Ganadores y perdedores en el Acuerdo Chile/Unión Europea
Por Lucía Sepúlveda Ruiz
Chile Mejor sin TLC
Hay en el nuevo Acuerdo con la UE firmado el 8 de diciembre de 2022 por el gobierno de Boric algunos ajustes para “vestir de seda” el sistema de Resolución de Controversias y sus mecanismos. El reciclaje y las nuevas galas Made in Europe de ese sistema obsoleto se pueden revisar en el capítulo 10, Inversiones, del Acuerdo Marco de Modernización del Tratado Chile/Unión Europea junto al capítulo 31 y los anexos que son parte del Acuerdo Interino (o Acuerdo en Principio) firmado por ambos gobiernos. El empeño europeo para calmar la inquietud pública sobre el tema no logra ocultar que, en esencia, el mecanismo incorporado al nuevo Tratado Chile/UE presenta características muy similares al criticado Sistema de Resolución de Controversias (ISDS) del TPP11 y a los tratados bilaterales de inversión que ya existían con países de la Unión Europea. Al comparar el articulado que remplazará el acuerdo y los antiguos tratados bilaterales, se ve que asegura idénticas garantías para los inversionistas y agrega otras ventajas abriendo el sector de compras públicas y ampliando el de servicios, entre otros. Ello implica que el espacio que tendrán los gobiernos para llevar adelante políticas públicas que respondan a las demandas centrales de la población será prácticamente nulo ya que las reglas del juego así lo establecen. Sobre estos puntos destacamos que tempranamente, a horas de la firma del acuerdo político sobre el tratado, parlamentarios de Chle y la UE junto a organizaciones sociales chilenas y europeas expresaron su rechazo a esta negociación realizada a espaldas de los pueblos, considerando que era una muestra de neocolonialismo.
En el nuevo sistema, en forma permanente Chile (y su contraparte) deberán pagar en partes iguales, una suma considerable (correspondiente a honorarios fijados con estándares internacionales) para financiar ese sistema de resolución de controversias que utilizarán contra Chile los inversores cada vez que se consideren afectados en sus ganancias. Son fondos que saldrán del presupuesto público y en esto la asimetría será evidente, pues esa carga financiera anual no tendrá el mismo impacto en la UE que en Chile, país que además presume de ser “desarrollado” e integra la OCDE lo que jugará en su contra para un trato diferente.
Tal como en otros tratados de libre comercio, la redacción de los artículos es equívoca. Incluye frases de contenido democratizador y de respeto de la soberanía de los estados, pero en otros párrafos los relativiza, incorporando otros elementos, notas al pie y citas de anexos.
“La expropiación” indirecta y las medidas excesivas
El tratado se diferencia del Acuerdo anterior en que, entre otros temas, prohíbe la expropiación, salvo que haya pago en efectivo al valor del mercado. Al definir “expropiación”, se señala en el Acuerdo que no se consideran como expropiación indirecta las medidas aplicadas para lograr “objetivos públicos legítimos como la protección de la salud, los servicios sociales, la educación, la seguridad, el ambiente, incluido el cambio climático…. o la protección de la diversidad cultural”. Y luego la trampa: “Estas no constituirían expropiaciones indirectas “a menos que “el impacto de una medida o serie de medidas sea tan grave a la luz de su finalidad, que resulte manifiestamente excesivo”. (Anexo S/N Expropiación, Artículo 3). No hay referencia a ningún parámetro del monto de pérdida que pueda ser considerado excesivo. Una mirada optimista permite imaginar, por ejemplo, una eventual Empresa Nacional del Litio que resuelve disminuir la exportación de litio a la UE al comprobar la destrucción de los salares, que en rigor son humedales, y no minas como se está considerando en las negociaciones. La potencial medida buscaría detener la destrucción de todos los restantes salares, la biodiversidad y el daño a las respectivas comunidades. ¿Sería eso “excesivo” para el inversor europeo?
Uno de los principales puntos en común de este tratado con el Sistema de Resolución de Controversias conocido hasta ahora a través del TPP y tratados bilaterales de inversión, es que opera sólo en favor del inversor, sea un privado o una empresa estatal extranjera quien demande a Chile.
En tiempos de crisis ambiental global, este tratado “moderno” Chile/UE, sigue siendo imposible demandar por una causal asociada al daño ambiental y social y/o a la grave vulneración de los derechos humanos de las comunidades, así como a los derechos de la naturaleza, en megaproyectos de corporaciones transnacionales. Ni las organizaciones territoriales, ni los pueblos indígenas, ni los sindicatos, y ni siquiera el Estado pueden demandar por esta causal a los responsables. ¡Y se atreven a decir que es un tratado que respeta al medio ambiente!
Al igual que en el TPP, el fallo condenatorio emitido en este sistema obligará al país demandado, a pagar las costas del juicio (principio “el que pierde paga”).
Tribunal de Primera Instancia y Apelación
En este Acuerdo, el sistema de resolución de controversias tendrá carácter permanente y estará compuesto por un Tribunal de Primera Instancia y un Tribunal de Apelación. Es decir, se podrá apelar de los fallos emitidos en primera instancia. Sin embargo, los inversores seguirán saltándose los tribunales chilenos, al litigar de inmediato en paneles internacionales.
Los mecanismos incluyen una fase posible de Mediación, y si fracasa esa conciliación voluntaria, la demanda se deriva a un tribunal de Primer Instancia que emite un fallo apelable ante un Tribunal de Apelación. En todas estas fases de resolución de la controversia, el acceso público a la información queda limitado, ya que cualquiera de las partes puede declarar sus informes como de carácter confidencial.
El panel inicial de árbitros, que el acuerdo llama El Tribunal, está compuesto por 3 árbitros, que en el lenguaje del tratado son “jueces” (uno de Chile, uno de la UE y otro de un tercer país, que ejercerá como presidente). Pero también puede estar integrado sólo por el árbitro de un tercer país, si hay acuerdo en ello de las partes. Su sentencia puede ser apelada.
Este panel de apelación se elige de una lista de candidatos, nueve posibles “jueces” de los cuales tres serán nacionales de Chile, tres de estados europeos y tres de terceros países, remunerados con un salario mensual según lo decida el Comité de Asociación. Se les exige tener “calificaciones para ejercer como jueces” o ser juristas con experiencia en derecho internacional público, incluida la resolución de disputas comerciales. Su presidente y vicepresidente se elegirán por sorteo. La secretaría del CIADI, organismo de resolución de controversias dependiente del Banco Mundial, actuará como Secretaría del Tribunal de Apelaciones y los países lo financiarán.
El Tribunal de Apelación también será permanente y estará compuesto por otros seis miembros, dos de la UE, dos de Chile y dos de terceros países, con iguales requisitos que los miembros del Tribunal inicial. Funcionará con tres miembros, dos de las partes y uno de un tercer país. Sus miembros también tendrán un pago anticipado permanente y un pago por día de trabajo en cada caso.
La designación del presidente del panel (cuyo dirime los disensos) se hará por sorteo, de una lista especial de candidatos que no deben ser nacionales de ninguna de las partes involucradas.
El capítulo 10 incluye la idea de trabajar hacia la generación de un tribunal multilateral de inversiones y un mecanismo de resolución de controversias el cual, de aprobarse, dejaría sin efecto todo lo anterior.
Con este Acuerdo, Chile acepta algo que no incluía el tratado anterior: la prohibición de expropiar sin pago inmediato, y el principio de no discriminación o el trato justo y equitativo, términos de buena crianza que obligan a Chile a darle iguales oportunidades a un proveedor de la Unión Europea, que, por ejemplo, a una pyme de la región de Tarapacá. Los proveedores de servicios no podrán ser “discriminados” en comparación con los proveedores nacionales o los de terceros países. Eso incluye los servicios postales y de mensajería. Es decir, comunicaciones oficiales del gobierno podrían quedar en manos de empresas holandesas o francesas o de cualquier país europeo.
La única medida relevante de excepción (medida disconforme) a las normas generales de no discriminación planteada por Chile, es que se reserva el derecho a prohibir la participación de extranjeros en la gerencia y el directorio de empresas públicas actuales o futuras (Anexo XX, Sector Servicios Financieros, sección D, Medidas Futuras).
Como gran concesión, el tratado garantiza que los estados conservan el derecho a renacionalizar los servicios públicos críticos como la salud, la educación y el agua.
Panelistas con sistema “presidencial”
A los panelistas del sistema que operarán como árbitros, se les pide experiencia en derecho internacional. Concluimos por ello que serán abogados que han sido parte del sistema de ISDS, y ya han litigado en representación de las corporaciones. Además de tener el voto final decisivo, el presidente del panel tiene la última palabra cuando surge una moción para remover (sustituir) a un panelista por conflicto de interés o por no cumplir con el Código de Conducta que se les presenta a los candidatos al ser incorporados a alguno de estos listados. Es previsible que, dado el limitado universo de sujetos implicados, se produzca una defensa corporativa entre panelistas.
Las reglas del CIADI o instancias similares permanecen como opción posible para los procedimientos de las demandas de los inversores, lo cual marca otro punto en común con el TPP y los tratados bilaterales de inversión. El Acuerdo establece que el demandante puede elegir las reglas bajo las cuales se considerará su reclamo y los tratados a invocar.
Código de Conducta y conflictos de interés
A los panelistas no se les exige ser abogados; pero sí contar con “experiencia en derecho” y ser independientes, además de cumplir con el Código de Conducta, explicitado en el Anexo 31 A del Acuerdo en Principio Chile/UE. Ellos pueden ser removidos si se prueba que no cumplen con esos criterios, pero sólo con acuerdo del presidente del Panel de Primera Instancia, o del Tribunal de Apelación según el caso.
Los artículos referidos a la ética (no vinculantes) contienen Principios Rectores, Obligación previa de Develar Conflictos de Interés “financieros, profesionales laborales o familiares”, y deberes de Confidencialidad. Entre los principios rectores está ser independiente e imparcial, evitar los conflictos de interés directos o indirectos y “no estar influenciado por el interés propio, la presión externa, las consideraciones políticas, el clamor público y la lealtad a un partido o el miedo a la crítica”. Pero todo es relativo…Según el artículo 31.34 del Acuerdo Interino, el Consejo de Comercio, órgano del Tratado, tiene atribuciones para modificar el Código de Conducta del Anexo y las Reglas de Procedimiento. Quizás por eso el Anexo que contiene ese Código de Conducta no está incluido en el capítulo X como sí lo está el de Expropiación.
Por otra parte, no está normado el plazo para limitar los posibles conflictos de intereses antes y después de su nombramiento y el anexo delega en el propio candidato a panelista, la responsabilidad de declarar su conflicto de interés.
Secretismo
El artículo 31.19 del Acuerdo Interino señala que cualquier audiencia del panel estará abierta al público, pero luego se anula lo anterior: “a menos que se disponga lo contrario en el Anexo X Reglamento”. Las deliberaciones serán confidenciales, y los informes y decisiones quedan sujetos a la protección de información confidencial. Hay un artículo sobre Transparencia pero es mínimo: hacer pública la solicitud de consultas o de mediación, y la respuesta de la parte demandada, es decir los títulos. Todo lo demás está sujeto al resguardo de la información confidencial informada al tribunal.
La fase de Mediación, en caso de darse, se desarrollará en un plazo no superior a los 60 días.
En el artículo 10.50, el Acuerdo incluso da garantías adicionales a los inversores demandantes, ya que no se acepta que la parte demandada alegue que el demandante ya recibió una indemnización previa por un seguro o garantía por el mismo hecho reclamado.
El laudo (fallo) provisorio se dictará dentro de los 24 meses siguientes a la presentación de una demanda, y deberá incluir compensación monetaria con intereses, y si procede, la restitución de propiedad al inversor. No podrá otorgar otras medidas ni ordenar que se derogue, cese o modifique la medida objetada.
La apelación al fallo provisorio se resolverá no más allá de 180 días después de que se haya solicitado esa decisión al tribunal, con un máximo de 270 días de postergación.
El fallo o laudo final ratifica el fallo provisorio en su totalidad con su decisión final, pero también puede modificarlo en parte. Las conclusiones del panel de Apelación son vinculantes para la primera instancia del sistema. Su cumplimiento se rige por las reglas del CIADI.
Mediación y “enfriamiento regulatorio”
Todos los pasos de la mediación son confidenciales. Sólo se puede informar que hay una mediación en curso. Es relevante recordar que muchas veces la presión de las corporaciones transnacionales sobre los Estados genera que, durante el proceso, el Estado deroga la ley, medida o política pública objetada por la empresa, fenómeno conocido como enfriamiento o congelamiento regulatorio. Y en esta fase, para evitar la demanda, el Estado puede adoptar acuerdos que no conoceremos en absoluto por las citadas reglas.
Los gastos de los panelistas mediadores permanentes y sus equipos serán pagados por demandantes y demandados en partes iguales. Los honorarios del presidente del panel, los panelistas y sus asistentes se guiarán por los estándares de la OMC (Organización Mundial del Comercio). Si Chile es demandado, deberá defenderse en Bruselas, y si el demandado por una corporación o una empresa pública de Chile fuera una corporación de la UE, debería acudir a Santiago de Chile.
Nuevas garantías para la Unión Europea
El capítulo de inversión establece como regla, que se dé a la contraparte el trato nacional de las empresas establecidas localmente. La Unión Europea, en el resumen del Acuerdo Marco, se congratula de poder acceder con Trato Nacional a la Plataforma Mercado Público de Chile. Y dan sus razones: Mercado Público representó el 4,8% del PIB de Chile y el 17% del presupuesto del Estado en 2020, sin incluir las compras de empresas estatales ni las concesiones de obras.
A lo largo de estos capítulos de inversión y resolución de controversias, queda claro que se mantienen las mismas garantías incluidas en tratados como el TPP o en Tratados Bilaterales de inversión: trato nacional, amplia definición de inversión, expropiación indirecta, entre otros. Chile no podrá condicionar la inversión a la obtención de planes de transferencia de tecnología, o incluir porcentajes de contratación de mano de obra nacional (artículo 10.10.1). Como ha señalado reiteradamente el profesor José Gabriel Palma, estos tratados perpetúan la condición actual del país de proveedor de materia prima. Y los inversores continuarán eludiendo los sistemas legales nacionales por la vía de presentar estas demandas internacionales, como señala claramente el Articulo 10.15.6: “El hecho de que una medida infrinja la legislación de una Parte, no establece por sí mismo una infracción de este artículo (ver párrafos 1 a 4)”.
El Estado chileno, a través del gobierno del presidente Gabriel Boric, se está obligando con este tratado a ceder soberanía porque en adelante, en caso de demanda internacional por la reforma de la previsión, las ISAPRES, o sobre el royalty o el agua, tendrá que probar que esas medidas de interés público son “necesarias”, que cumplen objetivos “legítimos” y que no son “excesivas”. Deberá enfrentarse a una instancia presidida y manejada por algún abogado experto en ganar demandas de las transnacionales. Al respecto es relevante mencionar que aún está pendiente en el CIADI la demanda presentada por las compañías estatales francesas concesionarias del aeropuerto de Pudahuel, Aeroport de Paris y Vincent Airport las cuales acusan al Estado de Chile de afectar sus ganancias debido a las medidas de restricción de viajes adoptadas en pandemia. Esta demanda (omitida en la Cuenta Pública 20022/23 de la Subsecretaría de Relaciones Económicas Internacionales) se basa en las causales listadas en el tratado bilateral con Francia, presentes también en este nuevo acuerdo. Y el Estado acaba de comprometerse a pagar US$55 millones de dólares como resultado de la mediación con estos mismos inversores por otra demanda, relacionada con la expansión del aeropuerto, a cargo de los franceses. TNI (Transnational Institute) elaboró con este tipo de casos el reporte “Servicios Públicos en la Mira” sobre demandas de transnacionales por medidas de políticas públicas llevadas adelante por los gobiernos.
Quieren dinero
En los capítulos citados aquí, no existe una sola mención al hecho de que las sentencias (las llaman Laudos para asemejarse a La Haya) involucran elevadísimas compensaciones en dinero para el Estado que sea declarado culpable. Los europeos han escogido no poner límite financiero alguno al pago de las indemnizaciones exigidas, que pueden comprometer gravemente el presupuesto de nuestro país en caso de un resultado adverso e impedir que el presupuesto fortalezca el gasto en atender las demandas sociales. Y el gobierno de Boric, al firmar gozosamente el Acuerdo en Principio de la Modernización del tratado con la UE, se ha despreocupado de esta amenaza. Pero ello le rebota al instante, frente a cada política pública que intenta desafiar pálidamente al gran capital financiero internacional, como el anunciado (y no concretado) proyecto de reforma a las AFP, o el fallo de la Corte Suprema sobre cobros ilegales de las ISAPRE. Anteriormente hubo un anuncio de demandas de inversores suizos por el retiro del 10% de las rentas vitalicias. Asimismo, UnitedHealth Group, consorcio estadounidense que controla a la ISAPRE Banmédica, activó en enero de este año el mecanismo de resolución de controversias contemplado en el tratado bilateral de inversión Chile/Gran Bretaña.
Queda claro que la Unión Europea se ve altamente beneficiada con este Tratado y Chile sólo enfrentará riesgos. El Congreso chileno debe iniciar ya una información y discusión profunda sobre el tema, evitando que el ejecutivo le imponga de pronto el envío de este acuerdo para su aprobación o rechazo, con urgencia inmediata.
Lengua oficial y sometimiento
El secretismo oficial debe concluir. En una nueva muestra de sometimiento, la Subsecretaría de Relaciones Económicas Internacionales del Ministerio de Relaciones Exteriores sólo ha publicado en su web la versión en inglés del Acuerdo en Principio.Ante el requerimiento por transparencia realizado por esta periodista para contar con el texto del Acuerdo en castellano, la citada subsecretaría respondió el 19 de abril (oficio 404) que la lengua oficial de la negociación del acuerdo es el inglés, y el texto en español solo se publicará después de la firma que siga a una revisión legal del texto. Ello contrasta con la abundante publicidad dada en diciembre acerca de la firma del acuerdo.
La UE lo publicó de inmediato en inglés, una de sus 24 lenguas oficiales, dado «el creciente interés público en las negociaciones, y sólo para fines de información”. Pero el gobierno del presidente Boric no da muestras de respeto por el interés ciudadano y de los movimientos sociales, y al igual que los anteriores gobiernos, mantiene el hermetismo y la desinformación hasta el final. Buscan impedir que el necesario debate público cuente con el acceso a la información, los recursos y tiempos necesarios en asuntos de esta complejidad. Hemos comprobado que los parlamentarios carecen de información sobre el tema, aunque el gobierno sostiene que se votará a fines de este año.
Chile Mejor sin TLC inicia en junio una labor de análisis e información del Acuerdo y publicará las versiones no oficiales del Acuerdo Marco en español, para que tanto nuestras organizaciones integrantes como toda persona puedan ejercer el derecho a la información.
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