The license requires the country to decide whether it allows planting golden rice. So I wouldn't be surprised the owner of the patents tried to use that to extract money from the countries directly when they fail to enforce it.
That works when you're a rich and powerful country, but not so much when more powerful countries are willing to inflict economic sanctions on you for disrespecting the IP of their corporations.
Well, if there's no technical way to enforce the agreement, then the agreement doesn't really exist. But if there's a way to enforce it, another part of sovereignty is that you can complain only to who wants to hear.
If not, then I would encourage developing countries to just igonore the IP rights and/or in the case that they are sterile to develop a generic.