MC14 can still constitute a meaningful step forward, particularly for vulnerable developing countries, notably those in Africa.

15.  Achieving such an outcome is essential for reinforcing the credibility of the WTO and reaffirming its capability to effectively address challenges that are vital for people around the world.

16.  As anticipated, opinions vary among Members regarding the content of a potential outcome.

17.  Some Members highlighted the importance of learning from past experiences as we move forward, advocating for realistic targets rather than overly ambitious demands that may lead us into past pitfalls.

18.  Other Members emphasized the importance of adhering to the mandate outlined in Article 20 of the Agreement on Agriculture (AoA), advocating for a holistic approach that ensures a balanced outcome across various interests, taking into account both offensive interests and sensitivities.

19.  These Members underscored the importance of building on the substantive proposals already submitted by proponents.

20.  Several Members highlighted the ongoing joint work between the Cairns Group and the African Group as a promising example of such substantive discussions aimed at narrowing gaps. Many reaffirmed their confidence in this process as a potential pathway towards a successful outcome at MC14.

21.  I was not informed during my consultations of other similar processes currently underway among Members.

22.  Several Members identified Domestic Support as their primary priority. Some Members stressed the importance of Market Access. A couple of Members stressed the need for more discussions on export restrictions.

23.  A number of Members underscored the significance of food security and, in that regard, highlighted export restrictions. Another Member reiterated its interest in discussing trade facilitation as well as the interplay between food security and sustainable agriculture, along with transfer of technology, infrastructure, and services that support agricultural trade. Another Member stressed the importance of enhancing transparency. Some Members also recalled well-known sensitivities, including support provided under Article 6.2 of the AoA, and the provisions applicable to export restrictions.

24.  Other Members emphasized the urgent need to prioritize topics like the Permanent Solution on Public Stockholding for Food Security Purposes, the trade-related aspect of cotton, and the Special Safeguard Mechanism, in line with the mandates resulting from previous Ministerial decisions.

25.  These Members were of the view that proposals submitted by the proponents on these topics remain relevant and could serve as a starting point for quickly re-engaging in text-based negotiations.

26.  I was encouraged by the willingness of both proponents and non-proponents to engage in issue‑by-issue technical discussions to better understand the sensitivities and concerns of opposing sides. Reference was made in this context to the workshop on agriculture issues held on 26 March 2025

27.  Some Members proposed considering new approaches as a potential means of resolving the conundrum between balance across the board and prioritization of specific issues.

28.  One suggestion involved undertaking parallel thematic discussions across the board, that would allow progress on individual topics within a "single undertaking" framework ensuring that no individual outcome is implemented until an agreement is reached on all topics.

29.  Alternative approaches such as conditional entry into force, clawback or "sunset" clauses were also mentioned, as options allowing the early implementation for one topic but for a limited duration, in the absence of outcomes on the other topics.

30.  Members advocating for a balanced approach also noted that while they were opposed to a sequenced and conditional negotiation process, they remained open to discussing an early implementation timeline for priority topics.

31.  It was noted that initiating a substantive all-encompassing process across the board could provide a framework for continuing the negotiations after MC14. Ministers could take stock and endorse the progress achieved and renew the mandate to pursue the negotiations on this basis.

32.  Some other Members suggested that the starting point for the resumption of the negotiations could be one of the draft texts prepared in 2024, namely the "rainbow text" or the draft Ministerial Decision circulated by the then CoA-SS Chair in advance of MC14 or alternatively the draft General Council decision promoted by Brazil in the lead up the July 2024 General Council.

33.  Proponents of this approach emphasized that the effort invested in these draft texts should not be disregarded, whereas other Members cautioned that re-engaging on the same texts would likely not lead to any outcome, as was seen at MC13 and subsequently at the July 2024 General Council.

34.  For many Members, the primary goal for MC14 should be to reaffirm Members' commitment to the WTO and its Agreement on Agriculture. This could take the form of a high-level political declaration on agriculture or elements addressing agriculture within a broader Ministerial outcome. Various Members suggested to include in such an outcome some shared principles such as underscoring the central role of the WTO as guardian of the international trading system that had contributed to increasing prosperity and reducing food insecurity, the reaffirmation of development tenets, acknowledgement of the importance of food and livelihood security, as well as guidance for continuing negotiations post-MC14.

35.  Several Members were considering the feasibility of "short-term deliverables for development" to support vulnerable developing countries, particularly those in Africa, Least Developed Countries (LDCs) and Net Food-Importing Developing Countries (NFIDCs) in tackling food security challenges. In that regard, an outcome on the development track of cotton, enhanced transparency on export restrictions, clarity regarding changes in applied tariffs for shipments en route were highlighted.

36.  It was also recognized that the term "food security" encompasses different priorities for various Members, potentially complicating efforts to create a cohesive "food security" package. Some Members referenced the report adopted by the Committee on Agriculture regarding the emergency response to food insecurity, as established under paragraph 8 of the MC12 Declaration, as a possible framework for developing such a "food security" outcome. Finally, one Member proposed the idea of a comprehensive "LDC package" covering a range of related topics.

37.  Some Members noted that the upcoming 5-6 May General Council retreat on sustainable agriculture in the Multilateral Trading System should not interfere with the agriculture negotiations, while others suggested that it might yield valuable insights for the negotiations.

Organization of work

38.  Members stressed the crucial importance of transparency and inclusivity throughout the process, notably through open-ended meetings with the possibility of virtual participation.

39.  However, some voiced concerns about a possible series of open-ended meetings that would simply reiterate established positions, potentially undermining the overall atmosphere among Members. It was suggested that to improve the efficiency of work in CoA-SS, meetings should only be convened when there were new proposals or new developments to discuss.

40.  One Member suggested utilizing the CoA-SS meetings to contextualize negotiations within the realities of today's agricultural trade landscape, discussing the tangible impacts of various policy changes.

41.  The significance of technical work for better data interpretation and informed negotiations was underscored by some Members, with one of them noting the value of seminars and workshops featuring external experts.

42.  There was broad consensus that Chair-led small group meetings with variable composition on various topics could usefully contribute to making progress in the negotiations, provided the Chair maintains necessary transparency regarding these discussions.

43.  Several Members had reservations against engaging at this juncture in a facilitators-led topic-by-topic process. While such processes had been useful in the past, the risk was high today of wasting valuable time attempting to construct a complex framework when substantive proposals already exist on multiple topics for immediate engagement without the need for facilitators.

44.  Several members underlined the urgency of rebuilding trust within the Membership. One Member noted that negotiations should cautiously progress at the outset to establish credibility and trust before accelerating to foster a genuine sense of urgency and ownership as we approach the Ministerial Conference.

45.  A few Members noted that the Chair could draw inspiration from the fisheries negotiations or interests-based DSB negotiation processes to creatively structure the negotiations framework going forward. Several Members highlighted the importance of the leadership role by the Chair in the process.

46.  While political leadership is essential for progress, involving Ministers in a mini-ministerial format at this stage was deemed premature by several Members.

47.  Several Members stressed that work can be progressed using text-based negotiations in the CoA-SS as soon as possible. Some of them suggested the Chair should consider introducing a preliminary text sooner to initiate this process.

48.  A majority of the Members acknowledged that proponents should take the lead driving the negotiations on their respective topics of interest in the coming weeks, assuming responsibility for engaging with other Members to bridge differences. The Chair could play a significant role in facilitating such discussions.

49.  Some Members proposed a stocktaking exercise several months before MC14 to evaluate the status of the negotiations based on progress achieved and existing contexts within and outside the WTO at that time, and set the stage for the final push toward defining the MC14 outcome.

50.  Some Members noted that a negotiation timetable with clearly defined milestones in advance would constitute a useful tool for them.

51.  Several Members underscored the necessity of finalizing or largely stabilizing a draft outcome on agriculture in Geneva in advance of the Ministerial Conference. It was also noted that the Ministerial Conference should focus on a very limited number of topics including agriculture.

52.  Past Ministerial meetings showed the inadequacy of expecting Ministers to resolve in a few days numerous issues that officials had failed to settle over several months. In such circumstances, there was a significant risk of jeopardizing the overall outcomes at MC14.

Initial Chair's take aways and views on the way forward

53.  In concluding this report, I wish to summarize some preliminary takeaways and perspectives on the way forward, based on my consultations thus far.

54.  Agriculture remains a priority for the vast majority of Members. But divergences in views continue to persist on how this shared goal can be translated into a meaningful MC14 outcome.

55.  We must learn from past lessons, particularly the lack of outcomes in the agriculture negotiations since 2017 and strive to avoid repeating previous mistakes and explore innovative approaches, while remaining cognizant of the current turbulent international context.

56.  It is important to recognize that MC14 will not be the conclusion of our efforts, but it is crucial to achieve a meaningful step forward. The credibility of the organization depends on our ability to respond to real-world challenges.

57.  So, how do we advance from here?

58.  I agree with Members who consider that proponents must take the initiative in reaching out to other Members to engage in dialogues aimed at narrowing differences.

59.  But I also believe that the non-proponents must demonstrate their willingness to engage constructively, by specifying their concerns and accepting to discuss options aimed at narrowing gaps.

60.  I have taken good note of the requests from several proponents for additional time to engage with other Members to make progress on the negotiating topics. Some Members indicated that they were working on new communications.

61.  Additionally, I appreciate that ongoing discussions between the Cairns Group and the African Group and hope that they could present some ideas for the consideration of the Membership.

62.  However, we must remain acutely aware of time constraints, as we have only a few months left before MC14.

63.  I intend to proceed as follows:

64.  Provide an opportunity to all proponents to intensify their engagement in the coming weeks to develop their ideas and foster collaboration with other Members.

65.  My role will be to support this process by facilitating discussions among various groups - both proponents and non-proponents - upon their request, while also respecting those who wish to pursue their processes independently, such as the ongoing African Group and Cairns Group discussions. I will also pursue consultations in various configurations on my own initiative.

66.  During this period, I will hold open-ended meetings of the CoA-SS, whenever needed, to ensure transparency and inclusivity, report on my activities, and allow all Members to share updates on their processes and express their views.

67.  I do not plan to initiate a facilitator-led process at this juncture; however, I remain open to initiating more technical discussions should such an approach prove necessary regarding specific issues for progress towards MC14.

68.  This phase should culminate in a stocktaking event after the summer break, possibly in late September or early October. We will collectively decide then on the most effective way forward and determine the nature of the outcome we can deliver based on our progress and the evolving context both within and outside the WTO.

69.  We would subsequently engage in the final preparations for negotiations leading up to MC14.

70.  I will listen carefully to your comments today on this proposed way forward.

71.  It is flexible and I plan in any event to keep our process adaptable to accommodate adjustments as needed based on the progress of discussions and external developments.

72.  This concludes my report.

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