Por: Yleana M. Cid Capetillo
Sin duda, el mundo de hoy enfrenta una enorme cantidad de problemas que deben ser abordados a través de un esfuerzo multilateral. Entre los más inmediatos podemos enumerar el cambio climático, los desastres naturales, los movimientos migratorios, la guerra comercial, el crimen organizado, la producción y consumo de drogas, las tensiones en el Golfo Pérsico o cualquiera de los conflictos y crisis humanitarias. Además, no podemos dejar de hablar de los mayores problemas sociales a los que nos enfrentamos actualmente, como la crisis sanitaria generada por la pandemia del covid-19, que está provocando enormes costes económicos, políticos, sociales, educativos y sanitarios, entre otros, o, en el aspecto político-militar, la intervención armada de Rusia en Ucrania, que pone en alerta e incita a la acción de las potencias de mayor peso e influencia internacional.
Estos y otros grandes problemas se presentan en un marco que vale la pena discutir si estamos ante una crisis o un deterioro del multilateralismo, como sugieren muchos analistas, o si estamos asistiendo a la valoración de la importancia de impulsar un decidido fortalecimiento de la institucionalidad internacional, así como las acciones e intenciones de los principales actores responsables de liderar su reconocimiento y consolidación.
Al multilateralismo, en su versión actual, se le puede acreditar una historia de más de un siglo, si tomamos como punto de partida 1919 y la creación de la Sociedad de las Naciones, o, más estrictamente, de más de 75 años si lo ubicamos en la fecha de fundación de la Organización de las Naciones Unidas (ONU). En este período -más amplio o más restringido- hemos asistido a una marcada tendencia hacia la expansión numérica de los organismos multilaterales y la gama de asuntos de interés internacional que se abordan desde ellos.
Sin duda, el organismo internacional por excelencia y máximo exponente del multilateralismo es la ONU. En sí mismo, pasó de ser una organización tradicional, tal como fue concebida en 1945, a un sistema completo o una red de organismos, ya que articula un número muy considerable de agencias especializadas, programas y congresos que se han abierto o implementado. para abordar temas no contemplados originalmente, pero que a lo largo del tiempo han planteado importantes temas y desafíos para la sociedad internacional: desarrollo, refugiados, población, mujer, medio ambiente, etc. Es una red compleja de acuerdos, normas e instituciones que contribuyen a la regulación del sistema internacional, formando lo que se ha denominado un régimen internacional.
Llama la atención que, en cada crisis internacional, dependiendo de su naturaleza, se destaca la acción y presencia de un determinado organismo internacional. Por ejemplo, durante la crisis financiera de 2008 fueron las instituciones de carácter económico las que adquirieron un papel relevante en el escenario mundial. Recientemente, ante la crisis sanitaria provocada por la pandemia del covid-19, la Organización Mundial de la Salud se destaca sin duda por su compromiso y obligación de liderar acciones que lleven al conjunto de la sociedad internacional a superar los graves problemas que, como consecuencia, de eso, se enfrenta. Además, hoy, ante la crisis bélica desatada en Europa del Este, la opinión pública mundial recurre al Consejo de Seguridad de Naciones Unidas con la expectativa de que ofrezca una solución plausible al conflicto.
Actualmente tenemos la oportunidad de reflexionar sobre la cantidad, variedad y calidad de foros que se constituyen en escenarios de negociación, encuentro, concertación, diálogo de todos los países: grandes y pequeños, poderosos y de peso relativo. En las relaciones internacionales de hoy todos cuentan y todos tienen la necesidad y deben tener la oportunidad de presentar abiertamente sus demandas y proyectos. Pero, como ya se ha señalado, hablar de multilateralismo es hablar principalmente, pero no sólo, del sistema de la ONU.
Salvaguardar y fortalecer la cooperación multilateral
El sistema de Naciones Unidas ha sido construido y ampliado desde 1945 para facilitar el encuentro de las diferentes fuerzas que conviven en el mundo. Sin embargo, mucho se ha discutido sobre algunos fenómenos que afectan a esta compleja red de organismos. Por un lado, su crecimiento desproporcionado y desarticulado, que ha llevado a la improvisación de nuevos órganos a través de programas, altos comisionados, comités, congresos y comisiones que distorsionan una estructura lógica y armónica, lo que ha producido una duplicidad de funciones, áreas e incluso presupuestos que la misma organización reconoce en su página: “las Naciones Unidas y el sistema de la ONU trabajan juntos en cinco áreas que pueden superponerse, y con frecuencia lo hacen”. Por otra parte, es fácil comprobar la presencia de estructuras que ya no funcionan, pero que no deciden desaparecer por la duplicidad (o multiplicación) de tareas y responsabilidades en órganos que trabajan de forma aislada con una inversión muy grande de personal, recursos y esfuerzos. Una cuestión más que conviene debatir es cómo, ante el debilitamiento, la falta de eficacia y el «boicot» que se ha aplicado a los principales organismos internacionales, han proliferado grupos informales, como el G-20 o el G-7, que tratan de convertirse en foros, pero con una capacidad de decisión aún más débil.
La creciente complejidad que caracteriza a la sociedad internacional y que adquiere tal fuerza que hace evidente la necesidad de conformar foros y escenarios ha contribuido a la multiplicación y diversificación de organismos multilaterales que, según la Organización para la Cooperación y el Desarrollo Económicos, han encontrado o diseñado múltiples variedades de organización. Estos incluyen los de carácter intergubernamental, transgubernamental o privado. Incluso varían según su alcance, ya sea internacional o regional. En este último caso nos hemos topado con la propuesta de Miles Kahler quien acuñó el término “minilateralismo” para aquellos casos en los que se agrupa un número reducido de socios.
Es indudable que la organización internacional como escenario de la concertación, la negociación y el diálogo no solo para la solución pacífica de controversias sino también para el impulso de proyectos, planes y acciones que lleven a la construcción de nuevas posibilidades de desarrollo tendiente a la consecución del bienestar de las poblaciones (mediante la superación de la pobreza, el acceso a educación, el goce de la salud, el disfrute de vivienda digna o de empleo) ha tenido y tiene logros muy valiosos que merecen ser valorados. Pero también es necesario reconocer que se han alcanzado a pesar de serias dificultades u obstáculos y con la inversión de arduo trabajo que implica la identificación de intereses compartidos entre las partes, su aceptación para alcanzar compromisos viables que sean respetados con seguridad y el compromiso para que aquellas partes que no cumplan reciban la sanción correspondiente.
Uno de los cuestionamientos que se les hace a los organismos internacionales es que, con su pertenencia, los Estados se encuentran en una situación de “perder soberanía”. Esta es una idea que se ha popularizado pero que carece totalmente de sustento teórico, legal y práctico. En efecto, pertenecer a un actor estatal implica la cesión de poderes que, precisamente en función de su carácter soberano, puede recuperar en el momento y en las condiciones que más le convengan. En efecto, como señala José Antonio Sanahuja, los principios de soberanía e igualdad soberana de los Estados se han convertido en la piedra angular del derecho y la cooperación internacionales, así como de los regímenes y organismos intergubernamentales que, en su labor, se erige como sus garantes y defensores. Un ejemplo de esta situación lo da el Brexit.
En el debate abierto que se extiende a la academia, los medios de comunicación o el campo político -incluso político-diplomático-, se plantean tres puntos que hacen referencia a áreas en las que se están produciendo crisis particulares que afectan al multilateralismo y que han sido abordadas por Richard Gowan. Por un lado, los cambios que se están dando en la distribución del poder, donde las insensatas políticas de sus dos últimos presidentes han llevado a que Estados Unidos no pueda ejercer el liderazgo que se requiere para conducir los asuntos mundiales; por otro, una crisis de relevancia provocada por la esclerosis de las instituciones multilaterales formales que debe ser relevada por otras informales en el caso de situaciones de grave peligro para la seguridad internacional. Y, además, una crisis de legitimidad derivada del alboroto y las rabietas de los líderes que, en un arranque de ira, se retiran de los organismos multilaterales o los erosionan desde dentro, como es el caso de las diversas amenazas de Donald Trump en su momento hasta la más reciente de Nicaragua respecto a la Organización de los Estados Americanos.
Como dijo no hace mucho el Secretario General de la ONU, António Guterres: “el multilateralismo está bajo fuego precisamente cuando más lo necesitamos”.
YLEANA M. CID CAPETILLO es licenciada y maestra en Relaciones Internacionales y doctora en Relaciones Internacionales,. Actualmente, es profesora titular de Relaciones Internacionale, Vicepresidenta de la Asociación Mexicana de Estudios Internacionales (AMEI)
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