G/MA/409  
 
20 April 2023  
(23-2824) Page: 1/7 
Committee on Market Access    
 
 
COMMITTEE ON MARKET ACCESS  
LESSONS LEARNED FROM THE EXPERIENCE –SHARING SESSIONS  
ON TRADE IN COVID -19 RELATED GOODS1 
1  INTRODUCTION  
1.1.  As a result of a request from Members2, the Committee on Market Access (the Committee or 
CMA) has held six experience -sharing sessions3 to explore areas or topics in relation to trade in 
COVID -19 goods within the mandate of the Committee. At each session, Members volunteered to 
share informat ion and data on their national experiences in relation to the following topics identified 
by the Committee4: 
• The definition of essential goods to combat the pandemic; that is, how Members have defined 
such lists and updated them over time;  
 
• Classificatio n of COVID -19 essential goods within the Harmonized System and challenges 
faced by Members with the tariff classification;  
 
• How Members have monitored and measured trade in COVID -19 essential goods, including 
through the creation of national tariff lines or statistical breakouts;  
 
• Sharing of Members' practices on measures aimed at easing trade in COVID -19 goods under 
the purview of the Committee, including, for example, in relation to tariff suspension, 
reduction, or elimination; and  
 
• How to improve transparency in export restrictions, as well as sharing of experiences with 
respect to the choices underpinning the use of such restrictions (for example why a certain 
type of measure was chosen, what factors determined the termination/non -renewal of 
certain measures, and whether a review of their effectiveness was undertaken).  
 
1.2.  In light of the close relationship between some of these topics with the application of the 
Harmonized System (HS), the World Customs Organization (WCO) was invited to parti cipate in the 
sessions on the classification and monitoring of trade in COVID -19 goods. At the request of Members, 
a session was also held focusing mainly on the lessons learned from the COVID -19 pandemic, which 
also involved other stakeholders .5 In addition, a dedicated session was held for the sharing of 
practices and experiences  by Least Developed  Countries (LDCs) on trade in COVID -19 related goods.  
1.3.  The following sections summarise the main lessons learned from the COVID -19 pandemic in 
relation  to trade in COVID -19 essential goods based on inputs submitted by Members during the 
 
1 This document is without prejudice to Members' rights and obligations under the WTO.  
2 See G/MA/M/76 agenda item 8.  
3 The six  experience -sharing sessions took place , respectively , on 4 March 2022 , 26 April 2022 , 18 July 
2022, 16 September 2022 , 21 November 2022 , and 24 March  2023. 
4 The topics  and format of experience -sharing sessions  were identified by Members during informal 
open-ended consultations  conducted by the Chairperson on 9 February 2023.  
5 External stakeholders invited by t he Committee in the session on lessons learned from COVID -19 
pandemic include representatives from: the O rganisation for Economic Co -operation and Development (OECD) , 
DHL and Western Union from Dominica, CEPI, and Medtronic. The recording of the session is available at: CMA 
Experience Sharing Session with External Stakeholders - YouTube . G/MA/409  
 
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  experience sharing sessions, as reflected in the summary reports6, and the information shared by 
external stakeholders. The Committee will further update this document b ased on  subsequent  inputs 
from Members.  
2  IDENTIFY  "ESSENTIAL " GOODS AND THEIR TARIFF CLASSIFICATION  
2.1.  During the initial phases of the COVID -19 pandemic, one of the first steps that several Members 
undertook was the establishment of national lists of products  that were considered to be "essential" 
in their response to the pandemic. These lists were usually established as a result of cooperation 
amongst several government agencies, as well as the private sector. The identification of essential 
goods varied from  one Member to the other and included health -related items as well as foodstuff s, 
particularly in the case of LDCs.  
2.2.  The guidance of international organizations (such as the Joint Indicative List of critical COVID -
19 vaccine inputs  developed by the WTO in collaboration with the WCO and others)  also proved 
useful in informing the approach taken by Members to identify their list of essential goods . Most of 
these national lists were published and their content was updated as the pandemic evolved.  
2.3.  Once these essential goods were identified, some Members also tried to identify their tariff 
classification - both a t the six -digit and at the national tariff line level – in order to implement 
targeted trade policy measures.  
2.4.  At the domestic  level, some Members highlighted the following practices:  
• Establish or reinforce national  cooperation  mechanisms across government agencies  with a 
view to ensuring that there is an entity  coordinating  actions of all government agencies 
involved  to avoid duplication in the identification of essential products and the national policy 
response.  
• Ensur ing the  participation and commitment o f all stakeholders , including  the private sector , 
proved  useful in the process of identifying essential  products.  
• Once the list of essential  products ha s been identified , in most cases their tariff classification 
should be determined . This may require reviewing  the domestic tariff nomenclature (either 
at national tariff line or statistical levels) to ensure that this is sufficiently precise to identify 
essential goods and allow for targeted policy measures.  
• Some Members considered that a flexibl e, non -prescriptive approach to the definition of 
essential goods, by identifying for example a non -exhaustive list of tariff codes under which 
essential goods could be classified, helped them avoid limitations related to the 
HS classification and  allow th e adoption of  target ed trade policy measures . 
• Reinforce national coordination among the trade department and the customs administration 
of Members to clarify the tariff classification of essential goods to ensure a targeted policy 
response.  
• Once the inform ation about the list of essential goods and their tariff classification  has been 
established, the information should be published as soon as possible in a way that such 
information is available early on to traders (i.e. , to minimize classification challeng es and 
smoothen importation, exportation and transit of these goods).  
• Ensure the periodic evaluation and update of national lists of essential products in order to 
provide timely information that can guide decision -making . 
 
6 The Secretariat summarized the discussions of each experience -sharing session in  
document  JOB/MA/152  and its addenda.  G/MA/409  
 
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  2.5.  At the international level , some Members  and external stakeholders  highlighted the following 
practices:  
• Members should share information  about their national lists of essential products and 
classification decisions with a view to pooling information and facilitating the establishment  
of common reference lists and their regular update.  
• A certain degree of aligned policies/practices – for example, definition of "essential" 
goods  - across Members would avoid differences in regulatory approaches and expedite 
clearance of goods.  
• Encourage Members to p rovide their national lists of essential  goods and their national 
classifications to the WTO Secretariat, including the corresponding  import data at the 
national level, to aggregate the information and allow for analysis . 
• Relevant int ernational organizations (such as the WTO, the  WCO, and the World Health 
Organization) sh ould coordinate and provide Members with timely guidance on the 
identification of essential goods and their customs classification for trade policy purposes, 
for examp le through the development of common reference list s of essential goods . 
3  IMPROVE DATA COLLECTION AND SHARING OF INFORMATION  
3.1.  Some Members were of the view that th e way in which trade data is traditionally collected and 
processed  at the national and internat ional level is not  sufficient  in supporting the adoption of trade 
policy response s amid a crisis , such as the COVID -19 pandemic . Having access to timely and detailed 
trade data is an essential element for the adoption of informed  trade policy measures . It is also key 
to understand the impact  of the pandemic  on global  supply chains of essential goods  and the effects 
that it had on industries, particularly on micro, small and medi um enterprises ( MSMEs) . 
3.2.  At the domestic  level, some Members highlighted the following practices:  
• Develop more specific and/or separate data collection systems for imports and exports of 
essential goods.  
• Introduce subdivisions in the national nomenclatures,  such as national tariff lines 
(i.e., national or regional breakouts beyond the HS six -digit level); and/or statistical codes 
(i.e. codes beyond the national tariff line level that enable customs to differentiate imports 
or exports) to better monitor trade  flows of essential goods.  
• Increase the frequency or flexibility in data collection periods.  
• Expand the u se of technology and digital solutions to improve  data collection and monitoring 
during crises.  
3.3.  At the international level , some Members highlighted th e following practices:  
• Creat e or enhanc e mechanisms to establish a dialogue amongst Members for the rapid 
exchange of data  and explore alternative methods that could be used for data collection in 
respect of trade in essential goods during emergencies.  
• Sharing of Members' information about  national  subdivisions  created specifically for tracking 
trade in essential goods.  
• Where  national subdivisions to classify essential goods in the national tariff nomenclatures  
are created by Members , whenever possible, common national breakouts  should be 
harmonized,  or product descriptions  standardized  to facilitate the aggregation of trade d ata 
at a later stage.  
• As a minimum, ensuring t imely submi ssion of  tariff data and import statistics to the  WTO's 
Integrated Database (IDB).  G/MA/409  
 
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  • On a voluntary basis, consider (i) m ore frequent and more detailed submissions of tariff and 
import data to the WTO (e.g. monthly import data and changes in applied tariffs), especially 
during crises, and/or (ii) the possibility to enter into voluntary agreements  with the 
Secretariat , in accordance with paragraph 8 of the IDB Decision (G/MA/367) , for the 
automatic trans mission of tariff and import data to the IDB.  
4  IMPROVE COORDINATION AND COOPERATION AT DIFFERENT LEVELS  
4.1.  It was pointed out that Member s were not fully prepared to combat COVID -19 and that 
nationa l, regional and  international cooperation played a key role in the pandemic response.  
4.2.  Many Members established or reinforce d interagency coordination mechanisms,  as well as 
improved dialogue with non -state actors to inform the policymaking response at each step.  Timely 
coordination among relevant government agencies  and other stakeholders was a critical component 
to keep under control  the spread of the virus.  
4.3.  Members  also considered that international organizations played a key role in supporting their 
responses to the pa ndemic and called for greater collaboration among them and for more flexibility 
in the  way in which they provide support to their membership . 
4.4.  At the domestic  level, some Members highlighted the following practices:  
• Introduc e or reinforce inte ragency policy coordination mechanisms and ensur e the existence 
of an agency/taskforce  is important  to coordinate efforts and avoid duplication.  
• Engaging  with the private sector and other stakeholders affected by the crisis is also 
considered important for the design of trade policy measures.  
4.5.  At the international level , some Members  highlighted the following practices:  
• Improve dialogue among Members in bilateral, regional or international contexts on trade -
related aspects of the emergency or crisis.  
• Governments and non -state actors should prepare and i mplement a regional or global 
response plan to pandemics and health crisis in genera l.  
• Some Members recognized that enhanced cooperation and rapid exchange of information 
among them are crucial to take informed decisions in times of crises.  
• Existing mechanisms should be used to establish a dialogue and exchange information 
amongst policy makers on the relevant issues, including in the relevant WTO bodies; 
establish new mechanisms or platforms, as necessa ry. 
4.6.  Given the nature of issues discussed in the experience sharing sessions, Members considered 
that the WTO and the WCO should strengthen their collaboration  particularly in the areas of tariff 
classification  and monitoring of cross -border trade7, with a  view to:  
• Improv ing Members' understanding of the Harmonized System and its review cycles, 
including for the submission of  possible proposals for amending the classification of essential 
goods, where necessary.  
• Collaborating on  recommendations for the establishment  of national subdivisions that could 
be used collectively by Members to improve trade monitoring in essential products  and 
facilitate capturing more granular trade data beyond the HS Subheading level.  
 
7 On 30 May 2022, the Chairperson  sent a communication,  on behalf of the Committee , to the 
Harmonized System Committee of the WCO (G/MA/406 ) to highlight the main challenges faced by WTO 
Members with respect to the classification of COVID -19 goods and propos e improvements to their classification 
in the next version of the nomenclature (HS2027). The communication also highlights the importance of 
strengthened collaboration between the two organizations.  G/MA/409  
 
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  4.7.  In addition, external stakeholders noted t hat: 
• Enhancing cooperation and coordination among various intergovernmental organizations 
would  allow to quickly identify and mitigate potential bottlenecks and facilitate the 
movement of goods.  
• Institutionalising Public -Private Partnerships to make them m ore productive and to deliver 
concrete results.  
5  UNDERSTAND TRADE -RELATED MEASURES DURING CRISES  
5.1.  Members recognized that trade played a key role in the fight against COVID -19. During the 
pandemic, and as part of their policy responses, Members have taken a number of trade -related 
measures to ensure  the health and economic security of their people . Several initiatives to facilitate 
access and affordability  of COVID -19 essential goods were also taken at the regional level , for 
example in Africa or Asia . Improv ing transparency on such measures is extremely important to 
maintain confidence in the global trading system and foster cooperation.  
5.2.  Several Members highlighted the importance of sharing information about their trade -related 
measures both through regular n otifications to the WTO or, in case important elements are not 
covered by a notification obligation, by providi ng additional information , on a voluntary basis , for 
example with respect to : the type of measures;  the rationale underpinning the introduction o f such 
measures, their extension or termination ; and information about their effectiveness.  
5.3.  With respect to trade easing  measures , some Members and external stakeholders highlighted 
the following:  
• Temporary suspension, elimination, or deferral of payment o f different types of taxes 
(e.g., customs duties, internal taxes, and other duties and charges) on essential goods , at 
the national and regional level,  contributed to reducing the cost of such goods and increasing 
access and affordability for importers, traders, and consumers.  
• Reducing tariffs  on essential goods to the extent feasible  and in some cases,  even making 
these measures permanent , may contribut e to limiting disruptions and facilitat ing supply of 
essential goods during a crisis . 
• Other  relief measures for businesse s, particularly MSMEs, such as, for example,  reducing  or 
temporarily eliminate  fees and/or cha rges on non -tariff measures  (e.g., import licence  fees), 
facilitat ing the issuance  of trade documents (e.g. certificates of origin), and allow ing 
payment flexibilit ies to business and the trading community , also contribute to better access 
to essential goods . 
• The simplification, streamlining or elimination of customs procedures and processes for 
importation of essential goods  at national /regional border posts , contributed to expediting 
trade and reducing costs.  
• Likewise, the review, simplification and removal of other burdensome administrative 
procedures can help Members expedite clearance in emergency situations, such as 
lockdowns.  
• Regular reviews of the trade easing measures that were introduced allowed some Members 
to assess their effectiveness, modi fy their scope, and assess the need to extend them.  
• Some Members were of the view that t rade easing measures should be implemented in a 
timely, transparent and efficient manner.  G/MA/409  
 
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  • Some Members sugg ested that i nformation on trade easing measures could be prov ided, on 
a voluntary basis, to the WTO for greater transparency .8 
• External stakeholders observed that w hile it is important to facilitate trade in "essential" 
goods, these goods are often manufactured with inputs  that may not be considered  as 
"essential"  during a specific situation , therefore these "non -essential" goods may not be 
covered by policy measures  from the pandemic response.  
5.4.  With respect to export restrictions , some Members highlighted the following:  
• Some Members acknowledged that export restrictions may be used as "last resort" measures 
to manage domestic supply issues in emergency situations.  
• When introduced, export restrictions should be:  
o Transparent ; the restrictions should be published promptly on a website or other official 
source and be notified rapidly to the respecti ve WTO Committees9; 
o Temporary; the restrictions should explicitly indicat e their duration and expire or be 
terminate d once the conditions no longer require them;   
o Necessary and targeted ; the restrictions should be  limited to their objective , and only 
concern those products  which are strictly necessary to achieve the objective;  
o Proportionate; the level of restrictiveness of the measure should be commensurate to  what 
is necessary to attain the specific objective . 
• LDCs were of the view  that the WTO should facilitate conversations among Members on the 
use of export prohib itions and restrictions during times of crisis which may adversely impact  
all economies, particularly the most vulnerable.  
• Exemptions and exceptions to the export restrictions should be made available and be based 
on, inter alia , the principle of internati onal solidarity, on humanitarian grounds, and special 
consideration for LDCs, particularly landlock ed LDCs,  and net -importing countries.  
• Export restrictions should include a review mechanism to continuously assess the measure 
as the emergency situation evo lves. Members should assess the effectiveness of the 
measure, explore alternative methods to manage shortages, and remove the measure once 
it is not needed. Regular engagement with all relevant stakeholders and enhanced 
interagency coordination is key to e nsuring the efficiency and effectiveness of these reviews.  
5.5.  External stakeholders highlighted that p rompt publication of trade -restrictive measures at the 
domestic level and their timely notification to the WTO is essential to keep all the actors  informed of 
the availability of certain goods and to minimize the uncertainty . 
5.6.  Bilateral and regional cooperation played a crucial role in addressing the impact of the 
pandemic on LDCs, particularly  landlock ed LDCs. Some Members, including LDCs, joined se veral 
regional initiatives , for example  in Africa or Asia,  aimed at facilitat ing trade flow s, ensuring transit 
of essential goods , and restor ing supply chain connectivity , by reducing or eliminating tariff a nd non -
tariff measures on COVID -19 essential good s. 
6  THE ROLE OF DIGI TALIZATION  
6.1.  The COVID -19 pandemic accelerated digital transformation in many Members  and sectors of 
their economies . At the same time, it also accentuated the digital divide . The international 
 
8 The Committee compiled  voluntary communications by Memb ers with unilateral trade -related 
measures aimed at easing trade in COVID -19 goods in documents G/MA/W/157  and its revisions and 
G/MA/W/168  and its revisions.  
9 The Committee compiled  export restrictions and prohibitions on COVID -19 related goods notified by 
Members pursuant to the 2012 Decision on the notification procedures for quantitative restrictions 
(G/L/59/Rev.1 ) in documents G/MA/W/157  and its revisions and G/MA/W/168  and its revisions.  G/MA/409  
 
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  community plays a key role in facilitating a d ialogue and collaboration among Members for the design 
and implement ation of  global rules for a more inclusive digitalization.  
6.2.  Members highlighted the following:  
• Several Members recognised that t he introduction or broader adoption of digita l solutions 
and IT tools throughout the supply chains helped economic operations to continue their 
business and g overnments to implement their procedures, in particular when lockdowns 
were introduced.  
• Some Members, notably LDCs, stated that enhanced collaboration and global dialogue are 
needed on areas related to digitalization, bridging digital divide and digital economy more 
broadly.  
 
• LDCs highlighted the importance of a conducive multilateral trade framework for the 
promotion of digital in clusion, through initiatives like the WTO Information Technology 
Agreement (ITA) which could help develop the ICT sector and achieve LDCs' digital economy 
and digital transformation agendas.  
• LDCs highlighted that digital connectivity shall be accessed by a ll. Access to digital devices 
and connectivity tools allows economic operators to continue to carry out business through 
e-commerce, even during lockdown s. 
7  ENHANCE  TRANSPARENCY AND EXPERIENCE -SHARING AT THE WTO  
7.1.  Transparency is one of the main pillars of th e WTO and Members recognized that this is even 
more important during crises. To better understand the impact and implications of COVID -19 
pandemic on international trade, several Members stressed the importance of sharing information 
and experiences among them with a view to identify ing common issues and solutions to respond to 
this and future emergencies . 
7.2.  Some Members  and external stakeholders  identified  concrete future actions that could be taken 
in the context of the WTO, and more specifically within  the context of  the Committee on Market 
Access:  
• Encourage Members to continue sharing information on trade measures related to the 
pandemic within the mandate of the Committee.  
• Enhance transparency on emergency trade policy measures, including by voluntarily 
submitting additional and more frequent information beyond the regular notification 
requirements.  
• Holding thematic sessions and inviting experts from relevant international organizations  on 
specific  trade -related measures of interest to the Committee.  
• Engage all relevant stakeholders,  including the private sector, academia, and civil society,  
affected by trade in COVID -19 goods in the discussions in order to reflect their inputs in the 
work of the Co mmittee.  
• Organise experience sharing sessions so Members can better understand the decisions taken 
at the national level, as well as the challenges faced in times of emergency. To the extent 
possible, try to identify lessons learned so they can be applied for future emergencies or 
crises.  
7.3.  External  stakeholders also mentioned the importance of building capacity (skills, know -how, 
sharing of experiences) of public and private sectors to improve resilience and be better prepare d 
to respond to fut ure crises . 
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