US Pushes for Market Access, Pressures Korea to Weaken BSE Safeguards

US Urges South Korea to Lift Age-Based Ban on Beef Imports During Trade Policy Review

In Mar-25, as the United States (US) reviewed its trade relationships for significant imbalances, the National Cattlemen’s Beef Association (NCBA) submitted a proposal to the United States Trade Representative (USTR) urging South Korea to lift its age-based restriction on US beef imports. Specifically, the NCBA called for an end to South Korea’s ban on beef from US cattle aged 30 months and older, a policy established in 2008. This agreement was formed following a 2003 import ban imposed by South Korea after the detection of bovine spongiform encephalopathy (BSE) in a US cow. At the time, both governments viewed the age-limit agreement as a temporary measure intended to restore South Korean consumer confidence in the safety of US beef.

However, as the current US administration pursues its Make America Great Again agenda by striving to balance trade with partners and imposing tariffs where appropriate, the issue of South Korea’s age restriction on US beef imports resurfaced. The NCBA criticized the continued ban on beef from cattle aged 30 months and older as an unfair trade practice, emphasizing that the US maintains some of the world’s strictest standards and safeguards against BSE. 

The NCBA further highlighted that countries such as China, Japan, and Taiwan have already lifted similar age-based restrictions imposed following the 2003 BSE incident and argued that South Korea should do the same. The association urged the US government to initiate discussions with South Korea to remove the age limit, strengthen trade relations based on scientific principles, and ensure a level playing field for the US cattle and beef industry.

Despite US concerns that limiting beef imports to cattle aged 30 months and below is an unfair trade practice, South Korea has consistently applied this rule to other countries with histories of BSE cases. For instance, South Korea banned beef imports from 15 European Union (EU) countries in 2001 following BSE outbreaks. After prolonged negotiations with the European Commission (EC), it reopened its market to beef from Denmark and the Netherlands in 2019, and from France and Ireland in 2024, with the condition that beef must come from cattle under 30 months of age applying to all four countries. Similar age-based restrictions have also been imposed on suppliers such as Canada and the United Kingdom (UK). These measures reflect South Korea’s cautious and uniform approach to beef imports, which is largely driven by heightened consumer sensitivity to food safety, particularly in relation to BSE. This consistent application of age restrictions underscores South Korea’s effort to uphold consumer confidence and safety, regardless of the exporting country.

Food Safety Concerns and Market Pressures Fuel Resistance to Easing Beef Import Rules in South Korea

The South Korean beef industry responded strongly against the proposal to remove the 30-month age restriction. The Hanwoo Association warned that lifting this limit could increase the risk of BSE spreading, potentially harming consumption of both US and domestic Hanwoo beef. They highlighted that the US has reported seven BSE cases, including the classical case from 2003 and six atypical cases later, with the most recent in May-23. The Hanwoo Association also cautioned that removing the restriction might trigger public protests similar to those in 2008, which led to renewed negotiations and resulted in the current agreement allowing imports only from cattle under 30 months of age. Meanwhile, South Korea’s Ministry of Agriculture, Food, and Rural Affairs (MAFRA) stated that as of the end of Mar-25, it had not received any formal complaints or requests from the US regarding the 30-month age restriction, and no official discussions on the matter had taken place.

Additionally, the Hanwoo Association emphasized that removing the 30-month age restriction would further burden Hanwoo farmers already grappling with declining demand and economic challenges. The ongoing slump in Hanwoo beef consumption has pushed prices down, exacerbating financial pressures on producers. According to Tridge’s Transaction Data Service (TDS), the wholesale average price of Hanwoo beef grade 2B in Goryeong-gun was USD 7.48 per kilogram (KRW 10,241.4/kg) as of May 26, 2025, a 10.64% week-on-week (WoW) decline. Hanwoo beef prices have generally been on a downward trend over the past three years, with only temporary increases observed around the Chuseok holiday due to culturally driven demand and promotional campaigns. This persistent price drop is largely attributed to high production costs, weak consumer demand, and intense competition from lower-priced imported beef.

Figure 1. South Korea’s Hanwoo Wholesale Price Trend from 2022 to 2025

Source: Tridge TDS

Notably, South Korea’s beef imports have surged by over 100% since 2008, reaching approximately 461.03 thousand metric tons (mt) in 2024. The US and Australia dominate the import market, cumulatively accounting for more than 95% of total beef imports. Since the 2008 agreement that allowed US beef re-entry into South Korea, US beef exports to the country have soared from around 31.99 thousand mt in 2008 to 221.63 thousand mt in 2024, a significant 592.81% increase. The US overtook Australia in 2017 to become South Korea’s leading beef supplier.

Figure 2. South Korea’s Beef Import Trends from the US and Australia

This significant growth in imported beef has intensified competition with domestic Hanwoo beef, especially among budget-conscious consumers who are increasingly turning to imported alternatives due to cost advantages amid rising inflation. According to ING Think, a platform specializing in economic and financial analysis, South Korea recorded a 2.1% year-on-year (YoY) increase in inflation in Mar-25, driven by higher prices for processed foods (+3.6% YoY) and eating-out services (+3.0% YoY). These price increases were primarily due to companies passing on higher input costs to consumers.

Despite the economic pressures encouraging the consumption of cost effective imported beef, South Korean consumers remain highly sensitive to food safety. This persistent concern over safety standards continues to fuel resistance within the domestic beef industry against US calls to lift the 30-month age restriction on beef imports.

Political Instability and Trade Tensions Cloud Future of South Korea’s Beef Import Policy

Looking ahead, the US is expected to maintain pressure on South Korea to lift the 30-month age restriction on imported beef, potentially leveraging recent tariff increases as a bargaining tool. In Apr-25, the US implemented a baseline 10% hike on import tariffs and proposed even higher tariffs, targeting countries with which it holds trade deficits, including 26% on South Korea. However, these higher tariffs were temporarily suspended for 90 days beginning April 9. The US and South Korea launched trade talks on April 24, 2025, to address long-standing trade imbalances and the looming tariff standoff. These negotiations are anticipated to continue under the next South Korean administration, following a snap presidential election scheduled for June 3, 2025 due to the president’s impeachment in Apr-25. As the July 9 deadline approaches, South Korea faces increasing pressure to respond, yet its negotiating position remains uncertain due to strong resistance from the domestic beef industry.

Given that South Korea’s beef import policies are influenced by public sentiment, evident from the protests in 2008, the interim government is likely to proceed with extreme caution. Any abrupt policy change risks triggering public backlash, especially in the context of food safety concerns. With these complexities at play, the future of South Korea’s beef import regulations remains uncertain. The industry finds itself at a crossroads, awaiting clarity on whether the government will maintain the status quo or shift its stance under US pressure during this politically sensitive period.