WTO改革:美国的角色
摘要
特朗普执政以来,把WTO改革作为美国最重要的多边贸易政策议程。美方认为,WTO在争端解决机制、推进贸易谈判、发展中国家定位、规则透明度以及应对中国"不公平"贸易行为等方面均存在问题,需要进行颠覆性的"破局"改革。为此,美国希望通过多种途径,以"公平"替代"自由",不惜依据本国法律,采取极端贸易保护措施,强力推动改革,重塑美国在全球多边贸易体系的霸权地位,积极践行"美国优先"的单边主义政策。在世界处于百年未有之大变局的背景下,WTO改革面临前所未有的挑战,但也蕴含着与时俱进变革的机遇。改革已是大势所趋,但具体问题分歧大,利益碰撞加剧,各方博弈已白热化。
US President Donald Trump has priorized the WTO reform as the important multi-lateral trade policy agenda of the United States since assuming office. The US believes that problems exist in WTO in such areas as dispute settlement mechanism, promotion of trade negotiation, positioning of developing countries, rules transparency and its dealings with China's "unfair" trade practices, which requires "breakthrough" reforms. Thus, the US attempts to use various means to replace "freedom" with "fairness", even by resorting to its domestic laws and adopting extreme trade protectionist measures, in an attempt to promote a reform that would neither topple the old system nor build a new one, to reshape the US hegemonic status in the global multilateral trade system, and to actively put the unilateral strategy of "America First" and "Buy American and Hire American" to practice. In a world amid changes unseen in a hundred years, the WTO reform is confronted with unprecedented challenges, but is also brewing opportunities for reform to keep up with the times. Despite genuine goodwill from various sides, there are wide divergences on concrete problems and intensified conflicts of interest, which would inevitably lead to a fierce battle ahead.
US President Donald Trump has priorized the WTO reform as the important multi-lateral trade policy agenda of the United States since assuming office. The US believes that problems exist in WTO in such areas as dispute settlement mechanism, promotion of trade negotiation, positioning of developing countries, rules transparency and its dealings with China's "unfair" trade practices, which requires "breakthrough" reforms. Thus, the US attempts to use various means to replace "freedom" with "fairness", even by resorting to its domestic laws and adopting extreme trade protectionist measures, in an attempt to promote a reform that would neither topple the old system nor build a new one, to reshape the US hegemonic status in the global multilateral trade system, and to actively put the unilateral strategy of "America First" and "Buy American and Hire American" to practice. In a world amid changes unseen in a hundred years, the WTO reform is confronted with unprecedented challenges, but is also brewing opportunities for reform to keep up with the times. Despite genuine goodwill from various sides, there are wide divergences on concrete problems and intensified conflicts of interest, which would inevitably lead to a fierce battle ahead.
引文
[1]IMF,World Economic Outlook:Challenges to Steady Growth,October 2018,p.152,https://www.imf.org/en/Publications/WEO/Issues/2018/09/24/world-economic-outlook-october-2018.(上网时间:2019年1月15日)
[2]U.S.Congressional Budget Office,“10-Year Budget Projections,”https://www.cbo.gov/about/products/budget-economic-data#3.(上网时间:2019年1月31日)
[1]WTO,“Find Dispute Cases,”https://www.wto.org/english/tratop_e/dispu_e/find_dispu_cases_e.htm.(上网时间:2019年1月29日)
[1]USTR,2018 Trade Policy Agenda and 2017 Annual Report,March 2018,pp.22-24,https://ustr.gov/sites/default/files/files/Press/Reports/2018/AR/2018%20Annual%20Report%20FINAL.PDF.(上网时间:2019年1月26日)
[1]WTO,“Working Procedures for Appellate Review,”August 2010,https://www.wto.org/english/tratop_e/dispu_e/ab_e.htm.(上网时间:2019年1月26日)
[2]USTR,2018 Trade Policy Agenda and 2017 Annual Report,p.27.(上网时间:2019年1月26日)
[3]Hannah Monicken,“U.S.:DSU Bans Appellate Body Practice of‘Advisory Opinions’,”October 31,2018,https://insidetrade.com/daily-news/us-dsu-bans-appellate-body-practice-advisoryopinions.(上网时间:2019年1月15日)
[1]CRS,“World Trade Organization:Overview and Future Direction,”November 29,2018,p.48,https://www.everycrsreport.com/reports/R45417.html.(上网时间:2019年1月15日)
[2]WTO,“Minutes of the DSB Meeting,”October 26,2016,https://docs.wto.org/dol2fe/Pages/FE_Search/FE_S_S009-DP.aspx?language=E&CatalogueIdList=233206,233115,232524,232330,231963,231754,231034,231002,230905,230808&CurrentCatalogueIdIndex=1&FullTextHash=&HasEnglishRecord=True&HasFrenchRecord=True&HasSpanishRecord=True.(上网时间:2019年2月4日)
[1]WTO,“Least-developed Countries,”https://www.wto.org/english/thewto_e/whatis_e/tif_e/org7_e.htm.(上网时间:2019年1月28日)
[2]Robert Lighthizer,“Opening Plenary Statement at the WTO Ministerial Conference,”December11,2017,https://ustr.gov/about-us/policy-offices/press-office/press-releases/2017/december/openingplenary-statement-ustr.(上网时间:2019年1月28日)
[3]Jack Caporal,“WTO Reform:The Beginning of the End or the End of the Beginning?,”October 23,2018,https://www.csis.org/analysis/wto-reform-beginning-end-or-end-beginning.(上网时间:2019年1月31日)
[1]U.S.Congressional Research Service,“World Trade Organization:Overview and Future Direction,”November 29,2018,pp.43-44,https://www.everycrsreport.com/reports/R45417.html#Content.(上网时间:2019年1月31日)
[2]Steve Suppan,“World Trade Organization Reform:The Outlook for Shallow and Deep Change,”December 11,2018,https://www.iatp.org/blog/world-trade-organization-reform-outlook.(上网时间:2019年1月31日)
[3]中国入世承诺主要集中在八个方面:1.将工业品平均关税从17%削减至8.9%,主要农产品关税从31%削减至14%;2.将农业生产补贴限制在农业产值的8.5%以内,取消农业出口补贴;3.加入WTO三年内,要给予外国企业充分的贸易和分销权(部分特定的农产品、矿物、燃料除外);4.向所有WTO成员提供非歧视性待遇,例如在贸易方面,在华外国公司的待遇不应该比中国公司差;5.结束对在华外企的歧视性贸易政策,例如产品本地化要求、技术转让条件;6.加入后执行《与贸易有关的知识产权协定》;7.加入5年后向外国金融机构全面开放银行体系;8.准许保险和电信部门建立合资企业(允许不同程度的外资控股)。
[4]CSIS,“U.S.Trade Policy Priorities:Robert Lighthizer,United States Trade Representative,”September 18,2017,https://www.csis.org/events/us-trade-policy-priorities-robert-lighthizer-unitedstatestrade-representative.(上网时间:2019年1月20日)
[1]“At Trade Policy Review,U.S.Labels China the Epicenter of the WTO Crisis,”December19,2018,https://insidetrade.com/daily-news/trade-policy-review-us-labels-china-epicenter-wto-crisis.(上网时间:2019年1月20日)
[2]USTR,2018 Trade Policy Agenda and 2017 Annual Report,p.2.(上网时间:2019年1月26日)
[1]Brett Fortnam,“Shea:Appellate Body Reform Proposals Fail to Address U.S.Concerns,”December 12,2018,https://insidetrade.com/daily-news/shea-appellate-body-reform-proposals-failaddress-us-concerns.(上网时间:2019年1月30日)
[2]“U.S.-China Talks Seen by Some as Key to Breakthrough on WTO Reform,”December26,2018,https://insidetrade.com/daily-news/us-china-talks-seen-some-key-breakthrough-wto-reform.(上网时间:2019年1月31日)
[3]Steve Suppan,“World Trade Organization Reform:The Outlook for Shallow and Deep Change”.
[1]USTR,2018 Trade Policy Agenda and 2017 Annual Report,p.32.(上网时间:2019年1月26日)
[1]这些议题包括:解决贸易扭曲问题;设立市场经济地位标准;产业补贴与国有企业的问题;强制技术转让;数字贸易与电子商务;外国投资风险与国家安全审查机制的建立。
[2]USTR,“Joint Statement on Trilateral Meeting of the Trade Ministers of the United States,Japan and the European Union,”May 31,2018,https://ustr.gov/about-us/policy-offices/press-office/press-releases/2018/may/joint-statement-trilateral-meeting.(上网时间:2019年1月30日)
[3]USTR,“Joint Statement on Trilateral Meeting of the Trade Ministers of the United States,Japan and the European Union,”September 25,2018,https://ustr.gov/about-us/policy-offices/pressoffice/press-releases/2018/september/joint-statement-trilateral.(上网时间:2019年1月30日)
[1]USTR,“Joint Statement on Trilateral Meeting of the Trade Ministers of the United States,Japan and the European Union,”September 25,2018.
[2]USTR,“Joint Statement on Trilateral Meeting of the Trade Ministers of the United States,Japan and the European Union,”May 31,2018.
[1]USTR,“Findings of the Investigation into China’s Acts,Policies and Practices Related to Technology Transfer,Intellectual Property and Innovation under Section 301 of the Trade Act of1974,”March 22,2018,https://ustr.gov/sites/default/files/Section%20301%20FINAL.PDF.(上网时间:2018年12月23日)
[2]USTR,“Statement Regarding the United States Delegation to China,”January 4,2019,https://ustr.gov/about-us/policy-offices/press-office/press-releases/2019/january/statement-regardingunited-states.(上网时间:2019年1月31日)
[1]The White House,“Statement of the United States Regarding China Talks,”January 31,2019,https://www.whitehouse.gov/briefings-statements/statement-united-states-regarding-chinatalks/.(上网时间:2019年2月3日)
[2]U.S.Congressional Budget Office,“10-Year Budget Projections,”https://www.cbo.gov/about/products/budget-economic-data#3.(上网时间:2019年1月31日)
[1]WTO,“Find Dispute Cases,”https://www.wto.org/english/tratop_e/dispu_e/find_dispu_cases_e.htm.(上网时间:2019年1月29日)
[1]USTR,2018 Trade Policy Agenda and 2017 Annual Report,March 2018,pp.22-24,https://ustr.gov/sites/default/files/files/Press/Reports/2018/AR/2018%20Annual%20Report%20FINAL.PDF.(上网时间:2019年1月26日)
[1]WTO,“Working Procedures for Appellate Review,”August 2010,https://www.wto.org/english/tratop_e/dispu_e/ab_e.htm.(上网时间:2019年1月26日)
[2]USTR,2018 Trade Policy Agenda and 2017 Annual Report,p.27.(上网时间:2019年1月26日)
[3]Hannah Monicken,“U.S.:DSU Bans Appellate Body Practice of‘Advisory Opinions’,”October 31,2018,https://insidetrade.com/daily-news/us-dsu-bans-appellate-body-practice-advisoryopinions.(上网时间:2019年1月15日)
[1]CRS,“World Trade Organization:Overview and Future Direction,”November 29,2018,p.48,https://www.everycrsreport.com/reports/R45417.html.(上网时间:2019年1月15日)
[2]WTO,“Minutes of the DSB Meeting,”October 26,2016,https://docs.wto.org/dol2fe/Pages/FE_Search/FE_S_S009-DP.aspx?language=E&CatalogueIdList=233206,233115,232524,232330,231963,231754,231034,231002,230905,230808&CurrentCatalogueIdIndex=1&FullTextHash=&HasEnglishRecord=True&HasFrenchRecord=True&HasSpanishRecord=True.(上网时间:2019年2月4日)
[1]WTO,“Least-developed Countries,”https://www.wto.org/english/thewto_e/whatis_e/tif_e/org7_e.htm.(上网时间:2019年1月28日)
[2]Robert Lighthizer,“Opening Plenary Statement at the WTO Ministerial Conference,”December11,2017,https://ustr.gov/about-us/policy-offices/press-office/press-releases/2017/december/openingplenary-statement-ustr.(上网时间:2019年1月28日)
[3]Jack Caporal,“WTO Reform:The Beginning of the End or the End of the Beginning?,”October 23,2018,https://www.csis.org/analysis/wto-reform-beginning-end-or-end-beginning.(上网时间:2019年1月31日)
[1]U.S.Congressional Research Service,“World Trade Organization:Overview and Future Direction,”November 29,2018,pp.43-44,https://www.everycrsreport.com/reports/R45417.html#Content.(上网时间:2019年1月31日)
[2]Steve Suppan,“World Trade Organization Reform:The Outlook for Shallow and Deep Change,”December 11,2018,https://www.iatp.org/blog/world-trade-organization-reform-outlook.(上网时间:2019年1月31日)
[3]中国入世承诺主要集中在八个方面:1.将工业品平均关税从17%削减至8.9%,主要农产品关税从31%削减至14%;2.将农业生产补贴限制在农业产值的8.5%以内,取消农业出口补贴;3.加入WTO三年内,要给予外国企业充分的贸易和分销权(部分特定的农产品、矿物、燃料除外);4.向所有WTO成员提供非歧视性待遇,例如在贸易方面,在华外国公司的待遇不应该比中国公司差;5.结束对在华外企的歧视性贸易政策,例如产品本地化要求、技术转让条件;6.加入后执行《与贸易有关的知识产权协定》;7.加入5年后向外国金融机构全面开放银行体系;8.准许保险和电信部门建立合资企业(允许不同程度的外资控股)。
[4]CSIS,“U.S.Trade Policy Priorities:Robert Lighthizer,United States Trade Representative,”September 18,2017,https://www.csis.org/events/us-trade-policy-priorities-robert-lighthizer-unitedstatestrade-representative.(上网时间:2019年1月20日)
[1]“At Trade Policy Review,U.S.Labels China the Epicenter of the WTO Crisis,”December19,2018,https://insidetrade.com/daily-news/trade-policy-review-us-labels-china-epicenter-wto-crisis.(上网时间:2019年1月20日)
[2]USTR,2018 Trade Policy Agenda and 2017 Annual Report,p.2.(上网时间:2019年1月26日)
[1]Brett Fortnam,“Shea:Appellate Body Reform Proposals Fail to Address U.S.Concerns,”December 12,2018,https://insidetrade.com/daily-news/shea-appellate-body-reform-proposals-failaddress-us-concerns.(上网时间:2019年1月30日)
[2]“U.S.-China Talks Seen by Some as Key to Breakthrough on WTO Reform,”December26,2018,https://insidetrade.com/daily-news/us-china-talks-seen-some-key-breakthrough-wto-reform.(上网时间:2019年1月31日)
[3]Steve Suppan,“World Trade Organization Reform:The Outlook for Shallow and Deep Change”.
[1]USTR,2018 Trade Policy Agenda and 2017 Annual Report,p.32.(上网时间:2019年1月26日)
[1]这些议题包括:解决贸易扭曲问题;设立市场经济地位标准;产业补贴与国有企业的问题;强制技术转让;数字贸易与电子商务;外国投资风险与国家安全审查机制的建立。
[2]USTR,“Joint Statement on Trilateral Meeting of the Trade Ministers of the United States,Japan and the European Union,”May 31,2018,https://ustr.gov/about-us/policy-offices/press-office/press-releases/2018/may/joint-statement-trilateral-meeting.(上网时间:2019年1月30日)
[3]USTR,“Joint Statement on Trilateral Meeting of the Trade Ministers of the United States,Japan and the European Union,”September 25,2018,https://ustr.gov/about-us/policy-offices/pressoffice/press-releases/2018/september/joint-statement-trilateral.(上网时间:2019年1月30日)
[1]USTR,“Joint Statement on Trilateral Meeting of the Trade Ministers of the United States,Japan and the European Union,”September 25,2018.
[2]USTR,“Joint Statement on Trilateral Meeting of the Trade Ministers of the United States,Japan and the European Union,”May 31,2018.
[1]USTR,“Findings of the Investigation into China’s Acts,Policies and Practices Related to Technology Transfer,Intellectual Property and Innovation under Section 301 of the Trade Act of1974,”March 22,2018,https://ustr.gov/sites/default/files/Section%20301%20FINAL.PDF.(上网时间:2018年12月23日)
[2]USTR,“Statement Regarding the United States Delegation to China,”January 4,2019,https://ustr.gov/about-us/policy-offices/press-office/press-releases/2019/january/statement-regardingunited-states.(上网时间:2019年1月31日)
[1]The White House,“Statement of the United States Regarding China Talks,”January 31,2019,https://www.whitehouse.gov/briefings-statements/statement-united-states-regarding-chinatalks/.(上网时间:2019年2月3日)