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Discussiondraft:nottobecitedorquotedWithoutauthor’sexpressconsent1Antidumping/CountervailingDutyLawandPracticeinMexicoDavidA.Gantz*ThispaperbeginswithashorthistoryoftraderemedylawsinMexico,followedbyabriefsummaryofthemajordifferenceswiththeUnitedStatesandCanadianantidumpingandcountervailingdutylawsandanaccountofMexicanuseofsuchlawssince1986.ItthenfocusesontheapplicationoftheForeignTradeLaw(FTL)(revisedthrough2006)1andtheimplementingregulations(FTLRegulations)(2000).2Thepaperconcludeswithadiscussionofadministrativeandjudicialreview;NAFTAChapter19reviewisdiscussedelsewhere.WhilewearewellawarethatundertheMexicanlegalsystemdecisionallawisnotcontrolling,wehaveneverthelessdrawnonthedecisionsofMexicancourts,theWTODisputeSettlementBodyandNAFTAChapter19binationalpanels,aswellasfinaldeterminationsbytheinvestigatingauthorityasanaidtounderstandinghowtheFTLandFTLRegulationshavebeenappliedinpractice.1HistoricalDevelopment1.1AccessiontoGATTUnliketheUnitedStatesandCanada,Mexicodoesnothavealonghistoryoftheimplementationofantidumpingandcountervailingdutylaws.Rather,theenactmentoftheselawscoincidedwithMexico’saccessiontoGATTin1986.Priorto1986,Mexico’swasprimarilyaclosedeconomy.Hightariffsandtheextensiveuseofimportquotasprotectedhigh-cost,inefficientlocalindustry;therewasnoneedforantidumpingorcountervailingdutylawstoprovideadditionalprotection.3AsCraigGieszehasobserved,Advaloremtariffratesashighas100percentincertainproductcategories,restrictiveimportquotas,incomprehensibleprice-referenceschemes,cumbersomeimportlicensingrequirements,andother*DavidA.Gantz,SamuelM.FegtlyProfesorofLaw,UniversityofArizona,RogersCollegeofLaw.ThispiecewillbeChapter5inBowman,Covelli,Gantz&UHM,TradeRemediesinNorthAmerica:Laws,EconomicAnalysesandPractice(KluwerLawInt’l,forthcominglate2009).Copyright©2008,2009DavidA.Gantz.Allrightsreserved.1Decretoporelquesereforman,adicionanyderogandiversasdisposicionesdelaLeydeComercioExterior,DiarioOficialdelaFederación,21December2006,DecretoporelqueseReforman,AdicionanyDeroganDiversasDisposicionesdelaLeydeComercioExterior,DiarioOficial,13March2003,LeydeComercioExterior,DiarioOficial,27July1993,amendedbyDecretoquereforma,adicionayderogadisposicionesdediversasleysrelacionadasconelTratadodeLibreComerciodeAméricadelNorte,DiarioOficial,22December1993.TheOASprovidesanEnglishversionoftheFTL,‘ALegalAnalysisofMexico’sAntidumpingandCountervailingDutyRegulatoryFramework’inB.Leycegui,W.B.P.RobsonandS.D.Stein(eds),TradingPunches:TradeRemedyLawandDisputesUnderNAFTA(WashingtonDC,NationalPlanningAssociation,1995)andC.R.Giesze,‘Mexico’sNewAntidumpingandCountervailingDutySystem’,(1994)25St.Mary’sLawJournal,927.Discussiondraft:nottobecitedorquotedWithoutauthor’sexpressconsent2burdensomecustomsprocedureseffectivelystrangledallforeigncompetitionattheMexicanborderandshieldedMexicanproducers,manufacturers,andresellersfrombothfairandunfairimportcompetitionintheMexicandomesticmarket.4Mexicobegantomoveawayfromanimportsubstitutionpolicytowardbroaderparticipationintheworldeconomyshortlyafterthefinancialcrisisof1982,aprocesswhichresultedinGATTmembershipseveralyearslaterwhenPresidentdelaMadridsignedGATT,signalinganabruptshiftinMexicaneconomicpolicy.GATTobligations,particularlyArticleI(mostfavorednationtreatment),ArticleIII(non-discrimination/nationaltreatment)andArticleXI(prohibitionagainstmostimportrestraints),meantthatMexicocouldnolongerprotectdomesticindustrythroughthepreviousmechanismssuchasimportquotasandimportlicensingsystems.BoththedelaMadridadministrationandMexicanindustryrealizedthatsuchlimitationsgreatlyincreasedtherisksofforeigndumpingorsubsidizationthatwouldinjureMexicandomesticproducers.SomealsosawthedesirabilityofreplacingtheolderformsofprotectionismwithmechanismsthatwouldarguablybeGATT-legalandwouldalsoofferprotectiontodomesticinterests.1.2InitialLegislationMexico’sfirstantidumpinglaw,the1986ForeignTradeAct,5enactedseveralmonthsbeforeMexicoformallyaccededtoGATT,wasapparentlyinfluencedonlytoalimitedextentbytheGATTTokyoRoundAntidumpingCodedespitethefactthattheCodewasapprovedandbecameapartofMexicanlawin1988.7(MexicodidnotadheretotheSubsidiesCode,presumablybecauseofsubsidesprogramstheninplace;thelackofconsensusonhowtodefineasubsidymayalsohavebeenafactor.)9Thisinitialattemptatdevisinganantidumpinglawwascriticizedasbeing‘relativelyrudimentaryandunsophisticated.’10BoththeprivatesectorandlikelymanyinthegovernmentrealizedevenbeforetheNAFTAnegotiationsbeganin1991thatthe1986Acthadmajorproceduraland4Giesze,p.928.5LeyReglamentariadelArticulo131delaConstituciónPolíticadelosEstadosUnidosMexicanosenMateriadeComercioExterior,DiarioOficial,13January1986.7DecretoporelqueseapruebadelAcuerdorelativealaAplicacíondelArtículoVIdelAcuerdoGeneralsobreArancelesAduanerosyComercio,DiarioOficial,4December1987,andDecretodepromulgación