[Senate Treaty Document 106-30]
[From the U.S. Government Publishing Office]



106th Congress 
 2d Session                      SENATE                     Treaty Doc.
                                                                 106-30
_______________________________________________________________________





 
                     INVESTMENT TREATY WITH JORDAN

                               __________

                                MESSAGE

                                  from

                   THE PRESIDENT OF THE UNITED STATES

                              transmitting

 TREATY BETWEEN THE GOVERNMENT OF THE UNITED STATES OF AMERICA AND THE 
     GOVERNMENT OF THE HASHEMITE KINGDOM OF JORDAN CONCERNING THE 
 ENCOURAGEMENT AND RECIPROCAL PROTECTION OF INVESTMENT, WITH ANNEX AND 
               PROTOCOL, SIGNED AT AMMAN ON JULY 2, 1997




 May 23, 2000.--Treaty was read the first time, and together with the 
accompanying papers, referred to the Committee on Foreign Relations and 
            ordered to be printed for the use of the Senate
                         LETTER OF TRANSMITTAL

                              ----------                              

                                     The White House, May 23, 2000.
To the Senate of the United States:
    With a view to receiving the advice and consent of the 
Senate to ratification, I transmit herewith the Treaty Between 
the Government of the United States of America and the 
Government of the Hashemite Kingdom of Jordan Concerning the 
Encouragement and Reciprocal Protection of Investment, with 
Annex and Protocol, signed at Amman on July 2, 1997, I transmit 
also, for the information of the Senate, the report of the 
Department of State with respect to this Treaty.
    The bilateral investment treaty (BIT) with Jordan was the 
second such treaty between the United States and a country in 
the Middle East. The Treaty will protect U.S. investment and 
assist Jordan in its efforts to develop its economy by creating 
conditions more favorable for U.S. private investment and thus 
strengthen the development of its private sector.
    The Treaty is fully consistent with U.S. policy toward 
international and domestic investment. A specific tenet of U.S. 
policy, reflected in this Treaty, is that U.S. investment 
abroad and foreign investment in the United States should 
receive national treatment. Under this Treaty, the Parties also 
agree to customary international law standards for 
expropriation. The Treaty includes detailed provisions 
regarding the computation and payment of prompt, adequate, and 
effective compensation for expropriation; free transfer of 
funds related to investments; freedom of investments from 
specified performance requirements; fair, equitable, and most-
favored-nation treatment; and the investor's freedom to choose 
to resolve disputes with the host government through 
international arbitration.
    In recommend that the Senate consider this Treaty as soon 
as possible, and give its advice and consent to ratification of 
the Treaty at an early date.

                                                William J. Clinton.
                          LETTER OF SUBMITTAL

                              ----------                              

                                       Department of State,
                                           Washington, May 1, 2000.
    The President: I have the honor to submit to you the Treaty 
Between the Government of the United States of America and the 
Government of the Hashemite Kingdom of Jordan Concerning the 
Encouragement and Reciprocal Protection of Investment, with 
Annex and Protocol, signed at Amman on July 2, 1997. I 
recommend that this Treaty, with Annex and Protocol, be 
transmitted to the Senate for its advice and consent to 
ratification.
    The bilateral investment treaty (BIT) with Jordan is the 
second such treaty signed between the United States and a 
country in the Middle East. The Treaty is based on the view 
that an open investment policy contributes to economic growth. 
This Treaty will assist Jordan in its efforts to develop its 
economy by creating conditions more favorable for U.S. private 
investment and thereby strengthening the development of its 
private sector. It is U.S. policy, however, to advise potential 
treaty partners during BIT negotiations that conclusion of such 
a treaty does not necessarily result in increases in private 
U.S. investment flows.
    To date, 31 BITs are in force for the United States--with 
Albania, Argentina, Armenia, Bangladesh, Bulgaria, Cameroon, 
the Republic of the Congo, the Democratic Republic of the Congo 
(formerly Zaire), the Czech Republic, Ecuador, Egypt, Estonia, 
Georgia, Grenada, Jamaica, Kazakhstan, Kyrgyzstan, Latvia, 
Moldova, Mongolia, Morocco, Panama, Poland, Romania, Senegal, 
Slovakia, Sri Lanka, Trinidad & Tobago, Tunisia, Turkey, and 
Ukraine. In addition to the Treaty with Jordan, the United 
States has signed, but not yet brought into force, BITs with 
Azerbaijan, Bahrain, Belarus, Bolivia, Croatia, El Salvador, 
Honduras, Lithuania, Mozambique, Nicaragua, Russia, and 
Uzbekistan.
    The Office of the United States Trade Representative and 
the Department of State jointly led this BIT negotiation, with 
assistance from the Departments of Commerce, Treasury, and 
Energy.


                         the u.s.-jordan treaty


    The Treaty with Jordan is based on the 1994 U.S. prototype 
BIT and satisfies the U.S. principal objectives in bilateral 
investment treaty negotiations:
          --All forms of U.S. investment in the territory of 
        Jordan are covered.
          --Covered investments receive the better of national 
        treatment or most-favored-nation (MFN) treatment both 
        while they are being established and thereafter, 
        subject to certain specified exceptions.
          --Specified performance requirements may not be 
        imposed upon or enforced against covered investments.
          --Expropriation is permitted only in accordance with 
        customary international law standards.
          --Parties are obligated to permit the transfer, in a 
        freely usable currency, of all funds related to a 
        covered investment, subject to exceptions for specified 
        purposes.
          --Investment disputes with the host government may be 
        brought by investors, or by their covered investments, 
        to binding international arbitration as an alternative 
        to domestic courts.
    These elements are further described in the following 
article-by-article analysis of the provisions of the Treaty:
Title and Preamble
    The Title and Preamble state the goals of the Treaty. 
Foremost in the encouragement and protection of investment. 
Other goals include economic cooperation on investment issues; 
the stimulation of economic development; higher living 
standards; promotion of respect for internationally-recognized 
worker rights; and maintenance of health, safety, and 
environmental measures. While the Preamble does not impose 
binding obligations, its statement of goals may assist in 
interpreting the Treaty and in defining the scope of Party-to-
Party consultations pursuant to Article VIII.

Article I (Definitions)

    Article I defines terms used throughout the Treaty.
            Company, Company of a Contracting Party
    The definition of ``company'' is broad, covering all types 
of legal entities constituted or organized under applicable 
law, and includes corporations, trusts, partnerships, sole 
proprietorships, branches, joint ventures, and associations. 
The definition explicitly covers not-for-profit entities, as 
well as entities that are owned or controlled by the state. 
``Company of a Contracting Party'' is defined as a company 
constituted or organized under the laws of that Contracting 
party (hereinafter, ``Party.'')
            National
    The Treaty defines ``national'' as a natural person who is 
a national of a Party under its own laws. Under U.S. law, the 
term ``national'' is broader than the term ``citizen.'' For 
example, a native of American Samoa is a national of the United 
States, but not a citizen.
            Investment, Covered Investment
    The Treaty's definition of investment is broad, recognizing 
that investment can take a wide variety of forms. Every kind of 
investment is specifically incorporated in the definition; 
moreover, it is explicitly noted that investment may consist or 
take the form of any of a number of interests, claims, and 
rights. The Treaty provides that any change in the form of an 
investment does not affect its character as an investment.
    The Treaty provides an illustrative list of the forms an 
investment may take. Establishing a subsidiary is a common way 
of making an investment. Other forms that an investment might 
take include equity and debt interests in a company; 
contractual rights; tangible, intangible, and intellectual 
property; and rights conferred pursuant to law, such as 
licenses and permits. Investments as defined by the Treaty 
generally excludes claims arising solely from trade 
transactions, such as a sale of goods across a border that does 
not otherwise involve an investment.
    The Treaty defines ``covered investment'' as an investment 
of a national or company of a Party in the territory of the 
other Party. An investment of a national or company is one that 
the national or company owns or controls, either directly or 
indirectly. Indirect ownership or control could be through 
other, intermediate companies or persons, including those of 
third countries. Control is not specifically defined in the 
Treaty; ownership of over 50 percent of the voting stock of a 
company would normally convey control, but in many cases the 
requirement could be satisfied by less than that proportion, or 
by other arrangements.
    The broad nature of the definitions of ``investment,'' 
``company,'' and ``company of a Contracting Party'' means that 
investments can be covered by the Treaty even if ultimate 
control lies with non-Party nationals. A Party may, however, 
deny the benefits of the Treaty in the limited circumstances 
described in Article XII.
            State Enterprise, Investment Authorization, Investment 
                    Agreement
    The Treaty defines ``state enterprise'' as a company owned, 
or controlled through ownership interests, by a Party. Purely 
regulatory control over a company does not qualify it as a 
state enterprise.
    The Treaty defines an ``investment authorization'' as an 
authorization granted by the foreign investment authority of a 
Party to a covered investment or a national or company of the 
other Party.
    The Treaty defines an ``investment agreement'' as a written 
agreement between the national authorities of a Party and a 
covered investment or a national or company of the other Party 
that (1) grants rights with respect to natural resources or 
other assets controlled by the national authorities and (2) the 
investment, national, or company relies upon in establishing or 
acquiring a covered investment. This definition thus excludes 
agreements with subnational authorities (including U.S. States) 
as well as agreements arising from various types of regulatory 
activities of the national government, including, in the tax 
area, rulings, closing agreements, and advance pricing 
agreements.
            ICSID Convention, Centre, UNCITRAL Arbitration Rules
    The ``ICSID Convention,'' ``Centre,'' and ``UNCITRAL 
Arbitration Rules'' are explicitly defined to make the text 
brief and clear.

Article II (Treatment and Protection of Investment)

    Article II contains the Treaty's major obligations with 
respect to the treatment of covered investments.
    Pargraph 1 generally ensures the better of national or MFN 
treatment in both the entry and post-entry phases of 
investment. It thus prohibits, outside of exceptions listed in 
the Annex, ``screening'' on the basis of nationality during the 
investment process, as well as nationality-based post-
establishment measures. For purposes of the Treaty, ``national 
treatment'' means treatment no less favorable than that which a 
Party accords, in like situations, to investments in its 
territory of its own nationals or companies. For purposes of 
the Treaty, ``MFN treatment'' means treatment no less favorable 
than that which a Party accords, in like situations, to 
investments in its territory of nationals or companies of a 
third country. The Treaty obliges each Party to provide 
whichever of national treatment or MFN treatment is the most 
favorable. This is defined by the Treaty as ``national and MFN 
treatment.'' Paragraph 1 explicitly states that the national 
and MFN treatment obligation will extend to state enterprises 
in their provision of goods and services to covered 
investments.
    Paragraph 2 states that each Party may adopt or maintain 
exceptions to the national and MFN treatment standard with 
respect to the sectors or matters specified in the Annex. 
Further restrictive measures are permitted in each sector. (The 
specific exceptions are discussed in the section entitled 
``Annex'' below.) In the Annex, Parties may take exceptions 
only to the obligation to provide national and MFN treatment; 
there are no sectoral exceptions to the rest of the Treaty's 
obligations. Finally, in adopting any exception under this 
provision, a Party may not require the divestment of a 
preexisting covered investment.
    Paragraph 2 also states that a Party is not required to 
extend to covered investments national and MFN treatment with 
respect to procedures provided for in multilateral agreements 
concluded under the auspices of the World Intellectual Property 
Organization relating to the acquisition or maintenance of 
intellectual property rights. This provision clarifies that 
certain procedural preferences granted under intellectual 
property conventions, such as the Patent Cooperation Treaty, 
fall outside the BIT. This exception parallels those in the 
Uruguay Round's Agreement on Trade-Related Aspects of 
Intellectual Property Rights (TRIPS) and the north American 
Free Trade Agreement (NAFTA).
    Pargraph 3 sets out a minimum standard of treatment based 
on standards found in customary international law. The 
obligations to accord ``fair and equitable treatment'' and 
``full protection and security'' are explicitly cited, as is 
each Party's obligation not to impair, through unreasonable and 
discriminatory means, the management, conduct, operation, and 
sale or other disposition of covered investments. The general 
reference to international law also implicitly incorporates 
other fundamental rules of customary international law 
regarding the treatment of foreign investment. However, this 
provision does not incorporate obligations based on other 
international agreements.
    Paragraph 4 requires that each Party provide effective 
means of asserting claims and enforcing rights with respect to 
covered investments.
    Pargraph 5 ensures the transparency of each Party's 
regulation of covered investments.

Article III (Expropriation and Compensation Therefor)

    Article III incorporates into the Treaty customary 
international law standards for expropriation. Article III also 
includes detailed provisions regarding the computation and 
payment of prompt, adequate, and effective compensation.
    Paragraph 1 describes the obligations of the Parties with 
respect to expropriation and nationalization of a covered 
investment. These obligations apply to both direct 
expropriation and indirect expropriation through measures 
``tantamount to expropriation or nationalization'' and thus 
apply to ``creeping expropriations''--a series of measures that 
effectively amounts to an expropriation of a covered investment 
without taking title.
    Paragraph 1 further bars all expropriations or 
rationalizations except those that are for a public purposes; 
carried out in a non-discriminatory manner; in accordance with 
due process of law; in accordance with the general principles 
of treatment provided in Article II(3); and subject to 
``prompt, adequate and effective compensation.''
    Paragraphs 2, 3, and 4 more fully describe the meaning of 
``prompt, adequate and effective compensation.'' The guiding 
principle is that the investor should be made whole.

Article IV (Compensation for Damages Due to War and Similar Events)

    Paragraph 1 entitles investments covered by the Treaty to 
national and MFN treatment with respect to any measure relating 
to losses suffered in a Party's territory owing to war or other 
armed conflict, civil disturbances, or similar events. 
Paragraph 2, by contract, creates an unconditional obligation 
to pay compensation for such losses when the losses result from 
requisitioning or from destruction not required by the 
necessary of the situation.

Article V (Transfers)

    Article V protects investors from certain government 
exchange controls that limit current and capital account 
transfers, as well as limits on inward transfers made by 
screening authorities and, in certain circumstances, limits on 
returns in kind.
    In paragraph 1, each Party agrees to ``permit all transfers 
relating to a covered investment to be made freely and without 
delay into and out of its territory.'' Paragraph 1 also 
provides a list of transfers that must be allowed. The list is 
non-exclusive, and is intended to protect flows to both 
affiliated and non-affiliated entities.
    Pargraph 2 provides that each Party must permit transfers 
to be made in a `freely unsable currency'' at the market rate 
of exchange prevailing on the date of transfer. ``Freely 
usable'' is a term by the International Monetary Fund; at 
present there are five ``freely usable'' currencies: the U.S. 
dollar, Japanese yen, German mark, French franc, and British 
pound sterling.
    In paragraph 3, each Party agrees to permit returns in kind 
to be made where such returns have been authorized by an 
investment authorization or written agreement between a Party 
and a covered investment or a national or company of the other 
Party.
    Paragraph 4 recognizes that, notwithstanding the 
obligations of paragraphs 1 through 3, a Party may prevent a 
transfer through the equitable, non-discriminatory, and good 
faith application of laws relating to bankruptcy, insolvency, 
or the protection of the rights of creditors; securities; 
criminal or penal offenses; or ensuring compliance with orders 
or judgments in adjudicatory proceedings.

Article VI (Performance Requirements)

    Article VI prohibits either Party from mandating or 
enforcing specified performance requirements as a condition for 
the establishment, acquisition, expansion, management, conduct, 
or operation of a covered investment. The list of prohibited 
requirements is exhaustive and covers domestic content 
requirements and domestic purchase preferences, the 
``balancing'' of imports or sales in relation to exports or 
foreign exchange earnings, requirements to export products or 
services, technology transfer requirements, and requirements 
relating to the conduct of research and development in the host 
country. Such requirements are major burdens on investors and 
impair their competitiveness.
    The last sentence of Article VI makes clear that a Party 
may, however, impose conditions for the receipt or continued 
receipt of benefits and incentives.

Article VII (Entry, Sojourn, and Employment of Aliens)

    Paragraph 1 requires each Party to allow, subject to its 
laws relating to the entry, sojourn, and employment of aliens, 
the entry into its territory of the other Party's nationals for 
certain purposes related to a covered investment and involving 
the commitment of a ``substantial amount of capital.'' This 
paragraph serves to render nationals of Jordan eligible for 
treaty-investor visas under U.S. immigration law. It also 
affords similar treatment for U.S. nationals entering Jordan. 
The requirement to commit a ``substantial amount of capital'' 
is intended to prevent abuse of treaty-investor status; it 
parallels the requirements of U.S. immigration law.
    The reference to employment laws in paragraph 1(a) was 
added at the request of Jordan to confirm the Parties 
understanding that employment laws of general applicability are 
not inherently inconsistent with the Treaty. This change does 
not modify the Parties obligations under paragraph 1(b), which 
prohibits labor certification requirements and numerical 
restrictions on the entry of treaty-investors.
    Paragraph 2 requires that each Party allow covered 
investments to engage top managerial personnel of their choice, 
regardless of nationality. This provision does not require that 
such personnel be granted entry into a Party's territory. Such 
persons must independently qualify for an appropriate visa for 
entry into the territory of the other party. Nor does this 
provision create an exception to U.S. equal employment 
opportunity laws.

Article VIII (Consultations)

    Article VIII provides for prompt consultation between the 
Parties, at either Party's request, on any matter relating to 
the interpretation or application of the Treaty or to the 
realization of the Treaty's objectives. A Party may thus 
request consultations for any matter reasonably related to the 
encouragement or protection of covered investment, whether or 
not a Party is alleging a violation of the Treaty.

Article IX (Settlement of Disputes Between One Contracting Party and a 
        National or Company of the Other Contracting Party)

    Article IX sets for the several means by which disputes 
brought against a Party by an investor (specifically, a 
national or company of the other Party) may be resolved.
    Article IX procedures apply to an ``investment dispute,'' 
which is any dispute arising out of or relating to an 
investment authorization, an investment agreement, or an 
alleged breach of rights conferred, created, or recognized by 
the Treaty with respect to a covered investment. The Treaty 
provides that the parties to the dispute should initially seek 
a resolution through consultation and negotiation.
    In the event that an investment dispute cannot be settled 
amicably, paragraph 2 gives an investor an exclusive (with the 
exception in paragraph 3(b) concerning injunctive relief, 
explained below) choice among three options to settle the 
dispute. These three options are: (1) submitting the dispute to 
the courts or administrative tribunals of the Party that is a 
party to the dispute; (2) invoking dispute-resolution 
procedures previously agreed upon by the national or company 
and the host country government; or (3) invoking the dispute-
resolution mechanisms identified in paragraph 3 of Article IX.
    Under paragraph 3(a), the investor can submit an investment 
dispute to binding arbitration 3 months after the dispute 
arises, provided that the investor has not submitted the claim 
to a court or administrative tribunal of the Party or invoked a 
dispute resolution procedure previously agreed upon. The 
investor may choose among the International Centre for 
Settlement of Investment Disputes (ICSID) (Convention 
Arbitration), the Additional Facility of ICSID (if Convention 
Arbitration is not available), ad hoc arbitration using the 
Arbitration Rules of the United Nations Commission on 
International Trade Law (UNCITRAL), or any other arbitral 
institution or rules agreed upon by both parties to the 
dispute.
    Before or during such arbitral proceedings, however, 
paragraph 3(b) provides that an investor may seek, without 
affecting its right to pursue arbitration under this Treaty, 
interim injunctive relief not involving the payment of damages 
from local courts or administrative tribunals of the Party that 
is a party to the dispute for the preservation of its rights 
and interests. This paragraph does not alter the power of the 
arbitral tribunals to recommend or order interim measures they 
may deem appropriate.
    Paragraph 4 constitutes each Party's consent to the 
submission of investment disputes to binding arbitration in 
accordance with the choice of the investor.
    Paragraph 5 provides that any non-ICSID Convention 
arbitration shall take place in a country that is a party to 
the United Nations Convention on the Recognition and 
Enforcement of Arbitral Awards. This provision facilitates 
enforcement of arbitral awards.
    In addition, in paragraph 6, each Party commits to 
enforcing arbitral awards rendered pursuant to this Article. 
The Federal Arbitration Act (9 U.S.C. 1 et seq.) satisfies the 
requirement for the enforcement of non-ICSID Convention awards 
in the United States. The Convention on the Settlement of 
Investment Disputes Act of 1966 (22 U.S.C. 1650-1650a) provides 
for the enforcement of ICSID Convention awards.
    Paragraph 7 ensures that a Party may not assert as a 
defense, or for any other reason, that the investor involved in 
the investment dispute has received or will receive 
reimbursement for the same damages under an insurance or 
guarantee contract.
    Paragraph 8 provides that, for the purposes of this 
article, the nationality of a company in the host country will 
be determined by ownership or control, rather than by place of 
incorporation. This provision allows a company that is a 
covered investment to bring a claim in its own name.

Article X (Settlement of Disputes Between the Contracting Parties)

    Article X provides for binding arbitration of disputes 
between the United States and Jordan concerning the 
interpretation or application of the Treaty that are not 
resolved through consultations or other diplomatic channels. 
The article specifies various procedural aspects of such 
arbitration proceedings, including time periods, selection of 
arbitrators, and distribution of arbitration costs between the 
Parties. The article constitutes each Party's prior consent to 
such arbitration.

Article XI (Preservation of Legal Rights)

    Article XI clarifies that the Treaty does not derogate from 
any obligation a Party might have to provide better treatment 
to the covered investment than is specified in the Treaty. 
Thus, the treaty establishes a floor for the treatment of 
covered investments. A covered investment may be entitled to 
more favorable treatment through domestic legislation, other 
international legal obligations, or a specific obligation 
(e.g., to provide a tax holiday) assumed by a Party with 
respect to that covered investment.

Article XII (Denial of Benefits)

    Article XII(a) preserves the right of each Party to deny 
the benefits of the Treaty to a company owned or controlled by 
nationals of a non-Party country with which the denying Party 
does not have normal economic relations, e.g., a country to 
which it is applying economic sanctions. For example, at this 
time the United States does not maintain normal economic 
relations with, among other countries, Cuba and Libya.
    Article XII(b) permits each Party to deny the benefits of 
the Treaty to a company of the other Party if the company is 
owned or controlled by non-Party nationals and if the company 
has no substantial business activities in the Party where it is 
established. thus, the United States could deny benefits to a 
company that is a subsidiary of a shell company organized under 
the laws of Jordan if controlled by nationals of a third 
country. However, this provision would not generally permit the 
United States to deny benefits to a company of Jordan that 
maintains its central administration or principal place of 
business in the territory of, or has a real and continuous link 
with, Jordan.

Article XIII (Taxation)

    Article XIII excludes tax matters generally from the 
coverage of the BIT, on the basis that tax matters should be 
dealt with in bilateral tax treaties. However, Article XIII 
does not preclude a national or company from bringing claims 
under Article IX that taxation provisions in an investment 
agreement or authorization have been violated. In addition, the 
dispute settlement provisions of Article IX and X apply to tax 
matters in relation to alleged violations of the BIT's 
expropriation article.
    Under paragraph 2, a national or company that asserts in a 
dispute that a tax matter involves expropriation may submit 
that dispute to arbitration pursuant to Article IX(3) only if 
(1) the investor has first referred to the competent tax 
authorities of both Parties the issue of whether the tax matter 
involves an expropriation, and (2) the tax authorities have not 
both determined, within 9 months from the time of referral, 
that the matter does not involve an expropriation. The 
``component tax authority'' of the United States is the 
Assistant Secretary of the Treasury for Tax Policy, who will 
make such a determination only after consultation with the 
Inter-Agency Staff Coordinating Group on Expropriations.

Article XIV (Measures Not Precluded by the Treaty)

    The first paragraph of Article XIV reserves the right of a 
Party to take measures for the fulfillment of its international 
obligations with respect to maintenance or restoration of 
international peace or security, as well as those measures it 
regards as necessary for the protection of its own essential 
security interests.
    International obligations with respect to maintenance or 
restoration of peace or security would include, for example, 
obligations arising out of Chapter VII of the United Nations 
Charter. Measures permitted by the provision on the protection 
of a Party's essential security interests would include 
security-related actions taken in time of war or national 
emergency. Actions not arising from a state of war or national 
emergency must have a clear and direct relationship to the 
essential security interests of the Party involved. Measures to 
protect a Party's essential security interests are self-judging 
in nature, although each Party would expect the provisions to 
be applied by the other in good faith.
    The second paragraph permits a Party to prescribe special 
formalities in connection with covered investments, provided 
that these formalities do not impair the substance of any 
Treaty rights. Such formalities could include reporting 
requirements for covered investments or for transfers of funds, 
or incorporation requirements.

Article XV (Application of the Treaty to Political Subdivisions and 
        State Enterprises of the Contracting Parties)

    Paragraph 1(a) makes clear that the obligation of the 
Treaty are applicable to all political subdivisions of the 
Parties, such as provincial, State, and local governments.
    Paragraph 1(b) recognizes that under the U.S. federal 
system, States of the United States may, in some instances, 
treat out-of-State residents and corporations in a different 
manner than they treat in-State residents and corporations. The 
Treaty provides that the national treatment commitment, with 
respect to the States, means treatment no less favorable than 
that provided by a State to U.S. out-of-State residents and 
corporations.
    Paragraph 2 extends a Party's obligations under the Treaty 
to its state enterprises in the exercise of any delegated 
governmental authority. This paragraph is designed to clarify 
that the exercise of governmental authority by a state 
enterprise must be consistent with a Party's obligations under 
the Treaty.

Article XVI (Entry Into Force, Duration, and Termination)

    Paragraph 1 stipulates that the Treaty enters into force 30 
days after exchange of instruments of ratification. The Treaty 
remains in force for a period of 10 years and continues in 
force thereafter unless terminated by either Party as provided 
in paragraph 2. Paragraph 2 permits a Party to terminate the 
Treaty at the end of the initial 10 year period, or at any 
later time, by giving 1 year's written notice to the other 
Party. Paragraph 1 also provides that the Treaty applies to 
covered investments existing at the time of entry into force as 
well as to those established or acquired thereafter. The Treaty 
does not state an intention by the Parties to apply the 
Treaty's provisions retroactively. Thus, under customary 
international law, the Treaty does not apply to disputes with 
respect to acts or facts which took place before the Treaty 
came into force or to any situation which ceased to exist 
before the date of entry into force of the Treaty.
    Paragraph 3 provides that, if the Treaty is terminated, all 
investments that qualified as covered investments on the date 
of termination (i.e., 1 year after the date of written notice 
of termination) continue to be protected under the Treaty for 
10 years from that date as long as these investments qualify as 
covered investments. A Party's obligations with respect to the 
establishment and acquisition of investments would lapse 
immediately upon the date of termination of the Treaty.
    Paragraph 4 stipulates that the Annex and Protocol shall 
form an integral part of the Treaty.

Annex

    U.S. bilateral investment treaties allow for exceptions to 
national and MFN treatment, where the Parties' domestic regimes 
do not afford national and MFN treatment, or where treatment in 
certain sectors or matters is negotiated in and governed by 
other agreements. Future derogations from the national 
treatment obligations of the Treaty are generally permitted 
only in the sectors or matters listed in the Annex, pursuant to 
Article II(2), and must be made on an MFS basis unless 
otherwise specified therein.
    Under a number of statutes, many of which have a long 
historical background, the U.S. federal government or States 
may not necessarily treat investments of nationals or companies 
of Jordan as they do U.S. investments or investments from a 
third country. Paragraphs 1 and 2 of the Annex list the sectors 
or matters subject to U.S. exceptions.
    The U.S. exceptions from its national treatment obligation 
are: atomic energy; customhouse brokers; licenses for 
broadcast, common carrier, or aeronautical radio stations; 
COMSAT; subsidies or grants, including government-supported 
loans, guarantees, and insurance; State and local measures 
exempt from Article 1102 of the North American Free Trade 
Agreement pursuant to Article 1108 thereof; and landing of 
submarine cables.
    The U.S. exceptions from its national and MFN treatment 
obligation are: fisheries; air and maritime transport, and 
related activities; banking, insurance, securities, and other 
financial services; and mineral leases on government land.
    Paragraph 3 of the Annex lists Jordan's exceptions from its 
national treatment obligation, which are: air transport; 
ownership of bus transport companies; ownership of construction 
contracting companies, but not including cross-border provision 
of construction services; small scale commerce with total 
invested capital of no more than US $50,000 (or its equivalent 
in national currency), as adjusted annually for the first five 
years that the treaty is in force by the annual percentage 
change in the GDP deflator of the United States of America; 
ownership of banks and insurance companies; ownership of 
companies engaged in telecommunications systems operations; but 
not including activities such as maintenance, equipment 
production, equipment and spare parts sales, or other 
telecommunications related services; extraction concessions for 
minerals, including oil, natural gas, and oil shale; farming 
(not including animal husbandry) on large tracts of land 
(greater than 500 acres or its equivalent in dunums); ownership 
of agricultural land; ownership of land in the Jordan valley; 
and ownership of land for non-business related purposes.
    Paragraph 3 also provides that Jordan will accord MFN 
treatment in the sectors and matters listed in Paragraph 3 of 
the Annex. Jordan takes no other exceptions from its national 
and MFN treatment obligation.
    Paragraph 4 of the Annex ensures that national treatment is 
granted by each Party in all leasing of pipeline rights-of-way 
on government lands. In so doing, this provision partially 
affects the implementation of the Mineral Lands Leasing Act 
(MLLA) (30 U.S.C. 181 et seq.) and 10 U.S.C. 7435, regarding 
Naval Petroleum Reserves, with respect to nationals and 
companies of Jordan. The Treaty provides for resort to binding 
international arbitration to resolve disputes, rather than 
denial of pipeline rights-of-way to investors of the other 
Party, as is the current process under the statute. U.S. 
domestic remedies, would, however, remains available for use in 
conjunction with the Treaty's provisions.
    The MLLA and 10 U.S.C. 7435 direct that a foreign investor 
be denied access to leases for minerals on on-shore federal 
lands, leases of land within the Naval Petroleum and Oil Shale 
Reserves, and rights-of-way for oil or gas pipelines across on-
shore federal lands, if U.S. investors are denied access to 
similar or like privileges in the foreign country.
    Jordan's extension of national treatment in pipeline 
rights-of-way will meet the objectives of the MLLA and 10 
U.S.C. 7435 concerning such rights-of-way. Jordan was informed 
during negotiations that, were it to include either the leasing 
of minerals or pipeline rights-of-way on Government lands in 
its list of treatment exemptions, the United States would 
(consistent with the MLLA and 10 U.S.C. 7435) exclude the 
corresponding sector from the national and MFN treatment 
obligations of this Treaty. Accordingly, Jordan's inclusion in 
its national treatment exceptions of mineral leases led the 
U.S. to exclude mineral leases from its national and MFN 
treatment obligations, while Jordan's decision not to include 
pipeline rights-of-way led to the Parties' agreement to accord 
national treatment to covered investments in that sector.
    The listing of a sector or matter in the Annex does not 
necessarily signify that domestic laws have entirely reserved 
it for nationals. And, pursuant to Article II(2), any 
additional restrictions or limitations that a Party may adopt 
with respect to listed sectors or matters may not compel the 
divestiture of existing covered investments.
    Finally, listing a sector or matter in the Annex exempts a 
Party only from the obligation to accord national or MFN 
treatment. Both Parties are obligated to accord to covered 
investments in all sectors--even those listed in the Annex--all 
other rights conferred by the Treaty.

Protocol

    Paragraph 1 of the Protocol confirms the Parties mutual 
understanding that either Party may require approvals or impose 
formal requirements in connection with a change in the form of 
an investment, as contemplated by Article 1(d), provided that 
such approvals or formal requirements are otherwise consistent 
with the Treaty. A Party may, for example, require the filing 
of Articles of Incorporation as a condition of a change of an 
investment to a corporate form.
    Paragraph 2 of the Protocol clarifies that the term 
``without delay'' as used in Article III(2) does not 
necessarily mean instantaneous. The intent is that the Party 
diligently and expeditiously carry out necessary formalities.
    The other U.S. Government agencies that participated in 
negotiating the Treaty join me in recommending that it be 
transmitted to the Senate at an early date.
    Respectfully submitted.
                                                Madeleine Albright.


