国际战略研究中心-美国对贸易与气候政策关系的看法（英）-2021.7-18页_128kb

U.S. Views on the Trade and Climate Policy Nexus Summary

Core Content

The U.S. views the intersection of trade and climate policy as critical in addressing the global climate crisis. The Biden-Harris administration has taken a proactive stance in integrating climate considerations into trade policy, emphasizing the need for international cooperation and domestic action to achieve sustainable development. However, the administration faces significant challenges in aligning its climate goals with trade interests, both domestically and internationally.

Main Views and Key Information

Domestic Climate Priorities

• Climate as a National Priority: President Biden has positioned climate change as the "number one issue facing humanity," advocating for a whole-of-government approach to address it.
• Economic Transition Concerns: There is bipartisan concern about the economic impact of the energy transition, particularly the loss of jobs in traditional fossil fuel industries and the need for retraining and support for displaced workers.
• "Justice40" Initiative: This initiative aims to ensure 40% of climate-related benefits go to disadvantaged communities, highlighting the administration's focus on environmental justice.
• Clean Energy Investment: The American Jobs Plan includes significant investments in clean energy infrastructure, such as job creation for oil and gas well plugging, and support for renewable energy development.

International Climate Leadership

• Rejoining the Paris Agreement: Biden reentered the Paris Agreement on his first day in office, signaling a renewed commitment to global climate action.
• Multilateral Engagement: The administration seeks to use trade agreements as a tool to promote higher environmental and labor standards, aiming to prevent a "race to the bottom."
• Climate-Specific Language in Trade Agreements: The administration is pushing for the inclusion of climate-related provisions in free trade agreements, though it has no immediate plans to conclude new major trade deals.

Trade Policy and Climate Objectives

• "Buy American" Policy: This policy encourages the use of domestically produced goods in federal contracts, which is seen as a way to boost U.S. manufacturing and create jobs in the clean energy sector.
• Challenges to "Buy American": The policy may conflict with WTO rules, particularly the Government Procurement Agreement (GPA), and could hinder the deployment of renewable energy products made abroad.
• Intellectual Property Adjustments: The administration may adjust IP rights under the Bayh-Dole Act to promote domestic manufacturing of green technologies, though this could raise issues with WTO subsidy rules.
• Rare-Earth Minerals and Supply Chains: The U.S. relies heavily on imports for critical minerals needed in the production of electric vehicles and renewable energy technologies, necessitating a strategic approach to ensure supply chain resilience.

Regulatory Asymmetry and Carbon Leakage

• Concerns Over Regulatory Disparities: Countries like Mexico and China have not committed to strict short-term emissions reductions, potentially leading to carbon leakage and reduced competitiveness of U.S. goods.
• Impact on U.S. Manufacturers: U.S. producers may face higher costs to meet environmental standards compared to their international counterparts, increasing political pressure to adopt a Carbon Border Adjustment Mechanism (CBAM).

Executive vs. Legislative Branches

• Executive Authority: The administration has used executive orders and regulatory tools to advance climate goals, such as stricter emissions standards and the establishment of a National Climate Task Force.
• Need for Congressional Support: While the executive branch can implement many policies, large-scale climate actions require congressional approval, particularly for federal funding and new legislation.

Trade Policy and WTO Rules

• Subsidy Classification: The WTO classifies subsidies into actionable and prohibited categories. Renewable energy subsidies are more likely to be actionable, while environmentally harmful subsidies are less so.
• U.S. and China Dynamics: China's aggressive support for green technologies, including subsidies and production incentives, contrasts with the U.S. approach, potentially increasing pressure for clearer environmental subsidy rules within the WTO.

Conclusion

The U.S. is navigating a complex landscape where climate and trade policies intersect. While the administration favors incentives over compulsory measures, it must balance domestic economic interests with global environmental responsibilities. The path to net-zero emissions involves both domestic reform and international cooperation, with significant political and economic challenges ahead.