La politica commerciale dell’UE
Sandra Gallina
Commissione europea - DG TRADE
18 giugno 2010
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19% del commercio* mondiale
di merci e servizi
–17,1% merci*
–26,1% servizi*
Primo
esportatore
Prima
Primo
importatore
potenza commerciale
L’UE nel mondo
* Le percentuali si riferiscono a importazioni+esportazioni
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Totale mondiale
Importazioni
Esportazioni
Other
23,0%
EU27
17,3%
EU27
16,3%
Other
22,9%
Candidates
1,7%
Candidates
1,2%
EFTA
3,2%
EFTA
2,4%
Russia
3,2%
Russia
2,0%
USA
16,6%
Canada
3,4% Latin America
6,8%
China
10,4%
Japan
5,7%
South Korea
3,3%
ASEAN
7,5%
USA
11,2%
China
12,8%
Canada
3,4%
Latin America
7,1%
ASEAN
8,7%
Japan
6,2%
South Korea
3,9%
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Sommario
1. Aspetti interni - Competenze e
rappresentanza internazionale
2. Aspetti esterni - Relazioni con i paesi terzi
i. Politica doganale
ii. Politica commerciale
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Trattato di Roma
Unicità della costruzione europea: Trasferimento alla
Comunità europea delle competenze nazionali
“Principio della competenza d’attribuzione”
Diritto comunitario organizzato per materia
Nell’ambito della politica commerciale* la
rappresentanza degli interessi comunitari
spetta alla Commissione europea
(Tutte le questioni di competenza comunitaria eccetto affari
economici e finanziari)
* Artt. 110 a 116 del Trattato di Roma ripresi negli Artt.131 a 135 del Trattato d’Amsterdam.
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Trattato di Maastricht
Soltanto la Comunità europea
Possiede personalità giuridica
–Parte contraente accordi
–Membro d’organizzazioni
L’UNIONE EUROPEA è il quadro istituzionale dei “tre pilastri”
introdotti dal Trattato di Maastricht e non ha personalità giuridica
Per il II pilastro PESC ed il III pilastro JAI,
l’UE è rappresentata dalla Presidenza del Consiglio
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Trattato di Nizza
“parallelismo”
Allineamento del processo decisionale e
maggioranza necessaria per i risultati dei negoziati
a quanto richiesto dal processo decisionale
applicato internamente all’Unione.
Non c’è “parallelismo” per la consultazione del PE
Esempio:
– Accordi sui servizi e/oTRIPs = maggioranza qualificata (Mercato Interno)
– Accordi che includono fiscalità = unanimità
(Art. 300 § 5 sugli accodi internazionali)
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Trattato di Lisbona
1. Personalità giuridica all’UE (Art. 47)
2. Inclusione degli investimenti nell’ambito
di competenza comunitaria
3. Estensione del voto a maggioranza
4. Inclusione del PE a pieno titolo nel
processo decisionale alla stregua del
Consiglio.
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Rappresentanza internazionale
Assenza di disposizioni nel Trattato di Roma
–
–
–
–
–
–
Art. 228 §1 del Trattato: Commissione conduce i negoziati
internazionali
Art. 229: Commissione assicura legami con le Organizzazioni
internazionali (GATT)
Modello 133
Commissione raccomanda direttive di negoziato
Consiglio autorizza
Commissione conduce negoziati e sigla risultati
Consiglio firma conclude e/o ratifica
PE
 consultato con un parere semplice
 oppure parere conforme e favorevole (veto) ad es. per accordi
d’associazione
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Competenza
“Mixité”
“Competenza condivisa”
Diversi gradi d’integrazione europea
Pratica OMC accordi misti (GATS o TRIPS)
Posizione congiunta su proposta della Commissione
=
de facto unanimità del Consiglio
Modello composizione delle dispute
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Competenza e Delegazioni esterne
Modello “composizione delle dispute”
Adattamento del modello OMC/controversie ai casi
di frizione tra uno Stato Membro ed un paese terzo
“Unità di rappresentanza”
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Relazioni con i paesi terzi
Al centro della politica di “relazioni esterne”
dell’Unione vi sono:
–
–
La politica doganale
La politica commerciale comune
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Politica doganale
1 luglio 1968: Creazione dell’Unione doganale
–
–
–
–
Territorio doganale
tariffa doganale esterna comune (Common External Tariff
– Tarif douanier extérieur/commun – Regolamento (CEE)
n. 2658/87 del Consiglio del 23 luglio 1987, relativo alla
nomenclatura tariffaria e statistica e alla tariffa doganale
comune
Definizione comune dell’origine delle merci (Reg. del
Consiglio 802/68 CEE)
Codice doganale (Reg. del Consiglio 2913/92 CEE),
Regolamento (CE) n. 450/2008 del Parlamento europeo e
del Consiglio, del 23 aprile 2008, che istituisce il codice
doganale comunitario (Codice doganale aggiornato)
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Politica doganale
La tariffa doganale comune (TDC) si fonda su:
–Nomencaltura Combinata
–TARIC (Tarif intégré des Communautés européennes)
–Sistema armonizzato (Harmonized System o Système harmonisé= HS)
Modifiche alla TDC:
– Modifiche o sospensioni autonome
– Negoziati in base all’Articolo 133
– Regimi preferenziali, preferenze generalizzate e
contingenti tariffari
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Politica commerciale
Basi negli Articoli 131 a 134 del Trattato CE
Articolo 131
Con l'instaurare un’unione doganale fra loro, gli Stati membri
intendono contribuire, secondo l'interesse comune, allo
sviluppo armonico del commercio mondiale, alla graduale
soppressione delle restrizioni agli scambi internazionali ed
alla riduzione delle barriere doganali.
La politica commerciale comune tiene conto dell'incidenza
favorevole che la soppressione dei dazi fra gli Stati membri
può esercitare sullo sviluppo delle capacità di concorrenza
delle imprese di tali Stati.
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Politica commerciale
Regolamento (CEE) n. 2603/69 del Consiglio, del 20
dicembre 1969, relativo all'instaurazione di un regime
comune applicabile alle esportazioni [Gazzetta ufficiale
L 324 del 27.12.1969].
Modificato dagli atti seguenti:
Regolamento (CEE) n. 2604/69 del Consiglio, del 20
dicembre 1969 [GU L 324 del 27.12.1969];
Regolamento (CE) n. 3285/94 del Consiglio, del 22
dicembre 1994, relativo al regime comune applicabile
alle importazioni e che abroga il regolamento (CE) n.
518/94.
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Politica commerciale
Regolamento (CE) n. 384/96 del Consiglio, del 22 dicembre
1995, relativo alla difesa contro le importazioni oggetto di
dumping da parte di paesi non membri della Comunità
europea.
Regolamento (CE) n. 2026/97 del Consiglio, del 6 ottobre
1997, relativo alla difesa contro le importazioni oggetto di
sovvenzioni provenienti da paesi non membri della Comunità
europea.
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Politica commerciale
Accordi commerciali
–Accordi Commerciali bilaterali
– Accordi di libero scambio
– Accordi d’autolimitazione dell’esportazioni
– Accordi d’associazione
– Accordi di cooperazione
–Accordi commerciali multilaterali (OMC, Doha
Development Agenda)
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EU Trade policy: features
Bilateral/
Regional
Multilateral
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DIMENSIONS
Unilateral
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EU Trade policy: features
Multilateral
Mostly implemented in the framework of the WTO aiming at
promoting market access with rules, in the context of effective
global governance.
Including the promotion of EU values :
• Environmental concerns
• Food safety
• Cultural diversity
• … and how to promote core labour standards ?
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EU Trade policy: features
Multilateral/Bilateral
EU values fit the new agenda of “TRADE AND…”
…Environment
…Labour
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EU Trade policy: features
Bilateral/regional
The EU concludes bilateral agreements with third countries and
regional areas. 121 countries potentially linked to the EU by regional
trade agreements, many negotiated in the 1990s.
EU policy rationale for
bilateral agreements
• Trade expansion and
rules-making (WTO+)
• Fostering
development and...
• … promoting regional
development
Key EU bilateral agreements include:
• Economic Partnership Agreements in
negotiation with ACP countries
(Cotonou)
• Free Trade Agreements with EFTA,
EEA, Euromed, Mercosur (in
negotiation), Mexico, South Africa...
• Customs Unions with Turkey, Andorra
and San Marino
• Partnership and Cooperation
Agreements with Russia and Ukraine
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EU Trade policy: features
Unilateral
The EU implements unilateral measures as an additional trade policy
instrument in the interests of development and/or political stability in
line with the Union’s key political priorities:
General System of
Preferences (GSP): the classic
instrument for fostering
development is by granting tariff
preferences. Grants products
imported from GSP beneficiary
countries either duty-free
access or a tariff reduction.
“Everything But Arms” initiative
(EBA): a special GSP
arrangement for the least
developed countries. Grants
duty-free access to imports of all
products from LDCs without any
quantitative restrictions (except to
arms and munitions).
Asymmetrical preferences e.g.
for the Balkans and Moldova, with
the aim of ensuring peace,
stability, freedom and economic
prosperity in the region.
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EU Trade policy: features
Key Facts on GSP:
–178 developing countries and territories are beneficiaries of the EU’s GSP.
–In 2003, EU imports benefiting from GSP preferences amounted to €50 billion.
Bangladesh leading beneficiary country followed by China, Pakistan, Brazil,
Malaysia and India
–The 49 Least Developed Countries (EBA - "Everything But Arms") benefit from
duty-free and quota–free access for practically all exports of originating products to
the EU for an unlimited period of time.
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EU Trade policy: features
New GSP system 2006-2015 : simplifies graduation
mechanism and reduces the system to 3 schemes
• General scheme: increase of product coverage from 6900 to
7200 (mainly agriculture and fishery sector of interest for
developing countries).
• Special scheme for Least Developed Countries: Everything But
Arms.
• New special GSP+ for vulnerable countries = duty free on 7200
products if the country meets criteria :
–
–
Ratification and implementation of 27 key international conventions
–
Few benefits under the GSP
A poorly diversified economy.
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The EU Policy:
How it works
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EU Trade policy - How it works
Historic development
From tariffs and
quotas...
… to “behind the
border” issues
The new shape of trade
policy
Developed from trade
liberalisation in goods…
… to services and rules on
investment, intellectual
property, public
procurement
Evolution reflected in the Treaty
of Nice (2001)
Extended the EU trade
competence to services and
commercial aspects of intellectual
property rights with qualified
majority voting
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EU Trade policy - How it works
How it works NOW
The EC Treaty establishes the overall aims and
objectives of EU trade policy:
Article 2 sets the general aims – including to promote
the development of economic activities, high employment
and competitiveness, and environmental protection.
Articles 131 and 133 explain the way the common commercial
policy shall operate in principle – “to contribute, in the common
interest, to the harmonious development of world trade, the
progressive abolition of restrictions on international trade and the
lowering of customs barriers”, instruments and scope.” Article 133
sets out the scope, instruments and decision-making procedures.
Article 300 establishes the current inter-institutional procedure for
concluding international agreements – principally by the Council, not
legally obliged to consult the European Parliament on trade agreements,
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but consultations do, however, take place.
EU Trade policy - How it works
How it works NOW
Article 133 of the EC Treaty provides in more detail for
the common commercial policy
Rests on:
• Shared, uniform concept
of policy
• A decision-making
process based on a
mixture of ‘exclusive and
shared competences’
Comprises:
• Trade in goods, services
and trade-related aspects
of intellectual property
rights
• Special provisions for
specific fields (e.g.
audiovisual, cultural, educational,
social and health services)
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EU Trade policy - How it works
How it worked
The negotiating process
The Commission is the negotiator
• On behalf of the 27 Member States
The Council is the decision maker
• Mandate = determined by the Council on the basis of a
Commission proposal
• The Commission negotiates on the basis of this mandate
• The Council approves the result of the negotiation (generally by
qualified majority)
The European Parliament
• Is informed by the Commission of trade policy developments
• Gives “assent” on major treaty ratifications (covering more than
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trade)
EU Trade policy - How it works
EP to be
informed of
negotiations like
Member States
To extend the
scope of trade
policy to all
foreign direct
investment
PROPOSALS IN
THE EU
CONSTITUTION
To increase parliamentary
control: co-decision for all
autonomous acts of
legislative nature, assent
for major trade agreements
Further
extension of
qualified
majority
voting for
trade
agreements
31
EU Trade policy - How it works
The trade defence instruments
“Defensive” instruments to ensure fair trade and defend the interests of
European companies…
... have been designed in line with specific WTO agreements
recognising the right of members to counter unfair practices:
Anti-dumping measures created to
counter dumping practices, the most
frequently encountered trade-distorting
practices. Dumping occurs when
manufacturers from a non-EU country
sell goods in the EU below the sales
price in their domestic market, or below
the cost of production.
Anti-subsidy measures designed to
combat subsidies, which are made
available to manufacturers by public
authorities and which can also distort
trade when they help to reduce
production costs or cut the prices of
exports to the EU unfairly.
Safeguards: A WTO member may
restrict imports of a product temporarily
if its domestic industry is seriously
injured or threatened with injury
caused by a surge in imports.
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The WTO
Context
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EU Trade policy - WTO context
Global governance & the role of the EU
Trade Pillar
Financial
Pillar
Normative
Pillar
WTO
1 state/
1 vote
EU, member
actor
Bretton
Woods,
IFIs + BIS
1 dollar/
1 vote
EU indirect role
(MS on the board)
ILO, MEAs,
WHO, FAO,
Codex
Alimentarius
ITU, WIPO...
1 state/
1 vote
key
EU member,
participant or
observer
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EU Trade policy - WTO context
The core of the multilateral rulebased system
Unique forum for trade
negotiations, rule setting, resolution
of disagreements
Objectives
– To boost
international
economic growth
– To ensure business
confidence
Core principles
– No country may apply quantitative
restrictions or similar measures
– Non-discrimination - ‘Most Favoured
Nation’ principle
Functioning
– National Treatment - no country may
discriminate between its own products and
imported products
Consensus = each
country on an equal
footing
– Transparency - all rules affecting trade must
be transparent; publication, notification,
discussion, trade policy reviews
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EU Trade policy - WTO context
Membership
– Quasi universal: 153
member countries
Enforcement controlled by
Dispute Settlement Mechanism
– Covers 95% of world
trade
– All WTO members can seek
redress
Regulatory framework
– Dispute Settlement Body (DSB)
rulings are binding
– Trade pillar of global
governance
– DSB may authorise retaliation
– Rounds and
agreements
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EU Trade policy - WTO context
The Doha Development Agenda
A round of trade negotiations launched in 2001
– To pursue market opening
– To strengthen rules, improve global governance
– To integrate developing countries in world trade
A development round
– Special and Differential Treatment
– Addressing developing countries’
concerns
– Aid for Trade
– Special measures for LDCs
Development - a key
component of the
WTO round
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EU Trade policy - WTO context
The 3 legs of the DDA
Opening markets
– Agricultural goods
– Industrial goods
– Services
EU seeks real new MA
Development
Sustainable development (to
respond to concerns of
developing countries and civil
society)
Regulatory framework
Improving existing rules (e.g. anti-dumping,
geographical indications) and creating new rules
(e.g. “trade facilitation”)
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