背景简要分析：
从技术层面看，中欧CAI达成后将取代中国与27个欧盟成员国中的26个国家（除爱尔兰以外的所有国家）之间订立的双边投资保护协定（Bilateral Investment Treaty, BIT）。但是，中欧CAI谈判的目标并不限于此，从这一谈判被命名为中欧CAI而非中欧BIT已经显示出双方旨在改变以往“简式”BIT的传统，即仅包括投资保护内容，而寻求达成包括投资自由化目标在内的更富有雄心的综合性双边投资保护协定。投资自由化目标在中欧CAI 谈判中主要体现为与市场准入相关的条款安排，因此，与市场准入相关条款内容的谈判将决定着中欧CAI能否在年内按期完成。有鉴于此，下文拟在分析中欧双方在市场准入方面的主要诉求的基础上，探讨中欧双方磋商的难点并提出政策建议。
欧盟对华投资在市场准入方面的主要障碍
在市场准入方面，欧盟主要寻求在金融业、电信、信息通信技术、制造业、工程和生物技术等关键领域更好的市场准入和公平竞争环境。在推进中欧CAI谈判过程中，欧盟委员会分别于2015年和2018年发布了其委托独立咨询公司对中欧CAI可持续性影响进行评估的报告。2018年发布的评估报告基于以下三个不同标准选出六个产业部门进行分析：一是欧盟对外投资规模；二是未来一段时间内中国可能会吸引欧盟投资的产业部门；三是劳动强度及其对劳动力的影响。六个产业部门是运输设备、采矿和能源开采、化工、食品和饮料制造、金融和保险以及通信和电子设备。经研究认为，在运输设备方面，欧盟运输设备公司在中国投资时面临的主要市场准入障碍是合资要求；在采矿和能源开采方面，欧盟企业在中国面临的问题是一些子行业对外国投资开放，而其他子行业则完全封闭；在化工行业方面， 欧盟投资者在中国面临的主要障碍是跨国公司受与国内公司不同的规则约束。在食品和饮料制造行业， 欧盟公司面临的问题是需要中国合伙人持有多数股份，申请多个许可证书；在金融保险方面，市场准入问题包括所有权限制、股本上限和分支机构网络扩张限制；在通讯与电子设备方面，报告认为政府鼓励通信和电子设备行业的外国企业来华投资，但另一方面，对广泛的外国ICT产品和服务也有严格的限制， 目的是实现国产替代，这导致了巨大的市场准入壁垒。
该报告认为，中国如减少对上述这六个关键行业外国产品和服务的限制和投资壁垒，所有这些行业均将从中欧CAI中受益，而欧盟在这些行业产出的增加则会导致欧盟低技能和高技能就业人数的增加， 并且一些产业部门的开放，还会使欧盟之外的国家也受益，例如汽车业。此外，欧盟和中国的中小企业也将从中欧CAI中受益，因为它们通常会因投资相关障碍而面临不成比例的成本，欧盟和中国的本地中小企业都有望获得积极的市场准入和生产率溢出效应。
中文版协定核心内容：
在过去的20年中，从欧盟流入中国的欧盟累计外国直接投资（FDI）已超过1400亿欧元。对于中国对欧盟的直接投资，这一数字接近1200亿欧元。就中国经济的规模和潜力而言，欧盟在中国的外国直接投资仍然相对较少。
在投资方面，中欧全面投资协定（CAI）将是中国与第三国缔结的最雄心勃勃的协定。除了禁止强制转让技术的规则外，CAI还将成为首个履行对国有企业行为的义务，对补贴的全面透明规则以及与可持续发展有关的承诺的协议。
CAI将确保欧盟投资者更好地进入快速增长的14亿消费市场，并确保他们在中国的公平竞争环境中竞争。这对于全球竞争力和欧盟工业的未来发展非常重要。
中国雄心向欧洲投资开放
首先，CAI约束了中国过去20年的投资自由化，从而防止了回落。这使欧盟公司的市场准入条件变得清晰且独立于中国的内部政策。它还允许欧盟在违反承诺的情况下在CAI中诉诸争端解决机制。
此外，欧盟还就更多领域的新的市场准入开放和承诺进行了谈判，例如取消了数量限制，股本上限或合资企业要求。这些限制严重阻碍了我们公司在中国的业务。总体方案比中国以前承诺的要远大得多。
在欧盟方面，根据《服务贸易总协定》（GATS），服务市场已经开放并为服务行业做出了很大的承诺。欧盟在能源，农业，渔业，视听，公共服务等方面的敏感性都保留在CAI中。
中国的市场准入承诺示例：
改善公平竞争环境–使投资更公平
将可持续发展纳入我们的投资关系
监督执行和争端解决
英文版协定内容：
The cumulative EU foreign direct investment (FDI) flows from the EU to China over the last 20 years have reached more than €140 billion. For Chinese FDI into the EU the figure is almost €120 billion. EU FDI in China remains relatively modest with respect to the size and the potential of the Chinese economy.
As regards investment, the EU-China Comprehensive Agreement on Investment (CAI) will be the most ambitious agreement that China has ever concluded with a third country. In addition to rules against the forced transfer of technologies, CAI will also be the first agreement to deliver on obligations for the behavior of state-owned enterprises, comprehensive transparency rules for subsidies and commitments related to sustainable development.
The CAI will ensure that EU investors achieve better access to a fast growing 1.4 billion consumer market, and that they compete on a better level playing field in China. This is important for the global competitiveness and the future growth of EU industry.
Ambitious opening by China to European investments
Firstly, the CAI binds China's liberalisation of investments over the last 20 years and, in that way, it prevents backsliding. This makes the conditions of market access for EU companies clear and independent of China's internal policies. It also allows the EU to resort to the dispute resolution mechanism in CAI in case of breach of commitments.
In addition, the EU has negotiated further and new market access openings and commitments such as the elimination of quantitative restrictions, equity caps or joint venture requirements in a number of sectors. These are restrictions that severely hamper the activities of our companies in China. The overall package is far more ambitious than what China has committed to before.
On the EU side, the market is already open and largely committed for services sectors under the General Agreement on Trade in Services (GATS). EU sensitivities, such as in the field of energy, agriculture, fisheries, audio-visual, public services, etc. are all preserved in CAI.
Examples of market access commitments by China:
Manufacturing: China has made comprehensive commitments with only very limited exclusions (in particular, in sectors with significant overcapacity). In terms of the level of ambition, this would match the EU's openness. Roughly half of EU FDI is in the manufacturing sector (e.g. transport and telecommunication equipment, chemicals, health equipment etc.). China has not made such far-reaching market access commitments with any other partner.
Financial services: China had already started the process of gradually liberalising the financial services sector and will grant and commit to keep that opening to EU investors. Joint venture requirements and foreign equity caps have been removed for banking, trading in securities and insurance (including reinsurance), as well as asset management.
Health (private hospitals): China will offer new market opening by lifting joint venture requirements for private hospitals in key Chinese cities, including Beijing, Shanghai, Tianjian, Guangzhou and Shenzhen .
Computer services: China has agreed to bind market access for computer services - a significant improvement from the current situation. Also, China will include a ‘technology neutrality' clause, which would ensure that equity caps imposed for value-added telecom services will not be applied to other services such as financial, logistics, medical etc. if offered online.
International maritime transport: China will allow investment in the relevant land-based auxiliary activities, enabling EU companies to invest without restriction in cargo-handling, container depots and stations, maritime agencies, etc. This will allow EU companies to organise a full range of multi-modal door-to-door transport, including the domestic leg of international maritime transport.
Air transport-related services: While the CAI does not address traffic rights because they are subject to separate aviation agreements, China will open up in the key areas of computer reservation systems, ground handling and selling and marketing services. China has also removed its minimum capital requirement for rental and leasing of aircraft without crew, going beyond GATS.
Business services: China will eliminate joint venture requirements in real estate services, rental and leasing services, repair and maintenance for transport, advertising, market research, management consulting and translation services, etc.
Environmental services: China will remove joint venture requirements in environmental services such as sewage, noise abatement, solid waste disposal, cleaning of exhaust gases, nature and landscape protection, sanitations and other environmental services.
Improving level playing field – making investment fairer
State owned enterprises (SOEs) - Chinese SOEs contribute to around 30 percent of the country's GDP. CAI seeks to discipline the behaviour of SOEs by requiring them to act in accordance with commercial considerations and not to discriminate in their purchases and sales of goods or services. Importantly, China also undertakes the obligation to provide, upon request, specific information to allow for the assessment of whether the behaviour of a specific enterprise complies with the agreed the CAI obligations. If the problem goes unresolved, we can resort to dispute resolution under the CAI.
Transparency in subsidies – The CAI fills one important gap in the WTO rulebook by imposing transparency obligations on subsidies in the services sectors. Also, the CAI obliges China to engage in consultations in order to provide additional information on subsidies that could have a negative effect on the investment interests of the EU. China is also obliged to engage in consultations with a view to seek to address such negative effects.
Forced technology transfers – The CAI lays very clear rules against the forced transfer of technology. The provisions consist of the prohibition of several types of investment requirements that compel transfer of technology, such as requirements to transfer technology to a joint venture partner, as well as prohibitions to interfere in contractual freedom in technology licencing. These rules would also include disciplines on the protection of confidential business information collected by administrative bodies (for instance in the process of certification of a good or a service) from unauthorised disclosure. The agreed rules significantly enhance the disciplines in WTO.
Standard setting, authorisations, transparency – This agreement covers other long-standing EU industry requests. China will provide equal access to standard setting bodies for our companies. China will also enhance transparency, predictability and fairness in authorisations. The CAI will include transparency rules for regulatory and administrative measures to enhance legal certainty and predictability, as well as for procedural fairness and the right to judicial review, including in competition cases.
Embedding sustainable development in our investment relationship
In contrast to other agreements concluded by China, the CAI binds the parties into a value-based investment relationship grounded on sustainable development principles. The relevant provisions are subject to a specifically tailored implementation mechanism to address differences with a high degree of transparency and participation of civil society.
China commits, in the areas of labour and environment, not to lower the standards of protection in order to attract investment, not to use labour and environment standards for protectionist purposes, as well as to respect its international obligations in the relevant treaties. China will support the uptake of corporate social responsibility by its companies.
Monitoring of implementation and dispute settlement
注：本文中文翻译自欧盟委员会公开网站及中国发展观察，英文为原文字
