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TPP-11 y nueva Constitución

  • Por Carlos Pérez Soto
  1. Chile entero se ha dado la gran tarea de construir una nueva Constitución. Cientos de cabildos barriales, organizaciones sociales, ONG, sindicatos y confederaciones se han volcado en una gran escuela de educación cívica, ampliamente participativa y democrática. Miles de chilenos han empezado a discutir sobre todos los aspectos en que la miseria del modelo neoliberal ha precarizado la vida, hipotecado el futuro de las nuevas generaciones, empobrecido la tierra. Nuestros fondos de pensiones, nuestros recursos naturales, las condiciones laborales, las relaciones de género, nuestra convivencia con los pueblos originarios. En el contexto del “despertar de Chile” todas las reivindicaciones particulares se centran en esta gran demanda de una nueva carta magna. Sin embargo, es crucial preguntarnos si es cierto que una nueva Constitución nos permitiría empezar a desmontar el modelo y, más precisamente, de qué modos podría hacerlo.

El asunto se vuelve clave cuando constatamos que las Constituciones de los países ya no son la instancia jurídica más alta que ordena las vidas de los ciudadanos. Estamos rodeados, se podría decir incluso cercados, por una amplia y creciente red de instituciones y compromisos trasnacionales, algunos con un peso y poder de decisión muy por sobre el poder y la dignidad de la soberanía nacional.

  1. Hay muchas instituciones y compromisos que suelen defender y proteger cuestiones fundamentales para los pueblos. El mejor ejemplo son los pactos de derechos humanos, como por ejemplo*: 

– Pacto Internacional de Derechos Económicos, Sociales y Culturales (F, 1966, R, 1976);

– Pacto Internacional de Derechos Civiles y Políticos (F, 1966, R, 1976);

– Convención sobre la Eliminación de Todas las Formas de Discriminación contra la Mujer (F, 1979, R, 1981);

Convención contra la tortura y otros tratos o penas crueles, inhumanas o degradantes (F, 1984, R, 1987);

– Convención sobre los Derechos del Niño (F, 1989, R, 2002);

– Convención Internacional sobre los Derechos de las Personas con Discapacidad (F, 2006, R, 2008).

* (formulado en, F; ratificado y en vigor desde, R)

Existe también un creciente número de convenciones y organismos destinados a regular, resguardar, garantizar y resolver controversias en materias económicas. Entre ellos:

– la Convención de Nueva York de 1958;

– la Comisión de las Naciones Unidas para el derecho mercantil internacional de 1966 (UNCITRAL);

– la Convención Interamericana sobre arbitraje comercial internacional de 1975 (Convención de Panamá);

– el Tratado de Libre Comercio de América del Norte (TLC), al que Chile completó su adhesión en 2004;

– el Centro Internacional de Arreglo de Diferencias Relativas a Inversiones (CIADI), dependiente del Banco Mundial, creado en 1966,

– en general, los llamados “Tratados de Libre Comercio”, regidos la mayoría de las veces por las reglas de la Organización Mundial de Comercio (OMC).

La primera diferencia entre ambos grupos es que unos tratan de amparar, resguardar, proteger y garantizar Derechos Humanos y los otros, solo intercambios económicos. La segunda consiste en que, curiosamente, en el mundo actual el poder de acción de las instituciones internacionales que protegen Derechos Humanos es sustantivamente inferior al que tienen los que resguardan intereses económicos. Mientras los primeros rara vez logran incidir efectivamente sobre las políticas internas de un país, pues su capacidad no pasa de formular recomendaciones o sentencias débilmente vinculantes, los segundos poseen poderosos mecanismos de presión que van desde el aislamiento comercial, al bloqueo económico, pasando por las calificaciones de riesgo ante la banca trasnacional, e incluso la recomendación de intervenciones extranjeras directas sobre el territorio o los bienes de un país.

  1. Hasta julio de 2019, Chile ha suscrito 29 acuerdos comerciales y tratados de libre comercio con 65 países y áreas económicas. La mitad han sido acordados y han entrado en vigor solo en los últimos diez años. Todos han sido establecidos durante los últimos treinta años, es decir, bajo gobiernos democráticos. Todos ellos siguen las normas y directivas generadas en la Organización Mundial de Comercio, y están, en general, sometidos a los mecanismos de arbitraje del Grupo Banco Mundial, en particular el CIADI.

Todos y cada uno de estos tratados comprometen diversos aspectos de la soberanía nacional que van desde las relaciones con los pueblos originarios, las políticas de protección medioambiental, las políticas de defensa de los recursos naturales y de la manufactura nacional hasta los derechos digitales, la autonomía cultural, la circulación libre del saber.

Se trata de acuerdos que comprometen a los Estados a permitir y respaldar, e incluso a proteger y garantizar la propiedad y la operación de las grandes empresas trasnacionales, y a respaldar a los agentes financieros que operan en el mercado financiero internacional.

Ninguno de estos acuerdos, que obligan y comprometen a los Estados ante instancias supra nacionales y que subordinan sus políticas internas al gran capital trasnacional han sido discutidas ampliamente, con pleno acceso de la opinión pública, en ninguno de los países que los firman y ratifican. Las conversaciones que los establecen ocurren siempre entre “equipos técnicos”, las ratificaciones por los parlamentos nacionales ocurren examinando el texto principal y casi nunca los anexos, frecuentemente más vinculantes y sustantivos. Los gobiernos tramitan su aprobación y ratificación parlamentaria con insólita rapidez. Los miles de páginas que acompañan a cada acuerdo se convierten en una amplia y densa capa de disposiciones que solo unos pocos “expertos” en cada país conocen, pero que son completamente conocidas, dominadas e invocadas, una a una, y de manera feroz, por las empresas trasnacionales.

Se trata de acuerdos vinculantes que afectan de manera profunda y cotidiana la vida de las personas, aprobados a espaldas de las grandes mayorías de cada país por la clase política de turno, con una sorprendente unanimidad entre las “centro izquierdas” y las “centro derechas” y el aplauso entusiasmado de las derechas neoliberales en todo el mundo.

  1. Hay tres aspectos cruciales para el desmontaje del modelo neoliberal en Chile, que están completamente amarrados por la trama de Acuerdos de Libre Comercio. Uno es el de las garantías estatales que se exigen para compensar los vaivenes especulativos de la banca privada. Otro es el de las garantías que establecen para las inversiones trasnacionales en recursos naturales. Un tercero son las garantías y compromisos establecidos en torno al libre acceso privado a la administración de los fondos de pensiones. Para decirlo de manera más directa: endeudamiento externo, el cobre y el litio y los fondos depositados en las AFP.

Por sobre todas las reivindicaciones particulares de cada sector, muchas veces dramáticas y urgentes, estos tres asuntos determinan prácticamente todas las posibilidades que tenemos de revertir la desigualdad y el desarrollo empobrecedor determinado por la entrega de nuestras riquezas a la avidez del capital trasnacional.

Se trata de ámbitos en que el poder de la política establecida ha operado de manera absolutamente abusiva, directamente en contra del interés nacional, encubierto apenas por ideologismos que se nos presentan como soluciones “técnicas” o como caminos sin alternativa.

En estos tres ámbitos, la nueva Constitución debe ser particularmente clara y firme e inaugurar un camino de recuperación de la soberanía y la dignidad nacional, y de las riquezas que pueden sustentarla. Debe hacer posible la derogación de las concesiones mineras, hacer posible la construcción de un sistema de pensiones solidario, cuyos fondos estén al servicio tanto de generar pensiones dignas como del desarrollo nacional, revertir el creciente endeudamiento externo público, y los compromisos que nos obligan a respaldar el endeudamiento financiero internacional de los bancos privados.

  1. Un resguardo mínimo, y urgente, es que la Asamblea Constituyente tenga el poder de derogar, anular o desahuciar, cualquier compromiso, tratado, concesión, endeudamiento externo, que las autoridades del Estado contraigan en el período que va desde dos años antes de su establecimiento hasta que sea promulgada la nueva Constitución. 

Se trata de un poder elemental reconocido plenamente por el derecho constitucional. Un poder que es inseparable de la que se considera la máxima instancia institucional y jurídica de un país. Inseparable de lo que todos los tratadistas llaman “el poder constituyente” detentado por quienes redactan la norma fundamental de un país. Un poder y derecho cuya usurpación o negación implicaría un vicio de legitimidad y de origen del nuevo orden constitucional.

Se trata de un resguardo elemental, ante una clase política que seguirá gobernando normalmente durante el período de redacción de la nueva Constitución, y que ha mostrado sobradamente que es capaz de endeudar al país sin un cálculo económico racional, de comprometer jurídicamente al país ante instancias trasnacionales con sorprendente rapidez, y completamente en contra y a espaldas de los intereses y la soberanía nacional.

  1. La nueva Constitución debe establecer un marco que permita formular un principio y una doctrina jurídica internacional de largo alcance: los pueblos no están obligados a pagar por los compromisos contraídos por gobiernos corruptos.

No será posible derogar las concesiones mineras, mantener la soberanía sobre los fondos previsionales acumulados, revertir el endeudamiento público externo contraído con fines corruptos, si no afirmamos ante el mundo nuestro derecho soberano a disponer de las riquezas que nos pertenecen, si no recuperamos las riquezas que nos han quitado con la complicidad activa y dolosa de nuestros propios “representantes”.

Necesitamos inaugurar una doctrina jurídica internacional como la formulada en 1971 por don Eduardo Novoa Monreal a propósito de la nacionalización del cobre, durante el gobierno de Salvador Allende. La propiedad de la gran minería del cobre volvió a Chile, pagando indemnizaciones equivalentes al valor de libro que las compañías trasnacionales declaraban, y descontando las ganancias excesivas obtenidas durante su explotación.

Los gobiernos de Eduardo Frei Ruiz Tagle y de Ricardo Lagos Escobar comprometieron concesiones bajo una ley minera que las hace prácticamente inderogables, y que ha sido reafirmada una y otra vez por los Tratados de Libre Comercio hasta convertirla en una obligación ante instancias trasnacionales que favorecen netamente el interés privado por sobre el de los pueblos y Estados. Esas concesiones, solo en la gran minería del cobre, han permitido que entre 2005 y 2014 las diez mayores empresas privadas se hayan llevado de Chile 114.000 millones de dólares en renta regalada, es decir, neta, descontados todos los costos de inversión y los impuestos. Más de 11.000 millones de dólares anuales provenientes de una riqueza no renovable, que se han esfumado, solo por la decisión de los políticos de turno. Un daño patrimonial tan desmesurado que merece ser considerado como producto de una acción política corrupta y dolosa. 

Esta doctrina jurídica internacional puede llevarse a la práctica contando con el consenso de los países cercanos y amigos víctimas del mismo mal. Su implementación es, en principio, simple: derogar cada año el 10% de las concesiones mineras; pagar por ellas una indemnización de la que se descuenten las ganancias abusivas y excesivas que han obtenido; desahuciar todos los tratados internacionales que nos impidan ejercer ese acto soberano.

No estamos obligados a seguir pagando las consecuencias de las acciones de gobiernos corruptos. No estamos obligados a seguir reconociendo como inamovibles los compromisos internacionales que los avalan, protegen y garantizan. El TPP11 es uno más de esos compromisos, aún estamos a tiempo de impedirlo.

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  • CONFIDENCIALIDAD TTP-11, EL EJE SIN ESCRÚPULOS DE UN TLC
    En esta columna de opinión quisiera referirme sobre los Tribunales de Arbitraje Internacional que figuran en las clausulas de los Tratados de Libre Comercio (TLC), tema controvertido y muy perjudicial para la sociedad en su conjunto. No obstante, al paso de contextualizar esta materia surgen las voces de los ‘expertos’: economistas, hombres de negocios, políticos profesionales de gobierno y de oposición (las élites) y, cómo no, de su corte: los medios oficiales de comunicación, servidumbre vocera de aquellos y que exhiben razones tan claras a favor de estas materias cuanto mayor y oscuro es su vínculo irrestricto e irreflexivo sobre las premisas básicas de la economía neoliberal mundial y chilena.
    Pues bien, los apologistas chilenos sostienen que la única vía de desarrollo de un país es la inversión extranjera, a la vez que echan al saco del olvido su represión histórica en contra el desarrollo de la industria nacional, historia plagada de trampas, extorsiones, traiciones, sangre y leyes en contra de artesanos, pequeños industriales y trabajadores. No será esta columna la que exhume esa historia aún por reivindicar, sino el llamado de atención a la sociedad chilena ante una expoliación más a manos de la élite mercantil financiera chilena ya señalada, en convivencia con corporaciones multimillonarias a través de la inocuidad de los llamados Tratados de Libre Comercio, como el actual TPP-11, aún por tramitar.
    Pues bien, en el contexto de esta materia existe la creencia y pre-condición de que un país alcanza el desarrollo, sí accede a la inversión extranjera. En pocas palabras el razonamiento es como sigue: 1. Para desarrollarse se necesita crecer. 2. Para crecer, se necesita inversión extranjera directa. En conclusión, 3. Para atraer a los inversionistas se necesita proteger a los inversores mediante la firma de acuerdos de inversión. Como usted verá, Ciudadano esclarecido, se trata de un argumento no válido. En efecto, la reflexión mas pueril no da por verdad la conclusión. Su conclusión es falsa porque simplemente contiene un término ambiguo, oscuro que ahora, en el curso de esta columna, exhibiremos.
    Como se observa el término ‘proteger’ contiene no sólo un significado oscuro, sino que explicita una lógica tan difusa como inescrupulosa. Por ejemplo, ¿‘proteger’, significa salvaguardar los intereses particulares (entre inversores y las elites que pactan) en perjuicio de la sociedad en su conjunto? Sí. Efectivamente. Ciudadano, usted sépalo ya.
    Los acuerdos internacionales de libre comercio (TLC) generan la posibilidad de arbitraje en caso de conflicto entre los inversores y un estado en particular; en especial, se trata de cláusulas donde se acuerda que debe existir la posibilidad de designar un Tribunal de Arbitraje Internacional que, precisamente, zanje una controversia comercial de acuerdo al interés convenido entre las partes involucradas (Corporaciones internacionales multimillonarias con ministerios de un Estado, por lo general, tercer mundista y en vías de desarrollo, como Chile). En lo anterior no hay engaño y responde a la lógica básica que, conforme al derecho, debe operar en cualquier transacción: sí una parte se siente defraudada, entonces debe existir la instancia que arbitre la vulneración presunta de un derecho. Hasta aquí, como se dice, «nada nuevo bajo el sol»: en particular, si un Estado impugna, es decir, niega un derecho presente en un contrato, entonces un consorcio tiene la facultad de demandar al Estado a través de un Tribunal de Arbitraje internacional. Pues bien aquí cabe preguntar hartas cosas que trataremos de desmenuzar y exponer con claridad. 1. ¿Qué tipo de entidad son los Tribunales Internacionales de Arbitraje? 2.¿Cómo se organizan? 3. ¿Cómo operan? y, finalmente, 4. ¿A qué intereses sirven?.
    1.Los Tribunales Internacionales de Arbitraje son formados por jueces que en realidad son abogados de derecho económico contratados por una corporación privada; se trata de abogados pagados por empresas multimillonarias que operan con staffs exclusivos de profesionales. 2. Los tribunales se conforman en tríadas de jueces (abogados seleccionados Ad hoc), por ejemplo: un actor principal arbitra otro hace de defensor del estado y uno tercero, hace las veces de defensor de los inversionistas. Como se observa se trata de un ejercicio multifuncional de roles, donde un actor puede ser designado como defensor de una parte o árbitro. Luego, se está en presencia de un ejercicio que vulnera tanto un principio como un derecho. En efecto, la multifuncionalidad de roles es contraria a la independencia judicial, principio que, a su vez, resguarda el derecho de un afectado a ser tratado con igualdad y de forma imparcial ante la ley. Conforme a los acuerdos, los Tribunales de Arbitraje asignan a los Estados todos los deberes y obligaciones y, a las corporaciones todos los derechos y protección.
    3. Además de impartir sentencias parciales, los Tribunales Internacionales de Arbitraje tienen un modus operandi particular. En primer lugar, tanto en la gestación de un TLC (entre inversores con el ministerio de un Estado o a través del Senado) como en el subsecuente laudo arbitral de un Tribunal privado de arbitraje todo se amasa entre «gallos y media noche». Todo se conviene en la más estricta confidencialidad, tanto así que, por ejemplo, ante los requerimientos de información, por parte de un Tribunal (sea la Corte Suprema o la Corte de Apelaciones de una región), por lo general prima el derecho de confidencialidad, situación que obstaculiza cualquier instrucción del ministerio público (fiscales). Esto tiene su quid en interés de las partes: Ni el inversor ni el Estado, personado en un ministerio o en el poder legislativo (Senadores), trasparentan lo convenido. Esto tiene su lógica, pues si ambas partes cooperan en el silencio, entonces es muy ventajoso llegar a un acuerdo y devengar posibles beneficios pactados. En este preciso momento cabe no olvidar que cualquier TLC tiene una complejidad mayor que la manifiesta a través de un ministerio en cuestión. Así, p.ej., un acuerdo con el ministerio del trabajo tiene hondas repercusiones en cultura, medio ambiente, derechos humanos y no sólo con el trabajo. Por ello y en favor de la trasparencia es de vital importancia que los conflictos entre un Estado con los inversores no deban ser llevados en un arbitraje de derecho privado, sino ante un tribunal público, en interés de la opinión pública y, ante todo, en defensa del bien público de un país. En segundo lugar, luego del principio de confidencialidad expuesto, el modus operandi del laudo arbitral privado de un TLC revela su más terrible cara contra el interés de una sociedad y en favor de los inversionistas y del operador político del gobierno. En pos de lograr un acuerdo comercial, cualquier inversor de una corporación mundial puede comprometerse a no demandar a un Estado. No obstante, generalmente se incurre en no cumplir esta promesa. En efecto, cuando un Estado sanciona un producto o simplemente modifica una ley interna ( p. ej., ley de salud que regula el consumo de hamburguesas en locales de consumo), lo que ante un inversor puede ocurrir es que tal política interna merma las ganancias potenciales de su empresa. Jurídicamente se está frente a una expropiación indirecta. Entonces operan las clausulas privadas arbitrales del TLC. El inversionista demanda al estado o bien, a la municipalidad que regula por ley el consumo, la explotación o el servicio de un bien. Precisemos: el concepto de merma o menoscabo por expropiación indirecta tiene la siguiente lógica: a) se establece una pérdida por ganancia potencial. b) esto es materia suficiente para demandar al Estado a través de un arbitraje privado. c) las demandas por perdida potencial más las costas de abogados y tribunales de laudo se fijan en millones de dólares. Así, si la demanda, p.ej., es de $15.000 M. USD, entonces se fija un monto pago no menor y por sobre $1.0000 M. USD. En conclusión: el Estado, es decir, usted, Ciudadano, como contribuyente, debe pagar, de su bolsillo, a través de impuestos y recortes públicos y sin exenciones, el lucro de una abstracción definida en un TLC a través de un Tribunal de Arbitraje privado. Se trata del potencial financiero que un inversionista deja de percibir, es decir, lucro de un mercado especulativo pactado entre inversores y la élite de un Estado.
    Lo que manifiesta esta lógica, aneja al laudo privado, es la capacidad de lucrar ex ante, por unos cuantos estudios. Se trata de un mercado especulativo y de un sistema inescrupuloso generado en pactos entre corporaciones internacionales multimillonarias (inversores privados) y los gobiernos de turno (Ministerios y los poderes políticos del Estado) a espaldas de la opinión pública y en contra del bien público. Atento, Ciudadano!

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