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China: a Case of 'Mercantilism' in a Backward Country? European Scientific Journal June 2014 /SPECIAL/ edition vol.1 ISSN: 1857 – 7881 (Print) e - ISSN 1857- 7431 CHINA: A CASE OF ‘MERCANTILISM’ IN A BACKWARD COUNTRY? Silvio Beretta, Giuseppe Iannini, Department of Political and Social Sciences, University of Pavia,Italy Abstract Despite being criticized for its inconsistencies, China’s mercantilism is considered a commonplace in the literature focused on Chinese economic development. This paper intends to criticize the foundations of China’s ‘monetary’ and ‘financial’ mercantilism arguing that both provide only a feeble explanation of its economic success. In particular, rather than echoing the practices of classical mercantilism, such supposed ‘mercantilist’ approach, on the contrary. Reflects the Gerschenkronian model of development, according to which the growth of the ‘backward’ countries is based massively on banks and State support. Keywords: “Mercantilism”, China, economic developement Chinese style mercantilism’ and the dispute with the United States It is frequently assumed that China applies mercantilist policies, especially in the monetary and financial sectors. This assumption seems to be supported by specific behaviours that China has adopted with varying degrees of intensity in the most recent phase of its reform era. Examples of these lines of conduct are the exchange rate policy, the control of capital flows, and certain forms of protection of the internal market which, anyway, have been diminishing in the last decade. Some of them, for instance as regards exchange rate and intellectual property, have been the object of a bitter dispute with the US and, to a lesser extent, the EU for a long time. The exchange rate issue, in particular, is extremely complex and multifaceted if one considers that it can represent a discriminating factor which may favour domestic production, or, on the contrary, it can prove irrelevant for the competitiveness of the Chinese system depending on the variables used to estimate the actual competitiveness differential. If some analysts are cautious about pointing the finger at the pegging of the Chinese currency4, the vast majority of US politicians and trade unions are not like minded. Since the beginning of the Obama administration the concerned constituencies have been increasingly criticizing China, albeit with various types of arguments. Pressures aiming at convincing China to modify its exchange rate policy to let the US manufacturing sector catch up with China on international markets typically characterise China-US relations and are consistently exerted both bilaterally (Strategic & Economic Dialogue, Joint Commission on Commerce and Trade) and multilaterally (WTO, G 20, APEC Forum). The exchange rate dispute has been lively and has involved the highest levels of the US government. Congress members have repeatedly asked the Department of the Treasury to declare China a currency manipulator. The Treasury had already proceeded in this way back in 1992 and in 1994, when China was not subject to international restrictions and would resort 4 C. Fred Bergsten, President of the Peterson Institute of International Economics, called the Chinese exchange rate policy ‘a blatant form of protectionism’ because it subsidizes imports by roughly il 20-40% of their value. This amounts to an indirect tariff on imports (Hot topics, The Chinese Exchange Rate, Essential Reading from the Institute, http://www.iie.com/research/topics/hottopic.cfm?HotTopicID=3). 118 European Scientific Journal June 2014 /SPECIAL/ edition vol.1 ISSN: 1857 – 7881 (Print) e - ISSN 1857- 7431 to discriminatory practices not limited to its currency. Despite this fact, though, currently the US government is apparently not inclined to formalize the accusation of mercantilism and seems to be more willing to express its stance verbally in relevant international fora. It can be safely assumed that even if Members of Congress of both sides are tenaciously determined to accuse China of being a currency manipulator, the Administration does not wish to formally initiate a dispute with a world economic leader. Thus, in the past few years the Congress has kept opposing the exchange rate policy by enacting a series of provisions aimed at justifying the compatibility of possible retaliatory actions with WTO and IMF norms, while the Government has been operating at institutional level, especially within the G20 framework, and in economic organizations. During the G20 meeting of Finance Ministers which took place in October 2010, US Treasury Secretary Geithner presented a plan defining quantitative targets for external deficits and surpluses. The plan, which was rejected by China and other emerging countries, was aimed at reducing international financial imbalances. During the APEC meeting which took place in Honolulu in November 2011, Obama forcefully defended the US point of view on exchange rate and the respect of the rules that regulate intellectual property rights, and also during his second term he has been showing no intention of toning down the dispute with China. On the contrary, on several public occasions, Obama has repeatedly rejected Mitt Romney’s accusations of having an exceedingly remissive approach to China’s ‘defensive’ policies5. Even if the US has been proceeding cautiously so far, the Obama Administration has launched several appeals against China to the WTO concerning import duties and other defensive norms affecting US steel and poultry exports. Similarly, it has firmly protested against the imposition of tariffs on American-made vehicles. It should nevertheless be acknowledged that aside from domestic political motivations, US criticism is based on objective factors. One of these factors is certainly represented by the ambiguous behaviour of Chinese leaders, who keep maintaining that the exchange rate only plays an irrelevant role in the China-US imbalance and consider the 2005 reform a signal of collaboration. At the same time, though, there is evidence that following the outburst of the economic crisis they have been manoeuvring the external value of their currency to influence China’s domestic demand in contrast with their alleged exchange rate neutrality. As a matter of fact, the Chinese currency started resuming its appreciation in mid-2005 by over 20%6, stopped in May 2008 as a consequence of the crisis and resumed its rise, albeit imperceptibly, starting from mid-2010. Anyway, such criticisms appear to be disputable. In fact, since the last quarter of 2010 the Chinese currency resumed its appreciation so that - since July 2005 to the end of 2013 - the increases were, in terms of the real and the nominal exchange rate, 24% and 34% respectively. Nevertheless, the two countries managed the exchange rate controversy by applying an appeasement policy during the fourth U.S. China Strategic and Economic Dialogue meeting (3th-4th May 2012), where China and the US committed to introduce ‘as quickly as possible’ a more flexible, market-based exchange mechanism. Such mechanism would also reflect in a clearer way the fundamentals of the two economies and would make it possible to avoid frequent misalignments between the two currencies, without favouring anti-competitive policies at the same time 7. This commitment, which is rather general and does not mention any time clause, curiously puts on the same level the ‘damaged’ party and the ‘manipulator’, i.e. China, even if it should address only the latter (Morrison and Labonte, 2013). The Chinese reply to this commitment is emblematically summarized in the words of an anonymous Chinese officer who pointed to the fact that it would be rather difficult to proceed to the immediate appreciation of the renminbi in a country where 40 billion people live on less than 5 http://www.reuters.com/article/2012/07/05/us-usa-campaign-obama-idUSBRE8640WM20120705 6 http://www.chinability.com/Rmb.htm 7 http://www.treasury.gov/press-center/press-releases/Pages/tg1567.aspx 119 European Scientific Journal June 2014 /SPECIAL/ edition vol.1 ISSN: 1857 – 7881 (Print) e - ISSN 1857- 7431 one dollar a day (Xinhua News Agency, 1st December 2009). The same source reports that also former premier Wen Jabao expressed a negative opinion pointing the finger at ‘those countries’ that accuse China of manipulating the exchange rate and of carrying out unfair trade practices, while at the same time they are flooding the global economy with liquidity and are putting China at risk of overheating (Morrison and Labonte, 2013). Aside from the heated debate and the identity of the parties involved, it should nevertheless be noted that the controversy between China and the US does not address the real problem, namely the fact that the market-based mechanisms used by the Chinese system in its own interest are not being applied in relevant fields, such as that of economic governance, the protection of property rights, and the independence of the bodies that control and regulate the economy. This is de facto an ‘alternative’ system which plays by rules that are not completely compatible with the market rules of those countries, primarily the US, that have been promoting the liberalization of international economic relations. At the same time, though, it would be misleading to affirm that the US, and Europe as well, are not aware of competing with a player that avails itself of anomalous financial tools and that, in general, pursues the main goal of promoting first and foremost its internal objectives. Therefore, the Western world is aware that the real problem
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