WORLD TRADE  
ORGANIZATION  WT/L/612 
20 June 2005 
 (05-2607) 
 Original:   English 
  
 
 
CAIRO DECLARATION AND ROAD MAP ON THE DOHA WORK PROGRAMME 
 
Cairo, Egypt, 5-9 June 2005
 
 
Communication from Rwanda 
 
 The following communication, dated 16 June 2005,  is being circulated at the request of the 
Delegation of Rwanda.  
 
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CAIRO DECLARATION 
 
 
We, the Ministers of Trade of the Member Stat es of the African Union meeting in our Third 
Ordinary session in Cairo, Egypt on the 8-9 June 2005 to consider a number of issues of critical 
importance to the development of Africa, including a review of the state of play in the Doha Work 
Programme (DWP). 
 
 Recalling  the Kigali Declaration and its Annex the Kigali Consensus adopted at our 2
nd 
Ordinary session and endorsed by the AU Assembly of Heads of State and Government at its 3rd 
Ordinary session;  
 Welcoming  the adoption of the General Council Decision on 1
 August 2004 as a breakthrough 
in the WTO Members' collective efforts to br ing back on track the Doha Work Programme; 
  Reaffirming  our commitment to engage constructivel y in the preparatory process and at the 
6
th WTO Ministerial Conference in Hong Kong with a view to ensuring a successful completion of the 
DWP; 
  Concerned  that limited progress has been achieved on core elements of the development 
dimension of the DWP;  
 Reiterating  the urgency to meet the commitment of  the Doha mandate of placing the needs 
and interests of developing countries and, in partic ular least developed countries, at the heart of the 
WTO work programme;   Reaffirming  the need for the negotiations to be incl usive and transparent to ensure political 
ownership of the process and of the outcome of the negotiations; WT/L/612 
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 Convinced  that an ambitious development-centred outcome in the negotiations will engender 
a more viable, equitable and durable multilateral trading system that would contribute to the 
attainment of the Millennium Development Goals by our countries;  
 Calling  on WTO Members to demonstrate the requ isite political will to achieve progress in 
July 2005 that would lay the basis for a successful Hong Kong WTO Ministerial Conference.   Hereby adopt the Cairo Road-Map on the Doha Work Programme as an annex to this 
Declaration. 
 
 We thank the Government and the people of the Arab Republic of Egypt for the warm hospitality extended to us and for all the excellent facilities put at our disposal. 
  
Done in Cairo, Egypt on 9 June 2005   WT/L/612 
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THE CAIRO ROAD MAP ON THE DOHA WORK PROGRAMME  
 
 
AGRICULTURE 
 1. We emphasize that the modalities to be agr eed upon, should take into account the need for 
appropriate policy space that would allow African c ountries to pursue agricultural policies that are 
supportive of their development goals, poverty reduction strategi es, food security and livelihood 
concerns, while ensuring improved market access for the agricultural products of African countries, 
both in primary and processed forms.  To this end, the modalities should address as a matter of 
priority the following issues under each of the thr ee pillars of the agreement on agriculture (AOA): 
 
(I) Export competition  
 (a) Place emphasis on the need for a credible end date for the elimination of all forms of 
export subsidies on agricultural products.  Th is elimination shall be without prejudice 
to S&D treatment of NFIDCs and LDCs; 
 (b) The urgent implementation of the Marrak ech Decision on NFIDCs and LDCs and a 
clear reflection of the special and differential treatment component of any disciplines 
to be developed on export credits in accor dance with paragraph 4 of this Decision; 
 (c) Stress the need for members to fully take  into account the interests of food aid 
recipients in developing disciplines on this issue; 
(d) African countries' State Trading Enterp rises (STEs) shall be excluded from the 
application of any new disciplines on STEs; in recognition of the critical role played 
by STEs in sustaining livelihoods, food security and poverty reduction in such 
countries. 
  (II)  On Domestic Support the following are critical :  
 
(a) The formula to be agreed must result in meaningful and effective reductions in the 
subsidies granted by the major trading part ners to their farming communities.  Most 
crucially, disciplines on domestic support (DS) should not lead to "box-shifting" the subsidies; 
 
(b) African countries must be allowed to main tain policy space for the development of 
the farming communities; based on the fair a nd equitable targets of poverty reduction, 
food and livelihood security, and rural development;  
 
(c) The policy space should enable African c ountries to have adequate and timely 
resources to fulfil their essential developmental objectives.  This can be achieved 
through the S&D provisions under the domestic  support pillar, Annex 2, Article 6.2, 
de minimis and improvement of their export earnings; 
 
(d) The developed countries must engage in the  review and clarification of the green box 
criteria in a manner that will ensure that the green-box measures have no or at most 
minimal trade-distorting effects or effects on production; 
 
(e) De minimis for African countries shall be exempted from reduction commitments. 
 WT/L/612 
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  (III)  On Market Access, negotiations should ensure the following: 
 
(a) Take into account the particular pattern of trade of African countries and their 
different tariff structures; 
 
(b) Specific and concrete mechanisms and solu tions to the problems of preference 
erosion must be devised within the WTO c ontext to fully address the concerns of 
African countries in accordance with para 44 of the Framework Agreement; 
 
(c) The issue of tariff escalation must be addr essed fully in accordance with paragraph 36 
of the Framework Agreement without pr ejudice to the products benefiting from 
preferential arrangements; 
 
(d) Developed countries, and other developing countries in a position to do so, must 
provide bound duty and quota free market acc ess to agricultural products originating 
in LDCs; 
 
(e) The full operationalization of the principle of proportionality in the reduction of 
tariffs, as well as the development of meaningful modalities on Special Products (SPs) and the Special Safeguard Mechanis m (SSM).  The SSM constitutes a unique 
instrument that would respond to the c oncerns of developing countries and least 
developed countries related to food secu rity, livelihood security and rural 
development.  Modalities with respect to the designation of special products and 
treatment must be devised in a way that provides maximum flexibility to countries in 
Africa to reflect their particular domestic circumstances and development needs; 
(f) The treatment of S&D provisions in market access constitutes a sine qua non 
condition for the African countries adhering to  any consensus decision in agriculture; 
(g) The Hong Kong Ministerial Conference must deliver modalities which directly 
contribute to the sustainable  development of agriculture in Africa. 
 
BANANA 
2. We note that an arbitration procedure is going on in the WTO, initiated by non-African 
countries that are banana producers.  This procedur e, which doesn't fully associate African countries, 
may lead to an enormous loss of market shares a nd advantages hitherto enjoyed by African countries 
on traditional European markets.  As a result of th is situation, we are strongly requesting that the 
rights of African countries be preserved and their market shares be protected . 
  COTTON 
3. We note that the sub-committee created pur suant to the General Council decision of 
1
 August 2004 has commenced its work.  We urge that  the trade-related aspects of the cotton initiative 
be addressed expeditiously, ambitiously and with sp ecificity.  We also welcome the recent Appellate 
Body and Panel Decisions on cotton adopted by  the DSB on the 21 March 2005.  We endorse the 
submission of the WTO Africa Group to the sub-Co mmittee on cotton of 22 April 2005, and call upon 
our developed-member partners, as so on as possible, and no later than the 6th WTO Ministerial 
Conference, to: 
 
(a) Eliminate all export subsidies and domestic support measures on cotton; 
  WT/L/612 
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 (b) Set up an emergency support fund for African countries;  and 
 
(c) Grant bound quota- and duty-free market access for cotton and its by – products from 
African LDCs, that are cotton producers and exporters. 
 
4. Further, we urge all bilateral and multila teral donors to meet their commitment on the 
development-related aspects of the cotton initiative.  We emphasize the need for coherence between 
the trade and development-related aspects of this initiative . 
  NON-AGRICULTURAL MARKET ACCESS (NAMA)  
5. We are concerned that some of the pr oposals on the formula submitted by WTO Members 
would result in deep tariff reductions by some  African countries in comparison to developed 
countries; contrary to the principle of less than full reciprocity and S&D enshrined in the Doha 
mandate.  In addition, African countries would be adversely affected as the se proposals would result 
in erosion of their preferences.  This would undoubt edly deepen the crisis of de-industrialization and 
accentuate the unemployment and poverty crisis confron ting African countries.  In this regard, it is 
imperative to ensure that the modalities:   
(a) Identify an appropriate formula or tariff appr oach that would allow African countries to 
undertake industrial policy and diversifica tion objectives and take as priority the 
principles of non-reciprocity, Special and Differential Treatment and less than full 
reciprocity; 
 
(b) Provide policy space and flexibility that fully takes account of African countries' 
developmental, financial and industrial needs which removes the risk of de-
industrialization with its attendant nega tive consequences on poverty reduction;  
 
(c) Provide flexibilities for African countries to determine their binding coverage 
commensurate with their development objectives; 
 
(d) Do not include the sectoral initiatives because of their potential detrimental effects on 
African countries; 
 
(e) Do not link the flexibilities to the level of ambition.  The flexibilities should address 
Africa's development needs and concerns; 
 
(f) Provide for a mechanism for addressing preference erosion within the WTO; 
 
(g) Fully respect, LDCs exemption from tariff reduction commitments. 
 6. We underscore that negotiations on non-ta riff barriers should be conducted in tandem with 
those on tariff reductions in the negotiati ng group on non-agricultural market access (NAMA). 
7. We call for the conduct of studies and an a ssessment on the possible effects of modalities 
before members agree on them as mandate d by paragraph 15 of the Annex B. 
 
SERVICES 
8. We note that a few African countries have submitted initial offers in the current round of 
services negotiations.  We also note that many other African countries are facing difficulties in WT/L/612 
Page 6  
 
 submitting requests and offers.  As we endeavour to improve our participation in the services 
negotiations, we:  
(a) Request for substantial improvement in ma rket access in modes and sectors of export 
interest to African countries.  Under M ode 4, Members should make commitments 
aimed at ensuring a commercially meani ngful outcome for African countries 
particularly on sectors of importance in terms of export interest such as tourism, professional services and construction services; 
 
(b) Underscore the urgency for the Council for Trade in Services - Special Session to 
conclude the assessment exercise as soon as possible, with specific outcomes that 
would ensure appropriate adjustments in the negotiations; 
 
(c) Seek to intensify work in the rule-making area so as to restore the balance between 
the market-access and rule-making tracks.  Work on domestic regulation should be 
concluded by the Hong Kong Ministerial Conference to ensure that disciplines in 
domestic regulation enhance co mmitments undertaken by Members, particularly in 
those areas of interest to African countri es.  Furthermore Members should move from 
definitional/preliminary issues to substantive issues; 
 
(d) Call upon Members to expeditiously establish an emergency safeguard mechanism; 
 
(e) Call for the provision of increased and targeted  technical assistance to enable African 
countries to participate effectively in the request/offer phase; 
 
(f) Call for effective implementation of Article IV of the GATS in order to ensure the 
increased participation of African countries in services trade; 
 
(g) Should ensure that the Guidelines and Pr ocedures for the negotiations in services 
adopted by the Council for Trade in Serv ices on 28 March 2001 continue to remain 
the basis for the negotiations; 
 
(h) Call for the full implementation of the LDC special modalities. 
 
 
DEVELOPMENT ISSUES 
 
9. We reiterate that development remains a pr iority for Africa in the negotiations and should 
thus be reflected appropriately in the July approximation and the outcome of the Hong Kong 
Ministerial Conference.  As a cross-cutting issue, de velopment has to be explicitly incorporated in all 
areas of the negotiations.  In this regard:  
(a) Urgent attention must  be given to completing the review of all outstanding S&D 
Agreement specific proposals before adoption, implementation related issues and 
concerns and the amendment of the TRIPS Agreement to incorporate the 30 August 2003 Decision on the implementation of Paragraph 6 of the Declaration on 
TRIPS and Public Health;   
 
(b) Other key elements that address Africa's de velopment needs and concerns relating to 
enhanced technical assistance, food security, rural development, livelihood concerns, 
preferences, commodities and net food imports must be fully taken into account in the 
negotiations; 
  WT/L/612 
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 (c) Africa's liberalization efforts should be fully recognized and factored into the 
negotiations and adequate fl exibility provided to address th e continent's development 
and trade needs. 
  COMMODITIES 
 
10. We urge WTO Members to address the crisis of  instability and secular decline in commodity 
prices with the aim of attaining stable, e quitable and remunerative prices on these products. 
 
11. We welcome the launching of the Internati onal Task Force on commodities at UNCTAD and 
call on the international community to provide support for the effective operation of this Task Force.  
Africa has a key interest in this initiative in vi ew of the predominance of commodities in African 
economies.  
 
TRADE FACILITATION 
 
12. We recognize the potential benefits that w ould accrue to African countries from undertaking 
trade facilitation measures.  The critical impor tance of trade facilitation for enhancing the 
competitiveness of African economies, for promo ting intra-African trade and for harnessing the 
benefits of globalization cannot be overemphasized. 
 13. However, there are costs asso ciated with the pursuit of trade facilitation as a legitimate policy 
objective.  In this regard, we welcome the Annex "D " which stresses the need for synergy between the 
level of commitments, the cost of and the availab ility of resources to implement any possible outcome 
and the provision of financial and technical res ources for the capacity building of developing and 
least-developed countries.  These commitments must  be met in letter and spirit.    
 
14. We emphasize the need for closer collabor ation and enhanced coor dination among relevant 
international, regional and sub-re gional organizations in the delivery of technical assistance and 
capacity building support to African countries.   
 
15. In the context of the current negotiations on trade facilitation, the following should be fully 
taken into account:  
(a) Need to adhere to the mandate and scope of Annex D of the July Package; 
 
(b) S&D provisions that are precise, effective and operational; 
 
(c) The policy space and flexibility for African countries; 
 
(d) Regional efforts on trade facilitation among African countries. 
 
 
RULES  
 
16. In the negotiations on WTO Rules, the following issues are key for achieving progress: 
 
(a) The need to avoid the introduction of more complex rules and disciplines under the 
Anti-Dumping Agreement and the Agreement on Subsidies and Countervailing Measures; 
 WT/L/612 
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 (b) The provision of adequate technical assistan ce to African countries in order to enable 
them effectively enforce their rights und er the Anti-Dumping Agreement as well as 
the Agreement on Subsidies and Countervailing measures; 
 
(c) The need to address sufficiently the development dimension of these negotiations by 
ensuring that when elaborating proposals, the needs and concerns of African 
countries are reflected therein; 
 
(d) The development aspects are taken fully in to account in the negotiations aimed at 
clarifying and improving disciplines and procedures relating to regional trade 
agreements; 
 
(e) Clarification and improvement of disciplines and procedures relating to regional trade 
agreements as mandated unde r Paragraph 29 of the Doha Ministerial Declaration 
should not reopen the Enabling Clause under transparency or systemic issues in RTA 
negotiations as this would not meet  Africa's developmental needs; 
 
(f) Negotiations on systemic issues must address the principle of less than full 
reciprocity, asymmetry in market access and the development concerns of African countries entering into regional trade ag reements with developed countries under 
GATT 1994 Article XXIV and GATS Article V. 
 
 
LDCs 
 
17. We recognize the special difficulties faced by LDCs in integrating into the multilateral trading 
system and in this respect, we urge the following actions in favor of LDCs: 
 
(a)  Exemption from undertaking any reduction commitments; 
 
(b)  A moratorium by developed countries on contingency measures that include 
anti-dumping actions against African LDCs exports; 
 
(c)  Enhanced support towards improving the e xport competitiveness of LDCs including 
capacity to meet SPS and other standards; 
 
(d)  Demand driven trade-related technical assistance in all areas of the DWP negotiations 
with appropriate provisions for impl ementation and adjustment support. 
 
 TECHNICAL COOPERATION  
 
18. We reaffirm technical assistance and capacity  building as core elements of the development 
dimension of the multilateral trading system.   We  fully support the call for increased aid for trade 
proposed by the Commission for Africa.  We call on our development partners to adequately finance 
technical assistance programmes through the existin g delivery mechanisms especially the Integrated 
Framework, the JITAP and other complementary mechanisms. 
 
  WT/L/612 
 Page 9 
 
 
 WORK PROGRAMME ON SMALL ECONOMIES 
19. We call on WTO Members to fully address the specific needs and trade-related problems of 
small economies in the context of the work programme mandated by th e Doha Ministerial 
Declaration. 
 
TRADE, DEBT AND FINANCE  
 
20. We recognize the Working Group on Trade, Debt and Finance (WGTDF) as one of the concrete manifestations of the development focu s of the Doha Work Programme.  As the linkage 
between trade, debt and finance for African countries,  is at the heart of the development problematic, 
we: 
 
(a) Reiterate the importance of this working gr oup in creating the much-needed coherence 
between Trade, Debt and Finance; 
 
(b) Call upon the Working Group to immediately ma instream coordination with the Breton 
Woods Institutions so as to avoid overlaps  in the policies recommended by the World 
Bank and IMF on the one hand, and WTO rights and obligations on the other; 
 
(c) Call upon the working group to build synergies with the various WTO Committees that 
are dealing with issues that fall within the ge neral competence of this working group so as 
to ensure that tangible results ar e delivered on the coherence mandate; 
 (d) Welcome the prospects of Aid for Trade agenda which is aimed, inter alia at, addressing 
the supply side constraints and adjustment costs that African countries face, as well as meeting of standards.  However, this age nda should not operate on typical conditionality 
of the Bretton Woods Institutions;  and, 
 
(e) Recall the debt situation of several African  countries and call upon the working group to 
resolve the trade-related aspects of debt, through delivering on the coherence mandate. 
  TRADE AND TRANSFER OF TECHNOLOGY 
 
21. We call for a more focused programme in the Working Group on Trade and Transfer of 
Technology with a view to finding durable solutions to the problems associat ed with transfer of 
technology to African countries and to increase th e in-flow of appropriate technology to these 
countries. 
 
 ACCESSION 
 
22. We note that no African country has acceded to  the WTO since its establishment.  In this 
respect we: 
 
(a) Call upon all WTO Members to facilitate and accelerate the accession of African 
countries to the WTO; 
 
(b) Call upon our development partne rs to intensify the provision of technical assistance 
and capacity building support to acceding African countries at all stages of the accession process; WT/L/612 
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(c) Underscore the urgent need to effectively implement the accession guidelines for 
LDCs adopted by the General Council in December 2002;  and 
 
(d) Stress that acceding countries must neither be compelled to negotiate concessions 
going beyond generally accepted rules within  the institution nor subscribe to some 
exigencies about the clauses still under discussi on within the framework of the Doha 
Round. 
  
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