Chile Mejor sin TPP pide al Poder Judicial pronunciarse sobre el Tratado Transpacífico
La Plataforma considera necesario que este poder del Estado manifieste su posición sobre el TPP debido a la consecuencias que tendría en sus actuales atribuciones.
Destacando observaciones como las del experto Alfred de Zayas sobre el mecanismo de solución de controversias que impediría a los Estados signatarios ejercer la soberanía, ante la posibilidad de que las empresas transnacionales los demanden al ver afectadas sus inversiones.
La Plataforma Chile Mejor sin TPP solicitó al Poder Judicial de Chile el conocimiento de su posición respecto del Acuerdo Transpacífico (TPP), suscrito por la Presidenta Bachelet en febrero del presente año, cuyo envío al Congreso está a la espera de lo que suceda en Estados Unidos, tras el rechazo al TPP manifestado por el presidente electo de ese país, Donald Trump, que se suma a las acciones de organizaciones de la sociedad civil de los 12 países signatarios en contra de este tratado de libre comercio de “segunda generación”.
Al respecto la integrante de la Plataforma, Lucía Sepúlveda, afirmó que “es muy importante que la discusión que tenga lugar en ambas cámaras, cuente con la necesaria profundidad y a la vez es necesario que los legisladores consideren la opinión informada de todos los sectores de la sociedad, incluido el poder judicial. También los ciudadanos y ciudadanas tenemos el derecho a saber si los tribunales chilenos aconsejarán al Congreso rechazar o aprobar el TPP”.
La solicitud se basa en que en abril de este año, cuatro relatores de Derechos Humanos en Naciones Unidas y tres expertos internacionales hicieron notar a los gobiernos signatarios del tratado, su preocupación respecto de los impactos negativos en el acceso a medicamentos; el derecho a la ciencia y la cultura y las disposiciones de la propiedad intelectual , los derechos de los pueblos indígenas, el convenio Internacional UPOV 91 y el sistema de solución de controversias ISDS.
Lucía Sepúlveda recordó que “la respuesta de Chile y los restantes países a estas críticas, se limitó a citar las disposiciones del TPP en un intento fallido de demostrar que no están en contradicción con los derechos humanos. Hasta ahora, el Gobierno no ha propiciado una discusión pública de estos temas, continuando en la práctica con el secretismo que caracterizó los más de 7 años de negociación”.
“Por ello -agregó Sepúlveda- en esta oportunidad queremos detenernos en un aspecto que estimamos es el más relacionado con las competencias del poder judicial: el sistema de solución de controversias, ISDS por su sigla en inglés. Nos preguntamos hoy ¿Qué dicen la Corte Suprema y las Cortes de Apelaciones? ¿Van a aceptar que las corporaciones transnacionales que invierten en el país, ignoren la competencia del poder judicial chileno, recurriendo a tribunales internacionales sin que agoten las instancias nacionales?”
En su sesión de septiembre de este año, el Consejo de Derechos Humanos de Naciones Unidas recibió un detallado informe (ver http://www.ohchr.org/SP/Issues/IntOrder/Pages/Reports.aspx , 26 páginas más anexos) sobre el ISDS, aspecto relevado especialmente por su autor, Alfred de Zayas, experto en la promoción de un orden internacional democrático y equitativo.
El Consejo había encomendado a Alfred de Zayas la tarea de analizar la situación actual, a la luz de los tratados de libre comercio en discusión a nivel global. El Sistema de Solución de Controversias (capítulo 28) es uno de los aspectos que motivan el rechazo de vastos sectores, académicos y políticos a nivel mundial.
El ISDS es un “seudotribunal”
Alfred de Zayas, el experto convocado por Naciones Unidas, rechaza el ISDS (contenido en el TPP y en el TTIP) por considerar que es un sistema de jurisdicción unidireccional: sólo los inversores pueden demandar a los Estados y no viceversa. Lo considera un “seudotribunal” que carece de salvaguardas “como lo determinaron las asociaciones de jueces alemanes y españoles”[1]. Recuerda el experto que el sistema no impone obligación alguna a los inversores respecto del cumplimiento de las normas nacionales relativas al ambiente, laborales y otras. Asevera que el sistema permite que los inversores extranjeros eludan los tribunales nacionales con presentación de demandas internacionales.
Señala asimismo que debido a la amplia interpretación de los términos “inversión”, expropiación indirecta” o “expectativas legitimas de ganancia”, los inversores pueden demandar a los Estados aunque la legislación impugnada tenga que ver con el interés público. El sistema además invierte la carga de la prueba, haciendo que los Estados tengan que probar que su legislación social es “legítima” y no “excesiva”. Ello constituye una invitación a demandar al Estado si se adoptan leyes en resguardo de la salud y medio ambiente. El experto alude a continuación al efecto “freezing” o congelamiento regulatorio, que inhibe a los Estados a adoptar ese tipo de medidas para evitar ser demandados. Por otra parte, alega de Zayas, las víctimas no tienen capacidad jurídica para intervenir en las demandas, de tramitación secreta y fallos inapelables.
Para responder a la pregunta de por qué los Estados han aceptado anteriormente el ISDS, en tratados bilaterales de libre comercio –tal como ha hecho Chile – el experto independiente cita estudios académicos que sostienen que los gobiernos, posiblemente al suscribirlos desconocían los riesgos políticos y económicos implicados, y muchas veces negociaron sin contar con expertos de los ministerios de justicia u otros.
En su informe, de Zayas señala que a enero de 2016, a nivel internacional se habían registrado 696 casos de Resolución de Controversias que implicaban a 107 países. Agrega que en un 72%de los casos conocidos, el Estado demandado era una economía en desarrollo o en transición[2].
Según la UNCTAD los inversores ganaron el 60% de los casos; los Estados en caso de ser “absueltos”, recuperan una pequeña parte de los millones de dólares gastados en costas judiciales. Por ejemplo, relata, en el caso Yukos Universal Limited (petrolera de Luxemburgo) contra la Federación de Rusia, los abogados facturaron 74 millones de dólares, los 3 árbitros del tribunal facturaron 7,4 millones de dólares, los abogados ganaron 74 millones de dólares y el laudo ascendió a 50.000 millones de dólares. De aprobarse el TPP y el TTIP, sostiene, el número de demandas crecerá de forma masiva.
Afirma el experto que un mecanismo de protección de las inversiones no debe llevar a entregar una parte de la soberanía del Estado a los privados.
Tratados Internacionales y Derechos Humanos
En el marco de esas objeciones, señala que rechazar el TTP, al TTIP y el TISA “no tendrá consecuencias apocalípticas ni paralizará el comercio mundial, pero el comercio debiera en adelante beneficiar a toda la sociedad y no sólo a las empresas transnacionales”. Taxativamente asevera: “La asunción de funciones estatales por las empresas, subvierte el orden constitucional y hace imposible el cumplimiento de las obligaciones que emanan de los tratados de derechos humanos.” Alfred de Zayas establece que frente al TTP, los Estados deben analizar las obligaciones contraídas con tratados internacionales de derechos humanos, como el Pacto Internacional de Derechos Civiles y Políticos y el Pacto Internacional de Derechos Económicos, Sociales y Culturales , varios de cuyos artículos –citados en el informe- entran en abierta contradicción con las disposiciones del TPP, particularmente respecto de la no consulta a los pueblos indígenas, la participación y la libre expresión, y el secretismo con el que se negoció este tratado.
Recuerda luego de Zayas que no sólo las empresas necesitan protección. “Los gobiernos también necesitan protección contra los sobornos y la corrupción…las personas y los pueblos merecen protección y medios de defensa contra los abusos cometidos por las empresas, el acaparamiento de tierras y la explotación” y en ese sentido destaca los esfuerzos que realiza el Consejo de DDHH con el funcionamiento de un grupo de trabajo intergubernamental que busca elaborar un tratado para que los Principios Rectores sobre las Empresas y los Derechos Humanos sean vinculantes, y se emitan sentencias que sean jurídicamente vinculantes, como las de la Corte Interamericana de Derechos Humanos y las del Tribunal Europeo de Derechos Humanos.
El experto independiente hace suyas las consideraciones del Premio Nobel de Economía, Joseph Stiglitz, quien señaló que “las empresas están tratando de lograr con sigilo, mediante acuerdos comerciales negociados en secreto, lo que no podrían lograr en un proceso político abierto”, y “si tratáramos de imaginar un mecanismo de solución de controversias unidireccional que infringiera los principios más fundamentales, sería exactamente así”.
Recomendaciones a tribunales y otros
De Zayas concluye su informe con recomendaciones a los Estados, los parlamento s, los tribunales nacionales, la Corte Internacional de Justicia y otros, respecto del ISDS, señalando que los Estados no deberían concertar nuevos tratados sin evaluar primero sus efectos en los derechos humanos, la salud y el ambiente, y en lo posible, “deberían someterse a referendos” (plebiscitos). De especial interés para el caso chileno, donde el Estado ya opera en sentido contrario, son las recomendaciones formuladas al Congreso y a los tribunales.
“Ningún parlamento debería aprobar acuerdos comerciales sin ejercer funciones de supervisión y examinar su compatibilidad con las obligaciones dimanantes de los tratados de derechos humanos a la luz de las correspondientes evaluaciones de sus efectos.
Los parlamentos deberían prohibir a los negociadores de tratados convenir en períodos de inmutabilidad de los tratados de inversiones, claramente antidemocráticos. La inclusión de cláusulas adicionales a los proyectos de ley existentes sin que medie un debate democrático es inaceptable.
A fin de modificar los tratados comerciales y abolir la solución de controversias entre inversores y Estados, los parlamentos deberían invocar los procedimientos pertinentes de revisión y terminación establecidos en la Convención de Viena sobre el Derecho de los Tratados.”
En cuanto a los tribunales nacionales, las recomendaciones son las siguientes:
“Los tribunales nacionales solo deberían ejecutar los laudos arbitrales extranjeros una vez examinada su legitimidad a la luz de las obligaciones de los tratados de derechos humanos. Los laudos arbitrales que cercenen la capacidad de los Estados para adoptar sus propias políticas deberían rechazarse por ser contrarios al orden público nacional e internacional. La excepción relativa a las políticas públicas prevista en el artículo 5 de la Convención sobre el Reconocimiento y la Ejecución de las Sentencias Arbitrales Extranjeras (Convención de Nueva York) debería utilizarse sistemáticamente para impedir cualquier injerencia en las funciones fundamentales del Estado.”
Finalmente, Alfred de Zayas en su informe a Naciones Unidas incorpora un llamado a la Corte Internacional de Justicia de La Haya, a la cual recomienda “pronunciarse en las causas contenciosas que proceda o en una opinión consultiva sobre las obligaciones erga omnes de los Estados de respetar el régimen de tratados de derechos humanos. Ningún acuerdo comercial, solución de controversias entre inversores y Estados o sistema de tribunales de inversiones puede obstaculizar el cumplimiento de las obligaciones dimanantes de los tratados de derechos humanos. La cláusula de supremacía de la Carta de las Naciones Unidas (Art. 103) y principios generales del derecho como la buena fe, la prohibición de los tratados contra bonos mores y la prohibición del abuso de derecho, invalidan los acuerdos comerciales y los laudos arbitrales que no son compatibles con tales disposiciones”.
[1] En 2014 el juez John Roberts, de la Corte Suprema de Estados Unidos escribió en el fallo de minoría de la demanda del BG group contra Argentina: “Los tribunales arbitrales ISDS tienen el alarmante poder de revisar las leyes de un país y efectivamente anular las normativas emanadas de su congreso, del poder ejecutivo y judicial. Los tribunales pueden sesionar en cualquier lugar del mundo para enjuiciar los actos soberanos de una nación”.
[2] Algunos casos notables por estar involucrado el interés público son los de una demanda en Egipto en la que el Estado perdió y tuvo que ordenar una baja de los salarios. En El Salvador la demanda fue impuesta por la minera Pac Rim, subsidiaria de Ocean Gold de Canadá, cuando se le negó el permiso para un proyecto que contaminaría la más fuente de agua del país. Colombia actualmente fue demandada por negar permiso a un proyecto minero en la región andina. Uruguay fue demandado por Philips Morris por su legislación anti-tabaco.
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