Análisis del capítulo sobre Energía y Materias Primas del Tratado Chile/Unión Europea
Por Patricio Véjar Mercado *
En este Capítulo (UE capítulo 8 Energía y materias primas FINAL PDF) , el objetivo declarado por Chile y la UE es promover el diálogo y la cooperación en los sectores de la energía y las materias primas en beneficio mutuo de las Partes, fomentar el comercio y la inversión sostenibles y justos, garantizando la igualdad de condiciones en esos sectores, y fortalecer la competitividad de las cadenas de valor relacionadas, incluida la adición de valor de conformidad con las disposiciones de este Acuerdo.
Sin embargo, las disposiciones contenidas en este artículo deben considerarse dentro de un conjunto de principios que le dan un carácter restrictivo a la implementación de políticas que impulsen un desarrollo con plena expresión de soberanía para Chile. Estos principios se constituyen en salvaguardias para el mayor desarrollo y competitividad de la Unión Europea frente a la débil y dependiente economía chilena. Estos principios son:
- Trato nacional que se define como trato no menos favorable que el trato más favorable otorgado en situaciones similares por ese nivel de gobierno a los inversionistas de Chile y a sus inversiones en su territorio, como está señalado en el Capítulo 10 del Acuerdo Marco Avanzado entre la Unión Europea y Chile.
- Trato de nación más favorecida que se define como la disposición de cada Parte para otorgar a los inversionistas de la otra Parte y a las empresas que constituyan inversiones cubiertas, trato no menos favorable que el trato que otorga a los inversionistas y sus empresas de cualquier país que no sea Parte con respecto al establecimiento de empresas en su territorio, como está señalado en el Capítulo 10 del Acuerdo Marco Avanzado entre la Unión Europea y Chile.
- La prohibición de establecer requisitos de desempeño que se refiere a demandar el cumplimiento de algún nivel o porcentaje a cualquier inversionista ya sea en importación, exportación, contenido nacional, transferencia de tecnología entre otras, como está señalado en el Capítulo 10 del Acuerdo Marco Avanzado entre la Unión Europea y Chile.
- La prohibición de expropiación directa o indirecta con excepciones y compensaciones efectivas, como está señalado en el Capítulo 10 del Acuerdo Marco Avanzado entre la Unión Europea y Chile. En este caso lo relevante es la utilización del concepto expropiación indirecta, la que se considera como todas las medidas adoptadas por un gobierno que perjudiquen la rentabilidad de una inversión. Un ejemplo de esto puede ser una reforma tributaria.
- La libre transferencia de capitales, como está señalado en el Capítulo 10 del Acuerdo Marco Avanzado entre la Unión Europea y Chile.
- La definición extendida de inversión como todo activo que un inversionista posee o controla directa o indirectamente, que tiene las características de una inversión, incluyendo una cierta duración, el compromiso de capital u otros recursos, la expectativa de ganancia o ganancia, o la asunción de riesgo, como está señalado en el Capítulo 10 del Acuerdo Marco Avanzado entre la Unión Europea y Chile. Esta definición de inversión hace tan oneroso el pago de indemnización que convierte en prohibitiva su aplicación.
- La obligación de trato justo y equitativo, como está señalado en el Capítulo 10 del Acuerdo Marco Avanzado entre la Unión Europea y Chile, es una disposición que favorece ampliamente a los inversores de la Unión Europea, en tanto invisibilizan la asimetría existente entre ambas Partes del tratado. En la práctica esta obligación de trato justo y equitativo impide la implementación de políticas en favor de pequeñas y medianas empresas chilenas quienes difícilmente puedan convertirse en inversores en la Unión Europea.
En el caso específico de este Capítulo 8 de Energía y Materias Primas, en los objetivos del capítulo señalados en el Artículo 8.1 el concepto “cadenas de valor relacionadas” se encuentra lejano de las características de una economía primaria extractivista cuya cadena de valor sólo está determinada por el valor de la extracción y está muy lejos de encontrarse en alguna relación de adición de valor con el conjunto de la economía. Esto ya nos indica que un tratado con principios como los señalados, beneficiará principalmente a la economía con amplias cadenas de valor relacionadas con una gran diversidad de adiciones de valor, como ocurre en las economías de gran parte de los países de la Unión Europea.
También en este capítulo, como en muchos otros, se reafirma el derecho de las Partes a regular dentro de sus respectivos territorios para lograr objetivos legítimos de política en el área de energía y materias primas. Este derecho de regular para lograr objetivos legítimos entra en conflicto con la definición de inversión y con la supremacía del capítulo de resolución de conflictos entre inversionista y estado, lo que en la práctica convierte el derecho a regular en una política difícil de implementar.
En el Artículo 8.5, Precios de Exportación, se señala que Chile podrá introducir o mantener medidas con el objetivo de fomentar el valor agregado, mediante el suministro de materias primas a precios preferenciales a sectores industriales para que puedan surgir dentro de Chile, siempre que dichas medidas cumplan con las condiciones establecidas en Anexo II de este Capítulo. En este Anexo, la condición establecida es: «no afectar negativamente la capacidad de la Unión Europea para obtener materias primas de Chile». Esta medida concedida como beneficiosa para Chile, sólo funcionará si se aplica a materias primas no requeridas por la Unión Europea. Como se puede deducir de la información pública disponible, el litio difícilmente se encontrará entre las materias primas disponibles para fomentar el valor agregado como señala el artículo. Además esto obstaculizará, por ejemplo, la posibilidad de desarrollar con China convenios ligados a precios preferentes a condición de transferencia de tecnología y en la generación de valor agregado para la explotación del litio o la producción del hidrógeno verde.
El anexo ya citado en este capítulo está detallado en una nota al pie que agrega las siguientes condicionantes: si la materia prima se suministra a ese precio preferencial a cualquier operador económico en cualquier otro país, se concederá de manera inmediata e incondicional a los operadores económicos en situaciones similares en la Unión Europea; y además “Chile compartirá con la UE información detallada y confiable sobre el alcance del producto, el volumen de producción que está cubierto por la medida, si se han realizado ventas internas a precios preferenciales y el precio interno que ha resultado de la medida.”
En este mismo acápite en cuanto a exclusiones de Precios de exportación, la nota al pie 2) menciona sólo a ENAP como una exclusión entre las empresas del Estado (capítulo 22 del Acuerdo Interino) es decir todo lo demás, incluyendo cobre, materias raras y litio y eventualmente la Empresa Nacional del Litio, deberían regirse por esta norma.
En el Artículo 8.6, Precios internos regulados (como el agua y la electricidad), señala que “según lo determinen las leyes y reglamentos internos de una Parte, cada Parte garantizará que el suministro de bienes energéticos se base en los principios del mercado”. Este párrafo inhibe la soberanía de las Partes para fomentar emprendimientos. Es claramente perjudicial para Chile dada la asimetría de las economías.
En el párrafo 3 de este mismo artículo se señala: “Una Parte solo podrá regular el precio cobrado por el suministro de bienes energéticos mediante la imposición de una obligación de servicio público”. Este párrafo se refiere a situaciones de excepcionalidad, como catástrofes naturales y podrá ser utilizado para ejercer presión para desregular bienes públicos como agua, electricidad, gas, etc.
Especial consideración merece el Artículo 8.8, Evaluación de impacto ambiental, dado que contiene sólo 3 párrafos de expresiones generales, no acordes con la importancia de la sustentabilidad requerida por la crisis medioambiental en curso. Y ciertamente no acordes con los discursos de sentida preocupación por las consecuencias del cambio climático que se escuchan profusamente entre las Partes negociadoras de este tratado. En este capítulo, la preocupación medioambiental está ausente.
En el Artículo 8.9, Acceso de terceros a la infraestructura de transporte de energía, se utiliza la expresión «objetivo de política legítimo» para salvaguardar el principio general de respeto por la soberanía de las Partes. Esta definición no se precisa y forma parte de un conjunto de expresiones no definidas en forma precisa que podrán ser utilizadas para generar controversias entre inversor y Estado. La experiencia indica que, con gran probabilidad, el Estado chileno no logrará probar ante el tribunal contemplado en este tratado, que lo movió un “objetivo de política legítimo”.
En el párrafo 4 del mismo artículo: “Una Parte que no aplique dichas normas con respecto a la infraestructura de gas se esforzará por hacerlo, en particular, con respecto al transporte de combustibles renovables, reconociendo las diferencias en la madurez y organización del mercado”. Este párrafo parece otorgar salvaguardia a la Unión Europea frente a la crisis de acceso al gas ruso como consecuencia de la guerra en Ucrania.
El Artículo 8.11, sobre Organismo independiente, establece que respecto del organismo que maneje el acceso a la red eléctrica, como «Organismo independiente» se debiera entender aquel, pretendidamente técnico, que no depende del gobierno de turno. Este tipo de entidades normalmente son un obstáculo para la implementación de políticas redistributivas. Al menos esa es la experiencia chilena y no se ve que este tratado esté apuntando en un camino diferente.
En el Artículo 8.12, Cooperación sobre Normas, se hace referencia a los obstáculos técnicos al comercio. La detección y eliminación de los obstáculos técnicos al comercio ha sido uno de los mecanismos utilizados para desregular los mercados cuando han existido regulaciones, o para impedir nuevas regulaciones frente a situaciones de mal funcionamiento de ellos. Este es un espacio de opacidad que requiere mayor transparencia.
Este artículo que habla de cooperación regulatoria, convergencia o armonización, enfoques conjuntos, normas comunes, promoción de estándares, interoperabilidad de redes, es una muestra más de la ausencia de criterios que consideren la asimetría de desarrollo existente entre ambas Partes y promuevan un avance de la Parte menos desarrollada. Difícilmente, Chile, una economía extractivista con una baja complejidad productiva, estaría en condiciones de satisfacer estándares como los señalados en este capítulo sin una profunda reconversión de su sistema productivo.
En el subpárrafo C del Párrafo 1 del Artículo 8.14, Cooperación en Energía y Materias Primas, se hace referencia a la promoción de conductas empresariales responsables. Referencias como esta han sido letra muerta en el pasado. Se requiere aquí la posibilidad de demandar responsabilidades a las conductas empresariales dañinas con el medio ambiente, los derechos humanos y los derechos laborales.
Como resultado de las siguientes disposiciones del capítulo 8.1 sobre la Transición Energética, el Estado de Chile se pone directamente al servicio de las necesidades de la UE y su plan de descarbonización.
Aquí, el capítulo sobre materias primas señala: Con respecto a los combustibles renovables, las Partes también cooperarán con miras a:
(a) identificar, reducir y eliminar, según corresponda, las medidas que puedan distorsionar los acuerdos bilaterales comerciales, incluidos los de carácter técnico, reglamentario y económico.
(b) fomentar el comercio bilateral facilitando iniciativas para promover la producción de hidrógeno renovable.
(c) promover el uso de combustibles renovables considerando su contribución a la reducción de emisiones de gases de efecto invernadero.”
En resumen, este capítulo presenta un claro beneficio para la Unión Europea en el acceso al mercado energético y de materias primas, asegurando precios y disponibilidad de los recursos, sin que se aprecien beneficios para Chile.
- El autor es analista de sistemas con estudios de ingeniería civil electrónica en la U Técnica F. Santa María. Activista de la memoria y los DDHH, miembro de la Comunidad Ecuménica Martin Luther King y el Observatorio por el Cierre de la Escuela de las Américas.
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