加拿大该如何应对美墨加协定重谈判与特朗普的贸易挑战? TVO Today 2026-06-18

美墨加协定到期挑战

主持人: 美国总统唐纳德·特朗普(Donald Trump)已经非常明确地表示,他并不看好《美墨加协定》(CUSMA)。他曾公开宣称:“我无意更新它。我们不需要加拿大拥有的任何东西。”面对如此强硬的态度,以及迫在眉睫的谈判截止日期,这笔贸易交易的未来究竟意味着什么?今天我们非常荣幸地邀请到了多伦多大学蒙克全球事务与公共政策学院(Munk School of Global Affairs and Public Policy)的德鲁·法根(Drew Fagan)教授,他将在演播室与我共同探讨这一话题。教授,您好。

Original English

Host: U.S. President Donald Trump has made it pretty clear he's no fan of the Canada-U.S.-Mexico Agreement (CUSMA). Well, "I'm not looking to renew it. Hey, we don't need anything that Canada has." Now, he said that last week with a critical deadline looming. So what does that mean for the future of this trade deal? Drew Fagan is a professor at the Munk School of Global Affairs and Public Policy at the University of Toronto, and he joins me in studio. How are you doing, sir?

德鲁·法根: 嗨,主持人。我很好,谢谢。

Original English

Drew Fagan: Hey. All right.

主持人: 距离7月1日的截止日期大约还有两周的时间,这是个价值百万美元的问题。您认为特朗普在《美墨加协定》上会采取什么行动?

Original English

Host: With about two weeks to go before the July 1st deadline, it's the million-dollar question. What do you think Trump will do on CUSMA? So I think...

德鲁·法根: 我认为,无论如何我们都无法在7月1日之前得到一个明确的答案。我甚至不确定我们在今年秋天,或者说在进入2027年之前是否能拿出一个明确的解决方案。事实上,7月1日更像是一个评估时间节点,而不是绝对的截止日期。简而言之,这意味着美墨加三方需要聚在一起,检查各自目前的立场,然后从技术上决定是“同意”还是“反对”将该协议再延长六年。但这并不意味着协议会从现在起延长六年,而是指将协定的有效期从2036年延长至2042年。贸易协定通常考虑的是长期的稳定保障。基于特朗普政府一贯的行事风格和博弈方式,我认为无论是在现在还是今年秋天,协议都不大可能直接获得无条件延长。相反,我们将会进入一个漫长的、甚至是几乎永无止境的持续谈判过程中。

Original English

Drew Fagan: We're not going to have an answer by July 1st by any means. I'm not even sure we'll have an answer one way or the other in the fall or even into 2027. July 1st is really an assessment point more than a deadline. Basically, it means the three parties come together and check where they're at, and then technically decide yay or nay on whether the agreement should be extended for another six years. That doesn't mean six years from now, that means 2036 to 2042. Trade agreements think long term. I think it's likely that that's not going to happen either now or into the fall. And we're going to be into almost an elongated, possibly constant process of negotiations, given the way the Trump administration plays this kind of of this thing.

加拿大的应对策略

主持人: 既然如此,加拿大的应对策略应该是什么?

Original English

Host: With that being said, what should Canada's strategy be?

德鲁·法根: 首先,绝对不要过度反应。加拿大所有的高级官员都非常清楚这一点。千万不要咬住对方释放的钓鱼诱饵。这是非常符合逻辑的操作方式,因为我们已经在很长一段时间里不断面对这种贸易摩擦了。对于加美关系而言,美墨加协定的分量和利益牵涉是极其巨大的。

这里还涉及到一定程度的国家内部团结问题。回想20世纪80年代的加美自由贸易协定,以及90年代的北美自由贸易协定(NAFTA),以及我们在特朗普第一任期内所称的“特朗普一号美墨加协定”。在这类博弈中,作为小国——也就是我们自己,尽管我们不是一个小经济体,我们是世界第十大经济体,但美国才是那个超级大国,是规则的主导者——保持用同一个声音说话是至关重要的。考虑到加拿大的国土面积以及各省之间不同的经济结构,要做到这一点确实非常困难。这需要联邦总理及其团队全力以赴,确保各省省长在同一个层面上思考,让所有人都能够理解各方的底线所在,并且明确知道我们可以做出哪些权衡和让步。而这一协调过程目前正在积极推进中。

Original English

Drew Fagan: Well, so one, don't overreact. All the senior officials know that. Don't take the bait. And and that's a logical thing to do because we've been doing that for a long, long time. And CUSMA is as big a stakes get with regard to Canada-U.S. relations. Then there's the issue of some degree of national unity. You think back to the free trade agreement in the 80s, NAFTA and the 90s, CUSMA in Trump one as we call it. It was important that the little guy—that's us. We're not a small economy. We're the 10th biggest economy in the world. But they're the big guy. They're the big dog. We need to speak with one voice, and that's hard, given the size of the country and the many economies within it. It's up to the Prime Minister and his team to ensure that the Premier's business, if they're not on one page, they understand where everybody's out and where is where everybody's at and where the trade offs are. And that is happening.

主持人: 我们已经看到安大略省省长道格·福特(Doug Ford)的态度最近发生了一些转变。这释放了什么样的信号?

Original English

Host: We've seen with Premier Doug Ford singing a different tune. Is that what that's signaling towards?

德鲁·法根: 确实如此。尽管道格·福特的立场有时显得有些令人难以捉摸,但我认为最近他变得更加有纪律性,更具大局观和团队协作精神。在加美关系的早期阶段,他扮演了一个很有意思的角色,有点像加拿大的“急先锋”。那主要发生在加拿大联邦总理贾斯汀·特鲁多(Justin Trudeau)与联邦政府委任的经济顾问马克·卡尼(Mark Carney)合作的期间,而道格·福特则逐渐成为了代表地方发声的代言人。如今,卡尼这位行事严谨、专注于政策制定的学者实际上正在主导相关工作。

我认为你可以看到这种团队协作的力量正在走向前台。福特省长将不得不在特定的情境下做出一些艰难的决定。他必须清醒地认识到加拿大这个国家有多大,内部存在着多少个不同的地方经济体。

Original English

Drew Fagan: Absolutely. He's a bit of an unknowable, but I think lately he's become a little bit more disciplined and a little bit more of the team. He played an interesting role early as kind of this Captain Canada thing. That was in part during the period between Trudeau and Carney, and he became the voice. Now Carney disciplined, focused policy wonk is really in charge. And I think you can see that coming to the fore. And he's going to have to make some tough decisions on the give and take in the context of how big the country is and how many economies there are.

谈判的最佳情景与让步空间

主持人: 那么让我们来深入探讨一下。对加拿大而言,这里的“最佳情景”是什么?例如,是彻底取消现有的所有惩罚性关税,还是有更多可能争取的目标摆在桌面上?

Original English

Host: Well, let's talk about that. What's the best case scenario for Canada here? Is it, for example, the existing tariffs being removed or is there more on the table here?

德鲁·法根: 实际上,特朗普政府强加的现有关税是不大可能被完全免除的。但第一个要明确的事实是,这些关税仅存在于加拿大出口到美国的一小部分商品上,大约占总额的10%到15%。因此,它们并没有对加拿大整体经济造成毁灭性的打击。尽管特朗普政府的关税举措存在诸多问题,但到目前为止,美方在很大程度上依然尊重了《美墨加协定》的总体技术条款。

因此,华盛顿方面坚称某些特定关税仍将继续存在。而加拿大方面的目标则是希望在未来的谈判中降低这些关税。在2018年最初的美墨加协定谈判中,我们成功免除了一些原本要施加在相同产品上的关税,无论是华盛顿还是加拿大智库都注意到了这一博弈过程。接着,核心问题就在于如何在巨大的不确定性中,尽可能快速地达成一项保障协议。我认为这需要相当长的一段时间。

目前的情况非常接近维持现状(status quo)。我之所以说是“接近维持现状”,是因为为了最终达成协议,我们很可能不得不做出一些相应的妥协和让步。

Original English

Drew Fagan: So the existing tariffs the Trump administration insists will not be removed. The first point is they only exist on a small percentage of Canadian exports to the United States, 10 to 15%. So they haven't been devastating. And the Trump administration, however problematic they are up until now, has respected, by and large the technical terms of CUSMA. So Washington insists some tariffs will remain. We want to get those down in the first negotiation of CUSMA in 2018, we managed to get tariffs that were applied to the same products off Washington CSIS not. And then it's an issue of getting a deal as quickly as possible given the uncertainty. And I do think it's going to take a while. That is close to the status quo. I say close to because it's probably they're probably going to be some gives that we're going to have to make to get that.

主持人: 既然谈到了妥协,加拿大可能需要做出哪些具体的让步?

Original English

Host: Well, let's talk about those. What are some of the compromises that Canada might have to make?

德鲁·法根: 比如在流媒体和文化主权问题上。加拿大在何种程度上将本国文化视为国家主权的一部分,与美国将其仅仅视为纯粹的娱乐产业,这二者之间一直存在观念冲突。这一争议可以追溯到最初的自由贸易协定谈判时期。

总理和内阁在之前为了限制针对美国流媒体巨头的某种税收政策而做出了让步,这些流媒体巨头本被要求资助加拿大的本土影视制作,但联邦政府最终从这一强硬立场上退让了。这只是一个近期的例子。

此外,我还想提到另外两点:第一是供应链管理,第二是我们的乳制品和家禽类生产者。我认为这是我们在谈判中必须面对的既定现实。首先,我们在特朗普第一任期时就已经在乳制品市场上做出了妥协。我们在一定程度上向美方开放了市场,但这让加拿大纳税人付出了大约40亿加元的补偿成本。在这一轮谈判中,类似的情况很可能会再次发生。我认为总理对于看到这一结果并不会感到太难过,因为他非常清楚,乳制品供应链的保护政策实际上在某种程度上拖累了加拿大的整体经济效率。

另一个核心领域是汽车产业。这显然是道格·福特省长的核心关注点。虽然对加拿大或美国而言,传统的燃油汽车组装并不是代表未来发展方向的朝阳板块,但我们必须尽最大努力去保护现有的汽车生产和组装份额。而在这一领域,真正的全球市场竞争核心其实是零部件生产商,其重要性甚至超过了整车组装厂。我们必须在此处做好平衡。

Original English

Drew Fagan: To make? Well, you've already seen one with regard to online streaming and the issue of culture and the degree to which Canada views culture as something of national sovereignty, and the United States views it as entertainment, that's been an issue going back to the original free trade agreements. So the step the Prime Minister and Cabinet took last week to limit the kind of tax, if you like, on American streamers that fund a Canadian production, they stepped back from that. Last week. I'd mention a couple of other things supply management, our dairy and poultry producers. You know, I think that is a give that we made. First of all, we made it in Trump. One, we opened the market, you know, to some extent, it did cost the taxpayer about three, $4 billion in compensation. The same thing may happen here. And I think the Prime Minister wouldn't be upset to see that happen, because I think he understands very well the fact that it's a bit of a drag on the Canadian economy. The other point is autos, and that's fundamental, obviously, to Doug Ford. It's not a sector of the future for this country or, for that matter, the United States. We have to protect, protect, protect production, assembly to the extent we can in that sector. The world beaters are really the parts producers less than the assembly assemblers. Right. But we're going to have to balance that out as well.

最坏情景与谈判筹码

主持人: 那么最坏的情况是什么?我并不想在此传播消极情绪,但如果加美最终无法达成贸易协议,这将对加拿大的经济产生怎样实质性的冲击?

Original English

Host: Worst case scenario here, I don't want to want to, you know, be the negative one here. But if a deal is not reached, how does what's the impact here on Canada's economy?

德鲁·法根: 我认为,无法达成协定的状态并不会立刻得到一个最终的宣判,这种不确定性会持续相当长的时间。从某些方面来看,对特朗普政府而言,最完美的状态是保持现有的美墨加协定框架不变,但在此基础上,通过长期的、跨越2027年甚至更久的谈判过程,对协议条款进行逐条、零星的修改和蚕食。

加拿大方面自然希望能够更快地锁定协定,但我们也深知争取到一项“正确且合适”的协定的重要性。为此,我们愿意花费必要的时间去和美方周旋。我认为这正是加拿大谈判团队目前的真实立足点。

Original English

Drew Fagan: So the issue of whether a deal is reached is not going to be answered. I don't think, for some time. In some ways, what's perfect for the Trump administration is to keep the agreement in place and change it piece by piece, over an extended period of time into 27, possibly even past that. We want something quicker, but we know that we want the right deal, you know, and we will take the time necessary. I think that's where they're at right now to get the right deal.

主持人: 那么,一项对加拿大而言“正确且合适”的贸易协定到底长什么样?这并不意味着我们手中没有可以打的牌。如果借用特朗普本人的商业术语来说,我们的谈判筹码是什么?

Original English

Host: So what does the right deal look like? It's not like we don't have cards to play. To use President Trump's term.

德鲁·法根: 我们的筹码在于关键矿产能源。美国对这些资源有着极其迫切的需求。当特朗普宣称“我们不需要加拿大的任何东西”时,这显然违背了客观的经济事实。

事实上,加拿大对美贸易长期保持着顺差,这也是特朗普一直抱怨的痛点。但在关键矿产等领域,加拿大的资源能够为美墨加协定注入核心动力。回看20世纪80年代,当时的谈判核心是能源供给。美方当时极其看重我们在能源市场和矿产资源上的保障。

而在21世纪,关键矿产和健康医疗成为了现代技术经济的基石,而这些领域目前在很大程度上被中国所主导。这就将谈判引入了一个更高的地缘政治维度,使得双方的对话超越了特朗普口头上的“孤立主义美洲”修辞。美方的最佳利益实际上与构建一个更加稳固的“北美堡垒”深度绑定。这就是我们必须引导特朗普政府去接受和靠拢的方向。

Original English

Drew Fagan: Critical minerals energy. The United States needs that. When Trump says we don't need anything from Canada, it's obviously not true. We have a marginal trade surplus he complains about. But critical minerals, I think, could be to this agreement, assuming it happens, what energy was in the 1980s? They really looked to us in a market that or mining that funds. And health is a fundamental part of 21st, the 21st century technological economy and is controlled now by China. So then you get into a conversation between his rhetoric, which sounds like Fortress America and his best interests were a little bit more Fortress North America. And that's what we've got to move him to.

主持人: 好的。正如您所提到的,加美之间的贸易博弈在短期内显然不会彻底消失。这意味着在未来的几年里,我们很可能还会多次邀请您回到演播室,继续就这一关键议题进行深度探讨。德鲁,非常感谢您今天带来的深刻洞见。

Original English

Host: All right. Well, as you mentioned, it looks like this is not going to go away anytime soon, which means that we will probably have to bring you back in to talk about it years down the line as well. Drew, I really appreciate it. Always. Thank you so much for your insights.

德鲁·法根: 这是我的荣幸,谢谢。

Original English

Drew Fagan: Pleasure.

关键字: cusma trade-negotiation tariffs supply-chain north-american-integration