LibreOffice/6.1.5.2$Linux_X86_64 LibreOffice_project/10$Build-2 0 0 14099 9999 true $(brandbaseurl)/share/palette%3B$(user)/config/standard.sob 0 $(brandbaseurl)/share/palette%3B$(user)/config/standard.soc $(brandbaseurl)/share/palette%3B$(user)/config/standard.sod 1270 false $(brandbaseurl)/share/palette%3B$(user)/config/standard.sog $(brandbaseurl)/share/palette%3B$(user)/config/standard.soh false false true true false false true false false false $(brandbaseurl)/share/palette%3B$(user)/config/standard.soe false 7 4 false 0 low-resolution false false 1 1 true 117 A ASCENSÃO DO MULTILATERALISMO ASIÁTICO NO SISTEMA INTERNACIONAL CONTEMPORÂNEO THE ASCENSION OF ASIAN MULTILATERALISM IN THE CONTEMPORARY INTERNATIONAL SYSTEM Gabriel Adonis Brunca da Silva 1 RESUMO Este artigo trata da ascensão do multilateralismo asiático e sua influência no sistema internacional contemporâneo. O regionalismo asiático ao longo das duas décadas do século XXI ganhou força, adquirindo caráter mais institucionalizado e fortalecendo a cooperação econômica e política entre os países. Ao localizar o crescimento econômico das nações no pós-Guerra Fria, a institucionalização da cooperação asiática e o fortalecimento dos mecanismos regionais são aqui analisados. Outrossim, este artigo sugere que, hoje, a Ásia tem o mesmo poder de modelação das relações internacionais que os atores tradicionais ocidentais, Estados Unidos e União Europeia. Isso acontece através do estabelecimento de um sistema diplomático, comercial e político centrado na Ásia e do reconhecimento do poder de reorientar as economias e estratégias de outras nações do mundo. Palavras-chave: Regionalismo Asiático, Cooperação internacional, Instituições asiáticas, Ordem internacional, Ásia ABSTRACT This article deals with the rise of Asian multilateralism and its influence on the contemporary international system. Asian regionalism over the two decades of the 21st century gained strength, acquiring a more institutionalized character and strengthening economic and political cooperation between countries. In locating the economic growth of nations in the post-Cold War period, the institutionalization of Asian cooperation and the strengthening of regional mechanisms are analyzed here. Furthermore, this article suggests that, today, Asia has the same power to model international relations as the traditional Western actors, the United States and the European Union. This happens through the establishment of a diplomatic, commercial and political system centered on Asia and the recognition of the power to reorient the economies and strategies of other nations in the world. Keywords: Asian regionalism; International cooperation; Asian institutions; International order; Asia. INTRODUÇÃO Existe uma ampla variedade de estudos sobre a cooperação internacional e organizações internacionais na Ásia (Allarie, 2014; Polido, 2008; Pomar, 2019; Nascimento e Maynetto, 2019; Medeiros, 2016). A expansão da cooperação entre os países durante o século XX através do aumento do número de tratados e de instituições internacionais, bem como o crescimento do número de atores contribuiu para isso. Ainda assim, apesar dos variados indicadores de intensificação de mecanismos multilaterais que surgiram neste século, as bases do sistema internacional contemporâneo foram construídas sob a égide de um modelo ocidental baseado 1 Universidade de Brasília - UnB (gabriel.adonis17@gmail.com) RICRI, Volume 9, Número 17, 2021 118 nos Estados Unidos, União Europeia e Japão. Sob liderança desses países, as organizações internacionais como FMI e Banco Mundial que compõem o cerne da ordem atual, e que são parte do Sistema da Organização das Nações Unidas (ONU), foram criadas, ao mesmo tempo em que crescia a interdependência econômica entre eles. Assim, sob entendimento de que os próprios se beneficiam dos laços entre eles, a governança dessas instituições foi feita de tal forma que estes atores possuem grande peso nas decisões. O que se discute aqui é que as duas primeiras décadas deste novo século mostraram que a cooperação baseada nesse sistema falhou em desenvolver soluções para os principais problemas do mundo atual. Algumas dessas dificuldades podem ser exemplificadas pela dificuldade no combate a Guerra ao Terror, a resposta insuficiente dos mecanismos de governança global de resposta crise sanitária da Covid-19 atual e a falta de representatividade dos países emergentes, principalmente da Ásia nos principais fóruns de cooperação. Além disso, nos últimos anos, mudanças começaram a ocorrer no relacionamento entre as potências ocidentais. Sob liderança de Donald Trump, os Estados Unidos da América entraram em atrito com seus tradicionais aliados europeus, o que causou certas rupturas na ordem internacional. Com discursos, atitudes e políticas desconectadas, o eixo ocidental dos EUA - União Europeia falhou ainda mais em não reconhecer a ascensão asiática, sob liderança chinesa, e sua cada vez maior relevância no contexto geopolítico mundial. Esse não reconhecimento e a falta de representatividade fez com que os países asiáticos passassem a criar e protagonizar seus próprios mecanismos multilaterais regionais e internacionais. O desenvolvimento da Belt and Road Initiative (BRI), a assinatura do novo Tratado Econômico de Integração Regional (RCEP) e o fortalecimento da Associação das Nações do Sudeste Asiático (ASEAN) são claros exemplos dessa proatividade geopolítica e autonomia asiática. Essas iniciativas demonstram que enquanto os atritos entre europeus e americanos dificultam um pleno funcionamento do sistema de cooperação multilateral ocidental, a Ásia vem se reconhecendo cada vez mais enquanto Ásia e desenvolvendo mecanismos de integração mais efetivos. A partir de tal contexto, este estudo se guia com base no seguinte questionamento: como a ascensão do multilateralismo asiático influencia o sistema internacional contemporâneo? Gabriel Adonis Brunca da Silva 119 Trabalha-se com a hipótese de que a criação e o fortalecimento das iniciativas de integração regional asiáticas demonstram que a Ásia, hoje, possui um peso estratégico tão grande quanto EUA e União Europeia na modelação das relações internacionais. Isso acontece através do estabelecimento de um sistema diplomático e comercial centrado na Ásia e do poder que a região possui de reorientar as estratégias econômicas e os posicionamentos de todas as nações do mundo. Assim, para alcançar esse objetivo, este estudo se divide em cinco partes. Para além desta introdução, a segunda parte contém uma contextualização histórica, pós-Guerra fria, para compreender como o crescimento econômico dos países da região contribuiu para a integração regional. Em seguida, na terceira parte procura-se elucidar de que forma se deu o fortalecimento do multilateralismo asiático por meio do surgimento das principais instituições regionais. Por fim, na quarta parte busca-se entender como esses mecanismos de cooperação multilateral desempenham um papel cada dia mais relevante nas relações internacionais atuais (RCEP, AIIB, BRI e ASEAN). Entende-se neste trabalho que estes são as principais iniciativas que conduzem a cooperação multilateral na região e por essa razão foram escolhidos como objeto de análise. Ao final do estudo, na conclusão, entende-se que o desejo político dos países da região de cooperarem é fundamental para a superação de possíveis conflitos que possam surgir. Além disso, a concentração da maior parte da população e da economia do mundo tende a aumentar ainda mais a importância estratégica do regionalismo asiático no sistema internacional. O MULTILATERALISMO ASIÁTICO: HISTÓRICO PÓS-GUERRA FRIA E BOOM ECONÔMICO Antes de iniciarmos as discussões sobre o fortalecimento do multilateralismo asiático, é preciso, primeiramente, entender o que esse termo significa. Apesar de conseguir abarcar com muita precisão o contexto das relações internacionais atualmente, “o conceito de multilateralismo não se encontra dentre os principais conceitos das Relações Internacionais” (Renni, 2017, p. 76). Ainda assim, diversos autores se propuseram a estudar o tema e oferecer conceituações. Keohane, por exemplo, considera o multilateralismo como sendo “a prática de coordenar RICRI, Volume 9, Número 17, 2021 120 políticas nacionais em grupos de três ou mais Estados, através de acordos ad hoc ou por meio de instituições” (Keohane, 1990, p. 731). Os Estados então, neste caso, surgem como atores fundamentais das ações multilaterais, podendo incluir ou não o trabalho de instituições. Embora tal conceito possa ter sido consonante com as relações de cooperação internacional durante grande parte da modernidade, hoje, entende-se, no multilateralismo moderno, que os Estados não são os únicos atores participantes. Organizações não-governamentais, corporações multinacionais, instituições internacionais, atualmente compõem e influenciam a cooperação multilateral. Como observa Renni (2017) Percebe-se, então, como em muitos casos outros atores que não os Estados são capazes de influenciar as agendas e tomadas de decisão a nível multilateral. Nesse sentido, o multilateralismo contemporâneo não seria um fenômeno exclusivamente intergovernamental – podendo ser entendido em alguns casos como afetando a soberania dos Estados. (Renni, 2017, p.78). A partir desse contexto, é possível então entender o conceito de cooperação utilizado para este estudo. A cooperação ocorre quando os atores ajustam seu comportamento à preferência atual ou antecipada dos outros, através de um processo de coordenação de políticas. Entende-se então que “a cooperação intergovernamental ocorre quando as políticas efetivamente seguidas por um governo são consideradas por seus parceiros como facilitadoras da realização de seus próprios objetivos, como resultado de um processo de coordenação de políticas” (Keohane, 1984, p. 52). Os regimes e instituições internacionais, nessa abordagem, aumentam a propensão de haver cooperação nas relações internacionais, porque reduzem as incertezas sobre o comportamento a ser adotado pelos demais e diminuem também a assimetria de informações, ambas características essenciais do sistema internacional anárquico. Assim, as instituições internacionais que compõem o sistema internacional atualmente, foram desenvolvidas sob a liderança dos EUA e baseadas no modelo econômico Ocidental tem tido cada vez mais dificuldades em lidar com os desafios do mundo hoje, nos quais se incluem a crescente desigualdade econômica. Ainda que tais instituições sejam capazes de aumentar as chances de cooperação, e assim o fizeram durante muito tempo, principalmente no âmbito econômico, esse sistema tem se tornado cada vez menos representativo desde o fim da Guerra Fria. Tomando por base o próprio Keohane (1984), entende-se que: ainda que a coordenação Gabriel Adonis Brunca da Silva 121 internacional de políticas pareça altamente benéfica em uma economia mundial cada vez mais interdependente, a cooperação na política internacional é particularmente difícil. Com o fim da Guerra Fria, acreditava-se que se iniciaria um cenário de predomínio norte- americano, indicando um período de unipolaridade incontestável dos Estados Unidos. Contudo, a globalização, o crescimento econômico de diferentes países e a inserção de mais e mais pessoas na economia global levou a mudanças significativas na ordem global, o que de acordo com Renni (2017), Fareed Zakaria (2008) chama de “ascensão do resto”. Segundo o autor esta ascensão seria o surgimento de novas potências fora do continente europeu, ou seja, da inserção desses países na agenda internacional e a crescente importância desses atores na defesa e promoção de seus interesses particulares (Zakaria, 2008). Acharya (2018) entende que o papel dessas potências emergentes se baseia, em grande medida, em prevenir ou frustrar a continuação da Ordem Mundial Americana, ou seja, da ordem mundial construída historicamente pelos Estados Unidos. Quando se fala da emergência econômica de países, nenhuma região chama mais atenção do que o continente asiático. China e Índia são grandes expoentes, é claro, dessa emergência, entretanto o crescimento econômico da região não se restringiu a esses dois países. Ao menos em termos estritamente econômicos (crescimento das rendas per capita 2 ), pode se dizer que a Ásia tem uma história recente de sucesso excepcional. De fato, não seria exagero dizer que “a expansão econômica de um número considerável de países asiáticos no pós-guerra se constitui no mais bem-sucedido exemplo, em toda a história, de industrialização e crescimento rápido por um período de tempo prolongado” (Singh, 1997, p.1). A industrialização, a expansão econômica e o esforço de catch-up asiáticos já apresentavam seus primeiros sinais a partir dos anos 1960 com o desenvolvimento do Japão. Entretanto, nos anos 80 e 90, especialmente após o fim da Guerra Fria, o surgimento e crescimento dos Tigres asiáticos (Hong Kong, Singapura, Taiwan e Coreia do Sul) demonstraram que esse crescimento não se restringiu a poucos países, mas sim constituiu um fenômeno generalizado (Singh, 1997). Na reflexão a respeito da expansão econômica do Leste da Ásia, a economia chinesa merece 2 Relatório de 14 de Julho de 2019 Mckinsey & Company disponível em: https://www.mckinsey.com/featured- insights/asia-pacific/asias-future-is-now/pt-br# RICRI, Volume 9, Número 17, 2021 122 atenção especial. “O crescimento da China começou nos anos 1980, mas impactou o mundo nos anos 1990, e principalmente, no século XXI, quando passou a deter a segunda maior economia do mundo” (Pinheiro-Machado, 2013, p. 135). Como indica a tabela acima, nos últimos quinze anos, “os países em desenvolvimento do Leste da Ásia têm sido, de longe, os mais dinâmicos da economia mundial” (Singh, 1997). Uma característica notável do desenvolvimento do Leste e do Sudeste asiático, no período entre 1980 e 1995, é que não só a taxa de crescimento foi muito alta, mas também a renda se tornou mais bem distribuída. Ainda assim, logo em 1997, o modelo de desenvolvimento que consagrou o crescimento econômico dos países asiáticos ao longo de décadas colapsou, resultando então, na crise econômica asiática de 1997. A crise financeira asiática começou na Tailândia, em 1997, sobretudo como resultado da turbulência na taxa de câmbio deste país. 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FFABRRRQAUUUUAFFFFABRRRQAUUUUAFFFFABRRRQAUUUUAFFFFABRRRQAUUUUAFFFFABRRRQ AUUUUAFFFFABRRRQAUUUUAFFFFABRRRQAUUUUAFFFFABRRRQAUUUUAFFFFABRRRQAUUUUAFF FFABRRRQAUUUUAFFFFABRRRQAUUUUAFFFFABRRRQAUUUUAFFFFABRRRQAUUUUAFFFFABRRRQ AUUUUAFFFFABRRRQAUUUUAFFFFABRRRQAUUUUAFFFFABRRRQAUUUUAFFFFABRRRQAUUUUAFF FFABRRRQAUUUUAFFFFABRRRQAUUUUAFFFFABRRRQAUUUUAFFFFABRRRQAUUUUAFFFFABRRRQ AUUUUAFFFFABRRRQB//Z (Singh, 1997) Gabriel Adonis Brunca da Silva 123 especulativas que visavam explorar os desajustes entre posições credoras e devedoras em dólar dos principais agentes econômicos (Tavares e Metri, 2020). Francisco Lourenço Tigre (1999, p. 9) avalia que “a crise apresentou características de uma crise financeira clássica, resultante da iliquidez (insolvência) do sistema financeiro, assim como se observou no Chile em 1992 e no México em 1994”. Os impactos nos países da Associação das Nações do Sudeste Asiático (ASEAN) foram significativos, em especial nos setores bancários e empresarial, as quedas acentuadas nas bolsas de valores e a falência de grandes empresas, o aumento do desemprego e da pobreza e ainda, em alguns casos, as inflexões políticas geradas, são exemplos disso. “A recuperação da crise na região se deu, sobretudo, por meio do aumento das exportações; no entanto, ainda se notam impactos remanescentes, como uma perda de dinamismo e autoconfiança.” (Becard; Castro, 2013, p. 25). O contexto de recuperação do Sudeste asiático ainda apresentava um fator importante. Os países da região consideraram como não significativa a atuação do Fundo Monetário Internacional (FMI) e dos EUA no auxílio à recuperação econômica. Assim, cresceu a desconfiança e o ressentimento na região em relação às instituições internacionais e atores tradicionais, o que levou ao aumento da frustração e do anti ocidentalismo (Kurlantzick, 2007). Essa desconfiança nas instituições internacionais tradicionais se amplificou, o que acarretaria no desejo do fortalecimento das iniciativas regionais de cooperação econômica para que a ásia pudesse atuar de forma mais intensa na resolução dos problemas da Ásia. Essa insatisfação ainda se evidencia no que Wibowo (2009) apresenta ao discutir que os norte- americanos não tiveram interesse na crise asiática e, além disso, o FMI insistiu em aplicar seu conhecido receituário neoliberal, com a imposição de rigorosas condicionalidades e exigência da implantação de programas de ajuste estrutural. Desta forma, um outro ator surgiu e teve um papel fundamental na recuperação dos países da região. A China, que além de uma pequena queda relativa no PIB, e conseguindo manter seus níveis de crescimento, em 1997 de 9,2% (Banco Mundial) atuou de maneira efetiva ao tomar medidas tanto domésticas quanto incentivos à cooperação na região. Em resposta à crise, a China adotou as seguintes medidas: participou ativamente em projetos de ajuda organizados pelo FMI e de ajuda bilateral para Tailândia e Indonésia; decidiu não desvalorizar o yuan; adotou políticas de estímulo à demanda doméstica e ao crescimento econômico – as quais favoreceram as RICRI, Volume 9, Número 17, 2021 124 exportações da ASEAN; e estabeleceu políticas de cooperação financeira nos âmbitos internacional e regional. (Becard; Castro, 2013, p. 26) Nesse sentido, Nogueira e Hendler (2016, p. 201) argumentam ainda que as relações China- Sudeste Asiático no período pós-1997 caracterizaram-se pela ofensiva multilateral chinesa, ou seja, pela adesão “a normas e organizações regionais para reduzir a percepção de ameaça de sua “ascensão pacífica” e, acima de tudo, pelos empréstimos a juros baixos e valorização do renminbi como formas de resgate das economias atingidas pela crise.” O que se tem claro, principalmente no século XXI, é que a Ásia está se reconhecendo cada vez mais, novamente, enquanto Ásia, e reconhecendo a importância do fortalecimento da integração e cooperação regional frente aos novos desafios contemporâneos. Nessa perspectiva, Parag Khanna (2019, p. 9) traz que “Despite its vast geography and cultural diversity, Asia is evolving from faint historical and cultural linkages to robust economic interdependence to strategic coordination.” Assim, retomando Keohane e reafirmando a cooperação internacional como uma coordenação de políticas, é possível enxergar o fortalecimento da cooperação regional asiática. A exemplificação deste fenômeno é a consolidação das iniciativas de integração asiática, como discorre sobre Parag Khanna. Asia’s major powers have maintained stability with one another despite their historical tensions. They have formed common institutions such as the Asian Development Bank (ADB), ASEAN Regional Forum, East Asian Community (EAC), Regional Comprehensive Economic Partnership (RCEP), and Asian Infrastructure Investment Bank (AIIB) - all of which facilitate flows of goods, services, capital, and people around the region and will steer trillions of dollars of financing into cross- border commercial corridors. (Khanna, 2019, p. 9). “A quarter century after the United States won the Cold War and led the Asian order, it is now excluded from these bodies” (Khanna, 2019, p. 9). Após duzentos anos de divisão, marcados pelo imperialismo europeu e dominância ocidental, a Ásia inaugura um novo período, marcado pela construção de um sistema de cooperação coerente. Gabriel Adonis Brunca da Silva 125 O FORTALECIMENTO DO MULTILATERALISMO ASIÁTICO A PARTIR DAS INICIATIVAS DE INTEGRAÇÃO ASIÁTICA “After centuries of colonialism and Cold War division, coherence is returning to Asia. All of Asia's subregions are bending toward a common gravity.” (Khanna, 2019, p. 10). Anteriormente ao colonialismo europeu, as civilizações asiáticas já eram diplomáticas, econômicas e culturalmente conectadas. Khanna (2019) ainda traz o fato de que o imperialismo europeu fraturou, assim como na África e América Latina, a região asiática em territórios muito pobres e subservientes ao Ocidentalismo para conseguirem cooperar unificadamente. Entretanto, com o avanço do multilateralismo e o fortalecimento dos países asiáticos, o futuro do sistema de cooperação global se parece cada dia mais com o passado da Ásia. Contudo, antes de discutirmos as características do regionalismo asiático e sua influência na ordem global, é importante caracterizarmos o que é a Ásia, geograficamente e politicamente. Com uma história recente de dominação ocidental na Ásia, é compreensível que às vezes nos esqueçamos da real dimensão geográfica, cultural e política da região. Vale apontar que essa dominação não se deu apenas na esfera militar, de atualmente ocupar o território, mas também na esfera da produção do conhecimento. Acharya (2014) já enxergava como esse controle da narrativa ocidental dificulta a compreensão da realidade internacional atual como ela é. “Distinctions between the “West” and the “Rest” blur in material terms, but not in the way that we study, publish, and discuss IR Centers of learning remain clustered in the developed West.” (Acharya, 2014, online). Nos acostumamos a entender a região asiática limitada à China, Japão, Península Coreana, Índia e o Sudeste asiático, entretanto a Ásia compreende mais que essas regiões. From kindergartens to military academics, Asia is still mistakenly referred to as a continent even though it is strictly speaking a megaregion stretching from the Sea of Japan to the Red Sea. Asia contains half of the world’s largest countries by land area, including Russia, China, Australia, India and Kazakhstan. Asia also has most of the world’s twenty most populous countries, including China, India, Indonesia, Pakistan, Bangladesh, Japan, the Philippines, and Vietnam. Asia is home to some of the wealthiest countries in the world on a per capita basis such as Qatar and Singapore, but also some of the smallest (Maldives, Nauru), least populous (Tuvalu, Palau), and poorest (Afghanistan, Myanmar). (KHANNA, 2019, p. 8). RICRI, Volume 9, Número 17, 2021 126 Antes de tudo, a Ásia é uma descrição geográfica. Entretanto, durante muito tempo, sob um viés ocidental, condicionamos rótulos geográficos para que servissem aos nossos propósitos. O fato de russos e australianos, por exemplo, virem de raças europeias não os torna menos parte da região asiática. Cada vez mais, os países asiáticos estão se descobrindo como tal, e movidos pelo desejo de compartilhar do vertiginoso crescimento econômico da região, estão começando a assumir sua “asianidade”. Apesar de sua vasta geografia e diversidade cultural, a Ásia está fortalecendo cada dia a coordenação estratégica de seus países em direção à uma robusta interdependência econômica. Khanna (2019) descreve em seu livro o conceito de “Asianization of Asia”, que segundo ele foi desenvolvido pelo jornalista e escritor japonês Yoichi Funabashi. Funabashi falava de uma nova consciência regional, que não mirava no anticolonialismo retrógrado, mas na resposta proativa à Guerra Fria Americana e ao mercado único europeu. “Globalized competition, he rightly argued, would require Asia to Asianize, beginning with the “chopsticks” civilizational area encompassing China, Japan, South Korea, and Vietnam and eventually reaching beyond to reforming countries such as India.” (Khanna, 2019, p. 9). Observa-se, no entanto, que a “asianização” da região não se limitou a esses países, mas hoje se estende à nações como Rússia, Turquia e Irã. Vemos que as previsões de Funabashi, que Khanna (2019) descreve bem, de que a combinação do crescimento econômico, estabilidade geopolítica e o pragmatismo tecnocrático, daria origem à ideias distintivamente asiáticas sobre a ordem mundial. Entretanto, apesar do entendimento único que é preciso fortalecer o regionalismo e a cooperação asiática, devido ao passado de domínio imperialista na região, esse tema é tratado com muita cautela. As nações da região não desejam, novamente, que outros atores tomem decisões em seu nome, mesmo que esses atores sejam as instituições internacionais. Por isso, o princípio da não intervenção e o respeito à soberania são questões basilares de quaisquer discussões de cooperação e são reforçadas veementemente pelos líderes nacionais (Acharya, 2018). Somente o desejo político dos países da região de cooperarem, expresso em discursos e ações, principalmente no âmbito econômico, supera, ou ao menos auxilia na resolução de possíveis conflitos que possam surgir. Gabriel Adonis Brunca da Silva 127 Isto pode ser visto exemplificados na construção da base normativa da ASEAN de 1976, com a aceitação dos acordos da ZOFPAN (Zone of Peace Freedom and Neutrality), Bali Concord I e TAC (Treaty of Amity and Cooperation). Conhecida como “ASEAN Way”, essa base normativa consiste em uma junção dos pontos principais de cada um desses acordos e é o que gere as relações entre os membros da ASEAN desde então. Como observado por Goh (2003), o “ASEAN Way” consiste na aceitação de procedimentos, como por exemplo a não intervenção ou respeito mútuo à soberania, que serão a base para o relacionamento regional até os dias atuais. (Oliveira Junior, 2015, np). Ainda, segundo Acharya (2002, p.1433), o que tornou a ASEAN distinta de outras organizações regionais foram, justamente, as normas que vieram a ser conhecidas como o ASEAN Way - "informalidade, minimalismo organizacional, inclusão (e) consultas intensivas que levam ao consenso" (p. 63). Assim, com o tempo, alterou-se dramaticamente o ambiente regional, afastando-se das condições imprevisíveis que prevaleciam na data de criação da ASEAN. Posto isso, podemos começar a entender melhor o regionalismo asiático. “O processo de integração econômica por meio de mecanismos interestatais na Ásia é recente e ocorre de maneira inversa ao processo observado na América do Sul e na Europa.” (Bacelette, 2012, p. 22). Ao passo que na América Latina, os mecanismos de integração regional, formais e incompletos, formaram-se primeiro; na Ásia, a integração é resultante de investimentos empresariais e transferência de tecnologia entre empresas, com objetivos originais voltados para o ganho de competitividade das companhias, promovendo assim as exportações em direção às economias centrais (Jank; Tachinardi, 2007 apud Bacelette, 2012). Porém, viu-se, depois da crise de 1997, que a cooperação pouco institucionalizada não era benéfica para a região, já que “a falta de uma resposta rápida para o problema foi um dos grandes agravantes para o aprofundamento da crise e também o fato de seus principais parceiros de fora da região” (Oliveira Júnior, 2015, np). Então, a partir da década de 1990, as iniciativas governamentais de integração regional cresceram em número, com destaque aos acordos de livre comércio e criação de organismos RICRI, Volume 9, Número 17, 2021 128 regionais 3 . Este fenômeno, Bacelette (2012) afirma ter sido denominado pela literatura como o “Novo Regionalismo Asiático”. Partindo da ótica do Neofuncionalismo é possível entender o regionalismo como uma resposta funcional dos Estados para os problemas criado pela interdependência, colocando atenção nos rol crítico que as instituições têm na identificação e desenvolvimento da coesão regional (Keohane e Nye 1998 apud Silvestre, 2020, p. 67) Ainda, podemos entender o regionalismo como um arranjo formal que visa diminuir a animosidade entre estados rivais, podendo também configurar-se como uma intensificação do fluxo de investimentos entre países vizinhos, caracterizando uma maior aproximação comercial entre os mesmos (Mendes, 2010 apud Gomes de Araújo; Leite, 2015) Assim, a cooperação asiática transformou-se de um foco econômico com poucos mecanismos regulatórios e institucionais para um cenário onde a coordenação de políticas e a atuação em organismos regionais passou a ser valorizada. A ASEAN, que surgiu objetivando garantir a independência do pós-colonialismo europeu no sudeste asiático e manter a estabilidade das relações entre os países da região, ampliou seu foco e apostou em uma cooperação mais institucionalizada adicionando China, Japão e Coréia do Sul ao criar o fórum ASEAN+3. Com isso, é criada a ASEAN+3. Essa instituição, que nasce a partir dos acordos da Iniciativa Chiang Mai para recuperar as economias dos países da região nos pós crise asiática de 1997, consiste na soma dos membros da ASEAN com Japão, China e Coréia do Sul. Essa instituição é muito importante, pois além de comungar os principais atores da região asiática dentro de uma mesma instituição de cooperação, também é o principal lócus que a ASEAN participa tendo em vista a amplitude e profundidade das relações construídas, que vão desde comerciais até relações culturais. (Oliveira Júnior, 2015, np). No que diz respeito à China, o país teve atuação central nesse salto do regionalismo asiático. O engajamento chinês no processo de integração regional constitui peça central dessa nova dinâmica institucional, pois, além de exercer função de catalisador desse processo, tem influenciado a configuração dessas instituições (Bacelette, 2012). A ascensão econômica chinesa coincidiu com a queda do Japão, assim, a partir dos anos 1990, a China tornou-se gradativamente o centro econômico regional. Com a virada do século XXI, a liderança chinesa na Ásia complementada por seu crescimento econômico enfático são peças essenciais na crescente do regionalismo asiático. O país nipônico, 3 Cooperação Econômica Ásia-Pacífico (Asia-Pacific Economic Cooperation – APEC, 1989), Asean Mais Três (Asean Plus Three – APT, 1997), Cúpula da Ásia Oriental (East Asia Summit – EAS, 2005), Diálogo de Cooperação da Ásia (Asia Cooperation Dialogue - ACD, 2002), Asean Regional Forum (ARF, 1994) etc. Gabriel Adonis Brunca da Silva 129 com sua postura proativa, porém aberta ao diálogo, flexível e pragmática, diferente da política periférica das décadas anteriores, vem tornando positiva a percepção dos outros países que enxergam sua atuação regional como benéfica para a Ásia. Dessa maneira, tem-se o fortalecimento do regionalismo asiático e de um sistema de cooperação cada vez mais coerente e capaz de potencializar as vantagens regionais e gerar impactos no sistema como um todo. Essa transformação é observada, por exemplo, por Acharya “Areas where regionalism has had a limited presence have seen the proliferation of entirely new institutions.” (Acharya, 2018) O sul asiático e a Ásia central, por exemplo, presenciaram o surgimento de novas organizações internacionais, como a Associação Sul-Asiática para a Cooperação Regional (South Asian Association for Regional Cooperation – SAARC) e a Organização para Cooperação de Shangai (Shanghai Cooperation Organisation – SCO) respectivamente. Dessa forma, atualmente, o regionalismo asiático é muito mais consistente com a nova perspectiva do mundo regional, como Acharya (2018) afirma. “It is much more informal and less legalized, based around the ASEAN way of consensus-based decision-making.Broadly stated, the explanation for the differences between Europe and Asia rests on four main areas: history, foundational objectives, domestic political structures, and the pattern of security relationship with external powers.” (ACHARYA, 2018, p. 56) Isto posto, passa-se então a entender como esse regionalismo, sobretudo em relação às instituições de cooperação que o compõem, desempenha um papel cada vez mais relevante nas relações internacionais atuais. AS INSTITUIÇÕES DE COOPERAÇÃO INTERNACIONAL ASIÁTICAS E O MUNDO HOJE Os escassos vínculos institucionais e jurídicos que marcaram a Ásia até a década de 1990 podem ser evidenciados pela baixa densidade de acordos comerciais intrarregionais, em contraste com outras regiões do mundo “Até o ano 2000, só havia um acordo preferencial regional em vigência no Sudeste Asiático” (Bacelette, 2012, p. 25) o Acordo de Livre Comércio da ASEAN - Agreement of the ASEAN Free Trade (AFTA), e um acordo na Ásia Meridional, o Acordo Comercial Asia-Pacífico – Asia-Pacific Trade Agreement (APTA). RICRI, Volume 9, Número 17, 2021 130 Dessa forma, entende-se que embora tenha ocorrido tardiamente em comparação com outras regiões das relações internacionais, o regionalismo asiático tem sido intenso e profundo, acompanhando o rápido crescimento econômico da região. Conforme citado por Bacelette (2012, p. 23) segundo Pagngestu e Gooptu (2000), entende-se por regionalismo, “o processo por meio do qual se constituem mecanismos formais para estabelecer tratados de integração e cooperação entre seus membros.” Até a década de 1990, a integração asiática era majoritariamente econômico-comercial, porém as relações econômicas se davam ao largo de ideações de construções político-institucional. Nesse sentido, apesar de existir forte integração econômica entre as economias asiáticas, o regionalismo, de fato, era mínimo. Para entendermos esse cenário de evolução do quadro institucional de governança regional, Bacelette (2012) traz em seu estudo que os dois acordos comerciais vigentes na região em 2000, tornaram-se 45 acordos concluídos e em vigência, em 2009. Assim, o “milagre asiático” 4 , não se encerrou com a Crise de 1997, ao contrário, revigorou o crescimento da região sob bases mais sustentáveis. “Today the Asian megasystem is coming together like an enormous jigsaw puzzle of dozens of large and small pieces, with economic complementarities creating a whole much greater than the sum of its parts.” (Khanna, 2019, p. 54). Com isso, Leite e Araújo (2015) trazem, que além da proliferação de acordos de livre comércio na região, sejam eles bilaterais, regionais, inter-regionais e transregionais, o regionalismo adotado no continente asiático, suas premissas, estrutura e caracterização podem vir a influenciar positivamente as demais regiões do globo. “A questão contemporânea a ser discutida não é se a Ásia terá papel central na economia internacional no século XXI, mas como ela exercerá seu papel proeminente na arena global” (Asian Development Bank 5 ). O que se argumenta neste estudo é que esse papel proeminente, ainda que se inicie sob uma perspectiva econômica, se ampliará para outros eixos de cooperação. A Ásia não terá apenas um peso estratégico na economia internacional, mas também nas questões políticas e 4 Termo cunhado pelo Banco Mundial em 1993 para descrever o crescimento econômico asiático 5 Asian Development Reviews, disponível em: <https://www.adb.org/publications/series/asian-development- review> Gabriel Adonis Brunca da Silva 131 institucionais do sistema de cooperação do mundo. Por conseguinte, analisa-se então a crescente relevância das iniciativas de cooperação asiática nas relações internacionais atualmente, Parceria Econômica Regional Abrangente (RCEP) Belt and Road Initiative (BRI), Banco Asiático de Investimento e Infraestrutura (AIIB) e a Associação das Nações do Sudeste Asiático (ASEAN). REGIONAL COMPREHENSIVE ECONOMIC PARTNERSHIP (RCEP) Idealizado em 2011 e após oito anos de negociações, o bloco econômico Parceria Econômica Regional Abrangente do inglês Regional Comprehensive Economic Partnership (RCEP) foi inaugurado em novembro de 2020 (Farinelli, 2020). O bloco tem como objetivo diminuir e eliminar barreiras tarifárias e não-tarifárias incidentes sobre bens, melhorar o ambiente de investimentos e contribuir para a liberalização do setor de serviços, em um processo de harmonização dos acordos de livre comércio bilaterais e sub-regionais já existentes entre membros e sócios da ASEAN. Conta com a participação de Vietnã, Brunei, Camboja, Filipinas, Indonésia, Laos, Malásia, Mianmar, Cingapura, Tailândia, Austrália, China, Coréia do Sul, Japão e Nova Zelândia. Estes países enxergam a RCEP como uma grande oportunidade para ampliar os fluxos de comércio e de investimentos intrarregionais. A relevância deste bloco se dá pelo fato de seus membros representarem 50% da população mundial, 32% do PIB global e realizam cerca de 28% do comércio mundial, além de serem grandes economias dinâmicas e, em sua maioria, emergentes, o que permite a visualização de um crescimento ainda maior. Estes fatores o tornam o maior bloco econômico do mundo, que tende a crescer ainda mais, visto que existe a intenção de reincorporar 6 a Índia em um futuro a médio prazo. Outro ponto importante de se levantar, é que o Acordo foi construído na janela de oportunidade deixada pela retirada dos Estados Unidos das negociações da Parceria Transpacífica 7 . 6 O país fazia parte das negociações até a 3º Cúpula da RCEP em Bangkok, quando o primeiro-ministro Narendra Modi argumentou que seu governo deveria priorizar a proteção dos trabalhadores nacionais, que seriam supostamente os mais afetados pelo Acordo. 7 .O TPP (Transpacific Partnership Agreement, TPP) tinha potencial para se tornar o maior tratado de livre comércio do mundo, com projeções de cobrir 40% do comércio mundial (base de 2015), contando com doze países membros: além dos proponentes citados, Vietnã, Peru, Canadá, Malásia, México, Japão e Chile (TPP-12) RICRI, Volume 9, Número 17, 2021 132 “Portanto, ao dispensar a oportunidade, além de abrir mão dos ganhos potenciais, Trump ainda deixou o caminho aberto para que as negociações da RCEP fossem aceleradas [...]” (Carvalho, 2019, p. 4). Diante disso, temos que o grande desafio do bloco econômico será acomodar de maneira relativamente equilibrada as aspirações de países tão diferentes (Carvalho, 2019). De um lado, países pouco desenvolvidos como Laos, Brunei, Camboja e Mianmar; de outro China, Japão, Austrália, Nova Zelândia, países com a economia mais fortalecida. A ausência dos Estados Unidos deste acordo evidencia ainda mais a posição cada vez mais afastada, econômica e estrategicamente do Sudeste da Ásia. A assinatura da RCEP configura um tratado de livre comércio entre a China e alguns aliados mais próximos dos Estados Unidos, como Japão, Coreia do Sul, Austrália, além de Vietnã, Cingapura, Indonésia e (talvez) Índia. Isso ocasiona no decrescimento ainda maior da sua importância para a região, e no sistema internacional, uma vez que “pode conduzir a maiores mudanças na estrutura do poder global à medida que resulta em maior perda de poder global dos Estados Unidos para a China” (Carvalho, 2019, p. 7). BELT AND ROAD INITIATIVE (BRI) E BANCO ASIÁTICO DE INVESTIMENTO EM INFRAESTRUTURA (AIIB) A reação da comunidade internacional às propostas chinesas da BRI e do AIIB foram mistas. Alguns países dão boas-vindas ao esforço chinês para promover a cooperação e o desenvolvimento regional, por outro lado outros também se preocupam com as possíveis consequências negativas para suas economias domésticas e riscos da estratégia chinesa, como a gestão de riscos geopolíticos, a coordenação de políticas internacionais e sustentabilidade financeira de projetos entre países (Huang, 2016). De certa forma, a promoção das iniciativas pela China é uma demonstração da ambição chinesa em, eventualmente, substituir a ordem econômica liderada pelos EUA. Essa ambição pode ser encontrada na fala do presidente chinês, “The global governance system should not be monopolized by a single country” ( Full Transcript: Interview with Chinese President, 2015). Gabriel Adonis Brunca da Silva 133 A Belt & Road Initiative é uma tentativa importante da China de sustentar seu crescimento econômico, ao explorar novas formas de cooperação econômica internacional com novos parceiros. Oferece a oportunidade do desenvolvimento de um novo sistema de cooperação que, apesar de ser iniciativa chinesa, tem o potencial de beneficiar toda a região asiática. Além disso, a China também procura aumentar sua influência internacional, ao contribuir para a diversificação da arquitetura econômica internacional, incorporando algumas de suas próprias influências. De certa forma, a BRI é uma iniciativa que vai muito além do desenvolvimento da infraestrutura da Ásia. A estrutura da iniciativa possui um escopo mais amplo, envolvendo o diálogo político, a conectividade de infraestrutura, comércio desimpedido, apoio financeiro e intercâmbio de pessoas. Por certo, a Belt and Road Initiative gera oportunidades importantes, ambos em termos da criação de um novo pilar econômico e contribuindo para pensar novas políticas de desenvolvimento econômico para a Ásia, mas também para outras regiões do mundo. Meanwhile, both the regions that America had protected in the postwar years - Europe and Asia - now call their own shots. Trade between Europe and Asia now far exceeds either of their trade with the United States. Both view the Belt and Road Initiative (BRI) as a lucrative opportunity to boost commerce across the Eurasian megacontinent. Neither care for the United State’s suspicion of BRI, for it comes from outside the tent. (Khanna, 2019, p. 11) A diversificação da ordem financeira internacional é extremamente relevante para as relações internacionais como um todo. A União Europeia (UE), até certo ponto, compartilha dessa opinião, como aponta Ricardo Bustillo e Maiza Andoni (2018). Segundo Bustillo e Andoni (2018) tanto a China quanto a UE usam os termos multipolaridade e multilateralismo em suas retóricas. “Ainda que usem esses termos com ênfases diferentes, as perspectivas de superar diferenças conceituais em governança global, agora, parecem ter uma chance maior do que nunca” (Ujvari, 2017 apud Bustillo; Andoni 2018, p. 3), principalmente pelo destaque e relevância que a Ásia vem mostrando na cooperação internacional. Nesse mesmo âmbito, a China teve outro papel de destaque na idealização do Banco Asiático de Investimento em Infraestrutura (AIIB). Sua criação se relaciona com o financiamento e a construção da nova estrutura asiática, através da BRI, mas também e tão importante quanto, pelo papel reduzido que a China e outras nações asiáticas possuem nas instituições de Bretton Woods em contraste com a influência estadunidense (Bustillo; Andoni, 2018). A criação do AIIB é, também, uma reação chinesa ao seu status inferior nas instituições financeiras RICRI, Volume 9, Número 17, 2021 134 tradicionais a despeito de seu crescimento econômico e da crescente participação no comércio mundial. Assim, a China defende uma nova visão de governança global de verdadeira ‘multipolaridade’ e ‘multilateralismo’. O AIIB e a BRI representam um pilar de uma nova arquitetura financeira mundial mais coerente com o consenso das autoridades chinesas e mais sensível às realidades trazidas pelas economias asiáticas. Esse esforço se mostra frutífero, quando se observa a composição do AIIB, membros regionais asiáticos, membros não-regionais europeus, da América do Norte e latino-americanos e a notável ausência dos Estados Unidos e do Japão. ASSOCIAÇÃO DAS NAÇÕES DO SUDESTE ASIÁTICO (ASEAN) A Associação das Nações do Sudeste Asiático (ASEAN) surgiu em 1967, sob o contexto da Guerra Fria, os objetivos centrais do bloco consistiam em “cooperação política, preservação da segurança dos países (diante da ameaça comunista) e busca da cooperação para o desenvolvimento.” (Becard; Castro, 2013, p. 23). Sem dúvida, a principal instituição do regionalismo asiático contemporâneo, a ASEAN sofreu grandes transformações de seu escopo e mandato. Ampliando o número de países-membros após o fim da Guerra Fria, foram estabelecidas novas áreas de convergência, distintas daquelas estabelecidas previamente, transcendendo o interesse individual dos Estados, em razão da interdependência material – integração produtiva e complementaridade comercial – ao regular temas como o sistema financeiro regional e o comércio entre os países que a compõem. (Bacelette, 2012, p. 26). Com o fim dos anos 1990, a ASEAN tornou-se um dos grupos com mais rápido crescimento econômico no âmbito internacional. Grande parte desse crescimento ocorreu depois do estreitamento das relações com a China, a partir dos anos 2000. Assim, a fase recente de engajamento dinâmico e cooperação ampla tem um caráter multidimensional e envolve integração econômica, diálogos políticos, consulta na área de segurança e interações sociais. (Becard; Castro, 2013). Além disso, com o peso significativo nas relações internacionais asiáticas que ganhou após os anos 2000, a China conseguiu exercer grande influência na reorganização das instituições regionais existentes, inclusive na ASEAN. O país conseguiu Gabriel Adonis Brunca da Silva 135 utilizar seus recursos de poder econômico para agir proativamente em momentos de crise e para fortalecer os laços de interdependência econômica com o bloco. O que se observa é que a ASEAN hoje é o principal mecanismo de cooperação do regionalismo asiático. Durante a evolução e fortalecimento da instituição, foi capaz de criar diálogos não só com os países do Sudeste Asiático, mas com as principais economias do Leste da Ásia, China, Japão e Coréia do Sul, ao formar a ASEAN+3. O expansionismo da instituição continuou ao longo das décadas, em 2007 por exemplo, foi o ano de um marco importante, a aceitação da Carta da ASEAN. Com ela, se aprofundou a discussão em alguns pontos como o de se constituir uma instituição legal e aplicável ao Direito Internacional, a promoção de um cronograma para uma maior institucionalização e a separação sua base em um tripé em que um consiste na parte de segurança (ASEAN Political-Security Community), outro na parte de economia (ASEAN Economic Community) e o último na parte cultural (ASEAN Sociocultural Community). Além disso, a carta também constrói em definitivo as regras de relacionamento regional e também a parte institucional, transformando essas funções que ainda eram carentes de regras e clareza institucional em algo melhor acabado e com uma visão mais clara de seu funcionamento. (Oliveira Júnior, 2015). Se as lideranças regionais eram reticentes ao modelo de integração interestatal durante as décadas de 1970 a 1990, essa percepção não subsiste na atualidade (Bacelette, 2012). A mudança de percepção quanto à institucionalidade da integração regional asiática se reflete nas iniciativas alcançadas. O fortalecimento da ASEAN foi o ponto de partida e principal instrumento para o crescimento da cooperação, através dos acordos de livre comércio e da coordenação política entre os países da região. A criação do novo bloco econômico RCEP, por exemplo, só pode acontecer pelo espaço de discussão proporcionado pelos fóruns da ASEAN. CONSIDERAÇÕES FINAIS Sendo assim, o contínuo crescimento econômico das economias asiáticas somado ao fortalecimento das iniciativas de cooperação regionais e à criação de novos mecanismos de cooperação condicionam a Ásia a possuir importância central nas relações internacionais atuais, RICRI, Volume 9, Número 17, 2021 136 como também na adaptação da ordem mundial. O sistema vigente, fortemente influenciado pelos países ocidentais, e não representativos ou sub-representativos em relação aos países emergentes, em especial os da Ásia, está passando por mudanças. Essas transformações, entretanto, não significam diretamente um declínio da importância e relevância globais de Estados Unidos, União Europeia e Japão. Quando diz-se sobre a ordem global, se fala da distribuição de poder e como esse poder é governado. “The anchor of global order isn’t necessarily a single country or set of values, as was the case with the currently warning Western liberal international order” (Khanna, 2019, p. 11). Ao invés da simples substituição de uma superpotência por outra, como muitos especulam, a relação EUA-China, a multipolaridade e o multilateralismo estão sendo transformados pelo novo e forte sistema regional asiático de forma profunda. Entende-se a partir das reflexões feitas neste artigo que o promissor sistema de cooperação asiático, fortalecido pelas iniciativas de cooperação analisadas, possui um grande peso estratégico na governança global de hoje, e tende a possuir ainda mais no futuro. O regionalismo asiático potencializa a emergência de um multilateralismo verdadeiramente global, deslocando a ordem liberal ocidental vigente até então. 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