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《实施卫生与植物卫生措施协定》研究
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摘要
当关贸总协定(GATT)逐渐融入乌拉圭回合最后文件而迎来世界贸易组织(WTO)的诞生之际,世界贸易关系发生了很大的变化。伴随这一变化,出现了几个旨在减少贸易限制措施的全新条约,《实施卫生与植物卫生措施协定》(SPS协定)便是其中之一。该协定制定了一项激进的制度来规范各WTO成员的国内措施。与GATT不同的是,SPS协定能够和WTO一道规定出一整套指示性的规则,有约束力的争端解决机制和有关报复的规定。
     各国为保护本国公共健康常常制定一些严格的食品和动植物产品进口的检疫规则和程序——卫生与植物卫生措施(SPS措施)。维持SPS措施对防止因毁灭性有机体的进入而可能给国内农业和自然生态平衡造成的严重危害具有合法利益,然而SPS措施具有实施会增加进口产品成本,甚至在某些情况下完全禁止进口的特点,因而很容易被贸易保护主所滥用。由于各国在政治、经济上存在彼此独立的利益,所以有理由相信要彻底根除贸易保护主义绝非易事。事实上,国内政策总是倾向于不断地发明新的贸易壁垒。一国政府可能受到诱惑或迫于压力而实施一些过分严格的SPS措施,要么毫无理由地禁止进口,要么故意大大增加进口农产品的成本,使其几乎等于禁止进口。
     由于GATT使关税和配额得到了降低和消除,因而SPS措施这种更加净化的手段就经常被引入来对国内产业实施保护,逐渐成为国际贸易纷争的新热点。显然,要是进口国都“自由地”制定这样的SPS措施来调整进口产品,那么各国国内SPS法律制度的不一致必将导致冲突进而扭曲贸易,并最终成为对国际贸易自由发展的阻碍。
     SPS协定为规范各国可能对SPS措施的滥用迈出了重要的一步。但是,在实践中也存在一些问题。主要集中在协定的抽象规定如何才能成为明确的、可预见的和可操作的具体规定。科学根据是WTO成员选择来区分正常的SPS措施和贸易保护主义的主要标准。科学使用数量方法分析风险,然而它却并不能决定一个社会所能承受的风险是什么。虽然科学原理培育了国内SPS措施的合法性,但是科学和政策之间却是一个复杂的关系。
     本文首先对SPS协定的规则展开研究,它也是整个研究的重要起点。SPS协定的产生经历了漫长的历程,是GATT各成员意识到有必要为维护关
    
    税减让的谈判成果而规范各国的SPS措施,以免被滥用于贸易保护主义目
    的而逐渐达成一致的产物。协定第2、3、5条构成了核心条款,也是最难
    理解的部分。它们为各成员采行SPS措施规定了严格的纪律,要求SPS措
    施必须要有科学证据,根据国际标准制订或基于风险评估。这些重点条款
    往往还相互配合,对一些问题共同作出规定。对sPS协定与GATT1994和
     《技术贸易壁垒协定》(TBT协匀之间关系的比较研究是规则研究的重要
    组成部分。通过辨析异同,区别适用范围、援引的条件以及功能和作用,
    可以更深入地理解SPS协定。总的说来,SPS协定的规定得更加具体和严
    格。
     其次,案例研究考察了实践中的sPS协定。在SPs协定生效的前三个
    案例中,WTO专家组和上诉庭在适用协定时多次对有关条款加以解释,使
    之成为对该协定的重要法律发展,并成为事实上的判例法。这些都是规则
    研究所无法提供的,它们与规则一道共同构成了SPs协定的重要组成部分。
     复次,在规则研究和案例研究的基础上,本文对SPS协定作出了评价。
    协定第2条第2款规定的科学证据必须得到坚持,并应当成为今后分析的
    起点。协定第5条第1款的风险评估不仅仅是程序上的,而且也是实体上
    的,成员还必须证明风险评估“充分地支持或合理地保证”了其SPS措施。
    适当的保护水平这一概念十分含糊,在实践中无法掌握,在WTO制度中没
    什么意义。而且,还埋下了误解、违纪和履行困难的种子。也许它应当从
    协定中去掉。零风险和非主流科学观点虽然在理论上是可以成立的,但在
    实践中都不可行。为了保证确定性、可预见性和可操作性,未来的专家组
    和上诉庭必须对SPS协定的一些关键问题做出澄清,并制定常识指南。
     最后,笔者分析了SPS协定与入世后的中国的关系,并就我国的法律
    对策提出自己的看法。SPS协定对中国具有重要意义。它不仅有助于保护
    我国的公共健康,而且还有利于我国农产品的出口,因为我们可以充分地
    利用SPS协定的规则维护自己的合法利益。加强对SPS协定的研究可以为
    我国提供应对SPS问题的宝贵经验.我国目前的SPS法律法规建设有了很
    大进步,但仍存在一些致命缺陷。应当加强立法,促进法制统一;建立科
    学的风险评估和风险管理机制。与此同时,重视国际标准,积极参加相关
    国际组织。除此之外,还应当建立SPS问题起诉应诉的策略准备机制,制
    订相应的策略。
     总之,SPS协定处在非贸易的国内法和国际贸易规则的夹缝之中,在
    
    促进国际贸易的利益和保护公共健康之间小心翼翼地维持着一个微妙的
    平衡。协定的目的是为了管制SPS措施的滥用,来自该协定的基本义务是
    建立在科学之上。协定在协调各成员的SPS措施上迈出了重要的第一步,
    并且将SPS争议纳入了制度化和法律化的轨迹。无论协定自身,还是三个
    典型案例中专家组和上诉庭对其的适用和解释,都还存在着一些问题,需
    要在发展中去解决。
When the General Agreement on Tariffs and Trade (GATT) was merged into the Uruguay Round Final Act and the World Trade Organization (WTO) was created, the trading relationship of the world changed. With this change came several new treaties aimed at curtailing restrictive trade measures. One of them is the Agreement on the Application of Sanitary and Phtosanitary Measures (SPS Agreement), which institutes a radical new regime to address member quarantine measures. Unlike the GATT, the SPS Agreement and the WTO combine to provide prescriptive set of rules, a binding dispute resolution system, and provisions for retaliation.
    Countries often adopt some strict quarantine rules and procedures?sanitary and phtosanitary measures (SPS measures) on the import of food and animal and plant products to ensure national public health. There is a legal interest in maintaining SPS measures to prevent from the introduction of destructive organisms, which might cause serious damages to national agriculture and the balance of nature. However, the application of the SPS measures will increase the cost of the products, and even prohibit importation under certain circumstances. So they are easily misused by trade protectionism. It is believed that a complete elimination of protectionism is not easy due to independent political and economic interests among countries. As a matter of fact, national policies tend to constantly invent new barriers to trade. A government might be tempted or forced to apply some over-strict SPS measures to either prohibit importation, or deliberately add the cost of imported agricultural products and almost makes it a pr
    ohibition of importation.
    With the reduction of tariffs and elimination of quotas by GATT, other more refined measures such as SPS measures have always been
    
    
    introduced to protect national industries, which gradually become a new focus of international trade disputes. Obviously, if importing states so "freely " develop SPS measures, the inconsistence of SPS regulations of different states will lead to conflicts and distortion of trade, and finally become a barrier to the liberalization of international trade.
    Although SPS Agreement makes an important step to restrict the possible misuse of SPS measures by members, there are still some problems mainly about how to transfer the abstract provisions of the Agreement into a clear, predictable, operative and specific provisions. Scientific foundation is the main criterion chosen by WTO members to distinguish between justified SPS measures and trade protectionism. Science uses quantitative methods to analyze risk. It does not, however, decide what risk a society can accept. Though scientific principles can foster legitimacy of national 'SPS measures, the relationship between science and policy is a complex one.
    This article firstly studies the rules of SPS Agreement, which is an important start of the whole study. The development of SPS Agreement experienced a long history, when GATT members realized it necessary to regulate members' SPS measures for preserving the progress of negotiations on tariffs reduction. Article 2, 3 and 5 constitute the core of SPS Agreement, which are also the most difficult part to understand. They provide disciplines for members' SPS measures, requiring that they have sufficient scientific evidence and are based on international standards or risk assessment. Comparative study of the relationship between SPS Agreement, GATT1994 and Agreement on Technical Barriers to Trade (TBT Agreement) is an important part of rules study. To distinguish the scope of application, terms of invocation and effects helps deeper understanding of SPS Agreement, which is generally far more specific and stringent.
    
    
    
    
    Secondly, cases study examines SPS Agreement in practice. In the first three cases, the Panels and Appellate Bodies' interpretation of the articles became an important development -of the Agreement and a factual case law. It cannot be gained through rules study.
    Thirdly, this article makes a comment on SPS Agreement on the
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    5. http://www.ustr.gov/pdf/12901 report97.pdf.

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