WTO Case DS413: Dispute on Certain Measures Affecting Electronic Payment Services (EPS) CHINA VS. UNITED STATES By: Nicole Russell, Aaron Stanley, Rebecca Toth 10/08/14 Global Services Industry Overview • US-China trade in private services in 2013 totaled $52.1B • Total U.S. service exports increased from $294B in 2003 to $682B in 2013 • US exports to China were just $5.9B in 2003 but grew to $37.8B in 2013 • Services imports = $14.3B • U.S. services trade surplus with China was $1.6B in 2003 and grew to $23.4B in 2013 10/08/14 10/08/14 Global EPS Industry Overview Additional Data that may be helpful: http://blog.unibulmerchantservices.com/tag/china-unionpay/ 10/08/14 China’s EPS Industry Overview 10/08/14 Source: McKinsey 10/08/14 The WTO Dispute • GATS = General Agreement on Trade in Services • Non-Interference in Electronic Payment Market • 7.B(d) of China's GATS Schedule • Market Access • Article XVI:1 & 2(a) of the GATS • No Monopolies, No Limits on Providers • National Treatment Commitment • Article XVII of the GATS 10/08/14 Timeline 2010 • Sept. 15: U.S. requests consultations with China 10/08/14 2011 • Feb.11: U.S. requests est. of panel • Feb.24: DSB deferred est. of panel • Mar.25: DSB est. panel • Jun.23: U.S. requests Dir-Gen determine composition of panel • Jul.4: Dir-Gen composes panel 2012 • Jan.9: Panel Chair notifies DSB unable to issue report in 6 months • May: Final Report issue date agreed to • Jul.16: panel report circulated to DSB • Aug.31: DSB adopted report • Sept.28: China intends to implement rec’s • Nov.22: China & U.S. agreed on time for China to implement 2013 • Jul.23: China claims it implemented rec’s • U.S. didn’t agree • U.S. monitored and review China’s actions. • Jul.31: Reasonable time expires • Aug.19: China & U.S. inform DSB of Agreed Procedures under Articles 21 and 22 of the DSU. Why Did the U.S. File the Dispute? • Political Motivations • Economic Motivations • To Set a Precedent 10/08/14 Political Motivations • Obama getting pressure from Congress to confront China on currency issues • • • • • • 10/08/14 Substitute for currency manipulation case Congressional hearings at the time on Chinese manipulation (filed 2 months before elections) Baucus (Finance) Grassley (Finance) Levin (Ways & Means) Political Motivations (cont.) • Obama’s 2012 Re-election bid • Obama wants to be perceived as “tough on China” vs. Romney • Special Interests: U.S. Credit Card Companies • Frustrated by lack of access to fast-growing market • Visa called for banks to stop using CUP’s network to process some international payment transactions • U.S. – China Relations • “The move comes as trade tensions b/w 2 countries are once again on the rise, with Congress holding hearings to penalize China for undervaluing RMB” (Dow Jones Newswires, 16 Sept 2010) • Filed jointly with GOES case in Sept 2010 10/08/14 Economic Motivations • Excuse to again mention Chinese currency undervaluation • In 2010, U.S. manufacturers claimed China’s currency undervalued by as much as $0.40, making Chinese goods cheaper in U.S. and U.S. goods more expensive in China (AP) • Saves 6,000 financial services industry jobs • Visa, Mastercard, American Express denied access to fastgrowing Chinese market • Estimated to be $1 Trillion • Administration devising ways to push China on currency issues • Strong testimony from Geithner 10/08/14 Setting a Precedent • Few cases against China in services sector have been brought to the WTO • 2008 U.S. filed against China restricting access for financial information service providers. The case was settled during the consultations • Canada and the EU filed similar cases afterwards, also settling during the consultation stage. • First services dispute filed against China by US • Previous cases over goods and IPR Opens the door for other countries to challenge China at WTO re services • • 3rd time China challenged over service trade issue • Could embolden countries and business groups to seek greater access 10/08/14 What Are People Saying? • Sen. Grassley, RM Senate Finance: • “China needs to stop treating U.S. EPS companies unfairly. It’s against the rules, and I’ve called on the Administration to take China to the WTO.” • USTR Ron Kirk: • “We are concerned China is breaking its trade commitments to the U.S. and WTO partners, both favoring its one state-owned financial services firm to the exclusion of American credit- and debit-card companies.” • Mastercard: • China will overtake U.S. as largest credit-card market by 2020 (Dow Jones 16 Sept 2010) • Chinese Embassy in U.S. • “China will continue to faithfully implement its WTO obligations and firmly defend its legitimate rights through the multilateral trade mechanism.” (Dow Jones 16 Sept 2010) 10/08/14 U.S. vs. China U.S. Alleges Discriminatory policies toward U.S. suppliers of EPS China’s GATS schedule includes a market access commitment that allows cross-border supply of EPS into China by foreign EPS suppliers 10/08/14 WTO & China Counter China has national treatment commitment, a market access commitment that allows foreign EPS suppliers to supply their services through commercial presence in China, so long as supplier meets certain requirements related to RMB currency business. U.S. vs. China U.S. Alleges China maintains CUP as across-the-board monopoly supplier for the processing of all domestic RMB payment card transactions 10/08/14 China Counters China says it doesn’t have monopoly WTO U.S. has insufficient evidence to claim monopoly Rejects U.S. allegation that there is an “across-the-board” monopoly, though China’s requirements that (1) all cards have the UnionPay logo and (2) that all institutions operating in China be capable of accepting those cards is not allowed under Article XVII (national treatment) 10/08/14 Panel Report Conclusions China inconsistent with its market access commitment of the GATS by granting CUP a monopoly for the clearing of these types of RMB payment card transactions. Members can’t limit number of service suppliers where market access commitments exist CUP is a monopoly supplier for the clearing of certain types of transactions involving cards issued in and/or used in China, Hong Kong, or Macao 10/08/14 Panel Report Conclusions (cont.) China modifies the conditions of competition in favor of CUP and therefore fails to provide national treatment to EPS suppliers of other Members, contrary to China’s commitments. 10/08/14 What Happened Next? Both Claim Victory! U.S. Win China Win US says win because China found to be discriminating China says because UnionPay found not to be a monopoly USTR announces WTO found that China discriminated against U.S. suppliers of EPS. MOC welcomed WTO ruling that rejecting part of U.S. claims against China’s handling of EPS. If China doesn’t comply, U.S. can implement retaliatory tariffs Little political impact in US – just 6,000 jobs Helped Obama's 'tough on China' narrative 10/08/14 U.S. accusation that CUP is only service provider in market since China has not barred foreign service providers from entering market WTO rejected U.S. view that foreign service providers can provide crossborder supplies of EPS in China. What Happened Next? (cont.) • U.S. and China didn’t challenge WTO ruling • China waived an appeal • China and CUP have to gradually open their market • The U.S. and China reported to the WTO they agreed the “reasonable period of time” for China to implement DSB recommendations was 11 months • Expired July 31, 2013 10/08/14 Current Situation • There has been little progress on Visa and MasterCard entering China’s EPS market • It will take 5 – 15 years to see the effect of the WTO recommendations • Chinese law still limits what foreign companies can do • Visa and MasterCard are now circulated in China, but are restricted to the clearance of foreign currencies • A payment card issued in China (in local currency) must be issued by UnionPay • In a report issued by UnionPay, as of 2013: • Visa is used in 25% of credit card transactions in China, MasterCard is used 17.7%, and UnionPay is used 54.1% 10/08/14 Recent Services Dispute Settlements in the WTO • DS453 – December 12, 2012 • Panama requests consultations with Argentina regarding Argentina’s restraining of trading goods and services with Panama, by implementing discriminatory and restrictive measures which affect taxes, the registration of businesses, and financial services • DS476 – April 30, 2014 • Russia requests consultations with the European Union regarding EU accusations that Russian energy companies are practicing dumping policies, and thus charging Russian firms hundreds of millions of dollars known as “energy adjustments” 10/08/14 Thank You 10/08/14