Sergey Moser
Aspirant of the Russian customs academy
Customs bulletin. – 2009. – № 9 (123). – p. 14-16.
In 2001 the Republic of Moldova has become a member of the World Trade organization, aimed at maximum promoting and simplifying international trade. It is considered that having acceded to the WTO the Moldavian Government undertaken to carry out overall control in the whole territory of Moldova, including uncontrolled Transdniestrian region, in relation to which in 1992 the Republic of Moldova launched an unsuccessful military aggression, resulted in death of many civilians.
One shouldв remind the following: on 08.05.2001 in the course of the WTO accession negotiations was made a decision concerning that Moldova can enter the WTO in terms and conditions specified by the Protocol.[1]
Protocol of accession of Moldova to the Marrakesh agreement establishing the World trade organization was approved on the same day, 08.05.2001.[2] In a month the Parliament of the Republic of Moldova adopted the Law “On the WTO accession of the Republic of Moldova”.[3] The bases of the Protocol was Report of the Working Party on the Accession of Moldova to the WTO оf 11.01.2001[4]
Why is the Report of the Working Party on the Accession of Moldova to the WTO of interest to specialists? As experts note, in 2001Moldova had to convince representatives of the World Trade Organization that Transdniestrian issue had been resolved, trade and customs contradictions had been settled and had not hampered fulfillment of its WTO obligations. In this connection Moldavian leadership presented for the WTO experts three Transdniestria-related agreements, two of which can be regarded as international, signed by representatives of the OSCE, Russia, Ukraine, Moldova and Transdniestria. The following documents are referred to in the WTO materials:
The Protocol Decision on Settlement of Problems Arisen in Activity of Customs Services of the Republic of Moldova and Transdniestria of 07.02.1996 г.[5] .
The Memorandum on the Basis for Normalization of Relations between the Republic of Moldova and Transnistria of 08.05.1997[6]
The Agreement on the Organizational Basis of Social-Economic Collaboration between the Republic of Moldova and Transnistria of 10.11.1997. [7]
The presented below extract form the Report of the Working Party of 11.01.2001 is little known and practically was never used as an argument by experts and analysts from Transdniestria, Russia and Ukraine, that establishes the right of Transdniestria to participate separately in foreign trade relations.
Moldavian side avoids in every way to mention this extract of the Report of the Working Party, because each specialist can easily identify violation of obligations by the Republic of Moldova undertaken before the trade community concerning the unrecognized region.
Thus, the section “Authority of sub-central governments”, paragraph 47 of the Report of the WTO Working Party contains the following:
“In response to requests for information regarding the Agreement on the Transnistria region, the representative of Moldova referred to the Memorandum on the Basis for Normalization of Relations between the Republic of Moldova and Transnistria signed in Moscow on 8 May 1997. The Memorandum, and the Agreement on the Organizational Basis of Social-Economic Collaboration, signed on 10 November 1997, were the legal bases for settling the conflict.
Based on this Moldova was making every effort together with other interested countries to overcome the consequences of the conflict. The activity undertaken so far had succeeded in ensuring economic stability and compliance with Moldova’s external obligations. As regards issues related to foreign trade commitments, Moldova succeeded in finding common ground with the Transnistrian authorities. The representative of Moldova stated that Moldova had signed a special protocol on customs cooperation with the Transnistria region that foresaw mutual elaboration of customs policy, exchange of statistics and facilitation of border measures” [8]
Thus, before entering the WTO the Republic of Moldova established its position relating administrative-legal regime of customs activity of Transdniestria on the ground of two documents, one of which empowers Transdniestria to carry out independently contacts in economic sphere, and other authorizes Transdniestria to clear cargoes independently in Transdniestrian Customs Office by Transdniestrian customs seals and stamps.
Taking into consideration the fact that the Memorandum of 08.05.1996 аnd customs agreement of 07.02.1996 is the legal bases of the autonomous right of Transdniestria to participate independently in foreign trade and foreign trade relations, the following should be noted: First. In accordance with the Protocol Decision of 07.02.1996 the OSCE, Russia, Ukraine, Moldova and Transdniestria have agreed that “Customs clearance of cargoes transported from Transdnistria shall be fulfilled by customs bodies of Transdnistrian region from 10 March 1996 using customs seals and stamps of new standard – “the Republic of Moldova. Transdniestria. Tiraspol customs house” — on Moldavian and Russian languages with the right of customs clearance of all cargoes from Transdistria.” [9]
In pursuance of this norm the Protocol Decision of 11.03.1996 coordinates the forms of customs seals and stamps for processing customs documents by customs bodies of Transdniestria. [10] At a later date in the framework of Moldavian-Transdniestrian working meetings to review the results of implementation of the Protocol Decision of 07.02.1996 this provision was recognized to be fulfilled in whole. [11]
Second. In accordance with the Moscow Memorandum of 08.05.1997 the OSCE, Russia, Ukraine, Moldova and Transdniestria have agreed that “Transdniestria has the right to unilaterally establish and maintain international contacts in the economic, scientific-technical and cultural spheres, and in other spheres by agreement of the Parties”.[12]
Thus, based on the WTO request and responses got from Moldova the international trade community became familiar with necessary facts related to Transdniestria.
It is notable, that the packet of documents concerning accession of the Republic of Moldova to the WTO does not comprise any commentary on irregular customs identification of Transdniestrian region and so-called obligations of the Republic of Moldova to ensure reintegration of customs territories of the “single and indivisible” state.
On the contrary, the WTO documents concern special protocol on customs cooperation with Transdniestrian region, providing mutual elaboration of customs policy, exchange of statistics and facilitation of border measures.
The enumerated actions can be allowed, the latter of them is not referred to as illegal and not compliant with external obligations of the Republic of Moldova and the WTO requirements.
In connection with the afore said, any speculations of the Moldavian side and its political partners concerning the lack of Transdniestria’s power to participate separately in foreign trade relations and international trade are unconvincing.
Since 1992 in the area between Ukraine and Romania within the boundaries of the former Moldavian Soviet Socialistic Republic de facto two separate customs territories exist, one of which covers Transdniestria, and other – the Republic of Moldova. Every territory has its own national legislation; customs authorities of the Republic of Moldova and Transnistria work independently ensuring economic security of each region. Jurisdiction of the Republic of Moldova does not extend over the customs territory of Transdniestria and vice versa.
Thus, the autonomous right of Transdniestria to participate separately in foreign trade relations, and to carry out customs clearance of goods, is fixed by international agreements of 1996,1997 and confirmed in the framework of the WTO before the WTO member states.
Since 01.02.1999 (in juridical relation) Moldavian side without any consultations with Transdniestria on its own will has divided the area between Romania and Ukraine into two customs territories.
It should be emphasized that it was the Republic of Moldova, not Transdniestria, which has divided the single customs territory, when according to the Parliament Regulation “On measures of implementation the Budget Act of 1999” №217-XIV of 12.12.2008 the Government of the Republic of Moldova had to create till 1 February 1999 the second line of customs control inside the country.[13] The second line of customs control was understood as the line along the perimeter of the Transdniestrian border.
Then the Moldavian Parliament Regulation №362 of 28.04.1999 “On joint inland fiscal control posts” prescribed to the Department for Customs Control and the Ministry of Finance of the Republic of Moldova to create joint inland fiscal control posts working continuously along the whole border[14] with Transdniestrian region. According to the Parliament Regulation all economic operators from Transdniestria were obliged to pay VAT and excise at joint inland fiscal control posts. [15] (Regulation on joint inland fiscal control posts was approved by Regulation of the Minister of Finance and Minister of Internal Affairs of the Republic of Moldova in August 2000). [16] As a result, Transdniestrian production has become noncompetitive at Moldavian market.
As regards the withdrawal of customs seals of 1996 and implementation of economic blockade against Transdniestria, none of the official representatives of the Republic of Moldova, Ukraine as well as of international organizations, up till now has not explained what norms of international law and what obligations of the Republic of Moldova before the international community were meant.
The further analysis of international precedents, regional specifics and the WTO materials make it possible to conclude that Transdniestrian region is de-facto the WTO member state.
In support of this position let’s note that in the framework of establishing legal relations between Transdniestria and the Republic of Moldova in 1999 the acceptable solution was found, allowed before the final determination of international legal status of Transdniestria securing the fulfillment of Moldova’s obligations before the international community, taking into account interests of Transdniestrian region.
Particularly, in accordance with the Protocol of the meeting of delegations of the Republic of Moldova and Transdniestria on the problem of coordination of actions in the area of trade-economic and scientific and technical activity” of 13.07.1999 Transdniestria was authorized “to ensure implementation of agreements and other acts concluded between the Republic of Moldova and other states, international, regional and other organizations in trade-economic and scientific and technical sphere, concerned the interests of Transdniestria”.[17] This rule was approved by Presidents of Transdniestria and the Republic of Moldova 13.07.1999.
The appearance of the WTO official communication of 16.05.2001 relating to Moldova’s possibility of accession to the WTO has concurred with signing of Moldavian-Transdniestrian Protocol on mutual recognition of validity of the documents on the territory of Transdniestria and the Republic of Moldova issued by competent bodies of the Parties of 16.05. 2001 where the sides have agreed to recognize the validity of Moldavian and Transdniestrian documents on the territories of the sides including certificates, permits, licenses and other documents issued by appropriate authorities of Moldova and Transdniestria[18]
Transdniestria was empowered to regulate in its territory administrative-legal relations in customs area complicated by international element taking into account liability of the Republic of Moldova to international community.
Thus, Transdniestria was empowered to regulate in its territory administrative-legal relations in customs area complicated by international element taking into account liability of the Republic of Moldova to international community.
Precedents of Burma, Ceylon, Southern Rhodesia, Lesotho, Macao, Hong Kong demonstrate that in order to get the autonomous right to participate separately in foreign trade activity the notification of metropolitan country (or a subject competent in the name of the separate customs territory to conclude trade and customs agreements), brought to the attention of the GATT (WTO), or usual consent with de-facto situation were required.
As concerns the autonomous right of Transdniestria to participate separately in foreign trade activity, such notification was the official statement of the Republic of Moldova in response to the WTO request on implementation of the Memorandum of 1997 and customs agreement of 1996 which empowered Transdniestria to carry out separately contacts in foreign trade area and carry out customs clearance of Transdniestrian cargoes.
The procedural form of statement[19] concerning economic autonomy of Transdniestria, presented in the course of the WTO International Trade Forum, can be discredited. However one thing is indisputable: this happened before the international trade community, including before foreign economic partners of Transdniestria.
Moldavian side has violated its international WTO obligations a month later after acceding the World Trade Organization, attempted to restrict Transdniestrian export since 01.09.2001.
Today Transdniestria is a separate customs territory, and the jurisdiction of the Republic of Moldova does not extend to Transdniestrian territory. The task of the Moldavian side is that the Transdniestria’s status and international assessment criteria of customs territories to be annulled. As a matter of fact, the implemented measures on economic isolation of Transdniestrian region indicate exactly this. Undoubtedly, such measures are qualified as measures on economic blockade of the region, not compliant with the WTO principles.
NOT TO BE PUBLISHED UNTIL AUTHORIZATION
[1] Accession of the Republic of Moldova. Decision. 08.05.2001. WT/ACC/MOL/39. 14 May 2001(01-2457). Protocols of accession for new members since 1995, including commitments in goods and services // Информационный ресурс ВТО. [Электронный ресурс]. Режим доступа: www.wto.org/english/thewto_e/acc_e/completeacc_e.htm
[2] Protocol of accession of Moldova to the Marrakesh agreement establishing the World trade organization. 08.05.2001. WT/ACC/MOL/40. Accession of the republic of Moldova. 16 May 2001 // Информационный ресурс ВТО. [Электронный ресурс]. Режим доступа: http://docsonline.wto.org/imrd/directdoc.asp?DDFDocuments/t/WT/ACC/MOL40.doc
[3] Закон Республики Молдова от 1 июня 2001 г. №218 «О вступлении Республики Молдова во Всемирную торговую организацию» // Мониторул офичиал. — 2001. — №59. [Электронный ресурс]. Режим доступа: http://lex.justice.md/index.php?action=view&view=doc&lang=2&id=313038
[4] Report of the Working Party on the Accession of Moldova to the World Trade Organization. WT/ACC/MOL/37. (01-0151). 11 January 2001// Информационный ресурс ВТО. [Электронный ресурс]. Режим доступа: http://docsonline.wto.org/imrd/directdoc. asp?DDFDocuments/t/WT/ACC/MOL37. doc
[5] Протокольное решение по разрешению возникших проблем в области деятельности таможенных служб Республики Молдова и Приднестровского региона от 7 февраля 1996г., Тирасполь // Архив ГТК ПМР. [Электронный ресурс]. Режим доступа: http://customs.tiraspol.net/images/PDFs/protocol%20decision.pdf
[6] Меморандум «Об основах нормализации отношений между Республикой Молдова и Приднестровьем» от 8 мая 1997 г., Москва //Архив ГТК ПМР. [Электронный ресурс]. Режим доступа: http://customs.tiraspol.net/images/PDFs/moscow_memorandum_rus.pdf
[7] Соглашение об организационных основах социально-экономического сотрудничества между Республикой Молдова и Приднестровьем от 10 ноября 1997 г. [Электронный ресурс]. Режим доступа: http://mfa-pmr.org/?category_no=488&p=
[8] Report of the Working Party on the Accession of Moldova to the World Trade Organization. WT/ACC/MOL/37. (01-0151). 11 January 2001. Art.47. [Электронный ресурс]. Режим доступа: http://docsonline.wto.org/imrd/directdoc. asp?DDFDocuments/t/WT/ACC/MOL37.doc
[9] Протокольное решение по разрешению возникших проблем в области деятельности таможенных служб Республики Молдова и Приднестровского региона от 7 февраля 1996г., Тирасполь. П.3.// Архив ГТК ПМР. [Электронный ресурс]. Режим доступа: http://customs.tiraspol.net/images/PDFs/protocol%20decision.pdf
[10] Протокол по согласованию образцов печати и штампов для обработки таможенных документов таможенными органами Приднестровья от 11 марта 1996 г.// Архив ГТК ПМР.
[11] Протокол встречи рабочей группы представителей таможенных служб Республики Молдова и Приднестровья от 20 марта 1997 г., Кишинев// Архив ГТК ПМР.
[12] Меморандум «Об основах нормализации отношений между Республикой Молдова и Приднестровьем» от 8 мая 1997 г., Москва. Ч.2. П.3.// Архив ГТК ПМР. [Электронный ресурс]. Режим доступа: http://customs.tiraspol.net/images/PDFs/moscow_memorandum_rus.pdf
[13] Постановление Парламента Республики Молдова от 12 декабря 1998 г №217-XIV «О мерах по реализации Закона о бюджете на 1999 г.»// Мониторул офичиал. — 1998. — №№119-120. [Электронный ресурс]. Режим доступа: http://lex.justice.md/index.php?action=view&view=doc&lang=2&id=306764
[14] Постановление Правительства Республики Молдова от 28 апреля 1999г. № 362 «Об общих внутренних контрольных налоговых постах». П. 1 // Мониторул офичиал. — 1999. — №№45-47. [Электронный ресурс]. Режим доступа: http://lex.justice.md/index.php?action=view&view=doc&lang=2&id=292848
[15] П.2. Там же.
[16] Положение о деятельности общих внутренних контрольных налоговых постов от 17 августа 2000 г. Утверждено Приказом Министра внутренних дел Республики Молдова от 17 августа 2000 г. №9/3-301 и Министра финансов Республики Молдова от 23 августа 2000 г. №10-4-09/679// Мониторул офичиал. — 2000. — №№121-123. [Электронный ресурс]. Режим доступа: http://old.justice.md/lex/document_rus.php?id=0421EFE9: A5EFB360
[17] Протокол встречи делегаций Республики Молдова и Приднестровья по проблеме координации действий в области торгово-экономической и научно-технической деятельности от 13 июля 1999 г., Кишинев. [Электронный ресурс]. Режим доступа: http://mfa-pmr.org/?category_no=488&p=
[18] Протокол о взаимном признании действия на территории Приднестровья и Республики Молдова документов, выдаваемых компетентными органами сторон от 16 мая 2001 г., Тирасполь. П. 3.// Архив ГТК ПМР.
[19] The procedure is specified by separate provisions of GATT (WTO)