Europe / Libre échange

L’Accord sur le commerce des services (TISA) : l’autre traité que l’Union européenne négocie avec les Etats-Unis

L’opinion publique semble de plus en plus au fait des négociations actuelles entre les Etats-Unis et l’Union européenne pour la conclusion d’un vaste accord de libre échange.

Beaucoup moins nombreux sont ceux qui ont connaissance de l’Accord sur le commerce des services que la Commission européenne négocie avec nos partenaires américains ainsi que 21 autres Etats.

C’est à l’occasion de la reprise des négociations aujourd’hui à Genève, en marge de l’Organisation mondiale du commerce, que j’ai pris connaissance de ce projet d’accord, plus généralement nommé par son acronyme « TISA » pour Trades in Services Agreement.

Un article du journal en ligne suisse « Bilan » a relayé les inquiétudes des ONG exprimées à l’occasion de cette réunion.
L’Internationale des services publics (ISP) a également publié un rapport (traduit dans plusieurs langues, ce qui est à saluer) expliquant les principales interrogations, sinon inquiétudes, soulevées par ces négociations.
Je ne peux que vous conseiller vivement la lecture de ce rapport.

Contexte et objectifs poursuivis

Ce nouvel accord, qui vise à une libéralisation poussée du commerce des services, cherche à sortir de l’impasse des négociations de Doha. Depuis 2011, le cadre de l’Organisation Mondiale du Commerce (OMC) et son « Accord général sur le commerce des services » ne semblent plus être un cadre adéquate à la poursuite des négociations pour les grandes puissances occidentales. L’Union européenne et les Etats-Unis apparaissent réticents aux revendications des pays émergents relatives à l’agriculture et au développement.

De fait, en 2012, les Etats-Unis et l’Australie ont pris l’initiative de lancer ces nouvelles négociations entre les seuls membres de l’OMC qui le souhaitaient.
Les négociations ouvertes aujourd’hui constituent le septième tour de négociations. En février, 21 des 23 participants avaient déposé leurs offres finales (les deux restants étant le Pakistan et le Paraguay).

L’objectif est de conclure ces négociations d’ici 2014. Ses dispositions ont vocation à, par la suite, être réintégrées dans le cadre de l’OMC, une fois qu’un nombre significatif d’Etats y auront pris part.

Il est difficile d’imaginer comment les pays en développement, qui ont été exclus des pourparlers de façon si peu diplomatique, pourraient être prêts à accepter les termes de l’accord. Les moyens de pression audacieux employés par les pays développés remettent également en question la capacité future de l’OMC à servir d’instance de négociation.
L’Internationale des services publics

La Chine a demandé à rejoindre les négociations. Ses discordances avec les Etats-Unis sur deux autres accords (l’Accord sur les technologies de l’information (ATI) de l’OMC et l’Accord plurilatéral de l’OMC sur les marchés publics) ne lui permettent pas pour l’instant de participer à l’ACS.
Selon l’ISP, « si le pays est autorisé à prendre part aux négociations sur l’ACS, les intérêts de la Chine pourraient se heurter à ceux des États-Unis et de l’UE dans des secteurs de services où elle est très compétitive, tels que le transport maritime et les services de la construction » .
Dans un communiqué de presse de mars dernier, la Commission européenne a indiqué soutenir la participation de la Chine aux négociations.

Qui a lancé l’idée de l’ACS ?
« Il semblerait que la paternité de l’idée de l’ACS revienne à la Coalition of Service Industries américaine (CSI), et plus particulièrement à son ex-président, Robert Vastine. […] À la mi-2011, Robert Vastine a déclaré que le Cycle de Doha « n’était en rien prometteur » et a suggéré d’abandonner les pourparlers. […] La GSC a clamé ouvertement que l’ACS avait été conçu « pour apaiser la frustration des entreprises, en raison de l’impasse du Cycle de Doha en matière de services »

Coté Union européenne

La Commission européenne a publié ses directives de négociation d’un accord plurilatéral sur le commerce des services publié par la Commission le 15 février 2013. Cette publication ne s’est accompagnée d’aucune étude d’impact sur les avantages et inconvénients d’un tel accord.

Le 18 mars 2013, le Conseil de l’Union européenne, réuni en session « Agriculture et Pêche », a donné mandat à la Commission pour négocier, au nom de l’UE, un accord plurilatéral sur le commerce des services.
Le mandat n’a pas été publié.
La raison est toujours la même : ne pas dévoiler notre jeu aux divers parties prenantes des négociations.
Les Etats-Unis sont très soucieux de cette confidentialité. Ceux-ci ont indiqué entendre rendre confidentielles leurs propositions pendant « cinq années à dater de l’entrée en vigueur de l’ACS ou, si aucun accord n’est trouvé, cinq années après la clôture des négociations » .

Le 4 juillet 2013, le Parlement européen a donné son appui à l’ouverture des négociations.
Sur 765 eurodéputés, seuls 111 parlementaires ont voté contre.
Parmi les députés français, tous les socialistes, centristes, UDI et UMP ont approuvé le lancement des négociations. En revanche, les parlementaires écologistes, Front de gauche et FN s’y sont opposés.

Les parlementaires prient la Commission de « défendre les sensibilités européennes en ce qui concerne les services publics et les services d’intérêt général » . Ils interdisent « les engagements et les règles en matière de services financiers qui seraient contraires aux mesures récentes visant à réguler les marchés et les produits financiers » .
Le Parlement « se réjouit dès lors que le Conseil ait exclu du mandat les services culturels et audiovisuels » . Et, enfin, les députés estiment que l’accord doit également comprendre « un mécanisme spécifique de règlement des différends, sans préjudice de la possibilité de recours au mécanisme général de règlement des différends de l’OMC » .

Les inquiétudes

Selon l’excellente étude de l’ISP, « l’ACS instaurerait un environnement plus favorable à la privatisation des services publics et entraverait la capacité des gouvernements à remunicipaliser (nationaliser) les services publics ou à en créer de nouveaux. L’accord limiterait aussi la capacité des gouvernements à légiférer dans des domaines tels que la sécurité des travailleurs, l’environnement, la protection du consommateur et les obligations de service universel » . (Source: Bilan)

L’ACS s’appliquerait à tous les moyens possibles de fournir un service à l’échelle internationale.

Par exemple, seraient concernés les procédures d’autorisation et d’octroi de licences, les services internationaux de transport maritime, les services de technologie de l’information et de la communication («TIC») (y compris les transferts de données transfrontaliers), l’e-commerce, les services informatiques, les services postaux et de messagerie, les services financiers, le mouvement temporaire des personnes physiques, les marchés publics de services, etc.

L’objectif est que chaque Etat participant égale voire dépasse le plus haut niveau d’engagement qu’il a contracté dans le domaine des services lors de la signature de tout autre accord sur le commerce et l’investissement.

La principale menace qui pèse sur les services publics provient de la clause du traitement national. Il semble que les participants au projet d’accord envisagent de retenir le principe de la « liste négative » . Ainsi, l’égalité de concurrence concernerait l’ensemble des secteurs, sauf ceux qui seraient expressément exclus par l’Etat signataire, « ce qui signifie que tout soutien financier apporté aux services publics devrait être soit explicitement exclu, soit également ouvert aux prestataires de services privés poursuivant un but lucratif  » .

Un document officiel de la Commission européenne note ainsi une « convergence des parties sur le fait que les engagements doivent tenir compte de la pratique («clause de statu quo») et l’élimination des mesures discriminatoires doit être automatiquement verrouillée pour l’avenir (dite « clause de cliquet ») sauf si une exemption est répertoriée » .

Dans sa résolution de juillet dernier, le Parlement européen recommande quant à lui que l’accord conserve la notion de liste positive des engagements. Il ne semble pas être entendu.

Merci d’avance à tous ceux qui publient/relaient mes articles. Merci cependant de sélectionner un extrait et de mettre le lien vers l’article original! Magali

* Participent à ce jour aux négociations : Australie, Canada, Chili, Colombie, Corée, Costa Rica, Etats-Unis, Hong Kong, Islande, Israël, Japon, Liechtenstein, Mexique, Norvège, Nouvelle-Zélande, Pakistan, Panama, Paraguay, Pérou, Suisse, Taïwan, Turquie et UE.

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