美国贸易代表宣布对中国造船和海运业展开 301 条款调查

USTradeRepresentativeAnnouncesSection301InvestigationinChineseShipbuildingandMaritimeTransportation 美国贸易代表宣布对中国造船和海运业展开301条款调查 March2024 OnMarch12,2024,theOfficeoftheUSTradeRepresentative(USTR)announcedthatithadreceivedapetitionfromfivenationallaborunionsrequestingactionunderSection301oftheTradeActof1974,asamended(TradeAct),toaddressthePeople’sRepublicofChina’s(PRC)acts,policiesandpracticesinthecriticalmaritime,logisticsandshipbuildingsectors. 2024年3月12日，美国贸易代表办公室（USTR）宣布其收到来自五个全国性工会组织的一份 申请书，请求根据1974年《贸易法》（修订版）第301条，对中华人民共和国（中国）在关键海事、物流和造船领域的涉嫌行为、政策和做法采取相应措施。 ThepetitionersallegeinthisnewpetitionthatthePRChasengagedin“non-market”policiesthroughwhichithas“seizedmarketshare,suppressedpricesandcreatedaworldwidenetworkofportsandlogisticsinfrastructure thatthreatentodiscriminateagainstUSshipsandshippingcompanies,disruptsupplychainsandunderminevitalnationalsecurityinterests.”To“obtaintheeliminationofChina’spractices”and“rebuildavibrantdomesticshipbuildingindustry,”thepetitionersrequestthefollowingremedies: 申请人在这份新提交的申请书中声称，中国通过采取所谓的“非市场”政策，一直“攫取市场份额，压低价格，并在全球范围内建立港口和物流基础设施网络，因此可能歧视美国船舶和航运公司，扰乱供应链，损害重要的国家安全利益”。为了“消除中国的影响”并“重建一个充满活力的美国国内造船业” ，申请人要求采取以下救济措施： 1.AportfeeonChinese-builtshipsthatdockataUSport 对停靠美国港口的中国制造的船舶征收港口费 2.ThecreationofaShipbuildingRevitalizationFundwithproceedsfromtheportfeetosupportinvestmentsinthedomesticshipbuildingindustry’scapacity,supplychainsandworkforce 将港口费收入用于设立“造船业振兴基金”，支持对美国国内造船业产能、供应链和劳动力的投资 3.ActionstosupportstrongerdemandforUS-builtvessels 采取行动支持增加对美国制造的船舶的需求 4.ActionstoaddressChina’sdrivetodominateportandlogisticsinfrastructureplatformsandequipment 采取行动应对中国为支配港口和物流基础设施等平台和设备所作的努力 5.Negotiationswithothermajorshipbuildingcountriestoaddressanyconcernsabouttheirowngovernment supportprogramsandtocoordinatemeasurestoaddressChina’sunfairpractices 与其他船舶制造大国协商，解决其对其政府支持计划的顾虑，并协调各种措施以应对中国的不公平做法 Section301oftheTradeActauthorizesUSTRtotakeabroadarrayofactionstorespondtounfairforeigntradepracticesthatareultimatelydetermined–afteraninvestigation–toburdenorrestrictUScommerce.USTRmayself-initiateaSection301investigationorinitiateitinresponsetoapetition.Apetitionmaybefiledbyanyinterestedperson,anduponreceipt,USTRmustreviewthepetitionandmakeadeterminationwithin45daysonwhethertoinitiateaninvestigation.Ifaninvestigationislaunched,USTRmustdecidewhethertotakeresponsiveSection301actionwithin12months.Section301permitsUSTRtotakeall“appropriateandfeasibleaction”toremedythetradeharm,includingtheimpositionofdutiesandotherimportrestrictions,suchasfees. 《贸易法》第301条授权USTR采取一系列行动，针对经调查后最终确定为对美国商业造成负担或限制的不公平外国贸易行为予以回击。USTR可自行启动301条款调查，也可根据申请启动调查。任何相关人员均可提出申请，USTR在收到申请后必须在45天内进行审核，并决定是否启动调查。如启动调查，USTR 必须在12个月内决定是否根据301条款采取相应行动。301条款允许USTR采取一切“适当且可行的行动”来纠正贸易损害，包括征收关税和采取其他进口限制措施（如收费）。 Section301generallyfellintodisuseafterthelaunchoftheWorldTradeOrganization(WTO)anditsdisputesettlementmechanism–butthatdynamichaschangedinrecentyears,withPresidentTrump’sinitiationofsixnew301investigations,includingaSection301investigationonChineseintellectualpropertyrights(IPR)practicesthatresultedintheimpositionoftariffsonapproximatelyUS$370billionworthofChineseimportsintotheUS. 在世界贸易组织（WTO）及其争端解决机制启动后，301条款属于已被搁置——但近些年随着特朗普总统发起六项新的301条款调查，这种态势发生了变化。前述调查之一就是针对中国的知识产权（IPR）行为，该调查导致对价值约3700亿美元的中国输美产品征收关税。 ThenormalremedyattheendofaSection301investigationistheimpositionofsomeformoftariff(customsduty)ongoodsbeingimportedfromthetargetcountry.Theproblemwithaddressingallegedtradepractices(e.g.,subsidies)involvingshipbuildingormaritimetransportationandlogisticsservicesisthatavesselisonlypayingaportcallataUS portofentry,andthevesselitselfisneverimportedorneveractually“enters”theUSforpurposesofimpositionofduties.Assuch,thisnewSection301petitionisseekingtheimpositionofanextraordinaryandunprecedentedretaliatory tariffintheformofaportfeethatwouldbeassessedonanyChinese-builtvesselenteringaUSport.ThepetitionershaveproposedportfeesofUS$1millionperport-callasoneofthepossibleSection301remedies. 301条款调查结束后的常规救济措施是对从目标国进口的货物征收某种形式的关税。在处理涉及造船或海运以及物流服务的涉嫌贸易行为（如补贴）时，关键问题在于船只仅在美国入境港口付费停靠，就征收关税而言，船只本身并未进口或实际“进入”美国。因此，此项新提出的301条款申请所要求的是征收非同寻常且前所未有的报复性关税，采取的形式是对进入美国港口的任何中国制造的船只征收港口费。申请人提议，作为可能的301条款救济措施之一，对每次靠港征收100万美元的港口费。 Asnotedabove,USTRisrequiredtoreviewandrespondtothepetitionwithin45daysofreceipt,butitisnotrequiredtolaunchtheinvestigation.However,giventhepresident’s strongpro-unionleanings,andthefactthattheunionsalmostcertainlyconsultedwithUSTRpriortofinalizingandfiling thepetition,weexpectthatUSTRwillagreetoinitiatetheinvestigation. 如上所述，USTR必须在收到申请书后45天内进行审核并回应，但并非必然启动调查。不过，鉴于总统对工会的强烈支持，以及几乎可以料定工会在最终确定和提交申请书之前已与USTR磋商的事实，我们预计USTR将同意启动调查。 ThisSection301petitionisnotthefirsteffortbytheUSdomesticshipbuildingindustrytousethisprovisionofUStradelawtoaddressshipbuildingsubsidies.InJune1989,theShipbuildersCouncilofAmerica(SCA)petitionedUSTRunderSection301toaddressallegedsubsidiesbyWestGermany,Japan,KoreaandNorway.TheSCAultimatelywithdrewthatpetitionweeksafterfilingit.Thateffortwasfollowedinthe1990sbyamultilateralefforttoendshipbuildingsubsidiesw