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The United Nations Secretary-General’s High Level Panel on Freedom of Transit for Landlocked Developing Countries
United Nations Secretary-General’s High-Level Panel
Freedom of Transit for Landlocked Developing Countries
An independent, impartial and technical body examining how international law on freedom of transit is applied, and recommending how landlocked developing countries can secure unfettered, efficient and cost-effective access to and from the sea.
32
landlocked developing countries
620M+
people living in LLDCs
63%
higher trade logistics costs than coastal developing countries
1.1%
share of global merchandise exports in 2025
Source: UN-OHRLLS, 2025
Overview
A Panel born of the Awaza Programme of Action
The High-Level Panel on Freedom of Transit for Landlocked Developing Countries Panel was established by the United Nations Secretary-General pursuant to the adoption by consensus of the Awaza Programme of Action for Landlocked Developing Countries for the Decade 2024–2034 (APoA).
The Panel brings together Member States, international organizations, the private sector, academia and independent experts to “examine the application of the existing international laws and agreements, identify constraints, and make recommendations on the freedom of transit for landlocked developing countries (LLDCs) in accordance with applicable rules of international law” (APoA, para. 177).
The General Assembly established this mandate to address the longstanding concern that “limited progress has been achieved in implementing key international instruments on freedom of transit, including Part X of the United Nations Convention on the Law of the Sea, Article V of the General Agreement on Tariffs and Trade (1994), and Article 11 of the WTO Trade Facilitation Agreement. These treaties recognize the right of landlocked States to access the sea and the freedom of transit through the territory of transit States” (APoA, para. 171).
The Panel operates as an independent, impartial and technical body. Its work is grounded in existing international law and guided by the cooperative spirit and strong partnership that underpins the APoA.
What is the Awaza Programme of Action?
The United Nations framework for supporting the 32 landlocked developing countries over the decade 2024–2034, adopted by the General Assembly in December 2024. More about the Awaza Programme of Action
At a glance
- Mandated by The United Nations General Assembly
- Established by The United Nations Secretary-General
- Mandate reference Awaza Programme of Action, paras. 171 and 177
- Nature of the body Independent, impartial and technical
- Composition Member States, international organizations, private sector, academia and independent experts
- Reports to Member States, 82nd session of the General Assembly
- Technical Secretariat UN-OHRLLS
We must address both the “hardware” and “software” of connectivity. That means simplifying cross-border procedures, harmonizing standards, and strengthening legal frameworks for seamless trade and transit.
UN Secretary-General António Guterres Remarks to the Third United Nations Conference on Landlocked Developing Countries
Context
Why freedom of transit matters
Thirty-two LLDCs, home to more than 620 million people, face structural constraints arising from the absence of direct territorial access to the sea. Their trade logistics costs are around 63 per cent higher than those of coastal developing countries (UN-OHRLLS, 2025), and their share of global merchandise exports was only 1.1 per cent in 2025.
Freedom of transit is a recognized right under international law, reflected in three core instruments:
Part X
United Nations Convention on the Law of the Sea
Recognizes the right of access of landlocked States to and from the sea and their freedom of transit through transit States.
Article V
General Agreement on Tariffs and Trade (1994)
Establishes freedom of transit through the territory of each contracting party for traffic in transit.
Article 11
WTO Trade Facilitation Agreement
Sets disciplines on regulations, formalities and charges applied to traffic in transit.
However, limited progress has been achieved in implementing these core provisions, and implementation gaps persist.
APoA target
para. 171
para. 171
“achieving unfettered, efficient and cost-effective access to and from the sea by all means of transport, in accordance with applicable rules of international law”.
The appointment of the High-Level Panel on Freedom of Transit marks a significant milestone in the implementation of the Awaza Programme of Action. For the 32 landlocked developing countries, freedom of transit is not merely a transport issue. It is a development imperative. By bringing together leading expertise from across legal, trade, transport and development communities, the Panel will help identify practical and actionable solutions to ensure that landlocked developing countries can access global markets more efficiently, strengthen their resilience and accelerate progress towards sustainable development.
Ms. Rabab Fatima Under Secretary-General and High Representative for the Least Developed Countries, Landlocked Developing Countries and Small Island Developing States
Mandate
What the General Assembly asked the Panel to do
In paragraphs 171 and 177 of the Awaza Programme of Action, the General Assembly requests the Secretary-General to establish a high-level panel with a three-part mandate.
Examine
The application of existing international laws and agreements on freedom of transit.
Identify
Constraints and implementation gaps.
Recommend
Measures to achieve unfettered, efficient and cost-effective transit for LLDCs, in accordance with international law.
Outcome
The Panel will submit its final report and recommendations to Member States during the eighty-second session of the General Assembly.
First of all landlocked countries have to find strong support, and flexible support from neighbouring countries, in transit to the oceans or whatever.
UN Secretary-General Ban Ki-moon Remarks to the Second United Nations Conference on Landlocked Developing Countries
Approach
How the Panel works
The body
High-Level Panel
An independent body working from existing international law, in the cooperative spirit of the Awaza Programme of Action.
What the Panel focuses on
Structural Structural issues affecting transit
Legal Systemic interpretation of international law
Practical Practical implementation challenges
Supported by
UN Task Force
Provides coordination and institutional backing.
Group of International Experts on LLDCs
Contributes academic, practical and technical insights through seminars, roundtables, research and public events.
What governments and people don’t realize is that sometimes the collective interest – the international interest – is also the national interest.
UN Secretary-General Kofi Annan
Added value
A distinctive contribution
The High-Level Panel is the first United Nations mechanism to systematically examine the intersection of the law of the sea, international trade law, transit-related treaty frameworks and emerging digital and customs instruments that increasingly shape global trade and transport.
The Panel’s final report findings will serve as a technical reference for a long-term agenda for Member States, transit countries, regional organizations and development partners, strengthening cooperation and supporting the implementation of the Awaza Programme of Action.
Documents
Resources
Key documents on the Panel’s composition, procedures and programme will be published here as they become available.
Framework
Awaza Programme of Action 2024–2034
Reference
Terms of Reference
Reference
Rules of Procedure
Forthcoming
Background
Background Note
Forthcoming
Background
Frequently Asked Questions (FAQs)
Membership
Panel Members’ Biographies
Forthcoming
Planning
Programme of Work
Forthcoming
Planning
Timetable
Forthcoming
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