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The Modernization of the EU-Mexico Global Agreement, 2000-2020

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The Modernization of the EU-Mexico Global Agreement, 2000-2020 Master’s Degree in Comparative International Relations Final Thesis Towards a new generation trade agreement: the modernization of the EU-Mexico Global Agreement, 2000-2020 Supervisor Ch. Prof. Duccio BASOSI Assistant supervisor Ch. Prof. Vanni PETTINÀ Graduand Silvia SCHIAVONI 877176 Academic Year 2019/2020 Index Abstract 1 Introduction 5 Chapter 1: The external trade policy of the EU 1) Influences on the evolution of European trade policies 10 2) The Common Commercial Policy of the EU 13 3) The Treaty of Lisbon and the new EU trade strategies 20 4) Main characteristics of FTAs/PTAs 26 5) First Generation FTAs 31 6) DCFTA 35 7) EPA 36 8) New Generation Agreements 38 9) The new generation of EU FTAs: South Korea, Japan, Singapore, Vietnam, TTIP, CETA and Mercosur 41 Chapter 2: Mexico’s external policy and its trade relations with the EU 1) History of Mexican commercial policy 53 2) The 1980s trade opening and liberalization reforms 60 3) The North America Free Trade Agreement (NAFTA) 64 4) European Union relations with Latin America 68 5) Evolution of Mexican relation with the European Union, 1900s – 1992 73 6) The framework of the 1997 Mexico-European Union Global Agreement negotiations 83 Chapter 3: Modernization of the Mexico-European Union Global Agreement 1) Analysis of the Global Agreement and the 2008 Strategic Partnership 88 2) First years of Global Agreement implementation: 2002-2006 97 3) EU-Mexico relations in the framework of the Global Agreement 2006-2012 106 4) The period 2012-2016 and the decision to modernize the Global Agreement 115 5) Global Agreement impact assessment 123 6) The Agreement in Principle and the inclusion of new elements 129 Conclusion 139 Bibliography 144 Abstract Verso la metà degli anni Novanta, mentre il Messico firmava l’Accordo nordamericano di libero commercio con i due partner principali dell’America del Nord, gli Stati Uniti e il Canada, la quota europea del mercato messicano diminuiva in maniera costante. Difatti, nonostante il trattato di cooperazione firmato dalle due parti già nel 1991, il principale sviluppo ottenuto era stato semplicemente quello di dare una maggiore istituzionalizzazione alle reciproche relazioni politiche così come aumentare le possibilità di avere momenti di discussione riguardo l’impegno sociale da intraprendere sia a livello interno che nel piano multilaterale e condividere buone pratiche per lo sviluppo nazionale, i cui risultati erano comunque stati esigui. Allo stesso tempo l’Unione Europea si stava proponendo sempre di più come principale difensore dei diritti umani e della democrazia nel piano internazionale, attraverso un approccio che differiva sostanzialmente da quello del più grande competitore nella scena economica globale, gli Stati Uniti, proprio per il maggiore interesse ad assicurare la democrazia anche attraverso la conclusione di accordi commerciali. I contatti tra il Messico e l'Unione europea sono diventati più consistenti proprio durante un periodo in cui il panorama internazionale è stato in misura sempre maggiora caratterizzato dal cosiddetto 'neo- regionalismo', iniziato alla fine degli anni '80, e da un bilateralismo rafforzato, diverso dall'ambiente multilaterale che l'UE ha sempre cercato di promuovere. Questo nuovo intorno non ha stravolto solo la politica estera Europea, ma anche quella di Paesi e entità esterne, come appunto quella dell’America Latina. Nella misura in cui la caratteristica di "non prossimità" non costituiva più un ostacolo al commercio, la rilevanza degli accordi transnazionali di libero scambio e degli accordi di partenariato è cresciuta grazie ad alcune caratteristiche che derivano dall'assenza di confini condivisi tra le parti di un trattato (come potrebbe essere l'assenza dei flussi migratori che contraddistinguono le relazioni tra gli Stati Uniti e il Messico) e dall'impatto ancora maggiore che questo tipo di trattati può avere sulla valorizzazione degli investimenti diretti esteri: alla luce di ciò potrebbe risultare più chiaro il progressivo e crescente interesse dell'Unione verso nuovi partner a livello mondiale, compresa la regione latinoamericana e i suoi singoli Paesi, i quali fino alla fine degli anni Novanta non erano mai stati considerati come una delle massime priorità della politica esterna dell'Unione. Il Messico, in particolare, occupa da sempre un ruolo peculiare tra gli altri partner nella regione dell’America Latina e Caraibi (ALC), probabilmente come conseguenza dei legami storici che uniscono il Paese con Stati Membri europei come la Spagna e il Portogallo da un lato e con la Germania e il Regno Unito dal punto di vista economico e commerciale, come anche grazie alla sua posizione centrale nell'emisfero occidentale che lo rende un ponte naturale tra il Nord America e il Sud America. Fin dall’inizio del processo di liberalizzazione economica negli anni '80, il Paese ha 1 cercato di diversificare i suoi legami internazionali per evitare di essere sotto il 'dominio' dei soli Stati Uniti e ha ritrovato nell'Unione Europea un alleato chiave sia nei forum di discussione internazionali che per promuovere un più efficace dialogo interregionale, grazie al supporto che l’UE fornisce al processo di integrazione Latino-Americano e ai progetti di cooperazione e aiuti allo sviluppo. Più specificamente, vedremo come la storia dell’apertura commerciale messicana dimostri che dall'entrata in vigore dell’Accordo nordamericano di Libero Scambio nel 1994 con gli Stati Uniti e il Canada, considerato come la “pietra miliare” per l’inizio della conclusione di una rete di accordi di libero scambio con terzi, il paese ha iniziato ad adottare un'identità 'doppia', come paese sia latinoamericano che nordamericano, cercando così di ottenere il controllo della situazione geopolitica divisa di una regione in cui gli Stati Uniti mantengono l'egemonia al nord e la Cina ha iniziato sempre più a influenzare il sud. Come conseguenza della volontà di dare un ulteriore sviluppo ai rapporti di cooperazione esistenti, nel 1997 l’Unione Europea e il Messico firmavano L’Accordo di Coordinamento Politico, Partenariato Economico e Cooperazione (Accordo Globale), il trattato commerciale transatlantico più completo e avanzato che l'UE avesse raggiunto con un paese emergente e il primo di questo genere con un paese in via di sviluppo, che ha ampliato il quadro preesistente includendo tre pilastri principali: quello politico, economico e di cooperazione. L’Accordo Globale costituisce da allora il quadro delle loro relazioni politiche ed economiche, accompagnato poi nel 2008 dalla conclusione del Partenariato Strategico, che ad oggi l’UE ha stretto con soli dieci Paesi in totale. Durante le prime fasi della negoziazione dell’Accordo Globale, alla metà degli anni ‘90, le due entità hanno mostrato posizioni e interessi differenti, le quali hanno portato alla conclusione di un trattato contenente non solo disposizioni in vista della creazione di una zona di libero commercio, ma anche una “assicurazione” democratica proprio in forma della clausola democratica o “essenziale” presente nel testo. In questo contorno risalta la peculiarità che caratterizza l’Accordo Globale: quella di includere, oltre alle questioni economiche, argomenti sul dialogo politico e la cooperazione, così come un quadro istituzionale per approfondire le relazioni bilaterali e bi-regionali, le quali costituiscono una delle principali differenze con altri accordi di libero scambio firmati dall’UE nello stesso periodo con paesi di reddito medio e medio-basso. Tracciare lo sviluppo Politica Commerciale Comune dell'Unione Europea sarà fondamentale per capire come la dialettica tra le competenze interne ed esterne dell’UE abbia influito sulla conclusione di un accordo che coinvolge una cooperazione sia politica che commerciale con un Paese terzo, e per valutare come i poteri di iniziativa esterni attribuiti alla Commissione Europea da un lato e al Parlamento Europeo dall'altro abbiano potuto effettivamente influenzare non solo l'esito dei 2 negoziati, ma anche lo sviluppo di specifici interessi reciproci. L'evoluzione dell'equilibrio istituzionale interno dei poteri deve essere ricercata assieme ai cambiamenti delle strategie di politica estera dell'UE, il più interessante e importante dei quali è stata l'adozione di “Un'Europa globale – competere nel mondo” da parte della Commissione nel 2006, che ha segnato una svolta fondamentale alla luce della presenza più consistente degli Stati Uniti in accordi commerciali bilaterali e a causa del fallimento della Ronda di Doha all’interno dell’Organizzazione Mondiale del Commercio a favore di una maggiore apertura nei confronti di tratti al di fuori dell’ambito multilaterale. Il riorientamento della sua posizione è difatti apparso evidente nella misura in cui ha effettivamente aperto le porte alla firma di accordi di libero scambio di "nuova generazione" con partner, per lo più di tipo bi-regionale, come con l'ASEAN, il Mercosur, e bilaterale come appunto con il Messico, pur continuando a promuovere discussioni multilaterali nel quadro dell'OMC. Inoltre, l'Accordo Globale e in particolare il Pilastro Commerciale che ne costituisce l'ossatura, conteneva disposizioni peculiari che rendono l'accordo importante da seguire, non solo per le mere implicazioni che ha avuto sulle relazioni tra le due parti, ma per quelle geopolitiche internazionali, come quelle che comportano un ulteriore approfondimento dei contatti tra l'UE e altri paesi o blocchi regionali latinoamericani, come potrebbe essere il caso del Mercosur e la più recente
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