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zoom RSS ジェーン・ケルシー:米国の反中国戦略の要としてのTPP・その2(日本語訳)

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<パート2 戦略の実施>

2011年 11 月にホノルルで開催された APEC 会合における進展に関連して、私はパート 1で、提案されている TPPは米国のヒラリー・クリントン国務長官が「アメリカの太平洋の世紀」と呼ぶもの(※18)を確保するための戦略の 1つの柱であると述べてきた。中国の台頭に米国の「経済的・軍事的能力」によって対抗することが明白に目標として設定されている。TPP はアジア太平洋地域において米国と米国企業の利益に奉仕し、米国と米国企業によって強制される地域規模の法的な体制を確立することによって米国の軍事力の再強化を補完することを意図している - APEC の大半の国が「黄金の基準」を確立するこの協定に署名するようになれば、中国はますます孤立し、最終的には TPP の、米国によって設計された「国際基準」に屈伏するかもしれない。

パート 2 では、この戦略の実施に関する 3 つの中心的な問題を取り上げる。現在交渉に参加している米国以外の8 カ国は、交渉をまとめるために十分に深く米国の地政学的および商業上の目標を共有しているのだろうか? 米国と APEC のそれほど重要でない経済地域との間での「黄金の基準」を確立する協定についての交渉は、他のアジア諸国にとって、中国との対抗関係の可能性を覚悟してでも進めるほど魅力的だろうか? この壮大な計画は2012 年(に合意)という目標を達成する可能性があるのだろうか、むしろ WTO ドーハ・ラウンドや米州 FTA、多国間投資協定(MAI)や米国が進めようとしてきた数多くの FTA と同じ道に行き着く可能性の方が大きいのではないか?

既存の TPP 参加国のコミットメント

TPPA は米国主導の規範的な法的体制を確立することを通じてオバマ政権の最重要の戦略的目標に奉仕することを意図している。ある意味では TPP 交渉に参加している他の 8 カ国の動機はこれと無関係である。これは米国中心の戦略であり、米国の政府と議会が最終的な条件を決定する。しかし、協定を成立させるためにはオーストラリア、ブルネイ、チリ、マレーシア、ニュージ−ランド、ペルー、シンガポール、ヴェトナムの協力と同意が必要である。

既存の TPP 参加国の間では、米国の外交政策の目標に対して強い積極的支持がある。大部分の国は米国の軍事的同盟国である。オーストラリア・米国 FTA は、一般的には、オーストラリアのハワード政権が米国のアフガニスタンおよびイラクでの戦争を支持したことへの「褒賞」であると見られている(この FTA にそれほど大きな実質的成果はない)。米国との親密な安全保障上の同盟関係は労働党の下でも継続しており、ギラード首相はホノルル APEC の期間中に開催された「退役軍人の日」のイベントで、外国の首脳として初めて招待され演説を行った。

さらに、オバマは APEC 会合後にオーストラリアを訪問した際、同国に駐留する米軍を増員すると発表した。シンガポールは長年にわたってこの地域における米軍の存在を支持してきたし、チャンギ海軍基地は米海軍にとっての東单アジアへの玄関口とされてきた。ピノチェット後もチリはラテンアメリカにおける米国の揺るぎない同盟国だった。マレーシアは定期的に米国との合同訓練を実施してきたし、ジャングルでの野戦訓練の場所を提供してきた - 9・11 以後、その回数が増えている。ブルネイも同様の防衛協力協定を結んでいる。ヴェトナムは米帝国主義に対する歴史的な闘争にも関わらず、中国との間で国境をめぐる戦略的な問題を抱えている。

しかし、ASEAN 諸国の立場は、ASEAN プラス 3(※19)、ASEAN プラス 6(※20)、中国・ASEAN FTA を通じた中国との強い関係によって複雑になっている。米国は東アジア首脳会談に紛れ込むことができたが、これらの機構はアジアの新興経済地域、特に中国によって領導される東アジア統合のための重要な牽引力である。中国はホノルルでの APEC会合の期間中、米国が TPP に焦点を集中していることに対して、バランスを欠いていると公然と批判した。このような緊張は 11 月 19 日にインドネシア・バリで開催された東アジア首脳会談にも反映された。米国とロシアは初めてこの会合に参加した。21米国の戦略は、TPP が他の機構に優先し─はっきりとした上下関係ではないとしても─、参加国が従わなければならない強制力を持つ法的な体制となることを想定している。

米国とペルーの軍事関係は 2011 年の選挙でフマラ大統領が選出されて以来、従来ほど安定したものではなくなった。しかし、フマラは、左派と見られているにもかかわらず、最近米国主導の対麻薬戦略─広範な人々からは右派勢力のラテンアメリカへの浸透の前線と見られている─への協力の強化を提案している。

ニュージーランドの立場もぶざまである。歴代の政権が形式的には(実質的にではないかもしれないが)独立した(※22)外交政策を持っており、長年にわたって米国の軍事優先主義に対する大衆の反感があるにも関わらずである。 この国の有力政治家や軍は完全な軍事同盟の復活を熱望しているかも知れないが、彼らが外交政策や安全保障を理由に TPP を売り込もうとするとは考えられない。ニュージーランドの政治家や通商担当者たちはまた、米国を訪問した際に見聞きした極端な反中国的なレトリックを非常に不快に感じたと報じられている。TPP の短期的な経済的・政治的コストがあまりに高くつく場合には、米国との強力なつながりがある国でさえ、長期的な戦略的目標を譲らないだろう。

経済的な理由付けのほうが売り込みやすい。これはそもそも「自由貿易協定」と称されている。問題は、米国企業以外は、TPP から何の明確な経済的利益も期待できないことである。9カ国のほとんどは、すでに高度に自由化されており、相互間に自由貿易協定の網が張りめぐらされている(※23)。米国が譲歩するようなことがあれば議会が拒否権を発動することが予想されるので、他の国はいかなる意味のある見返りも期待できない。より積極的な地域経済統合から得られる具体的な経済的利益がなく、しかも米国企業の利益のために一層の譲歩を行うことの経済的・社会的コストを考えなければならない。

オーストラリア、チリ、ペルー、シンガポールはすでに米国との FTA を締結している。TPP 交渉は、これらの諸国が FTA 交渉の中で抵抗してきた米国からの要求が蒸し返されることを意味し、さらに新たな「国内施策(behind the border)」の制限によって政府の権限が一層制限される。この政治的コストがあまりにも高くつくかもしれない。ペルーのフマラは新しい FTA の締結ではなく既存の FTA の再交渉を公約にして大統領選出された。ペルーでは、ペルー・米国 FTA で約束されていたのとは逆に、医薬品の価格が上がった。オバマは
「2007 年 5 月の妥協」(※vii)を撤回した。つまり、TPP の下では医薬品に関して追加的な要求が持ち出され、一層の価格上昇がもたらされるだろう。24米国に本社を置く鉱山会社レンコは現在、ペルー・米国 FTA の投資家国家間紛争の条項を使ってペルー政府を提訴している。

オーストラリア政府は長年にわたってアジア太平洋地域における FTA 構想の推進役であり、APEC における FTA交渉推進のガイド役となってきた。しかし、市場開放派であるオーストラリア生産性委員会は最近、二カ国間および地域規模の FTA - 特にオーストラリア・米国 FTA- の利点に関する議論に冷水を浴びせ、頓挫した WTO 交渉に再び焦点を当てるべきだと主張している。25労働党政権は米国の中心的な欲求と直接に対立する領域に踏み込んだ。同国政府は投資家国家間紛争条項を拒否しており、この条項は二カ国間 FTA から除外された。フィリップ・モーリス社がオーストラリアのタバコのプレーンパッケージングに関する法viiiに対して投資条約に基づく提訴を行ったことから、同国政府はこの条項に対する態度を一層硬化している。オーストラリアの医薬品給付制度の解体の脅威も、TPP における米国の要求に対する重要な障害となっている(※26)。

チリは米国・チリ FTA 締結後に、資源略奪に対する先住民族による抵抗を反テロリズム法によって鎮圧した(※27)。 最近における学生を中心とするデモから始まった抗議運動の波は、国際的な「オキュパイ(占拠)」運動の一環として、TPP に反対する運動へと拡大する可能性がある。

マレーシア、ヴェトナム、ブルネイ、ニュージーランドは米国と FTA を締結していないため、最も広範な要求に直面している。マレーシアは政府調達、コメの関税、国産品への優遇措置、医薬品価格など、過去の米国との 2カ国間交渉を決裂させた問題で TPP のルールを採用することを求められる。ヴェトナムは 2006 年に WTO 加盟の条件として締結した包括的な一括協定─現在、その実施のために苦闘中である─に加えて、新たな義務を課されることになる。米国の繊維産業ロビーは均等な原産地国ルールを要求しており、それが適用されるとヴェトナムの繊維産業は破滅に瀕する可能性がある。ヴェトナムはまた、他の3つの ASEAN 加盟国と同様に、国営企業について米国の新しい破滅的な要求に直面しており、さらに、政治的に微妙な問題を含む労働や環境のルールを求められている。

ニュージーランドはどうか? 米国との自由貿易協定は歴代の国民党および労働党政権にとって聖杯だった。オーストラリアの経験にもかかわらずである。ケイ首相とグローサー貿易相は常に、ニュージーランドは自国にとって良くない協定を締結しないと繰り返し発言している。しかし、ウィキリークスが暴露したところによると、交渉担当責任者は(TPPには)商業上の利益はほとんどなく、"エルドラド(黄金境)"への期待を抑制する必要があると考えている(※28)。他の FTA の時とは違って、貿易相は TPP に大きな経済的利益があるとは想定していない。実際、グローサーは(正しいことだが)経済的予測について深い疑念を表明している(※29)。

もともと、期待されていた利益は米国市場へのアクセス、特に酪農製品にとってのそれをあてにしていた。しかし米国は交渉プロセスを捻じ曲げて、この問題を交渉のテーブルから除外してしまった。オーストラリア・米国FTA の交渉から砂糖を除外したのと同じやり方を繰り返したのである。最近ではフォンテラや他の輸出業者は、協定を正当化するために、供給チェーンの簡素化と「法規の一貫性」によって商業的利益が得られると主張している。

グローサーは、TPP の本当の利点は、将来、「黄金の基準」を日本、韓国やその他の国に拡大する可能性にあると力説する。彼は 9 カ国による交渉が APEC 全体の自由貿易協定を確立するために協定を一歩一歩積み上げていくという戦略に沿った 30 年近い努力の到達点であるとして自分の手柄を主張している(※30)。ニュージーランドは(※ix)1980 年代の「オーストラリア・ニュージーランドの経済関係緊密化のための通商協定」 を手始めに、次々と FTAを締結してきた:シンガポール(2001)、タイ(2005)、チリ・シンガポール・ブルネイ(2005)、中国(2008)、マレーシア(2010)、ASEAN とオーストラリア(2010)、香港・中国(2011)。

グローサーはニュージーランドを各陣営に足場を持つ有利な立場に置いたと言っている。確かに、ニュージーランドは OECD の中で唯一、中国と FTA を締結し中国市場へのアクセスを保証されているという点では、特別に有利な立場にある。しかし、この主張は TPP が実際に締結された場合にのみ正しい。なぜなら、他の諸国はすでに米国との FTA を締結しているからである。また、彼はニュージーランドが米国の反中国戦略と手を組んだ場合でも中国が引き続きニュージーランドを友好国とみなすだろうと想定している。もし中国がニュージーランドとの関係を疎遠にすることを決定すれば、中国は最小限のコストでそうすることができるが、ニュージーランドはこの FTA の下でいかなる現実的な補償措置も得られないだろう。

国内的に、政府は将来における地域統合から得られる将来の仮定上の利益やグローサーの"構想"だけで不人気な米国企業の要求への譲歩を正当化するのは難しいだろう。国民党も労働党も、自由貿易の伝道者として、予想される広範な否定的影響を軽視し、慎重に言葉を選んで Pharmac(医薬品管理庁)を守ると約束している。TPP 交渉に対する批判的観点からの関心が高まりつつある中で、それだけでは間に合わないかもしれない。(※31)(その3に続く)

<脚注>
※18 Hillary Rodham Clinton, Secretary of State, “America’s Pacific Century”, East-West Center, Honolulu, 10 November 2011
※19 中国、日本、韓国
※20 オーストラリア、中国、インド、日本、韓国、ニュージーランド
※21 “East Asia not US Playground”, China Daily, 19 November 2011 http://www.chinadaily.com.cn/opinion/2011-11/19/content_14123237.htm; “Obama gets little pushback on Asia trip”, San Francisco Chronicle, 19 November 2011, http://www.sfgate.com/cgi-bin/article.cgi?f=/n/a/2011/11/19/international/i051254S09.DTL
※22 Documented in Nicky Hager’s book Other People’s Wars, Craig Potton Publishing, Wellington,2011 [See the Scoop review by Mark P. Williams: http://www.scoop.co.nz/stories/HL1109/S00109/book-review-nicky-hagers-other-peoples-wars.htm - Ed.]
※23 See Jane Kelsey, “Introduction” in Kelsey (ed) No Ordinary Deal.
※24 “A briefing memo on the impact of the U.S. proposal to the Trans-Pacific Partnership on access to medicines in Peru”, Public Citizen, Washington, 22 October 2011, http://www.citizenstrade.org/ctc/wp-content/uploads/2011/10/TransPacific_PCmemo.pdf
※25 Australian Productivity Commission, “Bilateral and Regional Trade Agreements”, Research Report,
November 2010.
※26 AFTINET, “Trade Pacific Partnership Agreement”, http://aftinet.org.au/cms/trans-pacific-partnership-agreement/trans-pacific-partnership-agreement
※27 JoseAylwin, “The TPPA and Indigenous Peoples: Lessons From Latin America”, in Kelsey (ed) No Ordinary Deal

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