United States International Trade Commission

Investigation No. 332-518

USITC Publication 4219

March 2011

China's Agricultural 

Trade: Competitive 

Conditions and 

Effects on U.S. 

Exports 
Address all communications to 

Secretary to the Commission 

United States International Trade Commission 

Washington, DC 20436

U.S. International Trade Commission

Karen Laney

Acting Director of Operations

Michael Anderson

Acting Director, Office of Industries

COMMISSIONERS 

 

Deanna Tanner Okun, Chairman 

Irving A. Williamson, Vice Chairman 

Charlotte R. Lane 

Daniel R. Pearson 

Shara L. Aranoff 

Dean A. Pinkert
U.S. International Trade Commission

Washington, DC 20436 

www.usitc.gov

Publication 4219 March 2011

China's Agricultural Trade: Competitive 

Conditions and Effects on U.S. Exports 

Investigation No. 332-518
Project Leader 

Joanna Bonarriva 

Joanna.Bonarriva@usitc.gov 

Deputy Project Leader 

Marin Weaver 

Marin.Weaver@usitc.gov 

Office of Industries

Laura Bloodgood, David Coffin, John Fry, John Giamalva, 

Brendan Lynch, Douglas Newman, and Alison Rozema 

Office of Economics 

Jose Signoret, Danielle Trachtenberg, and Marinos Tsigas 

Primary Reviewers 

Kimberlie Freund and Alexander Hammer 

Administrative Support 

Phyllis Boone, Monica Reed, and Wanda Tolson 

Under the Direction of 

Jonathan R. Coleman, Chief

Agriculture and Fisheries Division 
i

Abstract 

This report describes and analyzes government policies and other factors that affect the 

conditions of competition in China’s agricultural market and trade, as well as their effects 

on U.S. agricultural exports. It provides an overview of (a) China’s agricultural imports, 

exports, consumption, and production during 2005–09; (b) Chinese government 

regulations relating to the agricultural market; (c) competitive factors affecting the 

Chinese agricultural sector, with case studies to analyze these factors; and (d) Chinese 

tariffs, nontariff measures (NTMs), and free trade agreements (FTAs). The study also 

uses economic modeling to provide an analysis of the effects of Chinese tariffs, FTAs, 

and certain NTMs on U.S. agricultural exports. Results suggest that the elimination of 

Chinese tariffs and nontariffs measures could lead to an additional $3.9 billion to 

$5.2 billion in U.S. agricultural exports to China. 

China’s agricultural trade has grown rapidly, particularly since its market liberalization 

leading up to its 2001 accession to the World Trade Organization. China’s chief 

agricultural exports consist of labor-intensive horticultural products shipped mainly to 

regional markets, while imports are limited to a small number of commodities, including 

soybeans, vegetable oils, poultry, cotton, and hides and skins. Chinese consumption 

patterns are changing because of urbanization, rising incomes, and the importance of food 

safety and quality to consumers. 

China is a major global producer of agricultural products, especially fruits, vegetables, 

rice, cotton, and pork. Overall, China is largely self-sufficient, with the exception of a 

few key commodities which it imports. Government support for China’s farm sector has 

grown significantly since 2004 when, in an important shift in economic policy, the 

government began supporting agriculture instead of taxing the sector to support industrial 

development. Most government programs for agriculture fall into four categories: direct 

payments, price support programs, agricultural infrastructure projects, and regulatory 

reforms (e.g., food safety and standards). 

Several factors of production––such as low labor costs and government support––

enhance the competitiveness of Chinese agricultural products, while other factors––such 

as its land tenure system and its fragmented transportation and cold storage 

infrastructure––weaken its competitiveness. Many of these agricultural competitive 

factors are illustrated in case studies of China’s fresh apple, pork, processed foods, and 

wheat sectors. 

Chinese average agricultural tariffs are relatively low, but remain high for several importsensitive products, including beverages, tobacco, and nuts. China also maintains 

restrictive tariff-rate quotas for certain commodities, such as wheat, cotton, and sugar.

The Commission’s quantitative estimates indicate that China’s NTMs particularly its 

sanitary and phytosanitary (SPS) measures have a larger effect on U.S. exports to China 

than its tariffs: SPS measures substantially limit or effectively prohibit certain U.S. 

agricultural products. China’s FTAs and preferential trade agreements are largely with 

trade partners in East Asia and Oceania. Their provisions vary in scope, but overall have 

had a negligible effect on total U.S. agricultural exports because for several food and 

agricultural products, the level of U.S. exports to China is either very large or very small 

relative to the level of China’s imports from its PTA partners. 

iii 

CONTENTS 

Page

Abstract................................................................................................................................... i

Acronyms............................................................................................................................... xi

Executive Summary....................................................................................................... xv

Chapter 1 Introduction............................................................................................. 1-1

 Overview ............................................................................................................................. 1-1

 Scope of the report .............................................................................................................. 1-4

 Approach ............................................................................................................................. 1-5

 China’s policy framework................................................................................................... 1-7

 Policy environment......................................................................................................... 1-7

 Policy objectives............................................................................................................. 1-9

 Policy instruments .......................................................................................................... 1-11

 Bibliography........................................................................................................................ 1-12

Chapter 2 Chinese Agricultural Trade ....................................................... 2-1

 Overview ............................................................................................................................. 2-1

 Imports ................................................................................................................................ 2-2

 Imports by product ......................................................................................................... 2-2

 Soybeans .................................................................................................................... 2-5

 Vegetable oils............................................................................................................. 2-6

 Cotton......................................................................................................................... 2-6

 Hides and skins .......................................................................................................... 2-7

 Meat ........................................................................................................................... 2-7

 Grains......................................................................................................................... 2-8

 Other products............................................................................................................ 2-9

 Imports by major trading partner.................................................................................... 2-9

 Exports ............................................................................................................................... 2-11

 Exports by product ......................................................................................................... 2-11

 Horticultural products ................................................................................................ 2-14

 Other products............................................................................................................ 2-15

 Exports by major trading partner.................................................................................... 2-16

 China-U.S. competition in third-country markets ............................................................... 2-17

 Bibliography........................................................................................................................ 2-20

Chapter 3 Chinese Agricultural Consumption...................................... 3-1

 Overview ............................................................................................................................. 3-1

 Consumption trends............................................................................................................. 3-2

 Consumption patterns..................................................................................................... 3-2

 Caloric intake ................................................................................................................. 3-3

 Factors affecting consumption ............................................................................................ 3-5

 Population....................................................................................................................... 3-5

 Urbanization ................................................................................................................... 3-6

 Income and expenditure ................................................................................................. 3-7
iv

CONTENTS―Continued

Page

Chapter 3 Chinese Agricultural Consumption—Continued

 Income growth and distribution ................................................................................. 3-7

 Expenditure ................................................................................................................ 3-9

 Food prices ..................................................................................................................... 3-10

 Food preferences ............................................................................................................ 3-11

 Changing preferences................................................................................................. 3-11

 Demand for food safety.............................................................................................. 3-12

 Chinese shopping preferences.................................................................................... 3-13

 Non-food consumption................................................................................................... 3-14

 Bibliography........................................................................................................................ 3-15

Chapter 4 Chinese Agricultural Production and Policies............. 4-1

 Overview ............................................................................................................................. 4-1

 Production ........................................................................................................................... 4-1

 General production patterns ........................................................................................... 4-1

 Recent production trends................................................................................................ 4-5

 Grains......................................................................................................................... 4-5

 Oilseeds and products ................................................................................................ 4-8

 Horticulture ................................................................................................................ 4-8

 Meats.......................................................................................................................... 4-9

 Dairy........................................................................................................................... 4-9

 Cotton......................................................................................................................... 4-10

 China’s agricultural policies related to production ............................................................. 4-10

 Introduction .................................................................................................................... 4-10

 China’s current policy objectives related to agriculture................................................. 4-12

 China’s support for agriculture relative to other countries............................................. 4-16

 Selected government programs promoting agriculture in China.................................... 4-17

 Elimination of certain agricultural taxes .................................................................... 4-17

 Valued-added tax exemption for agricultural products.............................................. 4-18

 Minimum purchase price............................................................................................ 4-19

 Direct payments ......................................................................................................... 4-20

 Area payments to grain producers ......................................................................... 4-21

 Input subsidies ....................................................................................................... 4-22

 Fuel and fertilizers.............................................................................................. 4-22

 Seeds................................................................................................................... 4-22

 Farm machinery.................................................................................................. 4-22

 Water policies ............................................................................................................ 4-23

 Banking reforms and preferential lending practices .................................................. 4-24

 Agricultural infrastructure.......................................................................................... 4-25

 Inspection services and the 2009 food safety law...................................................... 4-26

 Food reserve policies ................................................................................................. 4-27

 China’s agricultural laws and policies for foreign direct investment ............................. 4-27

 Bibliography........................................................................................................................ 4-33

 
v

CONTENTS―Continued

Page

Chapter 5 Competitive Factors Affecting China’s 

 Agricultural Sector............................................................................................. 5-1

 Overview ............................................................................................................................. 5-1

 Analytical framework.......................................................................................................... 5-1

 Delivered cost................................................................................................................. 5-2

 Product differentiation.................................................................................................... 5-5

 Reliability of supply ....................................................................................................... 5-5

 Primary competitive factors affecting China’s agricultural sector...................................... 5-6

 Factors affecting delivered cost...................................................................................... 5-6

 Labor supply and wage rates..................................................................................... 5-6

 Water cost.................................................................................................................. 5-7

 Land tenure system in China..................................................................................... 5-8

 Farm industry structure ......................................................................................... 5-9

 Land cost............................................................................................................... 5-11

 Other input costs........................................................................................................ 5-11

 Mechanization .......................................................................................................... 5-13

 Access to credit ......................................................................................................... 5-14

 Transportation infrastructure and time to market...................................................... 5-15

 Exchange rates .......................................................................................................... 5-16

 Food safety laws and regulatory compliance costs ................................................... 5-18

 Other government programs...................................................................................... 5-18

 Valued added tax exemptions for Chinese farmers............................................... 5-18

 Agricultural tax exemptions.................................................................................. 5-19

 Direct payments and other support programs ....................................................... 5-19

 Factors affecting product differentiation........................................................................ 5-19

 Cold storage .............................................................................................................. 5-20

 Industry structure and land tenure system................................................................. 5-21

 Farm management practices...................................................................................... 5-21

 Food safety ................................................................................................................ 5-22

 Branding.................................................................................................................... 5-22

 Factors affecting reliability of supply ............................................................................ 5-22

 Storage and transportation infrastructure .................................................................. 5-23

 Marketing information systems................................................................................. 5-23

 Water resource depletion and degradation ................................................................ 5-24

 Land........................................................................................................................... 5-24

 Bibliography........................................................................................................................ 5-26

Chapter 6 Competitive Factor Case Studies .......................................... 6-1

 Overview ............................................................................................................................. 6-1

 Fresh apples......................................................................................................................... 6-2

 Industry overview........................................................................................................... 6-3

 Global position ........................................................................................................... 6-3

 Industry structure........................................................................................................ 6-4

 Domestic marketing outlets........................................................................................ 6-4
vi

CONTENTS―Continued

Page

Chapter 6 Competitive Factor Case Studies —Continued

 Factors affecting competitiveness .................................................................................. 6-5

 Labor costs ................................................................................................................. 6-5

 Industry structure........................................................................................................ 6-5

 Product quality ........................................................................................................... 6-6

 Pork.................................................................................................................................... 6-7

 Industry overview.......................................................................................................... 6-8

 Global position ........................................................................................................... 6-8

 Industry structure........................................................................................................ 6-8

 Domestic marketing outlets........................................................................................ 6-9

 Factors affecting competitiveness .................................................................................. 6-10

 Government support................................................................................................... 6-10

 Labor and feed............................................................................................................ 6-10

 Quality of supply........................................................................................................ 6-12

 Consumer preferences ................................................................................................ 6-12

 Processed foods ................................................................................................................. 6-13

 Industry overview.......................................................................................................... 6-13

 Global position ........................................................................................................... 6-13

 Industry structure........................................................................................................ 6-13

 Domestic marketing outlets........................................................................................ 6-14

 Factors affecting competitiveness .................................................................................. 6-14

 Procurement of quality raw materials......................................................................... 6-14

 Cost of procurement of raw materials ........................................................................ 6-16

 Mechanization ............................................................................................................ 6-17

 Food safety ................................................................................................................. 6-18

 Wheat ................................................................................................................................ 6-19

 Industry overview.......................................................................................................... 6-20

 Global position ........................................................................................................... 6-20

 Industry structure........................................................................................................ 6-20

 Domestic marketing outlets........................................................................................ 6-21

 Factors affecting competitiveness.................................................................................. 6-22

 Land............................................................................................................................ 6-22

 Water and other inputs ............................................................................................... 6-22

 Technology................................................................................................................. 6-23

 Market preference....................................................................................................... 6-24

 Government policy..................................................................................................... 6-24

 Bibliography....................................................................................................................... 6-26

Chapter 7 Chinese Agricultural Tariff Measures................................. 7-1

 Overview ........................................................................................................................... 7-1

 Tariffs ................................................................................................................................ 7-1

 Average tariffs ............................................................................................................... 7-2

 Tariff peaks.................................................................................................................... 7-4

 Tariff distribution .......................................................................................................... 7-4

 Tariffs on priority U.S. export products ........................................................................ 7-5
vii

CONTENTS―Continued

Page

Chapter 7 Chinese Agricultural Tariff Measures—Continued

 Tariff-rate quotas ............................................................................................................... 7-6

 Products ......................................................................................................................... 7-6

 TRQ fill rates ................................................................................................................. 7-7

 TRQ administration ....................................................................................................... 7-7

 Antidumping and countervailing duties............................................................................. 7-9

 Simulated effects of China’s applied agricultural tariffs on U.S. agricultural 

 exports ........................................................................................................................... 7-10

 Bibliography ...................................................................................................................... 7-14

Chapter 8 China’s Trade Agreements.......................................................... 8-1

 Overview ........................................................................................................................... 8-1

 Free trade agreements........................................................................................................ 8-2

 Mainland and Hong Kong closer economic partnership arrangement........................... 8-4

 Background and description....................................................................................... 8-4

 Tariff concessions....................................................................................................... 8-4

 Rules of origin............................................................................................................ 8-5

 Sanitary and phytosanitary requirements ................................................................... 8-5

 Investment .................................................................................................................. 8-6

 Mainland and Macau closer economic partnership arrangement .................................. 8-6

 China-ASEAN free trade agreement ............................................................................. 8-6

 Background and description....................................................................................... 8-6

 Tariff and tariff-rate quota concessions...................................................................... 8-6

 Rules of origin............................................................................................................ 8-9

 Sanitary and phytosanitary requirements ................................................................... 8-9

 Investment .................................................................................................................. 8-9

 Other free trade agreements involving China................................................................ 8-9

 Simulated effects of preferential tariffs under China’s existing FTAs on U.S. 

 agricultural exports........................................................................................................ 8-13

 Bibliography ...................................................................................................................... 8-17

Chapter 9 Chinese Agricultural Nontariff Measures......................... 9-1

 Overview............................................................................................................................ 9-1

 Sanitary and phytosanitary issues...................................................................................... 9-1

 Plant health standards .................................................................................................... 9-3

 Human and animal health standards .............................................................................. 9-6

 Diseases.................................................................................................................... 9-6

 Residues ................................................................................................................... 9-9

 Genetically modified organisms.................................................................................... 9-10

 Licensing and certification ................................................................................................ 9-11

 Automatic licensing....................................................................................................... 9-11

 Other licenses and certifications.................................................................................... 9-12

 Tax treatment..................................................................................................................... 9-12

 Labeling and quality standards .......................................................................................... 9-13

 Labeling......................................................................................................................... 9-13

 Standards ....................................................................................................................... 9-14
viii

CONTENTS―Continued

Page

Chapter 9 Chinese Agricultural Nontariff Measures—

Continued

 Customs procedures........................................................................................................... 9-15

 Customs valuation ......................................................................................................... 9-15

 Customs classification ................................................................................................... 9-16

 Delays in customs clearance.......................................................................................... 9-16

 Tariff-rate quota administration......................................................................................... 9-17

 Transparency ..................................................................................................................... 9-18

 Notice and comment procedures ................................................................................... 9-18

 Additional problems with transparency......................................................................... 9-19

 Simulated effects of China’s nontariff measures on U.S. agricultural exports.................. 9-19

 Bibliography ...................................................................................................................... 9-22

Appendixes 

A. Request letter............................................................................................................................ A-1

B. Federal Register notice ............................................................................................................ B-1

C. Hearing witnesses..................................................................................................................... C-1

D. Summary of views of interested parties ................................................................................... D-1

E. Competitive conditions analytical framework.......................................................................... E-1

F. Analytical framework and assumptions for economic simulations.......................................... F-1

G. Simulated effects of Chinese tariffs and free trade agreements tables ..................................... G-1

Boxes 

3.1. China’s “Hukou” system affects food consumption patterns................................................. 3-8

3.2. Urban minimum living allowance payments increase income for poor consumers .............. 3-8

4.1. China has made relatively minor investments in agricultural land abroad............................. 4-3

4.2. Chinese land use policies support food security goals ........................................................... 4-4

4.3. Chinese property use rights are changing .............................................................................. 4-11

4.4. The Chinese government’s eleventh five-year plan increases funding in rural areas ............ 4-15

4.5. China’s governing structure affects agricultural policy implementation ............................... 4-16

4.6. Biofuel policies may conflict with food security objectives .................................................. 4-28

5.1. Foreign direct investment in China’s agricultural sector is limited........................................ 5-4

6.1. Certain Chinese import restrictions negatively affect the competitiveness of U.S. 

 exporters more than they benefit that of Chinese producers............................................... 6-2

9.1. U.S. phytosanitary certification policy affects trade .............................................................. 9-5

Figures 

1.1. China’s agricultural policy framework: Policy instruments are the outcome of policy 

 environment and objectives............................................................................................. 1-8

2.1. China agricultural trade balance: China maintained an agricultural trade deficit during 

 2005–10........................................................................................................................... 2-1

2.2. Chinese agricultural imports were highly concentrated in a few major products in 

 2010................................................................................................................................. 2-5

2.3. More than half of Chinese agricultural imports were supplied by three countries during 

 2005–10........................................................................................................................... 2-10
ix

CONTENTS―Continued

Page

Figures—Continued

2.4. China’s agricultural exports were highly concentrated in a few major products in 

 2010................................................................................................................................ 2-12

2.5. More than one-half of Chinese agricultural exports were shipped to four markets 

 during 2005–10 .............................................................................................................. 2-16

3.1. Compared with 1987, Chinese daily caloric intake in 2007 had grown significantly and 

 comprised more meat, fruits, and vegetables ................................................................. 3-4

3.2. China’s population is growing while its growth rate falls.................................................... 3-5

3.3. Rural population declined as a share of Chinese total population during 1978–2008 ......... 3-6

3.4 Poultry for sale at a traditional Chinese wet market............................................................. 3-13

3.5. Poultry for sale at a modern Chinese supermarket............................................................... 3-14

5.1. A broad range of factors affect competitiveness in any agricultural market........................ 5-3

5.2 Crops grow in traditional small plots in Sichuan province, China....................................... 5-9

6.1. Swine production at a specialized household in Sichuan province, China .......................... 6-9

6.2. Farm plots consolidated to grow one crop, Shandong province, China............................... 6-23

7.1. China’s applied agricultural tariffs vary significantly within and among HS chapters........ 7-3

7.2. Chinese agricultural tariffs were reduced significantly upon joining the WTO................... 7-6

7.3. China’s TRQ fill rates vary significantly by product and year............................................. 7-8

F.1. Partial equilibrium (PE) model and linkages to general equilibrium (GE) model: China’s 

 supply, demand, and trade for a GE product group containing two hypothetical PE 

 model products................................................................................................................. F-10

Tables

ES.1. Chinese and U.S. agricultural production and trade: Comparative statistics ...................... xvi

ES.2. China’s final bound WTO tariffs, MFN applied tariffs, and share of imports entering 

 duty free, by agricultural product group .......................................................................... xxi

ES.3. Reported Chinese NTMs affecting imports of U.S. agricultural products........................... xxiii

ES.4. China: China’s tariffs and simulated effects of U.S. exports to China in the absence of 

 Chinese tariffs for selected agricultural products, 2009 .................................................. xxiv

ES.5. China: Simulated effects of removal of China’s NTMs for selected agricultural 

 products, 2009.................................................................................................................. xxv

1.1. Chinese and U.S. agricultural production and trade: Comparative statistics ....................... 1-3

2.1. China: Agricultural imports from the world and the United States by product, 

 2005–10 .......................................................................................................................... 2-3

2.2. China: Agricultural imports by major trading partner, 2005–10.......................................... 2-10

2.3. China: Agricultural imports from FTA-partner countries, 2005–10.................................... 2-11

2.4. China: Agricultural exports to the world and the United States by product, 

 2005–10 ........................................................................................................................... 2-13

2.5. China: Agricultural exports by major trading partner, 2005–10.......................................... 2-16

2.6. China: Agricultural exports to FTA-partner countries, 2005–10 ......................................... 2-18

3.1. China: Agricultural consumption, 2005/06–09/10............................................................... 3-3

3.2. China: Per capita consumption of select commodities and population in rural and 

 urban areas, 2004–08 ....................................................................................................... 3-7

3.3. China: Total expenditure and share of expenditure on food by urban and rural 

 populations, 2005–09....................................................................................................... 3-10
x

CONTENTS―Continued

Page

Tables—Continued

4.1. Chinese and U.S. rank in world production for selected agricultural products, 2008/09..... 4-4

4.2. China: National agricultural production, 2005/06–09/10..................................................... 4-6

4.3. China: Selected central government funding and regulations for agricultural 

 production........................................................................................................................ 4-13

4.4. Agricultural producer support estimates for selected countries, 2006–09 ........................... 4-17

4.5. China: Government floor price for grains, 2007–10 ............................................................ 4-20

4.6. China: Selected government direct support programs, 2005–09.......................................... 4-21

4.7. China: FDI policies in agriculture-related industries, 2007 ................................................. 4-30

5.1. China and U.S. agricultural indicators ................................................................................. 5-2

5.2. Fertilizer consumption.......................................................................................................... 5-12

6.1. Fresh apples: Production, consumption, and trade, selected countries, marketing year 

 2009/10 ............................................................................................................................ 6-3

6.2. Pork: Production, consumption, and trade, selected countries, 2009 ................................... 6-8

6.3. Comparison of corn and soybean meal prices in China and the United States .................... 6-11

6.4. Swine production: Comparison of delivered cost between China and the United States..... 6-12

6.5. Wheat: Production, consumption, and trade, selected countries, marketing year, 

 2009/10 ............................................................................................................................ 6-20

7.1. China’s final bound WTO tariffs, MFN applied tariffs, and share of imports entering 

 duty free, by agricultural product group.......................................................................... 7-3

7.2. China’s peak bound and applied tariffs, by HS subheading................................................. 7-4

7.3. Frequency distribution of China’s final bound and applied tariffs for agricultural and 

 non-agricultural products ...................................................................................... 7-5

7.4. China’s agricultural TRQs.................................................................................................... 7-7

7.5. China: China’s tariffs, U.S. and Chinese trade statistics, and simulated effects on U.S. 

 exports to China and Chinese imports from the world in the absence of Chinese 

 tariffs for selected agricultural products, 2009................................................................ 7-11

7.6. China: Imports, domestic consumption, and import share for certain agricultural 

 products, average 2007–09.............................................................................................. 7-12

8.1. Overview of China’s trade agreements ................................................................................ 8-3

8.2. Agricultural products excluded from China’s trade agreements .......................................... 8-4

8.3. China-ASEAN FTA sensitive and highly sensitive products, by member........................... 8-8

8.4. Summary of provisions for China’s FTAs ........................................................................... 8-10

8.5. China: China’s tariffs, U.S. and Chinese trade statistics, and simulated effects of the full 

 implementation of China’s FTAs for selected agricultural products, 2009..................... 8-14

9.1. Reported Chinese NTMs affecting imports of U.S. agricultural products ........................... 9-2

9.2. China: U.S. and Chinese trade statistics and simulated effects of removal of China’s 

 NTMs for selected agricultural products, 2009............................................................... 9-21

F.1. GTAP model sectors containing the 131 products in the partial equilibrium model ........... F-4

F.2. Food and agricultural products in the partial equilibrium model and the HTS 6-digit 

 items contained in each product ..................................................................................... F-5

F.3. Values of partial equilibrium model parameters ESM and ETG........................................... F-12

F.4. Know NTMs and estimated ad valorem equivalents .......................................................... F-13

G.1. China: China’s tariffs, U.S. and Chinese trade statistics, and simulated effects on U.S. 

 exports to China and Chinese imports from the world in the absence of Chinese 

 tariffs for agricultural products, 2009.............................................................................. G-3

G.2. China: China’s tariffs, U.S. and Chinese trade statistics, and simulated effects of the 

 full implementation of China’s free trade agreement for agricultural products, 2009 .... G-7
xi 

ACRONYMS AND TERMS 

ACFTA ASEAN-China Free Trade Agreement 

AD Antidumping 

ADBC Agricultural Development Bank of China 

ADOGA American Dehydrated Onion and Garlic Association 

AI Avian Influenza 

APHIS Animal and Plant Health Inspection Services 

AQSIQ Administration of Quality Supervision, Inspection, and Quarantine 

ARF Automatic Registration Form 

ASA American Soybean Association 

ASEAN Association of Southeast Asian Nations 

BRIC Brazil, Russia, India, and China 

BSE Bovine Spongiform Encephalopathy 

Bt Bacillus thuringiensis 

CCFTA China-Chile Free Trade Agreement 

CEPAs Closer Economic Partnership Agreements 

CES Constant elasticity of substitution 

CET Constant elasticity of transformation 

CIA Central Intelligence Agency 

C.I.F. Cost insurance freight 

CIQ Chinese Inspection and Quarantine 

CNCA Certification and Accreditation Administration of China 

CODEX Codex Alimentarius 

COFCO Cereals, Oils and Foodstuffs Import and Export Company 

Commission U.S. International Trade Commission 

CVD Countervailing duties 

DDGS Distiller's dried grains with solubles 

DETs Differential export taxes 

DOC Department of Commerce 

DSE Macao Economic Services 

EHP Early Harvest Program 

EIU Economist Intelligence Unit 

ERS Economic Research Service 

EU European Union 

FAO Food and Agricultural Organization of the United Nations 

FAS Foreign Agricultural Service 

FCR Feed conversion ratios 

FDI Foreign direct investment 

FFF Frozen french fries 

F.O.B. Free on board 

FTA Free trade agreement 

GDP Gross domestic product Gross domestic product 

GE General equilibrium 

GM Genetically modified 

GMOs Genetically modified organisms 

GNI Gross National Income 

GOC Government of Chile 

GTAP Global Trade Analysis Project 

GTIS Global Trade Information Service, Inc. 

ha Hectares. One hectare is equal to 2.47 acres. 

HKSAR The Government of Hong Kong Special Administrative Region 
xii

ACRONYMS AND TERMS —Continued

HPAI Highly Pathogenic Avian Influenza 

HS World Customs Organization harmonized system 

HTS Harmonized Tariff Schedule 

IMF International Monetary Fund 

IPPC International Plant Protection Convention 

IPR Intellectual property rights 

JECFA Joint FAO/WHO Export Committee on Food Additives 

KFC Kentucky Fried Chicken 

LDCs Lesser developed countries 

LPAI Low Pathogenic Avian Influenza 

MEA Ministry of Economic Affairs 

mmt Million metric ton 

mt Metric ton 

MFN Most favored nation 

MHKCEPA The Mainland and Hong Kong Closer Economic Partnership Arrangement 

MMCEPA The Mainland and Macau Closer Economic Partnership Arrangement 

MOA Ministry of Agriculture 

MOFCOM Ministry of Commerce 

MOH Ministry of Health 

MOU Memorandum of Understanding 

MRL Maximum Residue Limits 

mu A traditional Chinese land unit of measure equal to about 1/15 of a hectare or 1/6 

of an acre 

MY Marketing year 

NCS National Customs Service 

NDRC National Development and Reform Commission 

NMPF National Milk Producers Federation 

NPC National Potato Council 

NTMs Nontariff measures 

OECD Organisation for Economic Co-operation and Development 

OIE World Organization for Animal Health 

PE Partial equilibrium 

PFI Pet Food Institute 

PRA Pest Risk Assessment 

PRRS Porcine reproductive and respiratory syndrome

PSD Production, Supply, and Distribution 

PSRs Product Specific Rules 

PSE Producer Support Estimate 

PTAs Preferential trading arrangements 

QIP Quarantine Import Permit 

R-CALF Ranchers Cattlemen Action Legal Fund, United Stockgrowers of America 

RMB Renminbi 

ROC Republic of China 

ROO Rules of origin 

RoW Rest of the world 

SAC Standardization Administration of China 

SAG State Administration of Grain 

SARs Special Administrative Regions 

SAT State Administration of Taxation 

SPS Sanitary and Phyto-sanitary 

STE State Trading Enterprise 
xiii

ACRONYMS AND TERMS —Continued

TBT Technical barriers to trade 

TCK Tilletia controversa Kuhn

TID Trade and Industry Department 

TRQs Tariff-rate quotas 

UAE United Arab Emirates 

UNCTAD United Nations Conference on Trade and Development 

UNESCAP United Nations Economic and Social Commission for Asia and the Pacific 

USAID United States Agency for International Development 

USDA U.S. Department of Agriculture 

USDEC U.S. Dairy Export Council 

USITC U.S. International Trade Commission 

VAT Value-added tax 

WHO World Health Organization 

WPA Western Pistachio Association 

WTO World Trade Organization 

xv

Executive Summary 

China is the world’s largest agricultural economy and the leading producer and consumer 

of many agricultural commodities. In recent years, its massive population and 

tremendous income growth have fueled a rapid increase in both the quantity and quality 

of food and fiber consumed. While China has met much of its needs by increasing 

domestic production, it has also emerged as a leading global importer of several 

agricultural commodities, including cotton, soybeans, vegetable oils, and hides and skins. 

China’s increase in imports has benefited its trade partners significantly, but only for a 

narrow range of products. At the same time, domestic policies to promote agricultural 

production and maintain self-sufficiency in staple foods increase the competitiveness of 

domestically produced goods over imported products and, in some cases, keep imports 

out altogether. As the Chinese agricultural sector has modernized and become more 

productive, China has also become an important global exporter of several horticultural 

products, including mandarin oranges, apples, apple juice, certain vegetables, and garlic. 

This report responds to a request by the Senate Committee on Finance (Committee) for 

information and analysis regarding the conditions of competition in China’s agricultural 

market and trade and their effects on U.S. agricultural exports. The Committee asked that 

the report include the following: 

 an overview of China’s agricultural market, including recent trends in production, 

consumption, and trade; 

 a description of the competitive factors affecting the agricultural sector in China, 

in such areas as costs of production, technology, domestic support and 

government programs related to agricultural markets, foreign direct investment 

policies, and pricing and marketing regimes; 

 an overview of China’s participation in global agricultural export markets, 

particularly in the Asia-Pacific region and in those markets with which China has 

negotiated trade agreements; 

 a description of the principal measures affecting China’s agricultural imports, 

including tariffs and nontariff measures such as sanitary and phytosanitary 

measures and technical barriers to trade; and 

 a quantitative analysis of the economic effects of China’s most favored nation 

(MFN) tariffs, preferential tariffs negotiated under China’s free trade agreements, 

and China’s nontariff measures on U.S. agricultural exports to China and on 

imports from the rest of the world. 
xvi

Major Findings and Observations 

China’s Agricultural Trade 

China’s agricultural trade has grown rapidly, particularly since China liberalized 

some of its markets in the lead-up to its 2001 accession to the World Trade 

Organization (WTO). During 2005–10, imported food and fiber became increasingly 

important in light of rising consumer incomes. 

China ranked as the world’s second-largest agricultural importing country behind the 

United States in 2009. China became a net importer of agricultural products in 2003, and 

this trade deficit is likely to persist as future growth in food demand, driven by rapidly 

rising per capita income, is expected to outpace increases in domestic production. China’s 

agricultural imports from the world grew at an average annual rate of 24 percent during 

2005–10, reaching $66.4 billion in 2010 (table ES.1). In 2010, China’s main agricultural 

imports were soybeans and cotton, primarily from the United States, which together 

accounted for about one-half of all imported agricultural products in that year. After 

soybeans and cotton, leading imports were palm oil (8 percent), hides and skins (4 

percent), dairy (4 percent), and wool (3 percent). During 2005–10, China imported very 

small volumes of beef, pork, and grains. 

TABLE ES.1 Chinese and U.S. agricultural production and trade: Comparative statistics 

 China United States 

Population (2009) 1,338 million 307 million 

Cropland (2009) 122 million hectares 164 million hectares 

Cropland per agricultural worker 

(2007) 

0.4 hectares 78.5 hectares 

Value of farm production (2007) $537 billion $329 billion 

Agriculture as share of GDP (2009) 10.6 percent 1.2 percent 

Value of agricultural imports (2010) $66 billion $86 billion 

Top five agricultural imports by value Soybeans, cotton, palm oil, dairy 

products, and hides and skins 

Coffee, cocoa products, wine, malt 

beverages, beef 

Top five agricultural import suppliers United States, Brazil, Argentina, 

European Union-27 (EU-27), 

Australia 

Canada, EU-27, Mexico, China, Brazil 

Value of agricultural exports (2010) $36 billion $119 billion 

Top five agricultural exports by value Processed vegetables, fresh 

vegetables, miscellaneous 

processed foods, fresh fruit, and 

animal feed 

Soybeans, corn, wheat, cotton, and 

animal feed 

Top five agricultural export markets Japan, EU-27, Hong Kong, United 

States, Korea 

Canada, China, Mexico, Japan, EU-27

Source: GTIS, Global Trade Atlas database (accessed February 18, 2011); USDA, ERS, “Foreign Agricultural Trade 

of the United States,” 2011; CIA, The World Factbook: China; World Bank, Data: China; USDA, NASS, Agricultural 

Statistics 2009, 2009, Table 9-44; National Bureau of Statistics of China, China Statistical Yearbook 2009, 2009, 

Table 12-4. 
xvii

China’s chief agricultural exports consist of labor-intensive horticultural products 

shipped mainly to regional markets, while agricultural imports are concentrated in 

a small number of products. 

Consistent with its natural resource endowments of abundant rural labor and limited 

agricultural land on a per capita basis, China’s agricultural exports are concentrated in 

labor-intensive products (compared with the United States and its other main trading 

partners), such as fresh and processed fruits and vegetables. In 2009, China was the 

fourth leading global agricultural exporting country (behind the United States, Brazil, and 

Canada). In third-country markets, the United States and China compete only in a narrow 

range of products—mainly a few fresh fruits and processed vegetables in a small number 

of primarily Asian markets. 

Consistent with its relatively small endowment of arable land per capita, China’s 

agricultural imports include many land-intensive products, such as cotton and soybeans. 

However, China imports very few land-intensive grains, such as rice, wheat, and corn, 

owing to government policies that promote self-sufficiency in grains and other staple 

foods. In 2010, the United States was the leading supplier of agricultural products to 

China, largely because U.S. soybeans accounted for 17 percent of all China’s agricultural 

imports that year. China’s agricultural imports from the United States reached 

$17.8 billion in 2010, accounting for 27 percent of China’s total agricultural imports. 

Between 2005 and 2010, China’s imports from the United States almost tripled because 

of growth in four products—soybeans, cotton, processed animal feed, and hides and 

skins—which together accounted for 84 percent of all U.S. agricultural products imported 

into China in 2010. At the same time, China’s purchases of U.S. animal products, grains, 

and vegetable oils—sectors where the United States is highly competitive 

internationally—remained negligible. 

 

Chinese Domestic Consumption 

Consumption of agricultural products is growing in China as its large population, 

with incomes rising, demands a higher quantity and quality of food. 

With the largest population in the world, China has a huge consumer base and is the 

largest consuming country for many agricultural products; it consumes one-third of all 

rice, one-quarter of all corn, and one-half of all pork and cotton. Incomes have been 

rising quickly in China; between 2000 and 2006 (the latest year for available data), rural 

and urban incomes rose 59 percent and 87 percent, respectively. High-income provinces, 

generally on China’s east coast, contain a concentration of affluent consumers who are 

demanding a greater variety of food products, as well as more processed and convenience 

foods. Middle-class Chinese benefit from higher wages in urban areas, while rural 

Chinese incomes are being boosted by government policies aimed at closing the wide 

rural-urban income disparities. Demand for nonfood agricultural products, particularly 

cotton and hides and skins, will continue to grow in tandem with China’s textile, apparel, 

and footwear industries. 

Chinese consumption patterns are changing because of urbanization, rising 

incomes, and the importance to consumers of food quality and safety. 

As per capita income in China grows, traditional mainstays of the Chinese diet, like 

grains and tubers, are giving way to rising consumption of non-traditional items like meat 
xviii

and fruit. Urban Chinese, with much higher incomes than their rural counterparts, 

consume more food overall, and in particular consume more fresh vegetables, fruit, and 

edible oils. They are also more likely to buy chilled, frozen, and perishable foods, as they 

are more likely to have refrigerators. Rural workers who migrate to cities are exposed to 

certain foods that are largely unique to urban areas, such as snacks and processed foods, 

and adopt new consumption patterns. Food quality and safety are important factors 

affecting Chinese food preferences, particularly in light of recent publicity about 

adulterated food and poisonings from Chinese food products. As a result, high-income 

urbanites focus their spending on high-quality products and also seek out products 

offering assurance of more safety, including organic foods. 

Agricultural Sector Characteristics 

Agriculture accounts for 11 percent of the Chinese economy. 

In 2009, China’s agricultural production, valued at $543 billion, accounted for 11 percent 

of gross domestic product (GDP). Employing just under half of the population, the sector 

is dominated by millions of farmers with small plots of land, which average just 

0.6 hectares per household. In contrast, agricultural production in the United States 

accounted for 1 percent of GDP and employed less than 2 percent of the population, with 

an average farm size of 619 hectares. 

China is a major global producer of agricultural products and is largely selfsufficient, with the exception of a few key commodities. 

Since the late 1970s, Chinese agricultural production has grown, such that today China 

ranks as the leading global producer of many agricultural commodities. With limited 

good cropland and with scarce water resources in some areas, agricultural sector growth 

has been achieved largely through substantial increases in productivity, a result of both 

market-based policy reforms and the adoption of modern agricultural technology and 

farming practices. Historically, government policies have been geared toward ensuring 

that enough staple food is produced domestically to feed the population. While this goal 

is still important, the increased share in total production of labor-intensive products, such 

as horticulture, meat, and dairy, and the drop in the relative importance of traditional 

staples, such as grains and tubers, are notable current trends. 

Chinese Agricultural Policy Objectives 

China’s support for the farm sector has grown substantially since 2004 when, in an 

important shift in economic policy, the government began supporting agriculture 

instead of taxing it. 

In spite of the significant market-based agricultural policy reforms of the last decade, the 

Chinese government continues to play a central role in the sector. Elimination of 

agricultural taxes and increased funding for agriculture in the 2000s marked a renewed 

policy focus on agriculture and the rural economy by policymakers. Self-sufficiency in 

domestic grain production, raising farmers’ incomes, and rural development have become 

major policy objectives of China’s government; the Chinese government wants to shrink 

the gap between urban and rural incomes and to promote social harmony. Government 

programs for agriculture can be largely divided into four categories: direct payments, 
xix

price support programs, agricultural infrastructure projects, and regulatory reforms (e.g., 

food safety and standards). 

China’s central, provincial, and local governments formulate agricultural policies in 

response to a policy environment shaped by historical events and current social 

factors. 

Examining the roots of China’s approach to implementing its agricultural policies is 

important to understanding why government funding of the farm sector varies 

significantly from province to province, and why Chinese agricultural policies often lack 

transparency. For both historical and practical reasons, provincial and local governments 

have significant autonomy over implementing agricultural programs and allocating funds. 

Regulations to protect farmer and consumer rights and to ensure fairness in the 

marketplace are often interpreted differently among provincial and local governments or 

simply ignored. Inconsistent regional implementation of regulations make it difficult for 

foreign companies to produce, trade, and sell in China’s agricultural sector. Local 

government autonomy may also undercut the programs’ efficacy in achieving central 

government objectives. Like those of other countries, China’s agricultural policies reflect 

conflicting government objectives, including self-sufficiency, boosting farmer incomes, 

and ensuring affordable food for consumers, and to a lesser extent energy independence, 

conserving natural resources, and reducing harmful emissions. 

Competitiveness in the Chinese Agricultural Sector 

Several factors enhance the competitiveness of Chinese agricultural products, 

including low labor costs, government support, trade policies, and significant 

investments to modernize agricultural production. 

Low labor costs remain the primary competitive advantage of the Chinese agricultural 

sector over the United States, even though the supply of abundant rural labor is shrinking 

and farm wages are rising. Government support for certain sectors, including direct 

payments, input subsidies, and tax exemptions, lowers production costs and boosts farmer 

incomes. Further, investments to modernize production and improve food safety, 

including investments by both the Chinese government and foreign companies, have 

played a key role in boosting the competitiveness of several agricultural sectors in China, 

such as pork and processed foods. In addition to domestic policies, trade policies, such as 

tariff-rate quotas (TRQs) and bans, limit import access for products such as grains and 

sugar whose continued domestic production is considered of strategic importance to the 

agricultural sector and the economy as a whole. 

Several other factors weaken the competitiveness of the Chinese agriculture sector. 

These include the land tenure system, fragmented transportation and cold storage 

infrastructure, limited access to credit, and degradation of land and water resources. 

China’s land tenure system does not permit farmers to own, buy, or sell land. Farmers 

typically operate small plots (many less than 0.2 hectare), and because they are unable to 

consolidate land holdings, they cannot benefit from scale economies in producing and 

marketing their products. Unless China reforms its land tenure system it will likely face 

continuing difficulties in boosting farmers’ incomes, encouraging investment, and 

increasing agricultural productivity. China’s agricultural competitiveness is also 

weakened by the lack of an efficient, nationwide cold storage transportation network. The 
xx

result is high spoilage rates, poor quality for those goods finding their way to market, and 

increased uncertainty for buyers. The development of cold storage chains in China is 

thwarted by a fragmented farm structure, comprising thousands of small-scale household 

farmers and small traders scattered throughout China. 

Limited access to credit further weakens Chinese agricultural competitiveness. Farmers’ 

inability to own land deprives them of collateral necessary for obtaining loans. This 

means that many small-scale farmers are unable to invest in mechanization and other 

technology to improve quality and productivity. Similarly, problems limiting the 

availability and quality of other factors of production, such as land and water, lessen the 

competitiveness of the sector. The already limited amount of land available for 

agriculture is being eaten away by ongoing urbanization and industrialization. At the 

same time, water resources are under strain, not only because of a lack of supply, but also 

from both overuse and pollution. 

Several factors affecting competitiveness of Chinese agricultural products are 

illustrated by the fresh apple, pork, processed foods, and wheat sectors. 

Fresh apples. China is the world’s largest producer and exporter of apples, by volume. 

Apple production in China is labor-intensive, requiring significant labor resources to 

plant, tend, and harvest, and China’s low labor costs are key to the industry’s 

competitiveness. The U.S. apple industry, also one of the world’s largest producers and 

exporters, competes with Chinese apples in the high-quality segment of export markets 

and has been increasing exports to China to take advantage of China’s growing wealth 

and consumption of fruit. 

Pork. In the Chinese pork sector, government policies have encouraged domestic 

production and insulated many small-scale producers of low-quality pork from global 

market conditions. However, rising labor and feed costs, as well as increasing demand 

among Chinese consumers for higher quality pork, may lessen Chinese pork 

competitiveness in the future, creating opportunities for global exporters from the United 

States and Europe. 

Processed foods. China is one of the world’s largest producers and exporters of processed 

foods. In recent years its production has increased, primarily because of rising disposable 

income and urbanization, which are driving demand growth in the domestic market. 

Processed food production is capital-intensive throughout most of the world, but in China 

there is great variation in the level of mechanization, and the industry relies more heavily 

on labor than other major producers. As labor costs continue to rise in China, however, 

the food-processing sector is becoming more mechanized and capital-intensive. 

Wheat. Wheat is a staple and is viewed in China as important to food security. Despite 

limited land and water resources for wheat production, the central government has put in 

place domestic and trade policies designed to maintain domestic production and control 

import supplies. 
xxi

Chinese Tariffs and Nontariff Measures 

Chinese average agricultural tariffs are relatively low, but they peak for several 

import-sensitive products, including beverages, tobacco, and nuts. China also 

maintains restrictive TRQs for certain commodities, such as certain grains, cotton, 

and sugar. 

China substantially reduced its tariffs and replaced absolute quotas with TRQs for various 

agricultural products in preparation for its WTO accession in December 2001. China’s 

simple average tariff (not weighted by trade) for agricultural products fell from 

42 percent ad valorem in 1992 to 24 percent ad valorem in 1998. To fulfill its WTO 

commitments, China committed to reduce its agricultural tariffs to a simple average of 

15 percent ad valorem (table ES.2). The trade-weighted average tariff for agricultural 

products was 12 percent ad valorem in 2007. China’s applied tariffs are highest for corn, 

wheat, and rice (65 percent ad valorem for over-quota imports); tobacco (57 percent); and 

raw cane and refined sugar (50 percent for over-quota imports). Other high-tariff 

products include cotton (40 percent for over-quota imports), certain fermented beverages 

(40 percent), beverage bases (35 percent), and a variety of nuts (30 percent). Although 

average agricultural tariffs are relatively low, the Chinese market’s price sensitivity 

means that even a low tariff, added to the 13 to 17 percent value-added tax (VAT) 

assessed at the border, can raise the delivered cost of imports prohibitively. 

TABLE ES.2 China’s final bound WTO tariffs, MFN applied tariffs, and share of imports entering duty free, by 

agricultural product group 

Final bound tariffs 

(percent ad valorem) 

MFN applied tariffs 

(percent ad valorem) 

Product group 

Simple 

average 

Share that is 

duty freea

(percent) Maximum 

Simple 

average 

Share that is 

duty freea

(percent) 

Share of 

imports 

entering 

duty free

(percent)

Animal products 14.8 9.4 25 14.7 10.1 4.1

Dairy products 12.2 0 20 12.0 0 0

Fruit, vegetables, plants 15.0 4.8 30 14.8 5.9 3.6

Coffee, tea 14.9 0 32 14.7 0 0

Cereals and preparations 23.7 2.6 65 23.9 3.4 0

Oilseeds, fats, and oils 11.6 6.2 30 10.6 5.4 0.1

Sugars and confectionery 27.4 0 50 27.4 0 0

Beverages and tobacco 23.9 2.4 65 22.9 2.2 1.8

Cotton 22.0 0 40 22.0 0 0

Other agricultural products 11.9 10.2 38 11.5 9.4 2.3

Source: WTO and ITC, World Tariff Profiles 2009, 60. 

a

Share of total HTS 6-digit subheadings that is duty-free. 

China maintains TRQs for wheat, corn, rice, cotton, sugar, and wool; those for wheat, 

corn, rice, and sugar are administered largely by state-owned enterprises. Over-quota 

tariff rates are generally prohibitive and TRQ fill rates are low for grains. China’s TRQs 

for agricultural products represent about 9 percent of domestic consumption of wheat, 

5 percent of corn, 4 percent of rice, 13 percent of sugar, and 2 percent of cotton. These 

relatively small shares, as well as often nontransparent TRQ administration, indicate the 

importance the Chinese government attaches to self-sufficiency in these products. 
xxii

A wide array of Chinese non-tariff measures (NTMs) substantially limit, or 

effectively prohibit, imports of certain U.S. agricultural products.

China’s NTMs can be broadly classified into three categories: restrictions that keep 

products out of China, measures that raise costs for traders, and conditions that increase 

uncertainty and therefore risk. Chinese NTMs effectively prohibit imports of U.S. beef, 

pears, fresh potatoes, pet food, and strawberries, and significantly restrict imports of U.S. 

apples and pork (table ES.3). The VAT exemption for Chinese primary agricultural 

producers significantly disadvantages imported agricultural products by raising their cost 

relative to domestically produced ones, especially because the VAT on imports is 

assessed on the import’s cost plus the import tariff paid. NTMs affect virtually all 

products by increasing costs or creating uncertainty, and can make U.S. products 

uncompetitive or dissuade U.S. exporters from entering the Chinese market. In some 

instances, China’s NTMs are applied inconsistently; in other instances, they are relaxed 

or removed altogether when China’s demand for imports increases. China also links 

NTMs to its own market access for certain products abroad. 

China’s Trade Agreements 

China’s free trade agreements (FTAs) were first negotiated with China’s special 

administrative regions (SARs) and then with Southeast Asian and more distant 

countries. 

The first FTAs were Closer Economic Partnership Agreements (CEPAs) with Hong 

Kong and Macau, two SARs in China. These were followed by FTAs with members of 

the Association of Southeast Asian Nations (ASEAN) and with Pakistan, Chile, New 

Zealand, Singapore, Peru, and Costa Rica. Apart from the FTAs with New Zealand, Hong 

Kong, and Singapore, the foregoing agreements are with developing countries. In 

addition, an FTA was implemented with Bangladesh, India, Korea, Laos, and Sri Lanka 

(the China-Asia Pacific Trade Agreement); this FTA essentially solidified and extended a 

prior agreement. Several of China’s FTAs account for a large amount of trade, including 

those with Hong Kong, Macau, and the ASEAN countries. 

The provisions of China’s FTAs vary in scope. 

The most comprehensive FTAs in terms of product coverage have been negotiated with 

areas and countries with relatively small agricultural sectors; there are no product 

exclusions for tariff reductions under China’s FTAs with Hong Kong, Macau, ASEAN 

countries, and Singapore. For other FTAs, agricultural product coverage is generally 

limited to products that are complementary or offer only limited competition to domestic 

Chinese agricultural producers. China generally has not reduced or eliminated its high 

tariffs on sensitive products (such as wheat, corn, rice, and sugar) in FTAs with countries 

that are significant producers of such products. 
xxiii

TABLE ES.3 Reported Chinese NTMs affecting imports of U.S. agricultural products 

NTM Description 

H1N1 influenza restriction U.S. pork has been denied access due to fears related to “swine flu.” The World 

Organization for Animal Health (OIE) has reported that there is no risk of 

influenza infection from consuming pork. 

Ractopamine ban China has a zero tolerance for ractopamine, a commonly used feed additive, in 

pork. This limits opportunities for farmers producing pork for other markets that 

could otherwise profitably export some cuts to China. 

Zero tolerance for pathogens Zero tolerance is unsupported by a scientific risk assessment. This policy can 

serve to limit imports of meat and poultry. 

Bovine spongiform 

encephalopathy (BSE) 

restrictions 

China stopped imports of U.S. beef following the discovery of BSE in the U.S. 

cattle herd in December 2003. This is contrary to OIE guidelines. 

 Also related to BSE, China prohibits use of protein-free tallow ingredients 

derived from ruminants and imported ingredients in U.S. pet food exported to 

China, including ingredients that are themselves approved for import in China. 

Low pathogenic avian influenza 

(LPAI) restrictions 

China bans imports of poultry products from certain U.S. states in which LPAI 

has been detected. This is contrary to OIE guidelines. 

Fire blight restrictions Only two varieties of apples from three U.S. states are approved for import, and 

no pears. There is no known research demonstrating a risk of fire blight from 

symptomless commercial varieties of apples or pears. 

Potato pest risk assessment A Chinese pest risk assessment has been forthcoming for U.S. potatoes for a 

decade. Movement on this issue has reportedly been tied to U.S. movement on 

a variety of SPS issues affecting Chinese exports to the United States. 

Strawberry ban China does not allow imports of fresh strawberries, although there were no 

reported problems when this restriction was temporarily lifted during the Beijing 

Olympic Games. 

Biotechnology regulations All products containing genetically modified organisms must be labeled, the 

registration process cannot begin in China until registration is completed in the 

exporting country, and registrations must be renewed every three years. 

 VAT policies VAT policies provide a cost advantage to Chinese domestic agricultural 

producers and processers that purchase domestic agricultural products rather 

than imports. 

Labeling requirements Some products reportedly must be labeled entirely in Chinese or must have nonChinese characters on their labels covered with a sticker. 

Customs measures Some imports are subject to reference pricing, classification is not consistent, 

and clearance may be delayed. 

Multiplicity and duplication Multiple ministries and agencies are involved in licensing, certification, and 

inspection and do not share information among themselves. 

Provincial and local variation Regulations, standards, and enforcement can vary by location. 

TRQ administration Large allocations are reserved for state trading enterprises; only small 

allocations are available for private traders, and there is little reallocation. 

Lack of transparency Many Chinese ministries and regulatory agencies fail to follow agreed-upon 

comment and notification procedures. TRQ allocations and the identity of import 

license holders are not made public. 

Source: Compiled by Commission staff.
xxiv

Quantitative Findings 

Chinese tariffs and TRQs are estimated to have reduced U.S. agricultural exports 

by as much as $2.1 billion in 2009. 

Model simulation results prepared by Commission staff, suggest that China’s food and 

agricultural tariffs and TRQs reduced U.S. food and agricultural exports to China in 2009 

by between $1.3 billion and $2.1 billion (table ES.4). The tariff simulation captures the 

effects of the removal of Chinese tariffs and TRQs on agricultural imports from all 

sources. Among U.S. products most affected by China’s agricultural tariffs were wheat 

(U.S. exports to China are estimated to have been reduced by between $489 million and 

$1.2 billion), poultry ($358–$363 million), pork offal ($51–$84 million), cotton ($28–

$71 million), and alcoholic beverages ($32–$43 million). Absent tariffs, in the span of a 

few years, U.S. exports could expand more rapidly than modeling simulations indicate 

because of the possible additional effects of economic growth in China and of market 

development by U.S. exporters, two factors not included in the simulation. 

TABLE ES.4 China: China’s tariffs and simulated effects on U.S. exports to China in the absence of Chinese tariffs 

for selected agricultural products, 2009 

Product Chinese tariffs on U.S. products Range of simulated change in U.S. exports 

to China absent Chinese tariffs 

 Percent Million $ 

Wheat 68 489 1,192

Poultry 13 358 363

Pork offal 13 51 84

Cotton 5 28 71

Alcoholic beverages 29 32 43

All other (a) 101 112

 Total 6 1,251 2,090

Source: Commission staff calculations. 

a

Not applicable. 

China’s FTAs have a negligible effect on total U.S. agricultural exports. 

Model simulation results prepared by Commission staff, presented in ranges to account 

for the statistical uncertainty in key economic parameters, suggest that the effects of 

China’s FTAs on U.S. food and agricultural exports to China in 2009 may have ranged 

from a contraction of up to $21 million to an expansion of up to $48 million. The 

simulated effects range from negative (a contraction of U.S. exports) to positive (an 

expansion of U.S. exports) because they are small; as a result, the range for the aggregate, 

as well as for some individual products, straddles zero. This simulation assumes the full 

implementation of tariff and market access provisions for manufactured and agricultural 

goods in China’s ratified FTAs; U.S. tariffs remain unchanged while China and its FTA 

partners experience tariff elimination or reductions. Among U.S. agricultural exports 

shown to be negatively affected by China’s FTAs were wheat (U.S. exports to China 

were reduced by as much as $37 million), whey (a reduction of between $9 million and 

$12 million), grapes (a reduction of $9–$11 million), and apples (a reduction of $2–

$3 million). Among U.S. agricultural exports positively affected by China’s FTAs were 

poultry (an expansion of $63–$68 million), cotton (an expansion of $18–$24 million), 

and soybeans (an expansion of $15 million). 
xxv

Quantitative estimates indicate that NTMs restrict U.S. exports more than tariffs. 

In the absence of certain Chinese NTMs, it is estimated that total U.S. agricultural 

exports to China would have been $2.6–$3.1 billion higher in 2009 (table ES.5). 

Economic simulations were conducted on 12 U.S. agricultural product sectors for which 

(1) Chinese import prices were higher than world prices and (2) Commission research 

indicated that specific NTMs were impeding U.S. agricultural exports. Unlike the tariff 

simulation, this simulation estimates the impacts of the removal of all known and 

unknown NTMs specific to these products, not the elimination of a specific policy or set 

of policies. The sectors included in this simulation were wheat, several horticultural 

products (potatoes, apples, and stone fruits), cotton, and meat products (beef, pork, and 

poultry). The products for which the model indicated the greatest change in trade flows 

(and therefore considered to be most affected by Chinese NTMs) were wheat, cotton, and 

pork. 

TABLE ES.5 China: Simulated effects of removal of China’s NTMs for selected agricultural products, 2009 

Product Ranges of effects on U.S. exports to China 

 Million $ Percent change 

Wheat 1,452 1,704 1,722 2,022

Cotton 524 630 65 79

Pork offal 305 363 586 697

Frozen pork 49 56 215 245

Poultry 35 40 4 5

Apples 15 18 79 96

Stone fruits 1 1 12 16

Other products with NTMs 214 286 (a

) (a)

 Total 2,595 3,098 146 174

Source: Commission staff calculations. 

a

Not applicable. 

1-1

CHAPTER 1 

Introduction 

Overview 

China is the world’s largest agricultural economy. It is the leading producer of many 

agricultural commodities, supplying more than half of the world’s pork; one-third of the 

world’s horticultural products,1

 rice, and cotton; and close to 20 percent of the world’s 

wheat, corn, and poultry.2

 With about one-fifth of the world’s population, China is also 

the largest consumer of many agricultural products; its current share of global pork 

consumption is 50 percent, 40 percent for cotton, 30 percent for rice, and more than 

25 percent for soybeans and soybean oil. While China generally has been successful in 

meeting its rapidly rising demand for food and fiber by increasing domestic production, it 

has emerged as a leading global importer of several agricultural commodities, including 

cotton, soybeans, vegetable oils, and animal hides. As its domestic agricultural 

production has grown, China has also become the largest exporter in global markets for 

several horticultural products, including mandarin oranges, apples, apple juice, and garlic 

and other vegetables. 

China’s increasingly important position in global agricultural markets followed decades 

of gradual growth in domestic food production and consumption. After the introduction 

of market-based reforms in 1978 that included the elimination of the collective 

production system and relaxation of government direction over certain farmer production 

and marketing decisions,3

 Chinese agricultural output grew significantly. For example, 

between 1978 and 2008, China almost doubled its production of grains (rice, wheat, and 

corn) and quadrupled its production of meats; production of fruit and milk was about 30 

times greater in 2008 than in 1978.4

 At the same time, industrialization and urbanization 

led to unprecedented growth in the Chinese economy. During these three decades, 

population growth of about 1 percent annually, coupled with annual per capita income 

growth of 8 percent, 5

 fueled a large increase in demand for more and higher-value 

agricultural products, especially by China’s large and growing middle class.6

 China’s 

rapid growth in food consumption was largely met by domestic production growth, 

enabling it to remain self-sufficient in most major commodities. 

The U.S. agricultural sector is highly export-intensive. 7 In 2009, the United States 

exported $99 billion in agricultural goods, representing more than one-third of U.S. farm 

cash receipts.8

 With 95 percent of the world’s population living outside U.S. borders,9

 1

 Horticultural products include fruit crops, vegetable crops, ornamental and floral crops, and turf. 2

 Data are for 2009. FAO, FAOSTAT database; USDA, FAS, PSD Online database. 3

 Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009, 3–4. 4

 National Bureau of Statistics of China, China Statistical Yearbook 2009, 2009. 5

 IMF, International Financial Statistics. 6

 See chapter 3 of this report for further discussion of China’s food consumption patterns and the factors 

affecting them. 7

 According to the U.S. Department of Agriculture, the U.S. agricultural sector is twice as reliant on 

overseas markets as the U.S. economy as a whole. USDA, FAS, National Export Initiative: Importance of 

U.S. Agricultural Exports, February 2010. 8

 USDA, ERS, “Rural and Natural Resource Indicators,” June 2010. 9

 U.S. Census Bureau, International Data Base (accessed December 2, 2010). 
1-2

U.S. agricultural exporters seek opportunities to increase sales in foreign markets, 

especially in countries with large populations, rapidly growing per capita incomes, and 

changing food consumption patterns increasingly oriented toward higher-value foods, 

such as meat, dairy products, horticultural products, and processed food. 10 China in 

particular is viewed as providing important agricultural trade opportunities in the future.11

Indeed, in the last decade, China has become a major export market for certain U.S. 

agricultural products.12 Since joining the World Trade Organization (WTO) in December 

2001, China has become significantly more open to agricultural goods from abroad; 

Chinese agricultural imports from the United States increased from $2.1 billion in 2002 

to $17.8 billion in 2010, an average annual increase of about 31 percent.13 In 2010, China 

overtook Mexico to rank second among leading export destinations for U.S. agricultural 

products, behind only Canada. Yet U.S. agricultural exports to China are highly 

concentrated in a few products, with soybeans, cotton, hides and skins, and processed 

animal feed accounting for 84 percent of the total in 2010. Many grain and meat products 

in which the United States is globally competitive14 are not imported by China. 

In statements submitted to the U.S. International Trade Commission (Commission or 

USITC), U.S. agricultural community members, business representatives, and 

policymakers expressed concern that exports of a wider variety of U.S. agricultural goods 

to China are deterred by tariffs and nontariff measures (NTMs) and that China’s potential 

as a major destination for U.S. agricultural products is not being realized. There is also 

concern that Chinese government policies that have benefited Chinese agricultural 

production and exports may have weakened the U.S. competitive position vis-à-vis China 

in third-country markets, particularly in the Asia-Pacific region and in countries with 

which China has established free trade agreements (FTAs).15 Comparative statistics for 

Chinese and U.S. agricultural production and trade are presented in table 1.1. 

In its letter requesting this investigation,16 the Senate Committee on Finance (Committee) 

asked the Commission to examine and report on the competitive factors affecting 

agricultural trade between China and the United States. The Committee asked that the 

report cover the period 2005 through 2009, or through the latest year for which data are 

available. Noting the importance of China as a market for U.S. agricultural exports for a 

small range of products, the Committee pointed out that the rapid rise of per capita 

income in China, along with resource constraints on Chinese domestic agricultural 

production, have the potential to increase U.S. exports in the future. However, certain 

Chinese government policies could weaken the U.S. competitive position in the Chinese 

market. Specifically, the Committee asked that the report include the following: 

 10 USDA, FAS, “India and China: Divergent Markets for U.S. Agricultural Exports,” February 24, 2010. 11 Comments by U.S. Department of Agriculture Secretary, Tom Vilsack, conference call briefing, 

December 1, 2010. 12 USDA, FAS, “U.S.-China Trade,” August 4, 2010. 

13 GTIS, Global Trade Atlas database (accessed February 18, 2011). 14 The competitiveness of a country’s agricultural sector can be defined as the ability of its farmers and 

food processors to sell their products in domestic and overseas markets. 15 Industry official, interview by Commission staff, Shanghai, China, September 14, 2010. 16 Appendix A contains the request letter for this investigation; appendix B contains the Federal Register 

notice; and appendix C contains the list of witnesses that appeared at the Commission’s public hearing. 
1-3

TABLE 1.1 Chinese and U.S. agricultural production and trade: Comparative statistics 

 China United States 

Population (2009) 1,338 million 307 million 

Cropland (2009) 122 million hectares 164 million hectares 

Cropland per agricultural worker 

(2007) 

0.4 hectares 78.5 hectares 

Value of farm production (2007) $537 billion $329 billion 

Agriculture as share of GDP (2009) 10.6 percent 1.2 percent 

Value of agricultural imports (2010) $66 billion $86 billion 

Top five agricultural imports by value Soybeans, cotton, palm oil, dairy 

products, and hides and skins 

Coffee, cocoa products, wine, malt 

beverages, beef 

Top five agricultural import suppliers United States, Brazil, Argentina, 

European Union-27 (EU-27), 

Australia 

Canada, EU-27, Mexico, China, Brazil 

Value of agricultural exports (2010) $36 billion $119 billion 

Top five agricultural exports by value Processed vegetables, fresh 

vegetables, miscellaneous 

processed foods, fresh fruit, and 

animal feed 

Soybeans, corn, wheat, cotton, and 

animal feed 

Top five agricultural export markets Japan, EU-27, Hong Kong, United 

States, Korea 

Canada, China, Mexico, Japan, EU-27

Source: GTIS, Global Trade Atlas database (accessed February 18, 2011); USDA, ERS, “Foreign Agricultural Trade 

of the United States,” 2011; CIA, The World Factbook: China; World Bank, Data: China; USDA, NASS, Agricultural 

Statistics 2009, 2009, Table 9-44; National Bureau of Statistics of China, China Statistical Yearbook 2009, 2009, 

Table 12-4. 

 an overview of China’s agricultural market, including recent trends in production, 

consumption, and trade; 

 a description of the competitive factors affecting the agricultural sector in China, 

in such areas as costs of production, technology, domestic support and 

government programs related to agricultural markets, foreign direct investment 

policies, and pricing and marketing regimes; 

 an overview of China’s participation in global agricultural export markets, 

particularly in the Asia-Pacific region and in those markets with which China has 

negotiated trade agreements; 

 a description of the principal measures affecting China’s agricultural imports, 

including tariffs and nontariff measures such as sanitary and phytosanitary 

measures and technical barriers to trade; and 

 a quantitative analysis of the economic effects of China’s most-favored-nation 

(MFN) tariffs, preferential tariffs negotiated under China’s free trade agreements, 

and China’s nontariff measures on U.S. agricultural exports to China and on 

imports from the rest of the world. 
1-4

Scope of the Report 

In response to the Committee’s request, this report examines conditions of competition in 

China’s agricultural market and trade, and their effects on U.S. agricultural exports. As 

requested by the Committee, the report provides three types of information: 

(1) background information on China’s production, consumption, and trade in 

agricultural products; (2) information on the factors that affect the competitiveness of the 

Chinese agricultural sector and competition in the Chinese market for agricultural 

products; and (3) information on factors that directly affect U.S. exports and firms, 

including MFN and preferential tariffs, and NTMs. 

The remainder of chapter 1 describes China’s agricultural policies, including the 

government objectives driving the policies and the instruments used to achieve them. 

Chapter 2 surveys China’s agricultural trade trends, focusing on trade with the United 

States, countries in the Asia-Pacific region, and China’s FTA partners. This chapter also 

highlights China’s trade with third-country markets where U.S. exports compete as well. 

China’s agricultural consumption is discussed in chapter 3, which describes and analyzes 

China’s consumption patterns, preferences, and trends—the ultimate drivers of current 

and potential demand for agricultural products, domestic and imported. Chinese farmlevel production and domestic agricultural policies are described in chapter 4. Chapter 5 

describes conditions of competition in the Chinese agriculture market, including factors 

that affect the cost of delivery, product differentiation, and the reliability of the supply of 

agricultural products in China. Chapter 6 presents case studies that highlight conditions 

of competition in the Chinese apple, pork, processed foods sectors, and wheat. 

Information on the measures that directly affect U.S. agricultural exports and firms is 

covered in chapters 7–9.17 Chapter 7 describes China’s tariffs and gives quantitative 

estimates of the effect Chinese tariffs had on U.S. agricultural export levels to China in 

2009. An overview of China’s FTAs is presented in chapter 8. It includes quantitative 

estimates of the effects on U.S. agricultural exports of the elimination of tariffs between 

China and its FTA partners. Chapter 9 describes and analyzes China’s agricultural NTMs 

and includes quantitative estimates of the effects that China’s NTMs had on selected U.S. 

agricultural exports to China in 2009. 

Agricultural products in this investigation are those that fall within the description of 

products covered by the WTO Agreement on Agriculture, part XIII, article 21. These 

products include 768 6-digit product codes classified in the World Customs 

Organization’s Harmonized System (HS)––specifically, HS chapters 1 to 24, excluding 

fish and fish products (HS chapter 3) 18 ––plus certain additional products in other 

HS chapters, such as milk proteins (HS chapter 35), hides, skins, and furs (HS chapters 

41 and 43), wool (HS chapter 51), and cotton (HS chapter 52). 

As requested by the Committee, certain information presented in this report, including 

trends production and consumption, focuses on the 2005–09 period. Shortly before this 

report was published, Chinese trade data for full-year 2010 became available. These data 

were incorporated where possible throughout the report, particularly in chapter 2 

 17 Additional detail on these measures is found in appendix D, which summarizes the views of interested 

parties. 18 Processed fish products classified in HS chapter 16 are also excluded from the WTO definition of 

agricultural products. 
1-5

regarding Chinese agricultural trade. For some information with less timely statistics, the 

period from 2004 to the latest year for which data are available is used. Longer-term data 

are used to explain important long-term trends. The descriptive analysis on competitive 

factors and the quantitative analysis of the effect of Chinese trade measures is based on 

the latest available information and data. 

Approach 

As requested by the Committee, this report contains qualitative and quantitative analysis 

to evaluate the conditions of competition facing U.S. agricultural exports in China’s 

agricultural market, including the effects of tariffs and NTMs on U.S. agricultural exports 

to China. The qualitative analysis consists of several parts: (1) a general discussion and 

analysis of the Chinese agricultural sector and factors affecting its competitiveness; 

(2) Chinese government policies and their effect on U.S. agricultural exports; and 

(3) case studies to highlight the effect of specific Chinese policies and market conditions 

in particular sectors where U.S. agricultural products compete, both in China and in thirdcountry markets. 

The qualitative analysis was based on a review of existing literature, a public hearing, and 

interviews with U.S. government sources and agricultural sector representatives, 

including interviews with individual firms, trade associations, and exporters. Commission 

staff sought information from U.S. agricultural trade associations and U.S. firms with 

operations in China, contacting more than 80 commodity- and sector-specific agricultural 

trade associations and companies. Commission staff held extensive meetings with 

officials of the U.S. government, including the U.S. Department of Agriculture’s (USDA) 

Economic Research Service (ERS), Foreign Agricultural Service (FAS), and Animal and 

Plant Health Inspection Service (APHIS). Staff also traveled to China to meet with 

relevant U.S. and Chinese officials, USDA officials, academic researchers, importers, and 

market and logistics officials.19

Commission staff conducted extensive literature and data research on China’s trade and 

domestic policies that affect U.S. agricultural products in the Chinese market. Relevant 

trade and production data were obtained from Global Trade Information Services (GTIS); 

the Commission’s DataWeb; Chinese government Web sites, including those of the 

China National Bureau of Statistics and Ministry of Agriculture;20 the United Nations’ 

Food and Agriculture Organization; and the USDA. Information on China’s tariffs and 

NTMs was obtained from the WTO, Organisation for Economic Co-operation and 

Development (OECD), World Bank, and USDA (ERS, FAS, and APHIS), as well as 

many private sector and academic sources. 

 19 In connection with this investigation, Commission staff traveled to the Chinese cities of Beijing, 

Shanghai, and Hong Kong, and the provinces of Shandong and Sichuan. 20 The uncertain accuracy of China’s official statistics has traditionally hampered analysis of China’s 

economy. Gale, “China’s Statistics: Are They Reliable?” 2002. However, the trustworthiness of Chinese data 

is considered to be improving, and Chinese statistics are now considered reliable enough to be used for 

analysis, especially for long-term growth trends. Improvements in data quality are attributed to better vetting 

efforts of the central government agencies responsible for compiling these data. Holtz, “OECD: The 

Institutional Arrangements for the Production of Statistics,” January 19, 2005; Chow, Are Chinese Official 

Statistics Reliable? February 2006; U.S. government official, telephone interview by Commission staff, 

February 2, 2011. 
1-6

To analyze the competitive factors affecting the Chinese agricultural sector, the 

Commission developed an economic framework that provides the assumptions, 

parameters, and structure shaping competitive conditions in agricultural trade. 

Competitive conditions in agriculture refer to the economic, institutional, and regulatory 

environment in which firms compete. Competitive factors are defined as direct and 

indirect determinants of the ability of suppliers to offer products with characteristics 

desired by buyers, who base their buying decisions on three main criteria: delivered cost, 

product differentiation, and reliability of supply. In this report, Commission analysis 

explores the relative importance of delivered cost, product differentiation, and reliability 

of supply in determining the competitiveness of the Chinese domestic agricultural 

industry vis-à-vis its competitors in China and in export markets. 

In addition to descriptive information, the Committee requested that the Commission 

provide quantitative analysis of the economic effects of China’s MFN tariffs, preferential 

tariffs negotiated under China’s FTAs, and China’s NTMs on U.S. agricultural exports to 

China and on imports from the rest of the world. The Commission’s analysis was based 

on a simulation framework that consists of a partial equilibrium (PE) model and a general 

equilibrium (GE) model. The PE model focused on bilateral trade in food and agricultural 

products at the HS 6-digit level between the United States, China, and the rest of the 

world. The GE model used for the analysis was the Global Trade Analysis Project 

(GTAP) model, an economy-wide computable GE model of world trade specified at an 

aggregate product and sector level. The PE model was used to simulate the effects of 

Chinese tariffs and tariff-rate quotas on U.S. food and agricultural exports. The GE model 

was then used to simulate the economy-wide effects of those border measures. The two 

models were linked to provide consistent estimates of effects. A similar approach was 

applied in a recent USITC report on India.21 Further, the GTAP model was used to 

simulate the effects of Chinese preferential tariffs for its FTA partners on U.S. 

agricultural exports. 

Modeling simulations of the potential effects of NTMs were completed in a three-step 

process. First, price gap data were developed.22 The existence of NTMs would likely 

raise the price of imports into China and restrict the quantities imported. Thus, the 

differences between the prices of goods imported by China and the export prices of 

countries that sell agricultural goods to China were estimated at a disaggregated level 

(HS 6-digit level) using unit values of imports from 2007–09. These were estimated 

separately for U.S. exports to China and third countries’ exports to China taken as a 

group, adjusting for observable quality differences between exporters and for 

transportation costs. Second, a subset of products was identified for which available 

information indicated the presence of NTMs that may increase prices or restrict 

quantities. For these products, positive price gaps were treated as representing the 

economic effects of NTMs. Third, these price gaps were introduced into the simulationmodeling framework as being equivalent to tariffs, and the effects of their removal were 

estimated. 

 21 USITC, India: Effects of Tariffs and Nontariff Measures, November 2009. 22 A price gap is the difference between the domestic price and the global price of similar goods in the 

absence of free trade. 
1-7

China’s Policy Framework 

The Government of China’s Eleventh Five-Year Plan, covering the period 2006–10, 

identified China’s primary domestic agricultural policy objectives as (1) developing 

modern agriculture; (2) increasing farmers’ incomes; and (3) improving rural 

conditions. 23 The central government has also maintained its goal, outlined in other 

government documents, of reaching 95 percent food self-sufficiency in grains (corn, 

wheat, and rice).24 The secondary objectives include energy independence, ensuring a 

safe food supply for consumers, and conserving natural resources. To meet these 

objectives, China’s government actively regulates the agricultural sector using production 

and marketing policies, as well as closely monitoring international agricultural trade.25 

As in many other countries, China’s central, provincial, and local governments formulate 

agricultural policies in response to a policy environment linked to historical events and 

current social factors. As a result, officials articulate broad policy objectives and generate 

specific policy instruments influencing either macroeconomic factors (e.g., inflation 

rates, interest rates, and trade deficits) or microeconomic ones (e.g., industrial sectors and 

business investment). A simplified framework for Chinese domestic and trade policies in 

the agricultural sector appears in figure 1.1. 

Policy Environment 

China has suffered a series of droughts, famines,26 political upheavals,27 and other events 

over the past 100 years that the government is committed to avoid. In principle, the 

governmental structure consists of a one-party authoritarian system through which central 

government policies are presented to the populace in a “top-down” style of governance.28

In practice, however, provincial and local governments often exercise significant 

autonomy in implementing national policies. Moreover, China possesses (1) a large rural 

population that depends on agriculture for its livelihood; (2) scarce productive farmland 

relative to its population; and (3) a consumer base that spends a large part of its income 

on food. In addition, China suffers from environmental degradation related to its rapid 

economic development, as well as a widespread lack of consumer confidence in the 

safety of the country’s food supply. These factors often motivate the government to 

intervene and safeguard China’s domestic agricultural production. 

 23 World Bank, “Mid-Term Evaluation of China’s 11th Five-Year Plan,” December 18, 2008, 7–8. 24 OECD, Agricultural Policies in Non-OECD Countries, 2007, 71. 25 Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009, 1–2, 13, 20, 22–23, 35. 26 During the 20th century, China was periodically unable to feed its population. Between 1958 and 1961, 

more than 30 million Chinese citizens are estimated to have died from famine as a result of poor government 

planning during the Communist government’s Great Leap Forward. This is often known as the “Great 

Chinese Famine” or “Three Years of Economic Difficulty.” Other famines include an estimated 1 million 

deaths in 1942–43 during World War II; droughts and other natural disasters that claimed approximately 

8 million lives in northern China in 1920–21, 1928–29, and 1936; and famines in east-central China in 1907 

and 1911. 27 During the past 100 years China has also been subject to occupation, political revolutions, and other 

upheavals, including the Japanese occupation of portions of northern and coastal China between 1931 and 

1945, the decades-long armed struggle between the Nationalists and Communists, the Communist takeover of 

China in 1949, and the Cultural Revolution from 1966 to 1976. 28 In this case, top-down governance means that policy decisions are typically made by the central 

government and imposed on local governments and citizens. 
1-8

Policy Environment 

 History of famines and food shortages 

 History of political upheaval 

 Large, poor, rural population employed in agriculture 

 Limited agricultural land per capita 

 One-party authoritarian system 

 History of local autonomy vis-à-vis central government 

 Environmental degradation 

 Lack of confidence in safety of food supply 

FIGURE 1.1 China’s agricultural policy framework: Policy instruments are the outcome 

of policy environment and objectives 

Policy Objectives 

 Address the interconnected needs of agriculture, rural 

 communities, and farmers (“harmonious Socialist 

 countryside”) 

 Improve the economic and social well-being of the rural 

 population (mainly farmers) 

 Maintain grain self-sufficiency and stable prices 

 Ensure a safe food supply for all citizens 

 Conserve valuable environmental resources 

 Attain energy independence 

Policy Instruments 

 Investments in rural infrastructure 

 Investments in research and development for agriculture 

 Minimum purchase prices for agricultural commodities 

 Input subsidies, direct payments, and preferential credit 

 Relief from agricultural taxes 

 Food reserves 

 Consumption subsidies (minimum living allowance) 

 Strategic export and import controls 

 Food safety law 

Source: Compiled by Commission staff. 

Today, nearly 40 percent of China’s population of 1.3 billion is employed in the 

agricultural sector, and agriculture contributes about 11 percent to China’s gross domestic 

product (GDP).29 Over the past 30 years, China experienced strong economic growth, but 

laborers who did not migrate from rural areas to the cities typically have not benefited as 

 29 CIA, CIA World Factbook: China, 2009. 
1-9

much as their urban counterparts from better employment opportunities and rising 

incomes.30 The Chinese agricultural sector has very low labor productivity, averaging 

only one-fifth the level of other sectors of the economy. The OECD identified low labor 

productivity as contributing to an income gap in 2007 in which per capita incomes were 

3.3 times higher in urban areas of China than in rural ones.31

Under the Chinese political system, it is common for policymakers to set up 

implementation procedures and enforcement mechanisms only after a regulation takes 

effect. Regulations to protect farmer or consumer rights and ensure fairness in the 

marketplace are sometimes interpreted differently among local governments, or simply 

ignored. This creates an environment of regulatory uncertainty for businesses, which 

suffer from the lack of administrative transparency and implementation details. Foreign 

companies in China tend to be relatively disadvantaged in this regard compared to 

domestic companies because foreign firms often lack the relationships that Chinese 

companies have with government agencies to receive timely regulatory clarifications. In 

addition, foreign food and agricultural companies operating in China are often surprised 

by the extent to which local governments have autonomy over the implementation of 

domestic agricultural support programs.32 

In recent years, shortcomings within China’s food safety regime in monitoring and 

enforcing the quality of products such as milk, eggs, and pet food have severely 

undermined consumer confidence in the system. As a result, the Chinese government has 

focused its attention on the issue of food safety, severely punishing key participants in 

several of the scandals, creating a politically powerful Food Safety Commission,33 and 

enacting a sweeping new food safety law in 2009. However, as reports about unsafe food 

in China continue to be publicized, it is unclear how effectively government efforts will 

assuage consumer food safety fears. 

Policy Objectives 

With China’s long history of famine and political revolutions, and in light of a rising 

number of “public order disturbances” by farmers and consumer groups in the mid- to 

late 2000s,34 China’s central government in Beijing began funneling additional resources 

to the farm sector and rural economy to meet its policy objectives. Raising incomes for 

farmers is important to the government because many of China’s poor live in rural areas, 

and farming small plots is the primary livelihood for the majority of rural inhabitants. 

Boosting rural development by raising government funding for agricultural infrastructure 

and other spending is designed to promote social harmony and shrink the income gap 

between urban and rural workers. Self-sufficiency in grains, at least up to 95 percent of 

domestic demand, is considered by Chinese policymakers to be a key component of 

China’s food security strategy.35 

 30 A discussion of rural and urban income differences can be found in chapter 3. 31 OECD, Agricultural Policies in Emerging Economies 2009, 2009, 80. 32 Owen, “Standards in China,” January–February 2010, 42; Promar International, The Chinese Potato 

Industry in Transition, 2007, 123. 33 Three vice premiers will sit on this 18-member panel, and the chairman, Li Keqiang, is expected to 

succeed Wen Jiabao to become China's next premier. Bloomberg Businessweek, “China Names Vice Premier 

Food Safety Commission Head,” February 10, 2010. 34 Lum, “Social Unrest in China,” May 8, 2006, 1. 

35 Xiao and Nie, A Report on the Status of China’s Food Security, 2009, 5–8. 
1-10

Food security is defined by the World Bank as “access by all people at all times to 

enough food for an active, healthy life”;36 the components include availability, access, 

and use.37 Achieving food security requires that food be available in volumes that meet 

consumer needs and at prices they can afford. Food self-sufficiency relates to the 

productive capacity of the nation’s agriculture sector, and is generally taken to mean the 

extent to which a country can satisfy its food needs from domestic production.38 The two 

concepts differ in that self-sufficiency looks only to national food production for sources 

of supply, while food security takes into account the possibility of imports.39 Largely 

because of China’s history, food security and self-sufficiency, though distinct concepts, 

are often interconnected in Chinese policies.40 

 

As in other countries whose governments intervene heavily in the agricultural sector, 

China’s agricultural policies reflect conflicting government objectives. Efforts to raise 

farmers’ incomes over the past 5–10 years have conflicted with the policy of 95 percent 

self-sufficiency in grain production because producing grains in China is less profitable 

than many other types of farming: for example, net cash returns earned by Chinese 

farmers from growing vegetables and fruits are several times higher than returns from 

growing rice, wheat, and corn.41 Boosting farmers’ incomes can also conflict with urban 

consumer welfare. For example, international food prices rose sharply during 2007 and 

2008, but Chinese officials sought to limit domestic price increases by limiting exports of 

grains, cutting soybean tariffs, and importing vegetable oil. These actions had the effect 

of keeping consumer prices down, which benefited urban consumers but also denied 

additional income to Chinese farmers. 

As noted, China’s policies toward agriculture focus not only on food security through 

self-sufficiency and raising farmers’ incomes, but also to a lesser extent on energy 

independence, ensuring a safe food supply for consumers, and conserving natural 

resources. Government programs promote domestic biofuel production and encourage 

water and soil conservation, but policies addressing environmental concerns and energy 

independence potentially conflict with grain self-sufficiency and increasing farmer 

incomes.42 For example, producing biofuels affects China’s mix of agricultural products 

and may end up increasing imports of feedstock sources.43 China’s policies toward the 

agricultural sector will evolve as the government continually rebalances conflicting 

policy objectives. 

 36 The U.S. Agency for International Development (USAID) and the FAO have similar definitions. 

USAID, “Policy Determination: Definition of Food Security,” April 13, 1992. 37 More formally, the terms are defined as follows: “food availability” is having sufficient quantities of 

food available on a consistent basis; “food access” is having sufficient resources to obtain appropriate foods 

for a nutritious diet; and “food use” is the appropriate use based on knowledge of basic nutrition and care, as 

well as adequate water and sanitation. Of the three, only availability and access will be addressed in this 

study. WHO, “Glossary” (accessed July 23, 2009). 38 Thompson and Metz, Implications of Economic Policy for Food Safety, 1999. 39 Ibid. 

40 The United Nations and other organizations acknowledge that China has significantly increased its 

prospects for food security through the development of domestic agricultural production, but external trade is 

also a useful tool for dealing with food production surpluses and shortfalls. Xiao and Nie, A Report on the 

Status of China’s Food Security, 2009, 5–8; Thompson and Metz, Implications of Economic Policy for Food 

Safety, 1999. 41 Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009, 20. 42 Ibid., 19. 

43 USDA, FAS, China: Bio-fuels, August 8, 2006, 17. 
1-11

Policy Instruments 

The tension between competing goals for the farm sector, consumers, and food security 

has caused the Chinese government to intervene heavily using multiple policy 

instruments. China’s government agricultural programs can largely be subdivided into 

four categories: direct payments, price support programs, infrastructure, and regulatory 

reforms (e.g., food safety and standards). 44 Farmers’ incomes are raised through 

minimum purchase prices, input subsidies, the elimination of agricultural taxes and fees, 

and government funding for capital equipment purchases to mechanize farming. The 

effects of these government payments on farmer income provide strong inducements to 

produce grains (rice, wheat, and corn) rather than more profitable livestock, horticulture, 

or other field crops. 

With the exception of regulatory reforms, all of these programs are intended to boost 

farmers’ incomes directly or to lower the delivery costs, potentially providing a 

competitive advantage over foreign goods. Improvements to agricultural infrastructure, 

such as rural transportation networks, the rural financial system, and marketing 

institutions, upgrade the environment for agriculture. Improved infrastructure lowers the 

cost of production and delivery, though sometimes over a longer time period than direct 

payments. Government-mandated regulatory reforms affect Chinese and foreign 

companies uniformly, provided that these policies are equitably implemented. 

Chinese policymakers seek food security largely through domestic production, and 

imports are often viewed as a second-best source to achieve this objective. While USITC 

staff found little evidence of a coordinated effort across China’s government agencies to 

broadly restrict agricultural imports, China bans or restricts entry of a number of 

agricultural products, or has threatened to do so. For example, U.S. apples, strawberries, 

potatoes, dairy products, and pork have all suffered from either delays in risk assessments 

or from risk assessments that are not based on internationally accepted scientific 

standards. China appears to link the application of NTMs, such as sanitary and 

phytosanitary requirements, to domestic policies by relaxing NTMs when policymakers 

determine that imports are needed to relieve food price inflation or shortages.45 

 44 A full discussion of policy instruments can be found in chapter 4. 45 China’s NTMs are described in chapter 9. 
1-12

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1-13

U.S. Census Bureau. International Data Base. http://www.census.gov/ipc/www/idb/worldpopinfo.php

(accessed December 2, 2010). 

U.S. Department of Agriculture (USDA). Economic Research Service (ERS). “Briefing Room: China,” 

March 12, 2009. http://www.ers.usda.gov/Briefing/China/data.htm (accessed December 3, 2010). 

———. “Foreign Agricultural Trade of the United States,” March 2010. 

http://www.ers.usda.gov/Data/FATUS/DATA/McyTOP15.xls

http://www.ers.usda.gov/data/fatus/DATA/cytop25hvpimp.xls

http://www.ers.usda.gov/data/fatus/DATA/cytop25hvpexp.xls. 

———. “Rural and Natural Resource Indicators.” Amber Waves, June 2010. 

U.S. Department of Agriculture (USDA). Economic Research Service (ERS) and Foreign Agricultural 

Service (FAS). Outlook for U.S. Agricultural Trade, August 31, 2010. 

U.S. Department of Agriculture (USDA). Foreign Agricultural Service (FAS). China Peoples Republic of: 

Bio-fuels, an Alternative Future for Agriculture, by Kevin Latner, Caleb O’Kray, and Junyang 

Jiang. GAIN Report no. CH6049, August 8, 2006. 

———. “India and China: Divergent Markets for U.S. Agricultural Exports.” International Agricultural 

Trade Report. February 24, 2010. 

http://www.fas.usda.gov/itp/china/India_Chinamarket022010.pdf. 

———. “National Export Initiative: Importance of U.S. Agriculture Exports,” April 2010. 

http://www.fas.usda.gov/info/factsheets/tradevalue.pdf.

———. “U.S.-China Trade,” August 4, 2010. http://www.fas.usda.gov/itp/china/us-china.asp. 

———. Production Supply and Distribution (PSD) Online. http://www.fas.usda.gov/psdonline (accessed 

May 20, 2010). 

U.S. Department of Agriculture (USDA). National Agricultural Statistics Service (NASS). Agricultural 

Statistics 2009. Washington, DC: GPO 2009. 

http://www.nass.usda.gov/Publications/Ag_Statistics/2009/index.asp 

U.S. Government. President’s Commission on Industrial Competitiveness. Global Competition: New 

Reality. Vol. 1. Washington, DC: GPO, January 1985. 

U.S. International Trade Commission (USITC). Guidelines for Developing an Economic Framework for 

an ITC Study. Office of Economics. Unpublished, 2008. 

———. India: Effects of Tariffs and Nontariff Measures on U.S. Agricultural Exports. USITC 

Publication 4107. Washington, DC: USITC, 2009. 

———. Sub-Saharan Africa: Effects of Infrastructure Conditions on Export Competitiveness. USITC 

Publication 4071. Washington, DC: USITC, 2009. 

World Bank. “Mid-Term Evaluation of China’s Eleventh Five-Year Plan.” Report no. 46355-CN, 

December 18, 2008. 

World Bank. Data: China. http://data.worldbank.org/country/china (accessed Oct 21, 2010). 
1-14

World Health Organization (WHO). “Glossary.” http://www.who.int/trade/glossary/story028/en

 (accessed July 23, 2009). 

Xiao, Yunlai, and Fengying Nie. A Report on the Status of China’s Food Security. United Nations. 

Beijing: China Agricultural Science and Technology Press, 2009. 
2-1

-40

-30

-20

-10

0

10

20

30

40

50

60

70

80

2005 2006 2007 2008 2009 2010

Billion $

 Imports Exports Balance

FIGURE 2.1 China agricultural trade balance: China maintained an agricultural trade deficit 

during 2005–10

Source: GTIS, Global Trade Atlas database.

CHAPTER 2 

Chinese Agricultural Trade 

Overview 

China’s agricultural trade is globally significant. In 2009, Chinese agricultural imports 

and exports accounted for 9 percent and 5 percent, respectively, of global agricultural 

trade.1

 China ranked as the world’s second-largest agricultural importing country behind 

the United States in that year, and for many agricultural products, including soybeans, 

vegetable oils, cotton, wool, and hides and skins, China was the top global importer. 

China was the world’s fourth leading agricultural exporting country (behind the United 

States, Brazil, and Canada) in 2009 and the largest exporter of many types of fresh and 

processed horticultural products. However, despite the agricultural sector’s large size, it 

plays a relatively small role in China’s overall trade, with agricultural imports and 

exports accounting for about 3 percent of both imports and exports of merchandise during 

2005–09.2

During 2005–10, China recorded an agricultural trade deficit that rose from $5.3 billion 

in 2005 to $30.8 billion in 2010 (figure 2.1). 3 China has been a net importer of 

agricultural products since 2003,4

 and the trade gap is likely to continue given that future 

growth in food demand, driven by rapidly rising per capita income, is expected to outpace 

increases in domestic production.5

 Between 2005 and 2010, China’s agricultural imports 

 1

 GTIS, Global Trade Atlas database. 

2

 GTIS, Global Trade Atlas database; IMF, International Financial Statistics. 3

 The sharp rise in the agricultural trade deficit in 2010 was largely because of the rise in commodity 

prices that year, including the prices of many of China’s major agricultural imports, such as soybeans, 

vegetable oils, hides and skins, and cotton. 4

 For most of the previous three decades, China was a net exporter of agricultural products. Gale and 

Lohmar, “Who Will China Feed?” 2008. 5

 Industry official, interview by Commission staff, Beijing, China, September 7, 2010. 
2-2

rose at an annual average rate of about 24 percent, reaching a record $66.4 billion in 

2010. This growth can be attributed to many factors, including increased consumer 

demand for higher-valued food products such as meat, horticultural goods, and processed 

food products, as well as strong demand by China’s textile and apparel industry for fiber 

and for hides and skins. Lower trade barriers following China’s entry into the World 

Trade Organization (WTO) also may have spurred growth in agricultural imports.6

 The 

United States is China’s leading agricultural import supplier, accounting for 27 percent of 

its total agricultural imports during 2005–10. China’s agricultural exports increased from 

$19.6 billion in 2005 to $35.7 billion in 2010, representing annual average growth of 

13 percent. The United States ranks fourth among major markets for Chinese agricultural 

exports (behind Japan, the European Union [EU-27], and Hong Kong), accounting for 

about 9 percent of its agricultural exports during 2005–10. In 2010, China accounted for 

about 14 percent of total U.S. agricultural exports, overtaking Mexico to become the 

second largest export market for U.S. agricultural products behind Canada.7

Relative to the United States, China has an abundance of rural labor and a scarcity of 

agricultural land. 8 Consistent with these natural resource endowments, China’s 

agricultural exports are more concentrated in labor-intensive products such as fruits and 

vegetables, while its imports include many land-intensive products, like cotton and 

soybeans. However, China is not a major importer of land-intensive grains, such as rice, 

wheat, and corn. These are products in which the United States, as a land-abundant 

country, is highly competitive in international markets. The low level of grain imports is 

largely due to China’s self-sufficiency policy, which seeks to avoid dependence on the 

international market for grains.9

 The Chinese central government encourages domestic 

production and discourages certain imports through a variety of programs, ranging from 

increased funding of infrastructure projects and guaranteed minimum prices to subsidies 

and import controls.10 

Imports 

Imports by Product

During 2005–10, Chinese agricultural imports more than doubled, increasing from 

$25 billion to $66.4 billion (table 2.1). Agricultural imports are highly concentrated in a 

few major products. In 2010, two products, soybeans (38 percent) and cotton (9 percent), 

accounted for almost one-half of all Chinese agricultural imports, while the top 10 import 

categories made up nearly 75 percent of the total. After soybeans and cotton, leading 

imports were palm oil (8 percent), dairy (4 percent), hides and skins (4 percent), and wool 

 6

 He, Li, and Polaski, “China’s Economic Prospects 2006–2010,” April 2007, 17; Anderson, Martin, and 

Valenzuela, “Long Run Implications of WTO Accession for Agriculture in China,” 2007. 7

 Using the WTO definition of agricultural products (see the definition in chapter 1 of this report), in 

2010 China became the second leading market for U.S. agricultural exports behind Canada. Using the USDA 

definition of agricultural products (which is narrower than the WTO’s because it excludes certain sugar 

alcohols, plant-based food additives, and fatty acids), the USDA reported that in 2010 China moved ahead of 

Canada to become the leading market for U.S. agricultural exports. USDA, “Agriculture Secretary Vilsack’s 

Statement on 2010 U.S. Farm Exports Record,” February 11, 2011. 8 Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009. 9

 Chinese government policies regarding grain self-sufficiency are described in chapter 4. 10 USDA, FAS, National Plan for Expansion of Grain Production Capacity, February 18, 2010. 
2-3

TABLE 2.1 China: Agricultural imports from the world and the United States by product, 2005–10 (million $) 

Product Source 2005 2006 2007 2008 2009 2010

 Animal products 

Live animals World 109 63 74 104 140 269

United States 17 18 19 42 33 34

Beef World 9 8 14 18 44 84

United States 0 0 0 0 0 0

Pork World 29 21 123 523 136 209

United States 5 1 70 313 24 30

Sheep and lamb meat World 55 50 78 106 139 157

United States 0 0 0 0 0 0

Poultry World 334 462 945 1,087 984 963

United States 178 309 613 811 827 168

Dairy World 630 823 1,129 1,411 1,784 2,874

United States 78 106 159 196 145 243

Eggs World 1 1 0 1 1 3

United States 0 0 0 0 0 2

Processed meats World 4 8 8 6 4 7

United States 2 2 2 1 1 3

Grains 

Wheat World 762 108 21 7 205 309

 United States 104 33 5 0 91 31

Rice World 196 288 217 183 201 253

 United States 0 0 0 0 0 0

Barley World 429 406 267 484 435 536

 United States 0 0 0 0 0 0

Corn World 1 12 7 12 20 367

 United States 0 10 1 3 4 348

 Oilseeds and products 

Soybeans World 7,779 7,489 11,472 21,814 18,787 25,081

 United States 3,160 2,719 4,234 8,443 9,333 11,319

Soybean oil World 908 800 2,146 3,334 1,842 1,203

 United States 0 14 119 206 41 255

Palm oil World 1,925 2,435 3,980 5,616 4,557 5,222

 United States 0 0 0 0 0 0

Coconut oil World 78 93 106 193 103 294

 United States 0 0 0 1 1 2

Rapeseed oil World 104 28 305 355 377 921

 United States 0 3 0 0 0 2

Other vegetable oil World 148 392 757 881 589 899

United States 6 7 13 47 16 18

 Horticulture 

Vegetables, fresh World 3 7 1 3 6 8

 United States 0 0 0 0 0 0

Vegetables, processed World 567 799 861 651 1,108 1,610

 United States 43 56 66 69 60 103

Nuts World 108 129 169 286 363 510

 United States 20 17 28 67 110 151

Fruit, fresh World 499 528 610 826 1,204 1,514

 United States 86 92 83 120 174 236

Fruit, processed World 88 134 200 241 286 323

 United States 18 29 34 49 69 86

Juice World 73 99 146 126 141 166

 United States 4 4 7 10 17 18

 Beverages 

Tea/coffee World 30 44 61 83 68 118

 United States 5 9 11 14 8 10

Alcoholic beverages World 389 553 815 1,082 1,052 1,570

 United States 14 17 18 29 35 45

Non-alcoholic beverages World 18 30 48 52 59 72

 United States 3 3 3 5 4 2
2-4

TABLE 2.1 China: Agricultural imports from the world and the United States by product, 2005–10 (million $)—

Continued

Product Source 2005 2006 2007 2008 2009 2010

 Sugar, sweeteners, confectionery 

Sugar World 383 549 380 319 378 906

United States 0 0 0 0 0 0

Other sweeteners World 45 47 53 67 70 90

United States 4 5 7 6 5 6

Cocoa products World 177 183 211 313 262 437

United States 11 15 17 16 27 33

 Processed foods 

Miscellaneous processed foods World 435 495 563 771 874 1,194

 United States 103 127 121 147 121 158

Milled grain products World 186 246 221 234 301 452

 United States 4 4 6 5 5 6

Processed animal feed World 222 357 266 466 534 1,566

 United States 35 37 60 90 201 821

 Other 

Cotton World 3,221 4,922 3,535 3,525 2,149 5,706

 United States 1,470 2,295 1,608 1,663 872 2,000

Wool World 1,249 1,289 1,812 1,728 1,508 2,021

 United States 9 16 20 11 11 13

Hides and skins World 1,483 1,605 1,822 2,067 1,701 2,415

 United States 678 826 864 930 642 822

Tobacco and products World 384 463 541 788 844 791

 United States 12 63 69 103 112 155

All other World 1,928 2,208 2,883 3,942 4,460 5,319

 United States 273 290 361 431 415 713

 Total World 24,991 28,178 36,850 53,707 47,717 66,439

United States 6,342 7,128 8,620 13,826 13,407 17,834

Source: GTIS, Global Trade Atlas database. 

(3 percent). Among the fastest-growing imports during 2005–10 were several high-value 

products, including meat and dairy products, alcoholic beverages, fresh fruit, and 

miscellaneous processed foods. Major Chinese import flows are depicted in figure 2.2.11

The United States was China’s leading agricultural import supplier during 2005–10, a 

period in which U.S. imports to China increased almost threefold to reach $17.8 billion in 

2010 (table 2.1). China’s imports from the United States are more concentrated than 

those from most of its other trading partners, with the top four imports—soybeans, 

cotton, hides and skins, and processed animal feed—accounting for 84 percent of the 

total in 2010. Soybeans accounted for 63 percent of all agricultural imports from the 

United States in 2010 and were responsible for most of the overall growth during 2005–

10. Although the United States is among the world’s largest exporters of grains, 

vegetable oils, beef, and pork, these products amounted to less than 3 percent of Chinese 

imports from the United States between 2005 and 2010. 

 11 Trade data cited here are from the United Nations Trade Statistics, as reported by China and compiled 

by Global Trade Atlas. The country’s imports are likely understated because official government statistics do 

not reflect “grey market” trade, which enters China through Hong Kong and Vietnam. 
2-5

Soybeans 

Soybeans are China’s largest agricultural import. During 2005–10, the value of soybean 

imports increased an average of 32 percent annually, and further growth is expected over 

the next five years. 12 Imports rose from $7.8 billion in 2005 to peak at $25.1 billion in 

2010. 13 In 2009, China purchased more than one-half of total global soybean exports. 14 

Most of China’s soybean imports are processed into soybean meal for animal feed and 

cooking oil for human consumption. Large margins between the prices paid for imported 

soybeans and the prices received for processed meal and oil have made local processing 

highly profitable and have contributed to the recent growth of soybean imports.15 

Soybeans are by far the single most important agricultural product traded between the 

United States and China (table 2.1). During 2005–10, China received almost one-half of 

total U.S. soybean exports (58 percent in 2010). The large quantities traded are consistent 

with the United States’ position as the world’s largest soybean producer and China’s as 

the world’s largest consumer. According to the American Soybean Association (ASA), 

U.S. soybean exports to China do not face trade barriers.16 However, ASA has expressed 

concern that imports of genetically modified (GM) soybeans from the United States could 

become constrained by the cost of complying with Chinese GM regulations and the 

 12 Industry official, interview by Commission staff, Beijing, China, September 7, 2010. 13 During 2005–10, although the value of Chinese soybean imports fluctuated between years, the quantity 

of imports rose each year during the period. 14 2009 is the most recent year for which global soybean export data are available. 15 USDA, FAS, “Strong Processing Margins Support China’s Expanding Soybean Import Market 

Demand,” January 2010, 1. 16 For example, Chinese imports of soybeans have a duty rate of “Free.” 

China

United States

FIGURE 2.2 Chinese agricultural imports were highly concentrated in a few major products in 2010 

(million $)

Source: GTIS, Global Trade Atlas database.

Brazil

Argentina

($11,319)

($8,146)

($4,979)

India

($2,000)

($1,736)

ASEAN countries

($5,209)

Australia

($430)

($822)

($367)

($492)

Soybeans (HS 1201) $25,081 Palm oil (HS 1511, 1513) $5,222

Cotton (HS 5201, 5202) $5,706 Dairy (HS 0401–0406, 1702, 1901, 2105, 3501, 3502) $2,874

Hides and skins (HS 4101, 4102, 4103, 4301) $2,415

($259)

EU-27

New Zealand

($1,508)
2-6

difficulty of gaining approval for new cultivars of soybeans.17 In this regard, ASA notes 

that the Chinese government requires separate registration for soybeans with stacks18 of 

two or more biotech traits, even if all traits have been separately approved.19 

Vegetable Oils 

Vegetable oils are China’s second-largest agricultural import after soybeans. During 

2005–10, 75–90 percent of China’s vegetable oil imports consisted of palm oil and 

soybean oil. These two oils accounted for close to 23 percent and 30 percent of global 

imports, respectively, during 2005–09. Between 2005 and 2010, China’s vegetable oil 

imports more than doubled in value, accounting for about 13 percent of all agricultural 

imports by China in 2010. Used mainly for cooking, vegetable oil imports have risen 

because of growth in per capita income and the increasing availability of low-cost palm 

oil from Malaysia and Indonesia. Chinese imports of soybean oil are relatively low 

compared to soybeans, reflecting, in part, the difference in tariff treatment between 

soybeans (duty free) and soybean oil (9 percent tariff).20 Most of China’s soybean oil 

imports are sourced from Brazil (67 percent in 2010), followed by the United States (21 

percent), and Argentina (11 percent). 

Cotton

 

Cotton is heavily used in China’s large textile and apparel industry, which accounted for 

one-third of the value of world apparel exports in 2008.21 As a result, China is the world’s 

largest producer, consumer, and importer of cotton.22 In 2009, China accounted for about 

one-third of global cotton imports, in spite of potential duties of 40 percent.23 Because so 

much cotton is used in textile and apparel production, China’s demand for cotton imports 

reflects both changes in domestic cotton production levels and global and domestic 

demand for Chinese cotton apparel and textiles. Cotton imports decreased each year 

during 2007–09 and by 2009 had declined 56 percent from 2006. The sharpest decline 

was between 2008 and 2009, when the global economic crisis caused a decrease in orders 

for Chinese apparel products.24 However, in 2010, cotton regained its standing as China’s 

second most important agricultural import, reaching $5.7 billion, when China’s textile 

and apparel industry increased production.25

Between 2005 and 2010, cotton was China’s second-largest agricultural import from the 

United States. U.S. cotton represented over one-third of China’s cotton imports in 2010, 

and the United States was China’s largest supplier during the period, followed by India, 

Uzbekistan, and Australia. Chinese imports of U.S. cotton peaked in 2006, dropped 

sharply in 2009, but then more than doubled the 2009 level in 2010. In addition to the 

weaker cotton demand following the global recession, a reduction in planted cotton area 

 17 ASA, written submission to the Commission, June 22, 2010. 18 “Stacks” are multiple genes that have been inserted into a seed using biotechnology in order to convey 

a special characteristic or trait, like the ability to resist certain insects. 19 ASA, written submission to the Commission, June 22, 2010. 20 WTO, TAO. 

21 Chinese apparel exports represent only 44 percent of Chinese production, with the remaining 

56 percent consumed in the domestic market. Gereffi and Stacey, “The Global Apparel Value Chain, Trade 

and the Crisis,” April 2010, 8, 10. 22 USDA, ERS, Fiber Use for Textiles and China’s Cotton Textile Exports, March 2009. 23 Cotton is subject to a tariff rate quota. The in-quota tariff is 1 percent while the over-quota tariff is 

40 percent. For more information see chapter 7. 24 USDA, ERS, Cotton and Wool Situation and Outlook Yearbook, November 2008, iv. 25 Ibid., June 11, 2010, 6. 
2-7

in the United States that began in 2006 had led to lower supplies available for export, 

including exports to China.26 However, in 2010 U.S. production levels were the highest 

in three years, which meant more U.S. cotton was available for export at the same time 

global demand was recovering.27 

Despite increased shipments that year, the United States has been losing market share in 

China to competitors, particularly India, which also accounted for about a one-third of 

China’s cotton imports in 2010.28 Indian cotton exports grew in line with increasing 

production as a result of India’s adoption of Bt cotton.29 

Hides and Skins 

In addition to cotton, China’s apparel, footwear, and accessories industries use imported 

hides and skins as inputs. During 2005–09, China accounted for about 30 percent of 

world hides and skins imports and was by far the world’s leading importer. In 2010, 

China’s hides and skins imports were $2.4 billion, the sixth highest category of 

agricultural imports that year. Applied tariffs on imported hides and skins are low at 

about 5 percent.30 Imports grew each year between 2005 and 2010, except for 2009, when 

they dropped 18 percent. Like cotton, imports of hides and skins fell substantially 

because of the global economic crisis and the resulting drop in orders for Chinese 

apparel, footwear, and accessories worldwide, but rose again when the industry recovered 

in 2010. During 2005–08, close to one-half of Chinese hides and skins imports came 

from the United States, but this share fell to about one-third during 2009–10. These 

shipments consisted mostly of cattle hides. 

Meat 

 

During 2005–10, Chinese meat imports rose from $431 million to $1.4 billion, an average 

annual growth of about 35 percent. The increase is attributable principally to a rise in per 

capita meat consumption, which grew about 20 percent annually between 2005 and 

2009.31 During this period, poultry made up three-quarters of China’s meat imports, 

followed by pork, with a 13 percent share, and sheep and lamb meat, with a 9 percent 

share. Growth in Chinese imports reflects a larger trend of rising poultry consumption in 

China that is outpacing domestic production. Poultry consumption in China rose because 

of health concerns about pork products, higher incomes,32 and more frequent dining out 

by Chinese urbanites.33 Poultry was one of China’s top four agricultural imports from the 

United States during 2005–09, growing at an average annual rate of over 50 percent. The 

United States share of China’s poultry imports rose from 53 percent to 80 percent during 

2005–09, gradually edging out poultry imports from Argentina and Brazil. However, in 

2010 U.S. market share fell significantly, with imports down 80 percent from 2009

 26 During 2006–09, higher returns available to U.S. farmers from alternative crops, such as soybeans and 

corn, resulted in less land planted with cotton. USDA, ERS, “Cotton: Background,” November 10, 2009. 27 USDA, ERS, Cotton and Wool Situation and Outlook Yearbook, December 13, 2010, 2. 28 In 2005 India accounted for only 5 percent of China’s cotton imports. 

29 USDA, FAS, India: Cotton and Products Annual, 2010, April 12, 2010, 3–4. Indian cotton exports are 

expected to decline due to a law requiring licenses to export cotton. USDA, FAS, India: Export of Cotton 

Allowed under License, June 4, 2010; USDA, ERS, Cotton and Wool Situation and Outlook Yearbook, 

December 13, 2010, 6. 30 WTO, TAO. 

31 EIU, China: Food: Sub-Sector Update, January 2009. 32 EIU, China: Food, Beverages and Tobacco Profile, January 17, 2008. 33 USDA, FAS, China: Poultry and Products; Annual, September 1, 2008, 5. 
2-8

due to China’s countervailing duty (CVD) and antidumping (AD) investigations and 

subsequent imposition of duties on U.S. poultry products.34 

Pork was the fastest-growing meat import by China during 2005–10, driven mostly by a 

fourfold increase between 2007 and 2008. Higher demand for foreign pork followed a 

domestic outbreak of blue ear disease in 2007, as well as poor weather that reduced the 

availability of domestic supplies.35 This outbreak particularly encouraged imports of U.S. 

pork, which rose from $1 million in 2006 to peak at $313 million in 2008. However, once 

China recovered from the outbreak, its pork imports from the United States declined to 

only $30 million by 2010. 

Grains

During 2005–10, Chinese wheat imports fluctuated widely. Imports dropped from 

$762 million in 2005 to $7 million in 2008 before rebounding to $309 million in 2010. 

Government policy largely drove these fluctuations.36 In order to maintain production in 

the face of low grain prices in 2005, the government instituted a number of programs, 

which, together with higher international prices, led to expanded domestic wheat acreage 

beginning in 2006.37 Higher domestic production lessened the need for wheat imports in 

2007 and 2008.38 When international wheat prices rose in 2008, the central government 

banned wheat exports, auctioned off grain reserves, and instituted retail price controls in 

an effort to slow food price inflation.39 This domestic price ceiling further lowered wheat 

imports, as the price of wheat imports was not competitive with the price of domestic 

wheat. These actions were consistent with the government’s goal of 95 percent selfsufficiency in grains. 

China is the second-largest corn-producing country in the world, 40 using the grain 

primarily for animal feed and ethanol production. While China is among the world’s 

leading corn-consuming countries, it imported very little until 2010, when imports 

increased eighteenfold from the year before to $367 million, virtually all of it from the 

United States. Like wheat, the government views corn as important for national food 

security41 and provides support for domestic corn growers by guaranteeing prices for 

domestic corn from state-owned enterprises and by providing subsidized seed, while also 

controlling exports to insure that corn is available for domestic use.42 Strong demand, 

coupled with poor production in the 2009/10 crop year (down by 5 percent from the 

 34 In August and September 2010, China announced CVD rates of between 5.1 percent and 30.3 percent, 

and AD rates of between 50.3 percent and 105.4 percent, on imports of the subject U.S. poultry. PRC, 

MOFCOM, “Notice No. 52 of 2010,” August 30, 2010; and PRC, MOFCOM, “Notice No. 51 of 2010,” 

September 26, 2010. See chapter 7 for further discussion of the Chinese CVD and AD investigations on U.S. 

poultry. 35 USDA, FAS, Livestock and Poultry: World Markets and Trade, April 2008, 5. 36 Chinese food security policy focuses on grain self-sufficiency, with grains including wheat, corn, rice, 

and tubers. Trade data presented for grains in this chapter include barley but do not include tubers. USDA, 

FAS, China: Grain and Feed; Annual, March 1, 2010, 15. 37 USDA, FAS, China: Grain and Feed; Annual, March 1, 2010, 3. 38 USDA, FAS, PSD Online (accessed October 14, 2010). 39 Gale, Lohmar, and Tuan, How Tightly Has China Embraced Market Reforms in Agriculture?

April 2009. 40 USDA, ERS, China Is Using More Corn for Industrial Products, December 2009. 41 Gale, “A Tale of Two Commodities,” July 2007. 

42 Some corn gets directed to industrial uses, such as starch and ethanol, in places where domestic end 

users receive a subsidy for purchasing domestically grown corn. USDA, FAS, China: Grain and Feed; 

Annual, March 1, 2010, 8–10. 
2-9

previous year), led China to purchase about 1.5 million metric tons (mt) of U.S. corn in 

2009/10.43

Other Products 

Chinese imports of several high-valued processed agricultural products grew significantly 

between 2005 and 2010, most notably dairy products, alcoholic beverages, and fresh 

fruit. During 2005–10, imports of dairy products, consisting mostly of whole milk 

powder, infant formula, whey, and nonfat dry milk, increased more than fourfold, 

reaching $2.9 billion in 2010. Major dairy suppliers were New Zealand and the EU-27, 

which accounted for about 70 percent of all China’s dairy imports in 2010. The United 

States is an important supplier of whey, which is by far the most important U.S. dairy 

export to China. Imports of infant formula increased sixfold between 2005 and 2010. 

This growth is attributed to both stronger demand for dairy products as per capita income 

grew in China and the preference for foreign infant formula in response to concerns over 

the safety of domestically produced product from 2007 to 2010.44

Alcoholic beverage imports by China grew nearly 34 percent annually between 2005 and 

2010. Higher incomes and changing tastes among domestic consumers contributed to this 

growth. 45 Two products—wine and grape brandy (primarily Cognac)—accounted for 

over 80 percent of alcoholic beverage imports in 2010. Major suppliers included the EU27 (mostly France and Italy), Australia, Chile, and the United States. Although U.S. wine 

exports to China grew by more than 50 percent annually during 2005–10, even faster 

growth by the EU-27 and Australia lessened the U.S. share of the Chinese wine market 

during this period. Even though per capita beer consumption in China is high by 

international standards, growth in beer imports was slower than wine because many 

foreign beer companies produce their beer in China.46

Chinese fresh fruit imports grew by about 26 percent annually during 2005–10. Among 

the leading products were bananas from the Philippines, grapes from Chile and the 

United States, guavas and longans from Thailand, and dragon fruit from Vietnam. 

Imports by Major Trading Partner 

During 2005–10, China’s agricultural imports were concentrated among a few major 

partners (table 2.2 and figure 2.3). On average, the top three suppliers (United States, 

Brazil, and Argentina) accounted for more than one-half of Chinese imports. Of the top 

supplier countries to China, India, Brazil and Argentina recorded the fastest growth in 

imports between 2005 and 2010, while imports from Australia grew the least. 

Imports from Brazil and Argentina were highly concentrated, with soybeans and soybean 

oil accounting for over 90 percent of the trade. In contrast, Chinese imports from the EU27 were relatively diverse, with the largest import category, alcoholic beverages,

 43 USDA, FAS, PSD Online (accessed January 7, 2011) 

44 Starting in September 2008, several Chinese dairies were implicated in a scandal involving milk and 

infant formula which had been adulterated with melamine, leading to kidney stones and, in some cases, to 

permanent kidney damage and death of infants. Fry, “Update on the Contamination of Dairy Products in 

China,” November 2008. 45 EIU, Business China: Main Report, March 12, 2007, 4–5. 46 EIU, “Off the Wagon,” March 1997, 8. 
2-10

United States

26%

Brazil

15%

Argentina

11%

Malaysia

7%

EU-27

7%

Australia

6%

Other

23%

Indonesia

5%

FIGURE 2.3 More than half of Chinese agricultural imports were supplied by three 

countries during 2005–10

Source: GTIS, Global Trade Atlas database.

TABLE 2.2 China: Agricultural imports by major trading partner, 2005–10 (million $) 

Partner 2005 2006 2007 2008 2009 2010

United States 6,342 7,128 8,620 13,826 13,407 17,834

Brazil 3,011 3,803 4,823 8,789 8,442 10,729

Argentina 2,967 2,360 5,141 8,346 3,447 5,677

EU-27 1,819 1,952 2,621 3,438 3,239 4,719

Australia 2,388 2,311 2,596 2,923 2,473 3,885

Malaysia 1,461 1,823 3,124 4,223 3,130 3,619

Indonesia 934 1,264 1,845 2,684 2,281 3,001

Canada 977 630 1,081 1,577 2,488 2,784

India 346 1,076 1,212 1,515 814 2,381

Thailand 922 1,208 1,212 1,080 1,685 2,268

All other 3,824 4,622 4,575 5,305 6,311 9,542

 Total 24,991 28,178 36,850 53,707 47,717 66,439

Source: GTIS, Global Trade Atlas database. 

accounting for about one-quarter of the trade during this period. Other important imports 

from the EU-27 included meat products (mainly pork) and animal skins. From Australia, 

China primarily imported inputs for the textile and apparel industries, including wool, 

cotton, and sheepskins. In 2010, Chinese wine imports from Australia were second only 

to those from France, and Australian producers have begun branding wines specifically 

for the Chinese market. 47 Chinese agricultural imports from Canada increased at an 

average annual rate of 30 percent between 2005 and 2010; two-thirds of those imports 

consisted of erucic acid rapeseed48 for processing into canola oil and meal, and rapeseed 

oil. 

To date China has completed and implemented trade agreements with 20 countries,49 and 

combined imports from these partners exceed imports from all other countries except the 

United States. During 2005–10, average annual growth in agricultural imports from the 

 47 Zappone, “How to Sell Wine to China,” September 18, 2009. 48 Oil derived from low erucic acid rapeseed is also called “Canadian oil, low acid” or “canola” oil. 

49 Countries with a free trade agreement with China include Bangladesh, Brunei, Burma, Cambodia, 

Chile, Hong Kong, India, Indonesia, Laos, Macau, Malaysia, New Zealand, Pakistan, Peru, the Philippines, 

Singapore, South Korea, Sri Lanka, Thailand, and Vietnam. 
2-11

trade partners with trade agreements was 28 percent, compared with 24 percent for 

imports from all countries (table 2.3). Since many of China’s preferential trade 

agreements came into force recently, the full tariff reductions have not yet occurred. 

Therefore, the full effect of these agreements is not yet observable in trade statistics. One 

factor that could limit the impact of duty reductions with Association of Southeast Asian 

Nations (ASEAN) countries is that products such as fresh fruits and vegetables are 

imported into China out of season, when domestic production is limited. Malaysia and 

Indonesia accounted for close to one-half of the imports from all preferential trading 

partners, with most of the imports consisting of palm oil. 

TABLE 2.3 China: Agricultural imports from FTA-partner countries, 2005–10 (million $)

Country 2005 2006 2007 2008 2009 2010

ASEAN 

 Malaysia 1,461 1,823 3,124 4,223 3,130 3,619

 Indonesia 934 1,264 1,845 2,684 2,281 3,001

 Thailand 922 1,208 1,212 1,080 1,685 2,268

 Vietnam 177 336 423 446 703 674

 Singapore 85 145 210 266 429 508

 Philippines 108 158 157 236 226 415

 Myanmar 22 22 52 170 106 183

 Laos 2 6 12 17 29 30

 Cambodia 2 2 3 3 6 3

 Brunei 0 0 0 0 0 0

 Total ASEAN 3,713 4,963 7,037 9,124 8,595 10,702 

 India 346 1,076 1,212 1,515 814 2,381

 New Zealand 620 656 755 922 1,248 2,079

 Chile 93 103 143 228 314 449

 Korea 146 155 160 175 195 268

 Pakistan 20 26 27 32 49 122

 Hong Kong 46 57 82 81 88 112

 Peru 5 10 16 31 33 47

 Bangladesh 0 0 1 3 6 17

 Sri Lanka 2 3 5 6 5 16

 Macau 0 0 0 0 1 0

 Total 4,991 7,049 9,437 12,117 11,349 16,193 

Source: GTIS, Global Trade Atlas database. 

Exports 

Exports by Product 

During 2005–10, Chinese agricultural exports grew from $19.6 billion to $35.7 billion, an 

average of 13 percent annually. In 2010, close to one-half of China’s agricultural exports 

were horticultural products, led by processed vegetables with shipments totaling 

$6.4 billion, followed by fresh vegetables ($3.7 billion) and fresh fruit ($2 billion). 

Miscellaneous processed foods, processed animal feed (mostly soybean oil cake and pet 

food), and meat products were the top non-horticultural products exported by China in 

2010. Major Chinese export trade flows are depicted in figure 2.4. 
2-12

China

United States

FIGURE 2.4 China’s agricultural exports were highly concentrated in a few major products in 2010 

(million $)

Source: GTIS, Global Trade Atlas database.

Processed vegetables (HS 0710–0714, 2001–2005) $6,387 Miscellaneous processed food (HS 1901–1905, 2101–2104, 2106) $2,698

Fresh vegetables (HS 0701–0709) $3,654 Fresh fruit (HS 0803–0810) $2,032

Processed animal feed (HS 23) $1,951

Japan

($518) 

($1,587)

($433)

($222)

($234)

($577)

($427)

Korea

($239)

Russia

ASEAN member states

($1,157) ($1,590)

($226)

($526)

($813)

EU-27

($344)

($407)

($1,082)

($214)

The United States was China’s fourth-largest export market for agricultural products in 

2010, behind Japan, the EU-27, and Hong Kong. In 2010, about one-half of Chinese 

agricultural exports to the United States were horticultural products, mainly processed 

vegetables (processed garlic and preserved mushrooms), fruit juice, and processed fruit 

(canned citrus and peaches) (table 2.4). Apple juice was another important export, as 

Chinese juice accounted for 72 percent of U.S. juice imports between 2005 and 2010, in 

spite of the antidumping duties that were levied on specific Chinese apple juice producers 

in 2000.50 Between 2005 and 2010, Chinese exports to the United States grew by about 

$1.7 billion, with much of the increase from higher exports of pet food and processed 

horticultural products. 

 50 USDA, ERS, China’s Rising Fruit and Vegetable Imports, February 2006, 9. The China-wide 

antidumping (AD) duty rate is 51.74 percent. However, several Chinese exporters were excluded from the 

AD orders because they received de minimus margins (margins below 2 percent), and a number of other 

companies have received de minimus margins in subsequent U.S. Department of Commerce (USDOC) 

administrative reviews. On November 15, 2010, the USDOC announced that it would revoke the AD duties 

on U.S. imports of non-frozen apple juice concentrate from China owing to non-participation by the U.S. 

industry. 75 Fed. Reg. 69628 (November 15, 2010). 
2-13

TABLE 2.4 China: Agricultural exports to the world and the United States by product, 2005–10 (million $) 

Product Source 2005 2006 2007 2008 2009 2010

 Animal products 

Live animals World 329 333 375 507 442 454

United States 15 18 20 27 19 20

Beef World 42 64 79 96 61 109

United States 0 0 0 0 0 0

Pork World 406 401 284 276 263 332

United States 0 0 0 0 0 0

Sheep and lamb meat World 54 66 54 50 42 69

United States 0 0 0 0 0 0

Poultry World 194 167 261 324 336 428

United States 0 0 0 0 0 0

Dairy World 130 141 322 352 82 91

United States 9 13 11 8 1 15

Eggs World 79 78 94 132 122 143

United States 2 2 3 5 4 4

Processed meats World 1,187 1,276 1,342 1,119 1,157 1,462

United States 27 19 10 10 15 24

Other products of animal origin World 1,062 1,051 1,123 1,379 1,242 1,428

United States 248 218 257 249 195 244

Grains 

Wheat World 37 161 481 31 2 0

 United States 0 0 1 0 0 0

Rice World 225 409 479 482 524 416

 United States 0 2 2 1 0 0

Corn World 1,097 412 874 73 32 33

 United States 0 0 0 0 0 0

Other grain World 55 56 133 87 61 90

 United States 0 1 1 0 0 0

 Oilseeds and products 

Soybeans World 170 146 196 351 237 118

United States 16 16 18 36 30 10

Soybean oil World 40 72 57 185 76 65

United States 0 0 0 0 0 0

Rapeseed oil World 21 90 17 11 13 5

United States 0 0 0 0 0 0

Corn oil World 71 76 58 151 21 17

United States 0 0 0 0 0 0

Other vegetable oil World 137 129 168 206 150 187

United States 12 12 16 17 12 17

 Horticulture 

Vegetables, fresh World 1,247 1,619 1,642 1,460 2,081 3,654

United States 52 81 91 64 83 143

Vegetables, processed World 3,266 3,871 4,753 5,300 4,988 6,387

United States 249 341 412 433 409 517

Nuts World 977 1,040 1,226 1,363 1,172 1,403

United States 57 75 83 111 102 115

Fruit, fresh World 658 789 1,067 1,529 1,815 2,032

United States 4 13 24 17 15 14

Fruit, processed World 861 1,031 1,352 1,567 1,382 1,604

United States 174 235 326 419 381 398

Juice World 526 671 1,354 1,259 762 864

 United States 182 218 483 595 352 412

Miscellaneous plants (ch 12) World 621 690 844 954 1,005 1,228

 United States 32 43 44 45 33 41
2-14

TABLE 2.4 China: Agricultural exports to the world and the United States by product, 2005–10 (million $)—Continued

Product Source 2005 2006 2007 2008 2009 2010

Beverages 

Tea/coffee World 511 589 657 751 786 886

 United States 30 35 40 46 43 76

Alcoholic beverages World 295 714 398 448 385 527

 United States 11 93 12 12 12 14

Non-alcoholic beverages World 414 367 423 405 438 459

 United States 7 8 11 14 11 7

 Sugar, sweeteners, confectionery 

Sugar World 111 61 48 28 34 64

United States 0 1 1 2 2 3

Honey World 88 105 94 147 126 183

 United States 24 27 14 13 0 1

Other sweeteners World 307 401 517 649 737 995

United States 66 73 113 130 145 145

Cocoa products World 110 124 147 200 130 213

United States 40 46 42 62 15 8

 Processed foods 

Miscellaneous processed foods World 1,459 1,756 2,002 2,214 2,266 2,698

 United States 125 173 214 202 210 234

Milled grain products World 200 236 509 540 466 551

 United States 1 6 5 7 9 13

Processed animal feed World 474 505 994 1,615 1,758 1,951

 United States 47 95 210 321 325 427

Spices World 417 400 434 564 617 771

United States 46 37 44 56 64 92

Other 

Cotton World 9 26 37 42 19 10

 United States 0 0 0 0 0 0

Wool World 69 69 77 56 39 70

 United States 1 1 1 1 0 1

Tobacco and products World 537 566 638 742 878 1,020

 United States 6 7 17 9 11 7

All other World 1,170 1,311 1,743 2,423 2,159 2,686

 United States 9 125 123 197 175 227

 Total World 19,646 22,047 27,330 30,045 28,885 35,683

United States 1,578 2,035 2,649 3,110 2,673 3,229

Source: GTIS, Global Trade Atlas database. 

Horticultural Products 

China is a large global exporter of horticultural products.51 Between 2005 and 2010, 

about 45 percent of Chinese agricultural exports were horticultural products, consisting 

mostly of fresh and processed fruits and vegetables, and juice. During this period, exports 

rose from $8.2 billion to $17.2 billion, a rate of about 17 percent annually. Contributing 

to the rise in exports were low labor and input costs that make fruit and vegetable 

production and processing (both labor-intensive activities) profitable for Chinese 

exporters. Also, growth in domestic production in excess of domestic consumption 

growth provided surplus available for export.52 The Chinese government has invested 

heavily in the food processing sector,53 and large canneries (often designated as leading 

 51 California Cling Peach Board, written submission to the Commission, July 28, 2010. 52 USDA, ERS, China’s Rising Fruit and Vegetable Exports, February 2006, 11–12. 53 Industry officials, interviews by Commission staff, Beijing, China, September 2007. 
2-15

agribusinesses or “dragon head” enterprises 54 by the government) are also supported 

through loans from state banks and preferential legal treatment.55

Among China’s horticultural exports, processed vegetables are by far the largest 

(table 2.4), reaching $6.4 billion in 2010. The top processed vegetable export was tomato 

paste (exported mainly to Russia, the EU-27, and Africa), followed by mushrooms 

(exported to the EU-27, the United States, and several Asian countries, including Japan, 

Thailand, and Hong Kong) and kidney beans (to the EU-27 and India). China also 

exported dried garlic, for which the United States is the leading market. Even though 

exports of fresh vegetables are constrained by poor cold storage facilities and an inability 

of many producers to meet foreign quality standards,56 China’s fresh vegetable exports 

exceeded $3.6 billion in 2010, compared to $1.2 billion in 2005. In 2010, fresh garlic 

accounted for almost two-thirds of these exports, with Indonesia by far the most 

important market, followed by Brazil, Vietnam, and the EU-27. The United States is the 

fifth largest market for Chinese fresh garlic, even though AD duties of up to 377 percent 

have been applied on Chinese product since 1994. 57 Other fresh vegetable exports 

important to China are carrots and onions, exported mostly to Japan and several markets 

in South Asia. 

Fresh and processed fruit accounted for $3.6 billion of China’s agricultural exports in 

2010. Fresh apples were the leading fresh fruit export, followed by fresh pears and 

mandarin oranges. Many of these products were exported to Asia (mostly to Indonesia, 

followed by Thailand, Bangladesh, and the Philippines), although Russia is an important 

market for Chinese apple exports. China’s processed fruit exports, mostly canned citrus, 

pears, and fruit mixtures, increased rapidly during 2005–10. The major market for these 

products was the United States, where they were either consumed in the foodservice 

industry or repackaged into individual serving containers for retail sale.58 Other major 

markets for Chinese processed fruit exports were Japan, the EU-27, and Canada. 

Other Products 

Miscellaneous processed foods and animal feed are also major agricultural exports for 

China. During 2005–10, miscellaneous processed food exports increased from 

$1.5 billion to $2.7 billion, making it China’s third-largest agricultural export category 

after processed and fresh vegetables. Major exports in this category were noodles 

(HS190230), exported to Hong Kong, Japan, and the United States, and sauces 

(HS210390), exported to South Korea, Japan, Hong Kong, and the United States. China’s 

processed animal feed exports increased about fourfold during 2005–10, reaching 

$2 billion in 2010. This category includes soybean oil cake (HS230400) and prepared 

feed additives for livestock (HS230990), as well as pet food for dogs and cats 

(HS230910). Major markets for soybean oil cake and feed additives are in Asia, 

including Japan, South Korea, and Vietnam. The United States was the largest purchaser 

 54 Dragon head enterprises are leading-edge companies within the agricultural sector in China, and they 

are eligible for preferential tax treatment, preferential access to loans, and participation in official 

delegations. Waldron, Brown, and Longworth, Rural Development in China, 2003, 40. 55 USDA, FAS, China: Annual; Canned Deciduous Fruit, November 10, 2009. 56 Industry official, interview by Commission staff, Washington, DC, August 19, 2010. 57 Through administrative reviews, several Chinese exporters have been assessed lower duties ranging 

from zero to 40 percent in recent years. 65 Fed. Reg. 76608 (December 7, 2000); USITC, Fresh Garlic from 

China, September 2006. As of the 13th USDOC administrative review in 2009, AD duties on fresh garlic 

from China are assessed on a per unit rate of up to $4.71/kg. U.S. government official, telephone interview by 

Commission staff, Washington, DC, November 2, 2010. 58 USITC, Canned Peaches, Pears, and Mixtures, 2007. 
2-16

Other

39%

United States

9%

 Korea

7%

EU-27

14%

Hong Kong

10%

Japan

20%

FIGURE 2.5 More than one-half of Chinese agricultural exports were shipped to 

four markets during 2005–10 

Source: GTIS, Global Trade Atlas database.

of Chinese pet food, followed by Japan; sales to the United States surged from 

$12 million in 2005 to $343 million in 2010. 

Exports by Major Trading Partner 

Chinese export markets were highly concentrated among a few major trading partners. 

During 2005–10, about one-half of agricultural exports went to the top four trading 

partners, and three-quarters to the top 10 markets (table 2.5 and figure 2.5). Japan 

remained the top destination for Chinese agricultural exports, though its share fell from 

26 percent in 2005 to 17 percent in 2010. The EU-27 was the second-largest market 

during this period, with a fairly stable share of about 14 percent. Hong Kong and the 

United States each accounted for about 10 percent of China’s agricultural exports. 

TABLE 2.5 China: Agricultural exports by major trading partner, 2005–10 (million $)

Partner 2005 2006 2007 2008 2009 2010

Japan 5,094 5,243 5,499 4,989 5,088 6,009

EU-27 2,485 3,006 3,938 4,672 4,000 4,797

Hong Kong 2,250 2,314 2,654 2,994 3,000 3,549

United States 1,578 2,035 2,649 3,110 2,673 3,229

Korea 1,871 1,771 2,484 2,086 1,832 2,213

Indonesia 387 560 880 800 962 1,603

Malaysia 560 668 868 887 973 1,324

Vietnam 262 330 461 692 915 1,267

Russia 611 710 923 1,083 908 1,162

Thailand 274 323 468 608 756 1,060

All other 4,275 5,087 6,504 8,124 7,777 9,469

 Total 19,646 22,047 27,330 30,045 28,885 35,683

Source: GTIS, Global Trade Atlas database.

 
2-17

During 2005–09, Chinese agricultural exports to Japan were fairly stable at about 

$5 billion annually and then grew to $6 billion in 2010. Japan’s proximity to China 

makes the two countries natural trading partners in many products. Many Japanese 

companies lease land in China and grow products for export back to Japan, though some 

of these companies also sell their products in China’s domestic market. Japanese 

investment in Chinese agriculture is viewed positively in China because it increases the 

income of Chinese farmers and helps to develop China’s agricultural sector.59 Processed 

meats (chicken offal) are the largest agricultural export from China to Japan. Exports to 

the EU-27 market grew consistently between 2005 and 2010 with the exception of 2009, 

when they fell 14 percent. Processed fruits and vegetables were the single largest Chinese 

agricultural exports to EU-27 countries during 2005–10. During this period, Hong Kong 

was China’s third-largest agricultural export market, and while some agricultural exports 

were likely consumed there, often traders in Hong Kong shipped products from mainland 

China for re-export to other markets.60 

When grouped together, China’s preferential trade partners accounted for more of 

China’s agricultural exports than any individual trading partner. In 2010, China exported 

$13.8 billion in agricultural products to preferential trading partners, together accounting 

for 39 percent of its total agricultural exports (table 2.6). Fresh garlic was the largest 

export to these markets, with $1.2 billion shipped in 2010, accounting for 9 percent of all 

agricultural exports to preferential trade partners. Other major products exported to FTA 

partners were dried mushrooms, fresh apples, mandarin oranges, and live swine, but no 

other individual product accounted for more than 5 percent of exports in 2010. As with 

imports from preferential trade partners, the total effect of the agreements is not yet 

observable in the trade statistics, and the benefits of these agreements in terms of 

enhanced exports likely will not be fully realized for several years. 

China-U.S. Competition in Third-Country Markets 

To a large extent, agricultural exports of the United States and China do not compete in 

third-country markets. This is because the two countries have different factor 

endowments which influence their international competitiveness in broadly different 

products. As mentioned, relative to China, the United States is a land-abundant, laborscarce country, a situation that gives it a comparative advantage in land-intensive 

agriculture, including grains, oilseeds, and livestock. In contrast, relative to the United 

States, China is a labor-abundant, land-scarce country; it therefore enjoys a comparative 

advantage in labor-intensive agricultural products, especially in horticulture.61 In most 

cases, these resource endowments make China and the United States natural trading 

partners rather than competitors. 

A partial exception is fresh fruit, of which both countries export high volumes. In the 

past, Chinese fresh fruit could not compete with that of the United States in global 

markets. This was mostly because of the poor quality of Chinese fruit, as scarce cold 

storage and poor rural infrastructure in China took its toll on perishable products 

traveling long distances for export.62 However, in the last five years, the quality of many 

 59 Shaosheng et al., “Agglomeration Effects and Japanese Food Industry Investment in China,” 

August 2006, 3. 60 Industry official, interview by Commission staff, Washington, DC, July 12, 2010. 61 Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009. 62 Industry officials, interview by Commission staff, Shandong, China, August 19, 2010. 
2-18

TABLE 2.6 China: Agricultural exports to FTA-partner countries, 2005–10 (million $)

Country 2005 2006 2007 2008 2009 2010

Indonesia 387 560 880 800 962 1,603

Malaysia 560 668 868 887 973 1,324

Vietnam 262 330 461 692 915 1,267

Thailand 274 323 468 608 756 1,060

Philippines 289 409 490 475 550 637

Singapore 251 291 315 411 358 455

Myanmar 50 80 69 64 76 100

Cambodia 9 14 20 23 13 21

Laos 2 2 1 3 6 15

Brunei 4 4 5 7 7 10

 Total ASEAN 2,087 2,680 3,578 3,970 4,617 6,491 

Hong Kong 2,250 2,314 2,654 2,994 3,000 3,549

Korea 1,871 1,771 2,484 2,086 1,832 2,213

India 213 224 349 414 483 521

Pakistan 169 125 138 149 210 274

Bangladesh 47 67 107 101 186 242

Macau 123 139 163 187 188 201

New Zealand 36 48 67 77 68 85

Sri Lanka 26 38 54 49 58 82

Chile 12 18 40 65 51 66

Peru 5 9 17 26 31 34

 Total 6,840 7,434 9,652 10,119 10,724 13,760 

Source: GTIS, Global Trade Atlas database. 

Chinese horticultural products has greatly improved, and competition with the United 

States, particularly in Asian markets, has grown.63 

Nonetheless, competition between the United States and China in third countries appears 

to be limited to a few markets. Moreover, the United States and China currently tend to 

supply different market segments, differentiated by cost, quality, and/or variety 

preference. 64 For example, China has become the world’s primary low-cost apple 

producer and, as a result, supplies markets where price is the main factor driving demand, 

while U.S. apples typically supply markets where consumers demand high-quality apples. 

As for pears, Chinese and U.S. products primarily supply distinct export markets because 

each country produces specific varieties that are preferred in different countries.65

As China becomes better able to supply high-quality fruit at a low cost to nearby Asian 

markets, competition with the United States could intensify.66 The United States and 

China both export large quantities of apples to several Asian markets, including 

Indonesia, Malaysia, and India. Chinese apple exports to Vietnam, a low-cost apple 

market, averaged $53 million between 2008 and 2010, far outpacing average U.S. apple 

exports of $8 million to Vietnam during the same period.67 In India, apple imports from 

all sources almost tripled between 2005 and 2009 to reach 90,800 mt.68 During this 

 63 Industry officials, interview by Commission staff, Shandong, China, September 14, 2010. 64 Ibid. 

65 Trade statistics bear out the current limited nature of competition in pears. U.S. and Chinese pear 

exports were $162 million and $220 million, respectively, for 2009, but in only Russia and Canada were 

more than $10 million worth of pears imported from both countries. 66 Huang, Global Trade Patterns in Fruit and Vegetables, June 2004, 63. 67 GTIS, Global Trade Atlas database.

68 Ibid. 
2-19

period of tremendous growth, Chinese apples increased their market share relative to the 

United States as their quality improved while prices remained stable. China’s share of 

Indian apple imports grew from 20 percent in 2005 to 40 percent in 2009, while that of 

the United States fell from 53 percent in 2005 to 42 percent in 2009.69 

China and the United States both export large quantities of fresh and frozen vegetables, 

yet compete directly in only a few countries. For example, China and the United States 

are the top two exporters of carrots and turnips in the world, but have no markets in 

common among their top 10 export destinations. For onions and shallots, Japan is the 

only market where competition takes place, with China exporting $117 million in 2010 

and the United States $35 million. 70 Competition is generally greater in frozen 

vegetables, which can be transported across long distances with little loss in quality. 

However, U.S. and Chinese producers tend to produce different varieties of frozen 

vegetables.71

 69 GTIS, Global Trade Atlas database.

70 Interestingly, U.S. exports had a lower unit price than Chinese exports, possibly reflecting exports from 

China by Japanese-owned farms that produce U.S.-quality fresh vegetables. Shaosheng et al., 

“Agglomeration Effects and Japanese Food Industry Investment in China,” August 2006, 3. 71 Huang and Gale, “China’s Rising Fruit and Vegetable Exports Challenge U.S. Industries,” 

February 2006, 5. 
2-20

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———. China, People’s Republic of: Grain and Feed, Annual, by Chanda Beckman and Jiang Junyang. 

GAIN Report no. CH10008, March 1, 2010. 

———. India: Cotton and Products Annual, 2010, by Santosh Singh. GAIN Report no. IN1029, April 12, 

2010. 

———.India: Export of Cotton Allowed under License, by Santosh Singh. GAIN Report no. IN1049. 

June 4, 2010. 

———. Livestock and Poultry: World Markets and Trade. Circular Series DL&P 1-08, April 2008. 
2-22

———. National Plan for Expansion of Grain Production Capacity, by Chanda Beckman and Jiang 

Junyang. GAIN Report CH10005, February 18, 2010. 

———. Production Supply and Distribution (PSD) Online. 

http://www.fas.usda.gov/psdonline/psdResult.aspx (accessed various dates). 

———. “Strong Processing Margins Support China’s Expanding Soybean Import Market Demand.” 

Oilseeds: World Market and Trade Circular Series FOP 01-10, January 2010. 

http://www.fas.usda.gov/oilseeds/circular/2010/January/oilseedsfull01-10.pdf. 

U.S. Department of Agriculture (USDA). “Agriculture Secretary Vilsack's Statement on 2010 U.S. Farm 

Exports Record.” News release, February 11, 2011. 

U.S. International Trade Commission (USITC). Canned Peaches, Pears, and Mixtures: 

Conditions of Competition between U.S. and Principal Foreign Supplier Industries. USITC 

Publication 3972. Washington, DC: USITC, 2007. 

———. Fresh Garlic from China. USITC Publication 3886. Washington, DC: USITC, 2006. 

Waldron, Scott A., Colin G. Brown, and John William Longworth. Rural Development in China: Insights 

from the Beef Industry. Aldershot, England: Ashgate Publishing Limited, 2003. 

World Trade Organization (WTO). Tariff Analysis Online (TAO).

http://tariffanalysis.wto.org/report/tarifflines.aspx (accessed September 2, 2010). 

Zappone, Chris. “How to Sell Wine to China.” Western Australia Today, September 18, 2009. 

http://www.watoday.com.au/small-business/entrepreneur/how-to-sell-wine-to-china20090918fuot.html. 
3-1

CHAPTER 3 

Chinese Agricultural Consumption 

Overview 

China is a major global consumer of agricultural products. It consumes one-third of the 

world’s rice, one-fourth of all corn, and one-half of all pork and cotton, and it is the 

largest consumer of oilseeds and most edible oils.1

 The traditional Chinese diet centers 

around staple foods (mainly grains and starches),2

 which account for nearly one-half of 

the daily caloric intake. Average Chinese per capita consumption recently stabilized at 

approximately 3,000 calories per day, one of the highest levels among Asian countries.3

Over the past five years, per capita consumption of staple foods has been fairly stable in 

both rural and urban areas. However, food consumption patterns are changing with the 

Chinese increasing the portion of nonstaple food items, such as fruits, meat, and dairy 

products, in their diets.4

 

Chinese food consumption is influenced by factors such as population size and 

demographics, income, food prices, and general preferences. China has a population of 

over 1.3 billion people, ranging from poor rural farmers to wealthy urbanites.5

 Per capita 

income growth and urbanization are the two factors most responsible for altering recent 

consumption patterns in China. Rising income translates into higher per capita food 

consumption, while increasing urbanization is driving diversification of food choices 

because of greater availability and choice offered through increasingly diverse sales 

outlets. 

Chinese consumers generally fall into one of three categories: rural consumers; urban 

low-income consumers; or urban high-income consumers. Although urban high-income 

consumers can afford to buy more and better-quality food, the ubiquity of food outlets6

 in 

cities means that nearly every urban resident, regardless of income, has available an 

increasingly diverse food selection. Compared to rural diets, urban diets contain less 

grain and more nonstaple items, including processed and convenience foods. Rural 

migrants to cities tend to adopt the urban diet.7

 

Along with more varied consumption, higher incomes are leading to changing food 

preferences, including the demand for better quality and safer foods.8

 Food preferences 

 1

 China accounts for 27 percent of world soybean consumption, 29 percent of world cottonseed 

consumption, and 41 percent of world peanut consumption. China is also the largest single-country consumer 

of rapeseed (behind the European Union-27) at 25 percent of world consumption. USDA, FAS, PSD Online 

(accessed October 18, 2010). 2

 See figure 3.1; see also USDA, ERS, China Agricultural and Economic Data (accessed October 5, 

2010). 3

 Of Asian countries, only Kazakhstan (3,490 per capita per day) and South Korea (3,073) have a higher 

caloric intake than China. Japan had the fifth-highest caloric intake, at 2,812. Although Taiwan likely has a 

high caloric intake among Asian countries, data for Taiwan are not available. FAO, FAOSTAT (accessed 

May 24, 2010). 4

 USDA, ERS, China Agricultural and Economic Data (accessed October 7, 2010). 5

 CIA, The World Factbook: China, updated April 26, 2010. 6

 Food outlets include restaurants, fast food locations, supermarkets, and wet markets. 7

 Rozelle, Vegetables in China, March 2006, 3. 8

 Gale and Huang, Demand for Food Quality and Quantity in China, January 2007, 1, 8. 
3-2

determine where urban Chinese purchase their foods, whether it be at local “wet 

markets,” urban supermarkets, or restaurants. 9 Chinese value the diversity in food 

products that different shopping outlets offer.10 In the future, analysts predict that further 

income growth and urbanization will continue to increase demand for a variety of higherquality foods.11

Consumption Trends 

Consumption Patterns 

Between the 2005/06 and 2009/10 marketing years,12 consumption of most agricultural 

products grew rapidly by volume, although growth rates differed among commodity 

groups (table 3.1).13 During this period, consumption of oilseeds and oilseed products 

rose significantly, with that of soybeans, soybean meal and oil, and palm oil each 

increasing by 30 percent or more. Among the grains, corn consumption increased the 

most, rising 13 percent between 2005/06 and 2009/10. The higher consumption of corn, 

soybeans, and meals, which are ingredients for livestock feed, is a response to increased 

demand for meat. During 2005/06–09/10, consumption of pork (the most heavily 

consumed meat in China) increased by 8 percent, even though consumption fell in 

2007/08. The drop in consumption that year was due to an outbreak of blue ear pig 

disease, which lowered production and caused pork prices to climb 85 percent.14 Poultry 

consumption, although one-fourth the level of pork consumption, experienced the largest 

growth among meats, increasing almost 5 percent annually (or 21 percent overall) 

between 2005/06 and 2009/10. Consumption of milk powders (nonfat dry milk and whole 

milk powder) increased almost 20 percent during the same period, albeit from a low 

2005/06 base. Greater consumption of milk powders, furnished mostly through increased 

imports, was in response to a drop in fluid milk consumption in 2008/09 and 2009/10 

following a scandal involving melamine-contaminated powdered infant formula that led 

consumers to distrust domestic dairy products. 15 Consumption of cotton increased 

moderately between 2005/06 and 2009/10 in spite of a sharp dip in 2008/09, a result of 

the global economic recession that led to lower demand for textiles and apparel items 

manufactured from cotton.16

 9

 Latner, Who Is Feeding China? February 19, 2010, 13. Wet markets are open-air food markets. 

Products sold at wet markets, including meat from slaughtered animals are generally stored for short periods 

of time and are always expected to be fresh. 10 Chan and Tse, The Consumer Trap, May 12, 2007. 11 Gale and Huang, Demand for Food Quality and Quantity in China, January 2007, 24. 12 The marketing year is a 12-month period, usually beginning with a new harvest, during which the 

product is marketed. Marketing years differ for each commodity and country. 13 The data on apparent consumption that are discussed in this section are from the USDA’s database 

PSD Online, where consumption is determined by the sum of beginning stocks, domestic production, and 

imports, less the sum of ending stocks and exports. Thus consumption includes both domestically produced 

and imported products. This consumption includes human, livestock, and manufacturing consumption of 

agricultural products. 14 Barboza, “Virus Spreading Alarm,” August 16, 2007. 15 Gifford, “Food Fears Persist in China,” October 26, 2010. 

16 USITC, Shifts in U.S. Merchandise Trade, 2010, CHN-3. 
3-3

TABLE 3.1 China: Agricultural consumption, 2005/06–09/10 

Commodity 2005/06 2006/07 2007/08 2008/09 2009/10 

Annual 

growth 

Growth 

2005/06–

09/10

Million metric tons (mt) Percent 

Grains 

 Corn 137.0 145.0 149.0 152.0 155.0 3.1 13.1

 Rice, milled 128.0 127.2 127.5 133.0 134.5 1.3 5.1

 Wheat 101.5 102.0 106.0 105.5 105.0 0.9 3.4

 Other grains 10.1 8.5 8.0 8.3 8.2 –4.7 –18.6

 All grains 376.6 382.7 390.5 398.8 402.7 1.7 6.9

Oilseeds 

 Soybeans 44.4 46.1 49.8 51.4 57.8 6.9 30.1

 Rapeseed 13.7 11.9 11.4 13.7 15.1 3.2 9.8

 Cottonseed 11.1 13.9 14.5 14.4 12.7 4.2 14.4

 Peanuts 13.6 12.0 12.3 13.6 12.6 –1.4 –6.9

 Sunflower seed 1.8 1.4 1.1 1.7 1.5 –0.9 –18.1

 All oilseeds 84.7 85.4 89.1 94.8 99.7 4.2 17.8

Meat 

 Porka 45.1 46.1 42.7 46.4 48.7 2.1 8.0

 Poultry 10.1 10.4 11.4 12.0 12.2 4.9 21.0

 Beef and veala 5.6 5.7 6.1 6.1 5.7 0.7 2.4

Meal 

 Soybean meal 27.8 27.6 30.8 31.7 35.8 6.7 28.9

 Rapeseed meal 8.3 7.5 7.1 8.3 9.1 3.0 9.8

 Other meal 8.7 8.8 9.3 9.6 8.9 0.5 1.7

 All meal 44.8 44.0 47.3 49.6 53.8 4.8 20.1

Dairy 

 Fluid milk 28.6 33.0 36.3 35.4 29.6 1.6 3.5

 Dry milk (nonfat and whole) 1.1 1.2 1.2 1.1 1.3 4.8 18.1

Edible oils 

 Soybean oil 7.6 8.7 9.7 9.5 10.4 8.4 37.0

 Palm oil 5.0 5.1 5.2 5.6 6.4 6.7 29.3

 Rapeseed oil 4.5 4.3 4.1 4.9 5.3 4.1 15.7

 Other 4.4 4.4 4.3 4.8 4.6 1.6 5.9

 All edible oils 21.5 22.6 23.3 24.7 26.7 5.6 24.4

Cottonb 43.5 48.0 48.5 41.8 45.0 1.3 3.4

Source: USDA, FAS, PSD Online (accessed November 2, 2010). 

a

Carcass weight equivalent. 

b

1,000 480-lb. bales. 

Caloric Intake 

The long-term trends in Chinese food consumption and nutritional status can be identified 

by looking at changes in the number of per capita daily calories consumed, as well as 

changes in the composition of the food from which those calories are derived. Since the 

beginning of the reform period in the late 1970s, Chinese caloric intake has increased 

significantly. Between 1977 and 2007, the daily intake of calories rose over 50 percent, 

with more than half of this increase occurring between 1977 and 1987.17 Since then, 

 17 FAO, FAOSTAT (accessed July 23, 2010). Caloric consumption measures daily caloric intake by 

humans. 
3-4

Meat

14%

Tubers

9%

Veg. oil

8%

Grains

49%

Aquaculture

2% Misc.

9%

Fruit

1%

Dairy

2%

Veg.

6%

Source: FAO, FAOSTAT (accessed August 26, 2010).

FIGURE 3.1 Compared with 1987, Chinese daily caloric intake in 2007 had grown significantly and 

comprised more meat, fruits, and vegetables

Meat

7%

Veg. oil

5%

Veg.

3%

Oil crop

1%

Tubers

13%

Misc. 7%

Grains

63%

1987 2007

2,524 2,981

China’s caloric intake has continued to grow, but at a much slower rate, increasing only 

5 percent between 1997 and 2007. On average, the Chinese consumed about 

2,981 calories per capita per day in 2007. Although this was about four-fifths the level in 

the United States (3,748 calories per capita), China’s daily caloric intake is above the 

global average and third among Asian countries, after South Korea and Kazakhstan; it is 

above that of India (2,352 calories per capita) but less than that of Brazil (3,113 calories 

per capita).18

Over the past 20 years, the sources of calories in the Chinese diet have changed. In 

particular, the portion of calories derived from traditional staple foods, such as grains and 

tubers, has fallen, while the portion from traditionally nonstaple food products, such as 

meats, fruit, and dairy products, has increased (figure 3.1).19 For example, calories from 

vegetables, meat, and fruit consumption increased by 108 percent, 122 percent, and 

302 percent respectively between 1987 and 2007. Currently, grains and meats constitute 

the core of the Chinese diet, accounting for about two-thirds of calories consumed. The 

caloric importance of vegetables is growing both in absolute terms and as a share of 

overall caloric intake. Fruit remains a proportionally small part of the Chinese diet, even 

though calories derived from fruit consumption have increased over time. 

 18 Caloric data are from 2007. FAO, FAOSTAT (accessed August 26, 2010). 

19 The actual calories coming from cereals rose from 1,459 calories in 1987 to 1,657 calories in 2007. 

Calories from tubers, on the other hand, declined in both proportional and absolute terms. 
3-5

0

200

400

600

800

1,000

1,200

1,400

1,600

1960 1970 1980 1990 2000 2010 2020 2030 2040 2050

Total population (in millions)

-1

-0.5

0

0.5

1

1.5

2

2.5

3

Population growth rate (percent)

FIGURE 3.2 China's population is growing while its growth rate falls

Source: OECD, OECD Factbook 2010: Economic, Environmental, and Social Statistics , 2010.

Factors Affecting Consumption 

Population 

China is the world’s most populous country, comprising one-fifth of the global 

population. Between 2005 and 2009, China’s population grew by an estimated 3 percent 

(an annual average growth rate of 0.64 percent),20 even though the population growth rate 

has been steadily declining since the 1990s (figure 3.2). China’s population is projected 

to increase from its current 1.3 billion to 1.5 billion by 2030 and then decline.21 The 

projected drop in population is primarily due to China’s birth control policies limiting 

births, in principle, to one child per couple, although in rural areas two or three children 

households are not uncommon.22 Because of such policies, China’s population is older 

than that of other large developing countries and will continue to age.23 For example, 

China’s population has a median age of 34 years, compared with 29 in Brazil and 26 in 

India.24 In 2008, the portion of China’s population that was under 15 years old was three 

times higher than the portion over 65, but by 2030 these groups should be roughly equal 

in size.25 In the future, as the Chinese population ages and declines, the growth in food 

consumption likely will decline as well. Nonetheless, given its massive population, China 

will remain a major global consumer of agricultural products. 

 20 In comparison, the average annual population growth rate between 2005 and 2009 was 0.96 percent for 

the United States, 1.05 percent for Brazil, and 1.47 percent for India. OECD, OECD Factbook 2010: 

Economic, Environmental and Social Statistics, 2010. 21 OECD, OECD Factbook 2010: Economic, Environmental and Social Statistics, 2010. 22 Hesketh and Xing, “The Effect of China’s One-Child Family Policy after 25 Years,” 2005, 1171–76; 

The Economist, “China Policy: Rethinking China’s One-Child Policy,” August 25, 2010. 23 EC, DGA, “China: Out of the Dragon’s Den?” May 2008, 2. 24 CIA, The World Factbook: China, updated April 26, 2010; CIA, The World Factbook: India, updated 

August 19, 2010; CIA, The World Factbook: Brazil, updated August 19, 2010. 25 OECD, OECD Factbook 2010: Economic, Environmental and Social Statistics, 2010. 
3-6

30

40

50

60

70

80

90

1978 1980 1982 1984 1986 1988 1990 1992 1994 1996 1998 2000 2002 2004 2006 2008

Percent

Source: The World Bank, Data: China (accessed July 26, 2010).

FIGURE 3.3 Rural population declined as a share of Chinese total population during 

1978–2008

Urbanization 

Food consumption patterns are also affected by the increased urbanization of China’s 

population. During the 1960s and 1970s, just over 80 percent of China’s population lived 

in rural areas (figure 3.3). However, beginning in the late 1970s the rural population 

began to decline as people moved to find employment in the cities, and by 2008 only 

57 percent of the population was living in rural areas. Rural-urban migration continues to 

occur; between 2004 and 2008 the rural population fell by about 1 percent annually, 

while the urban population rose by 3 percent annually. 26 Today only 40 percent of 

Chinese people are rural farmers, whereas 20 years ago two-thirds were rural and 

produced a large portion of their own food. 27

 

Urban and rural Chinese show different food consumption patterns, though the gap is 

narrowing. Urban Chinese consume more food overall, especially vegetables, fruit, and 

edible oils, but eat fewer grains than rural dwellers do (table 3.2).28 Urban dwellers also 

consume significantly more fruit and fresh eggs than rural dwellers. In addition, they are 

more likely to buy chilled, frozen, or perishable foods than their rural counterparts, since 

they are more likely to own refrigerators. 29Although urban per capita consumption 

remained fairly stable in terms of volume, urban consumers were purchasing foods of 

increasingly higher price and quality.30 Meanwhile rural residents consumed less grain 

and vegetables, but slightly more fruit, during 2004–08. 

Workers who migrate to cities normally adopt urban consumption patterns31 and are 

exposed to certain foods that are largely unique to urban areas, such as snacks and 

processed foods.32 Future rural-urban migration is therefore expected to continue to be a

 26 This data is calculated from the population data in table 3.2 of this report. 27 CIA, The World Factbook: China, updated April 26, 2010. 28 Gale, China’s Growing Affluence, June 2003, table 3.2. 29 Gale, China’s Growing Affluence, June 2003. 30 Gale and Huang, Demand for Food Quality and Quantity in China, January 2007, 21, 23. While 

higher-quality foods may be more expensive, higher prices do not necessarily denote a higher-quality product. 31 Rozelle, Vegetables in China, March 2006, 3. 32 Shapouri and Rose, Developing Countries, June 2009, 36–37. 
3-7

TABLE 3.2 China: Per capita consumption of select commodities and population in rural and urban areas, 2004–08 

Commodity Area 2004 2005 2006 2007 2008

 Kilograms 

Graina Rural 219 209 206 199 199

 Urban 78 77 76 78 n/a

Vegetables Rural 107 102 100 99 100

 Urban 122 119 118 118 123

Meatb

 Rural (c) (c) 36 32 31

 Urban 31 33 32 32 31

Fruitsd

 Rural 17 17 19 19 19

 Urban 53 57 60 59 54

Edible oils Rural 5 6 6 6 6

 Urban 9 9 9 10 10

Fresh eggs Rural 5 5 5 5 5

 Urban 10 10 10 10 11

 Millions 

Population Rural 784 777 770 762 754

 Urban 512 527 541 556 571

Source: USDA, ERS, China Agricultural and Economic Data (accessed date November 2, 2010). 

 aGrains includes tubers. bMeat includes pork, beef, mutton, and poultry. 

c

Data not available. dIncludes fruits and melons. 

major cause of the changing pattern of Chinese consumption.

33 More information on 

migration can be found in box 3.1. 

Income and Expenditure 

Income Growth and Distribution 

Historically, China has been a low-income country. In 1981, near the beginning of the 

reform period, 98 percent of the population lived on less than $2 a day, and 84 percent of 

the population on less than $1.25.34 However, rising incomes over the past three decades 

have significantly lowered poverty levels. For example, between 1979 and 2002 income 

growth drew about 400 million people out of poverty,35 and by 2005 only 36 percent of 

Chinese were living on less than $2 a day and 16 percent on less than $1.25.36 More 

recently, even in the midst of a global recession, per capita incomes have continued to 

grow, rising 8 percent between 2008 and 2009.37 In 2009, the average per capita gross 

national income (GNI) was $3,590, more than double the level in 2005.38 Some Chinese 

earning well below this level receive a minimum living allowance (box 3.2). 

 33 Rozelle, Vegetables in China, March 2006, 3. 34 World Bank, Data: China (accessed July 26, 2010). Measured in 2005 dollars. 35 EC, DGA, “China: Out of the Dragon’s Den?” May 2008, 2. 36 World Bank, Data: China (accessed July 26, 2010). 

37 China Daily, “China’s Urban, Rural Income Gap Widens,” January 22, 2010. 38 World Bank, Data: China (accessed November 4, 2010). 
3-8

BOX 3.1 China’s “Hukou” System Affects Food Consumption Patterns 

Migration from rural to urban areas is changing food consumption patterns in China. This urbanization, in turn, is 

affected in numerous ways by the Chinese hukou system. This system, which is a way of assigning public services 

to citizens, was established in the 1950s as a household registration system that made public service distribution 

contingent on occupation and residency. Urban dwellers received more benefits, such as education and healthcare, 

while rural citizens often received either land or a small allowance. 

As urban centers grew, however, so did the population of rural migrants looking for work in cities. Starting at 

approximately 30 million in 1989, there are now an estimated 130 to 250 million Chinese migrants, accounting for 

40 percent of the urban labor force.a Because the migrant workers are classified by hukou as rural, they are not 

covered by the same legal rights and protections as urban workers. Over 80 percent work seven days per week, 

fewer than 5 percent are covered by a pension, and only 21 percent are covered by employment contracts. They 

also work for minimal wages, which are sometimes not paid because employers know that the workers have no 

legal recourse. Migrants are without health benefits, and their children are also classified as rural dwellers no matter 

where they were born, meaning they have no right to an urban education. 

Rural-urban migration alters consumption in the countryside in several ways. Migrant workers tend to adopt more 

urban consumption patterns while they are working in the cities and return home with the awareness of new foods 

and altered food preferences. Remittances from city-dwelling family members boost rural families’ incomes, giving 

them the ability to increase food purchases. Further, over time, the decrease in available farm labor due to migration 

means the farm sector relies more on technology, causing an increasingly commercialized farm sector to emerge. 

This more agriculturally productive countryside generates more income, which, coupled with the recently acquired 

tastes of returned migrants, leads to changes in rural consumption.b 

While the Chinese government is trying to institute reforms to the hukou system, including extending some urban 

services to rural areas, migrant workers still have little protection in cities. The prohibitive cost of offering education 

and health benefits to all urban dwellers keeps migrant workers out of the system. However, if the entire system 

were to be overhauled, migrant workers and their children would have access to all the same public services as 

their recognized urban counterparts; being legally covered by an enforceable contract, they would also receive 

higher incomes. This rise in public service coverage and income would provide incentives for increased 

urbanization, as well as lead to higher and more varied food consumption in both rural and urban areas. 

_____________ 

a

 Scheineson, “China’s Internal Migrants,” May 14, 2009; industry officials, interviews by Commission staff, 

Beijing and Shandong province, China, September 6–16, 2010. b

 Shapouri and Rosen, Developing Countries, June 2009, 36-37. 

BOX 3.2 Urban Minimum Living Allowance Payments Increase Income for Poor Consumers 

In 2006, the central government spent RMB 24.1 billion ($3.2 billion) on urban minimum living allowance payments.a

The subsidy covers about 22 million urban Chinese, and these payments are designed to at least partially 

counteract increasing prices for basic food items. Local governments are permitted by the central government to 

increase urban minimum living allowance payments to their residents if they can afford it, but the central government 

requires that the basic payment be paid to eligible citizens. The minimum living subsidy for each person varies in 

different cities. In Beijing, the unemployed, those unable to work, and elderly people who are financially dependent 

get RMB 330 ($44) a month. If a family's income is below RMB 330, they receive a subsidy to ensure their monthly 

income equals the minimum allowance.b 

_____________ 

a

 United Nations, Food Prices Issues in the People’s Republic of China, August 2008, 15. b China Daily, “Urban Minimum Living Subsidy Increased,” August 7, 2007. 
3-9

Income is distributed unevenly between urban and rural areas. In 2009, the average per 

capita disposable income in urban areas was $2,515 (8.8 percent higher than 2008) 

compared with just $754 (8.2 percent higher than 2008) in rural areas.39 It is estimated 

that about 20 percent of the urban population is upper middle income (RMB 40,001–

100,000, or about $5,330–$13,326 per year40), and this figure could rise to 30 percent by 

2015.41 Although incomes of both rural and urban populations are rising, the gap between 

the two is widening. For example, between 2000 and 2006, rural incomes rose 59 percent, 

while urban incomes increased 87 percent.42

Per capita income is also unevenly distributed among the provinces. Generally, the 

coastal areas are more affluent than the interior of China.43 In a 2008 survey of a selected 

group of workers, 7 out of the top 10 wage-earning provinces/municipalities were in 

coastal areas, 44 with Shanghai and Beijing having the highest per capita wages 

($8,142 and $8,107 per annum, respectively), more than double the level of the majority 

of provinces. 45 Higher urban incomes play a role in these provincial income 

discrepancies, as most of the top wage-earning provinces or municipalities contain a 

major Chinese city. These high-income provinces contain a concentration of affluent 

Chinese consumers who are demanding a greater variety of food.46 

Expenditure 

Food is the largest class of household expenditure for all Chinese income groups; even 

housing takes a smaller share of average household income. 47 As income rises, the 

absolute amount of food expenditure increases, although the share of income spent on 

food falls (table 3.3). Urban residents spend substantially more on food than their rural 

counterparts. For example, urban lower-middle-income consumers spent RMB 3,640 

($533) on food annually, while their rural counterparts spent only RMB 1,317 ($193).48

Higher incomes lead to an increase in both the quantity and quality of food demanded. 

However, while demand for higher quantities of food appears to level off in the topincome households, demand for higher-quality foods continues to rise with income.49 

 39 China Daily, “China’s Urban, Rural Income Gap Widens,” January 22, 2010. 40 Unless otherwise noted, the exchange rate used throughout this report is RMB 7.50 per dollar, which is 

based on the period (2005–09) average calculated from IMF daily rates. IMF, Exchange Rate Database 

(accessed December 17, 2010). 41 Latner, “Who Is Feeding China?” February 19, 2010, 5. 42 EIU, Country Profile 2008: China, 2008, 39. 43 Keidel, “The Causes and Impact of Chinese Regional Inequalities in Income and Well-Being,” 

December 2007. 44 Wages for a select group of staff and workers as defined in China National Bureau of Statistics, China 

Statistical Yearbook 2009, 2009, 147–148,155–157, and 164, tables 4-22, 4-23, and 4-26. These wages 

exclude a number of important groups such as those employed by a township, a private enterprise, or 

themselves. 45 Twenty-two out of the 31 provinces/municipalities had an average annual wage for select staff and 

workers of between $3,000 and $4,000. China National Bureau of Statistics, China Statistical Yearbook 2009, 

2009, 147–148,155–157, tables 4-22, 4-23, and 4-26. 46 Gale, China’s Growing Affluence, June 2003. 47 China National Bureau of Statistics, China Statistical Yearbook 2009, 2009. 48 ISI Emerging Markets, CEIC database. Converted from renminbi to dollars using the 2009 average 

annual exchange rate. U.S. Federal Reserve System, Foreign Exchange Rates (Annual), January 4, 2010. 49 Gale and Huang, Demand for Food Quality and Quantity in China, January 2007, 23. 
3-10

TABLE 3.3 China: Total expenditurea and share of expenditure on food by urban and rural populations, 2005–09 

Income category 2005 2006 2007 2008 2009 

Share of

income

spent

on food

 Dollarsb 5-year 

percent

 Urban 

Poor 324 370 453 556 623 48

Lowest income 380 429 531 652 717 47

Low income 524 598 741 892 987 44

Lower middle income 680 766 937 1,151 1,279 42

Middle income 892 992 1,196 1,489 1,656 39

Upper middle income 1,149 1,282 1,521 1,917 2,191 36

High income 1,477 1,652 2,011 2,575 2,820 34

Highest income 2,338 2,642 3,068 3,884 4,146 28

 Rural 

Poor (c) (c) (c) (c) (c) (c) 

Lowest income (c) (c) (c) (c) (c) (c) 

Low income 189 204 243 309 345 50 

Lower middle income 233 256 310 382 420 48 

Middle income 284 322 386 473 519 46 

Upper middle income 351 405 484 603 672 43 

High income 561 662 788 986 1,096 37 

Highest income (c

) (

c

) (

c

) (

c

) (

c

) (

c

)

Source: ISI Emerging Markets, CEIC database. 

a

Among other things, total expenditure includes spending on food, clothing, housing, medicine. b

Converted from renminbi to dollars based on the average-annual exchange rate. U.S. Federal Reserve System, 

Foreign Exchange Rates (Annual), January 2, 2008 and January 4, 2010. cNot available. 

Spending on food consumed outside the home is on the rise. In 2003, about 18 percent of 

urban household food expenditures and over 11 percent of rural household food 

expenditures were made outside the home. 50 In 2008, the average per capita annual 

expenditure on dining out was $127 among urban residents, up 26 percent from a year 

earlier. 51 Per capita expenditures on food consumed away from home vary among 

regions, with Shanghai spending the most ($300) and Tibet the least ($84).52 Most such 

expenditures are made in restaurants, both independent establishments and fast-food 

chains like KFC and McDonald’s. Although consumption away from the household is 

increasing, most foods are still eaten at home.53 The exception is meat, with about half of 

all meat consumed outside the home.54

Food Prices 

Along with increased income, changes in Chinese consumption trends are also spurred by 

shifting food prices. Through the 1980s and 1990s, after the reform period, the central 

government relinquished some control over food prices, and the price of grains rose 

 50 Gale and Huang, Demand for Food Quality and Quantity in China, January 2007, 21. 51 USDA, FAS, China: Oilseeds and Products; Annual 2010, February 23, 2010, 14. 52 Ibid. 

53 The following shares represent the amount of each food category consumed at home: grains 

(80 percent), eggs (75 percent), seafood (73 percent), vegetables (83 percent), fruits (95 percent), dairy 

(75 percent), drinks (63 percent), and bean products (63 percent). Latner, “Who Is Feeding China?” 

February 19, 2010, 10. 54 Latner, “Who Is Feeding China?” February 19, 2010, 10. 
3-11

sharply. This increase led urban consumers to shift their diets away from grains toward 

protein sources such as eggs for which price increases had been much more moderate.55

Although pork is the most popular meat in China, chicken consumption has increased 

because of the efficiency of poultry farmers in producing a low-cost protein, as well as 

the fluctuating supply of pigs.56 As mentioned, pork prices skyrocketed in 2007 in the 

face of lower supplies following an outbreak of a swine disease. In response, the 

government drastically increased pig farming subsidies, causing some farmers to shift 

into pig production. As a consequence, pork soon flooded the market and its price 

drastically fell, leaving pig farmers with little profit. Consumption of pork moved 

inversely with price, as consumers, especially low-income consumers, purchased 1 to 

3 kilograms per capita less when prices were high.57 This example illustrates the price 

sensitivity of Chinese consumers in making their food-purchasing decisions. 

Since food makes up a relatively large share of consumer spending in China, food price 

inflation has a significant impact on overall inflation. According to official data, food 

prices in December 2010 were up 9.6 percent, and consumer prices were up 4.6 percent, 

from a year earlier.58 Official data on food prices may understate the impact on Chinese 

consumers. A survey in November 2010 reportedly found that average wholesale prices 

for a basket of 18 vegetables in 36 cities had increased 62.4 percent over the previous 

year. Factors contributing to recent food price inflation include poor weather that lowered 

the supply of some commodities, rising demand, increasing agricultural wages, and an 

expanded money supply.59

The government’s efforts to curb inflation have included an increase in bank reserve 

requirements and interest rates and the elimination of road tolls on trucks carrying 

produce starting December 1, 2010. Government statements have targeted markets for 

cotton, grains, oils, and sugar, and raised the possibility of price controls on “important 

daily necessities.”60

Food Preferences 

Changing Preferences 

Like that of other countries at similar stages of development, the traditional Chinese diet 

comprises mostly grains and other starches. As mentioned, higher incomes are allowing 

consumer preferences to change, particularly among the urban dwellers.61 Consumption 

of nonstaple, higher-value foods such as meat (especially pork), dairy, fruits, vegetables, 

and processed food has grown significantly in the past three decades; in fact, 30 percent 

of the food currently consumed in China has been processed in some way.62 

China’s per capita expenditures for animal proteins63 for 2008 averaged $184, up from 

$137 in the previous year. The Chinese consume about four times as much pork as 

 55 Gale and Henneberry, “Markets Adapt to China’s Changing Diet,” 2009. 56 Ibid. 

57 Ibid. 

58 Trading Economics, “China Inflation Rate Slows in December,” January 20, 2011. 59 USDA, FAS, China Food Price Inflation in 2010, November 2, 2010, 2; Foster, “China Feels the Bite 

of Food Inflation,” November 22, 2010. 60 Bloomberg Businessweek, “China May Impose Temporary Price Controls,” November 23, 2010. 61 EIU, China: Food, Beverages, and Tobacco, January 5, 2010; EIU, China: Food, Beverages, and 

Tobacco, July 10, 2010. 62 Ibid. 

63 Animal protein includes all meats, poultry, eggs, and aquatic products. 
3-12

poultry, the second most popular animal protein. Pork consumption has been encouraged 

by improved cold storage distribution, as the product can be transported greater distances 

to reach more customers.64 Pork consumption levels are also high due to government 

support programs, including purchasing pork for reserves and occasionally subsidizing 

pork purchases for low-income consumers. 

Chinese pork consumption is almost equal to that of China’s more economically 

developed neighbor, Taiwan. Taiwan is a possible indicator of Chinese growth potential, 

due to its similar geography, preferences, and culture. Further potential expansion in 

Chinese meat consumption could come from poultry, given that per capita poultry 

consumption in Taiwan (26.16 kilograms) is almost three times the level in China 

(9.1 kilograms). 

Dairy consumption also rises with income and is helped by government programs and 

wider access.65 School milk programs have increased milk consumption by children, and 

at the same time the presence of large supermarkets and fast-food chains promote the 

availability of new dairy products.66 From 2000 to 2005, fluid milk consumption grew 

180 percent.67 

Even the way in which traditional products, like grains, are consumed is changing. For 

example, wheat is being consumed less in traditional foods such as noodles and steamed 

bread and more in the form of Western products such as bread, cake, and processed 

food.68 Moreover, growing meat consumption is resulting in increased consumption of 

oilseed meals and corn, both of which make up animal feed. 

Demand for Food Safety 

Food quality and safety are important factors affecting Chinese food preferences.69 Highincome urban groups that focus their expenditure on high-quality products also seek 

assurance that their food is safe.70 Since late 2008, publicity about food poisonings has 

spurred increased demand for organic and safe products. Safety concerns can determine 

where certain foods are bought: fresh produce is usually purchased at a wet market 

because fresher produce is perceived to be safer, while meats are increasingly bought at a 

supermarket because of the availability of cold storage. 71 Some commodities have 

acquired a negative reputation following a health scare, leading Chinese consumers to 

distrust those products for several years afterwards. This is currently the case for 

domestically produced dairy products after melamine, an industrial chemical, was first 

found in Chinese milk powders in 2008.72 Lacking a strong food safety system, Chinese 

consumers often look to prices as a proxy for food quality and safety, and 52 percent of 

consumers believe that low prices signify poor quality, compared to 16 percent of 

consumers in the United States.73 

 64 USDA, FAS, China: Livestock and Products; Annual 2009, September 14, 2009, 6. 65 Fuller, Beghin, and Rozelle, “Consumption of Dairy Products in Urban China,” November 29, 2006, 6. 66 Ibid., 2–3. 

67 Ibid., 2. 

68 Roberts and Anders, Developments in Chinese Agriculture, July 2005, 9. 69 EIU, China: Food, Beverages, and Tobacco, January 5, 2010; EIU, China: Food, Beverages, and 

Tobacco, July 10, 2010. 70 Gale and Huang, Demand for Food Quality and Quantity in China, January 2007, 1. 71 Latner, “Who Is Feeding China?” February 19, 2010, 13. 72 Gifford, “Food Fears Persist in China,” October 26, 2010. 

73 Chan and Tse, The Consumer Trap, May 12, 2007. 
3-13

Chinese Shopping Preferences 

 

In general, Chinese consumers prefer diversity in their shopping experience. Urban 

consumers tend to shop at multiple, heterogeneous venues for different products, ranging 

from local traditional wet markets to supermarkets (figures 3.4 and 3.5). Rural consumers 

still primarily shop at wet markets because supermarkets are not widely available outside 

cities. Reportedly, only one-half of Chinese consumers view themselves as a loyal 

customer of at least one store, splitting their purchases between supermarkets, wet 

markets, convenience stores, and roadside vendors. The Chinese have an appetite for 

branded foods and product diversity; the majority of Chinese report wanting to see brandname products in their shopping outlets even if they cannot yet afford them, saying they 

would purchase them if they had more income.74 Chinese consumers cite shopping as a 

favored leisure activity and devote much more time to it; they shop for 9.8 hours per 

week on average, compared to 7.2 in BRIC countries75 and only 3.6 hours per week in the 

United States.76

FIGURE 3.4 Poultry for sale at a traditional Chinese wet market 

Source: Commission staff. 

Poultry, typically unrefrigerated, is cut to order in this traditional Chinese wet market. 

 74 Ibid. 

75 The BRIC countries are Brazil, Russia, India, and China. 

76 Chan and Tse, The Consumer Trap, May 12, 2007. 
3-14

 FIGURE 3.5 Poultry for sale at a modern Chinese supermarket 

 

 Source: Commission staff. 

Unlike at Chinese wet markets, at supermarkets poultry and other meats are sold precut 

and kept chilled. Catering to consumer preferences, meat is usually unpackaged so that 

customers may select the pieces they want. 

Non-Food Consumption 

Consumption of non-food agricultural items, including cotton and hides, is also 

increasing. China is the world’s largest producer, importer, and consumer of cotton.77

Most of the cotton is used as an input for finished products, such as textiles, apparel, and 

home furnishings.78 While cotton consumption fell following the global economic crisis, 

by May 2010, China’s total textile and apparel exports were growing again, up 19 percent 

from the previous year.79 With the gradual recovery of the world economy and the return 

of domestic and global demand for apparel, consumption of both imported and domestic 

cotton is likely to increase.80 Southern China, the country’s largest manufacturing region 

for leather goods, has already experienced a turnaround of the economy and is expected 

to use more leather, especially bovine leather, and hides for products such as shoes, 

handbags, and luggage.81

 77 MacDonald and Whitley, Fiber Use for Textiles and China’s Cotton Textile Exports, March 2009, 2. 78 Ibid., 15. 

79 USDA, FAS, China: Cotton Update, June 29, 2010, 3. 80 USDA, FAS, China: Cotton and Products; Annual, May 1, 2010, 9–12. 81 USDA, FAS, China: Guangdong Market for Leather Weathers the Storm, November 16, 2009. 
3-15

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4-1

CHAPTER 4 

Chinese Agricultural Production and Policies 

Overview 

Agriculture is important to the Chinese economy and employment. China’s agricultural 

production accounted for 11 percent of gross domestic product (GDP),1

 and the sector 

employed just under one-half of the population in 2009. The sector is dominated by 

millions of farmers with small plots of land, averaging just 1.5 acres per household.2

Endowed with all of the world’s major climates, China produces a wide range of 

agricultural products. Despite having limited good-quality cropland and very little water 

in some areas,3

 China has expanded its agricultural production since the late 1970s such 

that today China ranks as the leading global producer of many agricultural commodities. 

It achieved this expansion largely through substantial increases in productivity, a result of 

both market-based policy reform and the adoption of modern agricultural technology and 

farming practices. In addition to overall production growth, the composition of Chinese 

agricultural production has changed over time. Most notable is the increased share in total 

production of labor-intensive products, such as horticulture, meat, and dairy, and the drop 

in the relative importance of traditional products, such as grains and tubers. 

In spite of agricultural policy reforms, the Chinese government continues to play a central 

role in the sector. China’s support for the farm sector has grown significantly since 2004, 

and increases in funding for the sector indicate a renewed focus on agriculture and the 

rural economy by policymakers. To shrink the gap between urban and rural incomes and 

promote social harmony the major agricultural-related objectives of China’s government 

are self-sufficiency in domestic grain4

 production, raising farmers’ incomes, and rural 

development. 

Production 

General Production Patterns 

China is the third-largest country in the world in area, and about 15 percent of its land is 

arable.5

 From the beginning of the reform period in 1978 until 2008, China’s arable land 

area increased by about 4 percent annually; in the past decade it has been virtually 

 1

 CIA, The World Factbook: China, May 20, 2010. China’s GDP was $4,985 billion in 2009. World 

Bank, Data: China (accessed October 21, 2010). 2

 Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009, 6. 3

 CIA, The World Factbook: China, May 20, 2010; Lohmar et al., China’s Ongoing Agricultural

Modernization, April 2009, 18. 4

 The Chinese government defines the term “grains” differently for different purposes. When discussing 

self-sufficiency, “grains” means wheat, rice, corn, and tubers. When discussing government stocks, grains 

include wheat, corn, rice, and soybeans. In some cases, such as in the Chinese Statistical Yearbook, pulses are 

included with grains as well as cereals, tubers, and soybeans. In this investigation, grains include wheat, corn, 

rice and other cereals, while tubers (i.e., root crops, such as potatoes, cassavas, and sweet potatoes) are 

included as horticultural products. 5

 About two-thirds of the country is mountainous. Other parts of China are desert or urban. PRC, “About 

China: Topography.” 
4-2

unchanged.6 Although the amount of land available for agriculture is being threatened by 

ongoing urbanization, industrialization, and desertification (box 4.1), so far there has not 

been a drastic decline in total agricultural land. Areas lost to nonagricultural uses have 

been offset by farms expanding into marginal areas, and land left fallow by farmers 

exiting the sector has been brought back into production by the farmers that have 

remained.7

 Under China’s Eleventh Five-Year Plan (2006–10), the government continued 

its goal of maintaining a minimum of 120 million hectares (ha) in agricultural production 

in order “to ensure high levels of food self-sufficiency.”8

 This goal is being addressed 

through laws and policies, such as the 2002 China’s Rural Land Contracting Law and the 

Master Land Use Plan of 1997–2010 (box 4.2). Recent estimates of actual planted land 

range from about 120 to 155 million ha (compared with 164 million ha in the United 

States).9

With limited arable land, the significant growth in China’s agricultural production has 

been achieved largely by making major improvements in productivity, rather than by 

expanding China’s cropland.10 For example, between 1978 and 2008, the area planted to 

cotton rose by 18 percent, while production increased by 246 percent; planted area of all 

oil-bearing crops rose 106 percent, while production increased 466 percent; and even 

though the area planted to tubers (root crops, such as potatoes and cassavas) fell by 

29 percent, production dropped by only 6 percent. 11 For many agricultural products, 

China produces a large share of total global production (table 4.1). 

As noted, two major factors drove the trend toward higher agricultural productivity in 

China—policy reforms (discussed later in this chapter) and adoption of improved 

agricultural technology beginning in the late 1970s. The adoption of yield-improving 

technologies was especially important to raising agricultural productivity. Use of 

biological technology, such as better seed varieties, contributed significantly to this 

trend,12 beginning with the Green Revolution, which reached China in the 1980s. The 

Green Revolution also brought other advanced technologies such as irrigation and 

chemicals inputs.13 Technological advances continued to be made into the 1990s and 

2000s. For example, in the late 1990s, as the expansion of orchards slowed, farmers 

started upgrading them by replanting, grafting, and improving agronomic care.14 Other 

yield improvements were made through the use of genetically modified (GM) seeds, 

 6

 Data are from 2008. The figure for sowed land changed less than 1 percent between 1998 and 2008. ISI 

Emerging Markets, CEIC database. 7

 Roberts and Anders, Developments in Chinese Agriculture, July 2005, 7. 8

 EC, DGA, “China: Out of the Dragon’s Den?” May 2008, 4. 9

 ISI Emerging Markets, CEIC database; Roberts and Anders, Developments in Chinese Agriculture, July 

2005, 7; EIU, Country Profile 2008: China, 2008, 25; USDA, ERS, “Briefing Rooms: China,” 2009. Roberts 

and Anders caution that the numbers at the higher end of the range may be inflated because of the Chinese 

practice of double-cropping: land that has been planted and harvested twice in one season may be doublecounted in the overall “planted area” total. 10 During the reform period (1978 to 2008), China’s cropland grew by just 4 percent. Lohmar et al., 

China’s Ongoing Agricultural Modernization, April 2009, 5–6. 11 ISI Emerging Markets, CEIC database. 

12 Ito, “Inter-regional Difference of Agricultural Productivity in China,” March 21, 2010, 394. 

Agricultural technologies can generally be categorized as mechanical or biological. Generally, the Chinese 

adoption of mechanical agricultural technology has been limited because agricultural labor remains a fairly 

abundant resource. 13 Borlaug, “Biotechnology and the Green Revolution,” interview by ActionBioscience.org, 

November 2002; Nath, The FAO Field Programme and Agricultural Development in Asia and the Pacific, 

December 1999, 21, 25. 14 Rozelle et al.,“Rise of China’s Horticultural Industry,” n.d., 6. 
4-3

BOX 4.1 China Has Made Relatively Minor Investments in Agricultural Land Abroad 

Around the world, relatively wealthy, food-scarce countries are investing in agricultural land in Africa and South 

America. A 2008 jump in world food prices brought the issue of food security to the forefront, and net food importers 

have been purchasing farmland to grow crops in order to protect themselves from future high prices and food 

shortages.a

 Some countries that do not have enough arable land to grow crops are purchasing plots in landabundant countries and raising food to send home for consumption. While many of these transactions are hidden 

from the public eye, the International Food Policy Research Institute (IFPRI) estimated in 2008 that 15 to 20 million 

hectares had been involved in purchases and transactions in recent years.b

 That area equates to the entirety of 

agricultural land in France. 

China has engaged in this market through its “go-out policy,”c

 in response to the limits on its arable land and issues 

with water conservation, which make it advantageous to purchase fallow land in other countries.d

 Through its wellestablished relationship with Africa in the Forum on China-Africa Cooperation (FOCAC), investment in both land 

purchases and research has increased. For example, China has bought 2.8 million hectares to grow palm oil in the 

Democratic Republic of Congo and has set up at least 11 research stations through Africa with the aim of 

generating higher yields.e In 2009, there were an estimated 1 million Chinese farm laborers working in Africa.f In 

addition to Africa, China is open to purchasing land in Southeast Asia and South America, and may be interested in 

harvesting soybeans, bananas, vegetables, and edible oil crops in those areas.g

Although China has a large population and growing food demand, it is still a relatively minor player in agricultural 

land acquisition.h Several countries are leading the way, including private companies in India and South Korea, and 

the governments of the Gulf states. One Indian individual leases over 1,200 square miles of land, an area larger 

than Rhode Island, just in Ethiopiai

, and a South Korean company attempted to secure a 1.3 million-hectare plot of 

land in Madagascar in 2008, though political issues blocked this purchase. Arab nations are energy-rich and foodpoor, and they are trading oil for farmland.k

 Sudan has now leased a total of 2.5 million hectares to South Korea, 

Egypt, and the Gulf states.l

 China may seek out more foreign land purchases if it faces shortages in certain crops 

because farmers have shifted production to higher-return commodities or due to decreased productivity. 

_____________ a

 Kugelman and Levenstein, “Land Grab?” 2009, 2. b

 Ibid., 1. 

c

 Spencer, “China Looks Abroad,” May 9, 2008. 

d

 Bezlova, “Buying Farmland Abroad,” May 9, 2008. 

e

 Economist, “Buying Farmland Abroad: Outsourcing’s Third Wave,” May 21, 2009. 

f Ibid. 

g

 Thomson Financial News, “China Considers Buying Land,” May 8, 2008. 

h

 Spencer, “China Looks Abroad,” May 9, 2008. 

i

 Srivastava and Sharma, “Indian Co. Leases Land,” November 12, 2010. 

j

 Kugelman and Levenstein, “Land Grab?” 2009, 1. k

 Ibid., 2. 

l Ibid., 1. 
4-4

BOX 4.2 Chinese Land Use Policies Support Food Security Goals 

China’s 2002 Rural Land Contracting Law addresses land use in rural areas. It states that rural land in China is 

owned by cooperatives and is reserved exclusively for agricultural purposes, such as for farming and for residences 

for farmers, together with essential buildings such as schools, hospitals, and agricultural support facilities. The law 

stipulates that all land to be used for commercial purposes or for non-farmer residences must first be transferred to 

the national government.a

In recent years, China’s planned land use system has been carried out through the Master Land Use Plan of 1997–

2010 and annual land use plans which implement national goals. The first National Master Land Use Plan was 

introduced in 1997 when the central government became concerned about rapid urban expansion and resulting 

farmland losses. The Master Land Use Plan sets long-term regulations relating to both the area and the location of 

agricultural lands in a given region that are allowed to be converted to non-agricultural use. In effect, the plan requires 

provinces to balance agricultural land conversion to non-agricultural use and to seek new land for agricultural uses 

(known as the farmland supplement). b

China’s land use regulations, which prescribe using land quotas and rules preserving basic cropland are considered 

necessary by the central government to achieve food security. For agricultural land to be converted into nonagricultural use, the conversion must be permitted under the Master Land Use Plan and located outside delineated 

areas of preserved cropland. However, these regulations are considered very difficult to implement. Without 

monitoring and accountability, and with significant local government flexibility to consider overall economic 

development goals, land use mandates can result in arbitrary policy implementations for farmers. c

_____________ 

a

 Dickinson, “China Real Estate Laws, Part I,” n.d. b Wang, Tao, and Tong, “Trading Land Development Rights,” 2009, 3. c Ibid. 

TABLE 4.1 Chinese and U.S. rank in world production for selected agricultural products, 2008/09

Agricultural products 

China’s rank in 

world 

production 

China’s share of 

world 

production 

U.S. rank in 

world 

production 

U.S. share of

world

production

 Percent Percent 

Apples 1 43 2 6

Cabbages and other brassicas 1 53 9 2

Cucumbers and gherkins 1 64 5 2

Eggplants (aubergines) 1 56 21 (a)

Garlic 1 77 6 1

Onions, dry 1 31 3 5

Pears 1 65 2 4

Pig meat/pork 1 46 3 11

Potatoes 1 18 5 6

Rice, paddy 1 28 12 1

Sweet potatoes 1 77 12 1

Tomatoes 1 26 2 10

Watermelons 1 68 5 2

Wheat 1 16 3 10

Broilers 2 17 1 23

Maize (corn) 2 20 1 37

Cow milk, whole, fresh 3 6 1 15

Sugar cane 3 7 10 2

Beef 4 10 1 20

Soybeans 4 7 1 35

Source: FAO, FAOSTAT (accessed July 27, 2010). 

a

Less than 1 percent. 

which were approved by the Chinese government in the late 1990s. China has currently 

approved more than 200 GM seed varieties, including seed for cotton, sweet peppers, 
4-5

papaya, and tomatoes. It most recently approved GM seeds for corn and rice in 2009.15

Since the late 1990s, China has been significantly increasing investments in plant 

biotechnology, and by the mid-2000s it had one of the largest public investments in plant 

biotechnology in the world.16 China is likely to continue to see productivity gains from 

agricultural technology advancements. 

Recent Production Trends 

In addition to the growth in agricultural output and productivity, trends show a gradual 

shift in the composition of agricultural production. Specifically, there has been a longterm trend away from the production of traditional staple foods, such as grains and tubers, 

toward increased production of nonstaple foods, such as fruits, dairy, and meat.17 For 

example, in 1980, grains accounted for 80 percent of total sown area, while vegetables 

made up 2 percent and orchards, 1 percent.18 By 2008, grain-sown area had fallen to 

68 percent, while vegetables had risen to 11 percent and orchards to 7 percent. This trend 

was driven by changing consumer demand as a result of rising incomes and urbanization, 

and by the higher returns available to farmers from producing nonstaple rather than staple 

food products. However, government programs increase the returns on grains (compared 

to what they would earn on the open market), thus making them profitable enough for 

famers to produce. 

During marketing years (MY) 19 2005/06–09/10, production of most commodities grew 

(table 4.2). 20 Increases in production were large for horticultural products, especially 

fresh and processed fruit, which experienced double-digit annual growth during the fiveyear period. The production of certain commodities declined between 2005/06 and 

2009/10, including tubers, peanuts, and soybeans. 

Grains 

During 2005/06–2009/10, Chinese grain production (corn, wheat, and rice) increased 

3 percent annually. According to the U.S. Department of Agriculture (USDA), corn 

production rose because increased plantings and good weather resulted in the highest 

yields in a decade in 2008/09.21 Yields were also higher because of increased fertilizer 

 15 China approved Bacillus thuringiensis (Bt) rice, which wards off insects and is estimated to improve 

yields by 2 to 6 percent, as well as phytase corn, which purportedly increases the absorption of phosphate in 

animals by increasing their growth rate and reduces phosphate pollution from livestock. Resurreccion, “China 

‘Bt’ Rice OK to Boost Supply,” March 2, 2010; Qinghui, “China’s GM Gamble: Seeds of Change,” May 5, 

2010, 15. 16 Huang and Rozelle, “China’s Agricultural,” August 2009, 4. 17 Huang and Rozelle, “China’s Agricultural,” August 2009, 2; EIU, Country Profile 2008: China, 2008, 

39; Rozelle, Vegetables in China, March 2006, 2. More information on changes in consumer demand can be 

found in chapter 3 of this report. 18 ISI Emerging Markets, CEIC database. 

19 The marketing year is a 12-month period, usually beginning with a new harvest, during which the 

product is marketed. Marketing years differ for each commodity and country. 20 Chinese production statistics should be seen more as generally indicative of patterns than accurate 

exact figures. Gale, “China’s Statistics: Are They Reliable?” April 2002; industry official, interview by 

Commission staff, Shanghai, September 13, 2010. 21 Owing in part to increased demand for feedstuffs, returns to corn production were higher than for 

soybeans in MY 2008/09, which encouraged farmers to increase corn production. USDA, FAS, China: 

Grains and Feed; Annual 2009, March 3, 2009, 3; South East Farm Press, “China on Track for Good Grain 

Harvest,” October 5, 2010.
4-6

TABLE 4.2 China: National agricultural production, 2005/06–09/10 

Commodity 2005/06 2006/07 2007/08 2008/09 2009/10 

Annual 

growth

Growth 

2005/06–

09/10a

 Million metric tons (mt) Percent 

Grains 

 Corn 139.4 151.6 152.3 165.9 155.0 2.9 11.2

 Rice 180.6 182.6 186.0 191.9 (b

) 2.0 6.3

 Wheat 97.4 108.5 109.3 112.5 115.0 4.3 18.0

 All grains 484.0 497.5 501.6 528.7 (b

) 3.0 9.2

Oilseeds 

 Soybeans 16.4 16.0 14.0 15.5 14.7 (2.3) (10.1)

 Peanuts 14.3 12.9 13.0 14.3 14.7 0.9 2.5

 Rapeseed 13.1 11.0 10.6 12.1 13.7 2.0 5.0

 Cottonseed 11.1 13.9 14.5 14.4 12.5 3.9 12.7

Vegetable oils 

 Soybean 6.1 6.4 7.0 7.3 8.7 9.2 41.1

 Rapeseed 4.6 4.1 3.9 4.7 5.2 3.5 11.3

 Peanut 2.3 2.0 2.0 2.2 2.2 (0.8) (4.0)

 Cottonseed 1.3 1.6 1.6 1.6 1.5 3.0 10.9

Meals 

 Soybean 27.3 28.5 31.3 32.5 38.6 9.2 41.4

 Rapeseed 8.2 7.2 6.9 8.3 9.1 3.5 11.3

 Cottonseed 4.0 4.7 4.9 4.8 4.4 2.9 10.2

 Peanut 2.8 2.6 2.6 2.8 2.8 (0.3) (2.0)

Horticulture 

 Vegetables 564.5 539.5 564.5 592.4 (b

) 1.7 4.9

 Fruit 161.2 172.4 181.4 192.2 (b

) 6.0 19.2

 Tubers 34.7 27.0 28.1 29.8 (b

) (4.0) (14.1)

 Citrus fruit 15.9 17.9 20.6 23.3 (b

) 13.6 46.4

 Beans 21.6 21.0 17.2 20.4 (b

) (0.7) (5.3)

Fresh fruit 

 Apples 20.4 26.1 24.8 29.8 32.0 12.6 56.9

 Pears 11.3 12.0 12.9 13.5 13.8 5.1 21.9

 Tangerines/mandarins 8.1 9.0 11.0 12.7 13.3 13.5 65.2

 Peaches and nectarines 7.5 8.2 9.0 9.6 9.8 6.9 30.6

 Bananas 6.5 6.9 7.8 7.8 (b

) 6.4 20.2

 Oranges 4.5 4.8 5.5 6.0 6.4 9.3 42.7

 Grapes 4.0 4.6 4.6 5.0 5.6 8.9 40.0

 Grapefruit 1.9 2.0 2.2 2.5 2.9 11.7 55.3

Processed fruit 

 Apple juice, concentrated 0.5 1.0 1.2 0.6 (b

) 18.0 11.1

 Peaches, cannedc

 0.2 0.2 0.3 0.4 0.3 13.9 61.8

 Raisins 0.1 0.1 0.2 0.1 0.2 10.0 42.9

 Pears, cannedc

 0.1 0.1 0.1 0.1 0.1 12.4 54.0

Meat 

 Porkd

 45.6 46.5 42.9 46.2 48.9 2.0 7.3

 Poultry (broiler) 10.2 10.4 11.3 11.8 12.1 4.4 18.6

 Beef and veald

 5.7 5.8 6.1 6.1 5.8 0.5 1.5

See footnotes at end of table. 
4-7

TABLE 4.2 China: National agricultural production, 2005/06–09/10—Continued

Commodity 2005/06 2006/07 2007/08 2008/09 2009/10 

Annual 

growth

Growth 

2005/06–

09/10a

 Million metric tons (mt) Percent 

Dairy 

 Fluid milk 28.6 33.0 36.3 35.5 29.6 1.6 3.4

 Whole milk powder 0.9 1.0 1.2 1.1 1.0 2.1 6.4

 Nonfat dry milk 0.1 0.1 0.1 0.1 0.1 (2.4) (10.0)

Other 

 Sugar cane 86.6 99.8 113.0 124.2 (b

) 12.8 43.3

 Sugar beets 7.9 7.5 8.9 10.0 (b

) 8.9 27.4

 Sugar, centrifugal 9.8 9.4 12.9 15.9 13.3 9.9 35.5

 Cottone

 28.4 35.5 37.0 36.7 32.0 3.9 12.7

 Walnuts, inshell basis 0.4 0.4 0.5 0.5 0.6 9.6 44.3

Sources: USDA, FAS, PSD Online (accessed May 20, 2010, and October 4, 2010); USDA, ERS, China Agricultural 

and Economic Data: National Data; ISI Emerging Markets, CEIC database. 

Note: Parenthesis ( ) indicates a negative number. 

a

Growth rates are for 2005/06–2009/10 or until latest year available. bNot available. 

c

Net weight. 

d

Carcass weight equivalent. e1,000 480 lb. bales. 

use during this period.22 In the case of rice, use of GM seeds helped increase yields and 

production. Even though China did not approve the use of GM rice seed until 2009, it has 

been planted in a number of provinces since 2004.23 Of all the grains, the production of 

wheat increased the most between 2005/06 and 2009/10. Because of better crop 

management, wheat yields reached a 10-year high in 2008/09;24 however, in 2009/10, 

yields dropped for both wheat25 and corn because of a drought in the northern part of the 

country.26

Recent production trends in grains are heavily influenced by government support 

programs (see the section of China’s agricultural policies later in this chapter).27 In the 

Eleventh Five-Year Plan (covering 2006–10),28 the Chinese government set a goal of 

maintaining grain production sufficient to supply 95 percent of domestic needs. 

Consequently, the government supported grain production between 2005/06 and 2009/10, 

 22 Beckman and Junyang, China: Grain and Feed; Annual 2010, March 1, 2010, 7. 23 Resurreccion, “China ‘Bt’ Rice OK to Boost Supply,” March 2, 2010; Qinghui, “China’s GM Gamble: 

Seeds of Change,” May 5, 2010, 15. 24 USDA, FAS, China: Grains and Feed; Annual 2009, March 3, 2009, 3. 25 While wheat production for MY 2009/10 is reported by USDA in PSD Online as 115 million metric 

tons (mt), USDA officials in China estimate that wheat production for that crop year was only 106 million mt 

due largely to poor weather. USDA, FAS, China: Grain and Feed; Annual 2010, March 1, 2010, 3. 26 USDA, FAS, China: Citrus; Annual 2007, November 29, 2007, 3; USDA, FAS, China: Grain and 

Feed; Annual 2010, March 1, 2010, 2; USDA, FAS, China: Agricultural Situation; Oilseed Situation Update, 

October 23, 2009, 2. 27 Government support programs for agricultural production in China, including minimum guaranteed 

purchase prices, direct payments for certain commodities based on cultivated area, and subsidies for inputs 

such as fertilizers, seeds, and investments in machinery, are discussed in detail below. 28 USDA, FAS, China: Grain and Feed; Annual 2010, March 1, 2010, 2. 
4-8

making it profitable enough to entice farmers to produce grains instead of such other 

products as fruit and vegetables, which generally generate higher returns.29

 

Oilseeds and Products 

Chinese soybean production fell from 16.4 million metric tons in 2005/06 to 14.7 million 

metric tons in 2009/10, a drop of over 10 percent. The decline in production resulted 

from fewer hectares planted to soybeans. 30 While soybeans enjoy some government 

support, 31 it is not as extensive as for grain production, suggesting that the government 

has chosen to allow most domestic soybean demand to be met through imports.32 By 

2009/10 domestic soybeans made up less than 20 percent of total domestic consumption, 

with the remainder furnished through imports.33 

Chinese production of soybean oil and meal34 grew 9 percent annually between 2005/06 

and 2009/10 in response to rising demand for animal feed by China’s growing livestock 

sector.35 This growth could not have occurred without increased imports of soybeans.36

Currently, the poultry industry uses the largest amount of commercial feed (derived from 

both corn and soy), but soybean meal is also used in the pork and aquaculture 

industries.37 Increased soybean oil production has met China’s rapidly rising demand for 

edible oils, accounting for just under one-half of all Chinese production of these 

products.38 

Horticulture 

During 2005/06–2009/10, rising per capita income generated increased demand for 

horticultural products, translating into higher producer prices and production; Chinese 

production of fruits and vegetables increased more than that of most other commodities, 

especially citrus fruit and apples, which increased by around 50 percent. Production of 

citrus fruit began to rise in 2007 because trees planted in an orchard expansion period 

beginning in 2002 started to yield fruit.39 At the same time, the quality of citrus fruits 

improved because of better field management and increased use of pesticides, fertilizer, 

and other inputs. This was at least partly attributable to the positive influence of food 

processors, who provided farmers with chemicals and technologies to ensure the quality 

 29 USDA, FAS, China: Grain and Feed; Annual 2010, March 1, 2010, 3; USDA, FAS, China’s Rising 

Fruit and Vegetable Exports, February 2006, 11. 30 USDA, FAS, China: Oilseeds and Products; Annual; Part 1 of 2, March 1, 2008, 4; USDA, FAS, 

China: Oilseeds and Products; Annual; Part 1 of 2, April 15, 2009, 4–5. Official government statistics show 

a decline of 6 percent in soybean sown area between 2005 and 2008. ISI Emerging Markets, CEIC database. 31 The Chinese government provides some support for soybean farmers in the form of technical 

assistance, purchases of soybeans at a floor price for state reserves, and a subsidy for crushers to purchase 

domestic soybeans. 32 USDA, FAS, China: Oilseeds and Products; Annual; Part 1 of 2, April 15, 2009, 7. 33 USDA, FAS, PSD Online (accessed November 4, 2010). 

34 Soybean meal and oil are both products produced from crushing soybeans so increased production of 

one leads to a rise in production of the other. U.S. soybeans are favorable for producing oil because they have 

a higher oil content, between 19 and 21 percent, than Chinese soybeans, which average 16 percent. Industry 

official, interview by Commission staff, Beijing, September 6, 2010. 35 Industry official, interview by Commission staff, Shanghai, September 13, 2010. 36 For China to grow enough soybeans to replace its imports, it would need to devote 26 million ha, or 

approximately one-fifth of all crop land, to soybean production. Gale, “China’s Future,” February 19, 2010. 37 USDA, FAS, China: Oilseeds and Products; Annual: Part 1 of 2, March 1, 2008, 13; USDA, FAS, 

China Oilseeds and Products; Annual: Part 1 of 2, April 15, 2009, 13. 38 USDA, FAS, China: Oilseeds and Products; Annual: Part 1 of 2, April 15, 2009, 14. 39 USDA, FAS, China: Citrus; Annual 2007, November 29, 2007, 3. 
4-9

and safety of fruit they process. 40 Among deciduous fruits, apples had the strongest 

growth, as farmers responded to high apple prices and increased demand for fruit and 

juicing apples by increasing apple acreage between 2004 and 2008.41 

 

Meats 

Pork is the most heavily produced and consumed meat in China. However, production 

has fluctuated, increasing between 2005/06 and 2006/07, but declining 8 percent in 

2007/08 following an outbreak of the deadly porcine reproductive and respiratory 

syndrome, commonly called blue ear disease. Pork production fell because deaths from 

blue ear42 resulted in fewer pigs being slaughtered, and because animals were sent to 

market early, thereby lowering average slaughter weights. 43 After the outbreak, 

production rebounded as the government provided price supports and subsidies to 

farmers wishing to rebuild their sow herds.44 Additionally, production was bolstered by 

an increase in the number of larger-scale hog farms (i.e., 50 head or more), because larger 

producers are able to buy better stock, have better disease management techniques, and 

ensure more predictable returns by entering into production contracts with slaughter 

facilities.45 

The outbreak of blue ear in pigs gave a boost to poultry production, at least in the short 

run, as Chinese consumers substituted poultry for pork. Broiler production had the 

highest growth (19 percent) of any meat between 2005/06 and 2006/07, both because of 

its affordability compared to other meats and because of its popularity with food service 

firms, small restaurants, and popular quick-serve restaurants like KFC and McDonald’s.46

Dairy 

For most of 2005/06–07/08, milk production grew rapidly in response to several factors: 

strong dairy demand, especially among wealthy urban consumers;47 increased foreign 

direct investment in the dairy industry; and better coordination of supply chains by large 

retailers.48 This growth occurred in spite of high feed costs and a lack of cold storage.49 

Starting in 2008, food safety scandals shook consumer confidence in Chinese dairy 

products, depressing demand and leading to a drop in domestic production. The first 

scandal involved illness and infant deaths from milk tainted with melamine, which was 

 40 USDA, FAS, China: Citrus; Annual 2007, November 29, 2007, 3–4; USDA, FAS, China: Citrus; 

Annual 2008, December 1, 2008. 41 It typically takes about four years for new apple trees to bear fruit. USDA, FAS, China: Fresh 

Deciduous Fruit; Annual 2006, September 22, 2006, 3–4; USDA, FAS, China Fresh Deciduous Annual, 

November 15, 2007, 4–5; USDA, FAS, China Fresh Deciduous Fruit; Annual, November 15, 2008, 3–4. 42 Sow stocks and piglet crops declined an estimated 5 percent and 7 percent, respectively, in 2007 due to 

the disease outbreak. USDA, FAS, China: Livestock and Products; Semi-Annual Report 2007, March 1, 2008, 

13. 43 USDA, FAS, China: Livestock and Products; Semi-Annual Report 2007, March 1, 2008, 13. 44 USDA, FAS, China: Livestock and Products; Semi-Annual Report 2009, March 9, 2009, 5; USDA, 

FAS, China: Livestock and Products; Semi-Annual Report 2009, September 15, 2009, 4. 45 USDA, FAS, China: Livestock and Products; Semi-Annual Report 2009, September 14, 2009, 4–5. 46 USDA, FAS, China: Poultry and Products Annual, September 16, 2009; USDA, FAS, China: Poultry 

and Products; Semi-Annual 2010, April 14, 2010. 47 Fuller, Beghin, and Rozelle, “Consumption of Dairy Products in Urban China,” November 29, 2006, 

2–3. 48 Ibid., 2. 

49 USDA, FAS, China: Dairy and Products; Annual Report 2007, October 12, 2007, 3–4. 
4-10

used to make infant formula.50 Incidents of tainted milk continued to occur, including 

further findings of melamine and other dangerous chemicals in milk between 2009 and 

2011.51 In response to the poor publicity and because of a lack of qualified inspectors, the 

government closed a number of small milk collection points so it could improve 

inspection at higher-volume ones. Given that the average Chinese dairy herd is only 

about five cows, many farmers who lost their local collection points found it 

uneconomical to travel longer distances to deliver their milk.52 As a result, many farmers 

exited commercial dairy production, reducing China’s dairy production capacity and 

triggering a structural market deficit, meaning that domestic production of dairy products 

will be unable to meet Chinese demand in coming years.53

Cotton 

Textile industry demand drove changes in Chinese cotton production during the five-year 

period. Until late 2008, rising domestic and global demand for textiles and apparel 

increased the demand for cotton by Chinese manufacturers. This boosted prices for cotton 

compared to alternative crops (such as grains and oilseeds), and farmers responded by 

increasing production.54 However, global demand for textiles and apparel fell because of 

the global economic crisis beginning at the end of 2008,55 which lowered the demand for 

cotton. As a result, by 2008/09, farmers’ returns from cotton production dropped between 

40 and 60 percent, and farmers responded by reducing planted area in 2009/10.56 This 

reduction was partially offset by higher yields as Bt cotton became more widely used in 

many cotton-growing provinces.57

China’s Agricultural Policies Related to Production 

Introduction 

China’s support for the farm sector has grown significantly since 2004, when central 

government policymakers decided that rural development would be a key objective of the 

Eleventh Five-Year Plan (2006–10).58 Similar to the decision to enshrine private property 

rights in the constitution in 2004, encouraging rural development is a significant shift in 

economic policy for China (box 4.3). In the past, agriculture was taxed in order to fund 

investments and job creation in industrial sectors and urban areas in China’s coastal 

 50 Melamine is an industrial chemical used to make milk appear to have a higher protein content in 

laboratory tests. 51 Gifford, “Food Fears Persist In China 2 Years After Milk Scare,” October 26, 2010; BBC, “Timeline: 

China Milk Scandal,” January 25, 2010; Wee and Mao, “China Arrests 96 Over Tainted Milk,” January 13, 

2011. 52 Industry official, interview by Commission staff, Shanghai, September 14, 2010. 53 Dairy Markets, “Rabobank Warns of Tighter Dairy Markets Next Year,” November 25, 2010. 54 USDA, FAS, China: Cotton and Products; Annual 2007, May 1, 2007, 3, 6; USDA, FAS, China: 

Cotton and Products Annual 2008, May 23, 2008, 7; USDA, FAS, China: Cotton and Products; Annual 2009, 

April 15, 2009, 3, 6. 55 USDA, FAS, China: Cotton and Products; Annual 2007, May 1, 2007, 3; USDA, FAS, China: Cotton 

and Products; Annual 2009, April 15, 2009, 3. 56 USDA, FAS, China: Cotton and Products; Annual 2009, April 15, 2009, 3. 57 USDA, FAS, China: Cotton and Products; Annual 2009, May 1, 2007, 5; USDA, FAS, China Cotton 

and Products; Annual 2009, May 23, 2008, 6; USDA, FAS, China: Cotton and Products; Annual 2009, 

April 15, 2009, 5–6. 58 The Eleventh Five-Year Plan, as translated, describes the rural development goals as (1) developing 

modern agriculture, (2) increasing farmers’ incomes, and (3) improving rural conditions. World Bank, “MidTerm Evaluation of China’s Eleventh Five Year Plan,” December 18, 2008, 7–8. 
4-11

BOX 4.3 Chinese Property Use Rights Are Changing 

Immediately after the Communist Revolution in 1949, peasants were granted full ownership of land as a way to break 

up large tracts held by wealthy landholders. But as China’s Communist system became more entrenched during the 

1950s and 1960s, farmers lost individual ownership rights to forced agricultural collectivization. Then, with the advent 

of the Reform Period, the government implemented the “household production responsibility system.” This gave 

farmers “use rights” (temporary ownership and decision making) over certain pieces of land for short periods, with the 

goal of encouraging higher yields in food production. a The central government passed a series of laws that further 

strengthened land use rights for farmers by establishing lease periods.b These systems were unevenly implemented 

by provincial and local governments, reflecting local preferences and party officials’ attempts to balance the needs of 

farmer equality with productivity criteria. In 2002, China’s Rural Land Contracting Law (2002 Land Law) more clearly 

specified land use rights for farmers and assured the use of 30-year land use contracts.c

In 2004, the central government enshrined the concept of private ownership of real property in China’s constitution. 

The constitution now distinguishes between land, which can only be owned by the state, and buildings and fixtures 

located on land, which can be privately owned. In 2007 China adopted a new Property Law which supersedes, but 

does not repeal, the 2002 Land Law. The 2007 Property Law clarified, where the constitution did not, that buildings 

and fixtures on land are owned separately from the land on which they sit.d

_____________ 

a

 Promar International, The Chinese Potato Industry in Transition, 2007, 10. b

 In 1984, lease periods were set at 15 years. In 1993 30-year leases were permitted. c

 Promar International, The Chinese Potato Industry in Transition, 2007, 10. d

 Dickinson, “China Real Estate Laws, Part I,” n.d. 

region. But efforts to promote rural development by shrinking the gap between urban and 

rural per capita incomes and investing in agricultural infrastructure have caused 

government funds to flow in the opposite direction—away from fast-growing urban areas 

and back to the farms. China’s economic growth and large foreign currency reserves give 

the central government significant capacity to meet its policy objectives. Government 

programs for agriculture can be largely subdivided into four categories: direct payments, 

price support programs, agricultural infrastructure, and regulatory reforms (e.g., food 

safety and standards). With the exception of regulatory reforms, all of these programs are 

intended to boost farmers’ incomes directly or lower the cost of production. 

According to the Organisation for Economic Co-operation and Development (OECD), 

Chinese government59 support for agriculture is low compared to the support given by 

developed countries such as the United States, South Korea, Japan, Canada, and the 

European Union. However, it is in line with that of rapidly growing economies such as 

Brazil, Mexico, Russia, and South Africa.60 Moreover, China’s share of general services 

in total agricultural support is very high relative to the support programs in other 

countries, mostly due to China’s large investments in modern research and extension 

services, food safety agencies, and agricultural price information services. 

Understanding China’s approach to implementing agricultural policies is important in 

discerning why government funding of the farm sector varies significantly from province 

to province and why Chinese agricultural policies often lack transparency. Particularly 

 59 In this report, the term “Chinese government” will denote the Chinese central government, unless 

otherwise indicated. 60 As measured by the OECD’s Producer Support Estimate (PSE), the amount of support provided to 

Chinese farmers has gradually risen since the 1990s to 8.6 percent of gross farm receipts in 2007, the latest 

year for which Chinese data are available. OECD, Agricultural Policies in Emerging Economies: Highlights, 

2009, 9. 
4-12

important is the fact that provincial and local governments have significant autonomy in 

implementing agricultural programs and allocating funds.61 Regulations to protect farmer 

or consumer rights, and to ensure fairness in the marketplace, are often interpreted 

differently by different provincial and local governments, or simply ignored. These 

circumstances make it difficult for foreign companies to produce, trade, and sell in 

China’s agricultural sector. 62 Local government autonomy also calls into question 

whether the programs are effective in achieving central government objectives. The 

central government has been accused of having too little power to enforce its regulations; 

this is often observed in a lack of enforcement of water, pollution, and food safety 

regulations.63 Table 4.3 summarizes selected Chinese agricultural policies. 

China’s Current Policy Objectives Related to Agriculture 

As noted at the beginning of the chapter, self-sufficiency in grain production, raising 

farmers’ incomes, and rural development have been major policy objectives of China’s 

government in recent years.64 For three consecutive years, 2004–06, “No. 1 Documents,” 

which are the top-priority documents jointly adopted each year by the Central Committee 

of the Communist Party and the central government, concentrated on agriculture and 

rural development. The documents for 2004 focused on “boosting growth in farmers’ 

income,” for 2005 on “strengthening comprehensive production capacity of agriculture,” 

and for 2006 on the construction of the “new socialist countryside.” All of these policy 

objectives were incorporated into the Eleventh Five-Year Plan for 2006–10 (box 4.4). 

The Chinese government has also retained its long-term self-sufficiency objective for 

food grains. According to the Mid-Long-Term National Grain Security Plan (2008–20), 

issued in November 2008, China’s agricultural sector will maintain its grain self 

sufficiency rate at above 95 percent through 2020. The Mid-Long-Term Plan also calls 

for the annual sown area for grains to be set above 100 million hectares and for an 

increase in average grain yields from 4.74 tons/hectare in 2008 to 5.25 tons/hectare in 

2020.65 

In the Eleventh Five-Year Plan, a full set of implementing measures were designed to 

meet each of China’s policy objectives in agriculture (box 4.5). Central government funds 

were budgeted for rural infrastructure (roads, electricity and water supply, water 

conservancy, communication, rural schools and clinics, and sanitation systems), 

including 1.2 million kilometers of roads constructed or renovated by 2010. Rural 

incomes were targeted for expansion by encouraging the development of village and 

township enterprises, speeding up the migration of rural labor to urban areas (which 

increases rural incomes as rural labor supplies tighten), and improving capacity for grain 

production. Specific goals to be achieved by 2010 included grain output of 500 million 

metric tons (including soybeans).66 For this purpose, the government was to enhance the

 61 Lieberthal, “China’s Governing System and Its Impact on Environmental Policy Implementation,” 4–5. 62 Industry official, interview by Commission staff, Hong Kong, September 20, 2010. 63 Academics, interviews by Commission staff, Beijing, China, September 7, 2010; Promar International, 

The Chinese Potato Industry in Transition, 123. 64 OECD, Agricultural Policies in Non-OECD Countries, 2007, 71. 65 Grain is defined in this security plan to include wheat, rice, corn, and tubers such as potatoes, but not 

soybeans. USDA, FAS, China: Grain and Feed; Annual 2009, March 3, 2009, 13. 66 USDA, FAS, China: Grain and Feed; Annual 2010, March 1, 2010, 6. 
4-13

TABLE 4.3 China: Selected central government funding and regulations for agricultural production 

Policy Policy description Policy effect/goal Impact on U.S. exports 

Elimination of agricultural 

taxes 

In 2006, a wide range of formal 

and informal taxes, charges, 

and fees charged to farmers 

were eliminated at the national 

level. 

Lowers the cost of production 

for farmers and increases 

their incomes. 

Chinese farm products 

are more competitive with 

U.S. exports to China. 

Exemption from the 

value-added tax 

(VAT) for farmers 

For domestic production, the 

policy removes a tax of 13 

percent on primary agriculture 

products and 17 percent on 

processed food. 

Farmers benefit from lower 

taxes and higher demand for 

their goods. Purchasers 

benefit through lower prices. 

Imports of agricultural 

goods are still charged 

the VAT, resulting in a 

higher tax burden on 

imports than on similar 

goods produced in 

China. 

Minimum purchase prices Sets minimum prices for certain 

staple crops, primarily grains. 

To the extent that Chinese 

domestic prices are raised by 

the minimum purchase 

prices, they encourage 

farmers to produce higher 

volumes of those staple 

crops. 

If minimum purchase 

prices are set above the 

world price, exports to 

China from all countries 

(including the U.S.) may 

be encouraged, absent 

trade barriers. 

Area payments to grain 

producers and other direct 

payments (except input 

subsidies) 

Area payments for grains 

(wheat, corn, and rice) and 

other government payments for 

improved dairy breeds, hog 

breeding farms, large poultry 

farms, and insurance 

subsidies. 

Lowers the cost of production 

for farmers and increases 

their income. Payments for 

improved breeds or 

production efficiency also 

may encourage higher yields. 

Imports are less 

competitive relative to 

domestic production of 

targeted products, and 

lower prices in China 

discourage imports. 

Farm input subsidies 

(fuel, fertilizers, electricity, 

seeds) 

These policies each differ in 

their implementation. See 

descriptions in the main text of 

this report. 

Lowers the cost of production 

for farmers and increases 

their income. Encourages 

farmers to produce more. 

Keeps Chinese food prices 

low. 

Imports are less 

competitive than 

domestic production, and 

lower prices in China 

discourage imports. 

Water policies Surface water: Managed by the 

Ministry of Water Resources 

and its local water resource 

offices, which oversee a 

network of irrigation districts.

Surface water prices are set by 

local governments using 

national guidelines. 

Groundwater: At the national 

level, there are few water 

regulations, and local 

government regulations are 

weak and not enforced.

Water prices often fail to 

cover operating costs, leaving 

little revenue for water 

infrastructure improvements. 

Lowers the cost of production 

for farmers and increases 

their incomes. 

Chinese farm products 

are more competitive 

with U.S. imports. 

Farmer incomes also 

rise, but farmers buy few 

imported goods. 

Banking reforms and 

preferential lending 

practices 

Since 2003, the central 

government has provided 

cash infusions to insolvent 

rural banks and credit unions. 

Local and provincial Chinese 

officials are also experimenting with a variety of 

programs to drive higher 

production levels in the farm 

sector. Pilot projects include 

expanding the number of rural 

lenders, microlending 

schemes, and allowing more 

flexibility in setting interest 

rates. 

Lowers production costs, 

increases production. 

Lowers cost of domestic 

production relative to 

U.S. production costs. 
4-14

TABLE 4.3 China: Selected central government funding and regulations for agricultural production—Continued

Policy Policy description Policy effect/goal Impact on US exports 

Agricultural infrastructure These policies include funding 

roads, telecommunications, 

power systems, and irrigation 

systems that directly impact 

agricultural production costs. 

In addition, they include 

projects which indirectly 

improve farm productivity, such 

as education systems, medical 

infrastructure, information 

networks, and agricultural 

research projects. 

Promotes agricultural productivity 

in an attempt to shrink the income 

gap between rural and urban 

Chinese consumers. 

Impact on U.S. exports 

undetermined, 

particularly in the long 

term. Lowers cost of 

domestic production and 

delivery relative to U.S. 

agricultural production 

and delivery, while also 

boosting income for 

rural regions of China. 

Inspections and Food 

Safety 

2009 Food Safety Law 

combined and expanded 

several of the central 

government’s laws together 

into one comprehensive law. 

Establishes and enforces food 

safety regulations for certain 

products. 

In some cases, 

implementation places 

burdensome 

requirements on U.S. 

exporters (e.g., 

labeling); U.S. exports 

could benefit from 

uniform, predictable 

enforcement but also 

suffer when enforcement 

is tighter for imports than 

for domestic Chinese 

production. 

Biofuels 

(ethanol and biodiesel) 

Ethanol producers receive a 

refund of the VAT, exemption 

from a 5 percent consumption 

tax, a profit guarantee per 

metric ton, preferential supplies 

of feedstocks, and 

compensation for transportation 

or sales losses. 

Biodiesel producers receive 

funding for new production and 

use of alternative feedstocks. 

Promotes China’s energy 

independence. 

Encourages U.S. 

exports to China for 

certain feedstocks. 

Food reserves An extensive system of 

government-funded storage for 

grains, cotton, edible oils, and 

pork. 

Intended to prevent mass 

starvation among China’s 

populace and promote price 

stability. 

Limited impact on U.S. 

exports because reserve 

volumes are typically 

domestically produced 

and because of trade 

policy mechanisms. 

Foreign direct investment 

(FDI) regulations 

2007 Foreign Investment 

Catalog. 

China generally encourages FDI 

that enhances productive capacity 

or technology aimed at reducing 

pollution. Restrictions apply to 

conventional seed development, 

distribution and retail sales of 

agricultural production, oilseed 

processing, biofuels production, 

and some beverage production. 

The catalog prohibits FDI in the 

development and production of 

genetically modified plants and 

animals. 

Generally encourages 

Chinese domestic 

production and indigenous 

innovation; discourages 

U.S. exports and U.S. FDI.

Source: Compiled by Commission staff. 
4-15

BOX 4.4 The Chinese Government’s Eleventh Five-Year Plan Increases Funding in Rural Areas 

China’s eleventh five-year plan, for the years 2006 through 2010, has the stated objective of creating a more 

harmonious socialist countryside, which includes advancing the economic welfare of the rural population. Income 

inequality between urban and rural areas is viewed by the government as a growing problem in Chinese society 

because of the concern that it will spark social unrest.a

 The Chinese government seeks to raise the welfare of rural 

provinces, move to a more service-oriented economy, and conserve valuable environmental resources.b

 

The plan contains a number of quantitative benchmarks,c several of which pertain to the rural population and 

agriculture: 

Benchmark 2005 level 2010 goal

Efficiency coefficient of irrigation water 0.45 0.5

Coverage of new rural cooperative health system (percent) 75.7 80.0

Per capita net income rural households (RMB) 3,255 4,150

Source: World Bank, Information from Mid-Term Evaluation, December 18, 2008. 

The stated goal of the Chinese government is to develop the countryside and close the rural-urban income gap while 

still maintaining 95 percent self-sufficiency in grains.d

 According to a midterm review conducted by the World Bank, 

China is on track to meet its benchmarks, primarily because of increased funding to rural areas. For example, in 

2006, Premier Wen Jiabao promised a 14 percent increase from 2005 funding for rural areas, leading to a total 

expenditure of RMB 339.7 billion ($45.3 billion) in that year.e

 The Chinese government, via funding to provincial 

governments, is improving agricultural productivity through increased extension services and technological 

investment.f Over 90 percent of agricultural research funding is publicly financed,g accounting for approximately $2.6 

billion in 2005.h

 Agricultural machinery per 100 square kilometer of agricultural land increased from 84 in 2004 to 147 

in 2007.i 

In 2005, China’s central treasury spent RMB 297.5 billion ($39.6 billion) on agriculture and rural development. Much 

of the funding supported rural taxation reform (RMB 66.2 billion or $8.8 billion) and improving rural infrastructure 

(RMB 98.9 billion or $13.2 billion), while smaller amounts went to compulsory education, direct grain subsidies, and 

general poverty reduction.j

 By 2008, the Chinese government reported spending nearly $87 billion on rural programs, 

a 37-percent increase from 2007 and more than double 2005 spending levels. 

_____________ 

a BBC, “China to Tackle Rural Problems,” February 22, 2006. 

b Fan, “China’s Eleventh Five-Year Plan (2006–10),” 2006, 709–710. 

c World Bank, Mid-Term Evaluation of China’s 11th Five Year Plan, 2008, 11, 29. d World Bank, Mid-Term Evaluation of China’s 11th Five Year Plan, 2008, 52, 63; Lohmar et al., China’s Ongoing 

Agricultural Modernization, April 2009, 19–20. e Xinhua News Agency, “Wen Hears Farmers’ Concerns on 11th Five-Year Plan,” March 20, 2006. f World Bank, Mid-Term Evaluation of China’s 11th Five Year Plan, 2008, 54, 71. 

g Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009, 30. h FAO, How to Feed the World 2050, October 12–13, 2009, 1. i World Bank, WDI Online Database. The World Bank defines agricultural machinery per 100 sq. km. of 

agricultural land as the number of wheel and crawler tractors (excluding garden tractors) in use in agriculture at the 

end of the calendar year. i Xinhua News Agency, “Investment in Farming Increased to $37 Bln,” June 27, 2006. 
4-16

direct subsidy policies for grain producers and reinforce the construction of farmland 

water conservancy, drainage, and irrigation systems.67 Many of these measures will be 

described in further detail later in this chapter. 

China’s Support for Agriculture Relative to Other Countries 

As noted, China’s government support for agriculture is low compared to that of 

developed countries, such as the United States and European Union, but in line with that 

of other rapidly growing economies. As measured by the OECD’s PSE,68 the amount of 

support provided to Chinese farmers was low (and sometimes negative) during the 1990s, 

but gradually rose to 9 percent in 2007, the latest year for which Chinese data are 

available.69 Compared with other countries at a similar level of development, including 

Brazil, Mexico, Russia, and South Africa, China’s support for farmers falls in the middle 

 67 OECD, Agricultural Policies in Non-OECD Countries, 2007, 72. 68 PSE is defined as the estimated monetary value of transfers from consumers and taxpayers to farmers, 

expressed as a percentage of gross farm receipts (defined as the value of total farm production at farmgate 

prices), plus budgetary support. OECD, Agricultural Policies in Emerging Economics: Highlights, 2009, 9. 69 OECD, Agricultural Policies in Emerging Economics: Highlights, 2009, 9. 

BOX 4.5 China’s Governing Structure Affects Agricultural Policy Implementation 

China’s political system is multilayered. The central government covers the entire country, while subnational 

governments include 31 provinces, more than 600 hundred cities, over 2,000 counties, nearly 100,000 townships, 

and nearly 1 million villages. For the most part, every government office in China has been assigned a bureaucratic 

rank and any territorial level of government (e.g., a province) contains offices with several different ranks. At the 

national level, the State Council (China’s cabinet) is at the apex and commissions, such as the State Planning 

Commission and the Food Safety Commission, are just below the State Council in rank. Ministries such as the 

Ministry of Agriculture or the Ministry of Health are one step below Commissions, and bureaus within ministries are a 

bureaucratic rank below ministries.a

A key feature of the Chinese system is that governmental units are unable to issue orders binding units of the same 

rank. The result is that ministries cannot issue binding orders on provinces because they hold an equivalent 

bureaucratic rank. This is operationally quite different from the governmental structure that binds the federal and state 

governments in the United States. China’s system forces participants into consensus to operate effectively.b

China’s central government has no interagency policy and administrative coordination process such as that in the 

United States. The result is that licensing paperwork and other administrative requirements are often duplicative. All 

companies based in China, foreign or domestic, must build relationships with each Chinese government agency that 

has regulatory authority over the company’s operations. For example, a U.S.-owned food processing company which 

imports certain food items and also sources domestically in China needs relationships with perhaps dozens of 

agencies, including the Administration of Quality Supervision, Inspection, and Quarantine, Ministry of Commerce, 

Ministry of Health, Ministry of Agriculture, Customs, and the State Food and Drug Administration.c

In the Chinese political system, it is common for policymakers to put in place implementation procedures and 

practical enforcement mechanisms only after a regulation officially takes effect. For example, a regulation may 

require that products be tested at approved facilities before any facilities have been approved by the Chinese 

government to do such testing.d

 The lack of explicit implementation details, or administrative transparency, can 

hamper foreign companies more than domestic Chinese companies because foreign firms often lack the relationships 

that Chinese companies have with government agencies to receive clarifications in a timely way.e

_____________ 

a Lieberthal, “China’s Governing System and Its Impact on Environmental Policy Implementation,” 3–4. b Ibid. 

c Industry official, interview by Commission staff, Shanghai, China, September 13, 2010. d Owen, “Standards in China: Behind the Headlines,” 42. e Ibid. 
4-17

of the range (table 4.4). China’s PSE reflects changes in the central government’s policy 

priorities from grain self-sufficiency and low consumer prices toward a stronger focus on 

raising farm household incomes.70 

TABLE 4.4 Agricultural producer support estimates for selected countries, 2006–09 (percent of gross farm receipts)

Country 2006 2007 2008 2009

South Korea 59.5 58.3 46.2 51.7

Japan 51.6 46.4 47.5 47.8

EU 29.0 24.1 22.4 23.5

Canada 22.9 18.8 13.0 20.2

Mexico 13.2 12.9 12.0 12.5

Russia 17.5 10.8 (a

) (a)

United States 11.2 10.0 7.9 9.8

China 11.0 8.6 (a) (a)

Australia 4.5 5.0 4.0 2.7

Brazil 6.1 5.0 (a) (a)

South Africa 7.5 3.3 (a

) (a)

Sources: 2010 OECD PSE database; 2009 OECD Factbook, 2009, 227. 

a

Not available. 

Government support to China’s agricultural sector indicates that Chinese policymakers 

are placing a renewed emphasis on the rural economy.71 Indirect support, in the form of 

general services, is very high relative to similar support programs in other countries, due 

largely to investments in agricultural infrastructure. General services include modern 

research and extension services, food safety agencies, and agricultural price information 

services, most of which provide benefits to producers and consumers throughout the 

economy. Compared with direct payments to farmers, general services support is less 

production-distorting to the sector.72

Selected Government Programs Promoting Agriculture in China 

Elimination of Certain Agricultural Taxes 

Until the beginning of the 2000s, Chinese farmers faced a wide range of formal and 

informal taxes, charges, and fees, which varied among provinces. In 2000, officially 

recorded agriculture-related taxes included the animal husbandry tax, a tax on special 

agricultural products, a tax on the use of cultivated land, and a contract tax.73 In total, the 

taxation burden shouldered by farmers in 2000 was estimated to be between RMB 

180 billion ($24 billion) and RMB 220 billion ($29 billion), which was more than 

10 percent of farmers’ net annual income.74 Rural taxation became a major source of 

dissatisfaction among farmers, and many local governments in China’s rural regions 

faced protests in the late 1990s and early 2000s.75

 70 OECD, Agricultural Policies in Emerging Economics: Highlights, 2009, 9. 71 Kwiecinski and von Tongeren, “Quantitative Evaluation of Agricultural Policy Reforms in China,”

July 8–9, 2007, 215–16. 72 Ibid. 

73 In 2000, farmers also paid taxes to the township government amounting to RMB 26.8 billion 

($3.6 billion) and to the village committee totaling RMB 35.2 billion ($4.8 billion), as well as additional fees 

estimated at RMB 90 billion ($12.2 billion). OECD, Agricultural Policies in Non-OECD Countries, 2007, 73. 74 Aubert and Xiande, “‘Peasant Burden’: Taxes and Levies Imposed on Chinese Farmers,” 2002, 160–76. 75 Chen, A Study on China’s County and Township Public Finance, 2007, 20. 
4-18

China’s rural tax reform, implemented by the central government in 2003, lowered the 

tax burden on farmers. The reform began by integrating most agricultural taxes, fees, and 

charges into one tax and then capping the tax at a maximum rate of 8.4 percent of annual 

agricultural output value.76 Then, the central government announced in 2004 that the new 

agricultural tax would be phased out over five years.77 But as the agricultural tax reform 

effort gathered steam, the government announced in March 2005 that reforms should be 

further accelerated, with the goal of phasing out all national farm taxes by 2006. In 2005, 

28 provinces exempted farmers from agricultural taxes, and at the beginning of 2006, the 

central government eliminated all agricultural taxes.78 

Value-Added Tax Exemption for Agricultural Products 

The largest source of revenue for China’s central government is the value-added tax 

(VAT), 79 a tax assessed on the value of products at each transaction point in the 

production and distribution chain.80 China’s State Council Decree No. 538 (Article 2.2.a) 

of 2008 sets the VAT rate for food grains and vegetable oils at 13 percent. Article 2.2.e of 

the decree also states that the VAT rate shall be 13 percent on “other goods prescribed by 

the State Council,” which in principle applies to all agricultural products except certain 

processed foods taxed at 17 percent. 

In fact, farmers selling their products are exempt from the VAT. Article 15 of Decree No. 

538 provides a full exemption from payment of the VAT for “self produced agricultural 

products sold by agricultural producers.”81 Moreover, the Chinese government maintains 

several other VAT exemptions for agricultural products produced domestically, both to 

provide financial assistance to farmers and because it is considered impractical for 

uneducated Chinese farmers to keep track of purchase VAT (the tax charged to 

purchasers) and sales VAT (the tax charged to sellers).82 

 76 Legislative reforms included the removal of the animal slaughter tax and the special agricultural tax on 

all products except tobacco. OECD, Agricultural Policies in Non-OECD Countries, 2007, 74. 77 Lardy, China’s Consumption, July 8–9, 2007, 22. 78 OECD, Agricultural Policies in Non-OECD Countries, 2007, 74. Agricultural taxes are different than 

China’s individual and corporate income taxes, but the latter are rarely paid by farmers. Chinese farms are 

generally operated by individuals and would not be subject to corporate taxes. In any case, under Article 86 

of China’s enterprise tax law, effective on January 1, 2008, Chinese farms which are incorporated and engage 

in crop production, horticulture, livestock rearing, and/or forestry are exempted from corporate income taxes. 

In practice, few farmers classified as individuals are subject to income taxes either; it only applies to those 

with income above a high threshold, which most farmers never attain. Government official, e-mail to 

Commission staff, October 18, 2010; USDA, FAS, China’s Corporate Income Tax Exemption for 

Agricultural Enterprises 2008, January 13, 2009, 4. 79 In 2009, VAT revenues collected from both domestic sources and imports equaled 32.2 percent of total 

government tax revenues. The second and third largest sources of Chinese government revenue in 2009 were 

a corporate income tax (21.2 percent of the total) and the domestic consumption tax (13.2 percent). PRC, 

Ministry of Finance, 2009 Central Financial Revenue Structure. 80 The tax is administered by the State Administration of Taxation, and with the exception of VAT 

collected from imported products, VAT is shared between the central government (75 percent) and local 

governments (25 percent). Hoffman, “China’s VAT System,” August 3, 2009. 81 China’s State Council Decree No. 538 of 2008. State Council Decree No. 134 of January 1, 1994, was 

the first decree to specifically exempt Chinese agricultural producers from payment of the VAT. Subsequent 

decrees and clarifications have confirmed the policy. 82 A Chinese tax collector collects the difference between the “sales VAT” and the “purchase VAT” 

shown on business receipts. USDA, FAS, China: Trade Policy Monitoring, VAT Protections, March 19, 2007, 

3. 
4-19

Exemptions to the VAT for China’s agricultural sector fall into four categories. Based on 

the order they fall in the production chain, they are farm inputs, farm sales, processorimputed VAT, and processor-exempted products.83 The farm inputs exempt from the 

VAT include seeds, pesticides, herbicides, agricultural machinery, and some fertilizers. 

These inputs may add up to as much as one-third of the cost of the crop to the farmer.84

Because all products from agricultural producers85 are sold without paying the VAT, 

buyers (e.g., food processors) of goods from these producers are able to deduct 13 

percent of these inputs’ value when calculating the VAT they charge at the next point of 

sale (processor-imputed VAT). This exemption protects processors, when they source 

domestically produced food inputs, from paying the VAT that farmers are exempted from 

paying and also from double payment of the VAT for certain farm inputs that were not 

VAT-free.86 The practical effect of this policy, which allows buyers to deduct the VAT 

that they did not originally pay, is that domestically produced agricultural products gain a 

cost advantage over competing imported products.87

Sales of domestic feed products are also VAT-free under the “farm sales” rule. These 

products include mixed feed, compound feed, premix feed, feed concentrate, bran, 

distiller's dried grains with solubles, oilseed meal (excluding soybean meal), fishmeal, 

and bone meal. According to this policy, feed mills and oilseed crushers (excluding 

soybean crushers) are VAT exempt as well. All other grain processors, including flour 

mills, starch manufacturers, and distillers, are subject to the VAT on their sales. Crushers 

selling most oil meals, with the exception of soybean meal, are not required to charge the 

VAT or provide a VAT sales receipt. 

Minimum Purchase Price 

Minimum purchase prices, also known as floor prices, are applied to farm-level purchases 

of selected grains in China (table 4.5). The minimum prices were first announced in 2004 

for early indica rice and japonica rice at RMB 1,400 ($187) and RMB 1,500 ($200) per 

metric ton (mt), respectively.88 Coverage was extended to include middle and late indica 

rice in 2005. However, as market prices in both years remained largely above the 

minimum price levels, no government purchases at the floor price were undertaken in 

 83 China’s central government also refunds VAT to ethanol producers, in addition to other tax exemptions, 

compensations, and production incentives. 84 USDA, FAS, China: Trade Policy Monitoring, VAT Protections, March 19, 2007, 3. 85 Agricultural producers are defined as farmers, farm cooperatives, most state trading enterprises (e.g., 

grain storage facilities) that buy from producers and from such processors as feed or flour mills. In addition, 

Chinese companies operating large state farms incorporated as companies are exempt from VAT on 

agricultural products they purchase as raw materials if they are designated by the government as a “dragon 

head enterprise.” As noted earlier in this study, dragon head enterprises are leading-edge companies within 

the agricultural sector in China, and they are eligible for preferential tax treatment, preferential access to 

loans, and participation in official delegations. Companies are nominated by local governments and approved 

at the provincial level; they must have direct contact with farmers and contribute to vertical integration within 

the sector. Profits, market share, taxes paid, and company growth rates are typical criteria evaluated by 

provincial government officials in determining which companies attain dragon head status. Government 

official, e-mail to Commission staff, October 18, 2010; Waldron, Brown, and Longworth, Rural Development 

in China, 2003, 40. 86 USDA, FAS, China: Trade Policy Monitoring, VAT Protections, March 19, 2007, 4. 87 It appears that labor costs are not to be included as deductible in the VAT calculation. If true, this 

would lessen the VAT deduction benefit for purchasers of Chinese domestic agricultural goods. See China’s 

State Decree 538, Article 1. 88 OECD, Agricultural Policies in Non-OECD Countries, 2007, 73. 
4-20

TABLE 4.5 China: Government floor price for grains, 2007–10

Items 2007 2008 2009 2010 

Growth 

2009–10 Purchase period 

 RMB/mt Percent 

Rice 

 Early indica (unmilled) 1,440 1,540 1,800 1,860 3.3 July–September 

 Japonica (unmilled) 1,500 1,640 1,900 2,100 10.5 November–February 

Wheat 

 White wheat 1,440 1,540 1,740 1,800 3.4 May–September 

 Red wheat 1,380 1,440 1,660 1,720 3.6 May–September 

Corn 

 Corn average floor price 1,400 1,500 1,500 (a

) (a) December–April 

Source: USDA, FAS, China, Peoples Republic of: Grain and Feed; Annual 2010, March 1, 2010, 17. 

Note: Floor prices in dollars range from RMB 1,380 ($184) to RMB 2,100 ($280). 

a

Not available. 

2004, and in 2005 the intervention was limited to early indica rice. In 2006, new 

minimum prices were announced and the coverage was further extended to include 

wheat. As wheat market prices slid below the minimum levels, the government 

designated state-owned warehouses in major wheat-producing provinces to buy wheat at 

minimum prices. According to China’s State Grain Administration, wheat purchases 

amounted to 41 million mt through September 2006, which accounted for about 40 

percent of China’s total production in 2006. Intervention purchases of early indica rice 

were much smaller, staying below 4 million mt, compared with total rice production of 

about 181 million mt in 2006.89

In 2009, the provinces covered by the minimum price support program for wheat were 

Heilongjiang, Jilin, Liaoning, Inner Mongolia, Shandong, Hebei, Henan, Anhui, Jiangsu, 

Shanxi, Hunan, Hubei, and Jiangxi. These provinces produce approximately 80 percent 

of China’s commercial sales of wheat. 90 During the previous three years, wheat 

procurement at the floor price averaged about 37 percent of China’s total wheat 

production.91

For corn, the purchase program covers the northeastern provinces, including 

Heilongjiang, Inner Mongolia, Jilin, and Liaoning, in 2009/10. In addition to the floor 

price of $220.50 per mt, the government encourages end users (mainly feed mills) and 

state trading companies in southern China provinces to purchase corn from northeastern 

provinces. For purchases made from December 1, 2009, to April 30, 2010, the central 

government offered a subsidy of $10.30 per mt to traders or feed mills.92

Direct Payments 

Since 2004, the Chinese central government has provided significant direct payments to 

farmers, primarily for growing grains (corn, rice, and wheat).93 In addition to payments 

 89 OECD, Agricultural Policies in Non-OECD Countries, 2007, 73. 90 USDA, FAS, China: Grain and Feed; Annual 2010, March 1, 2010, 17. 91 USDA, FAS, China: Grain and Feed; Annual 2010, March 1, 2010, 18. Other sources estimate that 

between 45 and 69 percent of China’s wheat production was purchased at minimum support prices during 

2006–09. Zhong, “Analysis of Wheat Market in 2009 and Outlook for the Later,” 2009, 5–10. 92 USDA, FAS, China: Grain and Feed; Annual 2010, March 1, 2010, 18. 93 USDA, FAS, China: Grain and Feed; Annual 2010, March 1, 2010, 16; USDA, FAS, China: Grain 

and Feed Annual 2010, March 3, 2009, 13. 
4-21

made based on the area used for grain production, seed subsidies are provided for grains 

(including barley on a trial basis in 2010) and oilseeds (soybeans, peanuts, and rapeseed). 

Payments to offset rising fertilizer and fuel prices were initiated in 2006, expanding 

significantly in 2008 and 2009 (table 4.6).94 By 2009, the scope of government payments 

had widened to include other farm input costs, more government funds for machinery 

purchases and seeds, and targeted payments, which often varied by farm size, for 

breeding and raising dairy cattle and sows.95 For example, to encourage larger-sized hog 

farms (50 or more slaughtered annually), the central and local governments made 

payments of RMB 2.5 billion ($0.3 billion) in 2009 to improve hog-raising conditions.96 

TABLE 4.6 China: Selected government direct support programs, 2005–09 (million $) 

Year Area payments (grains only) Seed subsidy Machinery subsidy Fuel/fertilizer subsidy 

2005 1,941 574 44 0

2006 2,088 603 88 1,838

2007 2,221 979 294 4,059

2008 2,221 1,775 588 9,382

2009 2,221 (a

) 1,471 10,529

Sources: USDA, FAS, China, Grain and Feed Annual 2010, March 1, 2010, 16; USDA, FAS, China, Grain and Feed 

Annual 2010, March 3, 2009, 13. 

Note: In 2007 and 2008, the seed subsidy covered soybeans, rice, wheat, corn, rapeseed, and cotton. In 2009, the 

seed subsidy was expanded to also cover potatoes. In 2010, it was further expanded to cover hulless barley and 

peanuts on a trial basis. Exchange rate: $1 = 6.8 RMB. 

a

Not available. 

In relation to China’s overall agricultural production value, direct payments through 2007 

were estimated to be minor; increases in rural incomes were largely attributed to 

increased product sales and nonfarm income sources. 97 But documented government 

funding more than doubled in size from 2007 to 2009, and by all accounts, has continued 

to grow in 2010. Consequently, the impact of these payments on China’s farm sector is 

increasing significantly, and total payments to Chinese farmers from all levels of 

government are now estimated to be larger than direct national government payments to 

U.S. farmers. 

Area payments to grain producers 

Grain producer payments in China were introduced in 2004, usually at the rate of RMB 

10 ($1.33) per mu of area sown to rice, wheat or corn. In total, RMB 11.6 billion 

($1.5 billion) was paid under this program in that year.98 Total outlays for area payments 

increased from 2005 through 2007, when coverage became nationwide and payment 

amounts were capped by the central government at $2.2 billion (table 4.6). The 

implementation of grain producer payments varies from province to province because 

central government grants are issued to grain risk funds controlled by provincial 

 94 Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009, 27. 95 Gale, Lohmar, and Tuan, “How Tightly Has China Embraced Market Reforms in Agriculture?” 2009, 

34. 96 USDA, FAS, China: Livestock and Products; Semi-Annual 2010, March 2, 2010, 4. 97 OECD, Agricultural Policies in Non-OECD Countries, 2007, 73. 98 To ensure that Chinese farmers benefit, provincial and local governments are required to publicize 

details about the use of the grain risk fund. Penalties are levied for inappropriate uses of payments. OECD, 

Agricultural Policies in Non-OECD Countries, 2007, 73. 
4-22

authorities, which may supplement grain payments with local funds.99 Typically, at least 

half of the grain risk fund is used for direct payments to farmers. 

Input subsidies 

Fuel and fertilizers 

In 2006, the central government started a program intended to partially compensate 

farmers for price increases in fuel, fertilizer, and other agricultural inputs.100 By 2007, the 

comprehensive subsidy on fuel and fertilizer for grain farmers totaled RMB 27.6 billion 

($3.7 billion). According to the Ministry of Finance, the comprehensive subsidy averaged 

about $14.50 per farm household in that year. By 2009, fuel and fertilizer subsidies 

totaled $10.5 billion (table 4.6). 

In the case of fertilizers, government support is part of several separate programs 

targeting fertilizer producers, with cost reductions being passed along to farmers 

purchasing the input. In December 2003, the government issued an electricity subsidy for 

small and large nitrogen fertilizer producers totaling RMB 6.3 billion (approximately 

$0.8 billion) in cost reductions every year. Transportation for fertilizer has been 

subsidized by a total of RMB 5.0 billion (approximately $0.7 billion) every year since 

2003. Since 2004, the Chinese government has given a bank loan subsidy to qualified 

fertilizer distributors who store fertilizer during the winter season. This totaled 

$43.9 million to $73.3 million every year.101

Seeds 

Since 2002, farmers have benefited from subsidies for purchasing improved soybean 

seeds. In 2004 and 2005, this scheme was extended to cover improved seeds of wheat, 

maize, and rice. The budget allocations from the Ministry of Agriculture for this program 

amounted to RMB 2.85 billion ($0.4 billion) in 2004. By 2008, the latest year for which 

data are available, seed rebate payments had increased to $1.8 billion (table 4.6). 

Implemented at the provincial level, the program is intended to lower the cost of 

production and boost farm yields. In some provinces, seed companies are provided the 

funding, and, in turn, make seed available at discounted prices. In other provinces, 

farmers are paid directly to purchase seed, so the subsidy is akin to direct income 

support.102 According to one estimate, farmers who directly receive government seed 

funds only pay about 50 percent of their seed costs out of their own pockets.103

Farm machinery 

To further its goals of modernizing the farm sector and increasing agricultural 

productivity, the central government began paying a small subsidy in 2002 for the 

purchase of farm machinery. The subsidy primarily assisted larger farms with sufficient 

scale to warrant mechanization104 and currently covers between 20 and 40 percent of the 

 99 Farmers Daily, “Nongye Bu Fabu 2010 Nian Qiang Nong Hui Nong Zhengce (Ministry of Agriculture 

Announces 2010 Policies Strengthening Agriculture and Benefiting Farmers),” March 11, 2010. 100 People’s Daily Online, “China Increase Subsidies to Grain Growers,” April 12, 2006. 101 USDA, FAS, China: Fertilizer; Annual 2009, December 14, 2009, 10. 102 Hudson et al., Crop Subsidies in Foreign Countries: Different Paths to Common Goals, April 2009, 

34. 103 Academic, interview by Commission staff, Beijing, China, September 9, 2010. 104 OECD, Agricultural Policies in Non-OECD Countries, 2007, 74. 
4-23

cost of new machinery, depending on the type of machinery and product being 

produced.105 Funds may be paid directly to the farmer, business, or village cooperative 

which bought the machinery or to the machinery dealer. The largest incentives (as a 

percent of total purchase cost) are given for machinery used in harvesting and packing. 

Farm machinery payments have reportedly accounted for significant conversions from 

non-mechanized to mechanized production and packing in the last year.106

Water Policies 

According to China’s National Water Law, as revised in 2002, all property rights to 

surface water and groundwater belong to the state, including the right to use, sell, or 

charge fees.107 Nevertheless, oversight and management of water use is generally poor. 

Surface water is managed by the Ministry of Water Resources and its local offices, which 

oversee a network of irrigation districts. Surface water prices are set by local 

governments using national guidelines, and these prices often fail to cover operating 

costs, leaving little revenue for water infrastructure improvements.108 Farmers typically 

do not pay for surface water by volume, but instead pay a fixed amount based on the area 

they irrigate or for the use of a well.109 China’s water management policies provide little 

incentive to conserve because farmers are charged only a fraction of the water’s value.110

Many farmers use groundwater reservoirs for irrigation in water-scarce areas of China, 

particularly in the north. The National Water Law does not allow groundwater extraction 

if pumping is harmful to the long-term sustainability of groundwater use. But at the 

national level, there are few water regulations that specifically address groundwater 

management, and local government regulations are weak and not enforced, in fact, in 

most regions of China, groundwater resources are almost completely unregulated. 

According to a 2009 survey, less than 10 percent of well owners in areas of northern 

China obtained a required well drilling permit before drilling. In addition, water 

extraction charges were rarely, if ever, imposed on users in these northern China 

communities, and no volume restrictions were imposed on well owners.111 However, 

many agricultural processors, such as companies that process fruits and vegetables, often 

pay the local town for water by the ton and have seen their water charges increase 

significantly over the past few years.112

Any government policies in China that provide better incentives for users to conserve 

water, particularly through higher per volume rates, would almost certainly run counter to 

central government objectives of raising farmers’ incomes and furthering rural 

development. Furthermore, water conservation conflicts with self-sufficiency goals in 

grain production, because grains require significantly more water per hectare than 

alternatives such as livestock and horticulture.113

 105 Academic, interview by Commission staff, Beijing, China, September 9, 2010; industry official, 

interview by Commission staff, Shandong province, China, September 13, 2010. 106 Academic, interview by Commission staff, Beijing, China, September 9, 2010. 107 Wang et al., “Understanding the Water Crisis in Northern China,” March 1, 2009, 148. 108 Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009, 19. 109 Academic, interview by Commission staff, Beijing, China, September 7, 2010. 110 Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009, 19. 111 Wang et al., “Understanding the Water Crisis in Northern China,” March 1, 2009, 148. 112 Industry official, interview by Commission staff, Beijing, China, September 7, 2010. 113 Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009, 19. 
4-24

Banking Reforms and Preferential Lending Practices 

Until the end of the 1990s, preferential loans in agriculture were given mostly to state 

marketing organizations to fund the purchase and storage of certain agricultural products, 

primarily grains. In the 2000s, most of these programs were discontinued, and by 

February 2006, the Agricultural Development Bank of China, the policy bank 

implementing government programs, announced that commercial rates would also apply 

to grain marketing enterprises. 114 But since 2003, reform of China’s rural financial 

system has been a priority for the central government, particularly providing cash 

infusions to insolvent rural banks and credit unions.115 After the start of the Eleventh 

Five-Year Plan in 2006, which reinforced policies focused on rural development, 

preferential rates were applied to loans targeting rural development and poverty 

alleviation. By the end of 2006, rates for rural development loans were just above half the 

commercial rates. 116 However, loan funds were often diverted to supplement subprovincial government budgets or given to industrial enterprises rather than benefiting 

farmers and the rural poor.117

A national survey conducted in 2009 indicated that less than 9 percent of China’s farmers 

had loans from established institutions.118 Rather than secure loans from these groups, 

farmers most often rely on loans from relatives or underground lenders at unsubsidized 

rates.119 Farmers find it difficult to take advantage of government programs to encourage 

lending because under China’s system of state ownership of land, farmers do not 

personally own the land on which they farm. Therefore, few assets are available to secure 

financing for agriculture, and this has restricted the flow of funds for farm investments to 

enhance productivity.120 

For certain agricultural products, the central government continues to intervene with bank 

loan subsidies to assist companies with declining profits or large financial losses. For 

example, the Ministry of Finance reported subsidies of RMB 190 million ($25 million) to 

the nation’s dairy companies in 2010, more than double the RMB 80 million 

($11 million) in subsidies granted to dairy companies in 2009. According to Xinhua news 

reports, the government objective is to help dairy companies stabilize production and 

resume their purchases of raw milk. But the Ministry of Finance also noted that the funds 

encouraged an increase in cattle herds and protected farmers’ interests.121

Given the constraints imposed by the current land tenure laws, local and provincial 

Chinese officials are also experimenting with a variety of programs and subsidies to drive 

consolidation, efficiency, and higher production levels in the farm sector. These pilot 

projects are expanding the number of rural lenders and allow more flexibility in setting 

interest rates, as well as village-wide credit evaluations, joint borrowing, and government 

loan guarantee schemes designed to increase microlending, normally in amounts of less 

than $1,000. Other village governments are testing arrangements that permit farmers to 

 114 OECD, Agricultural Policies in Non-OECD Countries, 2007, 75. 115 Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009, 28. 116 Sheldon, China’s Agricultural Trade, 2007; Kwiecinski and von Tongeren. Ch. 10: Quantitative 

Evaluation of Agricultural Policy Reforms in China: 199–-2005, July 8–9, 2007, 203. 117 OECD, Agricultural Policies in Non-OECD Countries, 2007, 75. 118 Gale, Lohmar, and Tuan, “How Tightly Has China Embraced Market Reforms in Agriculture?” 2009, 

33. 119 Ibid., 31. 120 Promar International, The Chinese Potato Industry in Transition, 2007, 8. 121 Dairy Markets, “Beijing Increases Financial Aid for Dairies,” October 25, 2010. 
4-25

use their limited land-use rights (e.g., timber rights, fruit orchards, and marketing 

contracts) as loan collateral.122

Agricultural Infrastructure 

Investment in agricultural infrastructure is a major budget expenditure item for China’s 

central government to achieve development targets in the rural sector. Agricultural 

infrastructure includes not only roads, telecommunications, and power and irrigation 

systems that directly impact agricultural production costs, but also includes goods and 

services that indirectly improve farm productivity, such as education systems, medical 

infrastructure, information networks, agricultural research projects, and the development 

of financial services for the farm sector. 123 Under the Chinese budgetary accounting 

system, government expenditures for agriculture consist of four major items: direct 

expenditures on agricultural production, rural relief funds, rural capital construction, and 

agricultural science and technology promotion.124 Agricultural infrastructure comprises 

many projects in the last three categories. In 2005, rural capital construction accounted 

for 21 percent of the Chinese government’s agricultural spending, rural relief funds for 

5 percent, and science and technology promotion funds for 1 percent.125 Spending on 

agricultural infrastructure totaled RMB 117.5 billion ($15.7 billion) in 2005, increasing to 

RMB 140.8 billion ($18.8 billion) in 2007, the last year for which OECD data are 

available.126

Large government grants are currently being provided to local government officials for 

agricultural infrastructure and capital projects. The central government transferred RMB 

17 billion ($2 billion) in 2009 to more than 1,000 grain-producing counties in China to 

promote grain infrastructure and industry development, including storage facilities, 

distribution networks, and processing upgrades. 

The government continues to accept primary responsibility for funding pollution control, 

land rehabilitation, and the maintenance and development of transport and irrigation 

infrastructure. 127 A recent example is the October 2010 agreement between China’s 

Ministries of Commerce and Agriculture to work together over the next five years to 

improve the distribution and marketing chain for agricultural goods. The ministries will 

fund the construction of large agricultural wholesale markets located between major 

production areas and transportation hubs, as well as promote business cooperation 

between large chain enterprises and agricultural regions. The two departments also 

agreed to improve efforts to standardize farm produce distribution and monitor the 

quality of vegetables, fruits, and meat to help ensure food safety.128

Increased funding for agricultural infrastructure projects indicates a renewed focus by 

China’s central government on encouraging rural development, but analysts find it 

difficult to assess the actual level of support specifically earmarked for agricultural 

infrastructure. In particular, it is difficult to verify that all budgetary expenditures from 

 122 Gale, Lohmar, and Tuan, “How Tightly Has China Embraced Market Reforms in Agriculture?” 2009, 

33. 123 Li and Liu, “The Effects of Rural Agriculture Infrastructural Development,” 2009, 3. 124 National Bureau of Statistics of China, China Statistical Yearbook, 2006. 125 Ibid. 126 OECD, Agricultural Policies in Emerging Economies 2009, 2009, 79. 127 Sheldon, China’s Agricultural Trade, 2007; Kwiecinski and von Tongeren, “Quantitative Evaluation 

of Agricultural Policy Reforms in China,” July 8–9, 2007, 205. 128 People’s Daily Online, “China to Further Boost Farm Produce Distribution,” October 22, 2010. 
4-26

various government bodies are included in the data.129 Each ministry has its own system 

of channeling funds from the central government to the village level.130 Another difficulty 

is that information on budgetary expenditures is aggregated. In many cases, the scope of a 

payment category is so broad that it is impossible to separate payments that are made to 

farmers directly, payments to services provided collectively to the village as general 

services, and payments to support the development of rural areas in general, including 

non-agricultural activities.131

Inspection Services and the 2009 Food Safety Law 

While China has funded food inspection services for at least 20 years, food safety became 

a higher priority for policymakers after it was widely reported that animal feed, milk 

powders, and eggs tainted with melamine had killed several infants and made thousands 

of consumers sick in 2008.132 Since then, not only has expenditure on inspection services 

increased, but Chinese government officials at all levels of government have worked to 

upgrade food safety standards.133 

A recent effort by the Chinese government to upgrade food safety and standards is the 

2009 Food Safety Law, which took effect on June 1, 2009. The law requires stronger 

food product supervision, safety standards, and penalties against violators, and its scope 

extends the full length of the production chain to encompass farmers, food processors, 

marketers, and distributors. 134 The Food Safety Law extends government regulatory 

authority to controlling the use of pesticides, fertilizers, veterinary drugs, and feed 

additives,135 as well as the labeling of ingredients and additives on packaging.136 

The Food Safety Law seeks to create a safer food production system in China, as well as 

boost confidence among Chinese consumers about the nation’s food supply. At the 

present time, it is unclear whether implementation of the new law is furthering these 

goals. Farmers and food companies face efforts to implement regulations from 

overlapping government agencies, each requiring inspections. The Ministry of Health 

released a circular in June 2009 to instruct government agencies on how to apply the new 

law, and implementing regulations for the law were released in July 2009. But other 

agencies play a role in enforcement. The State Council coordinates national-level 

enforcement, the Ministry of Agriculture supervises the production of agricultural 

products, the State Administration for Industry and Commerce supervises the transport 

and distribution of food products, and the Administration of Quality Supervision, 

Inspection, and Quarantine supervises imports and exports of food products and regulates 

food production. Administrative and regulatory overlaps are still being worked out 

between the agencies.137 

 129 Various “special funds” fall under the responsibility of ministries and government institutions such as 

the National Development and Reform Commission, Ministry of Finance, Ministry of Science and 

Technology, Ministry of Water Conservancy, Ministry of Agriculture, State Administration of Forestry, 

China Meteorological Bureau, Ministry of Land Resources, State Council Poverty Alleviation Office, State 

Office for Preventing Flood and Drought, and the Ministry of Health. 130 OECD, Agricultural Policies in Non-OECD Countries, 2007, 76. 131 Ibid., 77. 132 BBC, “Chinese Melamine Scandal Widens,” October 31, 2008. 133 Kwiecinski and von Tongeren, Quantitative Evaluation of Agricultural Policy Reforms in China,

July 8–9, 2007, 205. 134 The U.S.-China Business Council, “Recent Developments in China’s Food Safety Regime,” 2010, 1. 135 Ibid. 136 Industry official, interview by Commission staff, Shanghai, China, September 13, 2010. 137 The U.S.-China Business Council, “Recent Developments in China’s Food Safety Regime,” 2010, 1. 
4-27

Products for which production standards are not set by the central government are 

controlled at the provincial level, in principle to supplement the national law.138 For 

example, the Sichuan Provincial Department of Quality Supervision set standards for 

local pickle products in 2009 because the central government was silent on the issue.139

Additionally, provincial governments carry out enforcement. In many instances, local 

authorities require that annual quality supervision reports be completed by food 

processing facilities and sent to the authorities, but unannounced safety inspections, food 

testing, and site visits to monitor quality standards are rare.140 

Food Reserve Policies 

Central, provincial, and local governments in China maintain an extensive system of food 

and fiber reserves for domestically produced grain, cotton, edible oils, and pork.141 Under 

the Chinese system, these reserves appear to serve two government goals.142 The first is a 

measure of China’s food security status, since the reserves serve as a hedge against 

significant food shortages. Minimum government grain reserves must be at least 

25 percent of consumption, and China’s cultivated land area for grains is not permitted to 

fall below 120 million hectares (296.5 million acres).143

The second government use for the reserves is ensuring price stability. Inventories are 

sometimes increased in an attempt to raise or stabilize food prices in the face of global 

price declines. For example, in 2008–09, the Chinese government became a large-scale 

purchaser of grains and soybeans to prop up domestic prices as global prices began to 

fall.144 Another example is an effort by the central government to boost hog prices in 

early 2010 by establishing reserves totaling 24,000 mt. However, these reserves are not 

likely to influence price stability in China to a significant extent. Typically, data on 

China’s food reserves are considered secret government information, so inventory data 

are unable to transmit price signals to move consumer prices. For example, as grain 

prices were rising in 2008, few consumers and grain analysts were aware that China held 

large and rising inventories.145 

China’s Agricultural Laws and Policies for Foreign Direct 

Investment 

Foreign direct investment (FDI) in China is primarily governed by the Foreign 

Investment Catalog, last updated in 2007. Through the catalog, China classifies industries 

into categories for which foreign investment is encouraged, restricted, or prohibited. In 

general, government incentives are available to projects which fall into the “encouraged”

 138 Ibid., 4. 139 Industry official, interview by Commission staff, Chengdu, China, September 17, 2010. 140 Ibid. 141 Certain provincial and local governments also keep food reserves. USDA, ERS, Briefing Rooms: 

China, updated March 12, 2009. 142 Another central government policy goal is energy independence. See box 4.6 for a discussion of 

biofuel policies. 143 Gale, Lohmar, and Tuan, “How Tightly Has China Embraced Market Reforms in Agriculture?” 2009, 

33. 144 Ibid., 32. 145 Ibid., 32–33. 
4-28

BOX 4.6 Biofuel Policies May Conflict with Food Security Objectives 

China’s policies toward agriculture are not only related to food security and raising farmer’s incomes, but also to a 

lesser extent on promoting energy independence and reducing greenhouse gas emissions. Consequently, the 

central government, through the National Development and Reform Commission (NDRC), has created programs to 

encourage the domestic production of biofuels (ethanol and biodiesel) as a means to diversify sources of energy. 

The NDRC strictly regulates both the supply of and demand for biofuels, and only state-owned enterprises are 

involved in production. The NDRC plans for domestic biofuel production to increase from 1 million mt in 2005 to 12 

million mt in 2020.a

 If these policy goals are met, domestic biofuel production would satisfy up to 15 percent of 

China’s transportation energy needs. Ethanol production alone reached 1.35 million mt in 2007.b

 Four large stateowned ethanol plants were constructed in Heilongjiang, Jilin, Henan, and Anhui provinces in 2001, and by 2009, 

eight plants with a total capacity of 2.2 million mt had been built.c In Guangxi Province, China built another ethanol 

plant based on cassava, which started operation in early 2008. 

Biodiesel production in China is still too small to meet a significant portion of the nation’s overall energy demands, 

but the central government is promoting biodiesel using a variety of feedstocks. By the end of 2007, 10 biodiesel 

plants were operating in China, most utilizing industrial waste oil and waste cooking oil. The total annual production 

capacity for all of these plants was less than 200,000 mt, but by 2009 China had a total of some 2.1 million mt of 

biodiesel-producing capacity.d Given the domestic supply constraints on the feedstocks needed for these plants, as 

well as the continued large-scale imports of vegetable oil for human consumption, China would like to develop 

forestry-based biodiesel, based on sources such as jatropha seeds and Chinese dogwood nuts.e 

Ethanol producers benefit from a number of financial incentives, including the refund of VAT, exemption from a 

5 percent consumption tax, a profit guarantee of RMB 100 ($13) per mt, preferential supplies of grain stocks, and 

compensation for losses.f

 Until May 2006, government subsidies were limited to fuel ethanol, at which time the 

central government outlined the creation of a special fund to encourage the development of renewable energy 

resources, including ethanol and biodiesel. More recently, in an effort to move away from grain-based ethanol 

production and into alternative feedstocks, the government subsidy was reduced from RMB 1,883 per mt in 2005 

($29 per barrel (bbl)), to RMB 1,628 per mt ($25.70 per bbl) in 2006 and RMB 1,373 per mt ($22.7 per bbl) in 2007. 

In 2008, the grain-based ethanol subsidy was eliminated.g

USDA estimates that food security objectives may clash with energy independence and environmental concerns in 

China, eventually limiting the development of biofuels.h

 Under such a scenario, biofuels would affect China’s 

agricultural production mix while diverting output away from human and animal consumption into use as a fuel and 

contributing to increased imports of feedstock sources. This clash of policy objectives may already be occurring. In 

2010, China became a net corn importer, buying more than 1 million mt, the most since 1995–1996.i

 Ethanol in 

China is produced mostly from corn (80 percent of fuel ethanol production in 2005). The NDRC asserts that the 

targeted biofuel production will not threaten China’s grain security, but feedstock sources may be expanded to 

include sugar, oilseeds, sweet sorghum, wheat, and cassava.j

______________ 

a Kwiecinski and von Tongeren, “Quantitative Evaluation of Agricultural Policy Reforms in China,” July 8–9, 

2007, 208. b Qiu et al., “Bioethanol Development in China and the Potential Impacts on Its Agricultural Economy,” 2010, 77. c O’Kray and Kang, “Biofuels in China,” second quarter 2010, 22. 

d Ibid. e USDA, FAS, China, Bio-fuels, August 8, 2010, 21. f Ibid., 11. 

g O’Kray and Kang, “Biofuels in China,” second quarter 2010, 22. 

h Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009, 19. i Bloomberg.com, “Japan to Boost Farm Output as China Net Corn Buyer,” August 31, 2010. 

j Kwiecinski and von Tongeren, “Quantitative Evaluation of Agricultural Policy Reforms in China,” July 8–9, 2007, 

208. 
4-29

not eligible for special incentives but not facing particularly difficult approval 

requirements.146

In the agricultural sector, China generally encourages FDI that enhances productive 

capacity or technology aimed at reducing pollution.147 Restrictions apply to conventional 

seed development, distribution and retail sales of agricultural production, oilseed 

processing, biofuels production, and some beverage production. The catalog prohibits 

FDI in the development and production of genetically modified plants and animals 

(table 4.7).148 

Chinese policies encourage FDI in particular agriculture-related areas, and Chinese 

officials have emphasized the importance of spreading technology through investment in 

rural areas.149 For example, modern retailers, middle class consumers, and export markets 

are increasingly demanding higher quality and food safety, and the result is that food 

processors are increasingly demanding high-quality products and assurances of food 

safety from their suppliers (i.e., farmers). Investments in areas such as higher-quality 

storage, transportation, and cold chain infrastructure reduce waste through spoilage, 

maintain the quality of fresh fruits and vegetables for a longer period, and increase 

distribution options.150 Foreign investment is certainly one source of the necessary capital 

for these expensive improvements. 

The 2007 changes to China’s foreign investment catalog included several changes 

relevant to agriculture. Five agricultural industries face new restrictions. First, new 

investment in the development, breeding, and production of new varieties of crops and 

seeds must be through a joint venture under the control of a Chinese partner. New 

restrictions also apply to FDI in soybean processing and biofuels production. Restrictions 

on FDI in carbonated beverage production now apply to all brands, rather than just local 

brands. Foreign investors are now also restricted to a minority stake in retailers, 

wholesalers, and other distributors with over 30 outlets that sell grain, cotton, vegetable 

oil, sugar, medicines, tobacco, pesticides, and chemical fertilizer. In contrast, the 

production of natural food additives and food ingredients is now encouraged, and will 

likely be open to incentives. Under the new catalog, FDI is now prohibited in the 

development and production of genetically modified breeds of domestic animals and 

aquatic products.151

According to USDA’s Foreign Agricultural Service (FAS), three restricted investment 

areas pose particular concerns for U.S. companies: seed production and development, 

soybean processing, and distribution services. Chinese companies face strong 

competition from foreign multinationals in all of these areas. Restrictions on FDI in seed 

development are seen as a method for protecting small domestic firms and technology 

from foreign competition, and may conflict with China’s stated goals of increasing

 146 Chen, “China Issues New Policies to Attract Foreign Investment,” n.d. 147 According to Chinese government statistics, FDI in agriculture includes farming, forestry, animal 

husbandry, and fisheries. FDI in food processing includes agricultural nonstaple products processing, grain 

milling, slaughtering and meat processing, and aqua-products processing. PRC, MOFCOM, “Reference Data 

on FDI Distribution in Major Sectors.” Annual FDI Data. 148 USDA, FAS, China Changes Agriculture Investment Restrictions 2007, November 23, 3007, 2. 149 Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009, 45. 150 Ibid., 22. 151 FDI in genetically modified plants was banned before the 2007 catalog revisions. USDA, FAS, China 

Changes Agriculture Investment Restrictions 2007, November 23, 2007, 2. 
4-30

TABLE 4.7 China: FDI policies in agriculture-related industries, 2007 

Sector Encouraged Restricted Prohibited 

Agriculture, 

forestry, 

animal 

husbandry, 

fisheries 

 Transformation of low-yield farmland 

 Cultivation, development, and production of 

woody material, edible oil, spices and 

industrial raw materials 

 Serialization, development, and production 

of vegetables (including edible mushrooms 

and melon), tea cultivation technology, and 

 pollution-free products 

 Technology development and production of 

sugar, fruit trees, and forage crops 

 Construction and operation of flowers and 

nursery production base 

 Rubber, sisal, and coffee cultivation 

 Medicine cultivation and aquaculture 

(limited to joint ventures, cooperation) 

 Comprehensive utilization of crop straw and 

organic fertilizer production resources 

 Wood (bamboo) cultivation improvements 

and development of new varieties of trees 

 Aquatic breeding (excluding China's unique 

varieties) 

 Combating desertification and soil erosion, 

e.g., by planting trees and protecting native 

grass protection 

 Aquatic products breeding, sea-cage 

aquaculture, industrial aquaculture, and 

 ecological marine species aquaculture 

 Development, 

breeding and 

production of new 

varieties of crops and 

seeds (Chinese 

partner must hold 

controlling share) 

 Processing of 

precious species of 

lumber (limited to 

joint ventures, 

cooperatives) 

 Processing of cotton 

(unginned) 

 Breeding and 

cultivation of 

China's rare 

and unique 

species 

(including crop 

cultivation, 

animal 

husbandry, 

aquaculture) 

 Development 

or production 

of transgenic 

plant seeds, 

livestock, 

poultry, and 

aquatic 

breeds 

Food 

processing 

 Biological feed, straw, fodder, and the 

development of aquatic feed production 

 Aquatic and shellfish products and the 

development of functional seaweed foods 

 Storage and processing of vegetables, and 

livestock products 

 Soybeans and 

rapeseed edible oil 

(Chinese partner 

must hold 

 controlling share) and 

 corn deep processing 

 Production of 

biological liquid fuel 

(fuel ethanol, 

biodiesel) (Chinese 

partner must 

 hold controlling 

 share) 

Food industry  Development and production of functional 

foods for infants and elderly persons 

 Development, production, and processing 

of forest food 

 Production of natural food additives and 

food ingredients production (limited to joint 

ventures, cooperation) 

 
4-31

TABLE 4.7 China: FDI policies in agriculture-related industries, 2007—Continued

Sector Encouraged Restricted Prohibited 

Beverage 

manufacturing 

 Development and production of fruit and 

vegetable drinks, protein drinks, tea drinks, 

coffee beverages, and plant beverages 

 Rice wine and 

famous liquor 

production (Chinese 

partner must hold 

controlling share) 

 Carbonated beverage 

production 

Tobacco 

industry 

 Processing of cellulose acetate tow (limited 

to joint ventures, cooperation) 

 Tobacco flake production (limited to joint 

ventures, cooperation) 

 Leaf tobacco 

processing and 

production 

Textile industry  Use of high-tech industries with special 

textile producers 

 Luxury fabrics and finishing 

 Processing to meet environmental protection 

requirements of special natural fiber 

(including the addition of other inputs 

outside wool, flax, bamboo, silk, cotton, etc.) 

 

Leather, fur, 

feathers 

(cashmere) 

and its 

products 

 Clean leather- and fur-processing 

technology 

 Post finishing leather-processing 

technologies 

 Processing of luxury leather (sofa leather, 

car cushion leather) 

 

Timber 

processing, 

wood, bamboo, 

rattan, and 

grass products 

industry 

 Comprehensive utilization of new 

technologies in wood and bamboo 

 product development and production 

 

Paper and 

paper products 

industry 

 The integration of a single forestry paper 

production line having an annual 

 output of 300,000 tons 

 Above-scale chemical wood pulp with a 

single production line having an annual 

output of 100,000 tons 

 Above-scale chemical mechanical pulp, and 

the simultaneous construction of high-grade 

paper and paperboard production facilities 

(limited to joint ventures, cooperation) 

 

Special 

equipment 

manufacturing 

 Agricultural machinery: agricultural facilities 

and equipment (greenhouse automatic 

irrigation equipment, nutrition liquid fertilizer 

automatic configuration and equipment, 

highly efficient vegetable nursery equipment, 

soil nutrient analysis apparatus); tractors 

and ancillary tools with supporting engine 

power of 120 kilowatts and above, low fuel 

consumption, low noise, low diesel 

emissions, and with a large tractor 

supporting the residual spray machine; highperformance rice transplanter; cotton picking 

machine; corn combine 

 Forestry machinery equipment technology 

 Crop straw and rice husk utilization 

equipment 

 Utilization of livestock and poultry 

agricultural waste 

 
4-32

TABLE 4.7 China: FDI policies in agriculture-related industries, 2007—Continued

Sector Encouraged Restricted Prohibited 

Wholesale 

and retail 

trade 

 Wholesale, retail and 

distribution of grain, 

cotton, vegetable oil, 

sugar, medicines, 

tobacco, motor 

vehicles, crude oil, 

pesticides, plastic 

sheeting, and 

chemical fertilizer 

(any chain having 

over 30 outlets with 

sales from a number 

of suppliers of 

different types and 

brands of 

commodities is to be 

controlled by the 

Chinese partner) 

Source: USDA, FAS, China Changes Agriculture Investment Restrictions, November 23, 2007. 

Note: Information in this table was taken from China's 2007 Industrial Catalog for Foreign Investment, as reported by 

USDA. The original document is written in Chinese, and any unusual terms reflect the translation. Commission staff 

are unable to further interpret the meaning of those terms. 

According to USDA’s Foreign Agricultural Service (FAS), three restricted investment 

areas pose particular concerns for U.S. companies: seed production and development, 

soybean processing, and distribution services. Chinese companies face strong 

competition from foreign multinationals in all of these areas. Restrictions on FDI in seed 

development are seen as a method for protecting small domestic firms and technology 

from foreign competition, and may conflict with China’s stated goals of increasing 

agricultural productivity. Restrictions on soybean processing reflect Chinese concerns 

about consolidation in the industry, and the advantages that multinational companies gain 

from efficient, modern equipment. Restrictions on distribution services make it more 

difficult for foreign companies to leverage their ability to engineer solutions to delivery 

and storage problems, especially as multinationals expand into new markets in China’s 

smaller cities.152

 152 USDA, FAS, China Changes Agriculture Investment Restrictions 2007, November 23, 2007, 2–3. 
4-33

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5-1

CHAPTER 5 

Competitive Factors Affecting China’s 

Agricultural Sector 

Overview 

This chapter analyzes competitive factors across the full range of Chinese agricultural 

production. As a general matter, none of these factors exist in isolation. To the extent 

possible, any discussion of China’s farm sector competitiveness must address the 

interaction between competitive factors––e.g., manual labor vs. mechanization––the most 

efficient mix of productive inputs, and the role of government policies.1

 China’s rising 

farm labor costs and rural migration to urban areas will likely result in new capital 

investment and land consolidations which could lead to farm efficiency gains. But the 

chances are low that these gains will suffice to satisfy China’s increasing food needs, so 

China will also likely import more agricultural goods, and government policies will 

heavily influence which foodstuffs are imported. 

The first section of this chapter presents an analytical framework describing the factors 

that influence relative competitiveness in agricultural goods for any country, using China 

as the focus. The second section describes and analyzes the primary factors influencing 

competitive conditions in China’s farm sector, breaking out the relevant factors into three 

categories—delivered cost, product differentiation, and reliability of supply. 2 This 

chapter focuses on the primary factors shaping competitive conditions in China’s 

agriculture sector, but it will also attempt to anecdotally address interactions between 

factors and allocative efficiency. Table 5.1 compares selected economic indicators for the 

farm sectors in China and the United States. Relative to the United States, China’s labor 

rates and percentage of irrigated land are favorable, but its availability of arable land and 

water are unfavorable, as are China’s per-hectare cereal yields. 

Analytical Framework 

Whether in the Chinese market or elsewhere, agricultural competitiveness is measured by 

comparing delivered cost, product differentiation, and reliability of supply of 

domestically produced goods against those of imports, both in the domestic market and in 

third-country markets.3

 Anything that determines or influences delivered cost, product 

differentiation, and reliability of supply can be considered a competitive factor affecting 

 1

 The most efficient mix of productive inputs is known as allocative efficiency, an economic concept in 

which inputs such as capital, labor, or water can be allocated to produce the optimal level of output. 

Assuming several possible methods of production, allocative efficiency will largely depend on the cost and 

availability of necessary inputs. Pearce, The MIT Dictionary of Modern Economics, 1997, 13. 2

 In instances where a competitive factor (such as water or land) affects more than one category (i.e., 

delivered cost and reliability of supply), the factor will be discussed briefly in both sections of the chapter, 

while attempting to minimize any textual or analytical overlap. 3

 A detailed description of the Commission’s analytical framework for competitive factors affecting 

agriculture is in appendix E. 
5-2

the agricultural sector. Figure 5.1 identifies several specific competitive factors for 

agriculture. 

Figure 5.1 does not list government policies and foreign direct investment (FDI) as 

competitive factors because they have the potential to influence all three categories 

(delivered cost, product differentiation, and reliability of supply). For example, 

government programs that subsidize fertilizers, seeds, and machinery lower the delivered 

cost of domestic producers, while government sanitary and phytosanitary (SPS) and 

labeling regulations on imported products raise the delivered cost for importers. 

Government food safety regulations, as well as government-mandated grades and 

standards requirements, provide a mechanism for product differentiation. Government 

intervention can influence the reliability of supply through publicly funded or subsidized 

marketing and transportation infrastructure, as well as by imposing supply and export 

controls on producers. See box 5.1 for further discussion of FDI’s impact on delivered 

cost, product differentiation, and reliability of supply. 

Delivered Cost 

For many globally traded agricultural products, delivered cost is the most important 

criterion in making purchasing decisions. For producers to be competitive in their 

domestic market, they must be able to supply products to purchasers at or below the price 

offered by importers and other domestic producers. The price-competitiveness of 

domestic suppliers therefore depends on factors that tend to lower or raise their delivered 

costs vis-à-vis the delivered costs of imported and other domestic products in their home 

market.

TABLE 5.1 China and U.S. agricultural indicators 

Indicator China United States

Arable land (hectares per capita) 0.1 0.6

Average farm size (hectares) 0.6 169

Wage per day of on-farm labor $8-$13 $86.56

Cropland per agricultural worker (hectares) 0.4 78.5

Annual per capita renewable water resources (m3) 2,138 10,231

Percent of harvested land irrigated 47 18

Tractors per 100 square km of arable land 146.7 247.6

Cereals yield (kg per hectare) 5,535 6,624

Sources: USDA, NASS, “2007 Census of Agriculture: United States Summary and State Data,” December 2009, 17, 

66; Industry officials, interviews by Commission staff, Beijing and Shandong province, China, September 6–15, 2010; 

USDA, NASS, “Farm Labor,” August 19, 2010; The World Bank, Data: World Development Indicators; USDA, ERS, 

"Briefing Rooms: China: Basic Information." 

Notes: (1) Daily wage rates for on-farm labor in the United States are based on an 8-hour workday and the 

$10.82 hourly average reported by USDA, NASS, “Farm Labor,” August 19, 2010. (2) Cereal yield includes wheat, 

rice, corn, barley, oats, rye, millet, sorghum, buckwheat, and mixed grains. The Chinese average does not account for 

double-cropping, so Chinese yields are likely much lower on a per-planting basis than represented in the table. 
FIGURE 5.1 A broad range of factors affect competitiveness in any agricultural market 

Delivered cost Reliability of supply 

Production costs

Input costs for . Resource base . Wage rates . Capital . Water . Chemicals . Other 

Technology 

Labor productivity Industry structure 

Tariffs/fees

Transportation costs

Exchange rates

Proximity to market 

Transportation infrastructureMost favored nation (MFN) tariffs 

Preferential tariffs 

Market inforsystemsDistribution/infrastructur

Food safety/quality Health and nutrition Processor specifications Food labeling Packaging 

Product convenience 

Product differentiation 

Import compliance

Sanitary and phytosanitary Labeling/packaging 

Supplier couexport contrOff-season 

Support services 

Product ava

5-3 

Source: Compiled by Commission staff. 
5-4

BOX 5.1 Foreign Direct Investment in China’s Agricultural Sector is Limited 

Foreign direct investment (FDI) supports the economic development of countries and can spur the advancement of 

specific industries. In the ITC’s analytical framework, FDI cuts across all three factor categories (delivered cost, 

product differentiation, and reliability of supply). In the agricultural and food processing sectors, FDI can lower costs 

by improving production efficiency, as foreign producers introduce new growing techniques or manufacturing 

processes. FDI may also lead to greater product differentiation through improvements in food quality, branding, 

access to global managerial skills, and better agricultural practices. Lastly, FDI may be able to provide China’s 

agricultural sector, particularly in food processing, with capital for investments in modern production and distribution 

systems that can more reliably supply high-quality goods in the Chinese market. 

FDI in China's agriculture and food processing industries typically represents a small percentage of total FDI in 

China, accounting for only 1.9 percent of the total value in 2008. For most of 2005–09, FDI in food processing 

accounted for a greater share of both the reported value and the number of projects than FDI in agriculture.a

Throughout the period, Hong Kong and the British Virgin Islands were China’s largest sources of agricultural FDI; the 

United States ranked fifth or below as a source of agricultural FDI every year between 2005 and 2009.b

 Country data 

for investment in the food processing sector are not available. The industry that received the most FDI between 2004 

and 2009 within the agriculture or food processing sectors was the alcoholic beverage industry, but FDI also played 

an important role in the dairy, meat, and non-alcoholic beverage industries.c

 

______________ 

a PRC, MOFCOM, “Reference Data on FDI Distribution in Major Sectors.” The pattern of FDI, with significantly 

higher values in 2004 and 2005 than in the following years, follows the pattern of overall FDI in China during those 

years. b Data for the United States as a share of the total were not available for 2009 and 2007, but in those years, the 

United States was not ranked among the top five FDI sources. PRC, MOFCOM, “The Survey of Foreign Investment 

in China’s Agriculture Industry.” c

 Examples abound in China of foreign mergers and acquisitions (M&A) and greenfield investment projects in food 

processing during 2005–9. In alcoholic beverages, two examples include Asahi Breweries' (Japan) $668 million 

investment for a 20 percent stake in Tsingtao in January 2009, and InBev SA's (Belgium) takeover of Fujian for 

$733.1 million in January 2006. In the dairy sector, two of the biggest M&A investment projects during 2005–009 

were Uni-President's (Taiwan) acquisition of Beijing Sanyuan for $111.4 million in July 2006 and Fonterra's (New 

Zealand) acquisition of Sanlu Group for $106.5 million in December 2005. In addition, Yakult Honsha (Japan) 

invested $96 million in September 2006 in a greenfield dairy project in Shanghai. For poultry, Tyson's (USA) invested 

$31.8 million in February 2008 in a greenfield project in Haiman, China. ISI Emerging Markets, CEIC Database. 

China FDI, number of projects and realized FDI value, 2008 

 Number 

of 

projects 

Share of total 

projects 

(percent) 

Realized FDI 

value 

(million dollars) 

Share of total

FDI value

(percent)

Total agriculture 628 2.3 838.8 0.8

Total food processing 386 1.4 1,214.1 1.1

Total food-related FDI 

(agriculture plus food processing) 1,014 3.7 2,052.9 1.9

 Total FDI 27,537 100.0 108,312.4 100.0

Source: PRC, MOFCOM, “The Survey of Foreign Investment in China’s Agriculture Industry.” 

The delivered cost of domestically produced goods depends on the costs of producing the 

good and domestic transportation cost from production points to consumption points. 

Production costs in turn depend on the costs of inputs, such as fertilizer and wages. The 

application of biological technology, such as high-yielding varieties of seeds, and 

production technology, such as machinery and irrigation, is also a determinant of 

delivered cost. Transportation depends on several factors such as fuel costs and the 

efficiency of the transportation system, such as the quality of roads and ports. 
5-5

Both Chinese producers and importers incur production costs and transportation costs. 

However, importers incur additional costs that impact the overall delivered cost. These 

include the costs of international transportation, exchange rate conversion, trade risk 

coverage, and Chinese tariffs.4

 The delivered cost of imported products also includes 

expenditures on import compliance, such as meeting China’s sanitary and phytosanitary 

(SPS) regulations and China-specific labeling and packaging requirements. 

China’s export competitiveness in third-county markets relies on the same set of factors 

which influence delivered cost in the domestic market. Products exported from China are 

competitive if they can be delivered at or below the cost of domestic products in the 

importing country and competing exporting countries. In this case, cost of production, 

international transportation costs, tariffs, fees, and compliance costs imposed on Chinese 

products by the importing country make up the delivered cost of products imported from 

China. 

Product Differentiation 

In addition to delivered cost, purchasers compare the level of product differentiation of 

domestically produced and imported products in making their buying decisions. The 

more processed and branded the product, the more likely product characteristics and 

reputation will form the basis of the purchasing decision, thereby making delivered cost 

less important. Similar products are differentiated from one another through their brand 

packaging and labeling and their level of convenience, in conjunction with large 

investments in marketing, promotion, and media advertising. Additionally, in China, 

especially among middle- and upper-class income groups, product quality (gauged by 

nutrition, health, brand, and safety characteristics) is increasingly considered in foodpurchasing decisions.5

 

Reliability of Supply 

Reliability of supply refers to the ability of a supplier to deliver a specified product, of a 

particular quality and in an agreed-upon volume, to a specified location at a contracted 

time. It also refers to the ability of overseas suppliers to supply products in the off-season 

to domestic consumers.6

 Risks inherent in agricultural production (potentially impacting 

both the quantity and quality of supply) and its political significance in China and many 

other countries make this criterion particularly important for purchasers to consider. 

Reliability of supply depends on the efficiency of the supply chain, including storage and 

transportation infrastructure, as well as market information systems. In agriculture, 

several factors may disrupt the reliability of supply, such as a government-imposed 

 4

 For a discussion of how exchange rates affect delivered cost, see Gale and Tuan, “China Currency 

Appreciation Could Boost U.S. Agricultural Exports,” August 2007. 5

 Gifford, “Food Fears Persist in China 2 Years after Milk Scare,” October 26, 2010; BBC, 

“Timeline: China Milk Scandal,” January 25, 2010. 6

 FAO, “A Competitive Analysis and Strategy,” 1992. 
5-6

export control. 7 political unrest, poor transportation infrastructure, 8 and unstable 

production and exportable surplus. 

Primary Competitive Factors Affecting China’s Agricultural 

Sector 

Factors Affecting Delivered Cost 

Labor Supply and Wage Rates 

China has an abundant, inexpensive supply of unskilled labor in rural areas.9

 As a result, 

when combined with effective labor productivity, China’s agricultural sector has a 

comparative advantage in labor-intensive products. However, rapid industrial 

development has created competition for labor and is beginning to erode China’s cost 

advantage. Competition for labor has caused many rural laborers to move into urban 

areas for jobs in other sectors. While the figures vary significantly by source, the number 

of Chinese rural workers who have migrated to urban areas was estimated to be between 

130 million and 250 million in 2009.10 Because average urban incomes are 3.3 times the 

average in rural areas, labor migration will continue to reduce the rural labor supply and 

increase costs until the income gap narrows.11

Wages for farm labor in China vary substantially by region and product, but they are 

generally higher in eastern provinces, where demand for labor from other industries is 

greater. According to the Chinese National Bureau of Statistics, the average annual 

income in rural areas was approximately RMB 5,153 ($687) in 2009, up 8.2 percent from 

2008.12 Furthermore, it was reported that in 2010 rural wages were up almost 19 percent 

from the prior year.13 As labor availability has declined, labor costs, both on farms and in 

food processing facilities, are reportedly increasing by 10 to 20 percent per year. Farms 

that are large enough (5–10 mu) to hire additional workers generally pay laborers 

RMB 50-60 a day (less than $10). In comparison, the average hourly wage for hired onfarm labor is $10.82 in the United States.14 In 2010, the average cost of labor for Chinese 

food processors was RMB 6.5 per hour (approximately $0.87), an increase of 20 percent 

from 2009. 

 7

 For example, Russia imposed export controls on wheat exports, disrupting supplies to its major markets, 

especially Japan. The New York Times, “Russia, Crippled by Drought, Bans Grain Exports,” August 5, 2010. 8

 For example, Mali produces and exports high-quality cotton. However, because Mali’s production is 

variable and its internal transportation infrastructure is poorly developed, it is considered an unreliable 

supplier of cotton by international cotton buyers. 9

 China has a large agricultural labor force relative to the United States. In 2009, about 321 million 

people (40 percent of the total population) were working in the Chinese agricultural sector, compared to only 

about 1 million people (less than 1 percent of the total population) in the U.S. agricultural sector. Data for the 

U.S. agricultural sector include laborers in farming, forestry, and fisheries. CIA, The World Factbook: China, 

May 20, 2010; CIA, The World Factbook: United States, October 28, 2010. 10 Industry officials, interviews by Commission staff, Beijing and Shandong province, China, 

September 6–16, 2010; Scheineson, “China’s Internal Migrants,” May 14, 2009. 11 China Daily, “China’s Urban, Rural Income Gap Widens,” January 22, 2010. 12 Ibid. 

13 Batson, “Farm Wages Trip Beijing’s March Against Inflation,” December 23, 2010. 

14 Industry official, interview by Commission staff, Beijing, China, September 6, 2010; USDA, NASS, 

“Farm Labor,” August 19, 2010. 
5-7

Employee turnover can increase labor costs for agricultural producers and limit the 

availability of skilled laborers and management. In China, turnover rates vary 

significantly by region and product, depending on the extent of competition from other 

industries. As the textile, machinery, and chemical industries have developed in 

agricultural provinces like Shandong, annual turnover rates have risen, increasing 

recruiting and training costs for food processors. In some food-processing industries, 

annual turnover rates have reached 50 percent. 15 As a result, many firms and other 

agricultural organizations lack employees with the skills necessary to implement 

management practices that would increase productivity, such as methods to efficiently 

allocate agricultural resources through cooperatives. 

Despite significant annual increases in Chinese farm wages, low-cost labor is still the 

primary advantage for the Chinese agricultural sector. As competition for workers from 

other domestic industries continues to increase, however, a more restricted supply of 

labor, particularly skilled labor, will likely affect future agricultural productivity gains 

and result in increased mechanization and capital costs.16 

Water Cost 

Water is a critical input around the world for agricultural production; its abundance or 

scarcity heavily influences the food countries produce and the final yields from those 

crops and livestock. China relies more heavily on irrigation than other countries because 

of low rainfall, particularly in the north and west of the country. While an estimated 

80 percent of China’s food production comes from irrigated land, the irrigation systems 

currently in place are inefficient relative to international standards, increasing production 

costs and reducing the reliability of supply.17 

Under national law, water is state owned. Local governments have the ability to assess 

fees to cover the capital costs of delivering the water (i.e., reservoirs, irrigation canals, 

and pumps), as well as electricity fees for running the pumps. Water costs vary 

significantly by region, and many farmers do not pay for their water use at all.18 Even 

those farmers assessed water fees by their local government reportedly pay 

approximately 25 percent of the actual cost of the water, thus artificially reducing 

production costs.19 

 

When water fees are collected, farmers generally pay a fixed fee per unit of land.20 Some 

localities are reportedly starting to charge fees based on consumption, but this is still not 

the norm.21 Water for industrial use, which includes packinghouses and food processing 

facilities, is typically priced by weight (e.g., per metric ton) when supplied by local 

 15 Industry officials, interviews by Commission staff, Beijing and Shandong province, China, 

September 6–16, 2010. 16 Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009, 11, 35. 17 In China, the percentage of harvested agricultural cropland that is irrigated has been rising in recent 

years and is now estimated to be approximately 50 percent. China Daily, “Poor Irrigation Facilities Threaten 

Grain Production,” March 12, 2009; industry official, interview by Commission staff, Beijing, China, 

September 9, 2010; Guang-xin and Wei, “Groundwater Crisis and Sustainable Agriculture in Northern 

China,” 2010. 18 Industry officials, interviews by Commission staff, Beijing and Shandong province, China, 

September 6–15, 2010. 19 Powell, “Falling Up! Water Prices Must Meet the True Costs,” May 2010, 35. 20 Government official, interview by Commission staff, August 19, 2010. 21 Industry officials, interviews by Commission staff, Beijing, China, September 7–9, 2010. 
5-8

governments. Water expenses for most farmers and many processors, however, consist 

only of the costs of maintaining or drilling a well, the pumps, and the electricity used to 

pump from the wells. While water costs to farmers and processors have remained stable 

in many areas during recent years, the true cost of groundwater pumping has been 

increasing dramatically as groundwater levels continue to decline.22 Food processors are 

reportedly budgeting for anticipated annual increases.23 

While artificially low fees for water currently reduce production costs in China, these 

fees result in overuse and provide no incentive for adopting more efficient irrigation 

techniques.24 Recent water shortages and falling groundwater levels have drawn attention 

to the inefficiencies in the system. Only 40 percent of China’s irrigation networks are 

considered to be running efficiently, which forces farmers to draw yet more water and 

further reduce scarce water supplies. 25 In the very near future, raising water prices for all 

users to cover the true cost of supplying water and encouraging conservation may be the 

only real choice for Chinese policymakers. To the extent that changes in government 

policy mean sharp increases in water fees for farmers and processors, the delivered cost 

for agricultural goods will likely increase, weakening China’s competitiveness in many of 

those goods. 

Land Tenure System in China 

Land in China is owned by the state, and land use rights are typically provided by local 

village leaders to households for farming. The fact that farmers are not permitted to 

individually own or sell their land26 affects the structure of Chinese agriculture by 

restricting consolidation and thereby thwarting efficiency gains, while also increasing 

transaction and marketing costs. The local governments which control the land have the 

unilateral authority to consolidate land holdings, and in many cases have done so. But 

decisions by village leaders have the potential to be heavily influenced by political 

objectives which may or may not encourage economic efficiency in the farm sector.27

Another facet of the land tenure system is that farmers are often not charged market rents 

for the land they use, and sometimes are charged nothing at all. 28 This is clearly 

beneficial to farmers in lowering production costs relative to farming in other countries. 

Therefore, the overall impact of China’s land tenure system on the competitiveness of 

agricultural goods produced by Chinese farmers is mixed. Low production costs for the 

land must be weighed against the long-term economic impact of the system on 

agricultural productivity. Whether the result of artificially low land rents and 

 22 Brown, “Aquifer Depletion,” January 23, 2010. 23 Industry officials, interviews by Commission staff, Beijing and Shandong province, China, 

September 6–16, 2010. 24 The use of efficient irrigation technology such as drip irrigation is typically limited to certain highvalue cash crops, such as tomatoes and apples, because of the equipment’s high costs. Industry official, 

interview by Commission staff, Beijing, China, September 10, 2010. 25 In China, only 40 percent of water used in irrigation actually reaches the crops because it leaks from 

pipes, evaporates or is otherwise lost on the way to the fields, compared to between 70 and 80 percent in most 

developed countries. Xie, “Addressing China's Water Scarcity,” January 1, 2009, 61; Taige, “Drought 

without End?” March 3, 2009. 26 A farmer’s right to transfer a farmland lease is a recent policy change, and the implementation of this 

right varies significantly among localities. 27 Industry official, interview by Commission staff, Beijing, China, September 6, 2010. 28 Industry officials, interviews by Commission staff, Beijing and Shandong province, China, 

September 6–15, 2010. 
5-9

inefficiencies within China’s farm sector is a net gain or loss to overall competitiveness 

depends upon the specific goods produced. Over the long term, however, China will 

likely face difficulties in boosting farmers’ incomes, encouraging investment, and 

increasing agricultural productivity unless reforms are made to the current land tenure 

system. For more detail on the mechanics of the system, see the following sections on 

farm industry structure and land cost. 

Farm industry structure 

Land use rights per household in China average 0.6 hectares nationally, but many farms 

are smaller, ranging between 0.1 and 0.4 hectares.29 By comparison, the average U.S. 

farm is 169 hectares (table 5.1). Moreover, Chinese farms usually comprise several 

unconnected plots (figure 5.2). Due to the size and discontiguous nature of farm holdings, 

buyers must purchase crops from perhaps thousands of individual farmers. 

 

 FIGURE 5.2 Crops grow in traditional small plots in Sichuan province, China 

 Source: Commission staff. 

 Four small plots, likely belonging to different farmers, are each planted with a distinct crop (e.g. 

ornamental trees (center), leafy vegetables (foreground), squash on trellises (center right), and another 

unidentified low growing crop (behind trees)). 

Most agricultural products in China require multiple layers of middlemen to consolidate 

large volumes of harvested crops in the supply chain, which invariably increases 

marketing and distribution costs. Certain product sectors in China have developed similar 

 29 Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009, 9; industry official, interview 

by Commission staff, Beijing, China, September 10, 2010. 
5-10

methods for consolidating their product. In horticulture, for example, approximately 80 to 

90 percent of total Chinese production is initially sold to small traders that consolidate 

product from the farms and transport it to other traders, larger wholesale markets, wet 

markets, or directly to buyers.30 Grain and vegetable processors in Shandong province 

reportedly source their raw inputs from between several dozen and a few hundred traders 

in order to avoid sourcing from several thousand small household farmers. Each 

additional consolidation stage increases transaction costs, since prices rise each time the 

product is re-sold.31 

Firms in certain sectors have begun to develop models to overcome the limitations of the 

current land tenure system. The central government, through institutions such as the 

Chinese Academy of Agricultural Sciences, is also studying this issue. National law now 

allows farmers to lease out their land use rights, and companies have begun to lease large 

pieces of land (200–300 acres) from village leaders. In certain counties in Gansu 

province, for example, 25 percent of farm land is now leased.32 While this practice is 

growing, it is still relatively uncommon, especially in the densely populated regions in 

eastern provinces where the large number of farmers, as well as the concentration of 

housing, can prevent the consolidation of land into larger holdings.33 

Various experiments with farmer cooperatives34 are taking place as well, particularly in 

horticulture, in order to consolidate product, streamline product distribution, and reduce 

transaction costs.35 Collectively, the land holdings controlled by cooperative members 

range in size from a few hectares to a few thousand hectares. Cooperatives are commonly 

formed under village control, like those for vegetables in Shaanxi province,36 and they 

seek to rationalize rural land use while trying to minimize disruption to rural 

communities; 37 the hope is that larger operations will make Chinese agricultural 

production more efficient. But cooperatives are currently being formed slowly, in part 

because village leaders often lack the management skills necessary to effectively 

organize farmers, disseminate resources and revenue, and plan effective product 

marketing.38 Whether or not cooperatives become a widespread phenomenon in China, 

farm labor continues to migrate into urban areas, searching for higher wages. As this 

trend continues, larger scale operations are likely to become more common, increasing 

economies of scale and lowering transaction costs. 

 30 Industry official, interview by Commission staff, Beijing, China, September 6, 2010; Wang et al., 

“Producing and Procuring Horticultural Crops with Chinese Characteristics,” 2009. 31 Industry officials, interviews by Commission staff, Beijing and Shandong province, China, 

September 6–16, 2010. 32 China Daily, “Chinese Farmers Lease Their Farmland,” June 16, 2010. 33 Industry officials, interviews by Commission staff, Beijing and Shandong province, China, 

September 6–15, 2010. 34 Industry official, interview by Commission staff, Beijing, China, September 7, 2010. A farmer 

cooperative is an organization in which the farmers own and operate their individual plots of land but pool 

resources and centralize administrative functions in order to consolidate product, streamline product 

distribution, and reduce transaction costs. 35 Industry officials, interviews by Commission staff, Beijing and Shandong Province, China, 

September 6–16, 2010. 36 Industry official, interview by Commission staff, Beijing, China, September 7, 2010. 37 Industry official, interview by Commission staff, Shanghai, China, September 14, 2010. 38 Industry officials, interviews by Commission staff, Beijing, China, September 6–10, 2010. 
5-11

Land cost 

Land costs for farming vary significantly across China’s diverse agricultural regions. In 

general, however, the cost of agricultural land allocated by village leaders to small 

household farmers, typically in the form of 30-year leases, is either free or significantly 

below market rental rates.39 But consolidating land into larger, more efficient plots in 

China is both expensive and logistically difficult. Not only do farmers seek market rates 

from agricultural firms or other farmers consolidating the land into more efficient 

production plots, but consolidators are forced to negotiate with perhaps hundreds of 

farmers in separate land lease agreements. 40

In some areas of China, land lease agreements negotiated between farmers and 

consolidators may actually be more costly than in the United States, especially in the 

eastern provinces with high demand for land from real estate developers and industry.41

Even in western and more rural areas of China, leases for large, contiguous farm plots are 

attracting big sums of money for farmers that control the land. 42 Rents paid by 

consolidators vary significantly by region; anecdotal information indicates rents of 

approximately 300 RMB per mu ($40 per acre) annually in Hebei and southern Inner 

Mongolia, with rents much higher in Shandong province.43 By comparison, the national 

average annual cash rent for cropland in the United States is $102 per acre, though prices 

range from $28 per acre in Nebraska to $345 per acre in California.44

Because all land in China is owned by the state, and ownership rights for farm leases 

have only existed under the law since 2004, real estate markets are not yet fully open and 

transparent. This creates business uncertainty for agricultural firms and farmers who seek 

market prices on which to base leasing negotiations.45 Even in areas where the rental 

costs for farmland are low, incentives to invest and improve the land’s productivity and 

the quality of output are limited by the continued uncertainty surrounding the legal status 

of farmers’ leases and their rights to control farmland.46

Other Input Costs

Seeds, chemicals, and medicines (for live animal operations) are important inputs in 

agricultural production and account for a significant portion of farm production costs in 

China. These costs have reportedly been increasing annually, even as intensive farm 

management practices and government incentives focus on containing the negative 

impact that these input costs have on Chinese agricultural production costs. 

 39 Mullan, Grosjean, and Kontoleon, “Land Tenure Arrangements and Rural-Urban Migration in China,” 

August 26, 2010. 40 Ford, “China’s Land Reform Aims to Revolutionize 750 Million Lives,” October 27, 2008. 41 U.S. Government official, interview by Commission staff, Washington, DC, August 19, 2010. 42 Recent examples include farm plots of over 3 hectares in Gansu province which are being leased 

annually for RMB 30,000 ($4,600), with additional sums paid to farmers who continue to work the land for 

the new leaseholder. China Daily, “Chinese Farmers Lease Their Farmland,” June 16, 2010. 43 Industry officials, interviews by Commission staff, Beijing and Shandong province, China, 

September 6–15, 2010. 44 USDA, NASS, “Land Values and Cash Rents Summary,” August 2010, 18. 45 In order to lease land either for growing or processing purposes, agricultural firms may need to 

negotiate the lease terms with local village leaders, even in cases where individual farmers own leases. In 

other cases, land use rights may be sold by villages in an auction format. Ford, “China’s Land Reform Aims 

to Revolutionize 750 Million Lives,” October 27, 2008. 46 Zhang,“China’s Slow-motion Land Reform,” February/March 2010. 
5-12

Typical farm management practices add more to input costs for farmers in China than 

they do for producers in other countries. Fertilizer, pesticide, herbicide, and fungicide 

costs are higher in China because of high usage rates; Chinese fertilizer use rates are 

typically more than double the rates in other major agricultural producing countries 

(table 5.2).47 For example, farmers in northern China use about 525 pounds of nitrogen 

fertilizer per acre annually, approximately six times the U.S. average.48 The common 

Chinese practice of double- or triple-planting plots of land without rotating crops is 

reducing soil nutrients and yields, and driving the overuse of fertilizers. If Chinese 

farmers switch to global best management practices, including the use of ideal cultivars 

and the proper timing of fertilizer applications, yields could increase, costs would 

certainly decrease, and nitrogen fertilizer use could be cut by 20 to 40 percent.49 

Chinese government programs providing funds to offset fertilizer and seed costs 

artificially lower the cost of these inputs to farmers. Government funds for seeds and 

fertilizer totaled approximately $11.2 billion in 2008.50 Fertilizer subsidies in China are 

directed to fertilizer producers and indirectly benefit agricultural producers. The 

payments to fertilizer producers include value-added tax (VAT) holidays; preferential 

prices for electricity, natural gas, and coal; a preferential transportation price of RMB 80 

($11) per metric ton; duty-free imports of raw materials; and loan subsidies ensuring low 

rates for producers or distributors who store fertilizers during the winter.51 In 2007, the 

comprehensive fertilizer subsidy package averaged about $14.50 per farm household.52

International fertilizer prices fluctuate significantly from year to year, but Chinese 

farmers are less sensitive to price fluctuations than farmers in the United States because 

of these government payments.53 While the impact of these government payments on 

retail fertilizer prices is difficult to measure, in early 2008 during a period of high 

international fertilizer prices, farm prices for urea in China were $0.12–$0.13 per pound 

compared to $0.28 per pound in the United States. 54 Subsidized seeds available for 

purchase by farmers include soybeans, rice, wheat, corn, rapeseed, and cotton, as well as 

hull-less barley and peanuts on a trial basis in 2010.55 However, many provinces limit 

payments to purchases of high-quality and high-yield seeds. Seed payments are provided 

either through direct payments to farmers or to seed suppliers who then pass along the 

 47 Fertilizer, pesticide, herbicide, and fungicide costs account for about 14 percent of the cost per mu of 

growing potatoes in northern China. 48 Schwartz, “Balancing Act in Global Fertilizer Use: Science Report,” June 29, 2009. 49 Zhang, “Improving Fertilizer Use Efficiency through Management Practices: China Experience,” n.d. 50 USDA, FAS, China: Grain and Feed; Annual, March 1, 2010, 16. 51 The transportation subsidy is estimated to be approximately RMB 5 billion per year. Liao, “The 

Evolution of Fertilizer Subsidies in China,” December 2008. 52 USDA, FAS, China: Fertilizer, December 14, 2009. 53 Southeast Farm Press, “China, India Waking Up to Fertilizer with Huge Subsidies,” n.d. 54 Kahrl et al., “Toward Sustainable Use of Nitrogen Fertilizers in China,” November/December 2010, 6. 

55 USDA, FAS, China: Grain and Feed; Annual, 2010, March 1, 2010, 16. 

TABLE 5.2 Fertilizer consumption (kilograms per hectare of arable land) 

Country 2003 2004 2005 2006 2007

China 3,062 3,069 3,217 3,633 3,311

Brazil 1,666 1,739 1,396 1,451 1,901

USA 1,458 1,594 1,651 1,478 1,712

India 1,051 1,154 1,278 1,364 1,423

Source: World Bank, "Country Data: China" (accessed July 26, 2010). 
5-13

benefit to farmers through discounted seed prices. In provinces that use direct payments, 

the U.S. Department of Agriculture (USDA) estimates that farmers generally receive 

RMB 10–15 ($1.33–$2.00) per mu to purchase seeds.56 

Farmers also use a wide variety of veterinary drugs to control diseases in livestock. 

Vaccination costs for live animal operations are reportedly higher in China than in other 

countries with major livestock production operations, because of widespread overuse and 

because the majority of these drugs have to be imported.57

Mechanization 

 

The use of advanced technology and mechanization is not extensive in Chinese 

agricultural production compared to other countries, largely because of relatively low 

labor costs that encourage the substitution of labor for capital (in the form of 

mechanization and technology) whenever possible.58 As long as labor costs remain low, 

the cost advantages of switching to mechanized production and paying for technological 

upgrades are limited.59 However, rising labor costs, the migration of Chinese skilled farm 

labor to urban areas, and government incentives have promoted agricultural 

mechanization in recent years, raising agricultural productivity and lowering production 

cost for crops such as corn.60 

While the use of mechanized harvesters and processing lines has increased, further 

upgrades are limited by both supply and demand factors. Chinese domestic production of 

processing and harvesting equipment is expanding, but much of the equipment is not 

available domestically and must be imported, increasing the cost of modernization.61 At 

the same time, the structure of Chinese farming restricts the demand for new equipment 

and other modernization efforts because small and discontinuous plots reduce the benefits 

of mechanization. Furthermore, small households and most cooperatives have limited 

capital reserves to make equipment purchases. However, pressure to increase 

mechanization in China’s farm sector will likely increase as rural workers shift to other 

industries, wages rise, and the sector consolidates. 

Typically, conventional bank financing options are not available for farmers to make 

capital purchases. As a result, some food processors and large traders that source inputs 

from farmers on a contract basis use alternative methods to increase on-farm 

technological upgrades, such as self-financing equipment purchases. For example, a 

processor may supply farmers with an irrigation system, pesticide sprayers, and tractors, 

 56 USDA, FAS, China: Grain and Feed; Annual, 2008, March 1, 2008. The payments per acre vary by 

product and region, but for cotton it is estimated to be $13 per acre. National Cotton Council, written 

submission to the Commission, September 15, 2010, 2. 57 Industry official, interview by Commission staff, September 13, 2010; Poultex News, “Half of China’s 

Antibiotics are Fed to Animals,” December 1, 2010. 58 The combined figure for the mechanization of plowing, sowing, and harvesting came to 43 percent of 

China’s agricultural land in 2007, 3 percentage points higher than the previous year. Mechanization for 

sowing and harvesting reached 78 percent and 79 percent, respectively, of the area planted with wheat; paddy 

rice mechanization for sowing and harvesting reached 11 percent and 46 percent; and corn mechanization for 

harvesting came to 7 percent. PRC, MOA, “General Surveys—Agricultural Mechanization,” June 25, 2009. 59 Industry official, interviews by Commission staff, Shandong province, China, September 13–15, 2010. 60 PRC, MOA, “General Surveys, Agricultural Mechanization,” June 25, 2009. 61 Industry official, interview by Commission staff, Shandong province, China, September 13, 2010. 
5-14

while requiring only a modest down payment. The processor then receives payments 

from the farmer toward the price of the delivered input for a defined period of time.62

Since equipment subsidy programs were implemented in 2005, government support has 

made purchases of new machinery more affordable, boosting machinery use. When a 

farmer, business, or cooperative buys new machinery, the local government provides a 

direct payment to cover between 20 and 40 percent of the cost of new machinery, 

depending on the type of machinery purchased and good being produced.63 Purchasers of 

harvesting and packing equipment reportedly receive the largest payments. 64 As 

agricultural mechanization continues to become more common in China, cost savings and 

harvesting productivity will likely continue to increase. In 2007, the total combined 

mechanization level for plowing, sowing, and harvesting wheat, rice, and corn accounted 

for only 43 percent of total production compared to the United States, where almost all 

production is mechanized. 

Access to Credit

Credit is an important source of capital for farmers to finance investments in new 

equipment and other operating expenses. Chinese farmers, however, have minimal access 

to credit, a situation that restricts investment and productivity gains. Because land is 

owned by the state, farmers lack financing collateral.65 As a result, small-scale farmers 

have difficulty getting formal loans and investing in mechanization, which increases 

labor costs and lowers overall productivity. Even though the dominance of state-owned 

banks typically keeps the cost of credit low in China, lending has historically been 

directed towards industry and state-owned enterprises that show the most job growth 

potential.66 Most farmers therefore acquire needed capital through nonfarm income or 

personal loans from friends. 

Both central and local governments are seeking to improve access to credit for farmers 

through state-owned banks, rural credit cooperatives, and local programs which 

encourage microlending.67 Increased access to credit from banks may allow farmers to 

buy better seeds, fertilizers, and pesticides, and to invest in capital assets such as 

mechanized harvesters, greenhouses, and efficient irrigation systems. If Chinese farmers 

do gain more access to credit, costs will decline as investments lead to more efficient 

production methods. 

The food-processing sector has greater access to capital than farmers do because of 

greater cash flows and collateral. Food processors finance capital costs through either 

retained earnings or bank loans. If bank loans are available, interest rates vary 

significantly depending on the investment’s projected return and the company’s financial 

status, but typically range from 5 to 10 percent per year for financially strong 

companies.68 The Chinese government also supports the development of certain food 

 62 Industry official, interview by Commission staff, Beijing, China, September 7, 2010. 63 Academic, interview by Commission staff, Beijing, China, September 9, 2010; Industry official, 

interview by Commission staff, Shandong province, China, September 13, 2010. 64 Industry official, interview by Commission staff, Shandong province, China, September 13, 2010. 65 Wall Street Journal, “China’s Farmers Could Use Land As Collateral,” July 29, 2010. 66 OECD, “Rural Policy Reviews: China 2009,” May 22, 2009, 43. 67 Stewart and Stewart, written submission to the Commission, June 29, 2010, 4. 68 Industry officials, interviews by Commission staff, Beijing and Shandong province, China, 

September 6–15, 2010. 
5-15

industries by making cash investments, giving the government minority holdings in 

preferred companies. To boost cash flow, the government typically refrains from 

accepting dividends or other returns on its investment. Reportedly, government 

investments are made with the expectation of repayment, but the payback terms are often 

not clearly defined.69 

Transportation Infrastructure and Time to Market 

Upgrades to China’s rural infrastructure have improved the agricultural sector’s ability to 

get its products to the market, but the agricultural logistics industry is still fragmented: 

small traders and service providers are spread across the country, creating inefficiencies 

and increasing costs. Service companies typically provide individual pieces of the supply 

chain, such as transport or storage. Very few companies can actually provide a 

completely integrated transportation network throughout the country, unlike in the United 

States, where such networks are widely available. As a result, firms must generally hire 

multiple service or transport providers to get their products to market, making 

transportation relatively inefficient and expensive.70 

China has improved its rural transportation infrastructure in recent years as a result of 

massive investments in road construction, but despite these investments the transportation 

infrastructure has still not kept pace with growth in demand. Investments have created a 

road network that is the second-longest in the world behind the United States, with the 

total length of rural roads expected to increase to 3.5 million kilometers in 2010.71

Greater access to modern roads generally increases farmers’ incomes by lowering either 

their own transport costs or the transportation costs of the traders who buy their goods 

and ship them to consumer markets. The net effect is that farmers retain a larger portion 

of the prices paid by consumers. However, high toll fees on the country’s highway 

networks add significant transportation costs and are generally more expensive than in 

the northeastern United States.72 In addition, the lack of available freight transport by rail 

and the high fees imposed on drivers traveling from one province to another increase 

costs and create uncertainty.73 

China’s fragmented logistics network increases cold storage and transportation costs 

relative to other markets. A much higher percentage of total costs (18 percent on average) 

for agricultural producers in China goes toward transportation and cold storage logistics 

services than the average (9 percent) in Organisation for Economic Co-operation and 

Development (OECD) countries.74 For example, it costs at least RMB 6,000 ($800) to 

transport 20 metric tons of vegetables about 900 miles from Shouguang, a wholesale 

center in Shandong province, to Heilongjiang province in northeast China.75 Because of 

the high cost and time needed to transport goods throughout China, shipping from the 

United States to southern China is often cheaper than transporting goods from northern 

 69 Industry official, interview by Commission staff, Beijing, China, September 6, 2010. 70 Ibid., September 10, 2010. 

71 People’s Daily Online, “China’s Rural Roads to Cover 3.5 Million Km by 2011,” October 28, 2010. 72 Tolls on expressways in China vary between 7 and 16 cents per mile. Tollroad News, “Central 

Government Struggling to Control Tollroads in China,” February 29, 2008. 73 Terreri, “Go West . . . with Caution,” November 1, 2010. 74 Industry official, interview by Commission staff, Beijing, China, September 10, 2010; Gonzalez, 

Guasch, and Serebrisky, “Latin America: High Logistics Costs and Poor Infrastructure for Merchandise 

Transportation,” 2007. 75 Xiang, “PE Firms Eye Rich Harvest in Agricultural Logistics,” June 11, 2010. 
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China to the major cities in the south. As a result of the high costs, imports often have a 

competitive advantage in markets where there is no significant domestic production of a 

particular good in the region. 76 Cold storage capacity is also limited, despite recent 

increases, and even when refrigerated services are available, the cost is often 

prohibitive.77 Moreover, in cases where the cost of cold storage is affordable, the quality 

of the equipment generally does not meet Western standards, and the risk of spoilage is 

higher.78 

The fragmented structure of the logistics industry in China increases costs for the Chinese 

agricultural sector and forces many larger firms, whether multinationals or state-owned 

enterprises, to invest heavily in their own transportation networks. Logistics firms 

specializing in agricultural transport services are beginning to develop advanced cold 

storage capabilities and expand across China. As China’s transportation infrastructure 

increases in size and capacity, transportation costs and the time to market will decrease, 

both of which should lower the cost and increase the quality of Chinese agricultural 

products. 

Exchange Rates 

The competitiveness of U.S. exports is affected, in part, by the effect of foreign currency 

fluctuations on the relative price of goods. China started informally pegging its currency 

to the U.S. dollar in 1998, largely as a stability measure in response to the Asian financial 

crisis.79 The peg (8.3 RMB to the dollar) was removed in 2005, as China injected large 

amounts of cash into the economy in the wake of the severe acute respiratory syndrome 

(SARS) epidemic and needed to mitigate inflationary pressures.80 The renminbi exchange 

rate relative to the U.S. dollar gradually appreciated over the next three years under a 

managed float until August 2008 (6.8 RMB to the dollar), when China repegged the 

renminbi to the dollar in response to the global financial crisis.81 Chinese authorities 

decided in June 2010 to allow the renminbi to appreciate once again, and through 

January 27, 2011, the renminbi appreciated 3.7 percent against the U.S. dollar.82 When a 

fixed exchange rate causes the renminbi to be less expensive (relative to the U.S. dollar) 

than it would be under competitive supply and demand conditions, Chinese exports are 

relatively inexpensive and U.S. exports to China are relatively expensive. As a result, 

U.S. exports and the production of U.S. goods and services that compete with Chinese 

imports fall, at least in the short run.83

The renminbi is widely viewed as being significantly undervalued, making imports more 

expensive in China and Chinese exports less expensive in foreign markets. In February 

2010, the International Monetary Fund (IMF) stated that the renminbi remains 

substantially undervalued relative to the U.S. dollar from a medium-term perspective.84 In 

 76 Industry official, interview by Commission staff, Beijing, China, September 10, 2010. 77 Bolton and Liu, “Creating an Effective China ‘Cold Supply Chain,’” 2006. 78 Industry official, interview by Commission staff, Shanghai, China, September 14, 2010. 79 Morrison and Labonte, “China’s Currency Peg: A Summary of the Economic Issues,” April 25, 2005, 1. 80 Reuters, "China No Longer Pegging Yuan to Dollar." July 21, 2005 and Wolverson, "Confronting the 

China-U.S. Economic Imbalance,” October 19, 2010. 81 Wolverson, “Confronting the China-U.S. Economic Imbalance,” October 19, 2010. 82 U.S. Department of the Treasury, Report to Congress on International Economic and Exchange Rate 

Policies, February 2011, 12. 83 Morrison and Labonte, “China’s Currency Peg: A Summary of the Economic Issues,” April 25, 2005, 3. 84 IMF, Meetings of G-20 Deputies, Seoul, Korea, Global Economic Prospects and Policy Challenges, 

February 27, 2010, 9.
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April 2010, the Peterson Institute of International Economics estimated that renminbi 

undervaluation against the U.S. dollar was about 30 percent.85 In its July 2010 report on 

China’s currency, the U.S. Treasury Department noted that China’s continued foreign 

reserve accumulation, the limited appreciation of China’s real effective exchange rate 

relative to rapid productivity growth in the traded goods sector, and current account 

surpluses suggest that the renminbi remained undervalued. 86 According to the U.S. 

Department of the Treasury’s subsequent February 2011 Report to Congress on 

International Economic and Exchange Rate Policies, China’s real effective exchange rate 

has appreciated only modestly over the past decade. China’s large increases in 

productivity in export manufacturing, its improvements in transportation and logistics, 

and its accession to the WTO all suggest that the renminbi should have appreciated more 

significantly over this period.87 If the renminbi were permitted to float freely in the 

market and strengthened against the dollar, as it did during China's last period of currency 

float, U.S. goods would likely be less expensive for China to import, and demand for 

these goods would likely increase.88 

U.S. agricultural exports to China are no exception to this phenomenon. According to the 

USDA, whenever the U.S. dollar depreciates against the renminbi, U.S. agricultural 

commodities can become more price-competitive in China, potentially increasing China’s 

demand for these U.S. goods.89 In 2007, differences in the amount of goods and services 

that could be purchased in China and the United States with a given amount of U.S. 

dollars suggested that the exchange rate was not at its equilibrium value––specifically, 

the renminbi was undervalued.90 As a result, imported foods in China were much more 

expensive than domestic products, and consumer demand for U.S. imports was limited to 

a handful of commodities (soybeans, cotton, and animal hides) and certain high-end niche 

items. Even assuming an undervalued renminbi, the United States had a net surplus with 

China in agricultural trade during 2007, which continues today. In fact, U.S. agricultural 

exports to China have grown sharply, more than doubling from $6.3 billion in 2005 to 

$13.4 billion in 2009. If the renminbi appreciates against the dollar in the future, more 

U.S. agricultural products are likely to become price-competitive in China, and U.S. 

exports of these goods may grow even faster. Appreciation of the Chinese renminbi will 

also reduce the competitiveness of China’s rising exports of labor-intensive agricultural 

goods, among them vegetables, fruits, and juices.91 Several U.S. agricultural companies 

and trade groups submitted information to the ITC for this report, indicating that the 

current exchange rate between the renminbi and the U.S. dollar impacts their trade with 

China. For the most part, they indicated that the Chinese currency is undervalued, making 

 85 The estimate is the result of purchasing power parity (PPP)-based modeling. Subramanian, “New PPPBased Estimates of Renminbi Undervaluation and Policy Implications,” April 2010, 1, 7. 86 U.S. Department of Treasury, Office of International Affairs, “Report to Congress on International 

Economic and Exchange Rate Policies,” July 8, 2010, 18. 87 U.S. Department of the Treasury, Report to Congress on International Economic and Exchange Rate 

Policies, February 2011, 15. 88 Ulics and Mead, “Current Price Topics: China’s Exchange Rate Policy Reflected in U.S. Import 

Prices,” August 2010. 89 Not all U.S. agricultural commodities will be affected equally by changes in the exchange rate between 

the U.S. dollar and Chinese renminbi. Other competitive factors must also be taken into account. Gale and 

Taun, China Currency Appreciation, August 2007, 1. 90 Equilibrium value is often considered to be “purchasing power parity.” Gale and Tuan, China 

Currency Appreciation, August 2007, 4. 91 Gale and Tuan, China Currency Appreciation, August 2007, 3. 
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U.S. products more expensive in China and Chinese exports cheaper in the United 

States.92

Food Safety Laws and Regulatory Compliance Costs 

In the aftermath of consumer illnesses and several deaths in 2008 owing to the presence 

of melamine in dairy and other food products, awareness and spending on food safety 

compliance increased in China’s agricultural production system. But despite these 

changes, in general Chinese food processors reportedly spend less on regulatory and food 

safety compliance than most firms in the United States.93 Any cost advantage this may 

confer on Chinese agricultural products vis-à-vis imports must be weighed against 

negative perceptions Chinese consumers may have about domestic food safety. Food 

safety compliance costs are therefore likely to increase in order to meet ongoing 

consumer demands for a safer domestic food supply. 

Since the implementation of the Food Safety Law in 2009, provincial agents from the 

Chinese Administration of Quality Supervision, Inspection, and Quarantine (AQSIQ) and 

Chinese Inspection and Quarantine (CIQ) have reportedly increased inspections, and 

compliance costs for food companies and government funding are reportedly rising in a 

number of ways.94 Although the financial impact of investments to build food testing 

laboratories and install equipment to meet stricter food safety controls varies, estimates 

are that per-unit costs throughout China’s food product system may increase by about 

1 percent. Furthermore, these efforts require increased management oversight, the cost of 

which could be the most expensive aspect of compliance.95 

Chinese food safety laws are complex and, as with most regulations in China, 

enforcement varies depending on the distribution channel and the final destination point 

of the product. Products destined for export markets undergo more thorough and stringent 

inspections to prevent foreign market closures. Agricultural goods for export must be 

certified by CIQ; local CIQ officials inspect and sample 15 percent of every export 

shipment, and shipments that fail to meet the proper standards will be suspended. CIQ 

charges a per-shipment fee (RMB 200–300 [$27–40] per ton), but this cost is generally 

viewed by Chinese producers as comparable to certification fees in other countries.96 

Other Government Programs 

Valued added tax exemptions for Chinese farmers 

As discussed in chapter 4, the central government provides VAT exemptions for Chinese 

farmers, giving them a cost advantage in comparison to imports of similar goods. The tax 

exemptions are legally permitted at several points in the production chain, including VAT 

on productive inputs and sales VAT, all of which have the effect of lowering the cost of 

domestic agricultural production and often pricing certain imported products, such as 

 92 For more information on industry views, see appendix D. 93 Industry officials, interviews by Commission staff, Shandong province, China, September 13–15, 2010. 94 Ibid. 

95 Industry official, interview by Commission staff, Shandong province, China, September 15, 2010. 96 Ibid., September 13, 2010. 
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U.S. wheat, out of the Chinese market. 97 The effect of these tax exemptions is to 

encourage Chinese purchasers to buy domestic agricultural goods rather than imports.98

Agricultural tax exemptions 

Since the early 2000s, the Chinese government has shifted its policies from taxing 

agriculture to funding programs that promote rural development and shrinking the 

income gap between rural and urban workers. By 2004, taxes and fees totaling 

approximately 8 percent of the value of farm output had been eliminated.99 In addition, 

other taxes and fees collected from farmers and agricultural processors are frequently 

waived by local officials. While these practices vary significantly by province and 

generally depend on a region’s economic development priorities,100 the net result is to 

lower production costs for Chinese farmers. 

Direct payments and other support programs 

In order to achieve its goal of self-sufficiency in food grains, China makes direct 

payments to farmers who produce certain goods, such as grains, soybeans, and hogs. This 

increases farmers’ net income levels while allowing products to be sold at lower prices in 

the market. For example, direct grain payments increased the net income of farmers 

producing grains by $169 per hectare between 2005 and 2009.101 As with other farm 

support programs, the implementation of direct payments varies by province. Some 

provinces give farmers direct payments for grains based on planted area, while others do 

so based on the quantity produced.102 Payments also vary by product: in 2009, direct 

payments to farmers for grain production averaged $129 per hectare, while in 2010 

payments to farmers for growing high-oil-content soybeans were 10 RMB ($1.33) per mu 

and the payment for each pig raised by small producers was 50 RMB ($6.66).103 While 

direct payments may allow farmers to sell their products at lower costs, these funds 

distort the competitive position of Chinese goods in the market. 

Factors Affecting Product Differentiation 

Like consumers in other countries, Chinese citizens are eating more calories and seeking 

a wider variety of food as their incomes rise.104 Rising incomes allow consumers to be 

less price-conscious in their food choices, opting for better quality or more varied foods 

at higher prices. The desire for higher volumes of food and differentiated products has the 

potential to spur imports from the United States and other large agricultural producers, 

because most of these goods are produced to high quality standards and are seen as 

 97 The VAT is assessed differently depending on the type of product; the VATs on raw agricultural 

products and processed products are 13 and 17 percent, respectively. See chapter 4 for more detailed 

information on the value-added tax. U.S. Wheat Associates, written submission to the Commission, 

September 16, 2010, 4. 98 USDA, FAS, China: Trade Policy Monitoring; VAT Protections, March 19, 2007, 1. 99 For more information, see the discussion on the elimination of certain agricultural taxes in chapter 4. 

100 Industry officials, interviews by Commission staff, Beijing and Shandong province, China, 

September 6–15, 2010. 101 USDA, FAS, China: Grain and Feed; Annual, 2010, March 1, 2010, 16. 102 USDA, FAS. China: Grain and Feed; Annual, 2008, March 1, 2008. 103 USDA, FAS, China: Grain and Feed; Annual, 2010, March 1, 2010, 16. Industry officials, interviews 

by Commission staff, Beijing, Shandong Province, Shanghai, Sichuan province, and Hong Kong, China, 

September 6–21, 2010. 104 Further discussion of Chinese consumption patterns is found in chapter 3. 
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premium products by Chinese consumers. A number of factors differentiate Chinese 

products from imports, including the use of cold storage and refrigerated transportation, 

industry structure, farm management practices, food safety standards, and branding. 

Cold Storage 

Cold storage supply chains are critical to ensuring the quality of perishable goods, but as 

already noted, cold storage is less available in China than in the United States. The lack 

of an efficient, nationwide cold storage transportation network not only leads to high 

rates of spoilage, but also lowers the average quality of goods that find their way to 

market. 105 It is estimated that only 15 percent of meat and 5 percent of fruits and 

vegetables are transported using cold storage in China, compared to more than 90 percent 

for both in the United States. 106 The development of supply chains with complete cold 

storage in China is hindered by many factors, including the fragmented structure of the 

food industries. Small farm plots scattered throughout China result in significant handling 

outside of existing cold storage supply chains. As farmland consolidation and village 

cooperatives become more common in China, investment in cold storage facilities is 

expected to increase. As cold storage is implemented throughout China’s supply chain, 

the quality of domestically produced perishable goods will improve and increase 

competition with high-quality imports.107

When perishable foods, such as fresh fruits and vegetables, are transported outside of a 

chilled environment, shelf life is quickly reduced as the product ripens. The result is 

diminished average quality when the goods arrive at market and higher volumes that 

must be destroyed or converted into animal feed because of spoilage. China’s farm sector 

suffers from both problems. Moreover, even in cases where cold storage facilities exist, 

the lack of knowledge among workers about proper storage temperatures, chilling 

procedures, and ideal controlled atmosphere conditions reduce the effectiveness of cold 

storage throughout China.108

Industry structure and consumer preferences also impact the use and availability of cold 

storage. Particularly in China’s horticultural industries, thousands of small-scale 

household farmers and small traders consolidate products after harvest, and financial 

resources for investing in cold storage are typically not available. Fresh fruits and 

vegetables generally do not enter into cold storage until further up the supply chain, when 

products reach wholesale markets in larger cities after several days in transit. 109 In 

addition, consumer preferences in China have slowed the expansion of cold storage 

facilities even for fresh-chilled products because consumers still prefer local wet markets, 

where perishable products are sold at room temperature. 110 For example, Chinese 

consumers buy larger cuts of meat from butchers at wet markets because they perceive 

 105 Chinese cold storage capacity is estimated to be approximately 7 million cubic meters, compared to 

88.8 million cubic meters in the United States. Bolton and Liu, “Creating an Effective China ‘Cold Supply 

Chain,’” 2006. 106 Industry official, interview by Commission staff, Beijing, China, September 15, 2010; Bolton and Liu, 

“Creating an Effective China ‘Cold Supply Chain,’” 2006. 107 The cold chain system in China’s major cities tends to be of higher quality and more widely available. 

Imported products also benefit from improvements in cold chain storage because they tend to be marketed in 

larger, more affluent Chinese cities. Liu, “More Cold Chain Gives More Choice in China,” September 2009, 

20. 108 Industry official, interview by Commission staff, Beijing, China, September 10, 2010. 109 Ibid., September 6, 2010. 110 Bolton and Liu, “Creating an Effective China ‘Cold Supply Chain,’” 2006, 5. 
5-21

meat sold at room temperature to be fresher than prepackaged meats chilled and sold at 

larger retail outlets.111 

Industry Structure and Land Tenure System

As previously mentioned, the land tenure system and the structure of the Chinese 

agricultural industry increase production costs. But the industry structure also restricts 

industry-wide product quality improvements. The use of modern production techniques 

and good agricultural practices have increased the volume of high-quality products that 

can compete with imports, but the supply of these products is small because 

implementing these practices consistently on many small household farms is expensive 

and difficult. Information distribution in China remains inefficient, and government 

extension services are typically focused on producing higher output and not on quality 

improvements.112 In addition, because farmers have limited land ownership rights, few 

incentives exist for farmers to invest in efficient and environmentally sustainable 

agricultural practices. If China’s farm sector is able to consolidate land holdings, either 

through land leasing or village cooperatives, good agricultural practices will likely 

become more widespread, increasing the ability of Chinese producers to compete with 

higher-quality imports. 

Farm Management Practices

Advanced farm management practices can significantly improve the quality of 

production. For example, drip irrigation, proper thinning, pruning, weed control, and 

mulching can improve the size, color, and flavor of fruits while also increasing disease 

and insect control. In China, the use of advanced farm management practices has been 

increasing, but these types of practices are still not implemented universally.113 On many 

farms, lack of information is restricting the implementation of advanced farm 

management and thus reducing product quality. 

Limited knowledge of modern farming techniques is also causing soil degradation and 

restricting yield growth in China. In order to boost output from their tiny plots of land, 

farmers use intensive agricultural practices, including heavy fertilizer applications and 

double- or triple-cropping.114 Poor on-farm management of soil organic matter, water 

applications, and fertilizer use reduces soil fertility and nutrient levels needed to maintain 

high yields and cost-effective crop production. Inadequate awareness of the proper 

balance and mix of different fertilizers to use, as well as of appropriate application 

practices, result in inefficient releases of soil nutrients, suboptimal growth rates, and 

water and soil pollution.115 The widespread sale of counterfeit and poor-quality farm 

chemicals, feeds, and veterinary drugs also undermines output.116

 111 Industry official, interviews by Commission staff, Beijing, China, September 10, 2010. 112 Industry officials, interviews by Commission staff, Beijing, China, September 6–10, 2010. 113 Ibid., September 6, 2010. 114 Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009, 6. 115 In China, there is a disproportionate use of fertilizers like urea compared to phosphorous and potash 

fertilizers. FAO, “Synthesis of Asia and the Pacific Region’s Perspective on Nutrient Management and Soil 

Productivity,” n.d. 116 Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009, 6. 
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Food Safety

China’s 2009 food safety law has begun to increase compliance costs for some domestic 

agricultural processors, but the law is also beginning to result in higher-quality and safer 

products. Despite some improvements in food quality and safety, however, most Chinese 

consumers still typically view processed foods as less safe and lacking the nutrients that 

fresh products provide.117 Chinese food processors have begun marketing campaigns in 

order to change the negative perception of processed foods.118 

Chinese consumers also typically view imports, both processed and fresh, as higher in 

quality than domestically produced food and safer to eat. As consumer awareness of food 

safety has increased and import volumes of higher-quality products have risen, Chinese 

agricultural producers have been forced to improve their product quality to compete with 

imports. For example, pressure from imported apples has resulted in the wider availability 

of higher-quality, domestically produced fresh apples. 119 With increased competition 

from high-quality imported products, Chinese producers are expected to continue to 

improve their product quality. 120

Branding 

As per capita income continues to grow in China, consumers are increasingly looking to 

buy products that are differentiated by a strong brand reputation. 121 Internationally 

recognizable food brands, often produced locally in China, are some of the most 

recognized brands to Chinese consumers. 122 Overall, Chinese food processors have not 

developed strong well-known national brands because they normally produce items based 

on customer specifications, often under other companies’ independent labels. This 

industry structure lowers processors’ profit margins. Additionally, not having 

recognizable brands generally restricts processors’ ability to develop new markets, 

especially at the global level.123 However, some Chinese companies, particularly in the 

beverage and noodle sectors, have developed brands that are gaining customer 

recognition, and are thus strengthening their market position.124

Factors Affecting Reliability of Supply 

Reliability of supply is an important determinant of a supplier’s competitive position in 

the Chinese market. The availability and supply of agricultural products are first shaped 

by weather conditions, but a number of other factors affect a supplier’s reliability, 

including storage and transportation infrastructure, marketing information systems, and 

water and land availability. 

 117 Industry officials, interviews by Commission staff, Beijing and Shandong province, China, 

September 6–15, 2010. 118 Industry official, interview by Commission staff, Beijing, China, September 6, 2010. 119 See case study on fresh apples in chapter 6. 120 Industry official, interview by Commission staff, Beijing, China, September 5, 2010. 121 Industry official, interview by Commission staff, Shanghai, China, September 14, 2010. 122 Charron, “Agriculture, Food and Beverages Sector Profile: Beijing, China,” December 2008. 123 Li, “Shandong Agricultural Product Exports,” March 2009; industry official, interview by 

Commission staff, Beijing, China, September 6, 2010. 124 Li, “Shandong Agricultural Product Exports,” March 2009; industry official, interview by 

Commission staff, Beijing, China, September 6, 2010; Charron, “Agriculture, Food and Beverages Sector 

Profile: Beijing, China,” December 2008. 
5-23

Storage and Transportation Infrastructure 

For agricultural products produced in China, a reliable supply is generally less assured 

than it is for products coming from other suppliers because of poor or insufficient storage 

and transportation infrastructure. Despite China’s heavy investments in infrastructure in 

recent years, the growth in road networks has not kept up with demand growth. And, as 

noted earlier, the lack of availability of quality storage, including cold storage throughout 

the supply chain, restricts the ability of Chinese producers to reliably supply their 

customers.125

The limited use and availability of cold storage and refrigerated transport in China, which 

is critical to reliably supplying perishable products, results in significant product losses 

during delivery and increases uncertainty for buyers. As a result, according to the 

Chinese National Development and Reform Commission, on average 15 to 20 percent of 

agricultural products are lost during transportation. For some products in certain regions, 

losses could run as high as 30 percent, compared with losses of less than 2 percent in the 

United States.126

While grains are not highly perishable, lack of quality storage impacts the reliability of 

the Chinese grain supply. Although China has ample grain storage facilities, including the 

capacity to store 200 million metric tons of wheat and paddy rice, losses of grain in 

storage to mold and insects reach 8 to 10 percent annually,127 a much higher percentage 

than for most large developed grain-producing countries. However, China’s use of 

mechanized handling and preservation techniques reportedly extends the shelf life of 

grain much more effectively than some other large grain-producing developing countries, 

such as India.128 

The reliability of on-time deliveries of agricultural products in China is compromised by 

inefficient transportation networks. An inefficient freight rail system and traffic jams that 

slow down product movement along the supply chain increases uncertainty for buyers of 

domestic products.129 Because of the time needed to transport goods throughout China, 

imports often have a competitive advantage in markets where there is not significant 

domestic production in the region.130

Marketing Information Systems 

The lack of integrated automated information systems also creates uncertainty in the 

timing of product deliveries.131 Chinese producers have not yet modernized their modes 

of commerce to provide more efficient and reliable product marketing and distribution. 

Most small enterprises and traders use cell phones to talk to clients and suppliers, but the 

majority do not use integrated information systems and do not have automated storage, 

 125 People’s Daily Online, “China’s Rural Roads to Cover 3.5 Million Km by 2011,” October 28, 2010; 

Terreri, “Go West . . . with Caution,” November 1, 2010. 126 Bolton and Liu, “Creating an Effective China ‘Cold Supply Chain,’” 2006; Xiang, “PE Firms Eye 

Rich Harvest in Agricultural Logistics,” June 11, 2010. 127 Government official, interview by Commission staff, Washington, DC, August 19, 2010. 128 Parsai, “India Turns to China for Grain Storage Expertise,” June 18, 2010. 129 Terreri, “Go West . . . with Caution,” November 1, 2010. 130 Industry official, interview by Commission staff, Beijing, China, September 10, 2010. 131 Ibid. 
5-24

transportation, or billing systems. For distribution and sales, it is difficult for Chinese 

marketers to use e-commerce because the law does not recognize e-signatures. 

Water Resource Depletion and Degradation 

As noted above, China’s farm sector does not have an abundant supply of water, and 

resources are under strain from overuse and degradation due to pollution. This situation 

may limit the ability of Chinese farmers to reliably supply sufficient quality and 

quantities of agricultural products, thus creating increased demand for imports. China 

already has a restricted supply of water, with resources per capita that are only about 

30 percent of the world average.132 In addition, water resources in China are unevenly 

distributed by region, with south China (the Yangtze River basin and to the south) 

accounting for 80 percent of the nation’s naturally available water resources, but only 

53 percent of the population and 35 percent of its arable land.133 Demand growth from the 

expanding industrial and urban sectors has increased competition for these limited water 

resources, while overuse by the agricultural sector is driving a drop in groundwater tables 

and causing rivers to run dry.134

The water that is left is also being degraded by industrial, urban, and agricultural 

pollution, which is already harming agricultural output. One-fourth of the water sampled 

along China's two largest rivers—the Yangtze and Yellow—was found to be too polluted 

even for farm irrigation.135 In 2007 it was estimated that 70 percent of China’s rivers were 

severely polluted.136 However, this estimate may have underestimated water pollution by 

more than half because it did not take into account agricultural pollution.137 China does 

not yet have effective water management polices and practices to deal with these 

challenges.138

Land 

The Chinese government has set goals to try to maintain a minimum level of land 

devoted to agriculture, but agricultural land is being threatened by ongoing urbanization, 

industrialization, and desertification.139 As economic development continues and demand 

for land increases, future agricultural output may become uncertain because of reduced 

land availability. 

The total amount of agricultural land has not yet fallen as a result of the increased 

competition for land, but the land in use has shifted into areas with marginal productivity. 

Land that was previously left fallow by farmers has been pushed back into production.140

As production shifts onto less productive land, future increases in yield and output to 

 132 The world average is just over 7,000 cubic meters (m3

) of water per capita, but Chinese resources are 

slightly over 2,000 m3 of water per capita. Lohmar et al., China’s Ongoing Agricultural Modernization, 

April 2009, 18. 133 Southern China’s average rainfall is just over 2,000 mm/year, compared to the north, which averages 

only 200–400 mm/year. Xie et al., “Addressing China's Water Scarcity,” January 1, 2009, 10. 134 Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009, 17. 135 Roberts, “China Faces a Water Crisis,”April 15, 2009. 136 Newsweek, “Where Rivers Run Dry,” April 16, 2007. 137 Graham-Harrison, “China’s Water Pollution Level Higher Than Estimated in 2007,” February 10, 

2010. 138 Lohmar et al., China’s Ongoing Agricultural Modernization, April 2009, 19. 139 EC, DGA, “China: Out of the Dragon’s Den?” May 2008, 4. 140 Roberts and Anders, Developments in Chinese Agriculture, July 2005, 7. 
5-25

meet growing demand may be difficult to achieve, in effect limiting the reliability of 

Chinese supply. This may result in increased Chinese demand for land-intensive 

agricultural crops from international suppliers. 
5-26

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6-1

CHAPTER 6 

Competitive Factor Case Studies 

Overview 

This chapter describes competitive conditions in selected Chinese agricultural sectors: 

fresh apples, pork, processed foods, and wheat. These sectors were chosen to illustrate 

China’s competitive factors, and to explain which factors have been used to capitalize on 

rapid changes to China’s food production system. Salient competitive factors affecting 

China’s agricultural sector as a whole may not include some factors that are key to U.S. 

exporters entering the Chinese market (box 6.1). 

China is a major horticultural producer because many horticulture products require 

significant labor resources to plant, tend, and harvest. The Chinese fresh apple industry 

illustrates how low labor costs benefit China’s farm sector, especially in terms of lowerquality exports. The U.S. apple industry, also one of the world’s largest producers and 

exporters, competes with Chinese apples in the high-quality segment of export markets 

and has been increasing exports to China to take advantage of China’s growing wealth 

and consumption. 

Pork is the most widely consumed meat in China and accounts for approximately 

65 percent of animal protein consumption there. Chinese government policies have 

encouraged domestic production of pork and insulated many small-scale, low-quality 

producers from global market conditions. However, rising labor and feed costs, as well as 

increasing demand among Chinese consumers for higher-quality pork, may lessen 

Chinese pork competitiveness in the future, creating opportunities for global exporters 

from the United States and Europe. 

China is one of the world’s largest processed food exporters, behind only the European 

Union (EU-27) and the United States. Rising disposable income and urbanization are 

driving demand and consumption growth in China. Processed food production in China is 

shifting from a reliance on low-cost labor to more capital-intensive and heavily 

mechanized production processes that are similar to the advanced methods used in other 

countries that are significant producers of processed foods. Many U.S. food processors 

compete with Chinese products both in China and in third-country export markets. 

Wheat is a staple food that China has identified as important to China’s food security. 

Despite limited land and water resources for wheat production, the central government 

has set domestic and trade policies to maintain domestic production and control import 

supplies. In the aggregate, government policies have boosted China’s domestic wheat 

production and insulated producer and consumer prices from volatile global wheat 

markets. 
6-2

BOX 6.1 Certain Chinese Import Restrictions Negatively Affect the Competitiveness of U.S. Exporters More

Than They Benefit That of Chinese Producers _ 

For many U.S. exports to China, the shipped volumes are extremely small relative to Chinese production and 

consumption. Thus, even if a given Chinese import restriction on U.S. exports were removed (such as a tariff or 

nontariff measure) and resulted in a significant percentage change in U.S exports, the change would still be 

small relative to China’s domestic consumption. Further, many U.S. exports to China do not directly compete 

with the majority of Chinese domestic production because of their high quality, high cost, or other differences. 

China’s markets for apples and for pork can be used to illustrate the interaction between imports and domestic 

production in China. China produces nearly half of global production of both pork and apples. In 2009, China 

produced approximately 32 million metric tons (mt) of apples and imported 61,000 mt. In that year, China 

produced 48.9 million mt of pork and imported 600,000 mt.a

 For both apples and pork, U.S. exports account for a 

large share of China’s imports, but are small relative to consumption.b

 U.S. apple exports to China are restricted 

by the lack of pest risk assessments on most varieties from most U.S. states. U.S. pork exports to China are 

restricted by differences in sanitary requirements, and in 2009 were further restricted by bans related to the 

presence of A1H1 influenza in the United States. Because of the small volume of imports relative to Chinese 

production, changes in China’s import policies for apples or pork that would have significant effects on U.S. 

export volumes would be expected to have little effect on the competitive conditions facing China’s producers. 

Furthermore, for both apples and pork, imports largely do not compete directly with the bulk of Chinese 

production. Traders report that imported apples are sold through different channels of distribution, and that 

changes in the volume in one segment have little impact on prices in the other.c

 Most Chinese consumers prefer 

pork sold fresh through wet markets, a channel into which frozen imports do not enter. d 

______________ 

a

 Sum of reported global exports of fresh or chilled pork, frozen pork, edible pork offal, and prepared pork 

products from all sources; GTIS, Global Trade Atlas database. b

 In 2009, U.S. exports accounted for 40 percent of global apple exports to China on a quantity basis, but 

much less than 1 percent of China’s consumption. According to official statistics, U.S. pork exports to China in 

2009 accounted for 6 percent of global pork exports to China but were equivalent to much less than 1 percent of 

consumption. c

 Industry official, interview by Commission staff, Beijing, China, September 6, 2010. d

 Industry official, interview by Commission staff, Washington, DC, May 6, 2010. 

Fresh Apples 

The Chinese apple industry is competitive in both domestic and export markets primarily 

because of its abundant supply of low-cost labor. Nonetheless, other factors, such as low 

quality and industry structure, restrict its ability to compete in certain market segments. 

Chinese growers primarily supply market segments that focus on cost, while the U.S. 

industry provides high-quality apples to higher-income market segments through 

established retail outlets. Chinese producers, however, have been improving their quality; 

they are entering higher-quality segments of the market, and they have started to capture 

larger shares of import growth than U.S. apples in certain export markets, such as India. 

If the Chinese industry continues to improve the quality of its production by upgrading its 

orchard management techniques and post-harvest treatment, Chinese apples may continue 

to expand their market share in some countries. On the other hand, production costs in 

China are rising quickly, particularly for labor and certain inputs, and domestic volumes 
6-3

are heavily concentrated the Fuji variety.1 If demand shifts away from the Fuji variety, if 

production costs rise, and if the improved farm management methods cease to be costeffective, China’s low-cost advantage in producing apples may diminish. 

 

Industry Overview 

Global Position 

China is the world’s largest apple grower, accounting for approximately 50 percent of 

global production in 2009/10 (table 6.1). Rising per capita income levels in China have 

been driving increased consumption of fresh horticultural products, including apples. In 

response, Chinese apples growers have expanded their acreage and production in order to 

meet this growing demand, a trend that is expected to continue in the future. Recent 

growth in acreage has occurred primarily in the Shaanxi, Shanxi, and Gansu provinces 

because of ideal growing conditions and a wider availability of land for expansion.2

TABLE 6.1 Fresh apples: Production, consumption, and trade, selected countries, marketing year 2009/10 (1,000 

metric tons) 

Country Total productiona

 Fresh consumption Imports Exports

China 31,680 24,941 61 1,201

EU-27 12,210 8,298 594 1,216

United States 4,403 2,319 182 768

Rest of World 14,365 13,744 4,133 2,048

Total 62,658 49,202 4,970 5,233

Source: USDA, FAS, PSD Online (accessed January 13, 2011). 

Note: Consumption does not include apples that are further processed into products such as juice and slices. 

 aTotal production includes apples for the fresh market as well as for processing. 

In China, the Fuji apple variety accounts for almost 70 percent of total production.3

 Over 

time, consumer preferences among apple varieties have remained relatively stable, so the 

Fuji variety is expected to continue to account for a high percentage of production. 

Instead of shifting new plantings into different varieties to match consumer preferences 

which are beginning to widen, the industry is focused on upgrading the quality of 

production of Fuji apples through improved rootstocks 4 and orchard management 

techniques.5

 1

 In Shaanxi and Shandong, fertilizer prices increased by 10 and 30 percent, respectively, in 2009, while 

pesticide prices rose by between 5 and 10 percent. Reportedly, in the Shaanxi province, total production 

costs—which include fertilizer, pesticide, fruit bagging, and labor––were approximately $2,315 per hectare in 

2009, a sharp increase from 2008. On the other hand, farmgate prices for apples in Shaanxi and Shandong 

increased by between 20 and 30 percent in 2009. USDA, FAS, China: Fresh Deciduous Fruit; Annual, 

November 17, 2009, 3; industry officials, interviews by Commission staff, Beijing, China, September 6, 2010; 

USDA, FAS, China: Fresh Deciduous Fruit; Annual, 2010, November 5, 2010, 4. 2

 USDA, FAS, China: Fresh Deciduous Fruit; Annual, November 17, 2009, 3. 3

 In comparison, the leading variety produced in the United States is Red Delicious, which accounts for 

approximately 30 percent of total production. Industry officials, interviews by Commission staff, Beijing, 

China, September 6, 2010; USDA, FAS, China: Fresh Deciduous Fruit; Annual, November 17, 2009, 3. 4

 Rootstocks are trees bred specifically for the performance of their roots. Different rootstocks have been 

developed for specific purposes, such as the size of the tree, disease resistance, and certain temperature 

conditions. 5

 Industry official, interview by Commission staff, Beijing, China, September 6, 2010. 
6-4

Because of its large supply of low-cost labor, China is increasingly competitive in 

international markets and is the world’s primary low-cost apple supplier.6

 China is also 

the world’s largest single-country apple exporter by volume, even though exports 

accounted for only 4 percent of domestic production in 2009. 7

 While the quality of 

production has improved over time, the Chinese apple industry typically competes in the 

lower-quality segment of the global market, where competition among suppliers is based 

primarily on price. In addition to export markets, another major outlet for Chinese apple 

production is the juicing sector. Typically between 4 and 5 million metric tons (mt) of 

apples are processed each year, primarily into juice, depending on the relative prices for 

the fresh market versus for processing. Chinese imports of fresh apples, primarily from 

the United States and Chile, more than doubled in value between 2005 and 2009 in 

response to strong consumer demand for high-quality imported apples. 

Industry Structure 

The structure of the Chinese apple industry consists of millions of small household farms 

that grow apples. This differs from the structure in the United States, which is 

characterized by orchards on plots of several hundred hectares. Farms that grow apples in 

China generally range in area from 5–10 mu (about 0.33–0.66 hectares), but many are 

even smaller. The typical household farm produces only about 20 mt of apples per year.8

The small scale of apple farming in China results in inefficient supply chains in 

comparison to other major producers.9

 

Domestic Marketing Outlets 

Product distribution within the Chinese market occurs through four different types of 

outlets: traditional wet markets and fruit stalls, larger urban markets, supermarkets, and 

large wholesale export markets. Traditional local wet markets are the most common 

marketing outlet for the Chinese apple industry. Most of the fruit is first collected by fruit 

traders, who consolidate the product from a number of farms and then sell it to other 

traders or vendors.10 Apples sold through local wet markets are almost never placed in 

cold storage. Sales of apples through supermarkets have increased greatly in recent years, 

but this outlet still only accounts for a small share of consumption. 

The Chinese fresh apple market consists of two distinct channels. The first channel serves 

the wealthier, mainly urban segment of the population, in which high-quality apples are 

sold through supermarkets, restaurants, hotels, and smaller urban fruit stalls. Apples sold 

through this channel consist mostly of imports, but also include higher-quality 

domestically produced apples. The second channel serves most other Chinese consumers, 

with the majority of sales through traditional local wet markets. Apples sold in this 

channel are domestically produced and of mixed quality. Because of these distinct 

channels, there is little correlation between supplies and prices of domestically produced 

and imported apples. The price premiums of imported over domestically produced apples 

 6

 Poland is also a large low-cost supplier of apples, but its exports are destined primarily for two markets: 

Russia and Ukraine. GTIS, Global Trade Atlas database. 7

 In comparison, in 2009 the United States exported approximately 17 percent of total production. USDA, 

FAS, PSD Online (accessed November 2, 2010). 8

 Industry official, interview by Commission staff, Beijing, China, September 6, 2010. 9

 Industry official, interview by Commission staff, Beijing, China, September 6, 2010; Honglin et al., 

“Producing and Procuring Horticultural Crops with Chinese Characteristics,” August 7, 2008, 3. 10 Industry official, interview by Commission staff, Beijing, China, September 6, 2010. 
6-5

vary, but generally reflect the volume of apple imports rather than the price of domestic 

supply.11

Factors Affecting Competitiveness 

Labor Costs 

Low wage rates provide Chinese apple producers primary competitive advantage because 

labor accounts for the largest portion of production costs.12 Apple production is a laborintensive process, since pruning, thinning, and harvesting must be done manually. 

Because Chinese producers have access to an abundant supply of low-cost labor, growers 

are able to use significantly more labor per hectare than in other major producing 

countries while remaining one of the world’s low-cost suppliers. 

Despite the cost advantage currently provided by low wage rates, competition for labor 

from other industries has reduced labor availability in many apple-producing provinces 

and increased wages. Many small household farmers harvest their own apples and do not 

need to hire outside labor, but larger apple producers (5–10 mu) that hire laborers 

typically pay on average between 50 RMB ($6.66) and 60 RMB ($8.00) per day.13

However, labor costs vary by province, and they have dramatically increased in the major 

apple-producing provinces of northeastern China in 2009. For example, in Shaanxi 

province, labor costs increased by 20 percent in 2009 to an average of $8.80 per day per 

worker; in Shandong, one of the largest apple-producing provinces, daily labor costs 

almost doubled in 2009 to $13.25 as a result of continued economic development in the 

province.14 In comparison, the average wage in the United States for field labor in 2010 

was $10.12 per hour.15 

The lack of mechanization in Chinese apple production increases the use of labor, as 

growers often pollinate by hand, cover individual apples with bags, apply pesticides and 

fertilizers from hand-pumped backpacks, and transport apples in bags through the orchard 

on foot. These practices increase the average number of hours worked per acre in Chinese 

apple orchards to over 1,300 hours per year, compared with an average of 200 hours in 

Washington state.16 Nonetheless, low wages still reduce China’s total cost relative to 

other producers. 

Industry Structure 

As discussed in chapter 5, China’s land tenure system results in a farm structure 

comprising many small farms, many fragmented into still smaller plots. For the apple 

industry, small-scale production creates an inefficient supply chain involving high 

transaction and distribution costs compared to other major global apple-producing 

 11 Ibid. 

12 Estimates vary, but labor accounts for anywhere between 35 percent of costs in China to 61 percent of 

variable costs in Washington state. FruitGrowersNews.com, “Editor Studies the Chinese Apple Industry with 

IFTA,” n.d.; Gallardo and Hinman, “2009 Cost Estimates of Establishing and Producing Gala Apples in 

Washington,” n.d., 3. 13 Industry official, interview by Commission staff, Beijing, China, September 6, 2010. In China apple 

workers are typically paid by the day, especially for jobs such as applying pesticides or bagging trees, but 

some farms may pay workers based on the quantity harvested. 14 USDA, FAS, China: Fresh Deciduous Fruit; Annual, November 17, 2009, 2. 15 USDA, NASS, “Farm Labor,” August 19, 2010, 7. 

16 Zeitner, “China’s Apple and Pear Industry: Challenges and Opportunities,” January 2006, 10. 
6-6

countries that are able to reap the benefits of economies of scale. This structure weakens 

China’s competitiveness in global apple markets. 

Because apples are grown on millions of small household farms, getting the product to 

the market requires several links in the supply chain that consolidate the product, each 

incurring additional cost. Approximately 80 to 90 percent of apples are first sold to small 

traders who buy directly from farmers in the field.17 Even at the second point of sale, the 

product is generally sold to other small traders before being sold to packinghouses, 

supermarkets, processors, or specialized supply firms. Despite their increasing prevalence 

in urban areas, large supermarkets are still almost completely disconnected from 

production and buy the majority of their produce at wholesale markets after the produce 

has been compiled by smaller traders.18 The price paid by the average Chinese consumer 

is significantly higher than the cost of production because the product changes hands so 

many times before getting to the consumer. 

While the industry structure results in high transaction costs in the marketing and 

distribution system, it also gives producers less reason to invest in improved farm 

management techniques and lowers the quality of apples produced. Incentives for farmers 

to invest and improve their land’s productivity and quality are limited by the continued 

legal uncertainty about their land use rights.19 Further, because there are so many small 

producers, the distribution system lacks consistent quality oversight and 

standardization.20 

Farmers’ cooperatives are being established in the Chinese apple industry to combat the 

inefficiencies associated with the current farm structure. With cooperatives, farmers 

operate individual plots of land but consolidate the product and centralize administrative 

control through a village leader or “dragonhead.” As a result, farmers may be able to 

control more of the value chain, standardize farm management practices to improve 

quality, centralize resource distribution, finance investments in new machinery, and 

reduce transaction costs. However, the effectiveness of cooperatives is currently 

restricted by a lack of skilled village managers,21 and while the number of cooperatives is 

increasing they still only account for a small share of total Chinese apple production.22 

Product Quality

Product quality is a key factor affecting Chinese competitiveness in both the domestic 

and overseas apple markets. The flavor, appearance, size, shelf life, and overall condition 

of Chinese apples is restricted by traditional methods of irrigation, fertilization, and farm 

management.23 For example, in Shandong province production practices include flood 

irrigation and the application of manure and top-dressed fertilizer, two production 

practices that are considered inefficient. Growers also rarely use improved rootstocks. 

Product quality is also affected by the lack of financial resources for small-scale farmers 

 17 Industry official, interview by Commission staff, Beijing, China, September 6, 2010; Honglin et al., 

“Producing and Procuring Horticultural Crops with Chinese Characteristics,” August 7, 2008, 6–7. 18 Hughes and Ning, “Farmers Slowly Cultivate a New Image,” May 31, 2010. 

19 See chapter 5 for more detailed information on land costs. Industry officials, interviews by 

Commission staff, Beijing, China, September 6, 2010. 20 Gao and Thornsbury, “Increasing Food-Safety Protection: Fresh Apple Markets in China,” March 2008, 

3. 21 Industry official, interview by Commission staff, Beijing, China, September 8, 2010. 22 Industry officials, interviews by Commission staff, Beijing, China, September 6–10, 2010. 23 Peng et al., “Fertigation Management in Young Apple Trees in Shandong, China,” December 18, 2008. 
6-7

to invest in on-farm cold storage. As a result, apples generally do not enter into cold 

storage until they reach wholesale markets in larger cities, a delay that lowers product 

quality. Reportedly, only 5 percent of total apple production is transported using cold 

storage, and most of that is destined for export markets.24 In comparison, imports into 

China use a complete cold storage supply chain, which increases costs but maintains the 

quality of the product. 

Although imports and domestic production typically use different marketing channels, 

increased import volumes have forced the Chinese industry to make changes.25 Growers 

have begun implementing methods to improve production and quality. For example, 

some Shandong apple farmers are applying fertilizers more prudently, and fertilizer 

application rates are slowly falling as packinghouses and other traders increase their 

oversight.26 In addition, in 2005 the government launched a subsidy program to cover 

individual apples with bags; this improves apples’ quality by protecting them from 

weather and pests.27 The practice of bagging apples is becoming increasingly common.28

 

As producers continue to implement better, but more costly, orchard management 

practices, Chinese quality has been improving to the extent that some domestic 

production now competes with U.S. imports in terms of color, shape, and general 

appearance.29 The prices of the highest-quality Chinese apples have risen to levels that 

are almost comparable to imported apple prices.30

Pork 

In the past, Chinese pork products were competitive with imports owing to the low cost 

of labor. As China’s pork industry shifts to a production model using more capital 

(through mechanization) and fewer laborers, the advantage of low labor costs has 

declined. Feed costs now account for a greater share of the delivered cost than labor. As 

feed costs rise because of greater demand, Chinese producers become less competitive 

relative to other global pork-producing countries because China’s domestic grain prices 

are relatively high. Currently, government payments and trade policies––e.g., tariffs, nontariff measures (NTMs), and value-added tax (VAT) policies––have kept the delivered 

cost of Chinese pork competitive with imports. Without these government measures, the 

delivered cost of domestic pork would be far higher, and imports would likely capture a 

greater share of China’s market. 

 24 Industry officials, interviews by Commission staff, Beijing, China, September 10, 2010. 

25 Ibid., September 6, 2010. 

26 USDA, FAS, China: Fresh Deciduous Fruit; Annual, November 17, 2009, 3; industry officials, 

interviews by Commission staff, Beijing, China, September 6, 2010. 27 USDA, FAS, China:Fresh Deciduous Fruit; Annual, 2006, September 22, 2006, 3. 28 The Chinese Ministry of Agriculture provides cash subsides for the purchase of the bags, which are 

normally made of paper and cost around $0.01, in export-oriented provinces. Gao, “Regulating Trade with a 

Systems Approach,” 2008, 81; USDA, FAS, China: Fresh Deciduous Fruit; Annual, 2006, September 22, 

2006, 3. 29 Despite the improved appearance of high-quality Chinese apples, most have not developed the 

sweetness and flavor needed to fully compete with imports. Industry official, interview by Commission staff, 

Beijing, China, September 6, 2010. 30 Industry officials, interviews by Commission staff, Beijing, China, September 6, 2010. 
6-8

Industry Overview 

Global Position 

China is the world’s largest producer and consumer of pork, accounting for nearly onehalf of global production and consumption in 2009 (table 6.2).31 At the end of 2009, there 

were an estimated 469 million swine in China and 49 million productive sows.32 China is 

the world’s third-largest pork-importing country, with 5 percent of global imports in 

2009, and with 4 percent of global exports, it is the fourth-largest pork exporter behind 

the United States, 33 the EU-27, and Brazil. 

TABLE 6.2 Pork: Production, consumption, and trade, selected countries, 2009 (1,000 metric tons) 

Country Total production Consumption Imports Exports

China 48,905 48,823 a270 232

EU-27 22,159 20,782 38 1,415

United States 10,442 9,013 378 1,857

Brazil 3,130 2,423 0 707

Russia 2,205 3,049 845 1

Rest of World 13,632 16,251 3,980 1,429

Total 100,473 100,341 5,511 5,641

Source: USDA, PSD, accessed November 2, 2010. 

 aData is reported in carcass weight equivalent. Chinese pork imports are largely edible offal. Imports on a 

product weight basis in 2009 were 579,000 metric tons. GTIS, Global Trade Atlas database. 

Industry Structure 

In China, production of the primary input into pork production, live swine, is of three 

main types: backyard producers, “specialized households” producing from 30 to several 

hundred hogs per year, and commercial operations producing 500 or more hogs per year 

(figure 6.1). In 2003, it was estimated that backyard producers supplied 80 percent of 

Chinese swine production, specialized households 15 percent, and commercial operations 

5 percent.34 Since then, commercial operations have increased rapidly, while the share of 

production accounted for by backyard producers has declined. By 2008, China’s Ministry 

of Agriculture estimated that 56 percent of hogs slaughtered in China were produced by 

farms with 50 or more hogs.35 

 31 The United States is the third-largest producer of pork and accounted for approximately 10 percent of 

global production in 2009. 32 USDA, FAS, China: Livestock and Products; Semi-Annual, March 2, 2010, 4–5. In comparison, there 

were an estimated 64.9 million swine in the United States, with 5.9 million kept for breeding. USDA, NASS, 

Quarterly Hogs and Pigs, June 25, 2010, 1. 33 The United States is the world’s largest exporter of pork. Most U.S. pork is consumed domestically, 

but exports account for a generally increasing share of U.S. pork production—approximately 18 percent in 

2009. 34 Somwaru, Xiaohui, and Tuan, China’s Hog Production Structure and Efficiency, 2003, 6. 35 USDA, FAS, China: Livestock and Products; Annual, September 14, 2010, 5. However, some industry 

sources estimate that the share of China’s pork production from farms with less than 50 hogs was still at least 

30 percent in 2009; industry official, interview by Commission staff, May 6, 2010. 
6-9

FIGURE 6.1 Swine production at a specialized household in Sichuan province, China 

Source: Commission staff. 

At this specialized household, swine are housed in barns which are open to the elements. Workers live next to the 

barns in close proximity to the pigs. This is distinct from commercial operations, where pigs are isolated from the 

elements and are separated from human dwellings. 

Domestic Marketing Outlets 

In China, the major marketing outlets for pork include wet markets, supermarkets, and 

food consumed away from home. A significant share of China’s meat is consumed away 

from home; recent estimates vary, but are as high as 50 percent.36 Consumption away 

from home includes roadside stands, as well as quick-service and other restaurants. These 

outlets may source pork from wet markets, supermarkets, directly from pork processors, 

or through imports. 

The vast majority of meat consumed in China, including pork, is purchased fresh, rather 

than chilled or frozen. Larger cuts and whole carcasses are displayed in the wet market 

and may be cut to order. In general, Chinese consumers prefer that food, including meats, 

be as fresh as possible. However, purchases of chilled and frozen pork from supermarkets 

are increasing with improvements in the cold chain37 and are now considered by some 

 36 Gale and Huang, Demand for Food Quantity and Quality in China, 2007, 21–22; Latner, Who is 

Feeding China? 2010, 10. 37 The cold chain includes both cold storage and transportation. 
6-10

Chinese consumers to be safer than purchases from wet markets.38 Imports, which are all 

either chilled or frozen, currently account for a small share of China’s pork consumption. 

The majority of imported pork is limited to frozen edible offal (such as organ meat), 

further reducing the direct competition between imports and the majority of pork 

produced in China. 

Factors Affecting Competitiveness 

Government Support 

Much of China’s recent support for pork production was a response to shortages of pork 

in 2007/08 following the widespread outbreak of blue ear disease, later identified as 

porcine reproductive and respiratory syndrome (PRRS). In 2007 and 2008, China lost as 

many as 10 million swine to PRRS. 39 In an effort to rebuild the herd, the Chinese 

government expanded the level of subsidies available to swine producers, especially 

commercial operations. In 2009, government subsidies for infrastructure improvements to 

commercial hog farms were estimated at $366 million. Other subsidies available to swine 

producers in 2009 included a per-head subsidy for producing sows, insurance, and 

subsidies for genetic improvements.40 

Additionally, the Chinese government implemented a market intervention program that 

purchases pork for its central reserve system whenever the price of pork falls below six 

times the price of grain.41 In April 2010, the hog-to-grain price ratio fell below that level, 

and some provincial governments began purchasing pork for reserves. The price of pork 

subsequently rebounded.42

Labor and Feed 

China’s swine producers, particularly its smaller producers, use more labor and less feed 

grain than producers in the United States. China’s smaller producers substitute some crop 

residues and food scraps for feed grains, essentially substituting labor (used to collect and 

haul the residues and waste to the farm) for feed costs. Typically, as the scale of 

operation increases, the share of labor in total costs falls, while that of feed rises. In 2007, 

it was estimated that feed accounted for 43 percent of the total cost of production for 

backyard swine producers in China, while labor accounted for 20 percent. For specialized 

households, feed accounted for 55 percent of total swine production costs, while labor 

accounted for 7 percent.43 By comparison, feed costs accounted for 41 percent of total 

costs for U.S. “feeder-to-finish” 44 swine producers in 2007, and labor accounted for 

5 percent.45 

Two trends have eroded the production cost advantage formerly enjoyed by China’s 

domestic swine industry. First, labor has grown more expensive, as more off-farm 

employment opportunities have become available. As the opportunity cost of labor has 

 38 USDA, FAS, China: Livestock and Products; Annual, September 14, 2009, 6. 39 Ibid., September 25, 2007, 1. 

40 USDA, FAS, China: Livestock and Products; Semi-Annual, March 2, 2010, 4–5. 41 Ibid., 5. 

42 USDA, FAS, China: Chinese Government Purchases Pork to Support Local Prices, April 12, 2010. 43 Wang and Xiao, “Development of the Hog Industry and Its Integration in China,” 2007, 14. 

44 A feeder pig is a young hog, typically 40-50 pounds in weight. Feeder-to-finish production includes 

raising swine from the feeder stage through finishing for slaughter. 45 USDA, ERS, U.S. hog production costs and returns per hundredweight gain, 2009. 
6-11

increased, China has moved towards larger, more modern swine production facilities. The 

second factor eroding China’s cost advantage is that feed accounts for a larger share of 

total cost in modern swine production facilities, and the price of feed has increased 

substantially in recent years, both globally and in China. 

Feed has the largest effect on delivered cost because it accounts for the majority of 

“farrow-to-finish”46 production costs in both China and the United States.47 Swine feed is 

often formulated from corn and soybean meal. China’s feed costs are thus heavily 

influenced by corn and soybean meal prices, which in turn are affected by a variety of 

factors including weather, demand levels, and government policies in China, as well as 

international prices. Feed costs fluctuate throughout the year, but are reportedly higher in 

China than in the United States because corn and soybean meal are costlier in China 

(table 6.3).48 

TABLE 6.3 Comparison of corn and soybean meal prices in China and the United States (dollars per metric ton) 

Items 2007 2008

Corn 

 Chinaa 231 242

 United Statesb

 147 201

Soybean meal 

 Chinaa 408 555

 United Statesc

 226 370

Sources: USDA, FAS, China: Grain and Feed; Annual, 2009, March 3, 2009, 22; USDA, ERS, Feed Yearbook, Table 

12; USDA, FAS, China: Oilseeds and Products; Annual, 2008, March 1, 2008, 39; USDA, FAS, China Oilseeds and 

Products; Annual, 2009, April 15, 2009, 38; USDA, ERS, Oil Crops Yearbook, Table 4. 

a

Average wholesale prices in both a producing region and a consuming region for the calendar year. b

Central Illinois cash price for no. 2 yellow corn for marketing year beginning the previous September 1. c

Decatur, Illinois, price for 48% protein soybean meal for marketing year beginning the previous October 1. 

Feed costs are also affected by feed conversion ratios (FCR), or the amount of feed 

needed to generate a unit increase in animal weight. The lower the FCR, the lower the 

cost of swine delivered to market. China’s backyard swine producers have traditionally 

used breeds of swine that are less efficient at converting feed into weight gain, thus 

requiring more feed per pound of weight gain. 

As the price of China’s feed grains has increased, the production cost advantage of 

Chinese swine producers has declined. Before 2003, comparisons of the delivered cost of 

swine in China and the United States found that this cost was lower in China. More 

recent estimates have increasingly found that swine production costs in China now 

generally exceed those in the United States (table 6.4). 

As shown in table 6.2, China is largely self-sufficient in pork production. However, 

China increasingly imports inputs for swine feed in the form of soybeans,49 imports of 

which have more than doubled in volume over the past 5 years.50 Chinese government 

import policies encourage the import of this primary input into pork production, while

 46 Farrow-to-finish swine production encompasses the entire life cycle of swine raised for slaughter, from 

birth (farrowing) through finishing for slaughter. 47 For producers that purchase feeder pigs, the cost of feeder pigs is also a major component of cost. 48 Industry official, interview by Commission staff, Shandong province, China, September 13, 2010. 49 Imported soybeans are crushed to produce soybean oil for human consumption and soybean meal for 

animal feed. Soybeans yield approximately 20 percent oil and 80 percent meal. 50 China’s imports of corn have also increased. China imported over 1.5 million mt of corn in 2010 

compared to 65,000 mt in 2006. GTIS, Global Trade Atlas database (February 14, 2011). 
6-12

TABLE 6.4 Swine production: Comparison of delivered cost between China and the United States 

China United States Data date Source 

$0.852/kg (average) $0.866/kg 1998 Wang, “China: Pork Powerhouse of the 

World,” 2006. 

$0.845/kg (commercial) $0.902/kg 2002 Fabiosa, Hu, and Fang, “A Case Study,” 

2005. 

$1.270/kg 1.082/kg 2003 Hartog, “Global Perspective on Integrated 

Pork Production,” 2005. 

$1.654–$1.764/kg $1.058/kg 2010 Industry representative, interview by 

Commission staff, 2010. 

Source: Calculations by Commission staff, based on referenced publications. 

Note: Average annual exchange rate data are from International Monetary Fund (IMF) database (accessed 

December 8, 2010). 

discouraging the import of pork; China’s tariffs on soybeans are low, at less than 

3 percent, compared to China’s 12 percent tariffs on most pork imports. In addition, a 

VAT is not assessed on soybeans or corn imported by state trading enterprises in China, 

further lowering the cost of soybeans relative to imported pork. Other NTMs discussed in 

greater detail in chapter 9 further limit China’s pork imports. A reduction in government 

support for swine producers, a reduction in pork tariffs, or elimination of NTMs affecting 

pork would make Chinese pork less competitive compared to imports. 

 

Quality of Supply 

Backyard swine farmers labor under several disadvantages compared to large commercial 

Chinese pork producers. Hogs from traditional backyard producers vary widely in 

composition and overall size, hampering mechanized processing. Backyard producers are 

less able to control disease. They are also less likely to contract with slaughterhouses to 

ensure a consistent supply.51 As each backyard producer produces only a few head per 

year, processors that depend on consistent deliveries in order to maximize their capacity 

utilization must either contract for delivery from many small producers or add an 

additional link (and cost) into the procurement chain in the form of a consolidator. 

Further, traditional backyard producers do not have large capital investments in 

production facilities. This makes it easier for them to exit the industry when returns are 

low, contributing to the volatility of swine supplies in China.52 

Consumer Preferences 

Many consumers in China display a relatively greater preference for cuts considered less 

desirable in the West, such as offal and cuts from the shoulder as compared to loin cuts, 

which are typically preferred in the United States and Europe. Many Chinese consumers 

also prefer cuts with a higher fat content.53 This may confer some advantage on Chinese 

producers raising traditional breeds of swine that have a higher ratio of fat to lean, and 

may offset some of the disadvantage of lower feed efficiency. 

 51 USDA, FAS, China: Livestock and Products; Semi-Annual, March 2, 2010, 4. 52 Industry officials, interviewed by Commission staff, Shandong province, China, September 16 and 18, 

2010. 53 Ortega, Wang, and Wu, “Food Safety and Demand,” 2009, 53. 
6-13

Processed Foods 

For the Chinese food processing sector to meet the growing demand––both domestically 

and in export markets––for high-quality, low-cost processed foods, it will have to do two 

things: improve the quality of its raw materials through better farm management 

practices, and find cost-effective ways to invest in capital-intensive production lines to 

tamp down rising labor costs. Foreign direct investment (FDI) and government assistance 

have provided the technology and capital needed for many food processing industries in 

China to mechanize. However, the small scale of Chinese farming, rising farm labor 

costs, the lack of advanced farm management practices, and poor transportation 

infrastructure reduce the quality of raw materials and increase transaction costs. In 

addition, while food safety regulations and regulatory compliance have generally 

improved, a widespread consumer perception still persists that Chinese processed foods 

lack food safety controls. This perception may restrict global demand for Chinese 

products in the future. 

Industry Overview 

Global Position 

China is among the world’s largest producers and exporters of processed foods54 and is 

the leading exporter of several products, including apple juice, canned peaches and pears, 

instant noodles, and dehydrated garlic. Chinese processed food production has been 

growing at about 20 percent annually in recent years, largely in response to rising 

domestic disposable income, urbanization, and the trend toward higher quality and more 

convenience in food purchases.55 Throughout the world, processed food production is 

mostly a capital-intensive, highly mechanized activity. But in China food processors 

typically employ relatively more labor and less mechanization. Despite the greater use of 

labor, China is able to compete in global processed foods markets because of labor’s 

availability at a low cost. 

Industry Structure 

The Chinese processed food sector consists of about 40,000 firms.56 Operations vary 

dramatically in their use of labor and capital in production, depending on the nature of the 

end product. Manufacturers source raw agricultural products from the farming sector as 

inputs into processed food production. As discussed in chapter 5, the small size of the 

average farm and the fragmented geographic location of the farm sector in China results 

in a variety of models for sourcing raw materials. Small farm sizes typically mean that 

processors are required to source their materials from a large number of farmers, each 

supplying a small volume of their input needs. Food processors typically source from a 

 54 Processed foods can be defined as agricultural products that undergo some form of further 

manufacturing that alters their original state. Processed products are typically found in chapters 6, 7, and 17–

22 of the Harmonized Tariff Schedule of the United States. 55 New Zealand-China Trade Association, “Processed Food for Thought: China’s Food Processing 

Market,” n.d. 56 Data are from China’s National Bureau of Statistics reported by CEIC Database. Estimates vary 

significantly, depending on the source and what type of food processors are included. Some reports show that 

if all facilities are counted individually, including those with 10 or less employees, there may be as many as 

400,000. Baker, “Food and Agricultural Imports from China,” September 26, 2008, 14. 
6-14

variety of traders or village leaders who procure and consolidate the product for them.57

Some processors have also begun using a farmer cooperative structure in order to 

streamline procurement, limit transaction costs, and improve quality.58 Other processors 

contract directly with growers, while still others operate farms that supply some of the 

raw material in-house. 

Domestic Marketing Outlets 

Chinese food processors market their product through a number of different channels, 

primarily through supermarkets, restaurants, and smaller stand-alone retail outlets 

(mostly in urban areas) as well as further processors. A much lower share of total food 

consumption is processed in China than in Western countries, but urban Chinese 

consumers are increasingly looking for the convenience offered by processed foods, 

which has driven domestic sales growth.59 The importance of fast food restaurants as an 

outlet for certain processed foods, such as frozen french fries (FFF) and processed 

poultry, is growing. For example, KFC is opening almost one new outlet per day in 

China, while McDonald’s is opening 150–175 new outlets each year.60

Many food processors in China are primarily export-oriented and have not developed 

marketing channels within China. For processors that also serve consumers in China, the 

marketing channels they serve—hotels, restaurants, and high-end grocery chains, to name 

a few—can affect how they organize procurement, how far they mechanize production, 

and how well they implement food safety precautions. Less price-sensitive channels that 

focus on quality and food safety may force processors to use a different mix of capital 

and labor to meet those standards. Higher quality and food safety precautions often 

require more mechanization and less labor to consistently meet stringent specifications. 

Factors Affecting Competitiveness 

Procurement of Quality Raw Materials 

The quality and cost of raw agricultural products used as inputs in food processing are 

crucial to manufacturers. There are two aspects of quality that are important to them. The 

first is the quality of the raw product itself––for example, whether it has the required taste 

and freshness. The second is the product’s suitability for processing, particularly when 

processing involves mechanization. Processors typically need products that are of 

consistent quality and that meet the specifications needed to process the product 

efficiently. For example, the FFF processing industry requires a long potato that has the 

appropriate moisture and sugar levels and will show minimal browning, to ensure high 

slicing yields and a high-quality final product.61 Mechanized poultry processing facilities 

require birds of a consistent size for the production line to operate efficiently. 

 57 Industry officials, interviews by Commission staff, Shandong province, China, September 13–15, 2010; 

industry officials, interviews by Commission staff, Chengdu, China, September 17, 2010. 58 See chapter 4 for more detailed information on Chinese farmer cooperatives. 

59 Just 30 percent of food in China is processed, compared to approximately 80 percent in Western 

countries. USDOC, U.S. Commercial Service, “China’s Emerging Markets: Opportunities in the Food 

Processing Industry,” n.d., 1. 60 USDA, FAS, China: Potato and Potato Products; Annual, 2010, August 16, 2010, 9; Meat Trade 

News Daily, “China: McDonald’s Leading the Way,” August 10, 2010. 61 Promar International, “The Chinese Potato Industry in Transition,” July 2007, 112. 
6-15

Chinese food processors encounter problems in procuring quality raw materials. Because 

processors often have to source product from many small traders, they find it difficult to 

oversee quality and control product consistency on the farm. It is also difficult to move 

farmers away from traditional farming methods to more modern approaches that allow 

better control of production. For poultry, the lack of advanced growing operations in 

China means that birds are not of uniform size, which makes mechanical cutting 

inefficient and results in Chinese poultry slaughtering and processing facilities that rely 

much more heavily on manual labor.62 In crop farming, many Chinese farmers are not 

aware of the varieties they are planting, do not use advanced or appropriate fertilizers, 

lack disease prevention practices, and often use older seeds saved from previous 

plantings that lower yields.63 These problems are compounded by the long distances 

between the processors and the farm, coupled with poor transportation infrastructure in 

some parts of the country.64 The longer products are kept in storage before processing, 

the more the quality is reduced. In addition, limited cold storage capacity during transport 

and at the plants reduces the volume of the raw materials that can be processed at a later 

time. 

Faced with all of these constraints, food processors in China use various approaches to 

improve the quality of the raw materials. Increasingly, processors are trying to 

consolidate production by reducing the number of growers or livestock producers that 

they must deal with. They are also implementing a number of methods that make 

oversight manageable, as well as providing financing options to improve quality. 

Processors have also invested in educating farmers to implement practices that, while 

higher-cost, will also produce higher-quality inputs that are fit for processing.65

Some of the methods food processors are using in China to improve quality are illustrated 

in the FFF and poultry industries. As mentioned, fresh potatoes for FFF production must 

be the right shape and contain the right amount of moisture and sugar to ensure high 

slicing yields and a superior final product.66 To achieve this level of quality, individual 

FFF processors have reduced the number of Chinese farmers from whom they source 

from thousands to a few dozen or less, by shifting production to more remote areas where 

large-scale leases are possible and by sourcing on a contract basis once growers adopt 

more efficient production methods.67 While some growers in the sector still farm small 

plots of land, this strategy has resulted in some potato farms that are 121 hectares or more 

in size.68 Once the number of source farms has been reduced, processors typically employ 

field managers that oversee the production work of a few growers each.69 FFF processors 

that source product on a contract basis also provide financing to improve access to 

technology. For example, one FFF processor supplied farmers with irrigation systems, 

sprayers, and tractors while requiring only a modest down payment before taking annual 

payments over a certain repayment period.70 Despite these efforts, potato quality still 

 62 The United States uses a much higher level of mechanization in its processing plants. Industry official, 

interview by Commission staff, Shandong province, China, September 13, 2010. 63 Promar International, “The Chinese Potato Industry in Transition,” July 2007, 122; industry officials, 

interviews by Commission staff, Beijing, China, September 6, 2010. 64 Industry officials, interview by Commission staff, Shanghai, China, September 13, 2010. 65 Industry officials, interview by Commission staff, Beijing, China, September 7, 2010. 

66 Promar International, “The Chinese Potato Industry in Transition,” July 2007, 112. 67 Industry officials, interview by Commission staff, Beijing, China, September 7, 2010. 

68 Ibid. 

69 Ibid. 

70 Ibid. 
6-16

keeps processing yields for Chinese FFF processors lower than in other major producing 

countries.71 

In the Chinese poultry industry, the use of advanced technology in grow-out houses, such 

as automated feeders and water systems, good ventilation, and climate control, is limited 

by a lack of access to credit and results in inconsistent bird sizes.72 To counter this, larger 

poultry firms give farmers loans to build modern houses and to buy advanced equipment. 

Other processors would like to increase the percentage of broilers raised in-house to 

ensure a reliable supply of high-quality birds. Expanding grow-out operations is 

problematic, however, because of difficulties in leasing land created by the land tenure 

system, the length of negotiations (often up to six months), and the cost of land rents in 

some provinces.73 

Cost of Procurement of Raw Materials 

In addition to quality, another major concern for processors is the cost of raw inputs 

delivered to the plant. The cost of the raw input to the processor consists of the cost of the 

input itself plus the cost of procurement and transportation to the processing facility. 

While the small scale of farming in China restricts quality improvements, it also increases 

the cost of procuring the product. 

Because of the small size of farms, processors typically are forced to source the product 

from traders or village leaders who consolidate the product. For example, one grain 

processor in Shandong province reportedly obtains its raw inputs from between several 

dozen and a few hundred traders in order to avoid sourcing from several thousand small 

household farmers.74 In the dehydrated garlic industry, where a typical grower’s farm is 

between 2 and 3 mu, larger processors source from as many as 300 village leaders who 

represent about 100,000 farmers.75 This additional consolidation increases transaction 

costs because prices increase each time the product is resold.76 Small and fragmented 

farms in China also increase transportation costs, because processors have to source 

product from a wider geographical area. 

In addition to raising the cost of procurement, the fragmented farm structure also affects 

the reliability of input supply for processors in China. This is because, unlike in other 

countries, farmers typically do not grow their product exclusively for processing.77 For 

example, in China’s dehydrated garlic industry, processors generally contract with 

growers. However, because the contracts provide the farmer with the right of refusal if 

 71 In China, the most efficient FFF processors use just under 2 pounds of fresh potatoes to produce 

1 pound of FFF, but this ratio varies widely in Chinese processing facilities, depending on quality of the raw 

inputs, and can occasionally reach 2.5 pounds of fresh potatoes. In comparison, the average in the United 

States is 1.7 pounds of fresh per pound of FFF output. This disparity makes processing costlier in China than 

in the United States. Industry officials, interview by Commission staff, Beijing, China, September 7, 2010; 

industry officials, telephone interview by Commission staff, November 10, 2010. 72 Industry official, interview by Commission staff, Shanghai, China, September 13, 2010; industry 

official, interview by Commission staff, Shandong province, China, September 13, 2010. 73 Industry official, interview by Commission staff, Shandong province, China, September 13, 2010; 

USDA, FAS, China: Poultry and Products; Annual, 2010, September 30, 2010, 2. 74 Industry officials, interview by Commission staff, Shandong province, China, September 14, 2010. 75 Ibid., September 15, 2010. 

76 Industry officials, interviews by Commission staff, Beijing and Shandong province, China, 

September 6–16, 2010. 77 In comparison, in the United States certain varieties of horticultural products, such as cling peaches and 

garlic, are grown specifically for processing and are therefore not suitable for the fresh market. 
6-17

the fresh market is offering a higher price, processors may need to offer additional 

services in order to entice farmers to sell to them.78 

Firms in certain sectors have begun to develop models to overcome the limitations of the 

current land tenure system and to lower procurement costs. Some processors, primarily in 

the canned mandarin, peach, and pear sectors, have begun using farmer cooperatives in 

order to streamline procurement, to avoid traders, and to limit transaction costs, while 

also improving quality. Large-scale leasing of land, as in the FFF industry, is also 

becoming more common as companies look to consolidate the number of farmers and 

reduce transaction costs. Although growing, the use of cooperatives and large-scale 

leasing of land are still not widespread among food processors in China.79

Mechanization 

Chinese food processors vary widely in the level of mechanization and technology they 

use in the production process. Processing facilities range from labor-intensive production 

lines where employees cut and sort by hand to modern, capital-intensive, mechanized 

production lines that use minimal labor. Variation exists not only between industries, but 

also within specific industries themselves. For example, in the processed fruit sector, 

some canned fruit manufacturers employ a cutting process that is fully mechanized, 

similar to processing lines in the United States, while others still cut the fruit by hand. 

Also, fruit canning operations are generally more labor-intensive than other types of fruit 

processors, such as apple juicers. 

As a whole, the Chinese food processing sector is slowly moving toward becoming more 

capital-intensive, as labor costs rise and mechanization improves.80 For example, Chinese 

poultry-slaughtering and processing facilities rely heavily on manual labor.81 Historically, 

processing facilities have not mechanized because of low labor costs, inconsistent bird 

sizes, and difficulties in obtaining equipment. As labor costs continue to rise, 

mechanization is becoming more attractive, and processors are beginning to invest in 

processing technology. It is true that acquiring modern processing technology requires 

significant capital and access to credit, which present barriers to many small and 

medium-sized food manufacturing firms. However, capital for improved mechanization 

is available from a number of sources, most notably from FDI and government 

assistance. As a result, Chinese food processing is becoming less reliant on labor and 

more capital intensive. 

FDI in food processing has enabled greater access to technology and accelerated the 

mechanization of the Chinese sector. Because the machinery needed for efficient food 

processing is costly, capital from foreign firms has allowed certain sectors to expand 

quickly and supply larger volumes of product both domestically and in export markets. 

Both the FFF and the poultry industries offer examples of FDI’s impact in the food 

processing sector. The FFF industry has developed and mechanized as a result of FDI 

from three firms that responded to expansion by Western fast food restaurants into the 

Chinese market. As a result of the investments, domestic FFF production now supplies a 

 78 For example, processors may test soil, give financial support, identify suitable land, and advise on good 

agricultural practices. Industry officials, interview by Commission staff, Shandong province, China, 

September 15, 2010. 79 Industry officials, interview by Commission staff, Beijing and Shandong province, China, 

September 6–16, 2010. 80 Liu, “Researches on the Effect of Foreign Direct Investment,” n.d., 3. 81 The United States uses far more mechanization in its processing plants. 
6-18

large percentage of the market, originally supplied only by imports, primarily from the 

United States. In addition, as FFF consumption continues to grow and these food outlets 

become more accepted in second-tier urban markets, domestic production is expected to 

supply most of that growth.82 In the poultry sector, investment from international players, 

such as Tyson, Keystone Foods, OSI, and Cargill, has been driving the industry’s 

increasing use of modern processing lines and grow-out barns as well as the adoption of 

stronger food safety precautions. 

Chinese government policies can also influence the level of mechanization in the food 

processing sector. The government provides assistance through cash investments for 

holdings in food processing firms, viewed as important in providing jobs and 

development in certain regions. 83 For example, the government has invested in the 

canned peach industry to boost various firms’ cash flow and allow investments in 

machinery.84 The government typically refrains from receiving dividends or other returns 

on its investment. Reportedly, government investments are made with the expectation of 

repayment, but the payback terms are often uncertain and not clearly defined. 85 In 

addition, local governments provide tax incentives for companies to invest in advanced 

production methods and machinery.86 

However, other government policies hinder mechanization. For example, foreign-owned 

firms with Chinese operations often have access to used equipment from abroad, but the 

large number of certifications and inspections, fees, taxes, and tariffs required can make 

importing such equipment uneconomical. Reportedly, in the poultry industry companies 

are also required to use the imported equipment in a specific plant for a certain, often 

extended, length of time.87 This effectively eliminates a resale market and hinders firms’ 

ability to increase their level of mechanization. 

Food Safety 

In recent years, consumer concerns about the safety of Chinese processed foods has 

reduced the competitiveness of Chinese products in both domestic and export markets.88

Stronger government oversight since the introduction of a new food safety law in 2009, 

increasing consumer awareness of food safety issues, and the greater involvement of 

internationally branded companies are all encouraging Chinese food processors to 

improve their product safety. Despite improvements, a general lack of confidence in the 

safety of Chinese processed goods could continue to depress global demand for Chinese 

products in the future.89

Safety inspections of Chinese food processors have increased in recent years, and while 

Chinese processors spend significantly less capital installing production facilities that 

 82 Industry officials, interview by Commission staff, Beijing, China, September 7, 2010. 

83 Industry official, telephone interview by Commission staff, September 1, 2010; industry official, 

interview by Commission staff, Beijing, China, September 6, 2010. 84 Industry official, telephone interview by Commission staff, September 1, 2010. 85 Industry official, telephone interview by Commission staff, September 1, 2010; industry official, 

interview by Commission staff, Beijing, China, September 6, 2010. 86 Industry officials, interviews by Commission staff, Beijing and Shandong province, China, 

September 6–16, 2010. 87 Industry official, interview by Commission staff, Shandong province, China, September 13, 2010. 88 Domestic consumers are still wary of China’s food supply. Gifford, “Food Fears Persist in China 2 

Years after Milk Scare,” October 26, 2010; BBC, “Timeline: China Milk Scandal,” January 25, 2010. 89 Industry official, telephone interview by Commission staff, November 15, 2010; Baker, “Food and 

Agricultural Imports from China,” September 26, 2008, 14. 
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ensure food safety than producers in the United States, compliance costs are rising.90 The 

enforcement of Chinese food safety laws differs depending on the final destination of the 

product. Products destined for export markets typically undergo more thorough and 

stringent inspections to prevent market closures abroad. For example, local Chinese 

Inspection and Quarantine agents sample, inspect, and certify 15 percent of every export 

shipment of a certain garlic processor in Shandong, while processors in other provinces 

are rarely tested if they do not export.91 

 

FDI in the Chinese food processing sector has also improved Chinese food safety 

standards92 because investors typically install stringent screening and testing methods that 

often exceed Chinese standards. For example, international dehydrated garlic producers 

have increased levels of product sorting, high-tech screening, metallic testing, and 

employee sanitation in their Chinese plants. They have also compartmentalized plants so 

that an individual employee does not have contact with multiple points on the production 

line, which decreases the chances of introducing foreign materials. 93 International 

companies that source inputs for their products also require their suppliers to comply with 

strict food safety precautions. For example, FFF producers that supply McDonald’s must 

implement McDonald’s food safety measures. 

In the Chinese meat sectors, residues from veterinary medicines given to animals are 

found in meat at levels that harm product quality and threaten consumer health in varying 

ways.94 Largely because of overmedication, certain diseases have become resistant to 

drugs, which causes growers to medicate the animals even more. As a result, there have 

been periods when both Japan and the EU-27 have banned imports of Chinese poultry 

because of excessive antibiotic residue.95 Foreign firms operating in China, however, 

have implemented precautions and stricter oversight to prevent overmedication of 

animals by growers. 

Wheat 

China is not naturally competitive in domestic and global wheat markets, compared with 

major global wheat-producing and -exporting countries. Although China has an 

advantage with respect to labor costs, it is at a disadvantage regarding land. Wheat is a 

land-intensive agricultural product, and foreign competitors such as Australia, the United 

States, and Russia hold a substantial competitive advantage in that production factor visà-vis China. China’s limited and unbalanced water resources also weaken China’s 

relative competitiveness. Furthermore, the small scale and diffuse structure of China’s 

wheat sector limits efficiencies, raises delivered costs, and compromises the reliability of 

supplies. 

 90 Industry officials, interviews by Commission staff, Beijing and Shandong province, China, 

September 6–16, 2010. 91 Industry official, interview by Commission staff, Shandong province, China, September 15, 2010. 92 Industry official, interview by Commission staff, Shandong province, China, September 15, 2010; 

industry official, interview by Commission staff, Beijing, China, September 7, 2010. 93 Industry official, interview by Commission staff, Shandong province, China, September 15, 2010. 94 Industry official, interview by Commission staff, Shandong province, China, September 13, 2010; 

Lohmar and Gale, “Who Will Feed China?” June 2008, 15; Poutlex News, “Half of China’s Antibiotics Are 

Fed to Animals,” December 1, 2010. 95 Industry official, interview by Commission staff, Shanghai, China, September 13, 2010; industry 

official, interview by Commission staff, Shandong province, China, September 13, 2010; Calvin et al., “Food 

Safety Improvements Underway in China,” November 2006. Medical costs are approximately RMB 2 per 

bird in China, compared with only about RMB 0.5 in the United States. 
6-20

China has taken measures to address its competitive disadvantages in the wheat sector 

and to implement a transition to a large-scale, efficient industry structure. Recent 

government emphasis on rural development and concerns about food security have 

precipitated initiatives such as the National Plan for Expansion of Grain Production 

Capacity (National Grain Plan) and recent No. 1 Documents.96 These initiatives, coupled 

with a trade policy that maintains limited market access for wheat imports, will benefit 

China’s wheat producers and enhance and maintain their competitiveness in the domestic 

market. Other developments, such as changes in domestic market preferences for wheat 

which could result in pressure from internal actors, such as private millers and traders, as 

well as from trading partners, could lead to increased market access for high-gluten wheat 

imports in the future. The impact of such developments on the competitiveness of 

China’s wheat is less clear, as rural income and self-sufficiency in grains likely will 

remain long-term government concerns. 

Industry Overview 

Global Position 

China is the leading global consumer of wheat, accounting for approximately 21 percent 

of the total quantity in 2009/10 (table 6.5). It is also the second leading global wheat 

producer, trailing only the EU-27,97 and is a minor wheat trader. Imports account for a 

small share of consumption and exports for a small share of production (each less than 

1 percent). These levels reflect China’s policy of self-sufficiency in wheat. 

TABLE 6.5 Wheat: Production, consumption, and trade, selected countries, marketing year 2009/10 (1,000 metric 

tons) 

Country Production Consumptiona Imports Exports

 1,000 metric tons 

EU-27 138,051 124,500 5,480 22,117

China 115,120 107,000 1,394 892

India 80,680 78,201 (b

) (b)

Russia 61,700 42,000 (b

) 18,556

United States 60,366 30,932 3,228 23,977

Rest of World 226,685 267,066 123,127 70,104

Total 682,602 649,699 133,684 135,746

Source: USDA, PSD Online (accessed January 14, 2011). 

 a

Wheat held in stocks is not accounted for in consumption. b

Less than 500 metric tons. 

Industry Structure 

Wheat is produced in every Chinese province except Hainan, but production is 

concentrated in the northeastern provinces. 98 Winter wheat accounts for the bulk of 

Chinese wheat acreage––93 percent in marketing year 2009/10.99 Wheat milling is less 

 96 The National Grain Plan issued in November 2009 includes plans to improve yields measures and 

mechanized technology for farm use. The focus of the No. 1 Documents is increasing farmers’ incomes. For 

further description of such polices see chapter 4. 97 China is the world’s leading single-country producer of wheat. 

98 USDA, ERS, China Provincial Data, July 1, 2009. 99 USDA, FAS, China: Grain and Feed; Annual, March 1, 2010, 3. 
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concentrated, with the leading provinces accounting for about 60 percent of total mill use 

of wheat compared with three-quarters of wheat production.100

Wheat production in China has risen in recent years, from about 99.6 million mt in 

2000/01 to 115.0 million mt in 2009/10.101 The increase resulted from rising yields, as 

the amount of land used to grow wheat has been relatively stable. Data are not available 

on the number of wheat farms or farmers in China. However, the number likely is 

substantial, as individual farms are small compared with those of competing wheat 

producers. The average per capita area of cultivated land in the major wheat-producing 

provinces ranged between 1.14 and 1.94 mu in 2009.102 Assuming an average household 

size of 4 people, the average farm size is about 7 mu, or one-half hectare. 

The Chinese wheat processing (milling) sector comprises a large number of firms, most 

of which are relatively small in scale. In the mid-2000s, there were approximately 9,800 

wheat millers with a capacity of over 50 mt per day, of which 500 had a capacity of 200–

400 mt per day and 80 had a capacity of at least 400 mt per day. 103 The Chinese wheat 

milling sector has been undergoing major restructuring in recent years. After a long-term 

market liberalization in the grain sector, the number of mills has declined while their 

average size has increased. The largest miller now accounts for approximately 3 percent 

of the wheat used for processing; the top three millers account for about 6 percent.104

Concentration among the three leading millers is expected to reach 25 percent within 5–

10 years. The leading miller, the Wudeli Group, is a privately held Chinese firm; the 

second is the state trading enterprise (STE) COFCO; and the third is a major foreign 

agribusiness group, Wilmar Industries. Competition is expected to intensify among the 

leading millers in the future. 

Domestic Marketing Outlets 

There are two domestic marketing outlets for Chinese wheat farmers—the milling sector, 

as described above, and the government. The milling sector comprises private companies 

as well as STEs. The government procures and stores a share of wheat output under a 

program that guarantees a minimum price to farmers, then auctions the stocks to millers. 

Its role is to manage supplies, prices, and strategic reserves. The State Administrator of 

Grain of the National Resources Development and Reform Commission is responsible for 

overall grain management, including storage and distribution.105 China Grain Reserves 

Corporation (Sinograin) is an STE that has primary responsibility for grain storage and 

transportation.106 COFCO, China’s largest food products STE, is the second-largest wheat 

processor and holds 90 percent of China’s wheat import tariff-rate quota (TRQ). 107

COFCO has grain storage capacity of 3 million metric tons.108 Imports are marketed to 

the private milling sector or are used by COFCO. 

 100 World Grain, “Changes in Chinese Flour Milling,” September 1, 2010. 101 USDA, PSD Online (accessed January 14, 2011). 102 NBSC, China Statistical Yearbook 2009, September 2009, table 12-12. 103 Zhang, “Chinese Wheat: Current Situation and Prospects,” 2007, 7. 104 World Grain, “Changes in Chinese Flour Milling,” September 1, 2010. 105 PRC, NDRC, SAG, “Message from the Administrator of SAG,” 2002. 106 Sinograin, “Company Overview,” accessed July 28, 2010. 107 COFCO, “Wheat Division,” accessed November 10, 2010. 108 COFCO, “Agricultural Primary Products Storage and Logistics,” accessed November 10, 2010. 
6-22

Factors Affecting Competitiveness 

Land 

Land issues in China define the competitiveness of the wheat sector. Wheat is a landintensive crop and requires relatively little labor. China’s land resources suitable for 

wheat production have been fully utilized and are under increasing pressure from other 

agricultural commodities that are higher in value and profitability for farmers, as well as 

from increasing industrialization and urbanization.109 Rising land rental rates, which for 

wheat production increased by two-thirds during 2003–08, 110 have contributed to 

increased delivered costs for wheat farmers and diminished their competitiveness vis-àvis major foreign producers such as the United States and Australia. 111 Another land 

issue affecting the competitiveness of China’s wheat sector is the land tenure system, 

which results in small individual household plots. This system undermines China’s 

competitiveness, as it limits economies of scale and increases production, quality control, 

and marketing costs. The Chinese government recognizes these issues and has recently 

proposed measures in the National Grain Plan to improve the sector’s competitiveness to 

maintain food security. Measures in the plan affecting land issues include establishing 

core production zones, shifting a larger share of production to the northeastern provinces, 

and reclaiming and consolidating land to expand farmland area (figure 6.2).112

Water and Other Inputs 

Water is another issue threatening the competitiveness of the Chinese wheat sector. 

Increasing competition and pressure on water resources from agricultural, industrial, and 

urban activities; declining water quality, owing mainly to heavy use of fertilizers and 

pesticides as well as to industrial pollution; supply volatility caused by weather, mainly 

droughts and flooding; and uneven water distribution, as the bulk of suitable land for 

wheat production is located away from water surplus areas, all have increased water 

scarcity and costs for wheat farmers. Irrigation fees rose by 25 percent during 2003–08, 

while a water fee was established in 2004.113 The Chinese government has identified 

water as a priority issue in the National Grain Plan and plans to construct and upgrade 

irrigation and drainage infrastructure.114 Thus, increases in water costs on input prices 

could decrease the competitiveness of the Chinese wheat industry regarding delivered 

cost. 

Costs have risen substantially for other wheat farm inputs as well. Labor costs rose by 

one-third during 2003–08, while fertilizer costs rose by 103 percent and seed costs by 

53 percent.115 However, wheat is not a labor-intensive crop, and the response to rising 

 109 USDA, FAS, China: National Plan for Expansion of Grain Production Capacity, February 18, 2010, 

7. 110 PRC, NDRC, National Agricultural Product Cost and Profit Materials Compilation, 2003–08. Costs 

are on a per mu basis. 111 Land costs in some parts of China are similar to those in parts of the United States. See the discussion 

on land costs in chapter 5. 112 USDA, FAS, China: National Plan for Expansion of Grain Production Capacity, February 18, 2010, 

17, 22, 33. 113 PRC, NDRC, National Agricultural Product Cost and Profit Materials Compilation, 2003–08. 114 USDA, FAS, China: National Plan for Expansion of Grain Production Capacity, February 18, 2010, 

13. 115 PRC, NDRC, National Agricultural Product Cost and Profit Materials Compilation, 2003–08. Data 

represent national averages. 
6-23

 FIGURE 6.2 Farm plots consolidated to grow one crop, Shandong province, China 

 Source: Commission staff. 

 Unlike the structure of traditional farms (figure 5.2), these plots have been consolidated to grow one crop. 

The plots likely belong to multiple farmers but, under the direction of village leaders, were consolidated to 

improve efficiency and likely increase the mechanization of planting and harvesting. 

labor costs appears to have been a reduction in the utilization of this production factor, as 

labor use declined by one-third during 2003–08; 116 thus, the impact of rising farm labor 

costs on the competitiveness of the Chinese wheat sector has been minimal. Farmers also 

reduced their use of seed, which declined by 10 percent during the period, but they 

compensated for this reduction by a 21 percent rise in fertilizer use.117 

Technology 

The use of biological and production technology in the Chinese wheat sector is relatively 

high compared with the country’s other agricultural sectors and has enhanced 

competitiveness by lowering delivered costs. A relatively high level of mechanization,118

extensive use of irrigation, and the use of higher-yielding, disease-resistant strains have 

helped to increased wheat yields in recent years. However, China’s wheat yields are 

inconsistent and lag those of major competitors. The Chinese government has indicated 

 116 PRC, NDRC, National Agricultural Product Cost and Profit Materials Compilation, 2003–08. 

Measured in terms of days per mu. 117 Ibid. 118 In 2007, nearly 80 percent of the total wheat area was sown and harvested by machine. PRC, MOA, 

“General Surveys: Agricultural Mechanization,” June 25, 2009. A greater proportion of wheat is 

mechanically harvest compared to other crops because of the nature of the plant and the large contiguous 

planted areas (figure 6.2). 
6-24

it will increase support to improve technology in the sector. 119 Any increase in the 

application and quality of technology will improve China’s competitive stature in the 

domestic and global wheat markets by lowering delivered costs and reinforcing the 

reliability of supply. 

Market Preference 

The Chinese wheat market has been changing in recent years. Declining per-capita 

consumption, owing to a shift from carbohydrates to animal protein, and changing 

consumer preferences for convenience foods, which use higher-gluten wheat, have 

limited the competitiveness of Chinese wheat producers.120 The Chinese wheat sector 

focuses on the lower-gluten wheat used in traditional products, such as steamed and 

boiled flour products.121 Chinese wheat processors import high-gluten wheat to produce 

convenience foods, such as instant noodles and baked goods.122 The Chinese government 

has recognized this shift and has introduced measures to develop new uses for wheat, 

improve wheat quality, and increase the share of high-gluten wheat in total production.123

These measures likely will enhance Chinese wheat producers’ future competitiveness in 

the domestic market by improving their product differentiation and ability to supply highgluten wheat. In addition, export competitiveness likely will be enhanced, as there is a 

substantial regional market for high-gluten wheat.124

Government Policy 

Government policy has had a substantial positive effect on the competitiveness of the 

Chinese wheat sector. Recent domestic policy has focused resources on the grain sector 

in order to maintain self-sufficiency. Trade policy generally has applied restrictive TRQs 

and high over-quota tariffs, as well as excluded wheat from free trade agreements.125

These policies generally have kept domestic wheat prices at levels high enough to 

motivate farmers to stay in wheat production. In addition, government direct payments, 

input subsidies, technology assistance, and infrastructure development have lowered 

Chinese wheat producers’ delivered cost and improved their reliability as suppliers in the 

domestic market. 

 

Issued in November 2009, the National Grain Plan calls for a 50 million metric ton 

increase in grain production capacity during 2009–20.126 Objectives outlined in the plan 

include improving technology (irrigation, farming methods, seed varieties, and extension 

services); modernizing sector structure (land preservation and consolidation, and grain 

production, storage, and distribution infrastructure); and increasing market regulation and 

monitoring (minimum purchase price, grain reserve controls, and market information). In 

addition, Document No.1, which addresses rural issues such as support for grain farmers, 

 119 USDA, FAS, China: National Plan for Expansion of Grain Production Capacity, February 18, 2010, 

9. 120 USDA, FAS, China: Grain and Feed; Annual, March 1, 2010, 4. 121 USDA, FAS, China: National Plan for Expansion of Grain Production Capacity, February 18, 2010, 

39. 122 USDA, FAS, China: Grain and Feed; Annual, March 1, 2010, 4. 123 USDA, FAS, China: National Plan for Expansion of Grain Production Capacity, February 18, 2010, 

5, 15, 39. 124 Zhang, “Chinese Wheat: Current Situation and Prospects,” 2007, 73. 125 Chinese imports of wheat are relatively insignificant, as the TRQ volume accounts for less than 

10 percent of domestic consumption. 126 USDA, FAS, China: National Plan for Expansion of Grain Production Capacity, February 18, 2010, 

1. 
6-25

specified that future direct subsidies will be focused on large farmers and specialized 

farmers’ cooperatives.127 The U.S. Department of Agriculture estimates that the aggregate 

subsidy effect of direct payments and input subsidies accounted for 30 percent of grain 

farmers’ net profit margins in marketing year 2009/10.128 In addition, the government’s 

procurement of wheat at the minimum floor price accounted for an average of 37 percent 

of total production annually during the past three marketing years.129 Government policy 

also promotes large-scale wheat processors and distributors. The National Grain Plan 

specifies the development of grain storage, logistics, and processing capacity as a major 

objective and further directs the promotion of large-scale processing as well.130 China’s 

import policy reserves 90 percent of the wheat TRQ for COFCO, further enhancing the 

government’s control of wheat supplies and market prices. 

 127 USDA, FAS, China: 2010 Agricultural Policy Directive, February 18, 2010, 4. 128 USDA, FAS, China: Grain and Feed; Annual, March 1, 2010, 16. The data are on a per hectare basis. 129 USDA, FAS, China: Grain and Feed; Annual, March 1, 2010, 18. 130 USDA, FAS, China: National Plan for Expansion of Grain Production Capacity, February 18, 2010, 

28. 
6-26

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7-1

CHAPTER 7 

Chinese Agricultural Tariff Measures 

Overview 

China imposes tariffs on imports of agricultural goods in the form of simple tariffs and 

tariff-rate quotas (TRQs). Other measures, including antidumping and countervailing 

duties (AD and CVD), may also affect U.S. exports of agricultural products.1

 China 

substantially reduced its tariffs and replaced absolute quotas with TRQs for various 

agricultural products in preparation for its World Trade Organization (WTO) accession 

on December 11, 2001.2

 Most of the tariff concessions for agricultural products were 

implemented as of January 1, 2004. China’s bound and applied tariffs generally are the 

same, and applied tariffs typically remain constant. 

China’s agricultural tariffs generally are higher than those for other products, and TRQs 

exist for agricultural products that are considered vital for food security, such as wheat, 

corn, rice, and sugar. Most TRQs are held by state trading enterprises (STEs) and have 

low fill rates. China has entered into several free trade agreements (FTAs) under which it 

provides reduced tariff rates to qualifying goods from countries that are part of the 

agreements or arrangements. 3

Model simulation results prepared by Commission staff, presented in ranges to account 

for the statistical uncertainty in key economic parameters, suggest that China’s food and 

agricultural tariffs and TRQs reduced U.S. food and agricultural exports to China in 2009 

by between $1.3 billion and $2.1 billion. The tariff simulation captures the effects of the 

removal of Chinese tariffs and TRQs on agricultural imports from all sources. Among 

U.S. products most affected by China’s agricultural tariffs were wheat (U.S. exports to 

China are estimated to have been reduced by between $489 million and $1.2 billion), 

poultry ($358–$363 million), pork offal ($51–$84 million), cotton ($28–$71 million), and 

alcoholic beverages ($32–$43 million). Absent tariffs, in the span of a few years, U.S. 

exports could expand more rapidly than modeling simulations indicate because of the 

possible additional effects of economic growth in China and of market development by 

U.S. exporters, two factors not included in the simulation. 

Tariffs 

As noted, China significantly reduced its tariffs before its WTO accession. China’s 

simple average tariff4

 for agricultural products fell from 42.2 percent ad valorem in 1992 

to 23.6 percent ad valorem in 1998.5

 As a condition of its WTO accession, China reduced 

its agricultural tariffs to a simple average of 15 percent ad valorem. Most tariff reductions 

occurred by January 1, 2004, with the remainder completed no later than January 1, 

 1

 Value-added taxes (VATs) may also affect U.S. exports of agricultural products. The impact of VATs 

on U.S. agricultural exports are described in chapter 9. 2

 WTO, “Members and Observers,” (accessed June 8, 2010). 

3

 China’s free trade agreements and their impact on U.S. agricultural exports are described in greater 

detail in chapter 8. 4

 The simple average tariff is the average of tariffs not weighted by trade volume. 

5

 Rosen, Rozelle, and Huang, “China and the WTO Agriculture Agenda,” 2004, 8. 
7-2

2010.6 Only a few agricultural products ended their staged reductions in 2010, including 

fresh strawberries (under subheading 0810.10 in the worldwide Harmonized System 

[HS]), certain provisionally preserved fruits and nuts (HS0812.90), and certain other 

fermented beverages and mixtures (HS2206.00). 7 By 2007, China’s trade-weighted 

average tariff8

 had fallen to 12 percent ad valorem for agricultural products.9

The government of China announces tariff changes in an annual Tariff Execution Plan. 

The plan for 2010 made several changes affecting agricultural commodities. Specifically, 

the plan:10

 Finalized most-favored-nation (MFN) tariff reductions on fresh strawberries and 

provisionally preserved fruit and nuts in accordance with its WTO Accession 

Agreement; 

 Lowered MFN duties on rice wine, other fermented beverages, and wet blue 

(chrome-tanned) leather; 

 Provided details about the administration of TRQs on wheat and cotton; 

 Indicated specific and compound rates for several HS subheadings, including 

frozen chickens; and 

 Referenced tariff commitments made under FTAs and PTAs. 

Average Tariffs 

China’s average tariff rates vary significantly by HS chapter. Figure 7.1 shows the ranges 

and simple averages for Chinese applied tariff rates by HS chapters for agricultural 

products. Average tariffs are the highest and the ranges the greatest for products in HS 

chapters 10 (grains), 11 (milled grain products), 17 (sugar), 22 (beverages), and 

24 (tobacco). Many products in these chapters are the subject of domestic food security 

concerns (wheat, corn, rice) 11 or are highly regulated and subject to supplementary 

consumption taxes (alcohol, tobacco).12 Table 7.1 shows China’s average bound WTO 

tariffs and applied MFN tariffs (2008), by major agricultural product groups. A relatively 

small share of China’s agricultural imports benefit from duty-free MFN treatment. 

 6

 WTO, “WTO Successfully Concludes Negotiations on China’s Entry,” September 17, 2001. 7

 WTO, “Schedule CLII: People’s Republic of China,” October 1, 2001. 8

 The trade-weighted average tariff is the average of all tariffs weighted by trade volume. 

9

 WTO, “China Tariff Profile,” 2009. China’s trade-weighted average for all products (agricultural and 

non-agricultural) declined from 40.6 percent ad valorem in 1992 to 9.1 percent ad valorem in 2001, or by 

78 percent. In 2002, this tariff fell by another 30 percent, to 6.4 percent ad valorem, after China joined the 

WTO. Rumbaugh and Blancher, “China: International Trade and WTO Accession,” 2004, 18. In 2007, 

China’s trade-weighted average tariff for all products was 4.5 percent. 10 PRC, Customs Tariff Commission of the State Council, Tariff Execution Plan 2010, December 8, 2009. 11 PRC, SAG, “Message from the Administrator of SAG,” 2002. 12 PRC, MOFCOM, “Decree of the State Council of the People's Republic of China (No.539),” 

November 30, 2008. 
7-3

5

17.5

13

10 11.5

7

18

11

33

35

10 10

7

17.5

14

29

15

17.5

21

32.5

9

33.5

11

7.75

13

8.75 7.5

23.525

6

22.5

17.5 17.5

0

10

20

30

40

50

60

70

1 2 4 5 6 7 8 9 10 11 12 13 14 15 16 17 18 19 20 21 22 23 24 29 33 35 38 41 43 50 51 52 53

HS chapter

Tariff rate (percent ad valorem)

Source: WTO, “Schedule CLII: People’s Republic of China.” 

Note: The vertical line represents the range between the high and low applied tariffs in each HS chapter. The simple average 

tariff for each HS chapter is indicated by the data point at the mid point of each vertical line. The absence of a vertical line 

indicates a single tariff for the HS chapter. 

FIGURE 7.1 China’s applied agricultural tariffs vary significantly within and among HS chapters 

TABLE 7.1 China’s final bound WTO tariffs, MFN applied tariffs, and share of imports entering duty free, by 

agricultural product group 

Final bound tariffs 

(percent ad valorem) 

MFN applied tariffs 

(percent ad valorem) 

Product group Average 

Share that is 

duty freea

(percent) Maximum Average 

Share that is 

duty freea

(percent) 

Share of 

imports 

entering

duty free

(percent)

Animal products 14.8 9.4 25 14.7 10.1 4.1

Dairy products 12.2 0 20 12.0 0 0

Fruit, vegetables, plants 15.0 4.8 30 14.8 5.9 3.6

Coffee, tea 14.9 0 32 14.7 0 0

Cereals and preparations 23.7 2.6 65 23.9 3.4 0

Oilseeds, fats, and oils 11.6 6.2 30 10.6 5.4 0.1

Sugars and confectionery 27.4 0 50 27.4 0 0

Beverages and tobacco 23.9 2.4 65 22.9 2.2 1.8

Cotton 22.0 0 40 22.0 0 0

Other agricultural products 11.9 10.2 38 11.5 9.4 2.3

Source: WTO and ITC, World Tariff Profiles 2009, 60. 

a

Share of total HS 6-digit subheadings that are duty free. 
7-4

Tariff Peaks 

China maintains high tariffs on the general product categories of sugars and 

confectionery, cereals (grains) and cereal preparations, cotton, and beverages and 

tobacco. Tariff peaks generally exist for agricultural products that China considers to be 

important to its food security or important for other reasons. With respect to individual 

agricultural products, China’s applied tariffs are highest for corn, wheat, and rice 

(65 percent ad valorem for over-quota imports); tobacco (57 percent); and raw cane and 

refined sugar (50 percent for over-quota imports) (table 7.2). Other products with high 

tariffs include cotton (40 percent for over-quota imports), certain fermented beverages 

(40 percent), beverage bases (35 percent), and a variety of nuts (30 percent).13 Some of 

these peak tariff rates are applied to over-quota quantities related to TRQs, as discussed 

below. 

 

TABLE 7.2 China’s peak bound and applied tariffs, by HS subheading 

Tariff (percent ad valorem) 

HS subheading Description Bound Applied (2008)

1001.10 Wheat 65 65

1001.90 Wheat 65 65

1005.90 Corn 65 65

1006.10 Rice 65 65

1006.20 Rice 65 65

1006.30 Rice 65 65

1006.40 Rice 65 65

1101.10 Wheat flour 65 65

1103.11 Wheat meal 65 65

1103.13 Corn meal 65 65

1104.23 Corn, otherwise worked 65 65

2205.10 Vermouth and flavored wines 65 65

2205.90 Vermouth and flavored wines 65 65

2403.10 Smoking tobacco 65 57

2403.91 Reconstituted tobacco 65 57

2403.99 Other manufactured tobacco 65 57

1701.11 Raw cane sugar 50 50

1701.12 Raw beet sugar 50 50

1701.91 Refined sugar 50 50

1701.99 Refined sugar 50 50

Source: WTO, “Schedule CLII: People’s Republic of China.” 

Note: For TRQ items, data represent over-quota tariffs. 

Tariff Distribution 

Most of China’s bound and applied agricultural tariffs range between 5 percent and 

25 percent ad valorem and generally are higher than those for non-agricultural products 

(table 7.3). About three-quarters of the value of China’s agricultural imports from all 

sources in 2007 were dutiable at 10 percent ad valorem or less, while about 95 percent of 

nonagricultural products were dutiable in this range (table 7.3). A significant share (about 

16 percent) of China’s agricultural imports in 2007 was dutiable between 25 percent ad 

valorem and 50 percent ad valorem. 

 13 WTO, “China and the WTO.” Applied and bound tariffs are similar for these items. 
7-5

TABLE 7.3 Frequency distribution of China’s final bound and applied tariffs for agricultural and non-agricultural 

products 

Tariff rate (percent ad valorem) 

Tariff and product type Free 0<=5 5<=10 10<=15 15<=25 25<=50 50<=100 >100

 Share (percent) of total tariff linesa 

Final bound 

 Agricultural products 5.8 8.1 25.0 25.3 26.3 7.0 2.5 0

 Non-agricultural products 6.8 18.3 46.9 14.7 12.1 1.4 0 0

Applied (MFN, 2008) 

 Agricultural products 5.9 8.5 26.3 24.5 24.9 7.4 2.6 0

 Non-agricultural products 7.6 19.9 46.6 14.3 10.6 1.1 0 0

 Imports (2007) Share (percent) of total importsa 

 Agricultural products 0.8 41.5 31.4 4.7 4.9 15.9 0.7 0

 Non-agricultural products 51.6 19.2 24.0 2.7 2.0 0.4 0.0 0.0

Source: WTO, “China tariff profile,” 2009. 

a

HS 6-digit basis. 

There is little difference between China’s applied and bound tariffs (tables 7.1–7.3), and 

applied tariffs generally do not fluctuate. One notable exception is cotton, which is 

subject to a TRQ, as discussed below. China occasionally reduces its over-quota tariff on 

cotton imports to supplement short domestic supplies.14

Tariff escalation is not a major issue regarding China’s agricultural tariffs. Average 

applied tariffs, by HS chapter, show a very slight trend towards tariff escalation, with 

peaks in chapters containing products with food security concerns (figure 7.1). In some 

cases, tariff de-escalation exists. For example, the Chinese duty for imports of inshell 

almonds is 24 percent ad valorem, while that for shelled almonds is 10 percent ad 

valorem. The United States requested the lower tariff rate for shelled almonds during 

China’s WTO accession negotiations. However, Chinese consumers prefer inshell 

almonds, which has limited the effectiveness of the tariff reduction.15

Tariffs on Priority U.S. Export Products 

China substantially reduced tariffs on certain agricultural items that were identified as a 

priority by the United States during WTO accession negotiations, 16 as shown in 

figure 7.2. Despite these reductions, tariffs generally remain relatively high and, in some 

cases, prohibitive for certain major U.S. agricultural export products. Most prominent is 

the high over-quota tariff on wheat (65 percent ad valorem). This high tariff, coupled 

with the way the wheat TRQ is administered (described below and in greater detail in 

chapter 9), limits U.S. wheat exports. 17 U.S. cotton exports are also limited by the 

relatively high over-quota tariff (40 percent ad valorem) and TRQ administration issues.18

 14 USDA, FAS, China: Cotton and Products; Annual, 2007, May 1, 2007, 11. 15 Blue Diamond Growers, written submission to the Commission, June 3, 2010, 4. 16 These items were identified by the U.S. government. The White House Office of Public Liason, 

“Summary of U.S.-China Bilateral WTO Agreement,” November 1999. 17 U.S. Wheat Associates, written submission to the Commission, September 16, 2010, 1–2. 18 National Cotton Council, written submission to the Commission, September 15, 2010, 6. 
7-6

Tariff-Rate Quotas 

China converted absolute quotas to TRQs as a condition of its WTO accession.19 The 

main regulation guiding the administration of TRQs is the Interim Measures for the 

Administration of Import Tariff Quotas of Agricultural Products. 20 TRQ amounts, 

conditions, and requirements are announced annually,21 and China notifies the WTO 

annually regarding its TRQ administration.22 

Products 

Current TRQs for agricultural products are shown in table 7.4. In addition, China 

maintained TRQs on imports of soybean, palm, and rapeseed oil before 2006; they were 

eliminated on December 7, 2005, as a result of commitments related to China’s WTO 

accession.23 However, China reserved the right to establish state trading in these products 

under the accession protocol.24 China’s TRQs for agricultural products represent about 

9 percent of domestic consumption of wheat, 5 percent of corn, 4 percent of rice, 

 19 WTO, “Schedule CLII: People’s Republic of China,” October 1, 2001. The WTO prohibits absolute 

quotas. 20 PRC, MOFCOM, Interim Measures for the Administration of Import Tariff Quotas of Agricultural 

Products, September 27, 2003. 21 There is little annual change in TRQ quantities and conditions, except for cotton. 22 WTO, Responses to Questionnaire on Import Licensing Procedures, October 20, 2009. 23 PRC, MOFCOM, “Announcement No. 93, 2005,” December 7, 2005. 

24 WTO, Trade Policy Review China, April 26, 2010, 34. 

0 10 20 30 40 50 60 70

Almonds

Cherries

Apples

Oranges

Pork

Poultry

Cheese

Wine

Grapes

Beef

Tariff (percent ad valorem)

Post-WTO (2004 and beyond) Pre-WTO (before 2002)

Source: USDA, FAS, “The U.S.-China WTO Accession Deal: A Strong Deal in the Best Interests of Agriculture.”

FIGURE 7.2 Chinese agricultural tariffs were reduced significantly upon joining the WTO
7-7

TABLE 7.4 China’s agricultural TRQs

Product TRQ volume 

In-quota 

tariff 

Over-quota tariff 

(MFN) 

State-trading

enterprise

share of TRQ

 Thousand mt Percent ad valorem Percent 

Wheat 9,636 1 65 90

Corn 7,200 1 50 60

Rice (short/medium grain) 2,660 1 50 50

Rice (long grain) 2,660 1 50 50

Cotton 894 1 Sliding duty (currently 6–40) 33

Sugar 1,945 15 50 70

Wool 287 1 38 (a

)

Wool tops 80 3 38 (a

)

Source: USDA, ERS, “China: Policy, International Trade Policies.” 

Note: Over-quota tariffs have been adjusted to reflect current bound tariffs. 

 aNot applicable. 

13 percent of sugar, and 2 percent of cotton.25 These relatively small shares indicate the 

importance of these products to achieving China’s goals in food security through selfsufficiency. 

TRQ Fill Rates 

China’s agricultural product TRQ fill rates vary by product and year (figure 7.3). The 

TRQ for imports of cotton was consistently and substantially higher than those for other 

products during 2004–09 and exceeded 100 percent each year.26 The wool TRQ exhibited 

the second highest fill rate during the period, and it generally increased during the period. 

The relatively high fill rates for cotton and wool reflect China’s need for these products 

for further processing. The TRQ fill rate for sugar was relatively stable during the period. 

The wheat TRQ fill rate declined substantially during 2004–09. TRQ fill rates for corn 

and short-grain rice typically are small, largely reflecting China’s emphasis on food 

security through self-sufficiency in certain staple food products. 

 

TRQ Administration 

The administration of China’s TRQs is carried out by the Ministry of Commerce 

(MOFCOM) and the National Development and Reform Commission (NDRC) under the 

Regulations on Administration of Import and Export of Goods and the Interim Measures 

on the Administration of Tariff Rate Quota for Importation of Agricultural Products.27

MOFCOM administers the TRQs on sugar and wool, while the NDRC administers the 

TRQs on wheat, corn, rice, and cotton. TRQs are announced annually, although TRQ 

quantity levels have remained the same over time.28

 25 Calculated by Commision staff based on data from USDA, FAS, PSD Online. 26 China usually increases its WTO minimum cotton TRQ annually by announcing a supplemental 

quantity that can enter at a reduced duty rate, or “sliding duty.” 27 WTO, Responses to Questionnaire on Import Licensing Procedure, September 30, 2005, 2. 28 Ibid. 
7-8

FIGURE 7.3 China’s TRQ fill rates vary significantly by product and year 

0 50 100 150 200 250 300 350 400 450

2004

2005

2006

2007

2008

2009

Fill rate (percent)

Cotton Wool tops Wool Sugar Rice, long Rice, short Corn Wheat

Source: Estimated by USITC staff based on data from the GTIS, Global Trade Atlas database. 

TRQ allocations are based on the number of applicants, historical import levels and 

shares, domestic production capacity, and other relevant information. 29 Several 

conditions and requirements are imposed on TRQ holders. TRQ allocations for grain, 

cotton, and sugar are valid for one calendar year, with an extension available through 

February of the following year, while the TRQ for wool and wool tops is valid for six 

months within a calendar year, with an extension available through the following 

February. TRQ holders for all products are required to return any unfilled quota 

allocations for reallocation.30 Any unreturned quotas will be subtracted from the TRQ 

holder’s next allocation. TRQ applications are required to be filed with MOFCOM (for 

sugar, wool, and wool tops) and NDRC (for grain and cotton). 

The TRQ for wool and wool tops is allocated on a first-come, first-served basis. For 

sugar, a quota holder must process at least 600 metric tons of raw sugar, must have 

registered capital of at least RMB 1 billion ($0.1 billion), and must have annual sales of 

at least RMB 3.5 billion ($0.5 billion).31 For wool and wool tops, a quota holder must 

have a processing capacity of 5,000 metric tons (mt),32 while wheat STE quota holders 

must have a daily processing capacity of 400 mt.33 Corn quota holders must have a need 

for 50,000 mt of corn for feed manufacturing or 100,000 mt of corn for other processing. 

Rice TRQ quota holders must have annual food sales of RMB 100 million ($13 million) 

and food imports and exports totaling at least $25 million. China administers the cotton 

 29 WTO, Responses to Questionnaire on Import Licensing Procedure, September 30, 2004, 4. 30 Unused allocations must be returned by September 15 of the quota year. PRC, MOFCOM, Interim 

Measures for the Administration of Import Tariff Quotas, September 27, 2003. 31 PRC, MOFCOM, “Notice No. 64 of 2010,” September 30, 2010. 

32 PRC, MOFCOM, “Notice No. 65 of 2010,” September 30, 2010. 

33 NDRC, “Notice No. 27 of 2010,” September 25, 2010. 
7-9

TRQ using a “sliding duty” for over-quota quantities. In 2009, this duty was RMB 0.57 

($0.08) per kilogram for cotton valued above RMB 11.397 ($1.52) per kilogram.34 For 

cotton valued below that amount, the duty was determined by a formula ensuring that it 

would go no higher than the bound rate of 40 percent ad valorem. 

Most agricultural product TRQs are administered by an STE (table 7.4). Over-quota tariff 

rates generally are prohibitive. In addition, TRQ utilization rates for most grains are low 

(figure 7.3). A recent study concluded the principal reasons for the low fill rates were the 

role of STEs in administering the grain TRQs, increased government support and 

domestic grain output, and improved domestic grain quality.35 

China agreed to lower the shares of agricultural TRQs administered by STEs in its WTO 

accession protocol.36 However, most of these shares remain relatively large (table 7.4). 

The share is highest for wheat (90 percent) and lowest for cotton (33 percent). In 

addition, a lack of transparency in the administration of TRQs is an issue for U.S. 

agricultural exporters,37 and transparency remains a general issue for China, as cited by 

the WTO.38 Issues regarding the administration of TRQs are discussed in greater detail in 

chapter 9. 

Antidumping and Countervailing Duties 

In August and September 2010, China announced final countervailing duty (CVD) and 

antidumping (AD) determinations, respectively, on imports of certain U.S. poultry 

products. Actions related to these determinations have adversely affected U.S. poultry 

exports to China. CVD and AD duties are not traditional tariffs; rather, they are duties to 

offset foreign subsidies and dumping margins. These determinations resulted in the 

imposition of CVD rates of between 5.1 percent and 30.3 percent, and AD rates of 

between 50.3 percent and 105.4 percent, on imports of the subject U.S. poultry into 

China. 39 The U.S. Trade Representative stated that the United States and U.S. 

respondents were still reviewing China’s final determinations in these investigations, and 

said that the investigations “had been issued under troubling circumstances, [and that] 

they are finding, once again, procedures, methodologies and decisions that generate 

concern, given WTO rules.”40 According to the U.S. Department of Agriculture, China’s 

imports of U.S. broiler meat declined by 80 percent during January–July 2010 as 

compared with the same period of the previous year.41 For much of January–July 2010, 

the U.S. poultry at issue was subject to payment of a bond on entry into China. The bond 

was required after China announced affirmative preliminary antidumping determinations 

in February 2010 and affirmative preliminary countervailing duty determinations in April 

2010. 

 34 WTO, Trade Policy Review China, April 26, 2010, 32. 35 Zhou and Kang, “Uncover the Causes of China’s Low Utilisation of Grain TRQ,” 2009, 41. 36 WTO, “Schedule CLII: People’s Republic of China,” October 1, 2001. 37 U.S. Wheat Associates, written submission to the Commission, September 16, 2010, 1–2; National 

Cotton Council, written submission to the USITC, September 15, 2010, 6; USTR, 2009 Report to Congress 

on China’s WTO Compliance, December 2009, 72. 38 WTO, Trade Policy Review China, April 26, 2010, 12. 39 PRC, MOFCOM, “Notice No. 52 of 2010,” August 30, 2010; and PRC, MOFCOM, “Notice No. 51 of 

2010,” September 26, 2010. 40 USTR, 2010 Report to Congress on China’s WTO Compliance, December 2010, 34. 41 USDA, FAS, China: Poultry and Products; Annual, 2010, September 30, 2010, 2. 
7-10

Simulated Effects of China’s Applied Agricultural Tariffs on 

U.S. Agricultural Exports 

In order to estimate the effects of China’s applied agricultural tariffs on U.S. agricultural 

exports, the Commission conducted an economic model simulation42 in which China’s 

MFN tariffs and tariff-rate quotas (TRQs)43 on imports from all countries (i.e., the United 

States and the rest of the world) were removed. The resulting simulated trade flows were 

then compared to actual 2009 trade flows. The simulation results, represented by the 

difference between the two, are characterized as the effects of the removal of China’s 

tariffs and TRQs on its imports, both from the United States and from all other countries. 

Results were obtained for 131 commodity sectors,44 a subset of which is presented in 

table 7.5. This subset includes: (i) products with large actual 2009 U.S. exports to China 

(e.g., soybeans and animal hides), (ii) products for which the simulation showed large 

effects on U.S. exports to China (e.g., wheat and poultry), and (iii) products subject to 

TRQs in China (rice and sugar). For several of the selected products, the volume of 

imports is small compared with the Chinese domestic market (table 7.6). For example, 

during 2007–09, imports accounted for less than 1 percent of Chinese consumption for 

wheat, rice, corn, pork, and apples. Imports also made up a small share of Chinese 

consumption for poultry, sugar, and several types of fresh fruit. Soybeans and tree nuts 

are the only imports that account for a large share of Chinese consumption. Because of 

the low rates of import penetration for many commodities, the effects of tariff elimination 

on Chinese consumption likely would be muted even when the effects on trade are 

significant. 

 

Table 7.5 shows actual 2009 Chinese trade-weighted tariff rates for the United States and 

the world, actual 2009 U.S. exports to China and total Chinese imports, and the 

Commission’s simulated effects for U.S. exports and total Chinese imports of the selected 

agricultural products. In 2009, total U.S. agricultural exports to China were $10.9 billion 

(table 7.5). The trade-weighted average import tariff levied by China on agricultural 

imports from the United States was about 6 percent.45 The results of the model simulation 

suggest that China’s agricultural tariffs reduced U.S. food and agricultural exports to 

China in 2009 by $1.3–$2.1 billion; in the absence of China’s tariffs, U.S. agricultural 

exports to China would have been 11–19 percent higher.46 The effects are presented in 

ranges to account for the statistical uncertainty in key economic parameters.47

 42 The Commission’s simulation for tariff and TRQ removal were performed with a framework that links 

a partial equilibrium trade model to an economy-wide trade model, the Global Trade Analysis Project model. 

The simulation framework is described in appendix F. 43 The ad valorem equivalent tariffs for products subject to TRQs capture the restrictiveness of the quota 

volume level and may be equal to the in-quota tariff, the over-quota tariff, or some level in between. 44 Commission model results for the 131 commodity sectors under consideration in this report are 

presented in appendix G. 45 As table 7.5 and appendix table G.1 show, China’s tariff rates vary considerably from product to 

product. The trade-weighted average import tariff levied on U.S. products is 6 percent because a large share 

of U.S. exports (e.g., soybeans and cotton) are levied at relatively low tariffs (approximately 1 and 6 percent 

for soybeans and cotton, respectively). 46 The Commission’s estimate seems reasonable because a simple calculation involving tariff removal, an 

average trade elasticity, and the share of imports of Chinese consumption for food and agricultural products 

results in an increase in U.S. agricultural exports to China of approximately 19 percent. 47 A range of simulated effects was obtained by varying the magnitude of trade elasticities to account for 

the degree of statistical uncertainty in the econometric estimates of the elasticities. Low and high values for 

the elasticities of demand (ESM) were computed as ESM + standard deviation. Hertel et al. (2007) provide 

estimated values for ESM and standard deviations. Hertel et al., “How Confident Can We Be of CGE-Based 

Assessments?” 2007, 611–635. 
TABLE 7.5 China: China’s tariffs, U.S. and Chinese trade statistics, and simulated effects on U.S. exports to China and Chinese imports from the world i

selected agricultural products, 2009 Product 

2009 tradeweighted AVE 

on U.S. 

exports to 

China

Actual 2009

 U.S. exports

to China

Range of simulated change 

in U.S. exports to China 

absent Chinese tariffs 

2009 tradeweighted 

AVE on 

Chinese 

imports

from World

Actua

C

i

 fr

 Percent Million $ Million $ Percent Percent MAnimal products 

 Poultry 13 796 358–363 45–46 13  Pork offal 13 52 51–84 98–162 14 

 Bovine hides, other 7 646 24–26 4–4 8 

 Frozen pork 14 23 12–12 52–52 14 

 Whey 6 75 4–5 6–7 7 

Grains 

 Wheat 68 84 489–1,192 580–1,415 68 

 Corn 46 4 1–4 33–100 46 

 Rice 68 0 0–0 0–0 68 

Oilseeds and products 

 Soybean oil 42 30 3–3 10–11 42 

 Soybeans 2 6,993 (7)–0 0–0 2 

Horticultural products 

 Pistachios, walnuts 14 107 18–22 17–21 14 

 Grapes 18 59 13–16 22–28 18  Coconuts and other nuts 22 27 10–13 38–48 18  Almonds 15 87 9–11 10–12 15  Oranges 17 34 8–9 22–27 17  Apples 14 19 3–4 17–21 14 Processed foods 

 Other prepared foods 18 94 25–26 27–27 21 

 Foods prepared from fruits and nuts 18 63 20–21 32–34 18  Foods prepared from vegetables 16 39 10–11 26–27 18  Processed rices 68 0 0–0 0–0 68 

Other 

 Alcoholic beverages 29 137 32–43 24–31 28  Cotton 5 803 28–71 3–9 5 

 Tobacco 16 104 20–22 19–22 16 

 Pet food and other feeds 8 100 14–14 14–14 7  Seeds for planting and other plant parts 6 61 3–3 5–5 5 

 Sugar and molasses 0 0 0–0 0–0 0 

 All other 14 504 101–112 20–22 9 

 Total 6 10,942 1,251–2,090 11–19 9 

Source: Commission staff calculations with simulation framework discussed in appendix F. Notes: (1) AVE stands for ad valorem equivalent. (2) Parenthesis ( ) indicates a negative number. (3) A range of simulated effects was obtained by varyin

to account for the degree of statistical uncertainty in the economic estimates of the elasticities. 

7-11 
7-12

TABLE 7.6 China: Imports, domestic consumption, and import share for certain agricultural products, average 2007–

09 

Commodity Imports Consumption 

Ratio of imports to 

consumption

 Thousand metric tons Percent 

Poultry 461 11,899 3.9 

Pork 387 46,075 0.8 

Wheat 641 106,167 0.6 

Rice 311 131,590 0.2 

Corn 461 153,333 0.3 

Soybeans 43,084 53,561 80.4 

Soybean oil 2,245 9,871 22.7 

Almonds 8 10 88.8 

Apples, fresh 50 21,625 0.2 

Grapes, fresh 68 5,087 1.3 

Oranges, fresh 69 5,649 1.2 

Pistachios 28 23 121.4 

Cotton 9,810 46,750 21.0 

Sugar 818 14,083 5.8 

Source: USDA, FAS, PSD Online (accessed January 10, 2011). 

In general, the simulated U.S. export effects are positive and are driven by the magnitude 

of the Chinese tariffs and the degree of sensitivity of China’s consumers to prices. 

According to the simulation, among U.S. products most affected by China’s agricultural 

tariffs were wheat (U.S. exports to China would have been $489 million to $1.2 billion 

higher without tariffs), poultry ($358–$363 million), pork offal ($51–$84 million), cotton 

($28–$71 million), and alcoholic beverages ($32–$43 million). Absent agricultural 

tariffs, the simulation results also suggest that China’s food and agricultural imports from 

all countries would have expanded by $5.5–$9.8 billion in 2009. 

The model simulation shows that total Chinese imports of wheat, poultry, pork, and 

soybean oil would expand significantly, in dollar terms, in the absence of China’s tariffs 

and TRQs.48 According to the simulation, the elimination of Chinese tariffs and TRQs 

would generate more Chinese imports of these products as foreign suppliers take 

advantage of the cost savings. For example, the model simulation shows an increase in 

Chinese total imports of poultry of $400–$416 million, with $358–$363 million of this 

increase accounted for by increased exports of poultry to China from the United States. 

Likewise, of the simulated increase in total Chinese imports of wheat of $1.2–

$3.3 billion, $489 million to $1.2 billion are accounted for by the United States. The 

increased competition in the Chinese market from lower-cost imports of wheat, poultry, 

pork, and soybean oil would cause a significant reduction in the supply of those products 

produced domestically in China. 

Changes in the Chinese market for wheat, poultry, pork, and soybean oil would then have 

knock-on effects in other sectors. These effects are captured in the simulation through the 

general equilibrium effects, in which factors of production move between sectors in 

response to policy shocks.49 In response to the changes, resources (such as land, capital, 

 48 The expansion in wheat trade is larger than that for other products because the AVE for wheat is 

relatively high and the import demand elasticities for wheat are large due to the relatively homogeneous 

nature of the commodity. 49 Further discussion of the mechanics of the general equilibrium model used in this simulation can be 

found in appendix F. 
7-13

and labor) would leave the wheat and meat sectors in China and move into sugar crops 

and wool. At the same time, U.S. producers would respond to increased demand for 

wheat and meat products in China by drawing resources from other sectors to expand 

their production. 

The model simulation also shows that U.S. exports of soybeans would have been lower, 

by as much as $7 million, in the absence of the Chinese soybean tariff. This seemingly 

anomalous result can be traced to the general equilibrium model effects as well. The 

expansion of meat production in the United States, in response to increased Chinese 

demand, would increase demand in the United States for animal feed, including 

soybeans. At the same time, increased demand for wheat in China would cause U.S. 

wheat production to expand, drawing resources from the soybean sector. Fewer U.S. 

soybeans would then be available for export, and U.S. exports of soybeans to China 

would fall slightly or remain constant. 

The simulated tariff effects are the marginal effects of China’s applied tariffs and TRQs 

and do not incorporate any other policy changes in China or elsewhere. In the absence of 

China’s tariffs, in a few years U.S. exports would likely expand by more than is indicated 

in the model simulation results due to economic growth in China and market 

development by U.S. exporters. This tariff simulation does not consider other policies 

that reduce demand for U.S. products in China, such as nontariff measures (NTMs). The 

Commission’s economic model simulation of the effects of China’s NTMs on U.S. 

exports is presented in chapter 9. 
7-14

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8-1

CHAPTER 8 

China’s Trade Agreements 

Overview 

In recent years China has negotiated free trade agreements (FTAs)1

 with its immediate 

neighbors, several Southeast Asian countries, and a number of countries around the 

Pacific rim. China is now negotiating agreements with several countries in southern 

Africa and northern Europe. This effort appears to have been driven, in many cases, by 

China’s goal of integrating its economy into the larger Asian economy and/or deepening 

existing trading relationships.2

 The FTAs that China has implemented to date are mainly 

with regional trading partners or with less economically developed countries. These 

agreements enable China to diversify its trade and reduce economic dependence on 

developed countries. They also contribute to closer political relations with neighbors in 

its region. 

China’s FTAs first developed with nearby partners and have spread outward. The first 

FTAs (effective January 2004) were the Closer Economic Partnership Agreements 

(CEPAs) with two special administrative regions3

 (SARs) of China––Hong Kong and 

Macau. These agreements were followed by a set of FTAs with the Association of 

Southeast Asian Nations (ASEAN) (July 2005) and then FTAs with Chile (October 

2006), Pakistan (July 2007), New Zealand (October 2008), Singapore (January 2009), 

Peru (March 2010), and Costa Rica (April 2010). Another FTA (the China-Asia Pacific 

Trade Agreement), implemented in December 2009 with five countries––Bangladesh, 

India, Korea, Laos, and Sri Lanka––essentially solidified and extended a prior agreement. 

China’s FTAs vary in scope. In general, tariff concessions on agricultural products 

exclude sensitive products associated with food security concerns, mainly grains. China 

has given the most extensive agricultural product concessions to partners with relatively 

small agricultural sectors, such as Hong Kong, Macau, and Singapore. Concessions to 

other partners generally correspond to products that are complementary or offer limited 

competition to domestic Chinese agricultural producers.4

 

China’s agricultural trade with its FTA partners has been increasing in recent years.5 The 

value of its agricultural imports from ASEAN countries increased by 131 percent during 

2005–09, reaching $8.6 billion in the latter year. The value of its agricultural imports 

from New Zealand doubled during the period to $1.2 billion in 2009. China’s agricultural 

exports to ASEAN countries increased by 121 percent in value during 2005–09, reaching 

$4.6 billion the latter year. 

 1

 In this report, the term “free trade agreement” applies to all of China’s trade agreements. 2

 Shulong, “China’s Approach to the Free-Trade Area,” October 4, 2006, 3–4. 3

 SARs are highly autonomous regions in China which fall under the principal of “one country, two 

systems.” SARs may have different social, economic, political, and legal systems from mainland China, 

while their foreign and defense affairs are controlled by China’s central government. Under the current laws, 

Hong Kong and Macau will retain their SAR status until 2047 and 2049, respectively. 4

 Shulong, “China’s Approach to the Free-Trade Area,” October 4, 2006, 15. It is notable that rice, 

produced extensively in China and ASEAN countries, was excluded from the China-ASEAN FTA. 5

 China’s agricultural trade, including that with FTA partners, is discussed in detail in chapter 2. 
8-2

Model simulation results prepared by Commission staff, presented in ranges to account 

for the statistical uncertainty in key economic parameters, suggest that the effects of 

China’s FTAs on U.S. food and agricultural exports to China in 2009 may have ranged 

from a contraction of up to $21 million to an expansion of up to $48 million. The 

simulated effects range from negative (a contraction of U.S. exports) to positive (an 

expansion of U.S. exports) because they are small; as a result, the range for the aggregate, 

as well as for some individual products, straddles zero. This simulation assumes the full 

implementation of tariff and market access provisions for manufactured and agricultural 

goods in China’s ratified FTAs; U.S. tariffs remain unchanged while China and its FTA 

partners experience tariff elimination or reductions. 

Among U.S. agricultural exports shown to be negatively affected by China’s FTAs were 

wheat (U.S. exports to China were reduced by as much as $37 million), whey (a 

reduction of between $9 million and $12 million), grapes (a reduction of $9–$11 million), 

and apples (a reduction of $2–$3 million). Among U.S. agricultural exports positively 

affected by China’s FTAs were poultry (an expansion of $63–$68 million), cotton (an 

expansion of $18–$24 million), and soybeans (an expansion of $15 million). 

Free Trade Agreements 

Currently, China has completed and implemented 10 FTAs (both bilateral and 

multilateral) all centered in the Asia-Pacific region (table 8.1).6

 One additional FTA is 

pending,7

 five are under negotiation, and four are under consideration. These potential 

FTAs expand China’s trade liberalization interest to Europe, Africa, and the Gulf region. 

China’s FTAs generally provide tariff concessions for products that China does not 

produce or for those of which it produces too little to meet domestic demand. 

Concessions have also been given for products not produced in partner countries. China’s 

FTAs generally maintain high tariffs on food security-sensitive products (such as wheat, 

corn, rice, and sugar) where there is a potential for competition. However, no products 

are excluded from the tariff reductions under China’s FTAs with Hong Kong, Macau, 

ASEAN, and Singapore (table 8.2).8

There are considerable variations in the scope of tariff reductions among China’s FTAs. 

The least restrictive FTAs in terms of tariff reductions are those China has with its SARs, 

Hong Kong and Macau, and with Singapore, which impose few import tariffs. The most 

restrictive FTA is with Pakistan. In addition, the Cross-Strait ECFA is limited in scope to 

concessions by China on a small number of horticultural products. 9

 The China-Asia 

Pacific Trade Agreement involves relatively minor tariff reductions by most of China’s 

partners on a limited number of agricultural products, while more extensive reductions by 

China generally are from relatively low base tariffs. 

 6

 All of China’s trade arrangements are discussed in this chapter. 

7

 The China-Costa Rica FTA has been signed but not ratified. 

8

 The China-ASEAN FTA does allow relatively sensitive products to be excluded by certain reduction 

formulas. 9

 Taiwan, MEA, “Ministry of Economic Affairs Announced ECFA Online English Text,” September 21, 

2010. 
8-3

TABLE 8.1 Overview of China’s trade agreements

 Participants Effective date Comments 

Agreements in force 

 Mainland and Hong 

 Kong CEPA 

China, Hong Kong SAR January 2004 Comprehensive coverage of goods and 

services, agreement to facilitate investment 

 Mainland and Macau 

 CEPA 

China, Macau SAR January 2004 Comprehensive coverage of goods and 

services, agreement to facilitate investment 

China-ASEAN Free Trade 

Agreement (ACFTA) 

China, Brunei, Burma, 

Cambodia, Indonesia, 

Laos, Malaysia, 

Philippines, Singapore, 

Thailand, Vietnam 

July 2005 

(goods) 

Services and investment agreements signed 

later 

 China-Chile FTA 

 (CCFTA) 

China, Chile October 2006 Services agreement signed later; agreement 

to promote investment 

 China-Pakistan FTA China, Pakistan July 2007 

(goods) 

Services agreement signed later 

 China-New Zealand FTA China, New Zealand October 2008 Comprehensive 

 China-Singapore FTA China, Singapore January 2009 Accelerates liberalization of goods under 

ASEAN FTA; broadens services trade 

liberalization under ASEAN FTA 

 China-Asia Pacific 

 Trade Agreement 

China, Bangladesh, 

India, Korea, Laos, Sri 

Lanka 

December 

2009 

Amended the Bangkok Agreement (1975) 

 China-Peru FTA China, Peru March 2010 Comprehensive 

 Cross Strait Economic 

 Cooperation Framework 

 Agreement (ECFA) 

China, Taiwan (a

) Signed June 29, 2010; comprehensive 

Agreements pending 

 China-Costa Rica China, Costa Rica (a) Signed April 2010; comprehensive 

Agreements under negotiation 

 China-Southern Africa 

 Customs Union 

China, Botswana, 

Lesotho, Namibia, South 

Africa, Swaziland 

(

a

) Launched June 2004; comprehensive 

 China-Gulf Cooperation 

 Council 

China, Bahrain, Kuwait, 

Oman, Qatar, Saudi 

Arabia, United Arab 

Emirates 

(

a

) Launched July 2004; comprehensive 

 China-Australia China, Australia (a

) Launched April 2005; comprehensive 

 China-Iceland China, Iceland (a

) Launched April 2007; comprehensive 

 China-Norway China, Norway (a

) Launched September 2008; comprehensive 

Agreements under consideration 

 China-India Regional 

 Trade Arrangement 

China, India (a) Joint Study Group established in 2003; 

feasibility study completed in October 2007 

 China-Japan-Korea China, Japan, Korea (a

) First meeting held May 6–7, 2010. Two 

subsequent meetings. 

 China-Korea China, Korea (a

) Unofficial feasibility study launched 

November 2004; official study launched 

November 2006, completed June 2010 

 China-Switzerland China, Switzerland (a

) Joint feasibility study completed August 9, 

2010. 

Source: Compiled by Commission staff from PRC, MOFCOM, China FTA Network, various schedules of tariff concessions. 

a

Not applicable. 
8-4

TABLE 8.2 Agricultural products excluded from China’s trade agreements 

Agreement name Partners’ exclusions China’s exclusions 

Mainland and Hong Kong CEPA None None 

Mainland and Macau CEPA None None 

China-ASEAN FTA (ACFTA) None None 

China-Chile FTA Lactose, rice, sugar, and wheat Grain and vegetable oils 

China-Costa Rica Pork, poultry, onions, rice, lard, 

glucose, sugar syrup, chocolate bars, 

prepared cereals, jams and jellies, 

fruit juice, animal feed preparations 

Coffee, grains (corn, rice, wheat) 

vegetable oils (soybean, peanut, 

palm, sunflower, cotton seed, 

rapeseed), sugar, orange juice, 

tobacco, wool, and cotton 

China-New Zealand FTA None Cotton, grains (corn, rice, wheat), 

vegetable oils (palm, soybean, 

sunflower seed), wool 

China-Pakistan FTA Egg products, meat, milk products, 

and nuts (477 products at Harmonized 

System 6-digit level) 

Coffee, cotton, fruits, grains, meat, 

nuts, and wool 

China-Peru FTA None Coffee, grains (corn, rice, wheat), 

vegetable oils (canola, palm, peanut, 

soybean, sunflower), and tobacco 

and tobacco products 

China-Singapore FTA None None 

Source: Compiled by Commission staff from PRC, MOFCOM, China FTA Network, various schedules of tariff 

concessions. 

Several of China’s FTAs cover large volumes of trade, including those with Hong Kong, 

Macau, and the ASEAN countries. These are described in detail below. 

Mainland and Hong Kong Closer Economic Partnership 

Arrangement 

Background and Description 

The Mainland and Hong Kong Closer Economic Partnership Arrangement (MHKCEPA) 

was signed on June 29, 2003. It was China’s first FTA. Hong Kong is a SAR of the 

People’s Republic of China. As a SAR, Hong Kong maintains its own customs territory. 

The MHKCEPA provides duty-free treatment for substantially all trade between Hong 

Kong and China, subject to rules of origin and other requirements. The benefits of the 

MHKCEPA accrue mostly to Hong Kong, as China had already received duty-free 

treatment for its exports to Hong Kong. 

Tariff Concessions 

Under the MHKCEPA, China’s goods continue to receive duty-free treatment in Hong 

Kong.10 China agreed to provide duty-free treatment on its imports from Hong Kong in 

stages, beginning January 1, 2004. The only agricultural product receiving immediate 

 10 HKSAR, TID, MHKCEPA Annexes, September 29, 2003, annex 1, 1. 
8-5

tariff elimination was ice cream. 11 China agreed to eliminate duties on remaining 

products by January 1, 2006, subject to implementation procedures.12 These procedures 

involve application, verification, confirmation, consultation, promulgation, and 

implementation of rules regarding the Hong Kong origin of goods. An annual list of 

products verified as having Hong Kong origin, and thus, subject to duty-free treatment, is 

published. The most recent list includes a limited number of agricultural products.13

Notably absent are live animals; fresh, chilled, or frozen meat; most horticultural 

products, including nuts; and grains and oilseeds and their products. Most approved 

products are those that can be processed in Hong Kong from imported inputs. 

Rules of Origin 

Rules of origin (ROOs) are an important element of the MHKCEPA. The MHKCEPA 

sets forth ROO requirements as a condition for duty-free treatment for directly imported 

goods.14 Other ROO criteria may be mutually developed and agreed to by both parties. 

The general ROO principles are that goods must either be wholly obtained from the 

relevant region or be substantially transformed there. Wholly obtained agricultural goods 

are those harvested or collected, born and raised, hunted, or produced or processed from 

such products in the relevant region.15 Substantial transformation involves processes or 

treatment more extensive than transportation, storage, packaging, or display. Substantial 

transformation criteria include manufacturing or processing operations, a change in tariff 

heading, specified value-added content, other criteria, and mixed criteria. 16

Manufacturing or processing operations must confer essential characteristics on finished 

goods. A change in tariff heading requires that there be a shift in 4-digit Harmonized 

System (HS) headings between non-originating inputs and finished products, and that 

processing occur in the relevant party’s territory. The value-added content rule is that the 

total value of raw materials, component parts, labor costs, and product development costs 

be equal to or greater than 30 percent of the free on board value of the exported good, and 

that the final manufacturing or processing be completed in the relevant party’s territory. 

“Mixed criteria” involves the use of two or more specified ROO criteria in the 

MHKCEPA. The Schedule on Rules of Origin for Hong Kong Goods Benefiting from 

Tariff Preference for Trade in Goods, which is updated annually, specifies products for 

which origin has been conferred and, thus, for which duty-free treatment applies to Hong 

Kong goods.17

 

Sanitary and Phytosanitary Requirements 

The MHKCEPA specifically addresses animal and plant health, as well as food safety. 

The agreement requires that each party will strengthen cooperation and existing 

mechanisms regarding animal and plant inspection and quarantine, health and quarantine 

monitoring, and conformity assessment (including certification, accreditation, and 

standardization).18 

 11 Ibid., annex 1, table 1, 1. 

12 Ibid., annex 1, 2. 

13 HKSAR, TID, Goods Entitled to CEPA Zero Tariff Preference: Mainland 2010 Tariff Codes; Product 

Description and Rules of Origin, May 31, 2010. 14 HKSAR, TID, MHKCEPA Annexes, September 29, 2003, annex 2, 1. 15 Ibid., annex 2, 2. 

16 Ibid., annex 2, 3. 17 HKSAR, TID, MHKCEPA Annexes, September 29, 2003, annex 1, table 1. 18 Ibid., annex 6, 4. 
8-6

Investment 

The MHKCEPA provides for investment cooperation and promotion under a Joint 

Steering Committee. 19 The agreement specifies that each party will strengthen 

cooperation in sharing information regarding investment policies and regulations; hold 

consultations regarding common investment problems; promotion of mutual and overseas 

investment; and conduct exchanges on other issues of mutual concern.20

Mainland and Macau Closer Economic Partnership Arrangement 

The Mainland and Macau Closer Economic Partnership Arrangement (MMCEPA) was 

signed on October 17, 2003, shortly after the MHKCEPA.21 The MMCEPA is similar to 

the arrangement with Hong Kong. Identical ROOs apply, with some differences in the list 

of Macau products certified as eligible for duty-free treatment by China.22 Agricultural 

products granted immediate duty-free treatment by China under the MMCEPA included 

prepared or preserved fruit and nuts, sugar confectionery, pasta, ice cream, and certain 

alcoholic and non-alcoholic beverages. The arrangement is virtually identical to the 

MHKCEPA with respect to sanitary and phytosanitary (SPS) requirements and 

investment. 

China-ASEAN Free Trade Agreement 

Background and Description 

The China-ASEAN Free Trade Agreement (ACFTA) was China’s first comprehensive 

FTA. It was signed in November 29, 2004, and entered into force July 1, 2005. 23

Reportedly, the main driver leading to the ACFTA was a common interest in regional 

economic integration, financial policy coordination, and political stability.24 The ACFTA 

comprises discrete tariff concessions between China and individual ASEAN members 

within a framework of common elements addressing ROO, SPS rules, investment, and 

other issues.25 Tariff concessions vary by member in scope and staging, as discussed 

below. The ACFTA will result in duty-free treatment for trade between signatories in 

products in 95 percent of HS subheadings for the “ASEAN-6” countries26 and China by 

2012. 27 Duty-free treatment will also apply to an average of 90 percent of the HS 

subheadings for Cambodia, Laos, and Burma and 93.7 percent for Vietnam. 

Tariff and Tariff-Rate Quota Concessions 

Tariff concessions are specific to the individual agreement between China and a 

particular ASEAN member country. Tariff concessions under the ACFTA are under three 

schedules: (1) an early harvest program (EHP); (2) a normal track; and (3) a sensitive 

track comprising a sensitive list and a highly sensitive list. Under the EHP, which was set 

 19 Ibid., annex 6, 1. 20 Ibid., September 29, 2010, annex 6, 2. 21 Macau is a SAR of China with a similar status to that of Hong Kong. 

22 DSE, “CEPA (October 17, 2003),” 2007. 

23 ASEAN, Agreement on Trade in Goods, November 29, 2004. 24 See, for example, Yue, ASEAN–China Free Trade Area, April 2004, 14; Wang, The Logic of ChinaASEAN Free Trade Agreement, August 2007, 18; UACT, ASEAN-China Free Trade Agreement: A Primer, 8. 25 ASEAN, “ASEAN-China Free Trade Area.” 

26 Brunei, Indonesia, Malaysia, the Philippines, Singapore, and Thailand. 27 WTO, Communication from the Parties to the Agreement, October 16, 2007, 3. 
8-7

forth in a framework agreement on economic cooperation in advance of the FTA, 

signatory countries agreed to immediately eliminate most tariffs on mutual trade in 

agricultural products in HS chapters 1 through 8.28 This includes live animals and meat, 

dairy products and eggs, fruits, nuts, vegetables, and other animal and plant products. The 

EHP was amended to provide for the designation of specific products as well as the 

designation of product exclusions at the 8-digit HS level. 29 Countries opting for no 

exclusions include China, Brunei, Indonesia, Burma, Singapore, and Thailand. Malaysia 

has no exclusions for China, though it excludes eggs and certain fruit from other ASEAN 

members. Cambodia, Laos, and Vietnam exclude certain products from all ACFTA 

members, including certain live animals, poultry, eggs, and certain fruits and 

vegetables.30 The EHP staging period varies by country. For China and the ASEAN-6 

members EHP requires eliminating tariffs on relevant products between 2004 and 2006; 

for Cambodia, Laos, Burma, and Vietnam, it requires eliminating tariffs between 2004 

and 2010. 

 

The staging periods and annual reductions leading to tariff elimination for products under 

the second schedule––the normal track––vary by country.31 One normal track required 

that relevant tariffs be eliminated no later than January 1, 2010, for the ASEAN-6 

countries and China. The staging period is extended until January 1, 2015, for Cambodia, 

Laos, Burma and Vietnam, with a separate annual staging schedule for Vietnam. Another 

normal track provided for tariffs to be eliminated on certain products by January 1, 2012, 

for the ASEAN-6 and China or by January 1, 2018, for Cambodia, Laos, Burma, and 

Vietnam.32 The Philippines began its normal-track tariff reductions on January 1, 2006.33

The ACFTA requires the inclusion of all products.34 However, it allows each member 

country to designate sensitive products subject to lesser tariff reductions under the third 

schedule––the sensitive track.35 These products are on either a sensitive list36 or a highly 

sensitive list37 (table 8.3). The ACFTA placed ceilings on the absolute number of tariff 

lines that could be designated as sensitive, as well as on the share of total tariff lines that 

could be so designated.38 The ASEAN-6 countries and China must reduce tariffs on 

sensitive products to 20 percent ad valorem not later than January 1, 2012, and to 

between zero and 5 percent ad valorem no later than January 1, 2018. The other ASEAN 

countries have until January 1, 2015, to reduce tariffs on sensitive products to 20 percent 

ad valorem. The ASEAN-6 countries and China must reduce tariffs on highly sensitive 

 28 ASEAN, Framework Agreement, article 6, November 4, 2002. 29 ASEAN, Protocol to Amend the Framework Agreement, October 6, 2003, article 6, 6. The EHPspecific product list is available at http://www.aseansec.org/22199.pdf, and the EHP product exclusion list is 

available at http://www.aseansec.org/22198.pdf. 30 The Philippines entered the EHP after the other FTA members and submitted its EHP concessions at a 

later date. RPTC, Executive Order No. 485, December 29, 2005. The list of products for which the 

Philippines granted concessions to all ACFTA members is included in annex A, and additional products for 

which the Philippines granted concessions to China are listed in annex B. 31 ASEAN, Agreement on Trade in Goods, November 29, 2004, annex 1. Each country determined the 

products it placed in the normal track. 32 ASEAN, Agreement on Trade in Goods, November 29, 2004, annex 1, appendix 1. 33 RPTC, Executive Order No. 487, January 12, 2006, annex A. 34 It is possible for a product to maintain its pre-ACFTA tariff. For example, under the highly sensitive 

list criteria, a certain number of items may remain at a tariff rate of 50 percent ad valorem. China designated 

raw and refined sugar, which had an existing most-favored-nation (MFN) rate of 50 percent ad valorem, as 

highly sensitive products, effectively resulting in no tariff reductions. Also, products may be excluded under 

general and security exceptions set forth in article 12 and article 13 of the Agreement on Trade in Goods. 35 ASEAN, Agreement on Trade in Goods, November 29, 2004. 36 Ibid., annex 2, appendix 1. 

37 Ibid., appendix 2. 

38 Ibid., annex 2. 
8-8

TABLE 8.3 China-ASEAN FTA sensitive and highly sensitive products, by member 

Member Sensitive track Highly sensitive track 

China Coffee; dried pepper; wheat; rice; pineapples 

and pineapple juice; canned longan; coconut 

juice; tobacco 

Corn seeds; certain rice; certain milled wheat, 

corn, and rice products; soybean, palm, 

rapeseed, and mustard oil; raw and refined 

sugar; cigars, cigarettes, smoking tobacco, 

and other tobacco products; carded or 

combed cotton 

Brunei None None 

Cambodia Seaweed; pasta; potatoes; yeasts; truffles; 

protein concentrates; rum and tafia; raw cotton 

Certain oil seeds; refined sugar; glucose; 

certain prepared or preserved vegetables; 

condiments; beer; vinegar; tobacco; 

cigarettes; dextrin 

Indonesia Tobacco Certain corn; rice; rice flour; raw and refined 

sugar; ethanol 

Laos Live animals; meat; eggs; vegetables; nuts; fruit; 

dried chilies; rice 

Alcoholic beverages; ethanol 

Malaysia None Live chickens; poultry; milk and cream; eggs; 

cabbages; rice; cigars, cigarettes, tobacco, 

and tobacco products 

Burma Coffee; tea; dried chilies; rice; gum arabic; 

vegetable oils; margarine; insect waxes; meat 

products; raw and refined sugar; chewing gum; 

confectionery; cocoa products; pasta; biscuits 

and pastries; prepared or preserved fruit, 

vegetables, and nuts; alcoholic and non-alcoholic 

beverages; cigarettes and cigars; silkworm 

cocoons and raw silk; raw cotton 

None 

Philippines Poultry; vegetables; provisionally preserved 

citrus and melon peel; dried chilies; ginger; corn 

and manioc starches 

Meat; vegetables; rice; processed meat; raw 

and refined sugar; animal feed 

Singapore Certain alcoholic beverages Beer 

Thailand Wheat flour; swine offal; processed tomatoes; 

fruit juices; pet food 

Milk; vegetables; onions and garlic; certain 

fruit; coffee; tea; rice; soybeans; copra; 

vegetable seeds; vegetable oils; raw and 

refined sugar; coffee extracts; oil cake; 

tobacco; raw silk 

Vietnam Green tea; husked brown rice; certain processed 

meat products; beet sugar; chewing gum; certain 

alcoholic beverages 

Hens' eggs; ducks' eggs; raw cane sugar; 

certain refined sugar; certain tobacco and 

tobacco products 

Source: PRC, MOFCOM, China FTA Network, various schedules of tariff concessions.

products to between zero and 5 percent ad valorem by no later than January 1, 2015; 

other ASEAN countries have until January 1, 2018. Products subject to tariff-rate quotas 

(TRQs) are to be negotiated separately, between one or more ASEAN members and 

China, with the results to apply to all ACFTA members.39

 39 WTO, Communication from the Parties to the Agreement, October 16, 2007, 11–12. 
8-9

Rules of Origin 

The ACFTA requires specific ROOs be met in order for goods to qualify for preferential 

tariff treatment.40 There are two possible criteria for origin under the ACFTA: either 

products are wholly obtained or produced in a member party,41 or at least 40 percent of 

the content value originates in a member party. Product-specific rules (PSRs) are being 

developed to specify what degree of transformation is sufficient; these involve a change 

in tariff classification, a specific production process, a value criterion, or a combination 

thereof. Agricultural product PSRs have been agreed to for palm oil and ice cream.42

Sanitary and Phytosanitary Requirements 

The ACFTA contained no specific SPS section. However, article 8.2 states that parties 

should identify nontariff barriers for elimination.43 Article 12 (a) states that the ACFTA 

does not prevent countries from adopting measures “necessary to protect human, animal 

or plant life or health.”44 ACFTA members signed an SPS memorandum of understanding 

in 2007 and agreed to establish a consultative mechanism to facilitate the exchange of 

information, provide SPS notifications, collaborate on research, and assist lesserdeveloped parties.45 As a result, ASEAN members and China have held two ministerial 

meetings on SPS issues.46

Investment 

The ACFTA parties signed an investment agreement in August of 2009.47 The stated 

objectives of the agreement are to liberalize investment regimes and promote the flow of 

investment among parties. The agreement provides for national treatment (except with 

regard to taxation and government procurement), compensation in case of government 

expropriation of an investment, repatriation of profits, and dispute settlement procedures. 

The agreement also provides for the institution of a permanent body to implement and 

administer the agreement. 

Other Free Trade Agreements involving China 

A summary of provisions for China’s other FTAs is presented in table 8.4.

 40 ASEAN, Agreement on Trade in Goods, November 29, 2004, Annex 3. 41 The criteria for wholly obtained or produced is similar those in the MHKCEPA. 42 ASEAN-China Free Trade Area Business Portal, “Rules of Origin (ROO),” December 23, 2009. 43 ASEAN, Agreement on Trade in Goods, November 29, 2004, Article 8.2. 44 Ibid., Article 12(b). 

45 ASEAN, Memorandum of Understanding, November 20, 2007. 46 ASEAN, “ASEAN Joint Statement,” October 25, 2010. 47 ASEAN, Agreement on Investment, August 15, 2009. 
TABLE 8.4. Summary of provisions for China’s FTAs 

Country Background and description Tariff and TRQ concessions Rules of origin SPS Chile The CCFTA was signed 

November 18, 2005, and entered into force on October 1, 2006. The CCFTA was the first non-Asian FTA signed by China. The CCFTA is a comprehensive FTA and includes provisions for institutional and administrative proceedings, market access, trade remedies, ROOs, SPS measures, technical barriers to trade, dispute settlement, and other cooperation. 

The CCFTA will result in duty-free tariff treatment for 97 percent of HS subheadings during a 10-year staging period. China excluded 58 agricultural products at the 8-digit HS level, including wheat, corn, rice, certain milled grain products, certain vegetable oils, wool, and cotton. Chile excluded 24 HS subheadings, including wheat, rice, sugar, fructose, and blended syrups. 

The CCFTA ROO provisions are similar to those in the ACFTA. Product-specific rules pertaining to agricultural products requires a change in chapter for HS chapters 1 through 22; a change in HS heading (4-digit HS level) for HS chapters 17 through 19; and a minimum 50 percent regional value content for the remaining products. 

The CCFTA contains specific provisions regarding SPS measures. The stated objectives are to facilitate tradeprotect human, animal, and plant health; and provide communication and cooperatiomechanisms to implement and administer these measures. The CCFTA established an SPS committee to achieve these objectives within the general framework of the WTO SPS Agreement. 

Pakistan China and Pakistan agreed to 

an FTA in July 2007, and the agreement entered into force in July of the following year. 

Both China and Pakistan complete their tariff reductions within five years of entry into force, with 15 percent of lines at the 8-digit level excluded from any reductions. 

To be considered an originating good, at least 40 percent of the product (by content or value) must originate from within the partner country. There are also product-specific rules. 

China and Pakistan have a separate agreement on SPS measures whereby the parties agree to accept the other party’s measures as long as they achieve the appropriate level of procedure. They also agree to “cooperate for mutual recognition of SPS certificates.Additionally, the agreement creates a committee made up of relevant Chinese and Pakistani officials responsible for consultation and cooperatioon SPS issues. 

New Zealand China and New Zealand agreed 

to an FTA on April 7, 2008. The agreement entered into force on October 1, 2008. 

China will complete its tariff reductions by 2019 and New Zealand will complete its reductions by 2016. China maintains exceptions for grains, vegetable oils, beet and cane sugar, cotton, and wool. New Zealand does not retain any exceptions for agricultural imports from China. 

Goods qualify as originating if the good is produced in the territory of one or both parties, using non-originating materials that conform to a change in tariff classification, a regional value content, a process requirement, or other requirements specified in annex 5. 

China and New Zealand agree to work together to attempt to facilitate trade and improve communication. They established a joint managemencommittee to help with market access, and each plans to expedite market access requests from the other countryThe parties will jointly develop principles which will be used to determine equivalence of SPS measures. 

See footnotes at end of table. 

8-10 
TABLE 8.4 Summary of provisions for China’s FTAs—Continued

Country Background and description Tariff and TRQ concessions Rules of origin SPS 

Peru China and Peru agreed to an 

FTA on April 28, 2009. The agreement entered into force on March 1, 2010. 

Both China and Peru complete their tariff reductions within 17 years of entry into force. Chinese exceptions to Peruvian imports include selected nuts, shellfish, livers and roes of fish, grains, cane and beet sugar, and vegetable oils. 

To be considered an originating good, either the good must wholly originate from within the partner country, or the regional value content must be at least 40 percent, or the good must undergo a change in tariff classification as specified in the productspecific ROOs. 

China and Peru agree to work together to attempt to achieve transparent and streamlined procedures related to SPS. They will also work on the harmonization of SPS measures and accept equivalent SPS measures used by the other party. 

Costa Rica China and Costa Rica signed an 

FTA in April of 2010. It is the first trade agreement between China and a Central American country. 

China decreased tariffs on several goods, but maintained tariffs on imports of wheat, coffee, corn, rice, sugar, and certain vegetable oils. Costs Rica maintains tariffs on multiple sugars (including cane, maple, and beet), rice, and wheat. 

Goods qualify as originating if the good is produced in the territory of one or both parties, using non-originating materials that conform to a change in tariff classification, a regional value content, a processing operation rule, a combination of these rules, or other requirements specified in annex 3. 

China and Costa Rica formed a committee on sanitary and phytosanitary matters to convene at least every two years to communicate on SPS measures that affect the two parties. The two parties recognize the value of and will operate fully under the WTO SPS guidelines. 

Taiwan China and Taiwan signed an 

economic cooperation framework agreement in June 2010. 

China will cut tariffs on 539 products from Taiwan, a concession that is valued at $13.8 billion. Taiwan will cut tariffs on 267 products from China, a concession valued at $2.86 billion. Few agricultural products are initially included. 

(a) (a) 

Singapore China and Singapore signed an 

FTA on October 23, 2008. It further extends the relationship forged under the China-ASEAN FTA. 

Singapore maintained its concessions made under the ChinaASEAN FTA, while China increased its concessions on some goods and kept tariffs on certain items, such as key grains. 

To be considered an originating good, either the good must wholly originate from within the partner country, or the regional value content must be at least 40 percent, or the good must undergo a change in tariff classification as specified in the productspecific ROOs. 

China and Singapore established a working group on technical barriers to trade and SPS measures to meet annually. They agree to cooperate with international SPS measures, notify the otheparty of a change in SPS regulation, and work together tmutually benefit from trade. 

See footnotes at end of table. 

8-11 
TABLE 8.4 Summary of provisions for China’s FTAs—Continued

Country Background and description Tariff and TRQ concessions Rules of origin SPS 

Asia-Pacific The Asia-Pacific PTA involves 

China, India, Bangladesh, Laos, South Korea, and Sri Lanka. 

The PTA included tariff reductions on the part of every signatory country, but tariffs on most goods were not eliminated completely. 

To be considered an originating good, either the good must wholly originate from within the partner country, or processed products must contain no more than 55 percent value from non-participating countries, or the aggregate content originating in one of the participating states must be no less then 60 percent. Special rules apply for the least developed of the participants. 

Every participating party will acin a transparent manner with one another and also act in accordance with all WTO nontariff SPS guidelines. 

Africa The Forum on China-Africa 

Cooperation (FOCAC) is an open forum between the African countries and China that promotes economic and social partnerships. There have been four summits between China and Africa, beginning in 2000 and with the most recent meeting held in 2009. 

In 2007, to promote African exports to China, China exempted tariffs on 478 commodities for 31 least developed African countries. 

(b) (b) 

Source: MOFCOM, China FTA Network, various schedules of tariff concessions; MOFCOM, DWAA, “Give the Second Batch of African LDCs,” November  aThe Taiwan-China economic cooperation framework agreement does not yet have published text outlining the specifics, such as ROO and SPS meas

bThere have been many summits between China and the African countries, but full trade agreements have not been agreed. The FOCAC is a forum fo

relationship. 

8-12 
8-13

Simulated Effects of Preferential Tariffs under China’s 

Existing FTAs on U.S. Agricultural Exports 

To estimate the effects of China’s FTAs on U.S. agricultural exports, the Commission 

conducted an economic model simulation48 in which bilateral tariff and TRQ preferences 

negotiated between China and its FTA partners were fully implemented for all 

merchandise trade, while Chinese tariffs on imports from its non-FTA trade partners, 

including the United States, remained unchanged. The resulting simulated trade flows 

were then compared to actual 2009 trade flows. The simulation results, represented by the 

difference between the two, are characterized as the effects of the full implementation of 

China’s FTAs on U.S. exports to China. Results were obtained for 131 commodity 

sectors, a subset of which is presented in table 8.5. This subset includes (i) products with 

large actual 2009 U.S. exports to China (e.g., soybeans and animal hides), (ii) products 

for which the simulation showed large effects on U.S. exports to China (e.g., wheat and 

poultry), and (iii) products subject to TRQs in China (rice and sugar). 

Table 8.5 shows Chinese trade-weighted ad valorem tariff equivalent rates for the United 

States, for China’s FTA partners (before and after full implementation of their FTAs), 

and for the world; actual 2009 U.S. exports to China, Chinese imports from FTA 

partners, and total Chinese imports; and the Commission’s simulated effect of the fully 

implemented FTAs on U.S. exports and total Chinese imports of the selected agricultural 

products.49 The results of the model simulation suggest that China’s FTAs had a minimal 

effect on total U.S. food and agricultural exports to China in 2009. The effects, presented 

in ranges to account for the statistical uncertainty in key economic parameters, straddle 

zero, 50 including an overall contraction of U.S. food and agricultural exports to China of 

up to $21 million or an expansion in U.S. food and agricultural exports to China of up to 

$48 million in 2009. These small shifts in trade flows generated by the simulation total 

less than a 1 percent change in 2009 U.S. agricultural exports to China. 

The effects of full implementation of China’s FTAs on U.S. exports are small relative to 

the effects of the removal of China’s tariffs and TRQs presented in chapter 7. This is 

primarily because the tariff effects presented in chapter 7 are the result of a simulation 

which removed China’s tariffs and TRQs on imports from all sources, including the 

United States, thus directly affecting U.S. trade. The FTA effects presented here are the 

result of a simulation which either lowered or removed bilateral tariffs between China 

and its FTA partners, affecting U.S. trade only indirectly. In addition, the effects of 

China’s FTAs on U.S. exports are relatively small because, for several food and 

agricultural products, the level of U.S. exports to China is either very large or very small 

 48 The Commission’s simulation of the implementation of bilateral tariff and TRQ provisions in China’s 

FTAs was performed with a framework that links a partial equilibrium trade model to an economy-wide 

general equilibrium trade model, the Global Trade Analysis Project model. The simulation framework is 

described in appendix F. 49 Commission model results for the 131 commodity sectors under consideration in this report are 

presented in appendix G. 50 A range of simulated effects was obtained by varying the magnitude of trade elasticities to account for 

the degree of statistical uncertainty in the econometric estimates of the elasticities. Low and high values for 

the elasticities of demand (ESM) were computed as ESM + standard deviation. Hertel et al. (2007) provide 

estimated values for ESM and standard deviations. Hertel et al., “How Confident Can We Be of CGE-Based 

Assessments?” 2007, 611–635. 
TABLE 8.5 China: China’s tariffs, U.S. and Chinese trade statistics, and simulated effects of the full implementation of China’s FTAs for selected agricultural prod

2009 trade-weighted AVE on 

Chinese imports from FTA partner 

Product 

2009 tradeweighted 

AVE on U.S. 

exports to 

China

Actual

2009 U.S. 

exports to 

China

Range of 

simulated 

change in U.S. 

exports to China 

under full 

implementation of 

China’s FTAs 

Before the 

implementation 

of FTAs 

After the full 

implementation

of FTAs

Actual 2009 

Chinese 

imports

from FTA 

partners

 Percent Million $ Million $ Percent Percent Million $ Animal products  Poultry 13 796 63–68 8–8 8 0 21 

 Frozen pork 14 23 2–2 9–10 14 0 0  Bovine hides, other 7 646 0–1 0–0 13 0 35 

 Pork offal 13 52 (1)–1 (3)–1 14 0 3 

 Whey 6 75 (12)–(9) (15)–(12) 11 0 10 

Grains 

 Rice 68 0 0–0 0–0 68 49 5 

 Corn 46 4 (1)–0 (24)–0 46 22 15  Wheat 68 84 (37)–(1) (44)–(1) 68 0 0 

Oilseeds and products 

 Soybeans 2 6,993 15–15 0–0 2 0 0 

 Soybean oil 42 30 0–0 0–0 42 0 0 

Horticultural products  Almonds 15 87 0–0 0–0 15 1 0 

 Oranges 17 34 0–0 0–0 17 0 0  Pistachios, walnuts 14 107 (1)–0 (1)–0 14 0 0  Coconuts and other nuts 22 27 (1)–(1) (4)–(3) 10 1 27  Apples 14 19 (3)–(2) (14)–(11) 14 0 30 

 Grapes 18 59 (11)–(9) (19)–(15) 18 0 107 Processed foods 

 Processed rices 68 0 0–0 0–0 68 0 196 

 Foods prepared from vegetables 16 39 (1)–(1) (4)–(3) 25 0 4 

 Foods prepared from fruits and nuts 18 63 (5)–(5) (8)–(7) 21 0 21 

 Other prepared foods 18 94 (8)–(7) (8)–(7) 21 0 81 Other 

 Cotton 5 803 18–26 2–3 5 0 20 

 Tobacco 16 104 12–13 12–12 16 0 13 

 Alcoholic beverages 29 137 2–4 2–3 29 0 3 

 Sugar and molasses 0 0 0–0 0–0 1 0 49  Seeds for planting and other plant parts 6 61 (1)–0 (1)–0 5 0 50 

 Pet food and other feeds 8 100 (1)–(1) (1)–(1) 7 0 7 

 All other 14 504 (51)–(45) (10)–(9) 8 0 9,557  Total 6 10,942 (21)–48 0–0 10 0 10,253 

Source: Commission staff calculations with simulation framework discussed in appendix F. Notes: (1) AVE stands for ad valorem equivalent. (2) Parenthesis ( ) indicates a negative number. (3) A range of simulated effects was obtained by varying the ma

the degree of statistical uncertainty in the economic estimates of the elasticities. 

8-14 
8-15

relative to the level of China’s imports from its FTA partners.51 Thus U.S. exports of 

these products to China would not be expected to be affected to a large degree by China’s 

FTAs. 

Among U.S. agricultural exports negatively affected by China’s FTAs were wheat (U.S. 

exports to China were reduced by $1 million–$37 million), whey (a reduction of $9–

$12 million), grapes (a reduction of $9 million–$11 million), and apples (a reduction of 

$2 million–$3 million). Among U.S. agricultural exports positively affected by China’s 

FTAs were poultry (an expansion of $63 million–$68 million), cotton (an expansion of 

$18 million–$26 million), and soybeans (an expansion of $15 million). 

The simulations indicate that eliminating Chinese agricultural tariffs with FTA partners 

results in lower U.S. exports to China for some products as Chinese importers substitute 

the relatively cheaper products supplied by FTA partners for U.S. products. For example, 

the model simulation suggests that U.S. wheat exports would be as much as $37 million 

lower with implementation of China’s FTAs. This is because, according to the 

simulation, the FTAs cause China to increase imports of rice from its FTA partners (e.g., 

Thailand and Malaysia). As a result, the general equilibrium effects in the model, in 

which factors of production move between sectors in response to the tariff changes in 

China and its FTA partners,52 reflect the movement of resources in China out of rice 

production and into wheat production. The expansion of wheat production in China leads 

to a reduction in China’s wheat imports from non-FTA countries, including the United 

States. 

At the same time, the model simulation indicates that certain U.S. agricultural exports 

benefit from the tariff provisions of China’s FTAs. For example, the model simulation 

shows that tariff preferences resulting from China’s FTAs would lead to increases in U.S. 

exports of soybeans, cotton, tobacco, and poultry. In the case of poultry, U.S. exports are 

shown to increase by as much as 8 percent. For these products, this seemingly anomalous 

outcome can be traced to the general equilibrium effects of the movement of factors of 

production among sectors in response to price changes. For example, according to the 

simulation, China’s livestock production declines as resources are drawn to the 

expanding cotton, wheat, and fruits and vegetable sectors. As a result, China imports 

more meat products, including U.S. poultry. 

In the case of cotton, the growth in U.S. exports to China, which increase by between 

$18 million and $26 million, can be attributed to the expansion in China’s production of 

textiles as a result of its FTAs. To satisfy increased demand for cotton by its textiles 

industry, China would expand its domestic production and import more cotton from all 

sources, including the United States, which accounted for almost 40 percent of China’s 

cotton imports in 2009. Tobacco represents a similar situation to cotton. Chinese imports 

of tobacco from the United States increase by between $12 million and $13 million 

because China’s production of tobacco products, using U.S. tobacco as inputs, expands to 

satisfy increased demand for these products from its FTA partners. 

The simulation also indicates an increase in U.S. exports of soybeans of $15 million as a 

result of China’s FTAs. According to the simulation, Chinese paddy rice and cotton 

 51 The former group of products includes soybeans, cotton, poultry, and bovine hides, skins, and 

miscellaneous products. The latter group of products includes palm oil, other vegetables, and other fresh and 

dried fruits. 52 Further discussion of the mechanics of the general equilibrium model used in this simulation can be 

found in appendix F. 
8-16

production expand at the expense of oilseed production, causing domestic oilseed prices 

to increase relative to those of imported oilseeds. Since Chinese demand for oilseeds does 

not change, China imports more oilseeds, including U.S. soybeans. 

The simulated FTA effects are the marginal effects of the full implementation of the tariff 

and market access provisions for manufactured and agricultural goods in China’s ratified 

FTAs with Hong Kong, ASEAN member countries, Chile, Pakistan, New Zealand, Peru, 

and Costa Rica. Note that the simulations incorporate only the marginal effects of the 

FTA provisions regarding tariffs and TRQs for goods trade and do not incorporate any 

other effects, such as those for rules of origin or investment. The model simulates trade 

policy effects on prices, trade, and supply and demand in the global economy with many 

countries, and many product markets, including markets for primary factors––that is land, 

labor and capital. 
8-17

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9-1

CHAPTER 9 

Chinese Agricultural Nontariff Measures 

Overview 

Nontariff measures (NTMs) include all “government measures other than ordinary tariffs 

that can potentially have an economic effect on international trade in goods, changing 

quantities traded, or prices or both.”1

 Many laws and regulations have the potential to 

restrict international trade. Those that affect trade are considered to be barriers if there is 

a protectionist intent.2

 Without seeking to identify that intent, this chapter will focus on 

measures identified as having had an economic effect on existing or potential U.S. 

agricultural exports to China. 

 

Economic simulations indicate that China’s NTMs may have a greater impact on U.S. 

agricultural exports than do China’s applied tariffs. In the absence of Chinese NTMs, it is 

estimated that total U.S. agricultural exports to China would have been $2.6–$3.1 billion 

higher in 2009. Economic simulations were conducted on 12 U.S. agricultural product 

sectors for which (1) Chinese import prices were higher than world prices and 

(2) Commission research indicated that specific NTMs were impeding U.S. agricultural 

exports. Unlike the tariff simulation, this simulation estimates the impacts of the removal 

of all known and unknown NTMs specific to these products, not the elimination of a 

specific policy or set of policies. The sectors included in this simulation were wheat, 

several horticultural products (potatoes, apples, and stone fruits), cotton, and meat 

products (beef, pork, and poultry). The products for which the model indicated the 

greatest change in trade flows (and therefore considered to be most affected by Chinese 

NTMs) were wheat, cotton, and pork. 

Some of China’s NTMs keep certain U.S. products out of the Chinese market completely. 

Others increase costs for traders, or increase uncertainty and therefore risk. Some of 

China’s NTMs affect virtually all agricultural products, and can make U.S. products 

uncompetitive or dissuade U.S. exporters from entering the Chinese market. The valueadded tax (VAT) exemption for Chinese primary agricultural producers, for instance, 

impacts all agricultural products by conferring a substantial cost advantage on 

domestically produced product. 3 Other NTMs are specific to a particular product. 

Table 9.1 summarizes the principal NTMs faced by U.S. agricultural products entering 

the Chinese market. 

Sanitary and Phytosanitary Issues 

The World Trade Organization (WTO) agreements, including the 1994 General 

Agreement on Tariffs and Trade (GATT), recognize the right of WTO member countries 

to maintain health and food safety measures to protect their plant, animal, and human 

populations. However, the WTO Agreement on the Application of Sanitary and 

Phytosanitary Measures (SPS Agreement) establishes a framework to ensure that these 

 1

 WTO Secretariat, “Data Day at the WTO,” May 18–19, 2009, 25. 2

 Ibid. 

3

 The VAT on imports is assessed on the import’s cost plus duties paid. 
9-2

measures are not used merely to protect a domestic industry from import competition. 

Article 3 of that agreement allows a member to set standards other than the international 

standards, guidelines, or recommendations only when there is scientific justification for 

doing so, or if scientific evaluation of the international standards, guidelines, or 

TABLE 9.1 Reported Chinese NTMs affecting imports of U.S. agricultural products 

NTM Description 

H1N1 influenza restriction U.S. pork has been denied access due to fears related to “swine flu.” The World 

Organisation for Animal Health (OIE) has reported that there is no risk of influenza 

infection from consuming pork. 

Ractopamine ban China has a zero tolerance for ractopamine, a commonly used feed additive, in 

pork. This limits opportunities for farmers producing pork for other markets that 

could otherwise profitably export some cuts to China. 

Zero tolerance for pathogens Zero tolerance is unsupported by a scientific risk assessment. This policy can 

serve to limit imports of meat and poultry. 

Bovine spongiform 

encephalopathy (BSE) 

restrictions 

China stopped imports of U.S. beef following the discovery of BSE in the U.S. 

cattle herd in December 2003. This is contrary to OIE guidelines. 

 Also related to BSE, China prohibits use of protein-free tallow ingredients derived 

from ruminants and imported ingredients in U.S. pet food exported to China, 

including ingredients that are themselves approved for import in China. 

Low pathogenic avian 

influenza (LPAI) restrictions 

China bans imports of poultry products from certain U.S. states in which LPAI has 

been detected. This is contrary to OIE guidelines. 

Fire blight restrictions Only two varieties of apples from three U.S. states are approved for import, and no 

pears. There is no known research demonstrating a risk of fire blight from 

symptomless commercial varieties of apples or pears. 

Potato pest risk assessment A Chinese pest risk assessment has been forthcoming for U.S. potatoes for a 

decade. Movement on this issue has reportedly been tied to U.S. movement on a 

variety of SPS issues affecting Chinese exports to the United States. 

Strawberry ban China does not allow imports of fresh strawberries, although there were no 

reported problems when this restriction was temporarily lifted during the Beijing 

Olympic Games. 

Biotechnology regulations All products containing generally modified organisms (GMOs) must be labeled, the 

registration process cannot begin in China until registration is completed in the 

exporting country, and registrations must be renewed every three years. 

 VAT policies VAT policies provide a cost advantage to Chinese domestic agricultural producers 

and processers that purchase domestic agricultural products rather than imports. 

Labeling requirements Some products reportedly must be labeled entirely in Chinese or must have nonChinese characters on their labels covered with a sticker. 

Customs measures Some imports are subject to reference pricing, classification is not consistent, and 

clearance may be delayed. 

Multiplicity and duplication Multiple ministries and agencies are involved in licensing, certification, and 

inspection and do not share information among themselves. 

Provincial and local variation Regulations, standards, and enforcement can vary by location. 

Tariff-rate quota (TRQ) 

administration 

Large allocations are reserved for state trading enterprises; only small allocations 

are available for private traders, and there is little reallocation. 

Lack of transparency Many Chinese ministries and regulatory agencies fail to follow agreed-upon 

comment and notification procedures. TRQ allocations and the identity of import 

license holders are not made public. 

Source: Compiled by Commission staff.
9-3

recommendations reveals that they do not afford the level of safety the member 

determines to be appropriate.4

 The SPS Agreement explicitly recognizes three relevant 

international organizations that develop and review accepted standards, guidelines, and 

recommendations:5

 the OIE,6 the Codex Alimentarius (Codex) Commission (food safety), 

and the organizations operating within the International Plant Protection Convention. 

Article 5 of the SPS Agreement requires that SPS measures more restrictive than 

international standards or guidelines be based on an assessment of the risks to the 

relevant population, and that the risk analysis be based on scientific evidence.7

 In any risk 

assessment, WTO members are to take into account “relevant processes and production 

methods; relevant inspection, sampling and testing methods; prevalence of specific 

diseases or pests; existence of pest- or disease-free areas; relevant ecological and 

environmental conditions; and quarantine or other treatment.”8

 

Use of SPS restrictions to manage the flow of agricultural imports has been a consistent 

tool of the Chinese government. At the time of its accession to the WTO in December 

2001, China agreed to conform its SPS measures to the terms of the SPS Agreement. 

However, China’s SPS measures have shortcomings as a result of the structure of its 

regulatory system, including a lack of expertise on the part of the bureaucracy issuing the 

standards, a shortage of resources, and an apparent lack of national treatment in China’s 

enforcement of its SPS standards. Furthermore, the restrictions are noticeably lessened 

when market shortages require China to admit imports that would otherwise be barred 

because of SPS concerns.9

 Because of these problems, China’s SPS measures introduce 

an element of uncertainty that increases risks and therefore costs for exporters of 

agricultural products to China.10 

Plant Health Standards 

The International Plant Protection Convention (IPPC) governs regulations related to 

measures that protect plant health. Like the broader SPS Agreement, the IPPC stipulates 

that measures that restrict imports be no more restrictive than necessary to achieve the 

appropriate level of risk. The IPPC also requires that regulatory authorities take 

international standards into account and that measures more restrictive than international 

standards be justified by a pest risk analysis (PRA) or similar evaluation.11 

The SPS standards that China enforces against some agricultural imports exceed 

commonly accepted international standards for the same products. For example, the 

United States has been unable to export pears or most varieties of apples to China 

 4 WTO, SPS Agreement, art. 3, para. 3. 

5 WTO, SPS Agreement, para. 4. 

6 The organization changed its name to the World Organization for Animal Health in 2003, but is still 

widely known by its former French acronym, OIE. 7

 WTO, SPS Agreement, art. 5, para. 1. 

8

 Ibid., para. 2. 

9

 For instance, imports of strawberries from the United States were allowed into China in advance of the 

Beijing Olympic Games, apparently because of the increased demand, but since the Games ended exporters 

have been denied clearance for subsequent shipments. USTR, 2010 Report on Sanitary and Phytosanitary 

Measures, 2010, 36–37. 10 Industry official, interview by Commission staff, Hong Kong, September 22, 2010. 11 International Plant Protection Convention, art. VI.1b, X.4, and II.1. 
9-4

because of concerns over fire blight.12 U.S. negotiators have argued that commercial 

apples and pears that do not show symptoms of fire blight cannot transmit the disease and 

have provided peer-reviewed scientific confirmation of this, but regulators in China have 

not approved importation of U.S. pears or additional apple varieties.13 Access for U.S. 

pears was first sought in 2007, and additional information was provided in 2009. China’s 

Administration of Quality Supervision, Inspection, and Quarantine (AQSIQ) has begun, 

but not yet completed, a risk assessment on imported pears. Access for apples from 

California was first requested in 1999, but to date Chinese officials have not provided a 

PRA to substantiate the ban on apples from California.14

U.S. officials and producers have also sought access for U.S. fresh potatoes since 1999. 

In 2000, AQSIQ requested information on U.S. production practices and pests, and 

agreed to begin a PRA on potatoes from the Pacific Northwest. Chinese scientists visited 

the U.S. growing region in 2001, and additional information was requested in 2006, 2007, 

and 2008. Chinese officials reported that delays in initiating and completing the PRA 

were due to a lack of resources and the existence of other priorities. Unofficially, over the 

past decade, U.S. industry representatives have been told that access for U.S. potatoes to 

China’s market has been linked to access for China’s apples to the U.S. market.15 To 

date, in the absence of a completed PRA, there is no market access for U.S. fresh 

potatoes.16 

Phytosanitary regulations are designed to control the introduction or spread of pests and 

diseases that may infect plant species or harm domestic producers. Regulations may be in 

the form of an outright ban on imports from some countries or regions, tests for the 

presence of the disease or pest, or requirements for treatment to control the risks of 

infection. Requirements for imports may vary with the pest or disease status of the 

exporting country or region. Certain agricultural products require a phytosanitary or 

sanitary certificate for import, issued by the foreign government, which attests to the 

pest-free status of the product or the treatment performed. If the risk of introduction of 

diseases or pests is minimal or nonexistent, a requirement for a phytosanitary certificate 

can be viewed as an NTM (box 9.1). 

U.S. wheat exports to China are constrained by China’s standards for the presence of a 

fungus that can contaminate U.S. wheat exports. Tilletia controversa Kuhn (TCK) is a 

fungus that is found in some varieties of wheat––predominately soft white wheat––that 

lowers the yield of infected plants. It can only thrive under very specific climatic 

conditions, so it is found in only some regions and some classes of wheat. TCK 

reportedly is unable to thrive in wheat-growing areas of China.17 In a 1999 agreement, 

China agreed to work toward a bilateral agreement on its tolerance level for TCK and, in 

the interim, to allow imports of wheat certified by an accredited laboratory as having no 

more than 30,000 TCK spores per sample. The agreement further stipulated that once a 

shipment was certified as meeting the tolerance level, there were to be no restrictions on 

 12 China has allowed imports of two varieties of apples (Red Delicious and Golden Delicious) from Idaho, 

Oregon, and Washington since 1995, but has not permitted imports of additional varieties or apples from 

other states. USTR, 2010 Report on Sanitary and Phytosanitary Measures, 2010, 36. 13 USTR, 2010 Report on Sanitary and Phytosanitary Measures, 2010, 36. 14 Ibid. 

15 National Potato Council, “U.S. Fresh Potato Market Access to China,” June 22, 2010. 16 The U.S. first officially sought access to the Chinese market for potatoes from the Pacific Northwest in 

2000. USTR, 2010 Report on Sanitary and Phytosanitary Measures, 2010, 36. 17 Industry official, interview by Commission staff, Hong Kong, September 22, 2010. 
9-5

BOX 9.1 U.S. Phytosanitary Certification Policy Affects Trade 

Some NTMs related to certification are reportedly more of a barrier for U.S. exports to China than for other countries’ 

exports due to differences in government policies in the shipping countries. Specifically, the certification processes of 

U.S. agencies, including the U.S. Department of Agriculture (USDA), are reportedly less flexible than certifying 

agencies in some other major exporting countries. This is seen by some traders as a disadvantage, with U.S. 

regulators unwilling to adjust to a changing trade environment.a

 Some U.S. regulators see this as an advantage, 

since it could imply that a certification from a U.S. government agency means more than certification from an agency 

that is willing to bend its standards.b Recent events involving U.S. soybean oil trade show how the U.S. government 

has shown enough flexibility to allow trade to occur, while maintaining its stance that its trading partners adhere to 

international standards. 

In early 2010, regulators in China began requiring a phytosanitary certificate for imports of soybean oil.c

 A 

phytosanitary certificate specifies that the exported product has been inspected or tested “according to appropriate 

procedures,” to control the risk of introducing injurious plant pests to the importing country.d However, edible oils such 

as soybean oil are processed to such an extent that they are incapable of being infested with plant pests and 

therefore international standards recommend that no sanitary measures or certifications be required.e 

The USDA’s Plant Protection and Quarantine, under the Animal Plant Health and Inspection Service (APHIS), 

program provides inspections and certifications for U.S. exporters of agricultural commodities that are based on 

international standards,f

 and their stated policy recognizes the need to work with other national plant protection 

authorities when there are differences in the perceived need for a phytosanitary certificate.g

 In June 2010, USDA 

officials agreed to issue phytosanitary certificates for U.S. exports of soybean oil to China on an interim basis while 

China’s Ministry of Agriculture conducts a PRA that would justify the need for a such a certificate.h

 Once the interim 

certificates accompanied shipments, considerable volumes of U.S. soybean oil began to be exported to China. In the 

two months between July 1 and August 31, 2010, U.S. exports of soybean oil to China totaled over 120,000 metric 

tons valued at over $100 million.i

 

_____________ 

a Industry official, interview by Commission staff, Shanghai, China, September 14, 2010. b Government official, telephone interview by Commission staff, October 18, 2010. c American Soybean Association, written submission to the USITC, June 22, 2010, 2. d USDA, APHIS, Phytosanitary Certificate, PPQ Form 577, 2001. e FAO, International Standards for Phytosanitary Measures, 2009, 427–28. f

 USDA, APHIS, “International Services: International Role and Opportunities,” accessed October 26, 2010. 

g USDA, APHIS, “Frequently Asked Questions,” accessed October 26, 2010. h Government official, telephone interview by Commission staff, October 18, 2010. i

 GTIS, Global Trade Atlas database. 

port of delivery and no measures that prevented expeditious discharge.18 In practice, 

China currently restricts imports of wheat that are subject to infection with TCK to a 

single facility in Guangdong province, even though shipments have been certified to be 

within the tolerance limit. The product is required to be retested, and may be treated, 

before it is allowed to be sold. Both the testing methods and the treatment method are 

unknown.19 The uncertainty and additional expense involved with shipping soft white 

wheat to China, along with the restrictions attributable to China’s tariff-rate quota (TRQ) 

administration (discussed below), have retarded the development of China as a market for 

U.S. wheat.20 

 18 USTR, “Agreement on U.S.-China Agricultural Cooperation,” 1999, 5–6. 19 U.S. Wheat Associates, written submission to the Commission, September 16, 2010. In one case 

involving a U.S. shipment of both spring wheat and soft white wheat to a northern port, spring wheat (which 

does not have a TCK risk) was allowed to discharge, but the soft white wheat (which has a TCK risk) was 

redirected to Guangdong to be treated. Since then, U.S. exporters have been unwilling to risk shipping soft 

white wheat to ports in northern China. Industry official, interview by Commission staff, Hong Kong, 

September 22, 2010. 20 Industry official, interview by Commission staff, Hong Kong, September 22, 2010. 
9-6

Human and Animal Health Standards 

Diseases 

Some diseases that can infect humans or animals can be spread by trade in live animals or 

animal products. For this reason, the OIE has established standards for international trade 

in animals and animal products. These are described in its Terrestrial Animal Health 

Code. General obligations of the importing country include the following: regulations 

should be no more restrictive than necessary to meet the appropriate level of protection; if 

regulations are more restrictive than OIE standards, they should be based on a risk 

analysis; and regulations should not require a greater level of protection than measures 

applied to domestic products.21 Many of China’s regulations restricting imports of animal 

products that are stricter than OIE standards have been promulgated without notice of any 

scientific justification. Further, many appear to be stricter than standards for comparable 

domestic Chinese products.22 

Avian influenza (AI) is a disease of poultry caused by infection with any of several 

influenza subtypes. AI primarily affects birds, but can infect humans as well. China 

continues to ban imports of poultry that are produced in, or shipped through, four U.S. 

states because of the presence of low pathogenic avian influenza (LPAI), 23 which the 

OIE distinguishes from highly pathogenic avian influenza (HPAI). Both must be reported 

to the OIE, but internationally accepted health standards allow imports of poultry from a 

country, zone, or compartment that is free of HPAI.24 

U.S. and Chinese officials have been unable to reach agreement on requirements for trade 

in a variety of beef products, owing to China’s regulations related to bovine spongiform 

encephalopathy (BSE).25 In June 2006, China agreed to allow imports of boneless U.S. 

beef from cattle less than 30 months of age.26 However, approval was subject to a number 

of stipulations, many unrelated to BSE risk, and an agreement has not been reached. The 

OIE classifies the United States as a controlled-risk country for BSE. OIE guidelines for 

a controlled-risk country allow trade in boneless and bone-in beef from cattle of any age, 

subject to removal of certain materials (specified risk materials) from the carcass. 27

Negotiators were able to reach agreement on trade in several other bovine products that 

present a low risk of BSE (bovine semen and embryos), but were unable to reach an 

 21 OIE, Terrestrial Animal Health Code, 2010, art. 5.1.2. 22 USTR, National Trade Estimate Report, 2009, 95. 23 USTR, National Trade Estimate Report, 2009, 95; USDA, FSIS, Export Requirements for People’s 

Republic of China, December 23, 2010; USTR, 2010 Report on Sanitary and Phytosanitary Measures, 2010, 

35. 24 OIE, Terrestrial Animal Health Code, 2010, art. 10.4.20. A compartment is a subpopulation that can be 

defined by management practices related to biosecurity. 25 BSE is a fatal neurological disease affecting adult cattle. It is believed to be caused by a modified form 

of a prion, a type of protein that is found in the central nervous system of infected cattle and that is not 

destroyed by measures commonly used to control pathogens. USDA, FSIS, Bovine Spongiform 

Encephalopathy, March 2005. The infective agent can infect humans and is associated with variant 

Creutzfeldt-Jacob Disease (vCJD), a fatal neurological disease in humans. 26 BSE is rarely observed in cattle less than 30 months of age. In a series of experiments designed to 

determine the infectivity of different tissues from cattle that had been fed the infected material, the infective 

agent was first observed outside the digestive system of infected cattle at 32 months after inoculation. Wells, 

et al., “Preliminary observations,” 1998, 1. Consequently, many regulations related to BSE distinguish 

between cattle over or under 30 months. 27 Specified risk materials (SRMs) are tissues in which the infective agent has been found. OIE guidelines 

allow trade in beef from cattle of any age as long as SRMs are properly removed. 
9-7

agreement on trade in beef tallow. 28 OIE guidelines allow trade in tallow with a 

maximum of 0.15 percent insoluble impurities by weight from any country, regardless of 

BSE status.29 China’s regulations require that tallow be “protein-free,” and thus appear to 

be inconsistent with internationally accepted standards.30 

U.S. exports of pet food to China are also restricted by SPS measures. Under a veterinary 

protocol signed in 2004 between the USDA and China’s Ministry of Agriculture (MOA), 

U.S. producers that wish to export pet food to China must first receive certification from 

USDA that the facilities meet the requirements set by MOA, and then be granted a 

license by MOA. The Pet Food Institute (PFI), a U.S. association, contends that China’s 

restrictions on pet food imported from the United States violate China’s commitments 

under the SPS Agreement on several points. The SPS Agreement Annex C, paragraph 1c, 

states that “information requirements are limited to what is necessary for appropriate 

control, inspection and approval procedures.” The PFI reports that foreign manufacturers 

of pet food and ingredients attempting to register with MOA are being required to include 

information on such items as floor plans of production facilities, equipment 

specifications, and detailed descriptions of the production process. 31 This type of 

information would not be needed for a scientific risk assessment of the imported 

product.32 

The PFI also alleges that China’s restrictions on pet food from the United States 

(allegedly related to concerns over BSE) violate the national treatment provision of the 

SPS Agreement by requiring that all ingredients used in the manufacture of pet food in 

the United States be of U.S. origin. This means that ingredients available for use by firms 

in China, such as lamb from Australia and New Zealand, are not allowed to be used in 

U.S.-manufactured pet food for export to China.33 

China maintains a zero tolerance policy for bacteria such as salmonella, E. coli, and 

listeria in imports of pork and poultry without having presented supporting scientific risk 

assessments. The zero tolerance levels appear to be enforced only intermittently. Further, 

China does not appear to apply this standard to its domestic production.34 

In 2009, following outbreaks of H1N1 influenza in North America, China banned imports 

of pork from the United States.35 In May 2009, the OIE, jointly with the WTO, the World 

Health Organization, and the UN Food and Agricultural Organization, issued a statement 

noting that “pork and pork products, handled in accordance with good hygienic practices 

. . . , will not be a source of infection.”36 The OIE Terrestrial Animal Health Code

recommends no restrictions on trade in pork due to the presence of H1N1 influenza. In 

March 2010, China agreed to reopen its market to U.S. pork, and limited exports began in 

April 2010, but for nearly a year, U.S. pork was denied access to the Chinese market. 

 28 Tallow is a rendered form of fat. 

29 OIE, Terrestrial Animal Health Code, 2010, article 11.5.1. 30 USTR, 2010 Report on Sanitary and Phytosanitary Measures, 2010, 34–35. 31 Pet Food Institute, “Dossier on Chinese Barriers to U.S. Pet Food Products,” December 2008, 3; USTR, 

National Trade Estimate Report, 2009, 83; USTR, National Trade Estimate Report, March 2010, 64. 32 Similarly, China’s Ministry of Agriculture (MOA) also reportedly requires that U.S. seed companies 

seeking safety certificates for biotechnology products provide confidential information beyond that needed 

for a safety assessment. USTR, 2009 National Trade Estimate Report on Foreign Trade Barriers, 2009, 96. 33 Pet Food Institute, “Dossier on Chinese Barriers to U.S. Pet Food Products,” December 2008, 4–5. 34 USTR, National Trade Estimate Report, 2009, 95. 35 USTR, 2010 Report on Sanitary and Phytosanitary Measures, 2010, 33. This strain of influenza, which 

can infect both humans and swine, has been referred to as “swine flu.” 36 OIE, “Joint WTO/OIE/WHO/FAO Statement on A/H1N1 Influenza,” May 2, 2009. 
9-8

China bans all imports of sheep meat because of concerns regarding scrapie, a 

degenerative neurological disease that affects sheep and goats.37 Scrapie has not been 

found to pose a human health risk; moreover, the OIE guidelines allow for imports of 

sheep meat from any country, regardless of the risk status of the exporting country.38 

On January 19, 2010, the government of China notified the WTO that it planned to 

change the requirements for its dairy import certificate, and that the new requirements 

would go into force on March 1, 2010. China’s new dairy certificate requirements, as 

reported by AQSIQ, contain significant differences from its old certificate, including new 

requirements that countries or areas exporting dairy products to China be free from 

tuberculosis, paratuberculosis, and anthrax during the previous 12 months.39 These new 

requirements for dairy products do not adhere to international standards.40

During the spring of 2010, major non-U.S. dairy suppliers to China successfully 

negotiated new dairy import certificates with China despite the fact that one or more of 

the prohibited diseases are present at some level in most major dairy-exporting 

countries.41 There are some significant differences between the various certificates, and 

between the certificates and the AQSIQ notification. For example, Australia’s new health 

certificate for dairy product exports to China certifies that the products are from animals 

free of clinical signs of diseases on the OIE “List A.”42 The List A nomenclature is no 

longer used by the OIE, and when it was used it did not include tuberculosis, 

paratuberculosis, or anthrax.43 Other countries’ certificates focus on the specific product 

rather than the disease status of the country. Argentina’s new dairy export certificate, for 

example, certifies that the animals from which the milk was derived are subject to an 

ongoing control program for tuberculosis, and does not mention anthrax or 

paratuberculosis.44 Thus, these certificates do not address some of the factors that AQSIQ 

has identified as important. 

On April 21, 2010, the Chinese government notified the U.S. government that it would 

stop accepting U.S. dairy products on May 1, 2010, if the new certificate regulations were 

not met. Subsequently, that deadline was postponed to June 1, 2010. During May 2010, 

U.S. government officials reportedly worked with their Chinese counterparts to resolve 

 37 USDA, FAS, China: Livestock; Annual, June 24, 1999, 19; industry official, e-mail to Commission 

staff, May 27, 2010. Scrapie is relatively uncommon in the United States. Between 1947, when the disease 

was first reported in a U.S. flock, and October 2003, there were approximately 2,350 cases reported in sheep. 

USDA, “Scrapie Factsheet,” August 2004, 2. An ongoing surveillance and eradication program reported 78 

cases in U.S. sheep in FY 2009. USDA, APHIS, “National Scrapie Eradication Program: Fiscal Year 2009 

Report,” January 15, 2010, 15–16. 38 OIE, Terrestrial Animal Health Code, 2010, art. 14.9.1. 39 Industry official, e-mail message to Commission staff, November 30, 2010. 40 WTO Committee on Sanitary and Phytosanitary Measures, “Notification: G/SPS/N/CHN/203,” 

January 19, 2010. 41 The OIE World Animal Health Information database reports that in the most recent period (January–

June 2010), anthrax was present in certain zones or regions of dairy-producing countries such as Argentina, 

Australia, China, and the United States; paratuberculosis was present in Argentina and the United States, and 

was restricted to certain zones or regions of Australia; and bovine tuberculosis was present in Argentina, 

restricted to certain zones or regions of the United States, and not present in Australia. 42 Australia, Department of Agriculture, Fisheries, and Forestry, Quarantine and Inspection Service, 

Health Certificate, accessed November 24, 2010. 43 OIE, “Old Classification of Diseases Notifiable to the OIE,” January 25, 2005. 44 Republic of Argentina, Ministry of Agriculture, Livestock and Fisheries, National Service of Agrifood 

Health and Quality, Health Certificate, accessed November 24, 2010. 
9-9

this issue by proposing an alternative to China’s new dairy certificate based on 

international guidelines. On May 31, 2010, the government of China informed USDA’s 

Foreign Agricultural Service that China’s borders would be kept open to U.S. dairy 

products while bilateral negotiations continued. During September and October 2010, 

USDA and USTR requested a response from the government of China regarding the 

latest U.S. dairy certificate proposal. As of December 2010, no resolution had been 

reached. 45 

U.S. dairy exports to China have not been halted during these bilateral negotiations. 

However, the ongoing uncertainty increases business risk for U.S. exporters, since the 

sudden closure of China’s borders would not only result in future lost sales but also cause 

financial losses on dairy shipments en route to China. In addition, the uncertainty has 

reduced export opportunities for U.S. exporters, as many Chinese purchasers are 

unwilling to enter into new business deals with U.S. suppliers out of concern that the 

issue could end up not being resolved, leaving them without needed supplies.46

Residues 

Imports of all food and feed products are subject to restrictions related to residue limits. 

As with measures related to diseases, regulations related to residue limits should take into 

account an evaluation of the risk to the subject population. For residues, this analysis 

includes an evaluation of the amount of the product that will be consumed. Maximum 

residue limits (MRLs) have been established for a variety of products and cover a wide 

range of substances, including metals, mycotoxins, veterinary drugs, herbicides, and 

insecticides. The Codex Commission, the international food standards-setting body 

recognized in the SPS Agreement, has established a set of MRLs widely accepted in 

international trade. 

The veterinary drug ractopamine is a feed additive that is commonly added to swine feed 

in the United States and other countries to promote the gain of lean meat over fat. In 

2004, the Joint FAO/WHO Export Committee on Food Additives (JECFA), a committee 

that provides independent scientific expert advice to Codex, recommended the 

establishment of an MRL for ractopamine in both pork and beef. 47 Two subsequent 

studies by the JECFA have confirmed this recommendation. In 2009, Codex paused at 

the eighth step in its eight-step process of establishing an MRL for ractopamine in order 

to give the JECFA time to evaluate new data provided by China. China maintains a zero 

tolerance policy for ractopamine and has taken such a position in the Codex proceedings 

to establish an MRL. Data subsequently submitted by China relating to residue levels in 

muscle, fat, and kidney tissue supported the JECFA recommendation for an MRL. The 

JECFA found that data relating to ractopamine residues in lung tissue were both 

inconclusive and inapplicable to the ongoing assessment. 48 To date, an MRL for 

ractopamine has yet to be established by Codex. 

 45 U.S. industry officials, e-mail message to Commission staff, October 14, 2010. 46 U.S. industry officials, e-mail messages to Commission staff, October 14, 2010, and November 17, 

2010. 47 The JECFA recommended an MRL of 0.01mg/kg in muscle and fat for both pork and beef; JECFA, 

“Summary of Evaluations Performed by the Joint FAO/WHO Expert Committee,” January 28, 2006. 48 Codex Commission, “Report on the Nineteenth Session of the Codex Committee,” September 2010, 8; 

industry officials, telephone interview by Commission staff, October 20, 2010; JECFA, “Residue Evaluation 

of Certain Veterinary Drugs,” 2010, 38. If China were to establish an MRL for ractopamine in lung tissue, it 

would have no effect on its imports, as lung tissue is not certified as fit for human consumption. 
9-10

China has not provided a scientific risk assessment to support its position with respect to 

ractopamine.49 In the United States ractopamine was first approved for use in swine by 

the FDA in 1999, following a scientific review of possible health effects. Ractopamine is 

approved for use in 26 countries.50 Because China’s standard differs from the standards 

of many other countries, its zero tolerance for ractopamine limits opportunities for 

producers to maximize returns by shipping specific cuts to markets with the greatest 

demand.51

Genetically Modified Organisms 

Regulations regarding GMOs may fall under the WTO’s SPS Agreement or its Technical 

Barriers to Trade (TBT) Agreement.52 As indicated above, per the SPS Agreement, any 

restriction of trade in GMOs on SPS grounds could be justified only by a risk assessment. 

Restrictions on GMOs imply that products produced through biotechnology are different 

from or are less safe than comparable products. Requirements for special treatment of 

GMO products impose costs on both exporters and consumers.53 

China’s rules on GMOs require that any product developed outside of China must first be 

approved for sale in the exporting country. Only after approval is secured in the exporting 

country can an application be made for sale within China. This results in an automatic 

delay in the approval process. 54 Moreover, while China has approved imports of 

genetically modified varieties of soybeans, corn, cotton, and canola, approval must be 

sought for each specific “event.” This includes each trait developed for each crop, and 

each “stack” or combination of traits, even though individual traits have already been 

approved. A shipment of U.S. corn was recently denied entry into China because of a trait 

that has been approved in the United States and has been incorporated into “stacks” of 

traits in commercial production, but has not yet been approved for use in China on its 

own or as part of a stack of traits.55 

Each certificate for a GMO of approval is valid for three years. Although there has been 

no reported disruption of trade because of failure to renew a certificate of approval, the 

process adds to uncertainties in the market. China’s authorities further require that a 

separate safety certificate be issued for each individual shipment of genetically modified 

soybeans, even though the safety of the trait or event has already been certified. 

According to the American Soybean Association, this requirement imposes an additional 

cost of RMB 3,000 ($400) per shipment on U.S. soybean exports to China.56

 49 USTR, 2010 Report on Sanitary and Phytosanitary Measures, 2010, 33–34. With the data submitted in 

2010, China did provide the JECFA with an evaluation of the recommended MRL (“Evaluation Report on the 

Establishment of MRL for Ractopamine in China”), but the JECFA found that the data submitted did not 

support China’s position. 50 USTR, 2010 Report on Sanitary and Phytosanitary Measures, 2010, 24. 51 In many ways, pork trade with China is a good fit for U.S. producers, as cuts that are highly prized in 

China are in lower demand in the United States. 52 WTO, SPS Agreement Training Module, (accessed October 26, 2010). The Codex, the Commission on 

Phytosanitary Measures, and the OIE have all begun work on establishing, but have not completed, standards 

for trade in GMOs. 53 USTR, 2010 Report on Technical Barriers to Trade, 2010, 52. 54 USTR, 2010 Report on Sanitary and Phytosanitary Measures, 2010, 37. 55 Reuters, “China Quarantine Bureau Rejects U.S. Corn Cargo,” November 2, 2010; industry official, 

telephone interview by Commission staff, November 8, 2010; Biotechnology Industrial Organization, 

Commercial Status of Certain Agricultural Biotechnology Products database; Center for Environmental Risk 

Assessment, GM Crop database. 56 American Soybean Association, written submission to the Commission, June 22, 2010, 3. 
9-11

Licensing and Certification 

China has been reducing the number of imports subject to licensing requirements since 

the 1990s. In its WTO accession agreement, China agreed to give all enterprises within 

China the right to trade in all goods within three years, except those specifically reserved 

for state trading enterprises (STEs). At the same time, China committed to increasing the 

transparency and predictability of its licensing procedures.57 Currently, importers of all 

agricultural products are required to obtain a Quarantine Import Permit (QIP), except 

meat and poultry importers, who are required to obtain a Meat Quarantine Import Permit, 

and for some products, importers are required to obtain an “automatic license” for each 

shipment.58 

Automatic Licensing 

The Chinese government has established a monitoring mechanism for some imports, in 

the form of an automatic registration form (ARF). The ARF was first applied to poultry 

imports. More recently, imports of soybeans, soybean oil, and pork have been subject to 

ARF requirements. For these products, an importer must obtain an ARF from the 

Ministry of Commerce (MOFCOM), and only certain entities in China are eligible to 

apply for an ARF. These entities can then either import the product themselves or sell the 

ARF to an importer. Theoretically, the ARF serves solely as an information-gathering 

device, enabling the Chinese government to keep track of the volume of these products as 

they are imported.59 However, the ARF does not always appear to be “automatic,” and 

reportedly has been used to slow the entry of imports during periods of political tension.60 

The existence of the ARF system itself serves as another complication and cost for 

exporters looking for a consistent market. 61 A separate “automatic” license must be 

obtained by an eligible importer in order to apply for a permit to import a set volume.62

For instance, an eligible poultry importer must first receive a meat QIP from AQSIQ and 

an ARF from MOFCOM before placing an order with a foreign supplier. The import 

permit would allow importation of 400 metric tons of one product from one supplier and 

is valid only for a limited time. Further, the implementation of the ARF is opaque. For 

instance, when the ARF system was first applied to poultry imports, only about 

73 entities within China were given the right to apply for an ARF. Many of these were 

not themselves poultry importers, but entities that instead sold the import permits to 

traders, imposing an additional cost on imports. An unknown number of additional 

entities have since been added to the list. It is believed that approximately 200 entities are 

eligible for an ARF to import poultry, but the updated list of eligible importers has not 

been made public.63 

 57 WTO, “Accession of the People’s Republic of China,” November 23, 2001, 4; USDA, FAS, Food and 

Agricultural Import Regulations and Standards, June 13, 2007, 3. 58 USTR, National Trade Estimate Report, March 2010, 63; industry official, interview by Commission 

staff, Hong Kong, September 20, 2010. 59 Industry official, interview by Commission staff, Hong Kong, September 20, 2010. 60 For instance, licenses for poultry imports were reportedly delayed following U.S. imposition of duties 

on Chinese tire imports in 2009. Industry official, interview by Commission staff, Hong Kong, September 20, 

2010. 61 USDA, FAS, China: Challenges to Increasing U.S. Sales of Chicken Paws to China, December 15, 

2006, 11; industry official, interview by Commission staff, Shanghai, September 13, 2010. 62 USTR, National Trade Estimate Report, March 2010, 63. 63 Industry official, interview by Commission staff, Hong Kong, September 20, 2010. 
9-12

Other Licenses and Certifications 

In addition to the ARF system, trading with China requires a wide array of licenses and 

certifications. Imports of cotton, for instance, require an invoice, a bill of lading, a plant 

quarantine certificate, a quality certificate, a certificate of origin, a packing list, a 

specification of weight, and a nonwood packing certificate.64 As discussed above, U.S. 

producers wishing to export pet food to China must receive certification from the USDA 

that products meet the requirements of a protocol negotiated between the USDA and 

China’s MOA, and then obtain a separate license from the MOA. Certifications often 

involve more than one agency and are often duplicative, serving to increase costs for 

importers.65 Reportedly, as of April 1, 2011, importers will be additionally be required to 

report imports of beef, pork, mutton, and related products to the China Chamber of 

Commerce of Import and Export of Foodstuffs, Native Produce and Animal By-Products. 

As previously noted, for imports of most agricultural products, importers must obtain a 

QIP from AQSIQ. Originally, the QIP system was reportedly used to ensure that an 

adequate number of inspectors was available to inspect imported goods at the point of 

entry.66 Reportedly, AQSIQ may slow down or suspend the issuance of QIPs without 

notice, and the suspension of QIPs is used to limit the volume of imports during peak 

Chinese harvest periods.67 Shipments that are subject to a contract, or that are purchased 

when prices for a specific commodity are low, may be shipped before a QIP is received. 

Cargoes arriving without a QIP are not allowed to be unloaded, but are held until a QIP is 

obtained, resulting in demurrage charges.68 

Tax Treatment 

As noted in chapter 4, China’s farmers and other agricultural producers are exempt from 

paying China’s value-added tax (VAT) on sales of their agricultural products. In contrast, 

the VAT must be paid on the full import value of the vast majority of imported 

agricultural goods.69 This practice confers a cost advantage on Chinese domestic primary 

agricultural products. Additionally, the VAT on imported products is charged not only on 

the customs value of an import, but also on the duty assessed on that customs value.70

Some U.S. industry groups have alleged that this practice affects most U.S. agricultural 

exports to China and violates Article III of the General Agreement on Tariffs and Trade.71

Chinese processors that purchase domestic agricultural products are able to take 

substantial deductions from the VAT they must pay. In China, a VAT is assessed on each 

transaction; it is recorded by the seller as a sales VAT and by the purchaser as a purchase 

VAT. When selling a processed agricultural product, a processor is liable for the VAT on 

its sales (typically 17 percent of the value), less the purchase VAT paid on inputs. 

Although no VAT is actually paid on domestically produced agricultural inputs, 

 64 International Trade Centre, “Nontariff Requirements in the Domestic Market.” 

65 Government official, interview by Commission staff, Washington, DC, May 24, 2010. 66 USDA, FAS, Food and Agricultural Import Regulations and Standards, June 13, 2007, 1. 67 USTR, National Trade Estimate Report, March 2010, 64. 68 Ibid., 63. 

69 The VAT is 13 percent on raw agricultural products and 17 percent on processed products. PRC, 

MOFCOM, Decree 538, November 2008, art. 2. 70 PRC, MOFCOM, Decree 538, November 2008, art. 14. 71 U.S. Wheat Associates, written submission to the Commission, September 16, 2010, 3; industry 

officials, interviews by Commission staff, Washington, DC, May 6, 2010. 
9-13

agricultural processors are still able to deduct 13 percent of the purchase price of the raw 

agricultural inputs when calculating the VAT to be paid on the processed product. 

Processors of Chinese domestic agricultural products are thus able to take a deduction for 

a tax not actually paid, thereby lowering their effective VAT rate.72 

State-owned agricultural enterprises also are exempted from the VAT. On June 1, 1999, 

the central government established that authorized state-owned grain companies, such as 

the China National Cereals, Oils and Foodstuffs Import and Export Company (COFCO), 

are exempt from VAT charges for both domestically produced and imported grains, 

including wheat, rice, and feed grains.73 Given the large share of import TRQs controlled 

by STEs for wheat, corn, and rice, this provides STEs with a distinct advantage over nonSTE importers. For private grain traders, there are no deductions of the 13 or 17 percent 

VAT applied at the time of import. 

Labeling and Quality Standards 

A primary purpose of product labeling “is to give consumers information so that they can 

better choose products that match their individual preferences.” 74 Governments use 

labeling requirements to protect consumers from deceptively labeled products and 

producers from unfair competition.75 But diverse and confusing labeling rules can hinder 

trade in agricultural products.76 Specific labeling requirements in a given market can 

restrict trade by differing from generally accepted international labeling norms, creating a 

burdensome label acquisition and approval process, or constructing a perception that one 

product is inferior to a competing product.77 Examples of each type exist in China’s 

market for U.S. agricultural exports. 

Labeling 

Labeling requirements in China are established by the central government and may 

involve several ministries and agencies.78 Some labeling requirements, such as those that 

require that labels be placed on individual containers within bulk packages, that labels be 

only in Mandarin, and that notices be integrated with the packaging as opposed to being 

affixed with a sticker, add to producers’ cost of delivery.79 Labels in China must also 

identify the distributor or distributors. This can be costly for firms that deal with multiple 

distributors.80 

According to industry representatives, the scope of China’s labeling rules has unintended 

effects on certain agricultural products that differ from everyday packaged foods, such as 

bulk products for sale through food service distributors or quick service restaurants, and 

bottled wine and spirits. Reportedly, U.S. exporters of bulk products have had shipments 

 72 PRC, MOFCOM, Decree 538, November 2008, art. 8. 73 Ministry of Finance and State Administration of Taxes, “Circular on VAT Exemption for Staple Crops 

Enterprises,” 1999. 74 OECD, “Analysis of Non-Tariff Measures: The Case of Labeling,” November 13, 2003, 6. 75 Ibid., 10. 

76 U.S. Department of State, “U.S. Concerned That EU’s Biotech Labeling Could Be Burdensome,” 

July 4, 2003; Mattson, Won, and Taylor, “Non-Tariff Trade Barriers in Agriculture,” March 2004, 9. 77 OECD, “Analysis of Non-Tariff Measures: The Case of Labeling,” November 13, 2003, 13. 78 Government official, interview by Commission staff, Washington, DC, May 24, 2010. 79 Ibid. 

80 Industry official, interview by Commission staff, Shanghai, China, September 13, 2010. 
9-14

delayed because, while bulk packages were labeled, inner packages did not have the 

labels that would be required for packages to be sold at retail.81 Such deviations from 

internationally accepted norms are particularly problematic in the case of products with a 

long shelf life and producers that export to multiple countries, as the destination may not 

be known when the product is packaged. Labels for bottled wine and spirits sold in China 

are required to indicate a bottling date. This is not the industry standard, and is an 

additional expense for U.S. exporters who must handle exports to China separately from 

product bound for other destinations, or may face delays while the product’s label is 

brought into compliance.82 

Standards 

The Standardization Administration of China (SAC), a government body administered 

under AQSIQ, is responsible for setting national standards, administering the standards 

system, and ensuring that China’s standards conform with international standards and 

fulfill China’s commitments under the TBT Agreement. Additionally, the Certification 

and Accreditation Administration of China (CNCA), also under AQSIQ, is responsible 

for administering and implementing China’s conformity assessment regime. 83 Since 

2002, China has been in the process of reviewing its technical regulations to ensure that 

deviations from international standards are justified.84 

China’s national standards, which are developed by the SAC, are known as “GB” 

standards. According to the WTO, only about 46 percent of China’s national standards 

are equivalent to international standards. 85 The SAC has not established national 

standards for all products in all applications. Where no national standard exists, relevant 

authorities are permitted to develop sectoral or local standards.86 In practice, this means 

that in the absence of a national “GB” standard, any central government ministry or 

agency may develop and implement a nationwide standard in the field in which it has 

responsibility. Additionally, a provincial or local governmental body may develop and 

implement a standard within its jurisdiction. This creates the possibility of overlapping 

and/or conflicting standards. In the area of food safety, local standards may be more 

stringent than sectoral standards, and both may be more stringent than national standards 

for the same product.87 As a result, in addition to the national standards, there is a 

patchwork of sectoral, provincial, and local standards that increase the complexity and 

costs of exporting agricultural products to China. 

Differences between Chinese and U.S. inspection standards and sampling methods 

sometimes lead to delays in unloading shipments and in increased costs for traders.88 

However, in general, traders experience more problems involving products and 

applications for which the SAC has not established national standards.89 For instance, 

 81 Ibid., September 14, 2010. 

82 Ibid. 

83 PRC, AQSIQ, “Mission.” Conformity assessment procedures set the testing methods used to determine 

that products conform to standards. 84 USTR, National Trade Estimate Report, March 2009, 87. 85 WTO, Trade Policy Review; China, April 26, 2010, viii. 86 When enacted, these sectoral or local standards must be registered with SAC. Standards Portal, 

“Standardization Organizations in China: Standardization Administration of China.” 87 Industry officials, interviews by Commission staff, Chengdu, China, September 17, 2010. 88 Industry officials, interviews by Commission staff, Beijing, China, September 7, 2010; industry 

officials, interviews by Commission staff, Shanghai, China, September 13, 2010. 89 Industry official, interview by Commission staff, Washington, DC, July 26, 2010. 
9-15

labels for packaged foods require a complete list of ingredients and additives, but China 

has not established standards for some ingredients in some applications. There are 

additives used in potato products for which China has a standard for shelf-stable 

products, such as potato chips, but has no standard for frozen products, such as frozen 

french fries. Therefore, use of such an additive in frozen french fries could be interpreted 

as out of conformity with a Chinese food standard. In such a case, the product may be 

allowed to be imported in one instance and denied entrance at another port or time, 

depending on a particular official’s view.90 Reportedly, if an ingredient or additive is not 

widely used in China, the SAC places a low priority on establishing a standard for its use, 

even if international standards or guidelines exist.91 

Customs Procedures 

The import of agricultural goods into a country involves several discrete components, any 

one of which could hinder smooth, timely, and accurate importation. Customs procedures 

alleged to constitute NTMs in their application include customs valuations methods in 

which the actual import valuation differs from the valuation used for customs purposes; 

inconsistent customs classification procedures; and customs clearance procedures 

involving inspections and documentation that create additional cost. According to the 

U.S. Trade Representative (USTR), China has what appears to be a modern customs 

clearance process, which should enhance speedy and low-cost importation, but the 

process in actual practice often results in delays and unexpected expenses. Problems with 

customs valuation or classification and clearance delays vary from port to port, with 

fewer problems at ports with more traffic and, therefore, more experience.92 

Customs Valuation 

Generally, Chinese duties on imports are based on the actual transaction value, including 

insurance and freight. However, the Customs Administration audits the reported 

transaction value of every shipment in order to evaluate the accuracy of declared 

transaction values. For this purpose, customs officials make use of a commodity pricing 

information database.93 If customs staff has a doubt about the accuracy of the transaction 

value, additional supporting documentation is requested. If customs staff does not accept 

the accuracy of the declared transaction value, the customs value can be calculated by 

customs staff based on the value of identical or similar goods, or the value may be 

estimated on a “reasonable” basis.94 Some traders have complained that, in some cases, 

customs valuation is based on a reference price, rather than the actual transaction price.95 

Reportedly, for some products, customs value is always based on a reference price. The 

reference price is routinely announced and the prices are widely available, even though 

 90 Industry official, interview by Commission staff, Shanghai, China, September 13, 2010. 91 Industry officials, interviews by Commission staff, Shanghai, China, September 13–14, 2010. 92 USTR, 2010 Report to Congress on China’s WTO Compliance, December 2010, 28–29; industry 

officials, interviews by Commission staff, Shanghai, China, September 13–14 , 2010; industry officials, 

interviews by Commission staff, Hong Kong, September 20, 2010. 93 USDA, FAS, China’s Customs Valuation Operation, 2008, October 6, 2008, 2. 94 WTO, Trade Policy Review; China, April 26, 2010, S/230, 26. 95 USTR, 2010 Report to Congress on China’s WTO Compliance, December 2010, 29; USTR, National 

Trade Estimate Report, March 2010, 61; industry officials, interviews by Commission staff, Beijing, China, 

September 6, 2010; industry officials, interviews by Commission staff, Shanghai, China, September 14, 2010; 

industry officials, interviews by Commission staff, Hong Kong, September 21, 2010. 
9-16

the methodology used to calculate the reference prices is unknown.96 In other cases, 

problems with customs valuation arise because the declared value of the shipment is 

lower than that for similar products and transactions. While sometimes this may reflect an 

attempt to under-invoice the goods (in order to save money on VAT and tariff), at other 

times the actual transaction price may legitimately be lower because of a sales promotion, 

an attempt to introduce a lower-cost alternative product, or seasonality. Similar to 

problems with customs classification, a trader’s ability to convince customs officials of 

the validity of the valuation may at times depend on the reputation of the trader and the 

trader’s relationship with the officials.97 Reportedly, the problems with customs valuation 

tend to be seen as a legitimate effort by customs officials to deal with problems of underinvoicing, but the uncertainty adds to the risk of trading with China.98

 

Customs Classification 

China’s customs officials apparently have wide latitude in determining the customs 

classification of imported products, which may have a significant effect on the level of 

tariff. Problems with customs classification add to the uncertainty of trade with China and 

increase risks for traders. As with customs valuations, customs classifications can vary by 

port. Reportedly, the difficulty stems from a lack of expertise with specific products in 

some ports, as well as the lack of national classification standards for these products. 

Again, the success of a trader’s attempt to convince customs officials to classify a 

product into a category with a lower tariff rate may depend on the reputation of the trader 

and the trader’s relationship with customs officials.99 

Delays in Customs Clearance 

Although China instituted reforms to its customs clearance process in 2005,100 many 

agricultural exporters continue to report delays or wide variations in the time needed for 

customs clearance. Industry representatives indicated that customs clearance varies from 

port to port and can take up to eight weeks.101 Delays increase costs and discourage 

imports of time-sensitive products. Delays in the time it takes to clear customs is one of 

the reasons why almost all U.S. pork exports to China are frozen, rather than fresh or 

chilled.102 Often, traders that deal in perishable products will routinely contract with 

customs clearance companies to speed the process of customs clearance.103 These firms 

maintain close ties with customs officials and can often smooth the clearance process. 

The use of such “customs clearance specialists” increases the cost in delivery for traders 

of these commodities. 

 96 Industry official, interview by Commission staff, Hong Kong, September 20, 2010. 97 Industry official, interview by Commission staff, Shanghai, China, September 13, 2010. 98 Industry officials, interviews by Commission staff, Shanghai, China, September 13–14, 2010. There 

are provisions to appeal a valuation, but it may take up to nine months to receive a refund of the overpaid 

amount. 99 Industry official, interview by Commission staff, Shanghai, China, September 13, 2010. 100 WTO, Trade Policy Review: China, April 26, 2010, 25. 101 Industry officials, interviews by Commission staff, Shanghai, September 13–14, 2010; industry 

officials, interviews by Commission staff, Hong Kong, September 23, 2010; USTR, National Trade Estimate 

Report, March 2010, 61. 102 Industry official, interview by Commission staff, Hong Kong, September 20, 2010. 103 Ibid., September 21, 2010. 
9-17

Tariff-Rate Quota Administration 

China maintains TRQs on wheat, cotton, corn, rice, wool, and sugar. In any country, the 

implementation of a TRQ necessarily increases the complexity of the trading 

environment. Such implementation can be considered an NTM if the volumes allowed 

under the TRQ are less than commercially feasible, or if the complexity of the TRQ 

administration itself significantly restricts trade or adds significantly to the costs of trade. 

China’s TRQ administration does all three. A low fill rate is an indication that such an 

NTM may exist. 

According to industry representatives, China has not been a consistent market for U.S. 

wheat, partly because of the administration of the wheat TRQ. China’s TRQ for wheat 

has a very low fill rate in most years. Under the terms of its WTO accession, China 

agreed to open its market to a TRQ of 9.64 million metric tons of wheat per year from all 

import sources, with an in-quota duty rate of 1 percent ad valorem and an out-of-quota 

duty rate of 65 percent ad valorem. The volumes of wheat that may be imported under 

China’s TRQ are divided between COFCO, a state trading enterprise, and multiple 

private traders. According to the agreement, any quota volume that remains unfilled in 

the first three quarters is to be reallocated to any firms wishing to import. The volumes 

allocated to individual private traders are unknown, as the information is not made 

public, but according to the U.S. Wheat Associates, in practice, 90 percent of the withinquota volume is allocated to COFCO, and unused within-quota volumes are not 

reallocated.104 Therefore, if COFCO does not use a portion of its allocation, that volume 

is lost. 

According to industry sources, the volume offered to any one wheat trader under the 

wheat TRQ is often less than what would be commercially feasible. Since the information 

on specific allocation volumes is not public, it is difficult for traders to pool within-quota 

volumes. Additionally, containerized cargo vessels, which are used for smaller (i.e., not 

bulk) shipments of wheat are not readily available in some parts of the United States. 

U.S. producers and exporters in these areas cannot profitably ship the small volumes 

allocated to these Chinese traders. 105 

The allocation of import volume under China’s cotton TRQ is also not transparent. 

Cotton imports enter China in one of three categories. In 2010, the within-quota volume 

of 894,000 metric tons (mt) was subject to a tariff of 1 percent ad valorem. An additional 

1 million mt is subject to a sliding tariff based on the price of cotton. A further 

400,000 metric tons may be imported duty-free by export-oriented mills, subject to export 

of the finished products.106 The Chinese government operates a reserve system to control 

the domestic price of cotton, and the volumes and functioning of the reserve system are 

opaque. Taken together, these policies discourage long-term relationships with Chinese 

importers and increase uncertainty for U.S. cotton exporters.107 Nonetheless, China’s total 

cotton imports during August 2009–July 2010 were more than double the within-quota 

volume. 

 104 U.S. Wheat Associates, written submission to the Commission, September 16, 2010, 1–2. 105 Industry official, interview by Commission staff, Hong Kong, September 22. 106 USDA, FAS, Cotton and Products Annual, May 1, 2010, 20–21. 107 Industry official, telephone interview by Commission staff, November 3, 2010; Cotton International, 

China Sets Limit on Cotton Imports for 2011, December 30, 2010. 
9-18

Transparency 

Article X of the GATT 1994 requires that laws and regulations that affect trade be 

administered in “a uniform, impartial, and reasonable manner.” A consistent, clearly 

understandable, and fully participatory system of regulations affecting international trade 

encourages increased trade by, among other things, removing the risk of unexpected or 

unexplained government action. Both the SPS Agreement and the TBT Agreement use 

the term “transparency” in describing requirements for regulatory systems put in place by 

member countries. Within the SPS Agreement, the basic requirements for transparency 

are spelled out in Annex B, “Transparency of Sanitary and Phytosanitary Regulations.” In 

the TBT Agreement, the requirements for transparency are found throughout the 

document, including in Annex 3––the “Code of Good Practice for the Preparation, 

Adoption, and Application of Standards.” 

Notice and Comment Procedures 

Both the SPS and TBT Agreements require that a member develop clear and consistent 

notice and comment procedures, and establish an inquiry point to respond to reasonable 

questions and provide copies of relevant documents. “Notice and comment” is a term 

used to describe official processes by which a government regulatory agency publishes a 

new or changed regulation and receives comments from entities outside the government, 

such as private citizens, companies, or other governments, expressing opinions about the 

regulation before it is to take effect. A number of countries, including the United States, 

have expressed concerns about China’s irregular and occasionally abbreviated process for 

notifying its trading partners of legal or regulatory changes that affect the import of 

agricultural goods. The process commonly consists of three parts—notice, comment, and 

implementation period—and U.S. government officials as well as industry 

representatives have cited areas for improvement at each step. 

According to the WTO, China has not established consistent criteria for publishing 

regulations.108 Two methods of notice, each serving specific purposes, are publication in 

China’s official journal (the Foreign Economic and Trade Gazette) and notification to the 

WTO. Publication in the journal generally provides for public comment and establishes a 

deadline for comment submission, if any. Notification to the WTO satisfies China’s 

commitments to allow its trading partners an opportunity to review proposals or actions 

that affect trade and comment on their adherence to international trade agreements. 

Reportedly, while changes to regulations are usually published, changes in enforcement 

or implementing regulations often are not.109 Moreover, although notification procedures 

have improved, the SPS Agreement requires notification “at an early stage” so that 

trading partners have time to comment on proposed regulations.110 Similarly, the TBT 

Agreement requires notification “at an early appropriate stage,” but recommends 

notification at least 60 days before a regulation is enacted.111 Industry representatives 

have reported that the notification process in China is often too abbreviated to allow time 

for comment.112 

 108 WTO, Trade Policy Review: China, April 26, 2010, 11. 109 Government official, interview by Commission staff, Washington, DC, May 24, 2010. 110 WTO, SPS Agreement, Annex B, para. 5. 111 WTO, TBT Agreement, art. 2, para. 2.9.2 and Annex 3, para. L. 112 USTR, 2010 Report on Technical Barriers to Trade, 2010, 74; USTR, National Trade Estimate 

Report, March 2010, 91. 
9-19

Chinese authorities typically notify the WTO of the title of the proposed change or 

regulation in English, but publish the text of documents only in Mandarin. Both the SPS 

and TBT Agreements require that developed countries provide translations into one of the 

official WTO languages (English, French, or Spanish), but both make exceptions for 

developing countries like China.113 However, under the terms of its accession to the 

WTO, China agreed to publish translations of relevant documents in one of the official 

WTO languages within 90 days of implementation. Many ministries and agencies 

reportedly do not comply with this requirement.114 

Additional Problems with Transparency 

According to the USTR, “China remains among the least transparent and predictable of 

the world’s major markets for agricultural markets, largely because of selective 

intervention in the market by China’s regulatory authorities.” 115 As noted, China’s 

national laws are enforced by many different ministries and agencies,116 and provincial 

and local jurisdictions may impose separate regulations, especially in the area of food 

safety. The necessity of dealing with multiple regulators increases complexity and costs 

for traders of agricultural products. 

The enforcement of regulations requiring zero tolerance for pathogens in meat products 

appears to be selective. The speed of China’s ARF system is reported to vary with 

geopolitical relationships between China and its trading partners. 117 The QIP system 

administered by AQSIQ appears to slow at times. Risk assessments that are reportedly 

based on scientific testing are instead said to be linked to market access for China’s 

exports.118 Enforcement of regulations reportedly varies by location and according to 

personal relationships with regulators.119 

Simulated Effects of China’s Nontariff Measures on U.S. 

Agricultural Exports 

The Commission conducted an economic model simulation120 to determine the effects of 

China’s NTMs on U.S. agricultural exports. The assumption that guides this model 

simulation is that NTMs increase the cost of imported products and lead to price gaps—

higher prices in the market with the NTM than in other markets—that can be observed. 

Price gaps can be observed for product groups with significant trade flows. However, for 

 113 WTO, SPS Agreement, Annex B, para. 7 and 8; WTO, TBT Agreement, Article 10, para. 10.5. 114 USTR, National Trade Estimate Report, March 2010, 91. 115 USTR, 2010 Report Congress on China WTO Compliance, December 2010, 8. 116 Government official, interview by Commission staff, Washington, DC, May 24, 2010; industry 

official, interview by Commission staff, Beijing, China, September 10, 2010. 117 Industry official, interview by Commission staff, Hong Kong, September 20, 2010. The fact that 

import licenses depend on the status of political tensions is not unique to exports from the United States. 

Exports of soybean oil from Argentina to China were disrupted because of trade disputes over products 

unrelated to soybeans or soybean oil. China Daily, “China Said to Seek Brazil, U.S. Soybean Oil Supply,” 

May 5, 2010. After relations between the two countries eased, restrictions were apparently lifted. Bloomberg 

News, “China Agrees to Reopen Market to Argentine Soybean Oil Imports, People Say,” October 11, 2010. 118 National Potato Council, “U.S. Fresh Potato Market Access to China,” June 22, 2010. 119 Industry officials, interviews by Commission staff, Shanghai, China, September 13–14, 2010; industry 

officials, interviews by Commission staff, Hong Kong, September 21 and 23, 2010. 120 The Commission’s simulation for NTM removal was performed with a framework that links a partial 

equilibrium trade model to an economy-wide trade model, the Global Trade Analysis Project (GTAP) model. 

The simulation framework is described in appendix F. 
9-20

products with little or no trade, and those known to be commonly traded in the grey 

market, price gaps cannot be observed; therefore, quantity gaps were estimated by 

adjusting 2009 trade flows to reflect the levels they would have reached if the United 

States captured the same share of China’s import market as the U.S. share of global trade. 

Both price and quantity gaps attempt to measure the discrepancy between observed trade 

and estimated trade flows in the absence of NTMs. The Commission’s model simulation 

was conducted by removing the estimated price and quantity gaps, considered here to be 

tariff equivalents.121 The simulation results are the Commission’s estimate of the effects 

of the removal of China’s NTMs on these products.122

For the NTM model simulation, the Commission considered products for which prices on 

imports into China were higher than world prices and for which Commission staff 

research indicated that NTMs were impeding U.S. agricultural exports. Commission staff 

also considered products for which U.S. exports to China were particularly low or 

effectively zero. Among those products for which U.S. exports were low or zero, the list 

included only those products for which Commission staff was able to document Chinese 

NTMs that raise prices and/or restrict imports. Twelve agricultural product groups met all 

of these criteria. 

The results of the Commission’s economic model simulation of the removal of China’s 

NTMs on the 12 product groups are presented in table 9.2. The estimated increase in U.S. 

exports of these agricultural products to China following the simultaneous removal of 

these NTMs, relative to a 2009 baseline, is between $2.6 and $3.1 billion.123 The majority 

of this increase is attributable to export expansions in wheat (U.S. exports to China would 

have been between $1.5 billion and $1.7 billion higher), cotton ($524–$630 million), 

pork offal ($305–$363 million), and beef ($156–$213 million).124 Since this simulation 

removed NTMs for only 12 agricultural products, the Commission’s model simulation 

suggests that NTMs may have a greater impact on U.S. agricultural exports than do 

China’s applied tariffs.125

The simulation considers the elimination of all possible measures that may increase 

prices and/or restrict trade. This includes the aggregate effect of all known and unknown 

NTMs specific to these products, as well as issues affecting importation of U.S. 

agricultural products generally, such as customs procedures, notice and comment 

procedures, and tax policies. Decomposing the effect of particular measures is 

problematic. The results, therefore, do not represent the impacts of the elimination of a 

specific policy or set of policies. The simulated removal of NTMs differs from that for 

tariffs in that regard. For instance, it may be that if one NTM that currently limits imports 

is eliminated, another measure continues to be restrictive. 

 121 Quantity gaps were converted into price gaps, which were then incorporated into the model simulation 

and removed. 122 For further explanation of the methodology used to identify tariff equivalents for simulating the 

effects of NTMs, see appendix F. Price gaps for the 12 product groups are presented in table F.4. 123 Ranges for the NTM effects were obtained by employing low and high values in the estimated price 

gaps. Low and high values were computed as average price gap x (1 + 0.10). 124 The U.S. Meat Export Federation has estimated the value of U.S. beef sales in the first year U.S. 

exporters gain access to the Chinese market at $200 million. Industry official, telephone interview by 

Commission staff, February 3, 2011. 125 The Commission’s tariff model simulation estimates that Chinese tariffs and TRQs on all 131 product 

groups had effects on U.S. exports ranging from $1.3–2.1 billion. 
TABLE 9.2 China: U.S. and Chinese trade statistics and simulated effects of removal of China’s NTMs for selected agricultural products

Product 

Actual 2009 U.S. 

exports to China 

Range of simulated change 

in U.S. exports to China in 

the absence of China’s NTMs 

Actual 2009 Chinese 

imports from the World 

 in 

in t

Million $ Million $ Percent Million $ 

Wheat 84 1,452–1,704 1,722–2,022 205 1

Cotton 803 524–630 65–79 2,114 

Pork offal 52 305–363 586–697 391 

Fresh beef 0 75–96 * 8 

Frozen pork 23 49–56 215–245 137 

Beef offal 0 45–72 * 9 

Poultry 796 35–40 4–5 985 

Frozen beef 0 38–45 * 37 

Preserved pork 0 29–42 * 1 

Potatoes 1 27–31 3,202–3,678 1 Apples 19 15–18 79–96 54 

Stone fruits 5 1–1 12–16 21 

 Sum 1,782 2,595–3,098 146–174 3,962 4

Source: Commission staff calculations with simulation framework discussed in appendix F. Notes: (1) An asterisk identifies products with no U.S. exports to China in 2009. (2) Parenthesis ( ) indicates a negative number. (3) A ra

was obtained by employing low and high values in the estimated price gaps. 

9-21 
9-22

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Geneva:WTO; 1994. 

———. Agreement on Technical Barriers to Trade. Geneva: WTO, 1994. 

———.“Current Issues, 8.1: Genetically Modified Organisms.” In SPS Agreement Training Module.

WTO, n.d. http://www.wto.org/english/tratop_e/sps_e/sps_agreement_cbt_e/c8s1p1_e.htm.

———. Trade Policy Review: China. Geneva: WTO, April 26, 2010. 

———. Committee on Sanitary and Phytosanitary Measures. “Notification G/SPS/N/CHN/203,” 

January 19, 2010. 

http://www.wtocenter.org.tw/SmartKMS/do/www/readDoc?document_id=104678. 

———. Secretariat. “Data Day at the WTO: Trade and Market Access Data for Policy Makers,” May 18–

19, 2009. 

http://www.wto.org/english/res_e/statis_e/data_day_may09_e/brochure_dataday_may09_e.pdf. 

 

APPENDIX A 

Request Letter

JOHN D, AOCKEFELLEH IV, WEST VlHG!f'JJA 

KENT CONRAD. NORTH DAKOTA 

JEFF 81NGAt·lIAN, NEW M£XICO 

JOrlN F, KERRY, r ... 1ASSi~CHUSEnS 

BLANCHE L l.1NCOlN. ARKANS,A.S 

RQN WYDEN, OHE(;QN 

CHARLES E. SCHUMER., NEW YORK 

D!:9BIE S r ASE;NOW. M!CH!GAN 

MARIA CANT\oVELi.., WASHINGTON 

BILL NELSON, fLORIDA 

R08EFiT MENENDEZ, NEW JERSEY 

THOMAS R CARPER, DELAWARE 

CHUCK mV\SSLEY. IOWA 

ORI1IN G. HA1"CH, liT!\H 

OL YivtPIA J. SNOWE::, J'viAJNE 

JON .'(YL AfHZQI"JA 

JIM BUNNING, KENTUCKY 

MrKE CRAPO. iDAHO 

PAT ROBERTS, KANSAS 

.JOHN ENSIGN, NE·"ADA. 

MlCHAEl RENZi, WYOMING 

JOHN C:OHNYN. TEXAS 

RUSSELL SULLlVJl.,N, STAFF D1RECfOH 

KOLo.)\: DAVIS. REPUBUGAN STAfF OtRECTOH .A.ND CHlEf GOUNSEL 

ilnitcd ~tatE5 ~EnatE COMMITTEE ON FINANCE 

WASHINGTON, DC 20510-6200 

April 1, 2010 

JO':Kf" 

r-t",M2E;; 

The Honorable Shara L. Aranoff 

Chairman -·······--··Off~;·~f·;h;···-····-··· 

U.S. International Trade Commission 

500 E Street, S.W. 

Washington, DC 20436 

Dear Chamnan Aranoff, 

Secretary 

Int'I Trade Commission 

We are writing to request that the U.S. International Trade Commission conduct an investigation 

under section 332(g) of the Tariff Act of 1930 (19 V.S.c. 1332(g») regarding competitive factors 

affecting agricultural trade between China an<;l the United States. . 

Since it joined the World Trade Organization in 2001, China's imports of U.S. agricultural 

products have grown substantially. China is now the fourth largest market for V.S. agricultural 

exports. Yet sales are highly concentrated in a few products-soybeans, cotton, poultry, and 

hides and skins accounted for more than 85 percent of Chinese imports of U.S. agricultural 

products in 2009. Chinese imports of several globally competitive U.S. agricultural products, 

such as certain meat, feed grains, and processed food, are limited. With rapidly rising per capita 

income and resource constraints on domestic production growth, China has the potential to 

provide greater opportunities for expanding V.S. agricultural exports. . 

At the same time, several factors threaten the ability of U.S. agricultural exporters to realize these 

opportunities. Chinese government policies aimed at boosting domestic production and curbing 

imports, non-tariff measures, including sanitary/phytobnitary measures and technical trade 

barriers, and increased competition from third-country suppliers, especially those with which 

China has negotiated trade agreements, are important factors that could weaken the competitive 

position of U.S. agricultural products in the Chinese market. 

The Commission's report should cover the period 2005-2009, or the period 2005 to the latest year 

for which data are available. In addition, to the extentpossible, the report should include the 

following: 

• an overview of China's agricultural market, including recent trends in production, 

consumption, and trade; 

• a description of the competitive factors affecting the agricultural seetor in China, in such 

areas as costs of production, technology, domestic support and government programs 

related to agricultural markets, foreign direct investment policies, and pricing and' 

marketing regimes; RECEIVED 

APR 01 ZU10 

OfFICE Of THE ;)J;.v,\dARY 

U.S. INTl. TRADE COMMISSION 

A-3
\ 

• an overview of China's participation in global agricultural export markets, particularly in 

the Asia-Pacific region and in those markets with which China has negotiated trade 

." .l!gr.:~!1lents; 

• a description ofthe principal measures affecting China's agricultural imports, including 

tariffs and non~tariff measures such as sanitary and phytosanitary measures and technical 

barriers to trad~; and 

• a quantitative analysis ofthe economic effects of China's MFN tariffs, preferential tariffs 

negotiated uncter China's free trade agreements, and China's non-tariff measures on U.S. 

agricultural 'exports to China and on imports from the rest of the world. 

\ 1 The Commission shoul~ submit its fmal report no later than eleven months from the receipt of 

L ...::.1l:!i§J:equest .. As . .we.intend to make the report available to the public, we request that it not 

contain confidential business information. 

Sincerely, 

A-4
APPENDIX B 

Federal Register Notice

Federal Register / Vol. 75, No. 87 / Thursday, May 6, 2010 / Notices 24969 

62815) and determined on March 8, 

2010 that it would conduct an expedited 

review (75 FR 13779, March 23, 2010). 

The Commission transmitted its 

determination in this review to the 

Secretary of Commerce on April 30, 

2010. The views of the Commission are 

contained in USITC Publication 4148 

(April 2010), entitled Crepe Paper 

Products from China: Investigation No. 

731–TA–1070A (Review). 

By order of the Commission. 

Issued: May 3, 2010. 

Marilyn R. Abbott, 

Secretary. 

[FR Doc. 2010–10691 Filed 5–5–10; 8:45 am] 

BILLING CODE 7020–02–P 

INTERNATIONAL TRADE 

COMMISSION 

[Investigation No. 731–TA–1178 

(Preliminary)] 

Glyphosate From China 

AGENCY: United States International 

Trade Commission. 

ACTION: Notice of withdrawal of petition 

in antidumping investigation. 

SUMMARY: On April 29, 2010, the 

Department of Commerce and the 

Commission received letters on behalf 

of the petitioner in the subject 

investigation (Albaugh, Inc., Ankeny, 

IA) withdrawing its petition. Commerce 

has not initiated an investigation as 

provided for in section 732(c) of the 

Tariff Act of 1930 (19 U.S.C. 1673a(c)). 

Accordingly, the Commission gives 

notice that its antidumping 

investigation concerning glyphosate 

from China (investigation No. 731–TA– 

1178 (Preliminary)) is discontinued. 

DATES: Effective Date: April 29, 2010. 

FOR FURTHER INFORMATION CONTACT: 

Amy Sherman (202–205–3289), Office 

of Investigations, U.S. International 

Trade Commission, 500 E Street, SW., 

Washington, DC 20436. Hearingimpaired individuals are advised that 

information on this matter can be 

obtained by contacting the 

Commission’s TDD terminal on 202– 

205–1810. Persons with mobility 

impairments who will need special 

assistance in gaining access to the 

Commission should contact the Office 

of the Secretary at 202–205–2000. 

General information concerning the 

Commission may also be obtained by 

accessing its Internet server (http:// 

www.usitc.gov). The public record for 

this investigation may be viewed on the 

Commission’s electronic docket (EDIS) 

at http://edis.usitc.gov. 

By order of the Commission. 

Issued: April 30, 2010. 

Marilyn R. Abbott, 

Secretary to the Commission. 

[FR Doc. 2010–10649 Filed 5–5–10; 8:45 am] 

BILLING CODE 7020–02–P 

INTERNATIONAL TRADE 

COMMISSION 

[Investigation No. 332–518] 

China’s Agricultural Trade: 

Competitive Conditions and Effects on 

U.S. Exports 

AGENCY: United States International 

Trade Commission. 

ACTION: Institution of investigation and 

scheduling of hearing. 

SUMMARY: Following receipt on April 1, 

2010, of a request from the United States 

Senate Committee on Finance 

(Committee) under section 332(g) of the 

Tariff Act of 1930 (19 U.S.C. 1332(g)), 

the U.S. International Trade 

Commission (Commission) instituted 

investigation No. 332–518, China’s 

Agricultural Trade: Competitive 

Conditions and Effects on U.S. Exports. 

DATES: May 25, 2010: Deadline for filing 

requests to appear at the public hearing. 

June 3, 2010: Deadline for filing 

prehearing briefs and statements. 

June 22, 2010: Public hearing. 

June 29, 2010: Deadline for filing 

posthearing briefs and statements. 

September 15, 2010: Deadline for 

filing all other written submissions. 

March 1, 2011: Transmittal of 

Commission report to the Committee. 

ADDRESSES: All Commission offices, 

including the Commission’s hearing 

rooms, are located in the United States 

International Trade Commission 

Building, 500 E Street, SW., 

Washington, DC. All written 

submissions should be addressed to the 

Secretary, United States International 

Trade Commission, 500 E Street, SW., 

Washington, DC 20436. The public 

record for this investigation may be 

viewed on the Commission’s electronic 

docket (EDIS) at http://www.usitc.gov/ 

secretary/edis.htm. 

FOR FURTHER INFORMATION CONTACT: 

Project leader Joanna Bonarriva (202– 

205–3312 or joanna.bonarriva@

usitc.gov) or deputy project leader 

Marin Weaver (202–205–3461 or 

marin.weaver@usitc.gov) for information 

specific to this investigation. For 

information on the legal aspects of this 

investigation, contact William Gearhart 

of the Commission’s Office of the 

General Counsel (202–205–3091 or 

william.gearhart@usitc.gov). The media 

should contact Margaret O’Laughlin, 

Office of External Relations (202–205– 

1819 or margaret.olaughlin@usitc.gov). 

Hearing-impaired individuals may 

obtain information on this matter by 

contacting the Commission’s TDD 

terminal at 202–205–1810. General 

information concerning the Commission 

may also be obtained by accessing its 

Internet server (http://www.usitc.gov). 

Persons with mobility impairments who 

will need special assistance in gaining 

access to the Commission should 

contact the Office of the Secretary at 

202–205–2000. 

Background: As requested by the 

Committee, the Commission will 

conduct an investigation and prepare a 

report on the conditions of competition 

in China’s agricultural market and trade 

and their effect on U.S. agricultural 

exports. As requested, to the extent 

possible, the report will include— 

(1) An overview of China’s 

agricultural market, including recent 

trends in production, consumption, and 

trade; 

(2) A description of the competitive 

factors affecting the agricultural sector 

in China, in such areas as costs of 

production, technology, domestic 

support and government programs 

related to agricultural markets, foreign 

direct investment policies, and pricing 

and marketing regimes; 

(3) An overview of China’s 

participation in global agricultural 

export markets, particularly in the AsiaPacific region and in those markets with 

which China has negotiated trade 

agreements; 

(4) A description of the principal 

measures affecting China’s agricultural 

imports, including tariffs and non-tariff 

measures such as sanitary and 

phytosanitary measures and technical 

barriers to trade, and; 

(5) A quantitative analysis of the 

economic effects of China’s MFN tariffs, 

preferential tariffs negotiated under 

China’s free trade agreements, and 

China’s non-tariff measures on U.S. 

agricultural exports to China and on 

imports from the rest of the world. 

The Committee asked that the 

Commission’s report cover the period 

2005–2009, or the period 2005 to the 

latest year for which data are available. 

The Committee requested that the 

Commission deliver its report by March 

1, 2011. 

Public Hearing: The Commission will 

hold a public hearing in connection 

with this investigation at the U.S. 

International Trade Commission 

Building, 500 E Street, SW., 

Washington, DC, beginning at 9:30 a.m. 

on Tuesday, June 22, 2010. Requests to 

appear at the public hearing should be 

filed with the Secretary no later than 

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B-3
24970 Federal Register / Vol. 75, No. 87 / Thursday, May 6, 2010 / Notices 

5:15 p.m., May 25, 2010, in accordance 

with the requirements in the 

‘‘Submissions’’ section below. All 

prehearing briefs and statements should 

be filed with the Secretary not later than 

5:15 p.m., June 3, 2010; and all 

posthearing briefs and statements 

responding to matters raised at the 

hearing should be filed with the 

Secretary not later than 5:15 p.m., June 

29, 2010. All hearing-related briefs and 

statements should be filed in 

accordance with the requirements for 

filing written submissions set out below. 

In the event that, as of the close of 

business on May 25, 2010, no witnesses 

are scheduled to appear at the hearing, 

the hearing will be canceled. Any 

person interested in attending the 

hearing as an observer or nonparticipant 

may call the Office of the Secretary 

(202–205–2000) after May 25, 2010, for 

information concerning whether the 

hearing will be held. 

Written Submissions: In lieu of or in 

addition to participating in the hearing, 

interested parties are invited to file 

written submissions concerning this 

investigation. All written submissions 

should be addressed to the Secretary, 

and all such submissions (other than 

pre- and post-hearing briefs and 

statements) should be received not later 

than 5:15 p.m., September 15, 2010. All 

written submissions must conform with 

the provisions of section 201.8 of the 

Commission’s Rules of Practice and 

Procedure (19 CFR 201.8). Section 201.8 

requires that a signed original (or a copy 

so designated) and fourteen (14) copies 

of each document be filed. In the event 

that confidential treatment of a 

document is requested, at least four (4) 

additional copies must be filed, in 

which the confidential information 

must be deleted (see the following 

paragraph for further information 

regarding confidential business 

information). The Commission’s rules 

authorize filing submissions with the 

Secretary by facsimile or electronic 

means only to the extent permitted by 

section 201.8 of the rules (see Handbook 

for Electronic Filing Procedures, http:// 

www.usitc.gov/secretary/

fed_reg_notices/rules/documents/

handbook_on_electronic_filing.pdf). 

Persons with questions regarding 

electronic filing should contact the 

Office of the Secretary (202–205–2000). 

Any submissions that contain 

confidential business information must 

also conform with the requirements of 

section 201.6 of the Commission’s Rules 

of Practice and Procedure (19 CFR 

201.6). Section 201.6 of the rules 

requires that the cover of the document 

and the individual pages be clearly 

marked as to whether they are the 

‘‘confidential’’ or ‘‘nonconfidential’’ 

version, and that the confidential 

business information be clearly 

identified by means of brackets. All 

written submissions, except for 

confidential business information, will 

be made available for inspection by 

interested parties. 

In its request letter, the Committee 

stated that it intends to make the 

Commission’s report available to the 

public in its entirety, and asked that the 

Commission not include any 

confidential business information in the 

report it sends to the Committee. Any 

confidential business information 

received by the Commission in this 

investigation and used in preparing this 

report will not be published in a manner 

that would reveal the operations of the 

firm supplying the information. 

By order of the Commission. 

Issued: April 30, 2010. 

Marilyn R. Abbott, 

Secretary to the Commission. 

[FR Doc. 2010–10650 Filed 5–5–10; 8:45 am] 

BILLING CODE 7020–02–P 

INTERNATIONAL TRADE 

COMMISSION 

[USITC SE–10–014] 

Government in the Sunshine Act 

Meeting Notice 

AGENCY HOLDING THE MEETING: United 

States International Trade Commission. 

TIME AND DATE: May 14, 2010 at 10 a.m. 

PLACE: Room 101, 500 E Street, SW., 

Washington, DC 20436, Telephone: 

(202) 205–2000. 

STATUS: Open to the public. 

MATTERS TO BE CONSIDERED: 

1. Agenda for future meetings: none. 

2. Minutes. 

3. Ratification List. 

4. Inv. Nos. 701–TA–475 and 731– 

TA–1177 (Preliminary) (Certain 

Aluminum Extrusions from China)— 

briefing and vote. (The Commission is 

currently scheduled to transmit its 

determinations to the Secretary of 

Commerce on or before May 17, 2010; 

Commissioners’ opinions are currently 

scheduled to be transmitted to the 

Secretary of Commerce on or before May 

24, 2010.) 

5. Inv. Nos. 731–TA–770–773 and 775 

(Second Review) (Stainless Steel Wire 

Rod from Italy, Japan, Korea, Spain, and 

Taiwan)—briefing and vote. (The 

Commission is currently scheduled to 

transmit its determinations and 

Commissioners’ opinions to the 

Secretary of Commerce on or before May 

28, 2010.) 

6. Outstanding action jackets: None. 

In accordance with Commission 

policy, subject matter listed above, not 

disposed of at the scheduled meeting, 

may be carried over to the agenda of the 

following meeting. 

By order of the Commission: 

Issued: April 26, 2010. 

William R. Bishop, 

Hearings and Meetings Coordinator. 

[FR Doc. 2010–10801 Filed 5–4–10; 4:15 pm] 

BILLING CODE 7020–02–P 

DEPARTMENT OF JUSTICE 

Federal Bureau of Investigation 

[Docket No. FBI 122] 

FBI Records Management Division 

National Name Check Program Section 

User Fees 

AGENCY: Federal Bureau of Investigation 

(FBI), Justice. 

ACTION: Notice. 

SUMMARY: This notice establishes the 

user fee schedule for federal agencies 

requesting name-based background 

checks of the FBI’s National Name 

Check Program for noncriminal justice 

purposes. These checks of the Central 

Records System are performed by the 

Records Management Division. 

DATES: Effective Date: June 7, 2010. 

FOR FURTHER INFORMATION CONTACT: FBI, 

RMD, National Name Check Program 

Section, 170 Marcel Drive, Winchester, 

VA 22602, Attention: Michael Cannon, 

540 868–4400. 

SUPPLEMENTARY INFORMATION: Pursuant 

to the authority in Public Law 101–515 

as amended, the FBI has established 

user fees for federal agencies requesting 

noncriminal name-based background 

checks of the Central Records System 

(CRS) through the National Name Check 

Program (NNCP) of the Records 

Management Division (RMD). The final 

rule, to be codified under 28 CFR 20.31 

(f), is set out elsewhere in today’s issue 

of the Federal Register. 

The following fee schedule provides 

the user fees for name-based CRS checks 

by the NNCP through the FBI’s RMD. 

NAME-BASED NNCP CHECKS

If the check is a/an The fee is 

Electronic transaction: 

Batch Process Only ....... $1.50 

Batch + File Review ...... 29.50 

Manual Submission .............. 56.00 

Expedited Submission .......... 56.00 

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B-4
APPENDIX C 

Hearing Witnesses

C-3 

CALENDAR OF PUBLIC HEARING

Those listed below appeared as witnesses at the United States International Trade Commission’s 

hearing: 

 Subject: China’s Agricultural Trade: Competitive Conditions and Effects 

on U.S. Exports 

 

 Inv. No.: 332-518 

 Date and Time: June 22, 2010 - 9:30 a.m. 

 

 A session was held in connection with this investigation in the Main Hearing Room (room 101), 

500 E Street, S.W., Washington, D.C. 

ORGANIZATION AND WITNESS:

National Potato Council 

Washington, D.C. 

 John Keeling, CEO and Executive Vice President 

Almond Board of California 

Modesto, CA 

 David C. Norris, President, Jessup, Norris & 

 Trunick, Inc. 

 Kristi Mika Saitama, Associate Director, 

 Asia-Pacific, Almond Board of California 

Tuttle Taylor & Heron 

Washington, D.C. 

on behalf of

Blue Diamond Growers 

 Julian B. Heron ) – OF COUNSEL 

-1-
C-4 

ORGANIZATION AND WITNESS (continued):

American Soybean Association 

St. Louis, MO 

 Randy Mann, Vice President, American Soybean 

 Association; Chair of Trade Policy & 

 International Affairs Committee, American 

 Soybean Association; and Member of the 

 Board of Directors of the U.S. Soybean 

 Export Council 

R-CALF United Stockgrowers of America 

Billings, MT 

 Bill Bullard, CEO 

Stewart & Stewart Law Offices 

Washington, D.C. 

 Elizabeth J. Drake, Esq. 

-END-
APPENDIX D 

Summary of Views of Interested Parties

D-3 

Summary of Views of Interested Parties 

The Commission held a public hearing in relation to its investigation on China’s 

agricultural trade on June 22, 2010, in Washington, DC. Interested persons were also 

invited to file written submissions for the investigation. This appendix summarizes the 

views expressed to the Commission via testimony, written submission, or both, and 

reflects the principal points made by the particular party. The views expressed in the 

summarized materials should be considered to be those of the submitting parties and not 

the Commission. In preparing this summary, Commission staff did not undertake to 

confirm the accuracy of, or otherwise correct, the information summarized. For the full 

text of hearing testimony, written submissions, and exhibits, see entries associated with 

investigation no. 332-518 at the Commission’s Electronic Docket Information System 

(https://edis.usitc.gov/edis3-internal/app). 

Almond Board of California1

According to its hearing statement, the Almond Board of California administers a federal 

marketing order under the U.S. Department of Agriculture (USDA), with a broad range 

of programs funded by a mandatory assessment of almond growers. The Almond Board 

stated that the California almond industry is export-dependent, with the majority of 

almonds being sold abroad. According to the Almond Board, China lacks commercial 

domestic production and thus relies on almond imports. It also claimed that growth in 

demand for almonds in China has been dramatic but that prices, inflated by duties and 

valued-added tax (VAT), limit increased consumption. The Almond Board asserted that 

because marketing channels for the imports of almonds are fragmented, Chinese custom 

statistics tend to undercount almond imports; nonetheless, its exports there have rapidly 

increased. It said that a duty reduction on inshell almonds from 24 percent to 10 percent 

(the same as shelled almonds)—or, better, a cut in the duty on all almonds to 5 percent—

would add transparency. The Almond Board expressed concern that China’s free trade 

agreement negotiations with Australia and Chile could result in a competitive 

disadvantage on tariffs for U.S. almonds in China. According to the Almond Board, a 

tariff reduction on inshell almonds would help China by leading to greater direct 

investment and better economic opportunities with the expansion of almond processors.2

 

American Dehydrated Onion and Garlic Association3

In a written submission, the American Dehydrated Onion and Garlic Association 

(ADOGA), a group of companies operating dehydration, packaging, distribution, and 

warehousing facilities and representing the vast majority of U.S. production of 

dehydrated (dehy) onions and garlic in the United States, stated that Chinese dehy garlic 

has a competitive advantage over U.S.-produced dehy garlic in all markets because of 

lower production costs. In the submission, ADOGA stated that China is the largest global 

producer of garlic for all uses, that its large supplies can drive U.S. and world prices 

down, and that U.S. exports are unsuccessful selling into any other market because of 

 1

 The Almond Board, hearing statement to Commission, September 22, 2010. 2

 The Almond Board stated that almonds in China are mainly consumed as snacks and are roasted and 

flavored in China. 3

 American Dehydrated Onion and Garlic Association, written submission to the USITC, September 8, 

2010. 
D-4 

China’s predatory pricing in those markets. In addition, ADOGA stated in the submission 

that Chinese dehy garlic is being undervalued for U.S. Customs valuation purposes and 

that Chinese traders have been circumventing the large U.S. import tariff on Chinese 

dehy garlic by shipping product through a number of other countries. 

American Soybean Association4

In its submission, the American Soybean Association (ASA), an advocate and 

representative of U.S. soybean farmers on national and international policy issues, 

highlighted the importance of the U.S. soybean trade with China and expressed concern 

over its future. It noted that China is the largest soybean export market for the United 

States and that soybeans comprise over half the value of total U.S. agricultural exports to 

China. In 2009, the United States exported $9.2 billion worth of soybeans to China, and 

ASA predicted that Chinese consumption of soybeans will increase approximately 

8 percent annually over the next three to four years, a good prospect for U.S. exports. 

Although ASA stated that there are no major impediments to the soybean trade currently, 

it noted some concerns about future trade. According to ASA, China has shown concern 

over discolored U.S. soybeans, believing that the discoloration might indicate the 

presence of pesticide residue instead of natural discoloration. It also stated that the United 

States and China have agreed to communicate over such issues to improve understanding 

about things like testing methods. ASA asserted that China’s required certification for 

soybean oil is not necessary under international standards. It characterized China’s 

regulatory approval process for commodities containing biotech traits as opaque and, 

given the need to re-register traits every three years, unpredictable in nature. According 

to ASA, this is a potential threat to trade. ASA also asserted that the Chinese registration 

system has redundancy, owing to the need to register stacked traits both individually and 

together. It hopes that China’s greater use of biotechnology may help resolve some of 

these issues. Finally, ASA reported that Argentina employs differential export taxes 

(DETs) as a way to lower the price of soybean oil exports to China, a practice that 

negatively affects the United States in the Chinese market. 

Blue Diamond Growers5

A statement submitted by Blue Diamond Growers, a 100-year-old nonprofit marketing 

cooperative composed of almond growers, outlined U.S. almond production and its role 

in the Chinese market as follows: U.S. almonds are grown exclusively in California; over 

$2 billion worth of almonds were exported from California in 2009; and over 100 million 

pounds worth $200 million were exported to China. Blue Diamond reported three main 

issues with current U.S. almond trade with China. First, it stated that the Chinese word 

for “almonds” is the same as the Chinese word for “bitter apricot kernels,” often causing 

the two commodities to be confused both during trade negotiations and in marketing 

outlets. Blue Diamond claimed that this confusion may be the biggest obstacle it faces in 

seeking tariff reduction. Second, according to Blue Diamond, the 24 percent Chinese 

tariff on inshell almonds was negotiated when China joined the World Trade organization 

because the industry incorrectly thought China would be a “shelled” market. Blue 

Diamond stated that China has become a major inshell market, but with the tariff and a 

VAT of 13 percent, the total duties on inshell almonds are 37 percent. Blue Diamond 

 4

 American Soybean Association, hearing statement to the Commission, June 22, 2010. 5

 Blue Diamond Growers, written submission to the Commission, June 3, 2010. 
D-5 

asserted that a reduction for almonds is in order, given the 2008 duty reduction for inshell 

pistachios. Third, according to Blue Diamond, the majority of California almonds are 

being imported through Hong Kong and then shipped to mainland China through “grey 

channels” to avoid the high duties. Blue Diamond asserted that they would like to 

legitimize China’s importation process through reduced tariffs, which would increase its 

shipments and increase the duty revenue China collects. 

California Cling Peach Board6

In a written submission, the California Cling Peach Board (Board), a nonprofit, quasigovernmental association representing all 600 cling peach producers in California, stated 

that the U.S. canned cling peach industry has been greatly diminished by unfairly priced 

imports into the U.S. market of Chinese canned peaches, both in institutional-size metal 

containers and in single-serve plastic cups. In the submission, the Board stated its 

industry efforts to compete more favorably have included the initiation of a tree-pull 

program to reduce market supply and the use of new thinning technology to reduce costs, 

but that such efforts have been unsuccessful in restoring U.S. industry profitability 

because of rising grower costs, static U.S. demand, increasing imports, and increased 

competition in all global markets from Chinese production. In addition, the Board stated 

that increased U.S. imports of Chinese canned peaches and canned fruit mixtures are 

displacing U.S. industry sales and are putting downward pressure on prices of U.S. 

products in the retail and institutional sales sectors. 

National Cotton Council7

In a written submission, the National Cotton Council of America (Cotton Council) stated 

that China is the dominant force in cotton textiles and apparel and Chinese policies 

significantly distort world cotton production markets. Specifically, the Cotton Council 

claimed that U.S. textile manufacturing has declined as China’s has risen, thus increasing 

U.S. cotton producers’ dependence on Chinese purchases of cotton. According to the 

Cotton Council, China uses policies including seed subsidies, a variable levy, and an 

internal reserve system to support Chinese cotton farmers in a fashion inconsistent with 

China’s World Trade Organization (WTO) accession documents. Additionally, the 

Cotton Council alleged that the Chinese government tends to give import licenses to 

companies that agree to use imported cotton for production of textiles and apparel to be 

exported rather than domestically consumed. The Cotton Council asserted that these 

policies restrict access to the China market, making it difficult to find a place to sell U.S. 

cotton on the international market. 

National Milk Producers Federation and U.S. Dairy Export 

Council8

The National Milk Producers Federation (NMPF) and the U.S. Dairy Export Council 

(USDEC) submitted a joint written submission. NMPF is a national farm commodity 

 6

 California Cling Peach Board, written submission to the Commission, July 28, 2010. 

7

 National Cotton Council, written submission to the Commission, September 15, 2010. 8

 National Milk Producers Federation and U.S. Dairy Export Council, written submission to the 

Commission, September 15, 2010. 
D-6 

organization that represents dairy farmers and the dairy cooperative marketing 

associations they own and operate throughout the United States. USDEC is a nonprofit, 

independent membership organization that represents the export trade interests of U.S. 

dairy producers, proprietary processors and cooperatives, ingredient suppliers, and export 

traders. 

The joint submission addresses China’s possible revision of its dairy health certificate 

requirements for U.S. dairy products. NMPF/USDEC stated that the new requirements 

appear to impose stricter requirements on U.S. food-grade dairy exports than on exports 

of the major dairy suppliers of other nations, without any indication that U.S. dairy 

products pose a greater risk to human health. NMPF/USDEC asserted that U.S. dairy 

products are manifestly safe, given that production is done under a robust U.S. oversight 

and inspection system. U.S. exports are made from the same milk source as dairy 

products destined for U.S. consumers, and U.S. dairy products are recognized by millions 

of foreign consumers around the world for their quality and safety. 

NMPF/USDEC stated that the U.S. government has offered several certificate-language 

options to China to address this issue in a way that they view as consistent with sound 

science and international norms for dairy products, but that the government of China has 

not approved any of these options. NMPF/USDEC reports that they have urged the U.S. 

government to work hard to resolve this situation and have urged China to pursue a 

resolution that reflects international scientifically informed guidelines and complies with 

China’s SPS requirements under the WTO. 

NMPF/USDEC made the following additional points: 

 U.S. dairy exports to China averaged $168 million over the last 

three years, making China the third largest export destination 

after NAFTA partners Canada and Mexico; 

 While U.S. exports are currently permitted entry to China, no 

guarantee exists as to how long this will last, given the ongoing 

bilateral negotiations regarding China’s health certificate; 

 The uncertainty surrounding the dairy health certificates has led 

to a decline in U.S. dairy exports to China in the months since 

May 2010, the last month for which acceptance of U.S. dairy 

products in China was officially guaranteed in advance; 

 The market in China for dairy products has been expanding over 

the past few years and expectations for future demand growth for 

imported dairy products is high, if the question of China’s health 

certificate for U.S. dairy products can be resolved; and 

 If resolution is not forthcoming, opportunities in China will be 

forfeited to U.S. competitors, who have all managed to secure an 

agreed-upon health certificate for access to China’s market, and 

thus it is critical to ensure that U.S. suppliers are able to supply 

much-needed quality dairy products to China at a time of rapidly 

growing demand for dairy products in that country. 
D-7 

National Potato Council9

In two written submissions, the National Potato Council (NPC), representing the U.S. 

potato industry, identified China as an important market for U.S. fresh potato exports and 

identified obtaining market access to China for U.S. fresh potatoes as one of its highest 

international priorities. In its June 22 submission, the NPC listed a number of events 

involving negotiators from the United States and China since July 2000 concerning 

market entry for U.S. fresh potato exports, especially in the area of plant quarantine. In its 

June 24 submission, the NPC stated that because of China’s free trade agreements (FTAs) 

with Australia, New Zealand, and Thailand, buyers in China have shifted their purchases 

away from the United States, and the U.S. potato industry is risking the loss of important 

markets in Asia and Oceania. 

Northwest Horticultural Council10

In a written submission, the Northwest Horticultural Council (Council), representing 

growers, packers, and shippers of tree fruit in the Pacific Northwest, stated that 

conditions of competition in trade between the United States and China are of great 

interest to their industry, particularly the supply and demand situation in China for apples, 

pears, and cherries. The Council requested that the Commission focus its study on 

examining current and future consumption of apples, pears, and cherries in China, 

including how current increases in labor costs and constraints on water and land might 

affect a reallocation of agricultural resources in China, so as to assist U.S. exporters in 

their marketing efforts both in China and in other export markets in which China 

currently competes. 

Ranchers-Cattlemen Action Legal Fund, United 

Stockgrowers of America11

In its written submission, the Ranchers-Cattlemen Action Legal Fund, United 

Stockgrowers of America (R-CALF USA) stated that it represents thousands of live cattle 

producers in 46 states. R-CALF USA stated that it does not support further opening of 

beef trade with other countries until imbalances between the cattle industry and the beefpacking industry are resolved. Regarding trade with China, R-CALF USA maintains that 

the United States should have accepted China’s offer to allow shipments of U.S. beef 

from cattle under 31 months of age instead of holding out for unrestricted access for all 

beef. According to R-CALF USA, it is “indefensible” to reject this offer on the grounds 

that the deal is not compliant with World Organization for Animal Health (OIE) 

guidelines for three reasons: first, if the United States believes the Chinese ban is causing 

monetary losses to the beef industry, then rejecting a partial opening exacerbates the loss 

where accepting it could mitigate the loss; second, if the United States thinks exports are 

necessary to revitalize rural areas, then depriving the beef industry of even limited export 

opportunities hurts rural areas; third, all countries except the United States are rejecting 

 9

 National Potato Council, written submission to the USITC, June 22, 2010, and National Potato Council, 

written submission to the USITC, June 24, 2010. 10 Northwest Horticultural Council, written submission to the USITC, June 14, 2010. 11 Ranchers-Cattlemen Action Legal Fund, United Stockgrowers of America, written submission to the 

Commission, June 9, 2010. 
D-8 

what R-CALF USA claimed are inadequate OIE guidelines on bovine spongiform 

encephalopathy (BSE).12

 

R-CALF USA asserted that Chinese beef consumption has not risen along with income 

because other factors are significantly affecting beef consumption, primarily China’s 

undervalued currency. R-CALF USA also added that if China expands its beef 

production and/or exports, the U.S. cattle industry would be hurt. R-CALF USA claimed 

that opening up the beef trade will, on balance, hurt the U.S. cattle industry, because the 

meat-packing industry will benefit from exports while the cattle industry will face 

increased competition in imports. R-CALF USA made a number of recommendations; 

those specific to China are to accept China’s offer to import U.S. beef from cattle under 

31 months and to counteract the “tariff” caused by an undervalued renminbi. 

Stewart and Stewart13

In two written submissions by Stewart and Stewart, a law firm with over 50 years’ 

experience representing U.S. industries, farmers, ranchers, and workers in international 

trade matters, the firm laid out information regarding China’s agricultural future as well 

as what they perceive as China’s tariff and nontariff barriers to trade. According to 

Stewart and Stewart, China has numerous support programs and plans for agriculture. For 

example, under China’s 11th Five Year Plan, the Chinese government is incentivizing 

production of both grains and high-value crops by subsidizing agricultural inputs such as 

fertilizer and water, exempting farmers from paying taxes, and maintaining an 

undervalued currency so as to keep exports competitively priced. Stewart and Stewart 

claimed that several of these measures contribute to the environmental degradation facing 

China. According to the law firm, China also employs various SPS regulations that act as 

barriers, such as excluding poultry produced in four U.S. states and banning all but two 

types of U.S. apples due to unsupported SPS concerns. Stewart and Stewart 

acknowledged that China has made attempts to lower tariffs, but argued that other 

barriers, including domestic support programs and SPS regulations, continue to make it 

difficult for U.S. industries to export to China. 

U.S. Wheat Associates14

In a written submission, U.S. Wheat Associates asserted that China violates its WTO 

commitments for wheat in a way which harms U.S. wheat exports to China. According to 

U.S. Wheat Associates, its industry is export-dependent, with about half of production 

being exported every year. It maintained that China currently has certain policies, based 

on a desire to be self-sufficient in grains, which result in few wheat imports. In particular, 

U.S. Wheat Associates asserted that there are four major WTO commitments that China 

is violating. It stated that the tariff-rate quota for wheat is not transparent, which causes 

difficulties for both importers and exporters of wheat to China; that China has failed to 

comply with a 1999 agreement resolving Tilletia controversa Kuhn (TCK) spores found 

in some U.S. wheat—among other things, by not accepting U.S. certification and by 

creating barriers that de facto ban U.S. soft white wheat; that China is discriminatory in 

applying a 13 percent value-added tariff against imports but not domestic wheat; and that 

 12 R-CALF USA asserted that the United States is hurting itself and its trade by importing Canadian cattle 

of any age when Canada has been struggling with BSE outbreaks. 13 Stewart and Stewart, written submission to the Commission, June 3, 2010, and June 29, 2010. 14 U.S. Wheat Associates, written submission to the Commission, September 16, 2010. 
D-9 

China is giving more support, via subsidies, to domestic wheat producers than is allowed 

under its WTO commitments. 

U.S. Wheat Associates recommended that a multilateral coalition be formed to address 

China on a number of commodity issues and to correct these violations, in order to avoid 

Chinese retaliation directly toward the United States. U.S. Wheat Associates asserted that 

the resolution of these issues would allow U.S wheat to compete fairly in a market where 

significant new sales could be gained. 

Western Pistachio Association15

According to its written submission, the Western Pistachio Association (WPA) represents 

commercial growers, ranchers, and processors of pistachios in the United States. The 

WPA stated that greater China (the mainland plus Hong Kong) is a large market for U.S. 

pistachios. According to WPA, Iranian pistachios are its main competition in greater 

China. WPA claimed there are two main problems which affect its pistachio exports to 

China. The first is the mislabeling and bleaching of Iranian product in order to pass it off 

as high-quality, safe U.S. product. WPA asserted that, in addition to infringing on the U.S. 

brand, bleaching is a potential health hazard. The second issue is the tariff level of 

10 percent, a reduction which WPA asserted would increase U.S. market access. WPA 

also made four arguments concerning competitive factors in China. First, WPA 

contended that China’s subsidies for tree planting could lead to future pistachio 

competition for U.S. exports. Second, according to WPA, China maintains arbitrary and 

nontransparent food safety and SPS rules. WPA asserted that while the U.S. has dealt 

with these barriers, they decrease the competitiveness of U.S. pistachios with grey market 

shipments. Third, WPA stated that distribution channels in China are currently 

inadequate and that improvements are needed to increase country-wide competitiveness. 

Fourth, WPA maintained there is a lack of intellectual and trademark protection, which 

diminishes the “U.S. pistachios” generic brand, as many Iranian pistachios are relabeled 

U.S. pistachios. 

Wine Institute et al.16 

In a written submission, the Wine Institute (the largest advocacy and public policy 

association for California wineries and affiliated businesses), the California Wine Grape 

Growers Association (representing the interests of California wine grape farmers), and 

Wine America (the national association of American wineries outside of California) 

(together “Wine Institute et al.”) commented that China, as the world’s largest emerging 

market, represents unlimited potential for U.S. wine exports. The Wine Institute et al. 

stated that U.S. wine producers have the capacity to supply the Chinese market with 

quality U.S. wine in all price categories to meet growing Chinese consumption. However, 

it said that China’s high tariffs, nontariff measures, intellectual property rights 

infringement, nontransparent regulations, and government support from third-country 

wine suppliers are substantial obstacles to increased exports of U.S. wine to China. 

 

 15 Western Pistachio Association, written submission to the Commission, September 15, 2010. 16 Wine Institute, California Association of Wine Grape Growers, and Wine America, written submission 

to the USITC, September 13, 2010. 
D-10 

The Wine Institute et al. made the following additional points: 

 That Chinese wine consumption is increasing by 17 percent per 

year, making it the world’s fastest-growing wine market; 

 That wine production in China has increased to meet growing 

demand, but that domestic production is currently not “at par” 

with imported wine; 

 That a number of factors are limiting U.S. export growth to 

China, particularly Chinese tariffs and taxes on U.S. wine that 

raise the price of U.S. bottled wine by 48 percent and bulk wine 

by 56 percent; 

 That competitor wine suppliers Chile and New Zealand benefit 

from FTAs that have resulted in lower wine duties for those 

suppliers; that other leading wine exporters, including Australia, 

benefit from lower shipping costs owing to proximity to China; 

and that French producers benefit from domestic subsidies; 

 That nontransparent SPS regulations and technical barriers “are 

becoming more of an impediment as China moves its economy 

into the mainstream”; and 

 That U.S. wine is increasingly subject to counterfeiting (labeling 

Chinese wine as California wine) as U.S. brands become better 

known in the Chinese market. 
APPENDIX E 

Competitive Conditions Analytical 

Framework 

E-3

A Framework for Analyzing the Competitive Conditions 

Affecting China’s Agricultural Trade 

Several recent Commission factfinding investigations concern competitive conditions 

affecting U.S. agricultural markets. 1 In these studies, “competitive conditions” refer 

mostly to factors that determine costs of production, such as natural resource base, input 

costs, government subsidies, technology, transportation costs, marketing infrastructure, 

and exchange rates.2

 However, discussions with industry representatives in connection 

with this investigation suggest that the competitive conditions affecting Chinese 

agricultural trade go far beyond costs of production and include a wide range of market, 

institutional, and regulatory factors.3

 Presented in this section is an analytical framework 

that reflects a broad definition of competitive conditions. It defines the analytical 

assumptions, parameters, and structure regarding competitive conditions in order to 

provide a common context and consistent perspective of analysis.4

Competitive conditions in agriculture refer to the economic, institutional, and regulatory 

environment in which firms compete. Differences between countries in their competitive 

conditions provide opportunities and incentives for agricultural trade to take place. The 

competitiveness of a country’s agricultural sector is defined as the ability of its farmers 

and food processors to sell their products in domestic and overseas markets.5

 The ability 

of suppliers to sell agricultural products is determined by purchasers that base their 

buying decisions on a set of desired product characteristics, such as low cost, product 

differentiation, and reliability of supply. Competitive factors are defined as direct and 

indirect determinants of the ability of suppliers to meet the desired product characteristics 

of buyers. The remainder of this section discusses these definitions in more detail, 

leading to a framework for analyzing competitive conditions affecting China’s 

agricultural trade. 

 1

 Examples include USITC, Conditions of Competition for Milk Protein Products in the U.S. Market, 

2004; USITC, Conditions of Competition for Certain Oranges and Lemons in the U.S. Fresh Market, 2006; 

USITC, Canned Peaches, Pears, and Mixtures: Conditions of Competition between U.S. and Principal 

Foreign Supplier Industries, 2007. 2

 For example, in recent Commission investigations, factors affecting competitiveness in the canned fruit 

and citrus fruit industries were identified as natural resource endowments, production costs, technology, 

market size, industry concentration, government involvement, and exchange rates, and in the U.S. milk 

protein industry, competitiveness factors included costs of production, government programs, production 

technology, transportation costs, and exchange rates. 3

 Industry representatives, interviews with Commission staff, China, September 2010; written hearing 

testimony and submissions submitted to the U.S. International Trade Commission in connection with inv. nos. 

332-518, China’s Agricultural Trade: Competitive Conditions and Effects on U.S. Exports, June 2010. 4

 USITC, Guidelines for Developing an Economic Framework for an USITC Study, 2008. 5

 Other definitions of competitiveness are (1) “the ability of a nation, national industry, or firm to produce 

goods and services that consumers choose over competing alternative.” President’s Commission on Industrial 

Competitiveness, Global Competition—New Reality (vol. 1), January 1985, 6; and (2) “the ability of 

producers to sell goods in foreign markets at price, quality and timeliness comparable to competing foreign 

products.” USITC, Sub-Saharan Africa: Effects of Infrastructure Conditions on Export Competitiveness, 

2009. 
E-4

Porter’s Framework for Competitive Advantage 

Summary of the Framework 

Michael Porter provides a useful starting point from which to develop a framework for 

analyzing competitive conditions affecting agricultural trade.6

 According to Porter, there 

are two basic types of competitive advantage—low cost and differentiation. From these, 

Porter describes three generic strategic approaches firms can employ to achieve a 

competitive advantage in an industry—overall cost leadership, differentiation, and focus. 

Firms can pursue a competitive advantage within an industry by becoming the low-cost 

producer. Cost leadership strategies for firms involve aggressively pursuing preferential 

access to low cost inputs, seeking economies of scale, investing in cost-saving 

technologies, and minimizing costs associated with research and development, 

advertising, marketing, and sales. Porter notes that firms seeking cost leadership typically 

supply generic, undifferentiated, no-frills products and “place considerable emphasis on 

reaping scale or absolute cost advantage from all sources.”7

 

Alternatively, firms may seek a competitive advantage in a market through product 

differentiation. With this strategy, firms create an advantage in the market by offering a 

product perceived by purchasers as being special or unique. Porter identifies several 

forms of differentiation, including product design or brand image, special features, 

customer service, and dealer networks. Product differentiation creates brand loyalty 

among customers, who respond by being less sensitive to price in making their 

purchasing decisions. 

Cost leadership and product differentiation strategies are employed by firms competing 

for a broad range of consumers in many segments of the market. However, Porter 

describes a third strategy whereby firms seek a competitive advantage by focusing on a 

narrow market segment or consumer type. Under a “focus” strategy, firms target a narrow 

segment of the market (e.g., a certain demographic or income level, consumers with 

unusual or specific needs, consumers for which a specific delivery system better suits 

their needs) and aim to provide products and services better than firms trying to satisfy 

many consumers in a broader market segment. A focus strategy assumes that the needs of 

the target market are not well served by firms serving the entire market.8

 

Porter points out that the three strategies are not mutually exclusive. Firms looking for a 

competitive advantage through cost leadership must not ignore product quality and 

customer service. Similarly, a differentiation strategy does not allow firms to ignore costs 

and the importance of maintaining costs close to those of their competitors. Further, 

Porter describes two types of focus strategies—cost focus (firms aim to be the cost leader 

in the target market) and differentiation focus (firms seek differentiation in the target 

market). 

 6

 Porter, Michael E., Competitive Strategy, 1980. 7

 Porter, Michael E., Competitive Advantage, 1985, 13. 8

 Porter provides an example of a focus strategy used by Martin-Brower, once the third largest food 

distributor in the United States. “Martin-Brower has reduced its customer list to just eight leading fast food 

chains. Its entire strategy is based on meeting the specialized needs of the customers, stocking only their 

narrow product lines, order taking procedures geared to their purchasing cycles, locating warehouses based 

on their locations, and intensely controlling and computerizing record-keeping.” Porter, Michael E., 

Competitive Advantage, 1985, 40. 
E-5

Critique of the Framework 

Although Porter's theory of competitive advantage still remains quite influential in 

business management circles, it is often criticized in the academic literature for 

oversimplication or the lack of empirical evidence. Some critics have called his analysis a 

tautology because the term competitive advantage is never properly defined. Porter, in 

effect, argues that companies are successful because of factors that make them successful. 

Less analysis is provided on how companies set up business conditions to attain 

advantageous competitive factors. 

Because Porter’s ideas on how firms can achieve competitive advantage were developed 

in the late 1970s and early 1980s, changing economic conditions have called into 

question the relevance of the framework to firms’ decision making today.9

 One view that 

Porter’s competitive forces framework is outdated is referred to as the “resource-based 

approach.” Supporters of this approach analyze internal (also called “intrinsic” or “core 

competence”) factors to determine a firm’s competitiveness, including corporate culture, 

worker morale, team communication, corporate wide technologies, integrating production 

skills and new technology, and management leadership.10 Porter either neglects these 

factors in his analysis or disregards them altogether. In assessing Porter’s work, Downes 

lists three “new forces” which require a new competitiveness framework and new 

analytical tools to evaluate their impact on businesses: Digitalization, symbolized by the 

Internet and electronic financial transactions; Globalization, best characterized by 

improvements in worldwide distribution logistics and communications; and Deregulation, 

resulting in the decline of government influence over many industries. 11

Sharp and Dawes argue that Porter's strategies are oversimplified, at times recommending 

two or more mutually exclusive business strategies to achieve success, and not drawing 

sharp distinctions between the differentiation or focus strategies—thereby rendering his 

recommendations nearly impossible to implement. 12 In addition, the theory of 

competitive advantage is ambiguous about whether Porter’s prescriptions apply to firms 

or products. Porter views differentiation as something that firms undertake, but 

consumers purchase products, and the attributes of those products create customer value. 

So, while Porter discusses the competitiveness of firms, his competitiveness factors, such 

as low costs and differentiation, are really product qualities.13

Another common criticism of Porter is his inattention to national and cultural dimensions 

in any detail. He explains industrial success on a disaggregated, industry-by-industry 

basis, but it is also reasonable to take a more macroeconomic approach and ask why 

certain cultures give rise to industrial excellence or why some people (or cultures) are 

more hardworking, flexible, and entrepreneurial. Going further, Porter fails to explore 

how these cultural determinants of national competitive success are produced, and the 

role of government or civil society in sustaining or replicating such conditions.14 Porter 

himself acknowledges that non-market forces, such as government regulation, may need 

 9

 Klein, "A Critique of Competitive Advantage," July 2001, 1–2. 10 Aktouf, “The False Expectations of Michael Porter’s Strategic Management Framework,” 

January/June 2005, 76. 11 Downes, “Beyond Porter,” December 1997. 

12 Sharp and Dawes, "Is differentiation optional? - a critique of Porter's competitive strategy typology," 

1996, 269–271. 13 Klein, "A Critique of Competitive Advantage," July 2001, 6. 

14 O'Shaugnessy, "Michael Porter's Competitive Advantage Revisited," 2006, 13. 
E-6

to be factored into his competitiveness model, but he argues that non-market factors do 

not necessarily require an additional "force" in his “five forces model”.15

Several criticisms of Porter’s framework have been made on the basis that there is little 

empirical evidence to support the notion that the success of a firm is based on either a 

cost leadership or product differentiation strategy. Porter warns against the dangers 

companies face in not pursuing either a purely low cost strategy or a differentiated one, 

thereby being “stuck in the middle” of two competing strategies. In support of this 

premise, he discusses a U-shaped relationship between return on investment and market 

share, a relationship used to illustrate the pitfalls of a “middle” strategy. But Porter cites 

only two empirical examples for this phenomenon: U.S. fractional horsepower electric 

motors and the global automobile market, and in both cases fails to provide a convincing 

assessment on whether the data support his conclusions.16 

A Framework for Agriculture 

In spite of the weaknesses identified in the Porter approach, it still provides a useful 

starting point from which to develop a framework for agriculture. Porter developed this 

framework for individual firms competing in an industry. However, it is possible to apply 

it at a more macro level to analyze how individual country agricultural sectors (made up 

of several firms) compete in a global marketplace. 17 Porter identified low costs and 

differentiation as drivers of competitive advantage for firms in a market. Similarly, within 

global agricultural markets, delivered cost (low costs) and product characteristics 

(differentiation) form the essential criteria upon which importers and buyers of 

agricultural products make their purchasing decisions. For many bulk, unprocessed 

agricultural products such as wheat, corn, and soybeans, success in global markets is 

determined largely by whichever supplier is able to offer buyers the lowest delivered cost 

(assuming that minimum quality standards and other basic product specifications of the 

buyer are met). For other agricultural products—especially value-added, processed 

products such as infant formula, alcoholic beverages, and snack foods—buyers are less 

sensitive to delivered cost and choose among suppliers more on the basis of product 

differentiation (assuming cost is not prohibitive).18

In addition to delivered cost and product differentiation identified by Porter, importers 

and buyers of agricultural products view the reliability of the supplier as a further factor 

in their selection among competing suppliers. 19 Reliability refers to the ability of a 

supplier to deliver a product in the desired form, at the desired place and time, and in 

sufficient volume on a consistent basis. Although reliability of supply is important for 

nonagricultural products, the inherent riskiness of agricultural production (because of 

weather and disease, for example) and the economic and political importance of 

 15 Porter’s five forces are bargaining power of customers, buying powers of suppliers, rivalry between 

existing players, threat of substitutes, and threat of new entrants. Recklies, "Beyond Porter: A critique of the 

critique of Porter," 2001. 16 Speed, “Oh Mr. Porter! A Reappraisal of Competitive Strategy,” May/June 1989, 10. 17 Porter, The Competitive Advantage of Nations, 1990. 18 The focus strategy discussed by Porter can be viewed as a type of product differentiation in which 

sellers adapt their products to fit the particular desires of a narrow segment of consumers. This is particularly 

true for branded items such as wine produced in small lots and hand-crafted cheese. For this reason, further 

discussion of the focus strategy is dropped from this analytical framework. 19 The assertion that reliability of supply is a major factor in importer purchasing decisions is based on 

Commission staff experience in dealing with agricultural industry exporters and importers. 
E-7

agricultural production in many countries means that reliability of supply for agricultural 

products takes on a particularly strong significance. 

Porter’s theoretical framework of competitiveness, in combination with practical 

knowledge of how agricultural products are traded internationally, provides the building 

blocks for an analytical framework to address the competitive conditions and factors 

affecting global agricultural trade. This framework assumes that purchasers base their 

buying decisions on three main criteria: delivered cost, product differentiation, and 

reliability of supply. Buyers evaluate the importance they place on these criteria and then 

make purchasing decisions based on which competing supplier is best able to meet their 

requirements. 

This framework highlights several important aspects of agricultural competitiveness: 

 Competitiveness is a relative, not absolute, concept, and not all 

products are competitive in all markets. For example, consider 

the market for soybean oil in India. Buyers in the Indian 

market are highly price-sensitive and base their purchasing 

decisions largely on delivered cost. Even though the United 

States is a highly efficient producer and one of the world’s 

lowest-cost suppliers of soybean oil, Indians buy this product 

almost exclusively from Argentina and Brazil. One reason is 

that these countries may have even lower costs, after adjusting 

for exchange rates. 20 In addition, Argentina’s use of 

differential export taxes on soybeans, compared to soybeans 

oil, has the effect of significantly reducing the price level at 

which Argentina soybean processors can sell oil profitably to 

other countries. In this case, being a low-cost producer is not 

enough to make the United States competitive in India’s 

soybean oil market.21

 As with all efficiently functioning markets, buyers of 

agricultural products are the ultimate arbiters of which 

suppliers are competitive, not the suppliers themselves. 

However, suppliers can make their products attractive to a 

buyer by offering low-cost, differentiated products and reliable 

delivery in order to entice a buyer to select their product. 

 Competition among agricultural suppliers takes place in two 

markets—domestic and export. Domestic competitiveness is 

the ability of local suppliers to sell goods in the domestic 

market with better delivered cost, product differentiation, 

and/or reliability than other domestic suppliers and competing 

import suppliers. Export competitiveness is the ability of local 

suppliers to sell goods in foreign markets with better delivered 

 20 USITC, India: Effects of Tariffs and Nontariff Measures, 2009. 21 This does not mean that the United States is not competitive in all markets. In other markets, buyers 

may base their purchasing decisions less on delivered cost and more on product quality and the ability of U.S. 

exporters to meet the desired product specifications of customers. In such markets, the U.S. product may be 

more competitive than that of Brazil and Argentina. 
E-8

cost, product differentiation, and/or reliability than competing 

domestic and foreign producers. 

 The relative importance of delivered cost, product 

characteristics, and reliability of supply in determining 

competitiveness depends on the type of agricultural product 

traded. Many agricultural products are highly heterogeneous, 

differing, for example, in terms of the level of processing, 

branding, by type of purchaser (food processor/food consumer), 

or whether the products are used in food or industrial 

applications.22 For bulk, undifferentiated products, purchasers 

typically buy based largely on delivered cost. In fact, for some 

products, cost may be the only consideration. But as we move 

along the marketing chain to semiprocessed, highly processed, 

and branded products, purchasers increasingly consider 

specific product characteristics, in addition to cost and 

reliability, in making their buying decisions. 

 22 In this investigation, China’s agricultural sector is defined using the HS subheadings identified by the 

WTO. These are agricultural products in HS chapters 1–24 (excluding chapter 3), 41, 51, and 52 (plus certain 

industrial/chemical products from other chapters). Agricultural products form a continuum based on the level 

of processing. As an illustration, broad categorizations are unprocessed products for further processing 

(wheat, corn, soybeans); minimally processed products for immediate consumption (meat, fresh horticultural 

products); semiprocessed products for the food manufacturing sector (soybean oil, flour, raw sugar); 

semiprocessed products for the textile, apparel, and home furnishings sector (cotton, wool, hides and skins); 

semiprocessed products for immediate consumption (dairy, processed horticultural products); highly 

processed generic products for immediate consumption (crackers, infant formula); and highly processed 

branded products for immediate consumption (Oreo Cookies, Philadelphia cream cheese). 
E-9

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Porter, Michael E. Competitive Advantage. New York: The Free Press, 1985. 

———. The Competitive Advantage of Nations. New York: The Free Press, 1990. 

———. Competitive Strategy. New York: The Free Press, 1980. 

President’s Commission on Industrial Competitiveness. Global Competition—New Reality, Vol. 1, 

Washington, DC: Government Printing Office, 1985. 

Recklies, Dagmar. "Beyond Porter: A critique of the critique of Porter," TheManager.org, 2001 

http://www.themanager.org/strategy/BeyondPorter.htm (accessed December 17, 2010). 

Sharp, Byron and John Dawes. "Is Differentiation Optional? A Critique of Porter's Generic Strategy 

 Typology." Management, Marketing and the Competitive Process. Peter Earl, ed. London: 

 Edward Elgar, 1996. 

Speed, Richard J. “Oh Mr. Porter! A Reappraisal of Competitive Strategy.” Marketing Intelligence and 

Planning. Vol. 7, May/June 1989. 

U.S. International Trade Commission (USITC). Canned Peaches, Pears, and Mixtures: Conditions of 

Competition Between U.S. and Principal Foreign Supplier Industries. USITC Publication 3972. 

Washington, DC: USITC, 2007. 

———. Conditions of Competition for Certain Oranges and Lemons in the U.S. Fresh Market. USITC 

Publication 3863. Washington, DC: USITC, 2006 

———. Conditions of Competition for Milk Protein Products in the U.S. Market. USITC Publication 

3692. Washington, DC: USITC, 2004. 

———. Guidelines for Developing an Economic Framework for an USITC Study. Office of Economics. 

Unpublished, 2008. 
E-10

———. India: Effects of Tariffs and Nontariff Measures on U.S. Agricultural Exports. USITC 

Publication 4107. Washington, DC: USITC, 2009. 

———. Sub-Saharan Africa: Effects of Infrastructure Conditions on Export Competitiveness. USITC 

Publication 4071. Washington, DC: USITC, 2009. 
APPENDIX F 

Analytical Framework and Assumptions for 

Economic Simulations

F-3

Simulation Framework 

In this study, the effects of China’s food and agriculture tariffs and nontariff measures 

(NTMs) on U.S. food and agricultural exports have been simulated with a framework that 

has a general equilibrium (GE) model component and a partial equilibrium (PE) model 

component. The effects of China’s free trade agreements (FTAs) on U.S. food and 

agricultural exports have been simulated with the same framework. 

A GE model simulates the effects of trade policy on prices, trade, supply, and demand in 

the global economy with many countries and many product markets, including markets 

for primary factors— that is, land, labor, and capital. In contrast, a PE model simulates 

the effects of trade policy on the prices of a few products, assuming that the prices of all 

other products remain constant. Applied GE models specify products only in the 

aggregate, whereas PE models can specify products in detail. The advantage of linking a 

PE model to a GE model is that the PE model accounts for differences in bilateral trade 

policies at the product level, while the GE model reflects intersectoral linkages within the 

United States and all other economies. 

The GE model comprises 57 sectors covering all aspects of the economies under 

consideration, including trade among China, the United States, China’s FTA partners, 

and the rest of the world (RoW). The PE model is linked to the GE model and focuses on 

food and agricultural trade among China, the United States, China’s FTA partners, and 

the RoW for 139 product categories, 131 of which are food and agricultural products—

the focus of the simulations. 

Both the PE model and the GE model contain 18 economies: the United States, China, 

Hong Kong, Cambodia, Indonesia, Laos, Malaysia, Burma, the Philippines, Singapore, 

Thailand, Vietnam, Chile, Pakistan, New Zealand, Peru, Costa Rica, and a RoW region 

representing all other economies. 

The General Equilibrium Model 

The GE model is the Global Trade Analysis Project (GTAP) model of world trade.1

 The 

GTAP framework consists of a database containing global data on international trade, 

inter-industry relationships, and national income accounts, together with a simulation 

model. In the GTAP model, domestic products and imports are consumed by firms, 

governments, and households. Product markets are assumed to be perfectly competitive, 

implying zero economic profits for firms, with imports viewed as imperfect substitutes 

for domestic products and with sectoral production equal to global demand. 

In addition to the data on bilateral trade in each of the 57 GTAP sectors, the database 

includes data on domestic production and use for each sector, including intermediate use 

in the production of other commodities and services, as well as data on use of land, 

capital, and labor employment by sector. An additional component of the data is a set of 

parameters that, in the context of the model’s equations, determine economic behavior. 

These parameters are principally a set of elasticities that determine, among other things, 

the extent to which imports and domestically produced goods are substitutes for one 

 1

 For more information about the GTAP model, see Hertel, Global Trade Analysis: Modeling and 

Applications, 1997; Narayanan and Walmsley, Global Trade, Assistance, and Production: The GTAP 7 Data 

Base, 2008. 
F-4

another. The GTAP data used in the simulation framework have been updated from their 

2004 base year to 2009 (the most recent year for which statistics are available), using 

statistics on trade and on gross domestic product.2

The Partial Equilibrium Model 

The PE model contains 139 product categories, which are organized into 23 product 

groups. Each product group corresponds to one of 23 sectors in the GTAP model that 

contain food and agricultural products. Table F.1 lists these 23 GTAP sectors. Of the 139 

product categories in the PE model, 131 are the food and agricultural products which are 

the focus of the simulations. Table F.2 lists the 131 products and the U.S. Harmonized 

Tariff System 6-digit items which have been aggregated into each one of these product 

categories. 

TABLE F.1 GTAP model sectors containing the 131 products in the partial equilibrium model 

GTAP sector and description 

Paddy rice Wheat 

Cereal grains n.e.c. Vegetables, fruits, and nuts 

Oil seeds Sugarcane, and sugar beet 

Plant-based fibers Crops n.e.c. 

Cattle, sheep, goats, horses Animal products n.e.c. 

Wool, silkworm cocoons Forestry 

Fishing 

Meat products n.e.c. 

Meat 

 Cattle 

 Sheep 

 Goats 

 Horses 

Dairy products Vegetable oils and fats 

Sugar Processed rice 

Beverages and tobacco products Food products n.e.c. 

Chemical, rubber, and plastic products Textiles 

Sources: Hertel, Global Trade Analysis, 1997; Narayanan and Walmsley, Global Trade Assistance, and Production, 

2008. 

Note: The acronym n.e.c. means not elsewhere classified. 

 2

 The GE model is based on version 7 GTAP data. 
F-5

TABLE F.2 Food and agricultural products in the partial equilibrium model and the HTS 6-digit items contained in 

each product 

Product no. Product name HTS6 codes 

1 Rice, husked and unhusked 100610, 100620 

2 Wheat 100110, 100190 

3 Corn grain 100510, 100590 

4 Other grains 100200, 100300, 100400, 100700, 100810, 100820, 

100830, 100890 

5 Potatoes 070110, 070190, 071420 

6 Tomatoes 070200 

7 Onions 070310, 070320, 070390 

8 Cabbages 070410, 070420, 070490 

9 Lettuces 070511, 070519, 070521, 070529 

10 Carrots 070610, 070690, 070700 

11 Other vegetables 070810, 070820, 070890, 070910, 070920, 070930, 

070940, 070951, 070952, 070959, 070960, 070970, 

070990, 071331, 071332, 071333, 071339, 071340, 

071350, 071390, 071410, 071490 

12 Dried peas 071310 

13 Chickpeas 071320 

14 Walnuts and almonds in the shell 080211, 080231, 080232 

15 Pistachios and shelled almonds 080212, 080250 

16 Coconuts and other nuts 080110, 080111, 080119, 080221, 080222, 080290 

17 Brazil nuts 080120, 080121, 080122 

18 Cashews 080130, 080131, 080132 

19 Chestnuts 080240 

20 Macadamia nuts 080260 

21 Oranges 080510 

22 Mandarins 080520 

23 Grapefruits and other citrus fruits 080540, 080590 

24 Lemons and limes 080530, 080550 

25 Grapes 080610, 080620 

26 Apples 080810, 081330 

27 Cherries 080920 

28 Strawberries 081010 

29 Other berries 081020, 081030, 081040 

30 Other fresh and dried fruits 080300, 080410, 080420, 080430, 080440, 080450, 

080720, 081050, 081060, 081090, 081340, 081350 

31 Stone fruits 080910, 080940, 081310, 081320 

32 Melons 080710, 080711, 080719 

33 Pears 080820 

34 Peaches 080930 

35 Soya beans 120100 

36 Sunflower seeds 120600 

37 Peanuts 120210, 120220 

38 Other oilseeds 120300, 120400, 120500, 120590, 120710, 120720, 

120730, 120740, 120750, 120760, 120791, 120792, 120799 

39 Rapeseed 120510 

40 Sugar beet and sugarcane 121291, 121292, 121299 

41 Cotton 520100 

42 Flax and hemp 530110, 530210 

43 Tobacco 240110, 240120, 240130 

44 Flowers and plants 060110, 060120, 060210, 060220, 060230, 060240, 

060290, 060291, 060299, 060310, 060311, 060312, 

060313, 060314, 060319, 060390 

45 Spices 090111, 090220, 090240, 090300, 090411, 090412, 

090420, 090500, 090610, 090611, 090619, 090620, 

090700, 090810, 090820, 090830, 090910, 090920, 

090930, 090940, 090950, 091010, 091020, 091030, 

091040, 091050, 091091, 091099 
F-6

TABLE F.2 Food and agricultural products in the partial equilibrium model and the HTS 6-digit items contained in 

each product—Continued

Product no. Product name HTS6 codes 

46 Seeds for planting and other plant parts 120910, 120911, 120919, 120921, 120922, 120923, 

120924, 120925, 120926, 120929, 120930, 120991, 

120999, 121010, 121020, 121110, 121120, 121130, 

121140, 121190, 121210, 121300, 121410, 121490, 

140310, 140390, 180100, 230810, 230890 

47 Live cattle, sheep, goats, and horses 010110, 010111, 010119, 010120, 010190, 010210, 

010290, 010410, 010420 

48 Bovine semen 051110 

49 Other live animals 010310, 010391, 010392, 010511, 010512, 010519, 

010591, 010592, 010593, 010594, 010599, 010600, 

010611, 010612, 010619, 010620, 010631, 010632, 

010639, 010690, 020820 

50 Eggs 040700 

51 Honey 040900 

52 Bovine hides and skins and 

miscellaneous animal products 

041000, 050210, 050290, 050300, 050400, 050510, 

050590, 050610, 050690, 050710, 050790, 051000, 

051199, 152190, 410110, 410120, 410121, 410122, 

410129, 410130, 410140, 410150, 410190 

53 Sheep skins 410210, 410221, 410229 

54 Other hides and skins 410310, 410320, 410330, 410390, 430120, 430130, 

430140, 430150, 430160, 430170, 430180, 430190 

55 Mink furskins 430110 

56 Wool 510111, 510119 

57 Silkworm cocoons and other animal 

fibers 500100, 510210, 510211, 510219, 510220 

58 Fresh beef 020110, 020120, 020130 

59 Frozen beef 020210, 020220, 020230 

60 Beef offal 020610, 020621, 020622, 020629 

61 Lamb and sheep meet 020410, 020421, 020422, 020423, 020430, 020441, 

020442, 020443 

62 Pork offal 020630, 020641, 020649, 020900, 150100 

63 Goat and horse meat and other edible 

offal 020450, 020500, 020680, 020690, 150200, 150500 

64 Fresh pork 020311, 020312, 020319 

65 Frozen pork 020321, 020322, 020329 

66 Preserved pork 021011, 021012, 021019 

67 Poultry 020710, 020711, 020712, 020713, 020714, 020721, 

020722, 020723, 020724, 020725, 020726, 020727, 

020731, 020732, 020733, 020734, 020735, 020736, 

020739, 020741, 020742, 020743, 020750 

68 Other meats and animal fats 020810, 020830, 020840, 020850, 020890, 021020, 

021090, 021091, 021092, 021093, 021099, 150300, 

150430, 150510, 150590, 150600, 230110 

69 Processed meats 160100, 160220, 160231, 160232, 160239, 160241, 

160242, 160249, 160250, 160290 

70 Soybean oil 150710, 150790 

71 Corn oil 151521, 151529 

72 Cotton linters 140420 

73 Peanut oil 150810, 150890 

74 Olive oil and other oilseed oils 150910, 150990, 151000, 151211, 151219, 151221, 

151229, 151311, 151319, 151511, 151519, 151530, 

151540, 151550, 151560, 151590, 151610, 151620, 

151710, 151790, 152110, 152200 

75 Palm oil 151110, 151190, 151321, 151329, 151410, 151411, 

151419, 151490, 151491, 151499 

76 Soybean meal 120810, 230400 

77 Other oilseed meals 120890, 230500, 230610, 230620, 230630, 230640, 

230641, 230649, 230650, 230660, 230670, 230690 

78 Milk and cream 040110, 040120, 040130, 040210, 040221, 040229, 

040291, 040299 
F-7

TABLE F.2 Food and agricultural products in the partial equilibrium model and the HTS 6-digit items contained in 

each product—Continued

Product no. Product name HTS6 codes 

79 Yogurt 040310, 040390 

80 Whey 040410, 040490 

81 Butter 040500, 040510, 040520, 040590 

82 Cheese 040610, 040620, 040630, 040640, 040690 

83 Lactose and lactose syrup 170210, 170211, 170219 

84 Ice cream 210500 

85 Casein 350110 

86 Caseinates 350190 

87 Processed rice (rice, semi- or wholly 

milled) 100630, 100640 

88 Sugar and molasses 170111, 170112, 170191, 170199, 170220, 170310, 170390 

89 Prepared eggs 040811, 040819, 040891, 040899 

90 Frozen potatoes 071010 

91 Frozen vegetables 071021, 071022, 071029, 071030, 071040, 071080, 071090 

92 Preserved vegetables 071110, 071120, 071130, 071140, 071151, 071159, 071190 

93 Dried vegetables 071210, 071220, 071230, 071231, 071232, 071233, 

071239, 071290 

94 Preserved fruits 081110, 081120, 081190, 081210, 081220, 081290, 081400 

95 Coffee and tea 090112, 090121, 090122, 090130, 090140, 090190, 

090210, 090230 

96 Cereals and starches 110100, 110210, 110220, 110230, 110290, 110311, 

110312, 110313, 110314, 110319, 110320, 110321, 

110329, 110411, 110412, 110419, 110421, 110422, 

110423, 110429, 110430, 110510, 110520, 110610, 

110620, 110630, 110811, 110812, 110813, 110814, 

110819, 110820, 110900, 121230 

97 Vegetable saps and extracts 130211, 130212, 130213, 130214, 130219, 130220, 

130231, 130232, 130239 

98 Processed sugar and confectionery 170230, 170240, 170250, 170260, 170290, 170410, 170490 

99 Cocoa products 180200, 180310, 180320, 180400, 180500, 180610, 

180620, 180631, 180632, 180690 

100 Infant formula 190110 

101 Mixes, doughs, breads, and pastries 190120, 190190, 190510, 190520, 190530, 190531, 

190532, 190540, 190590 

102 Pasta 190211, 190219, 190220, 190230, 190240, 190300 

103 Foods prepared from cereals, flour, 

and starches 190410, 190420, 190430, 190490 

104 Foods prepared from vegetables 200110, 200120, 200190, 200210, 200290, 200310, 

200320, 200390, 200410, 200490, 200510, 200520, 

200530, 200540, 200551, 200559, 200560, 200570, 

200580, 200590, 200591, 200599, 200600 

105 Foods prepared from fruits and nuts 200710, 200791, 200799, 200811, 200819, 200820, 

200830, 200840, 200850, 200860, 200870, 200880, 

200891, 200892, 200899 

106 Other fruit juices 200911, 200912, 200919, 200920, 200921, 200929, 

200930, 200931, 200939, 200940, 200941, 200949, 

200950, 200960, 200961, 200969, 200970, 200980, 200990 

107 Apple juice 200971, 200979 

108 Other prepared foods 210110, 210111, 210112, 210120, 210130, 210210, 

210220, 210230, 210310, 210320, 210330, 210390, 

210410, 210420, 210610, 210690, 220900 

109 Bran, sharps and other residues 230210, 230220, 230230, 230240, 230250, 230310, 

230320, 230800 

110 Pet food 230910, 230990 

111 Other food products 160210, 350210, 350211, 350219, 350220, 350510 

112 Water and non-alcoholic beverages 110710, 220110, 220190, 220210, 220290 

113 Wine 220410, 220421, 220429, 220430 

 
F-8

TABLE F.2 Food and agricultural products in the partial equilibrium model and the HTS 6-digit items contained in 

each product—Continued

Product 

no. Product name HTS6 codes 

114 Alcoholic beverages 110720, 220300, 220510, 220590, 220600, 220710, 

220720, 220810, 220820, 220830, 220840, 220850, 

220860, 220870, 220890, 230330, 230700 

115 Tobacco products 240210, 240220, 240290, 240310, 240391, 240399 

116 Raw silk 500200, 500300, 500310, 500390 

117 Processed wool 510121, 510129, 510130, 510310, 510320, 510330 

118 Cotton waste 520210, 520291, 520299, 520300 

119 Other plant based fibers 530121, 530129, 530130, 530290 

120 Plant materials 060410, 060491, 060499, 130110, 130120, 130190, 

140110, 140120, 140190, 140200, 140210, 140290, 

140291, 140299, 140300, 140410, 140490 

121 Chemically modified animal or 

 vegetable fats and oils 151800 

122 Glycerol 152000, 152010, 152090, 290545 

123 Mannitol and sorbitol 290543, 290544 

124 Essential citrus fruit oils 330111, 330112, 330113, 330114, 330119 

125 Other essential oils 330121, 330122, 330123, 330124, 330125, 330126, 

330129 

126 Resinoids 330130, 330190 

127 Albumins and mixtures 330210, 350290 

128 Gelatins 350300 

129 Peptones 350400 

130 Glues and finishing agents 350520, 380910 

131 Fatty acids and alcohols 151911, 151912, 151913, 151919, 151920, 151930, 

382310, 382311, 382312, 382313, 382319, 382320, 

382330, 382340, 382360, 382370, 382390, 382460 

Source: Compiled by Commission staff. 

Simulations Performed 

Three simulations were performed to estimate three sets of economic effects: 

(1) The effects of China’s tariffs on U.S. food and agricultural 

 exports to China and to the RoW were estimated by simulating 

 the effects of the absence of China’s applied tariffs (and tariff 

 equivalents of tariff-rate quotas (TRQs)) on food and agricultural 

 imports from all sources; 

(2) The effects of China’s nontariff measures (NTMs) on U.S. 

 food and agricultural exports to China and to the RoW were 

 estimated by simulating the effects of the absence of China’s 

 NTMs on food and agricultural imports from all sources; and 

(3) The effects of China’s preferential tariffs and TRQs 

 (negotiated under China’s FTAs) on U.S. food and agricultural 

 exports to China, to China’s FTA partners, and to the RoW were 

 estimated by simulating the effects of the full implementation of 

 China FTAs for all goods. The Chinese FTAs considered in this 
F-9

 simulation are those with Hong Kong, ASEAN,3 Chile, Pakistan, 

 New Zealand, Peru, and Costa Rica. 

A PE-GE simulation of, for example, the absence of China’s import tariffs consists of 

three steps. First, the absence of China’s food and agricultural tariffs is simulated using 

the PE model at the 131-product level (table F.2) to provide tariff shocks for the 23 

GTAP sectors (table F.1). Second, the absence of China’s food and agricultural tariffs is 

simulated using the GE model to obtain GE effects. Third, certain GE effects are 

incorporated into a second-round PE simulation of the absence of China’s food and 

agricultural tariffs at the 131-product level. 

To illustrate how a PE-GE simulation is generated, figure F.1 specifies supply, demand, 

and trade linkages for a theoretical GE product group that contains only two of the 139 

products in the PE model. In the figure, the world is divided into three regions: China, the 

United States, and the RoW. The quantities of total demand for the ith product group in 

China, QDi,China, and domestic supply, QOi,China, are exogenous in the PE model. In a firstround PE simulation of the absence of tariffs, the model simulates trade changes for each 

PE product under the restriction that demand and supply for the GE product group are not 

affected by the simulation. In a second-round PE simulation of the absence of tariffs, 

demand and supply for the GE product group are changed to reflect GE effects obtained 

from the GE simulation of the absence of tariffs.4

 Market-clearing conditions in the PE 

model ensure that supplies are equal to total demand for each of the 139 products 

identified in the model. 

Producers determine the optimal supply for PE products (QOi,1,China and QOi,2,China in 

figure F.1) by maximizing revenues subject to a constant elasticity of transformation 

(CET) production possibilities frontier with an elasticity of transformation, ETG.

5

 Optimal 

demand for PE products (QDi,1,China and QDi,2,China) is determined by minimizing 

expenditures subject to CES (constant elasticity of substitution) trade-offs with an 

elasticity of substitution, ESG.

6

 Optimal demand for the domestic varieties (QDSi,1,China) 

and total imports (QIMi,1,China) of the PE products are determined by a CES function with 

an elasticity of substitution, ESD. Finally, the quantities of PE products imported from the 

United States and the RoW (QXSi,1,USA,China and QXSi,1,RoW,China) are determined by a CES 

function with an elasticity of substitution, ESM. The PE model specifies that the domestic 

product is differentiated from imports, and consumers, whether final or intermediate, 

view imports of a particular product from a specific region as different from imports from 

all other regions. These two specifications constitute the Armington specification of 

product differentiation by country of origin.7

 3

 ASEAN (the Association of Southeast Asian Nations) is an economic organization of 10 countries: 

Brunei, Cambodia, Indonesia, Laos, Malaysia, Burma, the Philippines, Singapore, Thailand, and Vietnam. 

The GTAP database version 7 does not indentify Brunei because of the lack of certain economic statistics. 

Thus Brunei has not been included in either the GE model or the PE model in this report. 4

 Other works applying a PE-GE approach are Grant, Hertel, and Rutherford, “Extending General 

Equilibrium to the Tariff Line,” June 2007; Narayanan, Hertel, and Horridge, “A Nested PE/GE Model for 

GTAP,” June 2008; Jansson et al., “Getting the Best of Both Worlds?” June 2008; USITC, Global Beef Trade, 

September 2008; USITC, India: Effects of Tariffs and Nontariff Measures, November 2009. 5

 A CET production possibilities frontier is characterized by a constant percentage change in a productmix ratio to changes in the marginal rate of transformation. Powell and Gruen, “The Constant Elasticity of 

Transformation Production Frontier,” 1968, 315–28. 6

 A CES function is characterized by a constant percentage change in product proportions because of a 

percentage change in the marginal rate of technical substitution. Arrow et al., “Capital-Labor Substitution and 

Economic Efficiency,” 1961, 225–50. 7

 Armington, “A Theory of Demand for Products,” 1969, 159–76. 
F-10

FIGURE F.1 Partial equilibrium (PE) model and linkages to general equilibrium (GE) model: China’s 

supply, demand, and trade for a GE product group containing two hypothetical PE model products 

_ _ Source: Developed by Commission staff. 

QDi,China

QDi,2,China QDi,1,China 

QDSi,1,China QIMi,1,China 

QXSi,1,USA,China QXSi,1,RoW,China 

Demand for product no. 1 in China

Total imports of 

product no. 1 in China 

Exports of product no. 1 from China to 

the United States and to the rest of the 

world (RoW) 

Imports of product no. 1 in China from the United States and 

from the RoW 

ESM>0

ESD>0

QOi,China

QOi,2,China QOi,1,China 

ETG<0 

QXSi,1,China,USA 

Demand for ith product group in China (this variable is exogenous 

in the partial equilibrium model, but it is endogenous in the 

general equilibrium model) 

Domestic supply of product 

no. 1 in China

Demand for domestic 

product no. 1 in China 

Domestic supply of ith product group in China (this 

variable is exogenous in the partial equilibrium model 

but it is endogenous in the general equilibrium model) 

QXSi,1,China,RoW 

ESG>0 Demands for 

domestic and 

imported 

product no. 2 

are modeled 

in the same 

way as those 

for product 

no. 1 

Supplies to 

domestic and 

foreign 

markets for 

product no. 2 

are modeled in 

the same way 

as those for 

product no. 1 

Variable notation 

QO = supply; 

QD = demand; 

QDS = demand for domestic 

 variety; 

 QIM = demand for total 

 imports; 

QXS = bilateral trade.
F-11

Data for Partial Equilibrium Model 

The PE model requires certain statistics and economic parameters. The statistics are the 

dollar value of bilateral trade and demand for the domestic variety of a product and the 

corresponding bilateral import tariffs. Bilateral trade statistics were obtained from the 

United Nations Commodity Trade Statistics (UN Comtrade) database for 2009, the latest 

year at the time of this work, with complete and consistent statistics for China, the United 

States, and the other economies in the simulation framework.8

Statistics for demand for the domestic variety of a product are not currently available for 

the 131 food and agricultural products in the simulation framework. Thus, statistics from 

two sources were used to construct domestic demand statistics. The Food and Agriculture 

Organization of the United Nations (FAO) FAOSTAT databases provide 

export/production and import/demand shares for specific products and certain product 

groups. The GTAP database also provides these statistics for 23 GE product groups. 

Trade shares from the FAO and GTAP data were applied to the 131-product trade 

statistics to construct domestic supply and demand statistics.9

 

Applied ad valorem tariff equivalents were obtained from the United Nations Conference 

on Trade and Development (UNCTAD) Trade Analysis and Information System 

(TRAINS) data and the MAcMapHS6 data.10 China’s food and agricultural tariffs are 

current as of 2009. 

The elasticities ESG, ESD, ESM (figure F.1) are based on the GTAP database. Estimated 

values for ESM are shown in table F.3. Employing the “rule of two,” values for ESD and 

ESG are computed from ESM as follows: ESD = ESM/2 and ESG = ESD/2.11 Table F.3 also 

shows the values of ETG, the parameter determining the supply response at the PE 

product level (figure F.1). For most product groups, ETG is assigned the value –1. For 

product groups that may require relatively more resources and time to adjust to price 

changes, ETG is assigned the value -0.7. 

Model Limitations

Simulated effects from this PE-GE model are based on established U.S. export patterns 

which may exist for such reasons as the distance between countries and the presence or 

absence of transport infrastructure. These factors are imperfectly captured by the model. 

Furthermore, the model does not directly account for historical or cultural factors as 

determinants of trade patterns. The model assumes that these factors are unaffected by the 

economic policy changes. 

 8

 United Nations Commodity Trade Statistics Database, statistics downloaded from WITS (World 

Integrated Trade Solution) on July 1, 2010. 9

 FAO statistics for production, consumption, and trade for various products and product groups were 

downloaded from the FAOSTAT online database. 10 TRAINS statistics were downloaded from WITS on July 1, 2010. For documentation of the 

MAcMapHS6 database, see Boumellassa, Laborde, and Mitaritonna, “A Consistent Picture of the 

Protection,” 2009. 11 This rule was proposed by Jomini et al., The SALTER Model of the World Economy, 1994. Another 

study failed to reject this rule statistically. Lui, Arndt, and Hertel, “Parameter Estimation and Measures of 

Goodness of Fit,” 2004, 626–49. 
F-12

TABLE F.3 Values of partial equilibrium model parameters ESM and ETG

Product group ESM ETG

Paddy rice 10.1 -1.0 

Wheat 8.9 -1.0 

Cereal grains n.e.c. 2.6 -1.0 

Vegetables, fruit, nuts 3.7 -0.7 

Oil seeds 4.9 -1.0 

Sugarcane, sugar beet 5.4 -1.0 

Plant-based fibers 5.0 -1.0 

Crops n.e.c. 6.5 -0.7 

Cattle, sheep, goats, horses 4.0 -0.7 

Animal products n.e.c. 2.6 -0.7 

Wool, silkworm cocoons 12.9 -1.0 

Forestry 5.0 1.0 

Fishing 2.5 -1.0 

Meat: cattle, sheep, goats, horses 7.7 -1.0 

Meat product n.e.c. 8.8 -0.7 

Vegetable oils and fats 6.6 -1.0 

Dairy products 7.3 -0.7 

Processed rice 5.2 -1.0 

Sugar 5.4 -1.0 

Food products n.e.c. 4.0 -1.0 

Beverages and tobacco products 2.3 -0.7 

Textiles 7.5 -1.0 

Chemical, rubber, and plastic products 6.6 -1.0 

Source: Estimated values for ESM are from Hertel et al., “How Confident Can We Be of CGE-Based 

Assessments of Free Trade Agreements?” 2007. 

Note: The acronym n.e.c. means not elsewhere classified.

Economic models capture the most important factors for the question under 

consideration: existing trade flows and trade policies, and the degree of consumer 

demand sensitivity to price changes. However, economic models are limited in their 

ability to reflect the degree of complexity evident in the real world.12 Despite these 

limitations, the simulations performed here can be quite useful in providing insights on 

the effects of economic policies. The model presents a unified framework in which the 

likely effects of the policy can be assessed. 

Estimation of Price Gaps for Nontariff Measures 

Estimation of Nontariff Measure Price Gaps 

The quantification of NTMs using the method of price gaps, or “tariff equivalents,” has 

been frequently used in Commission studies on NTMs.13 The NTM analysis in this study 

estimates supplier-specific gaps in a way that allows for both quality differences and the 

possibility that the NTMs may have a greater or lesser impact on Chinese prices for 

 12 Examples of real-world complexities that are difficult to reflect in the model include the changing 

relative growth of different economies; politically motivated, export-oriented investment; relationships 

between multinational subsidiaries that influence trade patterns; and such events as catastrophic weather or 

violence, which are inherently unpredictable (at least in their details). 13 For the foundations of the method for estimating price gaps for NTMs at the Commission, see Linkins 

and Arce, “Estimating Tariff Equivalents of Non-Tariff Barriers,” August 2002. For further descriptions of 

the price-gap method, as well as literature reviews, see Deardorff and Stern, Measurement of Non-Tariff 

Barriers, 1998; Ferrantino, “Quantifying the Trade and Economic Effects of Nontariff Measures,” 

January 2006. 
F-13

imports from different sources.14 Price gaps in this study for products with known NTMs 

are presented in table F.4. Separate price gaps are estimated for Chinese imports from the 

United States and Chinese imports from the RoW, by comparing the price in China of an 

imported variety (i.e., a good from a particular source) with the price of that same variety 

in the world market.15 The effects of removing these tariff equivalents are then analyzed 

using the modeling framework described above. 

TABLE F.4 Known NTMs and estimated ad valorem equivalents (percent) 

 Estimated NTM price gap 

Product number Product description U.S. ROW

2 Wheat 119 61

5 Potatoes 6,658 1,720

26 Apples 45 0

31 Stone fruits 6 0

41 Cotton 24 4

61 Fresh beef n.a. n.a.

62 Frozen beef n.a. n.a.

63 Beef offal n.a. n.a.

65 Pork offal n.a. n.a.

68 Frozen pork n.a. n.a.

69 Preserved pork n.a. n.a.

70 Poultry 5 0 

Source: Commission staff calculation. 

Note: Products with non-applicable (n.a.) were analyzed with quantity gaps.

The estimation procedure uses unit values or “average prices” information from both 

bilateral and global trade statistics to estimate price gaps for all agricultural goods at the 

HS-6 subheading level. For U.S. goods, price gaps are estimated by comparing unit 

values obtained from Chinese imports from the U.S. on a cost-insurance-freight (c.i.f.) 

basis with unit values obtained from U.S. exports to the world on a free on board (f.o.b.) 

basis. These U.S. price gaps were then adjusted for transportation costs by subtracting 

transportation margins. These were obtained from the GTAP database and represent 

transportation margins for China’s imports from the U.S. at the GTAP sector level. 

Price gaps for Chinese imports of non-U.S. goods are estimated in a similar fashion for 

each non-U.S. supplier, by comparing Chinese c.i.f. unit values by supplier with the 

various suppliers’ f.o.b. unit values to the world. These non-U.S., supplier-specific gaps 

are then aggregated into a RoW price gap for each good. This aggregation uses quantities 

imported into China by supplier as weights, to adjust for systematic quality differences 

among different suppliers to the Chinese market. The RoW price gaps were adjusted for 

transportation costs by using transportation margin information on China’s imports from 

RoW, obtained from the GTAP database. 

 14 In general, it is not feasible to correct for all possible quality differences while estimating NTM price 

gaps because some of these differences are unobservable. Certain countries consistently export products at 

higher unit values than other countries, however, suggesting a quality difference, particularly for relatively 

homogeneous goods. The methods used in this study exploit the observed quality differences arising from 

differences in exporter-specific unit values. 15 This estimation procedure is similar to that used in a recent Commission study. See USITC, India: 

Effects of Tariff and Nontariff Measures, November 2009. 
F-14

Import and export statistics were taken from the UN Comtrade database.16 The analysis 

considered price data for three recent years (2006–08) to account for variable effects of 

NTMs under different market conditions. Either the median price gap for the three years 

or the most representative price gap out of these, based on available industry information, 

was used as the estimate. Price gap estimates at the HS-6 level were aggregated to the 

131 product categories used for the partial equilibrium model using a method that holds 

the implied NTM rents for the aggregate equal to the sum of implied NTM rents at the 

HS-6 level.17 Some HS-6 products that presented data difficulties were excluded.18

Negligible Trade and Quantity Gaps 

The NTM analysis considered the possibility that some measures might prohibit U.S. 

agricultural exports to China completely or almost completely over the period considered. 

For these products, beef being the most notable, obtaining a price of imports on which to 

base price gaps was infeasible or problematic. In these cases, quantity gaps were 

estimates. These gaps attempt to measure the discrepancy between observed trade and 

estimated trade flows in the absence of NTMs. 

To estimate the quantity gaps, the trade data for these goods were first adjusted to 

account for a significant amount of imports into mainland China, particularly from Hong 

Kong, not reflected in the data. The amount of trade redirected from Hong Kong into 

China was approximated by using Singaporean imports for these goods as a reference 

point. Both Chinese imports from the U.S. and Chinese imports from the RoW were 

revised for a more complete depiction of the market for imported goods. Both in 

themselves and according to other information gathered, these unreported imports are a 

reflection of existing import barriers for these goods in China. Using these revised data, a 

simulation was then run to obtain the effect of NTMs under the assumption that, in the 

absence of such measures, U.S. exports to China would represent the U.S. global share of 

these goods. The overall effects of NTMs are assessed by comparing these simulation 

results with the original trade data. 

 16 U.S. export statistics were compared with U.S. official data as reported on the Commission’s DataWeb 

system and revised as necessary. 17 This method uses the relation 

(reference export unit value)*(1 + transport margin + NTM price gap) = (reference import unit value). 

Thus, implied NTM rents = (NTM price gap/(1 + transport margin + NTM price gap))*(value of c.i.f. 

imports). 

The usual method of trade weighting yields unrealistic results in this case because, for price gaps 

exceeding 100 percent, the implied tariff revenues are larger than the value of c.i.f. imports and not a realistic 

estimate of the value of NTM rents, which must be a share of the value of imports. 18 These difficulties included, inter alia, nonstandard units of measurement and thinly traded products 

exported from small countries, for which a reference price could not be established. The standard unit of 

measurement for almost all agricultural products is the kilogram or the metric ton. Beverages are typically 

measured in liters. 
F-15

Bibliography 

Armington, P.S. “A Theory of Demand for Products Distinguished by Place of Production.” IMF Staff 

 Papers 16 (1969): 159–76. 

Arrow, K., H. Chenery, B. Minhas, and R. Solow. “Capital-labor Substitution and Economic Efficiency.” 

Review of Economics and Statistics 43 (1961): 225-250. 

Boumellassa, H., D. Laborde, and C. Mitaritonna. A Consistent Picture of the Protection across the 

 World in 2004: MAcMapHS6 version 2. IFPRI Discussion Paper 903, 2009. 

Deardorff, Alan V., and Robert M. Stern. Measurement of Non-Tariff Barriers. Ann Arbor: 

University of Michigan Press, 1998. 

FAOSTAT. http://faostat.fao.org/default.aspx (accessed July 1, 2010). 

Ferrantino, Michael. “Quantifying the Trade and Economic Effects of Nontariff Measure,” OECD. OECD 

 Trade Policy Working Paper No. 28, January 2006. 

Grant, J., T. Hertel, and T. Rutherford. “Extending General Equilibrium to the Tariff Line: U.S. Dairy in 

 the Doha Development Agenda.” Paper presented at the Tenth Annual Conference on Global 

 Economic Analysis, W. Lafayette, Indiana, June 2007. 

Hertel, T. W. (editor). Global Trade Analysis: Modeling and Applications, New York: Cambridge 

University Press, 1997. 

Hertel, T., D. Hummels, M. Ivanic, and R. Keeney. “How Confident Can We Be of CGE-based 

 Assessments of Free Trade Agreements?” Economic Modelling 24 (2007): 611–635. 

Jansson, T., M. Kuiper, M. Banse, T. Heckelei, and M. Adenaeuer. “Getting the Best of Both Worlds? 

 Linking CAPRI and GTAP for an Economywide Assessment of Agriculture.” Paper presented at 

 the Eleventh Annual Conference on Global Economic Analysis, Helsinki, June 2008. 

Jomini, P., R. McDougall, G. Watts, and P.S. Dee. The SALTER Model of the World Economy: Model 

 Structure, Database and Parameters. Canberra, Australia: Industry Commission, 1994. 

Linkins, Linda A., and Hugh M. Arce. “Estimating Tariff Equivalents of Non-Tariff Barriers.” USITC. 

Office of Economics Working Paper EC1994-06-A(4), June 1994, rev. August 2002. 

Liu, J., T.C. Arndt, and T.W. Hertel. “Parameter Estimation and Measures of Goodness of Fit in a Global 

 General Equilibrium Model.” Journal of Economic Integration 19, no. 3 (2004): 626–49. 

Narayanan, B., and T. Walmsley (eds.). Global Trade, Assistance, and Production: The GTAP 7 Data 

 Base. Center for Global Trade Analysis, Purdue University. 2008. 

Narayanan, B., T. Hertel, and M. Horridge. “A Nested PE/GE Model for GTAP: Simulating the 

 Disaggregated Impacts of Tariff-Liberalization on Automotive Industry in India.” Paper 

 presented at the Eleventh Annual Conference on Global Economic Analysis, Helsinki, June 2008. 

Powell, A., and F. Gruen. “The Constant Elasticity of Transformation Production Frontier and Linear 

 Supply System.” International Economic Review 9 (1968): 315–28. 
F-16

U.S. International Trade Commission (USITC). Global Beef Trade: Effects of Animal Health, Sanitary, 

Food Safety, and Other Measures on U.S. Beef Exports, USITC Publication 4033. Washington, 

DC: USITC, September 2008. 

———. India: Effects of Tariffs and Nontariff Measures on U.S. Agricultural Exports, USITC 

 Publication 4107. Washington, DC: USITC, November 2009. 

———. Interactive Tariff and Trade Dataweb (Dataweb). http://dataweb.usitc.gov (accessed various 

 dates). 

———. U.S.-Korea Free Trade Agreement: Potential Economy-wide and Selected Sectoral Effects. 

 USITC Publication 3949. Washington, DC: USITC, September 2007. 
APPENDIX G 

Simulated Effects of Chinese Tariffs and 

Free Trade Agreements: Tables

TABLE G.1 China: China’s tariffs, U.S. and Chinese trade statistics, and simulated effects on U.S. exports to China and Chinese imports from the world 

Chinese tariffs for agricultural products, 2009

Product 

2009 tradeweighted 

AVE on U.S. 

exports to 

China 

Actual 

2009 

U.S. 

exports 

to China 

Range of simulated change in 

U.S. exports to China absent 

Chinese tariffs 

2009 tradeweighted AVE 

on Chinese 

imports from 

World 

Actual 2009 

Chinese 

imports from 

the World 

Percent Million $ Million $ Percent Percent Million $ 

Rice, rough 68 0 0 0 0 0 68 5 Wheat 68 84 489 1,192 580 1,415 68 205 

Corn 46 4 1 4 33 100 46 20 

Other grains 2 0 0 0 0 0 1 450 

Potatoes 11 1 0 0 0 0 11 1 

Tomatoes 13 0 0 0 0 0 13 0 Onions 13 0 0 0 0 0 13 1 Cabbages 12 0 0 0 0 0 13 0 Lettuces 11 0 0 0 0 0 12 0 Carrots 13 0 0 0 0 0 13 0 Other vegetables 9 0 0 0 0 0 8 924 Dried peas 3 4 0 0 0 0 3 107 Chickpeas 4 0 0 0 0 0 4 0 Almonds 15 87 9 11 10 12 15 111 

Pistachios, walnuts 14 107 18 22 17 21 14 305 Coconuts and other nuts 22 27 10 13 38 48 18 147 Brazil nuts 10 0 0 0 0 0 10 2 

Cashews 19 0 0 0 0 0 17 99 

Chestnuts 26 0 0 0 0 0 26 18 Macadamia nuts 22 0 0 0 0 0 15 0 

Oranges 17 34 8 9 22 27 17 48 

Mandarins 18 6 2 2 25 31 18 11 Grapefruits and other citrus fruits 19 2 0 0 0 0 21 5 Lemons and limes 11 8 1 1 12 15 11 10 Grapes 18 59 13 16 22 28 18 189 Apples 14 19 3 4 17 21 14 54 Cherries 14 10 1 1 9 11 14 37 Strawberries 24 0 0 0 0 0 24 0 

Other berries 30 0 0 0 0 0 30 0 Other fresh and dried fruits 21 1 0 0 0 0 20 893 

Stone fruits 21 5 1 2 31 39 19 21 Melons 12 0 0 0 0 0 24 34 Pears 15 0 0 0 0 0 15 0 

G-3 
TABLE G.1 China: China’s tariffs, U.S. and Chinese trade statistics, and simulated effects on U.S. exports to China and Chinese imports from the world 

Chinese tariffs for agricultural products, 2009—Continued

Product 

2009 tradeweighted

AVE on U.S. 

exports to 

China

Actual 

2009 U.S. 

exports to

China

Range of simulated change in 

U.S. exports to China absent 

Chinese tariffs 

2009 tradeweighted AVE 

on Chinese 

imports from 

World 

Actual 2009 

Chinese 

imports from 

the World 

Percent Million $ Million $ Percent Percent Million $ 

Peaches 14 0 0 0 0 0 14 0 Soybeans 2 6,993 0 0 0 0 2 18,787 

Sunflower seeds 8 11 (7) 0 11 15 7 22 

Peanuts 8 3 1 2 0 0 9 6 Other oilseeds 7 3 0 0 0 0 5 486 

Rapeseed 7 0 0 0 0 0 5 1,385 Sugar beet and sugar cane 17 4 0 0 32 32 17 24 

Cotton 5 803 1 1 3 9 5 2,114 

Flax and hemp 6 0 28 71 0 0 6 0 Tobacco 16 104 0 0 19 22 16 742 

Flowers and plants 5 3 20 22 0 0 5 90 

Spices 15 0 0 0 0 0 13 60 

Seeds for planting and other plant parts 6 61 0 0 5 5 5 254 

Live cattle, sheep, goats and horses 0 0 3 3 0 0 2 80 Bovine semen 0 3 0 0 0 0 1 4 Other live animals 5 31 0 0 3 3 5 60 Eggs 18 0 1 1 0 0 18 1 Honey 17 0 0 0 0 0 17 5 

Bovine hides, other 7 646 0 0 4 4 8 1,398 

Sheep skins 8 10 24 26 0 0 8 257 Other hides and skins 12 18 0 0 7 9 12 110 

Mink furskins 18 15 1 2 10 12 18 193 Wool 1 10 1 2 0 0 1 1,337 

Silk worm cocoons and other animal fibers 9 0 0 0 0 0 9 43 

Fresh beef 19 0 0 0 0 0 19 8 

Frozen beef 19 0 0 0 0 0 19 37 Beef offal 14 0 0 0 0 0 14 9 Lamb and sheep meet 14 0 0 0 0 0 15 139 Pork offal 13 52 0 0 98 162 14 391 Goat and horse meat and other edible offal 8 0 51 84 0 0 8 211 

Fresh pork 20 0 0 0 0 0 20 0 

Frozen pork 14 23 0 0 52 52 14 137 

Preserved pork 26 0 12 12 0 0 26 1 

Poultry 13 796 358 363 45 46 13 985 

G-4 
TABLE G.1 China: China’s tariffs, U.S. and Chinese trade statistics, and simulated effects on U.S. exports to China and Chinese imports from the world 

Chinese tariffs for agricultural products, 2009—Continued

Product 

2009 tradeweighted

AVE on U.S. 

exports to 

China

Actual 

2009 U.S. 

exports to 

China

Range of simulated change in 

U.S. exports to China absent 

Chinese tariffs 

2009 tradeweighted AVE 

on Chinese 

imports from 

World

Actual 2009 

Chinese 

imports from 

the World

Percent Million $ Million $ Percent Percent Million $ 

Other meats and animal fats 7 4 0 1 0 13 9 42 Processed meats 16 1 1 1 73 86 16 3 

Soybean oil 42 30 3 3 10 11 42 1,842 Corn oil 10 0 0 0 0 0 10 1 

Cotton linters 4 14 (5) (4) (38) (32) 4 62 

Peanut oil 10 0 0 0 0 0 10 32 

Olive oil and other oilseed oils 19 11 (2) (2) (21) (16) 16 589 Palm oil 1 0 0 0 0 0 1 4,934 

Soybean meal 8 0 0 0 0 0 5 47 

Other oilseed meals 10 0 0 0 0 0 6 99 Milk and cream 13 13 2 2 12 15 14 604 

Yogurt 25 0 0 0 0 0 24 4 Whey 6 75 4 5 6 7 7 284 

Butter 23 0 0 0 0 0 23 66 

Cheese 20 7 1 2 18 23 20 70 Lactose and lactose syrup 10 19 2 2 9 12 10 34 Ice cream 24 0 0 0 0 0 24 16 Casein 10 0 0 0 0 0 10 15 Caseinates 10 0 0 0 0 0 10 28 Processed rices 68 0 0 0 0 0 68 196 

Sugar and molasses 0 0 0 0 0 0 0 378 Prepared eggs 22 0 0 0 0 0 22 0 Frozen potatoes 13 0 0 0 0 0 13 0 Frozen vegetables 11 11 2 2 19 19 11 13 

Preserved vegetables 13 0 0 0 0 0 13 2 Dried vegetables 13 1 0 0 0 0 13 4 Preserved fruits 30 2 1 1 59 62 30 71 Coffee and tea 19 7 2 3 35 37 18 25 Cereals and starches 18 5 2 2 48 51 12 294 Vegetable saps and extracts 14 18 4 4 23 24 14 102 Processed sugar and confectionary 28 5 4 4 84 89 17 63 Cocoa products 10 25 2 2 8 8 12 209 Infant formula 15 4 1 1 16 17 15 605 Mixes, doughs, breads and pastries 19 11 4 4 37 39 16 349 

G-5 
TABLE G.1 China: China’s tariffs, U.S. and Chinese trade statistics, and simulated effects on U.S. exports to China and Chinese imports from the world 

Chinese tariffs for agricultural products, 2009—Continued

Product 

2009 tradeweighted

AVE on U.S. 

exports to 

China

Actual 

2009 U.S. 

exports to 

China

Range of simulated change in 

U.S. exports to China absent 

Chinese tariffs 

2009 tradeweighted AVE 

on Chinese 

imports from 

World

Actual 2009 

Chinese 

imports from 

the World

Percent Million $ Million $ Percent Percent Million $ 

Pasta 18 2 1 1 36 38 18 25 Foods prepared from cereals, flour, starches 26 5 2 3 50 53 27 25 

Foods prepared from vegetables 16 39 10 11 26 27 18 62 Foods prepared from fruits and nuts 18 63 20 21 32 34 18 128 Other fruit juices 15 15 4 4 28 29 13 140 Apple juice 15 0 0 0 0 0 12 1 

Other prepared foods 18 94 25 26 27 27 21 469 

Bran, sharps and other residues 5 1 0 0 0 0 5 17 

Pet food and other feeds 8 100 14 14 14 14 7 241 

Other food products 11 32 5 5 15 15 12 181 Water and non-alcoholic beverages 27 4 1 1 24 32 24 59 Wine 25 25 3 4 12 15 26 457 Alcoholic beverages 29 137 32 43 24 31 28 737 Tobacco products 27 0 0 0 0 0 30 99 Raw silk 9 1 0 0 0 0 9 5 Processed wool 35 0 0 0 0 0 37 128 

Cotton waste 9 1 0 0 0 0 7 36 

Other plant based fibers 6 0 0 0 0 0 6 157 Plant materials 12 1 0 0 0 0 11 60 Chemically modified animal or veg. fats, oils 16 1 0 0 0 0 16 16 Glycerol 14 0 0 0 0 0 16 111 Mannitol and sorbitol 14 0 0 0 0 0 13 3 Essential citrus fruit oils 20 18 7 8 43 44 20 54 Other essential oils 18 10 7 7 67 69 18 44 Resinoids 20 3 2 2 67 69 20 14 Albumins and mixtures 22 46 26 27 56 58 22 149 Gelatins 13 2 1 1 45 46 13 7 Peptones 6 8 2 2 21 21 6 20 Glues and finishing agents 15 1 0 0 0 0 15 8 Fatty acids and alcohols 13 21 5 5 25 26 15 375  Total 6 10,942 1,251 2,090 11 19 9 47,986 

Source: Commission staff calculations with simulation frame work discussed in appendix F. 

Note: (1) AVE stands for ad valorem equivalent. (2) Parenthesis ( ) indicates a negative number. (3) A range of simulated effects was obtained by varying 

account for the degree of statistical uncertainty in the economic estimates of the elasticities. 

G-6 
TABLE G.2 China: China’s tariffs, U.S. and Chinese trade statistics, and simulated effects of the full implementation of China’s free trade agreements for agric

2009 trade-weighted 

AVE on Chinese 

imports from FTA 

partners 

Product 

2009 tradeweighted 

AVE on 

U.S. 

exports to 

China 

Actual 

2009 U.S. 

exports to 

China 

Range of simulated change in 

U.S. exports to China under full 

implementation of China's 

FTAs 

Before 

the FTAs 

After the 

FTAs 

Actual 2009 

Chinese 

imports 

from FTA 

partners 

Ac

Percent Million $ Million $ Percent Percent Million $ 

Rice 68 0 0 0 0 0 68 49 5 Wheat 68 84 (37) (1) (44) (1) 68 0 0 

Corn 46 4 (1) 0 (24) 0 46 22 15 

Other grains 2 0 0 0 0 0 1 0 4 

Potatoes 11 1 0 0 0 0 12 0 0 Tomatoes 13 0 0 0 0 0 13 0 0 Onions 13 0 0 0 0 0 13 0 0 Cabbages 12 0 0 0 0 0 12 0 0 Lettuces 11 0 0 0 0 0 12 0 0 Carrots 13 0 0 0 0 0 13 0 0 Other vegetables 9 0 0 0 0 0 8 0 900 

Dried peas 3 4 0 0 0 0 2 0 0 

Chickpeas 4 0 0 0 0 0 40 0 Almonds 15 87 0 0 0 0 15 1 0 Pistachios, walnuts 14 107 (1) 0 (1) 0 14 0 0 Coconuts and other nuts 22 27 (1) (1) (4) (3) 10 1 27 Brazil nuts 10 0 0 0 0 0 10 0 0 Cashews 19 0 0 0 0 0 17 0 99 

Chestnuts 26 0 0 0 0 0 26 0 0 

Macadamia nuts 22 0 0 0 0 0 14 0 0 Oranges 17 34 0 0 0 0 17 0 0 Mandarins 18 6 (1) 0 -8 0 18 0 3 

Grapefruits and other citrus fruits 19 2 0 0 0 0 22 0 2 Lemons and limes 11 8 0 0 0 0 11 0 0 

Grapes 18 59 (11) (9) (19) (15) 18 0 107 

Apples 14 19 (3) (2) (14) (11) 14 0 30 Cherries 14 10 (2) (2) (23) (19) 14 0 25 Strawberries 24 0 0 0 0 0 24 0 0 

Other berries 30 0 0 0 0 0 27 0 0 Other fresh and dried fruits 21 1 0 0 0 0 20 0 880 

Stone fruits 21 5 (1) (1) (23) (19) 18 0 15 Melons 12 0 0 0 0 0 24 0 34 Pears 15 0 0 0 0 0 15 1 0 

Peaches 14 0 0 0 0 0 14 0 0 

G-7 
TABLE G.2 China: China’s tariffs, U.S. and Chinese trade statistics, and simulated effects of the full implementation of China’s free trade agreements for agric

Continued

2009 trade-weighted 

AVE on Chinese 

imports from FTA 

partners 

Product 

2009 tradeweighted 

AVE on 

U.S. 

exports to 

China 

Actual 

2009 U.S. 

exports to 

China 

Range of simulated change in 

U.S. exports to China under full 

implementation of China's 

FTAs 

Before 

the FTAs 

After the 

FTAs 

Actual 2009 

Chinese 

imports 

from FTA 

partners 

Ac

Percent Million $ Million $ Percent Percent Million $ 

Soybeans 2 6,993 15 15 0 0 2 0 0 Sunflower seeds 8 11 0 0 0 0 8 0 4 

Peanuts 8 3 0 0 0 0 14 0 1 

Other oilseeds 7 3 0 0 0 0 5 0 45 

Rapeseed 7 0 0 0 0 0 7 0 0 Sugar beet and sugar cane 17 4 (1) (1) (15) (15) 17 0 20 

Cotton 5 803 18 26 2 3 5 0 20 

Flax and hemp 6 0 0 0 0 0 6 0 0 Tobacco 16 104 12 13 12 12 16 0 13 

Flowers and plants 5 3 0 0 0 0 8 0 27 Spices 15 0 0 0 0 0 12 0 41 Seeds for planting and other plant parts 6 61 (1) 0 (1) 0 5 0 50 Live cattle, sheep, goats and horses 0 0 0 0 0 0 0 0 17 

Bovine semen 0 3 0 0 0 0 5 0 0 Other live animals 5 31 0 0 0 0 6 0 15 Eggs 18 0 0 0 0 0 18 1 0 Honey 17 0 0 0 0 0 17 0 2 

Bovine hides, other 7 646 0 1 0 0 13 0 35 

Sheep skins 8 10 0 0 0 0 11 0 27 Other hides and skins 12 18 0 0 0 0 11 0 2 Mink furskins 18 15 0 0 0 0 18 1 0 Wool 1 10 0 0 0 0 1 0 101 Silk worm cocoons and other animal fibers 9 0 0 0 0 0 9 0 1 

Fresh beef 19 0 0 0 0 0 20 1 0 

Frozen beef 19 0 0 0 0 0 19 0 7 

Beef offal 14 0 0 0 0 0 14 0 1 Lamb and sheep meet 14 0 0 0 0 0 14 0 82 Pork offal 13 52 (1) 1 (3) 1 14 0 3 

Goat and horse meat and other edible offal 8 0 0 0 0 0 9 0 65 Fresh pork 20 0 0 0 0 0 20 0 0 Frozen pork 14 23 2 2 9 10 14 0 0 

Preserved pork 26 0 0 0 0 0 26 0 0 

Poultry 13 796 63 68 8 8 8 0 21 

Other meats and animal fats 7 4 0 0 0 0 12 0 0 

G-8 
TABLE G.2 China: China’s tariffs, U.S. and Chinese trade statistics, and simulated effects of the full implementation of China’s free trade agreements for agric

Continued

2009 trade-weighted 

AVE on Chinese 

imports from FTA 

partners 

Product 

2009 tradeweighted 

AVE on 

U.S. 

exports to 

China 

Actual 

2009 U.S. 

exports to 

China 

Range of simulated change in 

U.S. exports to China under full 

implementation of China's 

FTAs 

Before 

the FTAs 

After the 

FTAs 

Actual 2009 

Chinese 

imports 

from FTA 

partners 

Ac

Percent Million $ Million $ Percent Percent Million $ 

Processed meats 16 1 0 0 0 0 16 0 0 Soybean oil 42 30 0 0 0 0 42 0 0 

Corn oil 10 0 0 0 0 0 10 0 0 

Cotton linters 4 14 0 0 0 0 4 0 1 Peanut oil 10 0 0 0 0 0 10 0 0 Olive oil and other oilseed oils 19 11 (3) (2) (27) (22) 18 0 226 Palm oil 1 0 0 0 0 0 1 0 4,548 

Soybean meal 8 0 0 0 0 0 7 0 0 

Other oilseed meals 10 0 0 0 0 0 7 1 34 Milk and cream 13 13 (7) (6) (53) (45) 14 0 490 Yogurt 25 0 0 0 0 0 25 0 1 Whey 6 75 (12) (9) (15) (12) 11 0 10 

Butter 23 0 0 0 0 0 23 0 53 

Cheese 20 7 (4) (3) (54) (45) 20 0 32 Lactose and lactose syrup 10 19 (3) (3) (16) (13) 10 0 2 

Ice cream 24 0 0 0 0 0 24 0 1 

Casein 10 0 0 0 0 0 10 0 7 Caseinates 10 0 0 0 0 0 10 0 13 Processed rices 68 0 0 0 0 0 68 0 196 

Sugar and molasses 0 0 0 0 0 0 1 0 49 

Prepared eggs 22 0 0 0 0 0 22 0 0 Frozen potatoes 13 0 0 0 0 0 13 0 0 Frozen vegetables 11 11 0 0 0 0 13 0 0 Preserved vegetables 13 0 0 0 0 0 13 0 0 Dried vegetables 13 1 0 0 0 0 13 2 0 Preserved fruits 30 2 0 0 0 0 30 0 11 Coffee and tea 19 7 0 0 0 0 18 0 1 Cereals and starches 18 5 (1) (1) (17) (17) 12 0 254 Vegetable saps and extracts 14 18 (1) (1) (4) (3) 13 1 13 Processed sugar and confectionary 28 5 0 0 0 0 15 0 19 Cocoa products 10 25 (3) (3) (12) (11) 15 0 74 Infant formula 15 4 (1) (1) (25) (24) 15 0 477 Mixes, doughs, breads and pastries 19 11 (1) (1) (13) (12) 15 0 138 Pasta 18 2 0 0 0 0 18 0 7 

G-9 
TABLE G.2 China: China’s tariffs, U.S. and Chinese trade statistics, and simulated effects of the full implementation of China’s free trade agreements for agric

Continued

Trade-weighted AVE 

on Chinese imports 

from FTA partners 

Product 

2009 tradeweighted 

AVE on 

U.S. 

exports to 

China 

Actual 

2009 U.S. 

exports to 

China 

Range of simulated change in 

U.S. exports to China under full 

implementation of China's 

FTAs 

Before 

the FTAs 

After the 

FTAs 

Actual 2009 

Chinese 

imports 

from FTA 

partners 

Ac

Percent Million $ Million $ Percent Percent Million $ 

Foods prepared from cereals, flour, starches 26 5 (1) (1) (17) (16) 26 0 10 Foods prepared from vegetables 16 39 (1) (1) (4) (3) 25 0 4 

Foods prepared from fruits and nuts 18 63 (5) (5) (8) (7) 21 0 21 

Other fruit juices 15 15 0 0 0 0 20 0 8 

Apple juice 15 0 0 0 0 0 19 0 0 Other prepared foods 18 94 (8) (7) (8) (7) 21 0 81 

Bran, sharps and other residues 5 1 0 0 0 0 5 0 16 

Pet food and other feeds 8 100 (1) (1) (1) (1) 7 0 7 Other food products 11 32 (4) (4) (12) (11) 12 0 90 

Water and non-alcoholic beverages 27 4 0 0 0 0 25 0 5 

Wine 25 25 (1) (1) (4) (3) 28 0 63 Alcoholic beverages 29 137 2 4 2 3 29 0 3 Tobacco products 27 0 0 0 0 0 25 0 61 

Raw silk 9 1 0 0 0 0 9 1 0 

Processed wool 35 0 0 0 0 0 37 3 42 Cotton waste 9 1 0 0 0 0 9 0 24 

Other plant based fibers 6 0 0 0 0 0 6 0 0 

Plant materials 12 1 0 0 0 0 10 0 38 

Chemically modified animal or veg. fats, oils 16 1 0 0 0 0 16 0 6 Glycerol 14 0 0 0 0 0 16 0 71 Mannitol and sorbitol 14 0 0 0 0 0 14 0 0 

Essential citrus fruit oils 20 18 0 0 0 0 20 0 0 Other essential oils 18 10 (1) (1) (10) (10) 18 0 7 

Resinoids 20 3 0 0 0 0 20 0 1 

Albumins and mixtures 22 46 (3) (3) (7) (7) 22 0 13 

Gelatins 13 2 0 0 0 0 13 0 0 

Peptones 6 8 0 0 0 0 6 0 2 Glues and finishing agents 15 1 0 0 0 0 13 0 1 

Fatty acids and alcohols 13 21 (8) (8) (39) (38) 15 0 275  Total 6 10,942 (21) 48 0 0 10 0 10,253 

Source: Commission staff calculations with simulation framework discussed in appendix F. Notes: (1) AVE stands for ad valorem equivalent. (2) Parenthesis ( ) indicates a negative number. (3) A range of simulated effects was obtained by varying the 

for the degree of statistical uncertainty in the economic estimates of the elasticities. 

G-10