「殺敵一百，自損一千」？美眾議院聯名上書，呼籲取消加征半導體關稅

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大部分從中國進口的半導體產品都是由美國半導體公司設計製造的，只不過是在中國進行組裝、測試和封裝等低價值流程，這部分產值僅佔到最終產品價值的10%左右。美國企業的半導體設備和材料產業每年向全球出口價值240億美元的產品，其中，向中國出口的比例約為20億美元。

文｜Aki

校對｜樂川

圖源｜集微網

集微網消息，2018年6月，美國貿易代表辦公室（USTR）宣布，將對包括半導體產品在內的約340億美元的中國進口產品實施加征25%。

當地時間7月27日，美國眾議院領導人呼籲特朗普政府從對中國加征的關稅名單中去除半導體及相關產品，避免這一類產品在未來幾天或幾周被施加高達25%的關稅。

由49名國會議員組成的代表小組向美國貿易代表Robert E. Lighthizer遞交了相關呼籲信，試圖說服特朗普政府對半導體加征關稅將無法打擊中國的貿易，也無法實現政府的目標。相反的，這一舉措更有可能傷害美國的企業和消費者。

美國行業組織半導體行業協會（Semiconductor Industry Association，SIA）也支持這一觀點，並在不斷敦促政府不要對半導體及相關產品加征關稅。

國會議員在信中寫道：「我們非常明白美國貿易代表辦公室之所以加征25%的關稅是針對中國政策的改變，也非常同意這一目標。但是，我們並沒有看到對進口半導體及相關產品加征關稅對這一目標有任何幫助。加征關稅將不會影響中國企業，因為他們幾乎沒有半導體產品出口到美國市場。反而會損害美國企業的利益和創新。」

信中也強調，大部分從中國進口的半導體產品都是由美國半導體公司設計製造的，只不過是在中國進行組裝、測試和封裝等低價值流程，這部分僅佔到最終產品價值的10%左右。因此，國會議員認為，加征關稅並不是一個非常合理的措施，也不會對中國政府產生太多壓力。

「中國正在實施一項高達1500億美元的國家補貼計劃（集微網註：大基金），實現持續的竊取專利、強制技術轉讓、國家併購以及反壟斷制度的應用，最終實現保護主義的目的，從而建立自己的國產晶元產業。我們同意有必要解決這些問題，但是這並不意味著加征關稅能夠改變中國的這些做法，因為這一措施幾乎對中國國內的晶元產業沒有任何影響。」

部分議員簽名

此外，信中還強調了半導體產業對美國經濟的重要性，指出半導體產業僱傭了25萬的美國員工，提供了近百萬個美國就業崗位。美國的半導體企業約佔全球半導體市場的一半份額和美國國內近19個州的製造業，這些都有助於半導體產業成為美國的第四大出口類別。

據了解，美國企業的半導體設備和材料部門為全球的半導體製造商提供必要的工具和材料，每年向全球出口價值240億美元的產品，其中，向中國出口的比例約為20億美元。事實上，美國是全球半導體製造設備和材料生產的領導者，佔全球40%的市場份額，而美國公司在本國內生產的產品超過80%。

另一方面，中國是全球最大也是增長速度最快的半導體和設備消費市場。數據顯示，2017年中國市場消費的晶元約佔全球的32%，2018年設備採購費用佔全球的17%，2019年將增長到25%，可謂增長迅猛。信中指出，美國應當在政策上公平的條件下幫助企業擴大市場，保護美國企業的知識產權，而不是通過關稅，損害美國的半導體產業。

對於加征關稅這件事，美國行業組織半導體行業協會（Semiconductor Industry Association）也表達了類似的擔憂，強調對半導體及相關產品施加關稅是錯誤的做法。SIA預估2017年美國自中國進口金額為25億美元。在實施關稅制裁之後，很有可能這25億美元的產能全部轉由美國本土承擔。言下之意，美國半導體企業顯然並不樂意承擔「低價值製造產業」回歸美國所帶來的產品成本和人力成本上升。

SIA此前提交了一份文件，希望特朗普政府從一系列價值約160億美元的中國進口產品中刪除39種產品類別。在文件中，SIA表示，由於美國從中國進口的大部分半導體產品，都是在美國設計或製造，再運往中國進行測試和包裝，因此，從中國進口半導體的統計數據具有誤導性。

此前，據華爾街日報報導，美國貿易代表署辦公室（USTR）自7月24日起就「總值160億美元中國進口商品徵收25%的關稅事宜」啟動為期兩天的公開聽證會。

SIA表示在聽證會上作證，估計擬議的關稅將影響從中國進口的美國半導體晶元約36億美元及額外的27億美元。也就是說，SIA建議從160億美元的制裁清單中扣除63億美元在美國本土設計和製造的半導體進口金額。

SIA對此次聽證會表現出擔憂：「關稅將削弱美國的技術領先地位、導致工作機會流失並對美國半導體產品消費者和美國半導體生產商造成不利影響。」同時，美國國家零售業聯盟（National Retail Federation，NRF）與65個商業團體在24日警告USTR，對中國進口產品徵收關稅不會產生政府所希望看到的結果。

此外，SEMI也曾提交了書面評論，並就關稅對美國半導體行業的破壞性影響提供了證據。雖然SEMI強烈支持努力更好地保護有價值的知識產權，但這些關稅無助於解決美國對中國貿易行為的擔憂。相反，關稅會通過增加商業成本，引入不確定性和扼殺創新來損害半導體供應鏈中的公司。

信件原文如下：

Congress of the United States

washington, dc 20515

July27,2018

The Honorable Robert E Lighthizer

United States Trade Representative

Office of the United States Trade Representative

600 17t Street NW

Washington, D. C 20508

Dear Ambassador Lighthizer:

We write to you to highlight the importance of the semiconductor industry to the u.s. economy, and to express our concerns with the proposal to impose tariffs of 25 percent on $6.3 billion in u.s. imports of semiconductor devices, semiconductor manufacturing equipment, and related products from China. Doing so will not only fail to encourage China to address forced tech transfer and IP theft, it will adversely impact the semiconductor industry value chain in the United States. We urge you to remove all semiconductor products and semiconductor manufacturing equipment from the final tariff action and, importantly, devise more effective solutions to address China』s discriminatory and unfair trade practices in the semiconductor industry.

We share the Administration』s goal of maintaining a strong and growing semiconductor industry in the United States. Semiconductors are America』s fourth largest export, with a healthy trade surplus in devices of over 6 billion dollars in 2017, including a surplus with China. The industry directly employs approximately 250,000 workers in the U. S, with manufacturing operations in 19 states, and American semiconductor companies command approximately half of the global market.

The semiconductor equipment and materials sector, which provides the necessary tools and specialty materials to semiconductor manufacturers, exported more $24 billion worth of goods globally, and nearly $2 billion directly to China. In fact, the United States is the global leader in producing semiconductor manufacturing equipment and materials, holding about 40 percent of the global market share, with u.s. companies exporting more than 80 percent of what is produced domestically.

We understand that USTR"s goal with the proposed tariff action is to bring about policy change in China, and we agree with this goal. However, we fail to see how tariffs on imported semiconductor and semiconductor equipment can achieve that goal. Tariffs on semiconductors will not impact Chinese companies since they export almost no semiconductors to the u.s. market. Instead, these tariffs would harm U. S. companies and innovators. Most u.s. imports of semiconductors from China are designed and manufactured by U. S firms, largely in the United States, and then shipped to China for final assembly, test and packaging. This step in the semiconductor manufacturing process comprises approximately 10 percent of the value of the final product and does not result in the transfer of valuable IP. Similarly, imports of finished semiconductor tools are essentially non-existent. Rather, imports of relatively low-value/low-p components are incorporated into high value-added tools made by U. S. equipment makers and sold around the world.

In addition to misdirecting penalties at the u.s. semiconductor value chain, the proposed tariffs fail to provide the U. S with meaningful leverage to press China to change its behavior. As out lined in your Section 301 report, China is engaged in a colossal $150 billion state subsidy program, ongoing and persistent IP theft, forced technology transfer, state-backed M&A, and application of its anti-monopoly regime for protectionist purposes to build out its domestic chip sector. We agree that it is essential to address these policies but fail to see how tariffs on American chip firms will change these Chinese practices as they will not have any meaningful impact on China』s domestic chip Industry.

We call on the Administration to explore more effective and targeted policies, such as penalties for state-actors engaging in IP theft, WTO cases, and strengthened multilateral action with our allies to address the transfer of sensitive technology.

Semiconductors and their supporting supply chain are the bedrock of the digital and information economy and a key component of America』s technology leadership. Our response to the discriminatory practices found in USTR』s 301 report should be targeted, effective, and avoid jeopardizing America』s leadership in this important technology. China is the world』s largest and fastest growing market for semiconductors and equipment, totaling nearly 32 percent of the global market in 2017 for chips, and for equipment, 17 percent in 2018, and growing to 25 percent in2019. u.s. policies in this area must be properly focused on expanding access to global markets on fair terms and protecting our IP, while also avoiding harm to our own industry.

We look forward to working with you to remove semiconductors, semiconductor manufacturing equipment, and related products from the 301 tariff action, and to develop tough and effective remedies that are properly tailored to achieve our shared goals.

Sincerely,

END

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