Unforeseen Developments, GATT Obligations and South Africa’s Safeguard Investigations

Authors

DOI:

https://doi.org/10.25159/2522-3062/13623

Keywords:

trade remedies, safeguards, international trade, General Agreement on Tariffs and Trade, International Trade Administration Commission of South Africa

Abstract

South Africa is one of the oldest users of trade remedies in the form of anti-dumping and countervailing, but is a newcomer to the use of safeguards. Since increasing its use of safeguards in 2012, the country has become one of the biggest users of safeguards. To date, South Africa has completed nine safeguard investigations, six of which resulted in the imposition of safeguard measures. In conducting safeguard investigations, attention must be given to various aspects. This article considers the requirements that there must have been a surge in imports as a result of unforeseen developments and General Agreement on Tariffs and Trade 1994 (GATT) obligations. While several of the International Trade Administration Commission of South Africa (the Commission) reports set out the current tariff position, few of them indicate what South Africa’s GATT obligations are, thus falling short of the requirements to impose measures. The article shows that few, if any, of South Africa’s safeguard investigations have evaluated unforeseen developments in line with the requirements of GATT, as interpreted by the World Trade Organization (WTO) Dispute Settlement Body, as many of these alleged developments either did not relate to the subject product or were not, in fact, unforeseen. The article further shows that the Commission has failed, in every investigation, to link the unforeseen developments and GATT obligations to the surge in imports, as often the unforeseen developments occurred years prior to any increased imports. Finally, the article proposes that the Commission amend its method of analysing unforeseen developments and increased efforts be made to establish the link between these developments and GATT obligations and the increased imports.

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References

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Cases

Degussa v International Trade Administration Commission (unreported case 22264/2007 (T)).

Commission Reports

Commission Report 250 (Lysine): Investigation into Remedial Action in the Form of Safeguards against the Increased Imports of Lysine: Final Determination (6 September 2007).

Commission Report 340 (Lysine Duty): Increase in the Rates of Customs Duty on Lysine and Its Esters; and Feed Supplements Containing by Mass 40 per Cent or More Lysine, Whether or Not Containing Added Antibiotics or Added Melengestrol Acetate: Final Determination (4 June 2010).

Commission Report 457 (Frozen Potato Chips II): Investigation into Remedial Action in the Form of a Safeguard against the Increased Imports of Frozen Potato Chips: Final Determination (18 December 2013).

Commission Report 551 (Hot-Rolled Steel): Investigation into Remedial Action in the Form of a Safeguard against the Increased Imports of Certain Flat Hot-Rolled Steel Products: Final Determination (12 April 2017).

Commission Report 555 (Cold-Rolled Steel): Investigation into Remedial Action in the Form of a Safeguard against the Increased Imports of Cold-Rolled Steel Products: Final Determination (31 August 2017).

Commission Report 596 (Hexagon Screws): Investigation into Remedial Action in the Form of a Safeguard against the Increased Imports of Other Screws Fully Threaded with Hexagon Heads Made of Steel: Final Determination (24 January 2019).

Commission Report 620 (Threaded Fasteners): Investigation into Remedial Action in the Form of a Safeguard Measure against the Increased Imports of Threaded Fasteners of Iron or Steel: Bolt Ends & Screw Studs and Other Hexagon Nuts (Excluding Those of Stainless Steel and Those Identifiable for Aircraft): Final Determination (30 January 2020).

Commission Report 656 (Structural Steel): Investigation into Remedial Action in the Form of Safeguard Measures against Increased Imports of U, I, H, L and T Sections of Iron or Non-Alloy Steel, Not Further Worked than Hot-Rolled, Hot-Drawn or Extruded, of a Height of 80 mm or More and Other Angles, Shapes and Sections of Iron or Non-Alloy Steel, Not Further Worked Than Hot-Rolled, Hot-Drawn or Extruded Steel Products: Final Determination (1 April 2021).

Commission Report 661 (Bolts): Investigation into Remedial Action in the Form of a Safeguard Measure against the Increased Imports of Bolts with Hexagon Heads of Iron or Steel: Final Determination (18 May 2021).

WTO Case Law

Appellate Body Report (Argentina – Footwear (EC)): Argentina – Safeguard Measures on Imports of Footwear, WT/DS121/AB/R, adopted 12 January 2000, DSR 2000:I 515. <https://www.wto.org/english/tratop_e/dispu_e/cases_e/ds121_e.htm>

Appellate Body Report (Indonesia – Iron or Steel Products): Indonesia – Safeguard on Certain Steel or Iron Products, WT/DS490, WT/DS496/AB/R, and Add.1, adopted 27 August 2018, DSR 2018:VII 3393 <https://www.wto.org/english/tratop_e/dispu_e/cases_e/ds490_e.htm>

Appellate Body Report (Korea – Dairy): Korea – Definitive Safeguard Measure on Imports of Certain Dairy Products, WT/DS98/AB/R, adopted 12 January 2000, DSR 2000:I 3 <https://www.wto.org/english/tratop_e/dispu_e/cases_e/ds98_e.htm>

Appellate Body Report (US – Lamb): United States – Safeguard Measures on Imports of Fresh, Chilled or Frozen Lamb Meat from New Zealand and Australia, WT/DS177/AB/R, WT/DS178/AB/R, adopted 16 May 2001, DSR 2001:IX 4051 <https://www.wto.org/english/tratop_e/dispu_e/cases_e/ds177_e.htm>

Appellate Body Report (US – Line Pipe): United States – Definitive Safeguard Measures on Imports of Circular Welded Carbon Quality Line Pipe from Korea, WT/DS202/AB/R, adopted 8 March 2002, DSR 2002:IV 1403 <https://www.wto.org/english/tratop_e/dispu_e/cases_e/ds202_e.htm>

Appellate Body Report (US – Steel Safeguards): United States – Definitive Safeguard Measures on Imports of Certain Steel Products, WT/DS248/AB/R, WT/DS249/AB/R, WT/DS251/AB/R, WT/DS252/AB/R, WT/DS253/AB/R, WT/DS254/AB/R, WT/DS258/AB/R, WT/DS259/AB/R, adopted 10 December 2003, DSR 2003:VII 3117 <https://www.wto.org/english/tratop_e/dispu_e/cases_e/ds248_e.htm>

Panel Report (Argentina – Preserved Peaches): Argentina – Definitive Safeguard Measure on Imports of Preserved Peaches, WT/DS238/R, adopted 15 April 2003, DSR 2003:III 1037 <https://www.wto.org/english/tratop_e/dispu_e/cases_e/ds238_e.htm>

Panel Report (Dominican Republic – Safeguard Measures): Dominican Republic – Safeguard Measures on Imports of Polypropylene Bags and Tubular Fabric, WT/DS415/R, WT/DS416/R, WT/DS417/R, WT/DS418/R, and Add.1, adopted 22 February 2012, DSR 2012:XIII 6775 <https://www.wto.org/english/tratop_e/dispu_e/cases_e/ds514_e.htm>

Panel Report (EU – Steel Safeguards): European Union – Safeguard Measures on Certain Steel Products, WT/DS595/R, adopted 31 May 2022. <https://www.wto.org/english/tratop_e/dispu_e/cases_e/ds595_e.htm>

Panel Report (India – Iron or Steel Products): India – Certain Measures on Imports of Iron and Steel Products, WT/DS518/R and Add.1, circulated to WTO Members 6 November 2018 [appealed by India 14 December 2018 – the Division suspended its work on 10 December 2019] <https://www.wto.org/english/tratop_e/dispu_e/cases_e/ds518_e.htm>

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Panel Report (Ukraine – Passenger Cars): Ukraine – Definitive Safeguard Measures on Certain Passenger Cars, WT/DS468/R and Add.1, adopted 20 July 2015, DSR 2015:VI 3117 <https://www.wto.org/english/tratop_e/dispu_e/cases_e/ds468_e.htm> DOI: https://doi.org/10.1017/9781108123679.001

Panel Report (US – Lamb): United States – Safeguard Measures on Imports of Fresh, Chilled or Frozen Lamb Meat from New Zealand and Australia, WT/DS177/R, WT/DS178/R, adopted 16 May 2001, as modified by Appellate Body Report WT/DS177/AB/R, WT/DS178/AB/R, DSR 2001:IX 4107 <https://www.wto.org/english/tratop_e/dispu_e/cases_e/ds177_e.htm>

Panel Report (US – Safeguard Measure on PV Products): Safeguard Measure on Imports of Crystalline Silicon Photovoltaic Products, WT/DS562/R, Panel Report under Appeal <https://www.wto.org/english/tratop_e/dispu_e/cases_e/ds562_e.htm>

Panel Report (US – Steel Safeguards): United States – Definitive Safeguard Measures on Imports of Certain Steel Products, WT/DS248/R and Corr.1 / WT/DS249/R and Corr.1 / WT/DS251/R and Corr.1 / WT/DS252/R and Corr.1 / WT/DS253/R and Corr.1 / WT/DS254/R and Corr.1 / WT/DS258/R and Corr.1 / WT/DS259/R and Corr.1, adopted 10 December 2003, as modified by Appellate Body Report WT/DS248/AB/R, WT/DS249/AB/R, WT/DS251/AB/R, WT/DS252/AB/R, WT/DS253/AB/R, WT/DS254/AB/R, WT/DS258/AB/R, WT/DS259/AB/R, DSR 2003:VIII 3273) <https://www.wto.org/english/tratop_e/dispu_e/cases_e/ds248_e.htm>

Working Party Report (US – Fur Felt Hats): Report on the Withdrawal by the United States of a Tariff Concession under Article XIX of the General Agreement on Tariffs and Trade (GD/9), October 1951) <https://docs.wto.org/gattdocs/q/GG/GATTCP/106.PDF>

Legislation

South Africa

Constitution of the Republic of South Africa Act 108 of 1996.

Customs and Excise Act 91 of 1964.

International Trade Administration Act 71 of 2002.

International Trade Administration Act 71 of 2002 (Amended) Safeguard Regulations 2005.

Promotion of Access to Information Act 2 of 2000.

Promotion of Administrative Justice Act 3 of 2000.

International Legislation or Agreements

General Agreement on Tariffs and Trade, in WTO The Results of the Uruguay Round of Multilateral Trade Negotiations 423–492 (WTO, Geneva 1999). DOI: https://doi.org/10.1017/CBO9780511818424.007

Agreement on Safeguard Measures, in WTO The Results of the Uruguay Round of Multilateral Trade Negotiations 275–283 (WTO, Geneva 1999).

Published

2024-08-26

How to Cite

Brink, Gustav. 2024. “Unforeseen Developments, GATT Obligations and South Africa’s Safeguard Investigations”. Comparative and International Law Journal of Southern Africa 57 (2):34 pages. https://doi.org/10.25159/2522-3062/13623.

Issue

Section

Articles
Received 2023-05-03
Accepted 2024-05-27
Published 2024-08-26