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### Viewing cable 04MANAMA272, GEARING UP FOR FTA ROUND TWO: STICKY ISSUES

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
04MANAMA272 | 2004-02-26 11:16 | 2011-08-24 01:00 | UNCLASSIFIED | Embassy Manama

`

    This record is a partial extract of the original cable. The full text of the original cable is not available.

` `

    UNCLAS SECTION 01 OF 04 MANAMA 000272

    SIPDIS

    DEPT FOR EB/TPP/BTA, EB/TPP/MTA, EB/TPP/ATT AND NEA/ARP
    DEPT PASS USTR JASON BUNTIN
    CAIRO FOR STEVE BONDY

    E.O. 12958: N/A
    TAGS: ETRD ECON BA
    SUBJECT: GEARING UP FOR FTA ROUND TWO: STICKY ISSUES

    REF: A. MANAMA 219

         ¶B. MANAMA 249
         ¶C. MANAMA 203

    -------
    SUMMARY
    -------

    ¶1.  FTA round one produced remarkable progress.  Round two
    promises to be more difficult because negotiators will have
    to tackle sticky issues.  Eliminating physical presence
    requirements and disclosure of judicial decisions will likely
    require extensive revision of local laws.  Textiles,
    technology choice for telecommunications, duty-free market
    access for motor vehicles and patenting of animals will
    require resolution.  Jameel Al Alawi, Legal lead negotiator,
    told EMBOFFS that he had instructed negotiators to agree to
    FTA texts in principle only.  Yet overall, there is a strong
    push to conclude as many chapters as possible during round
    two.  IPR, financial services, and market access lead
    negotiators told ECONOFF that they did not want their groups
    to delay a June signing.  Ministry of Finance and National
    Economy's Yousif Humood, de facto coordinator for the
    Bahraini delegation, assured ECONOFF February 25 that
    schedules of negative lists requested during round one
    negotiations were being approved by the ministers responsible
    and would be ready for round two.  END SUMMARY.

    -------------------------
    Overarching Legal Issues
    -------------------------

    ¶2.  Jameel Al Alawi, legal lead negotiator and Ministry of
    Cabinet Affairs Director of Agreements and Treaties, told CDA
    February 24 that Bahrain's negotiators are not necessarily
    legal experts and are sometimes unaware of changes that FTA
    provisions would require to existing laws.  Therefore, he has
    cautioned all lead negotiators that they may agree to texts
    in principle only.  Legal Affairs will need to check for
    conflicts between the text and existing laws.  Negotiators
    will have to obtain authorization from the relevant ministry
    or ministries to accept provisions that would require changes
    to Bahraini law.

    ¶3.  Al Alawi Emphasized to CDA that it is much more difficult
    to change laws once drafted than to write them appropriately
    to begin with.  Reworking laws would require much time and
    GOB resources would be stretched.  He alerted CDA that many
    of the ministries lack legal advisors altogether, and that
    those advisors that are on staff are not always good enough,
    experienced enough, or have the appropriate specialty to
    draft good laws.  Specifically, Al Alawi said that many of
    Bahrain's legal advisers are Egyptians who are computer
    illiterate and lack sufficient English language skills to
    remain up-to-date.  When CDA suggested that the GOB ask for
    technical assistance funding to support (re-)drafting of laws
    to enact FTA, Al Alawi countered that the GOB had not had
    good experience with outsourcing legal advice, since lawyers
    thus procured tended to be unfamiliar with Bahraini law,
    tended to be commercially minded, and substituted
    cookie-cutter copying of other countries' existing laws for
    drafting expertise.  (COMMENT:  Bahrain's Constitution was
    largely drafted by foreigners.  END COMMENT.)

    ¶4.  Looking ahead, Al Alawi alerted CDA that there is a
    constitutional provision that allows for fast track enactment
    of laws of an "important economic nature".  This provision
    requires parliament to act on the draft within 15 days.
    (Note:  Al Alawi was not explicit about which article of the
    Constitution he was referring to.  Post is checking the
    constitution to verify the pertinent provision.  END NOTE.)

    ---------------------------
    Schedules of negative lists
    ---------------------------

    ¶5.  Ministry of Finance and National Economy Director of
    Economic Planning Yousif Humood told ECONOFF February 25 that
    all the requested schedules (services, financial services,
    market access, government procurement) had been forwarded to
    the relevant ministerial-level authorities for approval.  He
    said he hoped to have them ready to pass to the U.S. side by
    February 26th to give U.S. negotiators the opportunity to
    study the lists.

    --------
    Textiles
    --------

    ¶6.  Lead negotiator for textiles Haitham Al Gahtani told
    Senate Finance/Commerce Committee Staffdel visitors February
    21 that Bahrain will seek fabric-forward and TPL to allow
    time for a gradual, "cooperative integration" of the
    industry, with Bahrain moving away from ready-made garment
    production and developing in its place textile design,
    shipping and financing capabilities.

    ¶7.  As in the U.S., textiles is a politically-charged issue
    here with real economic ramifications for segments of the
    population.  Textiles, comprising ready-made garments (80
    percent) and gray cloth (20 percent), are Bahrain's primary
    non-oil export to the United States.  While Bahrain's
    contribution to overall U.S. textile imports is negligible,
    Gahtani said, in Bahrain the sector represents at least
    10,000 jobs, including roughly 3,500 for less educated, hard
    to re-employ female Bahraini Shia.  The rise of the industry
    is attributed to foreign investors seeking to take advantage
    of the existing U.S. textile quota system; most of the
    industry is not expected to survive the end of quotas on
    December 31, 2004.  Some factories here may relocate to
    countries where labor is significantly cheaper, especially in
    East Africa, Asia, and the Indian sub-continent.  Direct and
    indirect impact of the loss of textile jobs in Bahrain would
    shock the local economy, Al Gahtani said.  It is widely
    feared that this shock would negatively affect political
    stability in Bahrain.

    ------------------
    Financial Services
    ------------------

    ¶8.  The financial services group has been communicating by
    e-mail with U.S. negotiators, Dr. Abdulrahman Saif, financial
    services lead negotiator, told ECON February 25.  They sent a
    list of issues for clarification to their U.S. counterparts
    early this week and are waiting for a reply.  A February 26
    meeting is scheduled with the Minister to review and approve
    Bahrain's proposed financial services negative list in time
    for round two.  Abdulrahman Saif said that he had not yet
    received the U.S. negative list for financial services, but
    looked forward to discussing both sides' offers at the
    negotiations.

    ¶9.  Regarding discussions during round one of a moratorium
    limiting commercial banks in Bahrain to those 19 with
    existing licenses,  Abdulrahman Saif said that he considers
    this moratorium lifted, since over the last few years, five
    new licenses were issued.  Abdulrahman Saif told ECONOFF
    February 25 that he would check with his legal advisor to
    find out more details about this.

    ¶10.  On insurance, Abdulrahman Saif stressed to ECONOFF
    February 25 that he expects a positive discussion of
    cross-border supply of insurance services.  Ghalib Hammoudi,
    AIG's local representative, has told EMBOFFS on numerous
    occasions that he is concerned about market access as
    provided for in the draft insurance law.  The draft law does
    not make provision for agents, AIG's principal way of doing
    business.  In addition, the BMA has not responded to AIG's
    application to expand its business lines to all insurance
    products.  AIG is in the process of applying to USDOC's
    advocacy center for USG and Embassy support.

    ¶11.  Bahrain looks to bring Islamic banking, investment, and
    insurance to the U.S. market, particularly to serve the U.S.
    Muslim community, but also to attract non-Muslims looking for
    ethical investment products, CitiIslamic Bank's Raj Mittal
    told ECONOFF on numerous occasions.  Bahrain has become a
    global Islamic banking center by introducing regulations
    standards and creating new Islamic products.  Afaq Khan, Head
    of Islamic banking at Standard Chartered in Dubai and
    formerly at HSBC told ECONOFF February 25 that HSBC had had
    less than stellar results when it introduced Islamic home
    mortgages in New York State.  Because of the asset structure
    of Islamic mortgages, double-taxation (capital gains) and
    increased legal costs made the mortgages uncompetitive in the
    market.  In addition, when HSBC tried to expand their offer
    to Connecticut and New Jersey, they faced these legal
    challenges anew, producing limited positive outcomes.

    --------
    Services
    --------

    ¶12.  Holidays and ministerial travel prevented a number of
    involved ministries from submitting their the services list
    of non-conforming measures in a timely fashion, Eman Al
    Doseri, Ministry of Commerce Head of Foreign Trade and
    International Organizations and a member of the services
    negotiating team told ECONOFF February 21 and again February
    ¶24.  However, on February 25, Yousif Humood assured ECONOFF
    that the list was awaiting ministerial approval and should be
    ready for round two.

    ¶13.  Current GCC non-conforming measures are based on current
    laws and regulations, Al Doseri said, so they might be
    difficult to change, especially since they involve other
    countries.  The Bahraini delegation will likely seek
    grandfathering.  (COMMENT:  In exchange for grandfathering
    these non-conforming measures, Bahrain may well be prepared
    to offer the United States treatment equal to that of GCC
    members.  END COMMENT.)

    ¶14.  Further, on mode 3 supply of services, Al Doseri
    stressed that Bahrain's commercial law requires physical
    presence for Bahrainis as well as non-Bahrainis.  Yet, it is
    clear from anecdotal evidence that Bahrain does not restrict
    products from entering Bahrain through companies such as
    amazon.com or e-bay.  In fact, the Directorate of
    Publications and Press cited amazon.com to ECONOFF as one of
    the principal sources of parallel imports of Zone 1 DVDs (see
    Manama 249).  Local laws may need to be amended to conform
    with standard practice and to legalize cross-border supply,
    especially in light of Bahrain's eagerness to develop
    e-commerce opportunities.

    ------------------
    Telecommunications
    ------------------

    ¶15.  Lead Telecommunications negotiator Sheikh Hamad bin
    Mohamed Al Khalifa told ECONOFF February 24 that he does not
    want the pace of telecoms liberalization, scheduled in the
    telecoms law for completion by the end of 2004, to hold up
    signing an FTA in June.  He is concerned that the U.S. side's
    understanding of the Bahraini licensing requirement for
    cross-border provision of telecoms services (e.g.,
    long-distance, internet) is incomplete:  there is no pre-set
    limit on international licensing; a switch constitutes
    physical presence; Bahraini concern over cost-oriented
    interconnection revolves around the inability to enforce
    regulations on a non-licensed company that is providing
    services in Bahrain.

    ¶16.  Issues subject to ongoing consultation by the
    Telecommunications Regulatory Authority (TRA), such as number
    portability, are also of concern to Al Khalifa.  He said that
    including such provisions in the FTA pre-judges outcomes of
    the consultative process.  In exchange for "greater
    understanding" on the above issues, Al Khalifa is prepared to
    engage on the "more substantive" issue of technology choice
    for mobile operators.

    -------------
    Market Access
    -------------

    ¶17.  Market access lead negotiator Hassan Ali Al Majed told
    ECONOFF February 21 that he had sent forward to USTR
    Bahrain's WTO list of prohibited items.  He said that Bahrain
    was prepared immediately to put up for consideration 92
    percent of U.S. trade with Bahrain, the initial offer would
    be subject to ministerial approval.  Al Majed said that the
    underlying reason for the auto exclusion is that there were
    already too many cars on this small island, causing traffic
    congestion and pollution, and that eliminating the 5 percent
    tariff would make cars affordable to many more potential
    owners.  Separately, a key Bahraini negotiator told CDA
    February 17 that import tariffs collected on imported
    vehicles is important to the Finance Ministry.  (COMMENT:  We
    would not be surprised if there were pressures from prominent
    Bahraini families who import non-American cars.  END COMMENT.)

    ----------------------
    Government Procurement
    ----------------------

    ¶18.  The GOB is seeking clarifications as to whether existing
    government procurement laws meet FTA requirements and are
    waiting for requested documents from the U.S. negotiators to
    prepare offers.  Legal lead negotiator Jameel Al Alawi told
    CDA February 24 that one point of contention may be that
    Bahrain extends preferential treatment in government
    procurements to GCC suppliers.

    ---
    IPR
    ---

    ¶19.  Bahrain will need to develop its enforcement laws,
    including establishing standardized and sufficiently punitive
    damages provisions for IPR infringements, Legal lead
    negotiator Jameel Al Alawi told CDA February 24.  He also
    mentioned to ECONOFF on numerous occasions over the past few
    weeks that Bahrain would have difficulty with the patenting
    of animals because the concept is inconsistent with the
    Islamic tenet that only God can create and destroy life.  He
    added that disclosure of judicial decisions is not normal
    modus operandi here generally.  Such a provision would
    require Bahrain to amend its laws.

    -----
    Labor
    -----

    ¶20.  On Labor, lead legal negotiator Jameel Al Alawi expects
    Bahrainisation policies (i.e., industry-specific quotas for
    minimum percentages of Bahraini national employees applied at
    the company level) to present some problems in negotiation.
    He stressed to CDA February 24 that U.S. immigration policies
    and Bahrainisation are different means to the same end -- job
    protection for the local labor force.  An FTA, he said, aims
    for free movement of goods and services, not necessarily of
    people.

    -------
    Customs
    -------

    ¶21.  In a February 24 discussion with CDA, Bahrain's lead
    legal negotiator Jameel Al Alawi wondered how the FTA would
    work on a practical level relative to the existing GCC
    customs union.  At present, re-export tariffs are levied at
    the border when goods exit Bahrain for another GCC country.
    However, beginning in 2005, the GCC customs union envisions a
    single point of entry, so that once goods have arrived in one
    GCC country, they can be transported freely within the GCC.
    A mechanism will have to be established to assure that goods
    arriving duty-free to Bahrain from the United States would
    not be re-exported duty-free throughout the GCC after FTA
    implementation.
    FORD

`