《经修正的京都公约》全面审议的合法性分析及中国的选择--《经修正的京都公约》全面审议中的条约法问题研究之二

An Analysis of the Legality of the Comprehensive Review of the Revised Kyoto Convention and China's Options--The Second Part of the Analysis on the Comprehensive Review of the RKC from the Perspective of Law of Treaties

《经修正的京都公约》是国际海关制度的基石。根据《经修正的京都公约》"分类提案、分类修正、分类表决、分类接受"的机制,当前公约全面审议在工作组设立、职能、工作机制方面的合法性存疑、全面审议工作组的参与方代表性不足。在公约全面审议过程中,我国一方面应全面深入地评估考量公约定期更新机制、执行公约的评审监督机制、增加公约约束力和接受度以及修正具体海关制度等各方提案对我国的影响;另一方面,我国应在全球多边海关治理体系中具体践行我国倡导的多边贸易自由的立场,增强我国海关对国际多边海关治理机制及条约全面审议进程的把握能力。为此,我国海关在条约全面审议的磋商中,建议把握公约全面审议进程,要求工作组澄清说明当前公约全面审议的机制与进程的模糊存疑之处,提出优化全面审议机制的建议。在谈判中支持现行公约的结构,既同意引入相对平衡的公约更新机制,也要避免公约被频繁修正或更新,并反对引入缔约方境内公约执行的评审监督机制。在对具体海关制度的修正提案方面,建议密切关注当前国内海关法修改进展,对内外立法进行双重比较下形成适当的提案,也应警惕公约修正案中对其他WCO文件与工具的援引而增加公约内容的不确定性。对我国海关在国内执行公约方面,建议整体而完整地理解与落实公约精神,增加我国接受专项附约的数量,以更加开放的心态,使得公约在国内的实施从形似走向神似。

At present,the WCO’s comprehensive review of the Revised Kyoto Convention(RKC)is an essential activity in the field of the international customs system.It is necessary for China to be fully aware of the impact of the RKC and its Comprehensive Review on the long-term plan.According to the current strict and complicated amendment mechanism stipulated in the RKC,the legality of the Comprehensive Review regarding the establishment,ToR and working mechanism of the WGRKC(Working Group of Comprehensive Review)remains to be discussed,and the participation of the WGRKC is under-represented as well.During the process of the Comprehensive Review,China needs to,on the one hand,completely and deeply evaluate the impact of the proposals regarding the periodic updating mechanism,the review and supervision mechanism of the implementation,the increase of the binding force and acceptability of the Convention,and the revision of the specific provisions related to the customs issues in the RKC.On the other hand,China Customs needs to put into practice its standpoint advocating trade facilitation in the multilateral trade system at the global level,enhance its positive engagement in the multilateral customs governance mechanism and the Comprehensive Review process of the RKC.Therefore,in the negotiation of Comprehensive Review,it is suggested that China Customs could communicate with the WGRKC to clarify the current mechanism and arrangements of the Comprehensive Review of the RKC,and could propose to optimize the mechanism of the Comprehensive Review.For the position in the ongoing Comprehensive Review,the current structure of the Convention is reasonable and shouldn’t be overhauled.It is advisable to keep a balance between updating the Convention and avoiding frequent amendments.The consideration should be given to the introduction of a mechanism for reviewing and supervising the implementation of the Convention by the CPs(the Contracting Parties)since this proposal will increase the extra burden of developing CPs.In terms of the proposals to the Specific Annexes or the specific provisions of RKC,it is necessary to pay close attention to the current progress of the revision of the domestic customs law and make the appropriate proposals based on the comparison of domestic legislation and international rules.It is also imperative to be alert to the uncertainty of the contents of the Convention due to the frequent reference to other WCO instruments in the amendments of the RKC.In terms of implementation of the RKC in China,it is suggested that the Customs can adopt a more open mind to implement the Convention,understand the spirit and principles of the Convention fully,and increase the number of the Specific Annexes accepted by China.