IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR* Carlos Duarte coyuntura IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR Carlos Duarte** RESUMEN (VWHWUDEDMRVHVXVWHQWDHQXQDUHYLVLyQGHODVWUDQVIRUPDFLRQHVFRQWHPSRUiQHDVGHODOHJLVODFLyQFRORPELDQD EXVFDQGR FDUDFWHUL]DU FXiO HV HO PRGHOR GH JREHUQDELOLGDG PLQHUD D SDUWLU GH OD &RQVWLWXFLyQ GH 3DUD WDOILQVHGHVDUUROODXQHMHUFLFLRFRPSDUDWLYRHQWUHHOVLVWHPDOHJLVODWLYRLQPHGLDWDPHQWHSUHFHGHQWHHO&yGLJR PLQHURGH FRQWLQXDQGRFRQODOHJLVODFLyQTXHJUDYLWDDOUHGHGRUGHOD/H\&yGLJRPLQHURYLJHQWH SDUDILQDOL]DUFRQORVGLVFXVLRQHVMXUtGLFDV\VRFLDOHVTXHOOHYDUtDQDGHFODUDULQH[HTXLEOHOD~OWLPDGHODVUHIRUPDV OHJLVODWLYDV/H\GHO(VWHHMHUFLFLREXVFDGHOLQHDUODDGPLQLVWUDFLyQGHORVUHFXUVRVPLQHURVEDMROD WHQVLyQHQWUHODVSROtWLFDVGHDSHUWXUDHFRQyPLFD\ORVGHUHFKRVVRFLDOHVFRQVDJUDGRVHQODQXHYDFRQVWLWXFLyQ$ PRGRGHFRQFOXVLyQVHSUREOHPDWL]DHODFWXDOVLVWHPDGHJREHUQDQ]DPLQHUDIUHQWHDDQWHULRUHVPRGHORVWDPELpQ GHJREHUQDQ]DPLQHUDLPSOHPHQWDGRVHQHOSDtV/XHJRVHUHDOL]DXQSDUDOHORHQWUHODOHJLVODFLyQFRORPELDQD\ ORVSULQFL SDOHVHOHPHQWRVTXHYLHQHQWUDQVIRUPiQGRVHHQODOHJLVODFLyQPLQHUDFKLOHQD)LQDOPHQWH VHSODQWHD KDVWDTXpSXQWRXQDDGPLQLVWUDFLyQGHOVXEVXHORTXHEXVFDDWRGDFRVWDRIUHFHUODVPHMRUHVJDUDQWtDVSDUDTXHOD H[SORWDFLyQPLQHUDVHUHDOLFHGHDFXHUGRFRQORVLQWHUHVHVPXOWLQDFLRQDOHVSXHGHFRQYHUWLUVHHQKHUUDPLHQWDGH GHVSRMRKDFLDODSHTXHxDPLQHUtD\QXPHURVRVWHUULWRULRVKDELWDGRVSRUSREODFLRQHVpWQLFDV 3DODEUDV FODYHV *REHUQDELOLGDG PLQHUD QHROLEHUDOLVPR DQWURSRORJt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yQ )HFKDGHDSUREDFLyQ (VWHWUDEDMRVHJHVWyHQHOPDUFRGHO6HPLQDULRGH&RQIOLFWRWHUULWRULR\JREHUQDELOLGDGGHOD8QLYHUVLGDG ,&(6,HQ&DOLFRQWLQXyEDMRHODXVSLFLRGHO3UR\HFWRGH,QYHVWLJDFLyQ,QWHUVHFFLRQHVHQWUHHVSDFLRGHVDUURO OR \GLIHUHQFLDVRFLDOGHO'HSDUWDPHQWRGH(VWXGLRV6RFLDOHV\HO&HQWURGH,QYHVWLJDFLyQ&,(6GHODPLVPD 8QLYHUVLGDG\SXGRWHUPLQDUVHJUDFLDVDODSR\R\GLVFXVLyQFROHJLDGDHQHO&HQWURGH3HQVDPLHQWR5$,=$/ $QWURSyORJRGHOD8QLYHUVLGDG1DFLRQDOGH&RORPELD3URIHVRUGHO'HSDUWDPHQWRGH(VWXGLRV6RFLDOHVGH OD8QLYHUVLGDG,&(6,\PLHPEURGHO&HQWURGH,QYHVWLJDFLRQHV6RFLDOHVă&,(6GHODPLVPD8QLYHUVLGDG\HO &HQWURGH3HQVDPLHQWR/DWLQRDPHULFDQR5$,=$/ análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 27 IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR Carlos Duarte LA GOBERNABILIDAD MINERA /D³JREHUQDELOLGDG´HVXQWpUPLQREDVWDQWHYHUViWLOHQVXXWLOL]DFLyQFRQWHPSRUiQHDHVSHFLDOPHQWH SRUTXHSHUPLWHDERUGDUDWUDYpVGHVXVP~OWLSOHVDULVWDVXQDVHULHGHIHQyPHQRVSROtWLFRVHQWDQWR HMHUFLFLRGHOSRGHUHOHJLGRGHPRFUiWLFDPHQWHHFRQyPLFRVHQODPHGLGDTXHVHUHODFLRQDFRQOD DGPLQLVWUDFLyQGHORVUHFXUVRVSURGXFWLYRVHQXQWHUULWRULRSDUWLFXODU\VRFLRDQWURSROyJLFRVHQ FXDQWRWLHQHTXHYHUFRQODSRVLELOLGDGGHLQVWDXUDUHVTXHPDVGHOHJLWLPLGDG\GHSDUWLFLSDFLyQ GHODVSREODFLRQHVHQODVGHFLVLRQHVTXHORVDIHFWDQ +LVWyULFDPHQWH H[LVWHQ GLIHUHQWHV DSUR[LPDFLRQHV SDUD FRPSUHQGHU \ XWLOL]DU HO FRQFHSWR GH ³JREHUQDELOLGDG´SRUORJHQHUDOVHKDHQWHQGLHQGRHVWHWpUPLQRFRPRVLQyQLPRGH³*RELHUQR´ FRQIRUPHDVXUDt]HWLPROyJLFDNXEHUQkQTXHVHUHILHUHDOFRQWUROGHXQEXTXH\TXH\D3ODWyQ KDEUtDXWLOL]DGRSRUSULPHUDYH]SDUDUHIHULUVHPHWDIyULFDPHQWHDOJRELHUQRGHORVKRPEUHV/D DFHSFLyQ FRQWHPSRUiQHD GHO FRQFHSWR HVSHFLDOPHQWH XWLOL]DGD SRU RUJDQLVPRV PXOWLODWHUDOHV \ 21*VWLHQHTXHYHUFRQODFDSDFLGDGGHOJRELHUQRSDUDOHJLWLPDUVXVGHFLVLRQHVFRQEDVHHQXQ GHVHPSHxR HILFD] GH VXV IXQFLRQHV (Q WpUPLQRV PiV DPSOLRV ³>«@ OD JREHUQDELOLGDG WDPELpQ SXHGHGHILQLUVHFRPRODFXDOLGDGSURSLDGHXQDFRPXQLGDGSROtWLFDVHJ~QODFXDOVXVLQVWLWXFLRQHV GHJRELHUQRDFW~DQHILFD]PHQWHGHQWURGHVXHVSDFLRGHXQPRGRFRQVLGHUDGROHJLWLPRSRUOD FLXGDGDQtDSHUPLWLHQGRDVtHOOLEUHHMHUFLFLRGHODYROXQWDGSROtWLFD\GHOSRGHUHMHFXWLYRPHGLDQWH ODREHGLHQFLDFtYLFDGHOSXHEOR´$FRVWD >@ 6LQHPEDUJRHVLPSRUWDQWHVHxDODUTXHHQHVWHWH[WRODXWLOL]DFLyQGHOFRQFHSWRGH³JREHUQDELOLGDG PLQHUD´ VH JXLDUi EDMR ODV VLJXLHQWHV FRQVLGHUDFLRQHV SULPHUR OD ³JREHUQDELOLGDG´ HQ WDQWR FRQFHSWRQRVHUHVWULQJLUiDORVSURFHVRVGHWRPDGHGHFLVLRQHVVLQRTXHGHVGHXQDSHUVSHFWLYDPiV DPSOLDDSXQWDUiDHVWDEOHFHUHOFRQMXQWRGHFRQGLFLRQHVIDYRUDEOHVRGHVIDYRUDEOHVSDUDHOHMHUFLFLR GHOJRELHUQR6HJXQGRFXDQGRVHKDEOHGHOD³JREHUQDELOLGDGPLQHUD´VHEXVFDUiVXEUD\DUOD FRQQRWDFLyQSROtWLFDGHOFRQFHSWRODFXDOSUHVXSRQHODVREHUDQtDGHODVHVIHUDVRUJDQL]DWLYDVGHO HVWDGRHQODWRPDGHGHFLVLRQHV\WHUFHURHVLPSRVLEOHVRVOD\DUTXHODH[SORWDFLyQGHORVUHFXUVRV PLQHURVDORODUJRGHODKLVWRULDFRORPELDQDVHKDHVWUXFWXUDGRHQFRQWH[WRVGHHFRQRPtDVGH HQFODYHSURGXFWLYR (Q XQ WUDEDMR DQWHULRU 'XDUWH VH LGHQWLILFDURQ RFKR SHULRGRV GH JREHUQDELOLGDG PLQHUDDORODUJRGHODKLVWRULDQDFLRQDO6LQHPEDUJRHVWHWH[WRVHFRQFHQWUDUDHQHOVLVWHPD GHJRELHUQRGHOVXEVXHORPLQHURDORODUJRGHORV~OWLPRVDxRV6HWRPDUiFRPRSXQWRGH UHIHUHQFLDFURQROyJLFRODUHIRUPDFRQVWLWXFLRQDOGH\DTXHSDUDHOFDVRFRORPELDQRHVHO PRPHQWR HQ HO TXH VH LQWHQWD FRQVROLGDU XQ HVWDGR VRFLDO GH GHUHFKR PXOWLFXOWXUDO DO WLHPSR TXHVHSURIXQGL]DXQPRGHORHFRQyPLFRFODUDPHQWHQHROLEHUDO3DUDWDOHIHFWRVHWRPDUiQFRPR UHIHUHQFLDPHWRGROyJLFDODVSULQFLSDOHVWUDQVIRUPDFLRQHV\GHEDWHVOHJLVODWLYRVTXHDHVWHUHVSHFWR VHSURGXMHURQHQHOODSVRGHWLHPSRVHxDODGR(VWHHMHUFLFLRGHRUJDQL]DFLyQFURQROyJLFDEXVFD FDUDFWHUL]DU HO PRGHOR GH H[SORWDFLyQ GH ORV UHFXUVRV PLQHURV EDMR XQD JXEHUQDPHQWDOLGDG FODUDPHQWHIDYRUDEOHDOQHROLEHUDOLVPRSHURQRSRUHOORDVDOYRGHGHEDWHV\UHVLVWHQFLDVTXH L/DSRVHVLyQSUHFDULD\HOVLVWHPDGHRFXSDFLyQQHRJUDQDGLQRLL/DPLQHUtDEDMRHO3ULQFL SLRGH³$FFHVLyQ´HQODpSRFD5HSXEOLFDQD LLL(OVLVWHPDGH2FXSDFLyQEDMRHOSULQFL SLR³UHVQXOOLXV´LY(OPRGHORGHFRQFHVLyQHQODSULPHUDPLWDGGHOVLJOR;;Y/DOH\ GH\HO&RQWUDWRGH$VRFLDFLyQ\ODQDFLRQDOL]DFLyQGHODH[SORWDFLyQLY/DOHJLVODFLyQPL[WDS~EOLFDăSULYDGDHO&yGLJR GH0LQDVGHO'HFUHWRGHYLL/DDGPLQLVWUDFLyQPLQHUDEDMRHOPRGHORQHROLEHUDOGHHQFODYHH[SRUWDGRU\YLLL&ULVLVH ,QH[HTXLELOLGDGGHO&yGLJR0LQHUR9LJHQWH3DUDFRQVXOWDUHQGHWDOOHFDGDXQDGHODVFURQRORJtDVPHQFLRQDGDVFRQVXOWDUHOWUDEDMR *REHUQDELOLGDG0LQHUD&URQRORJtDVOHJLVODWLYDVGHOVXEVXHORHQ&RORPELDHOFXDOHVDFFHVLEOHHQODGLUHFFLyQ:HEKWWSZZZ UDL]DOFRPWH[WRVGHUDL]DOYVWF PLQHULD análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 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27 IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR Carlos Duarte (VWDGR\ORVSDUWLFXODUHV(VPX\LPSRUWDQWHDQRWDUTXHSRUSULPHUDYH]HOHVWDGRGLIHUHQFLDUtD FODUDPHQWHODH[SORWDFLyQ\H[SORUDFLyQPLQHUDHQYLUWXGGHVXPDJQLWXG\WHFQLILFDFLyQ%DMR GLFKD SUHUURJDWLYD VH GLVWLQJXLHURQ WUHV FODVHV GH PLQHUtD SHTXHxD PHGLDQD \ JUDQ PLQHUtD 9DOHODSHQDUHPDUFDUTXHGLFKDGLIHUHQFLDFLyQQRVHULDUHWyULFDVLQRTXHH[LJLUtDFRQGLFLRQHV\ UHTXLVLWRVGLIHUHQFLDGRVGHDFXHUGRDOWLSRGHPLQHUtD 'HLJXDOPRGRHO'HFUHWRHVWDEOHFLyTXHODVDFWLYLGDGHVPLQHUDVGHH[SORUDFLyQ\H[SORWDFLyQ GH FDUEyQ TXH IXHUDQ SURSLHGDG GH OD QDFLyQ VRODPHQWH VH SRGtDQ LPSOHPHQWDU PHGLDQWH HO VLVWHPDGH³$SRUWH0LQHUR´RWRUJDGRDHPSUHVDVLQGXVWULDOHV\FRPHUFLDOHVGHO(VWDGRTXHHVWpQ YLQFXODGDVDO0LQLVWHULRGH0LQDV\(QHUJtD/RVDSRUWHVGHFDUEyQGHEtDQRWRUJDUVHDOD(PSUHVD 1DFLRQDO0LQHUD/WGD0,1(5&2/ %DMRHVWHPRGHORHUDQHFHVDULRRUJDQL]DUXQVLVWHPDGH VHJXLPLHQWRGHWDOODGRGHODH[SORUDFLyQ\H[SORWDFLyQPLQHUDHQHOSDtVSRUWDOUD]yQHO&yGLJR GHLPSOHPHQWRFRQULJXURVLGDGHO5HJLVWUR0LQHUR(QHVWHFRQWH[WRODLQVFULSFLyQGH7tWXORV HQHO5HJLVWUR0LQHURHVWDEDFRPSXHVWDSRUWUHVSDUWHVHO5HJLVWUROD,GHQWLILFDFLyQItVLFDGHODV iUHDVGHORVWtWXORV\HO$UFKLYR >@ ,JXDOPHQWHUHOHYDQWHIXHHOHVIXHU]RSRUUDFLRQDOL]DUHOLPSDFWRDPELHQWDOGHODDFWLYLGDGPLQHUD (QHVWDGLUHFFLyQHO'HFUHWRGHHVWDEOHFLyTXHODHMHFXFLyQGHWUDEDMRVDXWRUL]DGRVSRU ODVOLFHQFLDVGHH[SORWDFLyQHQFRQWUDWRVGHFRQFHVLyQUHTXLHUDQGH³/LFHQFLD$PELHQWDO´FRPR UHTXLVLWRSDUDODLQVFULSFLyQHQHO5HJLVWUR0LQHUR'HDFXHUGRFRQHO'HFUHWRGHORV $SRUWHVVHLQVFULELUiQHQHO5HJLVWUR0LQHUR1DFLRQDO'HHVWDPDQHUDTXHGyLQVWLWXFLRQDOL]DGR TXHSDUDFDGDXQDGHODVDFWLYLGDGHVGHH[SORUDFLyQ\GHH[SORWDFLyQVHGHEtDREWHQHUODUHVSHFWLYD /LFHQFLD$PELHQWDO %DMRHVWDPLVPDOtQHDGHJREHUQDQ]DPLQHUDHVPX\GLFLHQWHHOHVIXHU]RGHO&yGLJRGH SDUDVHxDODU\GHOLPLWDUODV]RQDVPLQHUDVGHQWURGHORVWHUULWRULRVGHODVFRPXQLGDGHVLQGtJHQDV \QHJUDV(O&yGLJRGHOHJDEDGLFKDUHVSRQVDELOLGDGHQFDEH]DGHO0LQLVWHULRGH0LQDV\(QHUJtD TXLHQGHEtDYHODUSDUDTXHăHQGLFKRVFDVRVODH[SORUDFLyQ\H[SORWDFLyQGHORVUHFXUVRVQDWXUDOHV QRUHQRYDEOHVVHLPSOHPHQWDUDEDMRFRQGLFLRQHVHVSHFLDOHVEXVFDQGRODSURWHFFLyQ\SDUWLFLSDFLyQ GHHVWDVFRPXQLGDGHV2WURVDVSHFWRVTXHSHUPLWHQREVHUYDUODLQWHQFLyQJXEHUQDPHQWDOSDUD UDFLRQDOL]DUODH[SORWDFLyQPLQHUDFRPRXQUHFXUVRS~EOLFRIXHURQORVVLJXLHQWHV L/DGLIHUHQFLDFLyQGHKHFKRHQWUHODSHTXHxD\ODJUDQPLQHUtDTXL]iVHOHMHPSORPiVUHPDUFDEOHHQ HVWHiPELWRIXHTXHODV/LFHQFLDVH,QIRUPHVGH([SORWDFLyQUHTXHULGRVSRUHO0LQLVWHULRGH0LQDV\ SULQFL SLRVLPSOHPHQWDUtDFRQOD/H\GHOD&RQVWLWXFLyQGH$SDUWLUGHHVHPRPHQWRORVSURSLHWDULRVGHWLHUUDVWHQGUtDQXQ DxRDSDUWLUGHODHQWUDGDHQYLJHQFLDGHOD/H\SDUDEXVFDU\GHQXQFLDUODVPLQDVTXHVHHQFRQWUDUDQHQVXSURSLHGDG\KDFHUVHDVt DFUHHGRUHVDOGHUHFKRGHGRPLQLRVREUHORVKDOOD]JRVSDVDGRHVHWLHPSRHOGHUHFKRORREWHQGUtDFXDOTXLHUSHUVRQDTXHEXVFDQGR HQWLHUUDVDMHQDVRSURSLDVHQFRQWUDUDXQDPLQDVXVFHSWLEOHGHVHUDSURSLDGD (QORVWpUPLQRVGHODUWLFXORGHO'HFUHWRGHHO$SRUWHPLQHURHVHODFWRSRUHOFXDOHO0LQLVWHULRRWRUJDDVXVHQWLGDGHV DGVFULWDVRYLQFXODGDVTXHWHQJDQHQWUHVXVILQHVODPLQHUtDODIDFXOWDGWHPSRUDO\H[FOXVLYDGHH[SORUDU\H[SORWDUORVGHSyVLWRV\ \DFLPLHQWRVGHXQRRYDULRVPLQHUDOHVTXHSXHGDQH[LVWLUHQXQiUHDGHWHUPLQDGD"'LFKDDFWLYLGDGPLQHUDSRGtDVHUFRQWUDWDGDFRQ WHUFHURVEDMRODVUHJODVJHQHUDOHVFRQVDJUDGDVHQGLFKDOHJLVODFLyQ 0,1(5&2/ GHVDUUROODUtD ORV SURJUDPDV GH FRQWUDWDFLyQ PLQHUD TXH FRQVLGHUDUi QHFHVDULRV SDUD HO DSURYHFKDPLHQWR GH ORV \DFLPLHQWRVFDUERQtIHURV&RQHVWHILQVHH[SLGLyOD5HVROXFLyQGH³SRUPHGLRGHODFXDOVHHVWDEOHFHQFULWHULRVJHQHUDOHV \QRUPDVEiVLFDVGHFRQWUDWDFLyQSDUDSHTXHxD PHGLDQD\JUDQPLQHUtDGHO&DUEyQHQiUHDVGHORVDSRUWHV\iUHDVGHOHJDGDV´ $SDUWLUGHHVWD5HVROXFLyQORVWtWXORVPLQHURVVyORSRGtDQVHURWRUJDGRVHQiUHDVGH$SRUWHVGH0,1(5&2//RVWtWXORVPLQHURV RWRUJDGRVFRQDQWHULRULGDGSRUHO0LQLVWHULRGH0LQDV\(QHUJtDFRPRSHUPLVRVOLFHQFLDV\FRQFHVLRQHVSDVDEDQDVHUDGPLQLVWUDGRV SRU0,1(5&2/SRUGHOHJDFLyQGHOPLVPR\ODVQXHYDVVROLFLWXGHVGHEtDQWUDPLWDUVHDQWH0,1(5&2/ /RVWtWXORVDLQVFULELUHQHO5HJLVWUR0LQHURHUDQ/LFHQFLDVGH([SORUDFLyQ /LFHQFLDVGH([SORWDFLyQ 7tWXORV0LQHURV9LJHQWHV &RQWUDWRVGH&RQFHVLyQ $SRUWHV (PEDUJRVGHORVGHUHFKRVDH[SORUDU\H[SORWDU 6XEFRQWUDWRVGHH[SORWDFLyQ 6HUYLGXPEUHV PLQHUDV/DFRQVWLWXFLyQUHIRUPD\GLVROXFLyQGHODVVRFLHGDGHVRUGLQDULDVGHPLQDV3URJUDPDVGHWUDEDMRHLQYHUVLRQHVDSUREDGRV análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 27 Carlos Duarte (QHUJtDFRQWHQtDQtWHPV\H[LJHQFLDVGLIHUHQFLDGDVHQWUHODSHTXHxD\ODJUDQPLQHUtD$UW\ LLODSUHRFXSDFLyQHVWDWDOSRUSUHVHUYDUHOSURWDJRQLVPRGHODQDFLyQ\VXVFLXGDGDQRVFRQUHVSHFWRDOD H[SORWDFLyQGHODULTXH]DPLQHUDGHDFXHUGRFRQ$UWtFXORQRKDEtDLJXDOGDGHQWUHQDFLRQDOHV\ H[WUDQMHURV\VHRULHQWDEDDO0LQLVWHULRDSUHIHULUODILJXUDGH$SRUWHVREUHODVRWUDVSRVLELOLGDGHV GHWLWXODFLyQPLQHUD'HDFXHUGRFRQORV$UW\HQFDVRGHUHDOL]DUVHODH[SORWDFLyQEDMR ODILJXUDGH$VRFLDFLyQODVXWLOLGDGHVGHEtDQVHULJXDOLWDULDVHQWUHHVWDGR\SDUWLFXODUHV$GLIHUHQFLD GHOPRGHORGHH[SORWDFLyQLPSOHPHQWDGRHQODSULPHUDPLWDGGHOVLJOR;;ODV&RQFHVLRQHVHQFDVR GHDGMXGLFDUVHGHEtDQHVWLSXODUVHSDUDXQSHULRGRQRPD\RUDDxRVQRSURUURJDEOHV$UW\ ORVFRQFHVLRQDULRVHVWDEDQHQODREOLJDFLyQGHGHMDUIXQFLRQDQGRODVLQVWDODFLRQHV\HTXLSRVSDUD HO(VWDGRDOWHUPLQRGHODPLVPD$UW'HLJXDOPDQHUDVHHVWDEOHFLyXQFDQRQGLIHUHQFLDGR GHODVSDUWLFLSDFLRQHVUHFLELGDVSRUODQDFLyQ5HJDOtDV3DUWLFLSDFLRQHVH,PSXHVWRV(VSHFtILFRV ,PSXHVWRDO&DUEyQ$UW coyuntura IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR 2. LA ADMINISTRACIÓN MINERA BAJO LA TENSIÓN NEOLIBERAL >@ /D&RQVWLWXFLyQGHHVWDEOHFLyHQHO$UWtFXORTXH³(O(VWDGRHVSURSLHWDULRGHOVXEVXHOR \ORVUHFXUVRVQDWXUDOHVQRUHQRYDEOHVVLQSHUMXLFLRGHORVGHUHFKRVDGTXLULGRV\SHUIHFFLRQDGRV FRQ DUUHJOR D ODV /H\HV SUHH[LVWHQWHV´ $TXHOODV QRUPDV HQ TXH VH HVWDEOHFtD OD SURSLHGDG GH OD 1DFLyQ VREUH \DFLPLHQWRV GH KLGURFDUEXURV \ H[FHSFLRQDOPHQWH OD SURSLHGDG SULYDGD VREUH DTXHOORVHQTXHHOSURSLHWDULRFXPSOtDORVUHTXLVLWRVH[LJLGRVSRUOD/H\QRIXHURQPRGLILFDGDV SRUOD&RQVWLWXFLyQGHO análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 27 IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR Carlos Duarte /RVOtPLWHVSULYDGRV\S~EOLFRVGHODSURSLHGDGPLQHUDVHUtDXQRGHORVGHEDWHVPiVLPSRUWDQWHV GHODJREHUQDELOLGDGPLQHURHQHUJpWLFDOXHJRGHODVUHIRUPDVLQWURGXFLGDVSRUOD/H\GH %DMRODQXHYDFRQVWLWXFLyQGLFKRGHEDWHWHQGUtDTXHDJXDUGDUKDVWDOD/H\GHGRQGHD WUDYpVGHODUWtFXORWHUFHURVHHVWDEOHFHUtDTXHODVGLVSRVLFLRQHVVREUHUHFRQRFLPLHQWRH[FHSFLRQDO GHSURSLHGDGSULYDGDVREUHKLGURFDUEXURV\VREUHORVGHVFXEULPLHQWRVPLQHURVVHULDQOD~QLFD LQWHUSUHWDFLyQ DXWRUL]DGD GH OD /H\ GH 'LFKD /H\ FRQGLFLRQDED HO UHFRQRFLPLHQWR GH OD SURSLHGDG SULYDGD GH \DFLPLHQWRV SHWUROtIHURV \ PLQHURV D OD H[LVWHQFLD GH \DFLPLHQWRV GHVFXELHUWRVDQWHVGHOGHGLFLHPEUHGH(VWDHUDODIHFKDGHHQWUDGDHQYLJHQFLDGHOD /H\TXHLQVWDXUyHOPRGHORGHH[SORWDFLyQGHORVUHFXUVRVPLQHUDOHVEDMRODWXWHOD\OLGHUD]JR HVWDWDO&RPRHUDGHHVSHUDUVHVHSUHVHQWDURQYDULDVDFFLRQHVGHLQFRQVWLWXFLRQDOLGDGSRUSDUWH GH ORV DJHQWHV SULYDGRV DIHFWDGRV 6LQ HPEDUJR GLFKDV GHPDQGDV QR VHULDQ DFHSWDGDV SRU OD &RUWH&RQVWLWXFLRQDOHQODVHQWHQFLD&GHOGHVHSWLHPEUHGH >@ $SHVDUGHHVWHSUHFHGHQWHGHUDWLILFDFLyQGHOGRPLQLRDEVROXWRGHODQDFLyQVREUHORVUHFXUVRV PLQHURV GH XQ PRGR VLPLODU D FRPR VXFHGLy HQ HO SHULRGR GH JREHUQDELOLGDG PLQHUD EDMR HO 3ULQFLSLR GH $FFHVLyQ D FRPLHQ]RV GHO VLJOR ;; GH PDQHUD SURJUHVLYD VH YROYLy D VHQWLU FRQ IXHU]DODLQMHUHQFLDGHSRGHURVRVLQWHUHVHVSULYDGRV\HPSUHVDVPXOWLQDFLRQDOHVHQODIRUPDGH DGPLQLVWUDFLyQGHORVUHFXUVRVPLQHURV8QFODURHMHPSORGHHVWDVLWXDFLyQVHUtDHOSULPHULQWHQWR GH UHIRUPD DO &yGLJR 0LQHUR GH OXHJR GH OD &RQVWLWXFLyQ GHO 'LFKD LQLFLDWLYD VHULD SUHVHQWDGDSRUODDERJDGD/XLVD)HUQDQGD$UDPEXUXTXLHQHQSUHVHQWyXQSUR\HFWRGH OH\SDUDXQQXHYRFyGLJRGHPLQDV(VWHSUR\HFWRSURSRQtDLHOGHVPRQWHGHOOLGHUD]JRHVWDWDO HQODH[SORWDFLyQPLQHUDSRUPHGLRGHOGHVPDQWHODPLHQWRGHODHPSUHVDHVWDWDOPLQHUD0LQHUFRO /WGDLLSULYLOHJLDUODH[SORWDFLyQPLQHUDSULYDGDLQWURGXFLHQGRFXDQWLRVDVUHEDMDVWULEXWDULDV DVt FRPR OD SRVLELOLGDG GH ILUPDU FRQWUDWRV GH H[SORWDFLyQ H[FOXVLYD D ODV HPSUHVDV SULYDGDV LLL OD IOH[LELOL]DFLyQ GH ORV FRQWUROHV DPELHQWDOHV VREUH ODV H[SORWDFLRQHV \ OD KDELOLWDFLyQ GH QXHYRV WHUULWRULRV QDFLRQDOHV SDUD HO DSURYHFKDPLHQWR PLQHUR WUDQVQDFLRQDO (O SUR\HFWR GH LQWHQWDEDFRQYHUWLUODV]RQDVGHH[FOXVLyQGHODPLQHUtDGRQGHH[LVWtDSURKLELFLyQWRWDOGH H[SORWDFLyQHQ]RQDVUHVWULQJLGDV'HHVWDPDQHUDVHEXVFDEDKDFHUPLQHUtDDJUDQHVFDODHQ iUHDVYHGDGDVSRUHO&yGLJRPLQHURGHFRQXQSHUPLVRTXHVHULDUHVSRQVDELOLGDGGHODV DXWRULGDGHVFRPSHWHQWHVUHJLRQDOHV &RPRYHUHPRVDFRQWLQXDFLyQJUDQSDUWHGHOSUR\HFWRGH&yGLJR0LQHURGHVHLPSOHPHQWR EDMR OD /H\ GHO DFWXDO &yGLJR 0LQHUR DVt FRPR SRU PHGLR GH XQD SURIXQGD UHVWUXFWXUDFLyQGHORVRUJDQLVPRVTXHHO(VWDGRKDEtDFRQVWUXLGRDSDUWLUGHSDUDWRPDUHO FRQWUROGHORVUHFXUVRVQDWXUDOHVGHOD1DFLyQ(VWRVGRVIDFWRUHVSULYLOHJLDURQXQDJREHUQDQ]D PLQHUDVXVWHQWDGDEDMRXQPRGHORGH³HQFODYH´HVGHFLUXQSURFHVRSURGXFWLYRYROFDGRKDFLDHO H[WHULRU\FRQWURODGREDMRORVLQWHUHVHVGHFDSLWDOHVSULYDGRVHLQWHUQDFLRQDOHV /DJREHUQDELOLGDGPLQHUDEDMRHOSULQFL SLRUHVQXOOLXVVLJQLILFyHOPHMRUHVFHQDULRSRVLEOHSDUDODLQYHUVLyQH[WUDQMHUDHQHOSDtV\ HOSHRUSDUDORVLQWHUHVHVGHORVUHFXUVRV\ODVREHUDQtDQDFLRQDO%DMROD/H\GHWXYLHURQOXJDUODVFRQFHVLRQHVGH0DUHV\ %DUFRIDPRVDVHQODPHGLGDTXHIXHURQODVFRQFHVLRQHVPiVJUDQGHVTXHXQSUHVLGHQWHHQWLHPSRVUHSXEOLFDQRVKD\DRWRUJDGRD EHQHILFLDULRVSULYDGRV3RUHMHPSOR/D&RQFHVLyQGH0DUHVTXHHOJRELHUQRGH5H\HVRWRUJRDVXDKLMDGRGHPDWULPRQLR5REHUWR 'H0DUHV DEDUFyXQDH[WHQVLyQGHPLOKHFWiUHDVHQODUHJLyQTXHKR\VHFRQRFHFRPRHO0DJGDOHQD0HGLR DOVXUHVWHGH %DUUDQFDEHUPHMD 9DOHODSHQDDQRWDUTXHODDERJDGD$UDPEXUXHQFDUJDGDGHHVFULELUOD5HIRUPDDO&yGLJR0LQHUR UHSUHVHQWyGHVGHDOD IDPLOLD+LJXHUD3DODFLRV\OXHJRDOD&RURQD*ROGILHOGVVXEVLGLDULDHQHVHPRPHQWRGHOD1RUWHDPHULFDQD&RQTXLVWDGRU0LQHVHQ QXPHURVRFRQIOLFWRVSRUWLWXODFLyQPLQHUDFRQODVDVRFLDFLRQHVGHSHTXHxDPLQHUtDHQ5tR9LHMR6XUGH%ROtYDU(QHVWDGLUHFFLyQ QRSXHGHGHMDUVHGHODGRTXHODILJXUDGH³H[SORWDFLyQH[FOXVLYD´SURSXHVWDHQGLFKRSUR\HFWREHQHILFLDEDGHPDQHUDHYLGHQWHDOD &RURQD*ROGILHOGVIUHQWHDODVSHTXHxDVFRPXQLGDGHVPLQHUDVGHO6XUGH%ROtYDU análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 27 Carlos Duarte 2.1 Restructuración administrativa: desmonte de los aparatos de Estado /DUHHVWUXFWXUDFLyQDGPLQLVWUDWLYDFRPHQ]yFRQHO'HFUHWRGH'LFLHPEUHGHSRUHO FXDOVHUHHVWUXFWXUyHO0LQLVWHULRGH0LQDV\(QHUJtDHO,QVWLWXWRGH$VXQWRV1XFOHDUHV,$1\ 0LQHUDOHVGH&RORPELD6$0LQHUDOFR/RVFXDOHVSDVDURQSRUPHGLRGHOGHFUHWRGH DVHUUHGXFLGRVDGPLQLVWUDWLYDPHQWHGHQWURGHODQXHYDHVWUXFWXUDGHOVHFWRUGHPLQDV\HQHUJtD /DQXHYDHVWUXFWXUDPLQHURHQHUJpWLFDTXHGyFRQIRUPDGDSRUHO0LQLVWHULRGH0LQDV\(QHUJtD GRV8QLGDGHV$GPLQLVWUDWLYDV(VSHFLDOHVOD830(\OD&5(*GRVHVWDEOHFLPLHQWRVS~EOLFRV HO,QJHRPLQDV\HO,36(\RFKRHQWLGDGHVYLQFXODGDV(FRSHWURO(FRJDV0LQHUFRO,6$6$ ,VDJHQ6$(PSUHVD0XOWLSURSyVLWR8UUi6$(63&RUHOFD)(1\&DUERFRO$GLFLRQDOPHQWH VHOHDVLJQDURQDO0LQLVWHULRQXHYDVIXQFLRQHVUHODFLRQDGDVFRQODVHxDOL]DFLyQ\GHOLPLWDFLyQGH ODV]RQDVPLQHUDVLQGtJHQDVGHDFXHUGRFRQODVGLVSRVLFLRQHVGHO&yGLJRGH0LQDV (VWHSURFHVRGHUHHVWUXFWXUDFLyQDGPLQLVWUDWLYDVHSURIXQGL]DHQFRQHO'HFUHWRTXH GLVSXVRODGLVROXFLyQ\OLTXLGDFLyQGH&DUERQHVGH&RORPELD6$&DUERFRO(VWHPLVPRDxR VH HVFLQGLy OD (PSUHVD &RORPELDQD GH 3HWUyOHRV (FRSHWURO TXH VH RUJDQL]y FRQ SHUVRQHUtD MXUtGLFD SDWULPRQLR SURSLR \ DXWRQRPtD DGPLQLVWUDWLYD FRPR VRFLHGDG S~EOLFD SRU DFFLRQHV %DMRODPLVPDRULHQWDFLyQVHFUHyHQHOPLVPRDxROD$JHQFLD1DFLRQDOGH+LGURFDUEXURV\OD 6RFLHGDG3URPRWRUDGH(QHUJtDGH&RORPELD6$(QHOHO'HFUHWRUHHVWUXFWXUyHO ,QVWLWXWRGH,QYHVWLJDFLyQH,QIRUPDFLyQ*HRFLHQWtILFD0LQHUR$PELHQWDO\1XFOHDU,QJHRPLQDV \ SDVR D GHQRPLQDUVH ,QVWLWXWR &RORPELDQR GH *HRORJtD \ 0LQHUtD XWLOL]DQGR D~Q OD VLJOD ©,QJHRPLQDVª(VWH,QVWLWXWRVHFRQYLUWLyHQXQHVWDEOHFLPLHQWRS~EOLFRGHO2UGHQ1DFLRQDOFRQ SHUVRQHUtDMXUtGLFDDXWRQRPtDDGPLQLVWUDWLYD\SDWULPRQLRLQGHSHQGLHQWHDGVFULWRDO0LQLVWHULR GH0LQDV\(QHUJtD&RPRVXREMHWRVHHVWDEOHFLyODUHDOL]DFLyQGHODH[SORUDFLyQEiVLFDSDUDHO FRQRFLPLHQWRGHOSRWHQFLDOGHUHFXUVRV\UHVWULFFLRQHVLQKHUHQWHVDODVFRQGLFLRQHVJHROyJLFDVGHO VXEVXHORGHOWHUULWRULRFRORPELDQRSURPRYHUODH[SORUDFLyQ\H[SORWDFLyQGHORVUHFXUVRVPLQHURV GHOD1DFLyQ\SDUWLFLSDUSRUGHOHJDFLyQHQDFWLYLGDGHVUHODFLRQDGDVFRQODDGPLQLVWUDFLyQGH GLFKRVUHFXUVRV(VWHPLVPRDxRSRUPHGLRGHO'HFUHWRGHOGHHQHURGHVHRUGHQy ODVXSUHVLyQGLVROXFLyQ\OLTXLGDFLyQGHOD(PSUHVD1DFLRQDO0LQHUD/LPLWDGD0LQHUFRO/WGD HPSUHVDLQGXVWULDO\FRPHUFLDOGHO(VWDGR)LQDOPHQWHHQHQHURGHPHGLDQWH'HFUHWRVH PRGLILFyODHVWUXFWXUDGHOD8QLGDGGH3ODQHDFLyQ0LQHUR(QHUJpWLFD830( coyuntura IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR >@ &RPR YHPRV GH DO OD RULHQWDFLyQ GH OD HVWUXFWXUD PLQHUR HQHUJpWLFD GHO SDtV VH WUDQVIRUPR GH PDQHUD SURIXQGD VREUH GRV RULHQWDFLRQHV L FRQYHUWLU ODV HPSUHVDV HVWDWDOHV PLQHUDV\HQHUJpWLFDVHQRUJDQLVPRVPL[WRVLQWHJUDQGRODSDUWLFLSDFLyQGHFDSLWDOHVSULYDGRVHQ VXIXQFLRQDPLHQWR\LLDGDSWDUORVDSDUDWRVHVWDWDOHVGHJRELHUQRPLQHURDODVH[LJHQFLDVGHXQD PLQHUtDGHHQFODYHHQHVWDPHGLGDGLFKRVDSDUDWRVSDVDURQGHVHUHPSUHVDVOLGHUHVHQHOVHFWRU DHVWUXFWXUDVGHVHJXLPLHQWR\DGPLQLVWUDFLyQGHODDFWXDFLyQGHORVDFWRUHVPL[WRV\SULYDGRV 2.2 El modelo de enclave exportador: la Ley 685 del 2001 (OJRELHUQRGH8ULEH9pOH]HPSUHQGLyODUHIRUPDDO&yGLJRGH0LQDVGHEXVFDQGRLQWURGXFLU XQDJREHUQDELOLGDGPLQHUDTXHDPSOLDUDODVIDFLOLGDGHVSDUDODLQYHUVLyQ\H[SORWDFLyQH[WUDQMHUD VREUHORVUHFXUVRVPLQHURVGHODQDFLyQ/D/H\GHODFWXDO&yGLJRGH0LQDVVHHGLILFDUtD HQWRQFHV VLJXLHQGR ORV DQWHFHGHQWHV GHO SUR\HFWR GH $UDPEXUR HQ (Q HVWH FDVR OD /H\ 0HGLDQWH'HFUHWRGHOGHGLFLHPEUHGHVHWUDQVIRUPyDOD&RPLVLyQ1DFLRQDOGH(QHUJtDHQOD830(GiQGROHODFDOLGDG GHRUJDQLVPRFRQFDUiFWHUGHXQLGDGDGPLQLVWUDWLYDHVSHFLDO(VXQD8QLGDG$GPLQLVWUDWLYD(VSHFLDOGHORUGHQ1DFLRQDOGHFDUiFWHU WpFQLFRDGVFULWDDO0LQLVWHULRGH0LQDV\(QHUJtDUHJLGDSRUOD/H\GH\SRUHO'HFUHWRGHHQHURGH&X\D PLVLyQHVUHDOL]DUOD3ODQHDFLyQGHOGHVDUUROORVRVWHQLEOHGHORVVHFWRUHVGHPLQDV\HQHUJtDGH&RORPELDSDUDODIRUPXODFLyQGHODV SROtWLFDVGH(VWDGR\ODWRPDGHGHFLVLRQHVHQEHQHILFLRGHO3DtVPHGLDQWHHOSURFHVDPLHQWR\HODQiOLVLVGHLQIRUPDFLyQ análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 27 IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR Carlos Duarte VHULD SUHSDUDGD DVHVRUDGD \ UHJODPHQWDGD SRU DERJDGRV GH ODV ILUPDV &(0(; +2/&,0 \ /DGULOOHUD6DQWDIp'LFKRWH[WRGH/H\FRQWyDGHPiVFRQHOSDWURFLQLRGHOD$JHQFLD&DQDGLHQVH SDUDHO'HVDUUROOR,QWHUQDFLRQDO\HO%DQFR0XQGLDOVHJ~QORGHQXQFLyHOGHPD\RGH HOFRQJUHVLVWDFDQDGLHQVH%HUQDUG%LJUDVGHO%ORTXH4XHEHTXHQVH(OREMHWLYRHUDRWRUJDUPiV EHQHILFLRVDODVJUDQGHVFRPSDxtDVPLQHUDVGHHVHSDtVTXHHQORV~OWLPRVDxRVVHKDFRQYHUWLGR HQODFDVDPDWUL]GHPXOWLQDFLRQDOHVPLQHUDVDQLYHOPXQGLDO5HYLVHPRVDOJXQRVIUDJPHQWRVGHO GHEDWHHQHOSDUODPHQWRFDQDGLHQVHSUHVHQWDGRHQSRUHOGLSXWDGR%LJUDVDSURSyVLWRGHOD ILUPDGHOWUDWDGRGHOLEUHFRPHUFLRHQWUH&DQDGi\&RORPELD ³(QSULPHUOXJDUHODFXHUGRFRQWLHQHXQFDStWXORVREUHODSURWHFFLyQGHODLQYHUVLyQTXHHYLGHQFLD ODLQWHQFLyQGHIDFLOLWDUODYLGDGHORVFDQDGLHQVHVTXHLQYLHUWHQHQ&RORPELDHVSHFLDOPHQWHHQ HOVHFWRUPLQHUR(VWRHQFXHQWUDVXH[SUHVLyQFRQFUHWDHQHO7UDWDGRGH/LEUH&RPHUFLRHQWUH &DQDGi\OD5HS~EOLFDGH&RORPELD +D\ TXH UHFRUGDU TXH ORV OODPDGRV &yGLJRV GH 0LQHUtD VH UHYLVDURQ KDFH PiV GH DxRV &RQVWLWXFLyQGHFRQHOILQGHGDUXQPRQWyQGHYHQWDMDVILVFDOHV\UHJXODWRULRVSDUDODV HPSUHVDVH[WUDQMHUDVTXHOOHJDURQ\VHLQVWDODURQHQORVSDtVHVHQGHVDUUROOR7RGRHVRIXHILQDQFLDGR GHVGHKDFHYDULRVDxRVSRUGLYHUVDVRUJDQL]DFLRQHVLQWHUQDFLRQDOHVLQFOX\HQGROD&,'$$JHQFLD &DQDGLHQVHGH'HVDUUROOR,QWHUQDFLRQDO\HO%DQFR0XQGLDO$Vt&DQDGiEXVFDQGRQRHVSHUDU KDVWDHOSDUDGDULQFHQWLYRVILVFDOHVDVXVHPSUHVDVXVyVXVWHQWiFXORVLQWHUQDFLRQDOHVHQ HO%DQFR0XQGLDODVtFRPROD$JHQFLD&DQDGLHQVHGH'HVDUUROOR,QWHUQDFLRQDOă&,'$SDUD ILQDQFLDUORVFDPELRVHQORV&yGLJRV0LQHURV\SRUORWDQWRDODVOH\HVTXHHVWRVSDtVHVHVWDEDQ UHIRUPDQGR >@ <D VHD HQ ÈIULFD R HQ &RORPELD GyODUHV FDQDGLHQVHV QXHVWURV LPSXHVWRV IXHURQ XWLOL]DGRV SDUD D\XGDU D UHYLVDU ODV OHJLVODFLRQHV LQWHUQDV UHGXFLHQGR ODV SURWHFFLRQHV DPELHQWDOHV \ SURSRUFLRQDQGRLPSRUWDQWHVUHGXFFLRQHVGHLPSXHVWRVDODVHPSUHVDVTXHOOHJDURQDH[SORUDU\ H[SORWDUODVPLQDV >@/DOHJLVODFLyQGHVGHIXHH[DPLQiQGRVH\UHYLViQGRVHFRQHOILQGHPHMRUDUODVFRQGLFLRQHV SDUDTXHODVHPSUHVDVFDQDGLHQVHVSXGLHUDQOOHJDUDHVRVSDtVHVFRQHOILQGHH[SORUDU\H[SORWDU HO QtTXHO HO FDUEyQ \ ORV \DFLPLHQWRV GH RUR WRGR HOOR D H[SHQVDV GH ODV SREODFLRQHV UXUDOHV 'LQHURGHORVFRQWULEX\HQWHVFDQDGLHQVHVVHXWLOL]ySDUDWDOILQ(OJRELHUQRFRORPELDQRUHFLELy DVLVWHQFLDDWUDYpVGH&,'$\HO%DQFR0XQGLDO6HOHKDGDGRGLQHURDOJRELHUQRFRORPELDQR SDUDD\XGDUDFDPELDUVXOHJLVODFLyQDPELHQWDOFRQHOILQGHVHUPiVIOH[LEOH\PiVIDYRUDEOHSDUD ODVHPSUHVDVPLQHUDV ¢&yPR"(QSULPHUOXJDUODOHJLVODFLyQIXHUHYLVDGDKDFLHQGRSRVLEOHODFRQFHVLyQDXQDHPSUHVD PLQHUDGHXQSHUPLVR~QLFRSDUDSHUPLWLUWDQWRODH[SORUDFLyQ\H[SORWDFLyQGHXQ\DFLPLHQWR PLQHUDO 6HJXQGR ODV FRPSDxtDV PLQHUDV HVWDEDQ EXVFDQGR XQ SOD]R GH DxRV UHQRYDEOHV ¢&yPRVHKDFHHVR",QVWRDORVPLHPEURVGHOSDUODPHQWR&DQDGLHQVHDOHHUXQHVWXGLRGHFDVR PX\LQWHUHVDQWHTXHFRPSOHWDGRSRUOD,QLFLDWLYDGH+DOLID['LFHORVLJXLHQWH $WUDYpVGHVX3UR\HFWRGH(QHUJtD0LQHUtD\0HGLR$PELHQWHOD$JHQFLD&DQDGLHQVHSDUDHO'HVDUUROOR ,QWHUQDFLRQDO&,'$SURSRUFLRQyDSR\RWpFQLFR\ILQDQFLHURSDUDYROYHUDUHGDFWDUODOHJLVODFLyQPLQHUD /D,QLFLDWLYD+DOLID[IXHFUHDGDHQGLFLHPEUHGHGLFKDLQLFLDWLYDHVXQDFRDOLFLyQGH21*V\SDUWLFXODUHVFDQDGLHQVHVTXLHQHV EXVFDQPRQLWRUHDUODVLQLFLDWLYDVGHOJRELHUQRFDQDGLHQVHDVtFRPRGHORVRUJDQLVPRVPXOWLODWHUDOHVHQORVGRPLQLRVGHOGHVDUUROORHO PHGLRDPELHQWHODIHUHOLJLRVD\ORVGHUHFKRVKXPDQRV análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 27 Carlos Duarte GH &RORPELD /D YHUVLyQ UHYLVDGD GHO &yGLJR GH 0LQHUtD GHO IXH DGRSWDGD VLQ FRQVXOWDU FRQ ORV SRWHQFLDOPHQWHDIHFWDGRVFRPRODVFRPXQLGDGHVLQGtJHQDV(VWH&yGLJRFUHyFRQGLFLRQHVGHLQYHUVLyQTXHVRQ VXPDPHQWHIDYRUDEOHVDODVHPSUHVDVH[WUDQMHUDV(O&yGLJRGHOKDGHELOLWDGRXQQ~PHURLPSRUWDQWH GH ODV VDOYDJXDUGLDV DPELHQWDOHV \ VRFLDOHV \ KD FUHDGR LPSRUWDQWHV LQFHQWLYRV HFRQyPLFRV UHGXFLHQGR GUDPiWLFDPHQWHODVUHJDOtDVPLQHUDV\UHGXFLHQGRORVLPSXHVWRVSDUDODVFRPSDxtDVSULYDGDV ¢4XpVLJQLILFDHVWR"6LJQLILFDTXH&DQDGiLQLFLyXQDQXHYDUHGDFFLyQGHODOHJLVODFLyQFRORPELDQD FRQGLQHURS~EOLFRDWUDYpVGH&,'$'LFKDUHYLVLyQGHORVFyGLJRVPLQHURVVHUHDOL]yDQWHVGH ILUPDUHODFXHUGRHQWUH&DQDGi\&RORPELD coyuntura IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR $KRUDGHVSXpVGHPRGLILFDUODOHJLVODFLyQVHKDQFUHDGREHQHILFLRVILVFDOHV\UHJXODWRULRVSDUDODV HPSUHVDVPLQHUDVDVHJXUiQGRVHGHTXHUHSLWRODOHJLVODFLyQHOLPLQHORVUHTXLVLWRVDPELHQWDOHV \ FXOWXUDOHV DVt FRPR ORV EHQHILFLRV HFRQyPLFRV TXH DQWHV ODV FRPXQLGDGHV ORFDOHV UHFLEDQ GHULYDGRVGHODDFWLYLGDGPLQHUD &RPXQLGDGHV ORFDOHV \ SXHEORV LQGtJHQDV KDQ VLGR H[SURSLDGRV GH VXV WLHUUDV DGHPiV VH OHV DUJXPHQWDTXHHOORVQRSXHGHQUHFLELUUHJDOtDVSRUODDFWLYLGDGPLQHUD(OJRELHUQRFDPELyORV &yGLJRV\UHJODPHQWRVGHXVRGHGLQHURS~EOLFR\SDUDFROPRILUPyXQDFXHUGRHQWUH&DQDGi\ &RORPELDSDUDSURWHJHUDORVLQYHUVRUHVTXHLQFOXVROHVSHUPLWHDFXGLUDORVWULEXQDOHVGHVDILDQGR GHHVWDPDQHUDPRGLILFDFLRQHVQRUPDWLYDVTXHSURWHJHQHOPHGLRDPELHQWHORVGHUHFKRVKXPDQRV \GHORVWUDEDMDGRUHV (OJRELHUQRFDQDGLHQVHVLPSOHPHQWHFRQVSLUyFRQODVHPSUHVDVPLQHUDVSDUDFUHDUXQVLVWHPD IpUUHRDH[SHQVDVGHODSREODFLyQORFDO´ >@ 0iV DOOi GH ODV LQIOXHQFLDV WUDQVQDFLRQDOHV TXH WLHQHQ HYRFDFLRQHV PX\ YLHMDV GHVGH /D /H\ GHFRQHOFRQWUDWR&KDX[)ROVRPHQODSUiFWLFDOD/H\FRQILJXURXQPRGHORGH H[SORWDFLyQPLQHUDGH³HQFODYHH[SRUWDGRU´¢4XpTXLHUHGHFLUHVWR"3XHVELHQFRQYLHQHDFODUDU HQSULPHUDLQVWDQFLDTXHDXQTXHODPLQHUtDHVXQVLVWHPDH[WUDFWLYRHQVLPLVPRHQHOSDQRUDPD JOREDOGHODSURGXFFLyQPLQHUDHVSRVLEOHGLVWLQJXLUFODUDPHQWHHQWUH L 3DtVHVLQGXVWULDOL]DGRVHQHOiPELWRPLQHURORVFXDOHVGHVDUUROODQHQFDGHQDPLHQWRVKDFLDGHODQWH SDUDJHQHUDUYDORUDJUHJDGRVREUHVXVUHFXUVRVPLQHURV'LFKRVVLVWHPDVGHH[SORWDFLyQ PLQHUDVHHQFXHQWUDQIXHUWHPHQWHUHJXODGRVSRUODDFFLyQHVWDWDO \ VH HVSHFLDOL]DQ HQOD FRPHUFLDOL]DFLyQWDQWRGHPDWHULDVSULPDVFRPRGHSURGXFWRVHODERUDGRVSDUDHOPHUFDGR LQWHUQDFLRQDO SRU PHGLR GHO HQFDGHQDPLHQWR HQWUH PDWHULDV SULPDV PLQHUDV \ HO VHFWRU LQGXVWULDOQDFLRQDO %HUQDUG%LJUDV5RVHPRQW²/D3HWLWH3DWULH4&&DQDGD&RORPELD)UHH7UDGH$JUHHPHQW,PSOHPHQWDWLRQ$FW*RYHUQPHQW0D\ WK (Q HO PLVPR VHQWLGR VH PDQLIHVWDURQ ORV GL SXWDGRV %ULDQ 0DVVH GH :LQGVRU :HVW \ &DURO +XJKHV GH $OJRPD² 0DQLWRXOLQ (O&RQWUDWR&KDX[)ROVRPVHILUPDUtDEDMRXQDFODUDSUHVLyQGHOJRELHUQRGHORV((88SDUDTXHHO(VWDGRFRORPELDQRSHUPLWLHUD OD YHQWD GH OD &RQFHVLyQ %DUFR D OD &RORPELDQ 3HWUROHXP &RPSDQ\ &ROSHW 'LFKR &RQWUDWR VH ILUPR HQWUH &ODUHQFH )ROVRP DSRGHUDGRGHOD*XOI2LO&RPSDQ\GHORVKHUPDQRV0HOORQ\HO0LQLVWURGH,QGXVWULDVGHOUpJLPHQOLEHUDO)UDQFLVFR-&KDX[%DMR HOFRQWUDWR&KDX[)ROVRPVHUHVWLWX\yXQiUHDGHPLOKHFWiUHDVDOD&ROSHWFRQXQDYLJHQFLDGHDxRV/RPiVGLFLHQWHGHGLFKR FRQWUDWRHUDTXHODFRPSDxtDOXHJRGHH[WUDHUHOFUXGRGHOWHUULWRULRQDFLRQDOOHYHQGtDHOFRPEXVWLEOHDOJRELHUQRFRORPELDQRFRQ ORVPLVPRVSUHFLRVGH3XHUWR$UWXUR7H[DVORVPiVDOWRVGHOPXQGR+$0HW]JHUUHSUHVHQWDQWHHMHFXWLYRGHOD7URSLFDO2LOHQ %RJRWiH[FODPyDOFRQRFHUORVUHVXOWDGRVGHODQHJRFLDFLyQ³(VHOPHMRUFRQWUDWRTXH\RKD\DYLVWRHQ&RORPELD£HVPDUDYLOORVR´ 9DOHODSHQDGHVWDFDUHOFDVRGHOHQFDGHQDPLHQWRHQWUHPDQXIDFWXUDV\VHUYLFLRVHQ$XVWUDOLDHOYLQFXORHQWUHODLQGXVWULD\ODPLQHUtD HQ&DQDGiDVtFRPRHOYLQFXORHQWUHPDWHULDVSULPDVPLQHUDOHV\VXWUDQVIRUPDFLyQSDUDOHFRQVXPRHQODSXMDQWHLQGXVWULDQDFLRQDO EUDVLOHUD análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 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27 Carlos Duarte pWQLFRVKDQVLGRXQRGHORVSXQWRVPDVLPSRUWDQWHVGHFRQWUDGLFFLyQ\GLVFXVLyQHQHOiPELWRGH ODJREHUQDELOLGDGPLQHUDFRQWHPSRUiQHD&RPRYHUHPRVOXHJRHVWHHOHPHQWRHVIXQGDPHQWDOHQ OD,QH[HTXLELOLGDGGHOD/H\GLFWDPLQDGDSRUOD&RUWH&RQVWLWXFLRQDO LLL)DFLOLGDGHVSDUDODLQVWDODFLyQGHODJUDQPLQHUtDGHFDSLWDOWUDQVQDFLRQDO/DJREHUQDELOLGDGPLQHUD EDMRHOPRGHORGHHQFODYHH[SRUWDGRUQHFHVLWDEDSDUDVXLPSOHPHQWDFLyQYROYHUDSHUPLWLUTXH ORVSDUWLFXODUHVH[SORWDUDQGLUHFWDPHQWHORV\DFLPLHQWRVPLQHURVHQHVWDPHGLGDOD/H\WXYR TXHUHYLYLUHOFRQWUDWRGH&RQFHVLyQVXVFULWRHQWUHSDUWLFXODUHVFRQHO(VWDGR(VDVtFRPRHO DUWtFXORFRQVDJUDHO7tWXOR0LQHURÓQLFRHQGHWULPHQWRGHODViUHDVGH³$SRUWH´DGPLQLVWUDGDV SRUODDXWRULGDGPLQHUDHVWDWDOFRQHOH[FOXVLYRiQLPRGHOLEHUDUWRGRHOWHUULWRULRDODLQYHUVLyQ H[WUDQMHUD 'H PDQHUD FRPSOHPHQWDULD HO &DStWXOR 9,, GHO DFWXDO &yGLJR HOHYD OD GXUDFLyQ GH OD FRQFHVLyQ D DxRV PDV GRV SRVLEOHV SURUURJDV TXH FRPELQDGR FRQ HO DUWtFXOR GH HVWDELOLGDG GH UHJDOtDV KDFH SHUGHU HO FRQWURO GH OD H[SORWDFLyQ \ OD UHQWDELOLGDG PLQHUD SDUD HOHVWDGRFRORPELDQR(QHO&DStWXOR;;,,GH$VSHFWRV(FRQyPLFRV\7ULEXWDULRVVHKL]RXQD UHIRUPDWULEXWDULDSDUDODVWUDQVQDFLRQDOHVUHIRUPDTXHQRVHFRPSDGHFHGHODJUDYHVLWXDFLyQ ILVFDOSRUODTXHDWUDYLHVDHO(VWDGRFRORPELDQR(QHO&DStWXOR;;91RUPDVGH3URFHGLPLHQWR VHFDPELDOD&RQVWLWXFLyQSRUTXHDSDUWLUGHHVWDOH\\FRQEDVHDODUWtFXORXQFLXGDGDQR FRP~QQRSRGUiGHPDQGDUODQXOLGDGGHOFRQWUDWRPLQHUR(VWHDUWtFXORHVXQDFODUDSUHYLVLyQD ODVGHPDQGDVTXHVHOHYHQGUiQDHVWRVQXHYRVFRQWUDWRVGHFRQFHVLyQSRUVHUOHVLYRVDORVLQWHUHVHV GHODQDFLyQ)LQDOPHQWHHODUWtFXORGH$XWRULGDG0LQHUDFRQYLHUWHDO0LQLVWHULRGH0LQDV FRPR~QLFDDXWRULGDG\GHMDD0LQHUFRO/7'$FRPRXQHVWDEOHFLPLHQWRS~EOLFR\QRFRPRXQD HPSUHVDLQGXVWULDO\FRPHUFLDOGHOHVWDGR LY)OH[LELOL]DFLyQMXUtGLFDDORVLPSDFWRVDPELHQWDOHVGHORVPHJDSUR\HFWRVPLQHURV(O&DStWXOR;;,, $VSHFWRV$PELHQWDOHVGHOD/H\RIUHFHYHQWDMDVGHVWUXFWLYDVDODVJUDQGHVHPSUHVDVHQXQ SDtVFRQXQHQWRUQRDPELHQWDOVHQVLEOHFRPRHOFRORPELDQR(QHVWHiPELWRORVDUWtFXORV\ SHUPLWHQODH[SHGLFLyQGHXQDVRODOLFHQFLDDPELHQWDOSDUDWRGRHOSHULRGRGHODFRQFHVLyQ VLQTXHODDXWRULGDGDPELHQWDOSXHGDFDPELDUHVWDGHFLVLyQDVtRFXUUDQYLRODFLRQHVJUDYHVDOD OHJLVODFLyQ DPELHQWDO (O DUWtFXOR GHO &yGLJR SHUPLWH TXH ODV PRGLILFDFLRQHV D OD OLFHQFLD DPELHQWDOVHUHDOLFHQDVROLFLWXGGHOLQWHUHVDGRHORSHUDGRUPLQHURPLHQWUDVTXHHQHODUWtFXOR GHUHYRFDFLyQGH/LFHQFLDHOHVWDGR³SRGUi´QR³GHEHUi´FRPRHVVXREOLJDFLyQOHJDOUHYRFDU OD OLFHQFLD SRU UHLWHUDGDV \ JUDYHV YLRODFLRQHV GH ODV REOLJDFLRQHV DPELHQWDOHV GHO H[SORWDGRU )LQDOPHQWH HO DUWtFXOR FUHD ODV DXGLWRULDV DPELHQWDOHV H[WHUQDV FRQ OR FXDO VH GHMD D ORV YDLYHQHV GH OD RIHUWD \ OD GHPDQGD HO HFRVLVWHPD GH ODV UHJLRQHV PLQHUDV FRQYLHQH UHPDUFDU TXHEDMRHO&yGLJRGHVRORODDXWRULGDGDPELHQWDOHVWDWDOSRGtDGHVDUUROODUODVDXGLWRULDV DPELHQWDOHV coyuntura IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR >@ &RPRHVREVHUYDEOHEDMRHOPRGHORGHJREHUQDELOLGDGPLQHUDGHHQFODYHH[SRUWDGRUHO(VWDGR FRORPELDQRURPSHFRQHOSUR\HFWRGHQDFLRQDOL]DFLyQGHODSURGXFFLyQLQVWDXUDGRSRUOD/H\ GHHOFXDODVXYH]\DYHQLDWUDQVIRUPiQGRVHHQXQPRGHORGHH[SORWDFLyQPL[WDS~EOLFD SULYDGDEDMRHO&yGLJRGH(VWDUXSWXUDEDMRODHYLGHQWHLQIOXHQFLDGHORVGLQHURVGHOD (QHODUWtFXORVHHVWL SXODURQUHJDOtDVGHOSDUDORVH[SORWDGRUHVSULYDGRVGHOVXEVXHOREDMRHO&yGLJRGHSDUDHOFDVR GHO&DUEyQODVPXOWLQDFLRQDOHVGHEtDQSDJDQHOHQHODUWLFXORVHOHVDVHJXUDXQDUHJDOtDILMDSRUWRGDODRSHUDFLyQLQFOXLGDV ODVSURUURJDV(QHODUWtFXORVHFUHDXQDLQFRPSDWLELOLGDGFRQLPSXHVWRVQDFLRQDOHVPXQLFL SDOHV\GHSDUWDPHQWDOHVPLHQWUDVTXH HQHOVpSURKtEHQQXHYRVLPSXHVWRVDODLQGXVWULDDSHVDUGHWRGDODGHJUDGDFLyQ\HOGDxRDOPHGLRDPELHQWHTXHHVWDSURGXFH 3RUPHGLRGHODUWtFXORVHOHVH[FOX\HGHUHQWDSUHVXQWLYD\HQHOVHOHVDFUHGLWDQODVWDODVGHERVTXHFRPRH[SRUWDFLRQHV PLQHUDVGHSURGXFWRVYHUGHVSDUDILQDOL]DUHQHOPLVPRtWHPVHOHVFRQFHGHQH[HQFLRQHVGHWRGRWL SRGHLPSXHVWRV\JUDYiPHQHV SRUXQWpUPLQRGHDxRV análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 27 IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR Carlos Duarte $JHQFLD&DQDGLHQVHSDUDHO'HVDUUROOR,QWHUQDFLRQDO&,'$VLJQLILFRTXHGHPDQHUDJUDGXDO HO (VWDGR FRORPELDQR KD\D YHQLGR UHWLUDQGR VX SDUWLFLSDFLyQ HQ OD H[SORWDFLyQ GLUHFWD GH ORV UHFXUVRVPLQHURV$OPLVPRWLHPSRHOPRGHORGHHQFODYHH[SRUWDGRUKDRIUHFLGRWRGRXQPDUFR GHJDUDQWtDVMXUtGLFDVSDUDTXHHOJUXHVRGHODH[SORWDFLyQFRPHUFLDOL]DFLyQ\DSURSLDFLyQGH ODULTXH]DJHQHUDGDSRUORVUHFXUVRVPLQHURVVHTXHGHHQORVVHFWRUHVSULYDGRVWUDQVQDFLRQDOHV PLHQWUDVTXHODQDFLyQUHFLEHSRUFRQFHSWRGH³UHJDOtDV´XQSRUFHQWDMHtQILPRGHORVEHQHILFLRV 3. CRISIS E INEXEQUIBILIDAD DEL CÓDIGO MINERO VIGENTE >@ &RPR YHQLPRV GH DSUHFLDU OD JREHUQDELOLGDG PLQHUD EDMR HO PRGHOR GH HQFODYH H[SRUWDGRU VLJQLILFRODLQWURGXFFLyQGHSUREOHPiWLFDVDPELHQWDOHV\pWQLFDVGHJUDQFDODGRSDUDHOHVWDGR PXOWLFXOWXUDOVXVWHQWDGRHQOD&RQVWLWXFLyQGH'LFKDVSUREOHPiWLFDVKDQWRPDGRODIRUPDGH FRQIOLFWRVMXGLFLDOHVHQGRViPELWRVGHXQODGRXQFRQIOLFWRFRQFHSWXDOHQWRUQRGHODVSRVLEOHV LQWHUSUHWDFLRQHVDOHVStULWXFRQVWLWXFLRQDOGH\VXRSHUDWLYLGDGHQODMXULVSUXGHQFLDSRVWHULRU \GHRWUDSDUWHHQWUHORVLQWHUHVHVPXFKDVYHFHVFRQWUDSXHVWRGHODVRFLHGDGFLYLORUJDQL]DGDODV PXOWLQDFLRQDOHVPLQHUDV\HO(VWDGRFRORPELDQR (QHVWHVHQWLGRWUHVVHQWHQFLDVGHOD&RUWH&RQVWLWXFLRQDO77$\&HVWiQIRU]DQGR DUHSHQVDUGHPDQHUDSURIXQGDHOVLVWHPDGHJREHUQDQ]DPLQHUDQHROLEHUDORGHH[SORWDFLyQGH HQFODYHH[SRUWDGRU/DVGRVSULPHUDVVHQWHQFLDV7\7$REOLJDURQDO(VWDGRDRSHUDU GHXQDPDQHUDGLIHUHQFLDOFXDQGRORV\DFLPLHQWRVVHHQFXHQWUDQHQWHUULWRULRVGHFRPXQLGDGHV LQGtJHQDV \ DIURGHVFHQGLHQWHV PLHQWUDV TXH OD ~OWLPD VHQWHQFLD & GHFODUR LQH[HTXLEOH OD HVWUXFWXUD JOREDO GHO DFWXDO FyGLJR PLQHUR /H\ GHO /DV WUHV VHQWHQFLDV WLHQHQ HQ FRP~Q OD LPSOHPHQWDFLyQ ILORVyILFD \ RSHUDWLYD GH OD &RQVXOWD 3UHYLD JDUDQWL]DGD SRU OD &RQVWLWXFLyQGHVREUHODVSREODFLRQHVGHILQLGDVpWQLFDPHQWHHQHOHVWDGRPXOWLFXOWXUDOGH análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 27 Carlos Duarte LJXDOPDQHUDGLFKDVVHQWHQFLDVSDUHFHQRULHQWDUHOWUDQVLWRVXJHULGRSRUOD&RUWH&RQVWLWXFLRQDO GHVGH&RQVXOWD3UHYLDKDFLDHO&RQVHQWLPLHQWR3UHYLRH,QIRUPDGR 3.1 De la Consulta Previa al Consentimiento Previo e Informado /D6HQWHQFLDQ~PHUR7HPLWLGRHOGHPDU]RGHOOHGLRODUD]yQDODGHPDQGDSUHVHQWDGD SRUHOSXHEORLQGtJHQD(PEHUD.DWLRDVHQWDGRHQGRVUHVJXDUGRV&KLGLPD7ROR\3HVFDGLWRFRQ XQDSREODFLyQVXSHULRUDODVSHUVRQDV'LFKD6HQWHQFLDRUGHQRUHDOL]DUHQIRUPDGHELGDOD &RQVXOWD3UHYLDEXVFDQGRREWHQHUHO&RQVHQWLPLHQWROLEUHHLQIRUPDGRVREUHWUHVSUR\HFWRVTXH LEDQDGHVDUUROODUVHHQVXWHUULWRULR coyuntura IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR /D VHQWHQFLD 7 DQXOy ORV IDOORV HPLWLGRV HQ SULPHUD LQVWDQFLD SRU HO 7ULEXQDO 6XSHULRU GHO &KRFyTXHFRQVLGHUyLPSURFHGHQWHOD&RQVXOWD\HQVHJXQGDLQVWDQFLDSRUOD&RUWH6XSUHPD GH-XVWLFLDTXHFRQILUPyORGLFWDPLQDGRSRUHO7ULEXQDOGHO&KRFy7DQWRHO7ULEXQDO6XSHULRU GHO&KRFyFRPROD&RUWH6XSUHPDDUJXPHQWDURQHQVXVIDOORVTXHQRVHSXHGHDWHQWDUFRQWUDHO ³LQWHUpVJHQHUDO´\HO³SURJUHVR´SDUDSURWHJHUD³XQJUXSR´$OUHVSHFWROD6HQWHQFLD7GHOD &RUWH&RQVWLWXFLRQDOGH&RORPELDVHxDODWH[WXDOPHQWHTXH³>@QRVHSXHGHDQWHSRQHUHQDEVWUDFWR HOLQWHUpVJHQHUDO\ODYLVLyQPD\RULWDULDTXHVHWHQJDGHOGHVDUUROORRHOSURJUHVRTXHWUDHQODVREUDVGH LQIUDHVWUXFWXUDFXDQGRGLFKDVLQWHUYHQFLRQHVVHGHVDUUROODQHQWHUULWRULRVLQGtJHQDVRpWQLFRV´ /D6HQWHQFLDHQFXHVWLyQGHVDUUROODDQWHULRUHVSURQXQFLDPLHQWRVFRPRODGHOD6HQWHQFLD7 GHOSRUFXDQWRHQHVWD6HQWHQFLDODPLVPD&RUWHKDEtDGLFKRTXHHOFRQVHQWLPLHQWRHUD QHFHVDULR~QLFDPHQWHHQFDVRVGHSUR\HFWRVGHJUDQHVFDOD/DDFWXDO6HQWHQFLD7DPSOtD ODSURWHFFLyQSRUTXHGLFHTXHHOFRQVHQWLPLHQWRGHEHUHDOL]DUVHHQWRGRVORVFDVRVSXHVHVDHVOD ILQDOLGDGGHOD&RQVXOWD3UHYLD'HPDQHUDFRPSOHPHQWDULDOD&RUWHSURSRQHHQOD7TXHOD FRQVXOWDQRVHDYLVWDFRPRXQREVWiFXORSDUDODHMHFXFLyQGHSUR\HFWRVGHGHVDUUROORVLQRFRPR XQHVSDFLRGHGLiORJRLQWHUFXOWXUDOFRQUHVSHWR\UHFRQRFLPLHQWRGHFDGDXQDGHODVSDUWHV\ODV GHFLVLRQHVTXHVHDGRSWHQ >@ 'HHVWDPDQHUDOD&RUWH&RQVWLWXFLRQDOSRUPHGLRGHOD6DOD4XLQWDGH5HYLVLyQRUGHQyGHWHQHU ODHMHFXFLyQGHORVSUR\HFWRVPHQFLRQDGRVDQWHULRUPHQWHHQWDQWRQRVHUHDOLFHQODVFRQVXOWDV FRUUHVSRQGLHQWHVDORVSXHEORVLQGtJHQDVDIHFWDGRV/D&RUWHGLFWDPLQyTXH³>@HVQHFHVDULRTXHHO (VWDGRGHIRUPDDUWLFXODGDJDUDQWLFHHLQFHQWLYDODDSOLFDFLyQUHDO\HIHFWLYDGHOGHUHFKRIXQGDPHQWDODOD FRQVXOWDSUHYLDGHORVSXHEORVLQGtJHQDVSXHVDQWHWRGRODVKHUUDPLHQWDVTXHVXE\DFHQDODFRQVXOWDSHUPLWHQ FRQFLOLDUSRVLFLRQHV\OOHJDUDXQSXQWRLQWHUPHGLRGHGLiORJRLQWHUFXOWXUDOHQHOTXHORVSXHEORVHMHU]DQVX GHUHFKRDODDXWRQRPtDFRQVXVSODQHVSURSLRVGHYLGDIUHQWHDORVPRGHORVHFRQyPLFRVEDVDGRVHQODHFRQRPtD GHPHUFDGRRVLPLODUHV´ 0HVHVGHVSXpVHOGHDEULOGHHQSURFHVRDGHODQWDGRSRUHO&RQVHMR&RPXQLWDULRGHOD7RPD HO 3URFHVR GH &RPXQLGDGHV 1HJUDV 3&1 \ OD &RUSRUDFLyQ 6HPEUDU OD &RUWH &RQVWLWXFLRQDO PHGLDQWH6HQWHQFLD7$GHWXWHOyORVGHUHFKRVIXQGDPHQWDOHVDOGHELGRSURFHVR\D OD&RQVXOWD3UHYLDGHO&RQVHMR&RPXQLWDULRGHOFRUUHJLPLHQWR/D7RPDGHOPXQLFLSLR6XiUH] /RVWUHVSUR\HFWRVHQFXHVWLyQIXHURQ/DFRQVWUXFFLyQGHXQDFDUUHWHUDWHUUHVWUH$FDQGt8QJXtDGHNLOyPHWURVGHH[WHQVLyQTXH DWUDYHVDUtDORVGRVUHVJXDUGRV$HVWHUHVSHFWRHO0LQLVWHULRGH7UDQVSRUWHVQRH[LJLyODOLFHQFLDDPELHQWDOFRUUHVSRQGLHQWHQLUHDOL]y OD&RQVXOWD3UHYLDFRQODVFRPXQLGDGHVDIHFWDGDVSRUODVH[FDYDFLRQHVFXQHUDV\GUHQDMHVTXHDIHFWDQODHVWDELOLGDGGHODVYLYLHQGDV LQGtJHQDV/DLQWHUFRQH[LyQHOpFWULFDELQDFLRQDO&RORPELD3DQDPiTXHSODQHDEDODLQVWDODFLyQGHXQDOtQHDHOpFWULFDGHPiVGH PHWURV/DGHPDQGDVHVXVWHQWyHQTXHORVLQJHQLHURVGHODHPSUHVDHQFDUJDGDLQJUHVDURQDOUHVJXDUGRSDUDKDFHUPHGLFLRQHV\ GHWHUPLQDUSXQWRVJHRUHIHUHQFLDGRVVLQFRQVXOWDUDODVFRPXQLGDGHV<8QDFRQFHVLyQPLQHUDGHPLOKHFWiUHDVSURIHULGDSRU ,QJHRPLQDVHQHOPXQLFL SLRGH$FDQGt análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 27 IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR Carlos Duarte &DXFDTXHVHYLHURQDIHFWDGRVDQWHHORWRUJDPLHQWRGHOLFHQFLDVSDUDODH[SORWDFLyQPLQHUDD IRUiQHRVHQWHUULWRULRVDQFHVWUDOHVGHFRPXQLGDGHVDIURGHVFHQGLHQWHV /D&RUWHRUGHQyODUHDOL]DFLyQGHOD&RQVXOWD3UHYLDFRQSOHQDSDUWLFLSDFLyQGHODFRPXQLGDG GHOD7RPDPLHQWUDVTXHOHH[LJLyD,QJHRPLQDVTXH³VHDEVWHQJDGHRWRUJDURVXVSHQGDVHJ~QVHD HOFDVRODRODVOLFHQFLDVGHH[SORWDFLyQPLQHUDHQHOSUR\HFWRGHOVHxRU+HFWRU6DUULDRFXDOTXLHURWURHQHO FRUUHJLPLHQWR/D7RPDGH6XDUH]&DXFDKDVWDWDQWRVHUHDOLFHGHPDQHUDDGHFXDGDODFRQVXOWDSUHYLD RUGHQDGDHQHVWDVHQWHQFLD´(VWHLPSRUWDQWHIDOORPDQLILHVWD³TXHODYLRODFLyQGHOGHUHFKRDODFRQVXOWD VREUHSUR\HFWRVGHH[SORWDFLyQGHUHFXUVRVQDWXUDOHVWDPELpQFRQOOHYDDODFRQFXOFDFLyQGHRWURVGHUHFKRVGHO SXHEORDIHFWDGRWDOHVFRPRODDXWRQRPtDHLQWHJULGDGFXOWXUDO\VRFLDO\HYHQWXDOPHQWHODSURSLHGDG´3RU PHGLRGHHVWD6HQWHQFLDOD&RUWHVHPDQLIHVWyDWHQWDSRUHODXPHQWRHQORVGDxRVDPELHQWDOHV TXHORVSUR\HFWRVPLQHURVDJUDQHVFDODSXHGHQRFDVLRQDUUHVDOWDQGRODDIHFWDFLyQDODVIXHQWHV KtGULFDVFRQWDPLQDFLyQGHIRUHVWDFLyQHLQFUHPHQWRHOGHVHTXLOLEULRHFROyJLFR(QFRQVHFXHQFLD OD6HQWHQFLD7$VXVSHQGLyODVOLFHQFLDVGHH[SORWDFLyQPLQHUD\ODVOLFHQFLDVDPELHQWDOHVGH ORVWtWXORVPLQHURVH[LVWHQWHVHQHOFRUUHJLPLHQWROD7RPDGHO0XQLFLSLRGH6XDUH]ă&DXFDGRQGH QRVHKD\DFRQVXOWDGRSUHYLDPHQWHODYROXQWDGGHODFRPXQLGDGDIURGHVFHQGLHQWH >@ 3.2 La Sentencia C-366 y la Inexequibilidad a la reforma del Código Minero (O GH VHSWLHPEUH GH *XLOOHUPR /HyQ +HQDR *yPH] SUHVHQWy XQD GHPDQGD GH LQFRQVWLWXFLRQDOLGDGDQWHOD&RUWH&RQVWLWXFLRQDOFRQWUDOD/H\GHTXHDVXYH]KDEtD PRGLILFDGROD/H\GH&yGLJRGH0LQDV/DGHPDQGDVHIXQGDPHQWRHQODYLRODFLyQGH ORVDUWtFXORVĈQXPHUDOVHJXQGR\GHOD&RQVWLWXFLyQ3ROtWLFD GH&RORPELD\DUWtFXORGHO&RQYHQLRGHDGRSWDGRSRUOD2UJDQL]DFLyQ,QWHUQDFLRQDO GHO7UDEDMRDSUREDGRDVXYH]SRUOD/H\GHORVFXDOHVFRQVDJUDQOD&RQVXOWD3UHYLDDODV PLQRUtDVpWQLFDVFRPRXQGHUHFKRIXQGDPHQWDO'HDFXHUGRFRQODVGLVSRVLFLRQHVFRQWHQLGDVHQ OD&RQVWLWXFLyQ\HQHO&RQYHQLRGLFKD&RQVXOWDDGTXLHUHHOFDUiFWHUGHREOLJDWRULDFXDQGR VHSUHWHQGDQDGRSWDUPHGLGDVTXHGHPDQHUDHVSHFtILFDDIHFWHQDORVSXHEORVLQGtJHQDVRWULEDOHV 3RUORWDQWRHOGHPDQGDQWHDOHJyTXHOD/H\GHFRQWLHQHGLVSRVLFLRQHVUHODWLYDVDOD H[SORUDFLyQ \ H[SORWDFLyQ GH UHFXUVRV QDWXUDOHV QR UHQRYDEOHV TXH DIHFWDQ GLUHFWDPHQWH D ODV PLQRUtDVpWQLFDVELHQVHDSRUODVDFWLYLGDGHVPLQHUDVTXHVHUHDOLFHQSRUSDUWHGHWHUFHURVHQ ORVWHUULWRULRVLQGtJHQDVRSRUDTXHOODVUHDOL]DGDVSRUODVPLVPDVFRPXQLGDGHVLQGtJHQDV$HVWH UHVSHFWRUHVXOWDLPSRUWDQWHUHFRUGDUTXHWDQWROD/H\GH/H\*HQHUDO)RUHVWDO\OD/H\ GH(VWDWXWRGH'HVDUUROOR5XUDOIXHURQGHFODUDGDVLQH[HTXLEOHVPHGLDQWHVHQWHQFLDV &GH\&GHUHVSHFWLYDPHQWHSRUOD&RUWH&RQVWLWXFLRQDODOFRQVLGHUDUTXHVH KDEtDYLRODGRHOGHUHFKRIXQGDPHQWDOGH&RQVXOWDDODVFRPXQLGDGHVLQGtJHQDV\WULEDOHVGHQWUR GHVXWUiPLWH (Q0D\RGHOHOSUHVLGHQWHGHOD&RUWH&RQVWLWXFLRQDO-XDQ&DUORV+HQDRH[SOLFyTXHOD 5HIRUPDDO&yGLJR0LQHUR/H\IXHGHFODUDGDLQH[HTXLEOHGHPDQHUDGLIHULGDHVGHFLU TXH HO *RELHUQR WLHQH DxRV SDUD UHDOL]DU ORV DMXVWHV QHFHVDULRV \ OD FRQVXOWD TXH VH H[LJH DO &RQJUHVRDODVFRPXQLGDGHVpWQLFDV(QHOSURQXQFLDPLHQWRGHOD&RUWHVHGHVWDFDTXHDOUHYLVDU HOH[SHGLHQWHGHHODERUDFLyQGHOD/H\QRVHHQFXHQWURSUXHEDDOJXQDGHTXHODFRQVXOWD SUHYLDVHKD\DUHDOL]DGR$VtODVFRVDVODH[SORWDFLyQPLQHUDSRGUiVHJXLUWHQLHQGROXJDUEDMR ODV FRQGLFLRQHV VHxDODGDV HQ OD /H\ GH KDVWD HO FXDQGR HQWUH HQ YLJHQFLD VX LQFRQVWLWXFLRQDOLGDG análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 27 Carlos Duarte 4. CONCLUSIONES: TRES ELEMENTOS PARA PROBLEMATIZAR LA GOBERNANZA MINERA DE ENCLAVE EXPORTADOR &RPRVHKDREVHUYDGRHVWHHMHUFLFLRKDSDUWLGRGHUHYLVDUGHPDQHUDGHWDOODGDODVWUDQVIRUPDFLRQHV FRQWHPSRUiQHDVHQHOiPELWRGHODOHJLVODFLyQPLQHUDSDUDOXHJRLQWHQWDUDJUXSDUGLFKRVFDPELRV HQWUHVPRPHQWRVTXHSHUPLWHQFDUDFWHUL]DUODVWUDQVIRUPDFLRQHVOHJLVODWLYDV\VXVUHODFLRQDPLHQWRV SROtWLFRHFRQyPLFRV(QDGHODQWH\DPRGRGHFRQFOXVLyQVHEXVFDUiDQDOL]DUFRQPD\RUGHWDOOH HOPRGHORGHJREHUQDQ]DGHHQFODYHH[SRUWDGRU coyuntura IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR (Q HVWH VHQWLGR WUHV HOHPHQWRV GH SRQGHUDFLyQ DSDUHFHQ FRPR QHFHVDULRV L XQ HMHUFLFLR GH FRPSDUDFLyQKLVWyULFDDODVUHJDOtDVFRQFHVLRQHV\WULEXWDFLRQHVGHODJREHUQDQ]DQHROLEHUDOLL VHSODQWHDUHYLVDUHOFDVRFKLOHQRGHVGHXQDSHUVSHFWLYDGHFRPSDUDFLyQFULWLFDFRQODVLWXDFLyQ FRORPELDQD\LLLVHSURSRQHDSUHFLDUHOPRGHORGHHQFODYHH[SRUWDGRUFRORPELDQRVXEUD\DQGR VXSRVLEOHXWLOL]DFLyQFRPRHVWUDWHJLDGHGHVSRVHVLyQDODSHTXHxDPLQHUtD 4.1 Regalías, concesiones y tributaciones en la gobernanza neoliberal (Q&RORPELDDORODUJRGHOVHJ~QOD'LUHFFLyQGH0LQDVGHO0LQLVWHULRGH0LQDV\(QHUJtD VHUHFDXGDURQUHJDOtDVPLQHUDVSRU86PLOORQHV8QDFLIUDTXHFRPSDUDGDFRQ ODVGHSDtVHVFRPR&KLOH863HU~86\%ROLYLD86HVEDVWDQWHVLJQLILFDWLYD 3HUR VL FRPSDUDPRV HVWD FLIUD GH DFXHUGR D ORV GLIHUHQWHV VLVWHPDV GH JREHUQDELOLGDG PLQHUD SRUORVTXHKDDWUDYHVDGRODQDFLyQSRGUHPRVGLPHQVLRQDUPHMRUHODFWXDOPRGHORGHHQFODYH H[SRUWDGRU (QHVWHPLVPRVHQWLGRFRQYLHQHUHFRUGDUTXHDOJXQRVGHORVPRGHORVGHPLQHUtDPiVH[LWRVRV DQLYHOPXQGLDOUHFDXGDQUHJDOtDVFRQVLGHUDEOHPHQWHPiVDOWDVTXHODVHVWDEOHFLGDVSRUHODFWXDO PRGHORFRORPELDQR(QXQLQIRUPHGH)HGHVDUUROORVHUHPDUFDHOFDVRDXVWUDOLDQRGRQGH VHUHJLVWUDQLQJUHVRVSRUKDELWDQWHTXHKDQFUHFLGRDWDVDVVRVWHQLGDVGHODQXDOFRQWDVDVGH LQIODFLyQGH\GRQGHODPLQHUtDHVUHVSRQVDEOHGHGHODVH[SRUWDFLRQHVWRWDOHV\GHO GHO3,%HVSDUWLFXODUPHQWHUHYHODGRU$XVWUDOLDUHFDXGDXQLPSXHVWRDODVXWLOLGDGHVGHODV HPSUHVDVFHUFDQRDO SHURDGHPiVUHFLEHUHJDOtDVIHGHUDOHVTXHVRQGLItFLOHVGHFDOFXODU SRUTXHWLHQHQPHWRGRORJtDVGLIHUHQWHVVHJ~QHOPLQHUDO\ODSURYLQFLDSHURSXHGHQRVFLODUHQWUH HO\HOGHODVXWLOLGDGHV&RPRVLIXHUDSRFRHOJRELHUQRGH$XVWUDOLDGHO6XUODQ]RHQ ODSURSXHVWDGHIXVLRQDUORVWULEXWRVDODPLQHUtDHQXQLPSXHVWRDODVV~SHUJDQDQFLDVD ORV UHFXUVRV QR UHQRYDEOHV FX\R SULQFLSDO EODQFR VHULDQ ODV FRPSDxtDV PLQHUDV GLFKD UHIRUPD DSUR[LPDUtDODVUHJDOtDVSHUFLELGDVDXQPRQWRFHUFDQRDO >@ 'HHVWDPDQHUDORVPLOORQHVGHGyODUHVIXHURQUHFXUVRVTXHHO(VWDGRSHUFLELyEDMROD/H\TXHILMRXQPRQWRGHUHJDOtDV QRPHQRUDOGHODSURGXFFLyQWRWDO3HURVLGLFKDH[SORWDFLyQVHKXELHUDUHDOL]DGREDMRHOPRGHORPL[WRLPSOHPHQWDGRSRUHO &yGLJRGH0LQDVGHTXHREOLJDDODVHPSUHVDVPLQHUDVDSDJDUUHJDOtDVFHUFDQDVDOGHVXVXWLOLGDGHVHO(VWDGRKXELHUD SHUFLELGRFHUFDGHPLOPLOORQHVGHGyODUHV(QHOPRGHORGHQDFLRQDOL]DFLyQGHODSURGXFFLyQPLQHUDOD/H\VHLQFOLQDED FODUDPHQWHSRUHOPRGHORGHH[SORUDFLyQ\H[SORWDFLyQGLULJLGRVSRUHO(VWDGRHQHVWHFDVRKL SRWpWLFRHOGHODVXWLOLGDGHV VHULDQUHWHQLGDVSRUODVHPSUHVDVH[WUDFWLYDVHVWDWDOHV\ODVJDQDQFLDVUR]DUtDQORVPLOPLOORQHVGHGyODUHV0LHQWUDVTXHOD RWUDILJXUDSULYLOHJLDGDSRUOD/H\HOPRGHORGHDVRFLDFLyQHQHOTXHODVJDQDQFLDVVHULDQUHSDUWLGDVDPLWDGHVHOHVWDGRUHFLELUtD SRUHOFHUFD86PLOPLOORQHV$~QHQODVFRQGLFLRQHVUHFRQRFLGDVKLVWyULFDPHQWHFRPRODVPiVRSURELRVDVSDUDORVLQWHUHVHV GHODQDFLyQEDMROD/H\GHGXUDQWHHOPRGHORGHODV&RQFHVLRQHVGH0DUHV\%DUFRODVUHJDOtDVRVFLODUtDQHQWUHXQ86 PLOPLOORQHV\86PLOPLOORQHV KWWSZZZWUHDVXU\JRYDXGRFXPHQWV+70/GRFVKHOODVS"85/ B&RPSDQ\BWD[DVS $XVWUDOLDCVIXWXUHWD[V\VWHPKWWSWD[UHYLHZWUHDVXU\JRYDX KWWSZZZWKHDXVWUDOLDQFRPDXEXVLQHVV análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 27 IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR Carlos Duarte &RQUHVSHFWRDODGXUDFLyQFRQFHVLRQDULDIXHUDGHOPRGHORGHPLQDVUHGLPLGDVDSHUSHWXLGDG EDMRHOSULQFLSLRGHDFFHVLyQHQHOFDVRPiVGHEDWLGR\FULWLFDGRGHOPRGHORGHFRQFHVLyQHOFDVR %DUFRHOWLHPSRGHH[SORWDFLyQHIHFWLYRQRVXSHURORVDxRVă6LQHPEDUJREDMRHO PRGHORGHHQFODYHH[SRUWDGRUVHSHUPLWHXQDFRQFHVLyQSRUDxRVTXHSXHGHVHUUHQRYDGDGRV YHFHVORFXDOVLJQLILFDUtDXQDSRVLELOLGDGGHH[SORWDFLyQTXHSXHGHDODUJDUVHGXUDQWHDxRV 'HRWUDSDUWHYDOHODSHQDUHYLVDUODFXHVWLyQGHODVH[FHSFLRQHVWULEXWDULDVSDUDODH[SORWDFLyQ PLQHUD(QHVWHVHQWLGRDGHPiVGHORVGDWRV\DDSRUWDGRVSDJLQDVDWUiVGHDFXHUGRFRQHOPLVPR 0LQLVWHULR GH 0LQDV \ (QHUJtD FRQYHQGUtD SUHJXQWDUVH ¢3RU TXp D SHVDU TXH ODV H[SRUWDFLRQHVPLQHUDVFUHFLHURQGHPLOORQHVGHSHVRVHQDPLOORQHVGHSHVRV HQHOODVUHJDOtDVFRUUHVSRQGLHQWHVGHFUHFLHURQGHPLOORQHVGHGyODUHVHQHOD PLOORQHVGHGyODUHVHQ" (VWDVLWXDFLyQUHVXOWDSDUWLFXODUPHQWHVLJQLILFDWLYDSDUDHOFDVRGHOFDUEyQHQODPHGLGDTXHHVWD H[SORWDFLyQ VLJQLILFD HO GHO UHFDXGR WRWDO GH ODV UHJDOtDV FRORPELDQDV 00( 6HJ~QGDWRVGHOPLVPR0LQLVWHULRGH0LQDV\(QHUJtDODSURGXFFLyQGHFDUEyQFUHFLyXQ GHPLOORQHVGHWRQHODGDVHQHODPLOORQHVGHWRQHODGDVHQHO0LHQWUDVWDQWRODV UHJDOtDVGLVPLQX\HURQHQXQGHELOORQHVHQDELOORQHVHQ'LVPLQXFLyQ TXHUHSUHVHQWRSDUDHOHUDULRS~EOLFRXQDSHUGLGDGHPLOORQHVGHSHVRVFRQHODJUDYDQWH TXHHOSURPHGLRGHORVSUHFLRVGHOFDUEyQVHLQFUHPHQWDURQHQXQGH86'7QHQHO D86'7QHQ >@ (VWHHVXQDVSHFWRSRFRDQDOL]DGRTXHDSHQDVHQORV~OWLPRVDxRVKDYHQLGRGLPHQVLRQiQGRVH SDUDHOFDVRGHODVUHJDOtDVPLQHUDVGHOPRGHORGHHQFODYHH[SRUWDGRU'HDFXHUGRFRQÈOYDUR 3DUGRGLUHFWRUGH&RORPELD3XQWR0HGLRDORODUJRGHO ³>«@VHKL]RHYLGHQWHHOJUDQFRVWRILVFDOTXHFRQOOHYyHOSURJUDPDGHFRQILDQ]DLQYHUVLRQLVWDGHO JRELHUQRDQWHULRU\ORSRFRTXHDYDQ]yHOQXHYRJRELHUQRHQFHUUDUORVERTXHWHVHQUHJDOtDVH LPSXHVWRVTXHHOSDtVGHEHUtDUHFLELUSRUODH[SORWDFLyQGHVXV5HFXUVRV1DWXUDOHV1R5HQRYDEOHV (OPLQLVWHULRGH+DFLHQGDOODPyODDWHQFLyQVREUHHOH[FHVRGHH[HQFLRQHVLQFOXLGDVHQHO(VWDWXWR 7ULEXWDULRPLHQWUDV*XLOOHUPR5XGDVHQFRQWUyTXHODVH[HQFLRQHVUHSUHVHQWDURQDOPHQRVSRU FLHQWRGHORTXHHVWDVHPSUHVDVSDJDURQSRULPSXHVWRVHQHO3RUVXSDUWHOD&RQWUDORUtD *HQHUDO&*5FRQFOX\yTXHGHVGHHOODVGHGXFFLRQHVWULEXWDULDVSDUDODPLQHUtDKDQYHQLGR DXPHQWDQGRGHPDQHUDQRWRULD\DQRWyTXHSDUDHOFDVRGHOFDUEyQHVWDVGHGXFFLRQHVLQFOXVR VXSHUDURQHOYDORUGHORVLPSXHVWRVHQHO´3DUGR 4.2 El caso chileno un ejercicio de comparación crítico (VXQWHPDUHFXUUHQWHHQ&RORPELDSUHVHQWDUHOFDVRFKLOHQRFRPRXQHMHPSORDVHJXLUHQUHIHUHQFLD VXVHVTXHPDVGHJRELHUQRHQGLIHUHQWHVDVSHFWRVGHODDGPLQLVWUDFLyQHVWDWDO$FRQWLQXDFLyQVH HFKDUiXQYLVWD]RDOPRGHORGHJREHUQDELOLGDGPLQHUDFKLOHQR\DTXHUHVXOWDSDUWLFXODUPHQWH LOXVWUDWLYRDODKRUDGHFRPSDUDUODVOHJLVODFLRQHVPLQHUDVODWLQRDPHULFDQDV\PiVDOOiORVHIHFWRV GHOPRGHORGHJREHUQDELOLGDGPLQHUDGHHQFODYHH[SRUWDGRU (QODDFWXDOLGDG&RORPELDHVXQGHVWLQRLQWHUHVDQWHSDUDODVLQYHUVLRQHVGHODVFRPSDxtDVPLQHUDV LQWHUQDFLRQDOHVVRORHQWUH\OD,QYHUVLyQ([WUDQMHUDGLUHFWDHQHOVHFWRUVHVH[WXSOLFyGH /DFRQFHVLyQ%DUFRVHULDHVWDEOHFLGDHQSRUDxRV\H[WHQGLGDHQEDMRODILJXUDGHOWUDWDGR³&KDX[)ROVRP´SRURWURV DxRVFRQGLFLRQHVTXHVHUtDQPRGLILFDGDVKDVWDEDMRHIHFWRVGHOD/H\ análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 27 Carlos Duarte PLOORQHVGHGyODUHVHQHODPLOORQHVHQHO00('HDFXHUGRFRQ )HGHVDUUROORHQODFR\XQWXUDDFWXDO&RORPELDVHHQFXHQWUDHQFRQGLFLRQHVLQPHMRUDEOHV SDUDDWUDHUQXHYDVLQYHUVLRQHVPLQHUDVWHQLHQGRHQFXHQWDTXHRWURVGHVWLQRVGHODUHJLyQHVWiQ DSDUHQWHPHQWH VREUHH[SORWDGRV FRPR HV HO FDVR GH &KLOH 3HU~ \ %ROLYLD R TXH KDQ KHFKR PRGLILFDFLRQHV D VX OHJLVODFLyQ TXH OHV KDQ UHVWDGR FRPSHWLWLYLGDG HQ HO iPELWR LQWHUQDFLRQDO FRPRHVHOFDVRGH&KLOH (QHVWHVHQWLGRHVLPSRUWDQWHGHVFULELUFXDOHVVRQODVPRGLILFDFLRQHVMXUtGLFDVTXHGHDFXHUGR FRQ )HGHVDUUROOR OH KDQ UHVWDGR FRPSHWLWLYLGDG DO PRGHOR FKLOHQR 'LFKDV WUDQVIRUPDFLRQHV RSHUDURQHQORVVLJXLHQWHViPELWRVLODQHFHVLGDGGHHYDOXDU\OLPLWDUORVLPSDFWRVDPELHQWDOHV GHJUDQPDJQLWXGVREUHODVH[SORWDFLRQHVDFLHORDELHUWRLLHOGHEDWHSRUODVFRQGLFLRQHVSUHFDULDV GHVHJXULGDGGHORVWUDEDMDGRUHVPLQHURVHQODVJUDQGHVHPSUHVDVPLQHUDVDUDt]GHODFFLGHQWHGH ORVPLQHURVHQOD0LQDGH6DQ-RVpHQ$JRVWRGHO\LLLODGLVFXVLyQVREUHODSURSLHGDG GHOVXEVXHOR\ODSRVLELOLGDGGHPRGLILFDUODVUHJDOtDVR³UR\DOLW\´DODH[SORWDFLyQPLQHUDHQIDYRU GHODQDFLyQ coyuntura IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR &RPRYLPRVORVGRVSULPHURVtWHPVLQGXGDEOHPHQWHFRQWLHQHQFRUUHVSRQGHQFLDVFRQORVDFWXDOHV GHEDWHVHQODJREHUQDELOLGDGPLQHUDFRORPELDQD /RV FRQWUROHV PHGLRDPELHQWDOHV VREUH OD H[SORWDFLyQ OD QHFHVLGDG FKLOHQD SRU HYDOXDU \ GH FLHUWD PDQHUDOLPLWDUORVLPSDFWRVVREUHHOPHGLRDPELHQWHSRUSDUWHGHH[SORWDFLRQHVDFLHORDELHUWR JXDUGDQUHODFLyQFRQORVJUDQGHVSUR\HFWRVTXHHQHVWHVHQWLGR\DYLHQHVLHQGRLPSOHPHQWDGRV HQ &RORPELD FRPR ODV H[SORWDFLRQHV FDUERQLIHUDV \ SHWUROHUDV R DTXHOORV TXH HQ ORV ~OWLPRV WLHPSRVKDQEXVFDGRLPSOHPHQWDUVHEDMRODOHJLVODFLyQFRQWHPSRUiQHDHOSUR\HFWRGH6DQWXUEDQ ROD&RORVDHQHO4XLQGtR7DPELpQHVQRWDEOHHQHVWHVHQWLGRODLQVLVWHQFLDSRUSDUWHGHODV HPSUHVDV LQWHUQDFLRQDOHV PLQHUDV SDUD IOH[LELOL]DU ORV FRQWUROHV HVWDWDOHV VREUH ORV LPSDFWRV PHGLRDPELHQWDOHVGHODVH[SORWDFLRQHVPLQHUDVOHJDOHVDJUDQHVFDOD3ULRULGDGTXHFRPRYLPRV DQWHULRUPHQWHHVHYLGHQWHDSDUWLUGHOLQWHQWRGHUHIRUPDDOFyGLJRGHHQDVtFRPRHQ ODVSULPHUDVYHUVLRQHVGHODOH\SHURVREUHWRGRHQODUHIRUPDGHOGRQGHVHLQWURGXFH HODFWXDOHVWDGRGHGHVJREHUQDQ]DDPELHQWDO(QHVWHVHQWLGRHOGHEDWHFKLOHQRHQWRUQRDORV LPSDFWRVLUUHYHUVLEOHVVREUHODQDWXUDOH]DDSDUWLUGHODH[SORWDFLyQDJUDQHVFDODQRVGHEHOODPDU DODMXVWDUHIOH[LyQ\SRQGHUDFLyQ >@ /DGLVFXVLyQHQWUHPLQHUtDOHJDOHLOHJDO\ODVHJXULGDGODERUDO/DH[SRUWDFLyQHPEOHPiWLFDSDUDHOFDVR &KLOHQRHVHOFREUH'HELGRDOFDUiFWHUJHROyJLFRGHORV\DFLPLHQWRVFKLOHQRVHVWDH[SORWDFLyQVH UHDOL]DSRUPHGLRGHVLVWHPDVGHJUDQPLQHUtDMDORQDGRVSRUXQDHPSUHVDHVWDWDO&RGHOFRTXH OOHJDDFXEULUFHUFDGHOGHODSURGXFFLyQQDFLRQDOHOUHVWDQWHHVWDHQPDQRVGHJUDQGHV HPSUHVDVSULYDGDVQDFLGRVEDMRHODPSDURGHO(VWDWXWRGHO,QYHUVLRQLVWD([WUDQMHUR'/GH (VWDWXWRHVWDEOHFLGRGXUDQWHHOSHULRGRGHODGLFWDGXUDPLOLWDU\TXHVHKD PDQWHQLGRGXUDQWHORVJRELHUQRVGHPRFUiWLFRV (VWD FRQILJXUDFLyQ SHUPLWH TXH OD H[SORWDFLyQ PLQHUD LOHJDO HQ HO FDVR FKLOHQR VHD PX\ EDMD 6LQHPEDUJRHOFDVRGHORVPLQHURVDWUDSDGRVHQODPLQD6DQ-RVpHQ&RSLDSyHQHO SHUPLWLy HYLGHQFLDU FRPR D SHVDU TXH &KLOH FXHQWD FRQ XQD QRUPDWLYLGDG FRQVWUXLGD SDUD SURWHJHU\VDOYDJXDUGDUODVHJXULGDGGHORVPLQHURV³>«@VXDSOLFDFLyQHVPX\OLPLWDGDGHELGRD &RPLVLyQ&KLOHQDGHO&REUHKWWSZZZFRFKLOFRFO análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 27 IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR Carlos Duarte ODLQH[LVWHQFLDGHXQDSDUDWRS~EOLFRFRQODFDSDFLGDGGHKDFHUODFXPSOLU´/XHJRGHOUHVFDWHGH ORVPLQHURVHOGLULJHQWHGHO0RYLPLHQWRGHORV3XHEORV\ORV7UDEDMDGRUHV037GH&KLOH$OIRQVR 2VVDQGRQ$QWLTXHUDDGYLUWLyTXHHODFFLGHQWHRFXUULGRHQ6DQ-RVpSXHGHUHSHWLUVHHQFXDOTXLHU PLQDGHOSDtV³/DUHDOLGDGGHHVDPLQDHVXQIDFWRUFRP~QHQODPLQHUtDFKLOHQD/DVLWXDFLyQHV EDVWDQWHSUHFDULD/RVHPSUHVDULRVTXHH[SORWDQHVRV\DFLPLHQWRVVRQGHSUHGDGRUHVQRVyORGHOD QDWXUDOH]DVLQRWDPELpQGHYLGDVKXPDQDV´2VVDQGRQ$QWLTXHUDH[SOLFyTXHORVHPSUHVDULRV VHDSURYHFKDQGHODQHFHVLGDGGHORVWUDEDMDGRUHVGHFRQWDUFRQXQVDODULRHVWDEOHORTXHORVKDFH DFHSWDUSUHFDULDVFRQGLFLRQHV\DVXPLUHOULHVJRGHSHUGHUVXVYLGDV³(VDVJUDQGHVFRUSRUDFLRQHV PLQHUDVQRVRQSHQDGDVSRUVXQHJOLJHQFLDSRUTXHVRQSDUWHGHORVJUXSRVGHSRGHUTXHPDQHMDQ HO (VWDGR $GHPiV HO VLVWHPD FRQWUDORU FKLOHQR HVWD SHUPHDGR SRU OD FRUUXSFLyQ´ ,EtG (O GLULJHQWH GHO 037 UHFRUGy TXH HQ OD PLQD GH 6DQ -RVp WUDEDMDQ PLQHURV TXH QR GHEHUtDQ VHU DFHSWDGRVSDUDHVDODERUSRUVXFRQGLFLyQGHVDOXGRVXHGDG³/RVHPSUHVDULRVVHGHVHQWLHQGHQ SRUFRPSOHWRGHVXVUHVSRQVDELOLGDGHV\HOPLVPRWUDEDMDGRUHVTXLHQWLHQHTXHVDFDUGLQHURGHVX EROVLOORSDUDFRPSUDUVHORVLQVWUXPHQWRVGHWUDEDMR\ORVHOHPHQWRVEiVLFRVTXHOHGHQHOPtQLPR GHVHJXULGDG,EtG &RPRHVSRVLEOHDSUHFLDUHOFDVRFKLOHQRSHUPLWHHYLGHQFLDUKDVWDTXHSXQWRODDGPLQLVWUDFLyQ PLQHUDEDMRHOPRGHORQHROLEHUDOQRHVQLQJXQDJDUDQWtDGHSURWHFFLyQDOPHGLRDPELHQWHRGH UHJXODUL]DFLyQ\SURWHFFLyQGHORVWUDEDMDGRUHVYLQFXODGRVDODH[WUDFFLyQPLQHUD6LQHPEDUJR TXL]iV HV PiV LOXVWUDWLYR SDUD OD UHDOLGDG FRORPELDQD ODV GLVFXVLRQHV TXH HO PRGHOR FKLOHQR SODQWHDHQWRUQRDODSURSLHGDGGHORVUHFXUVRVQDWXUDOHV\DODSDUWLFLSDFLyQHVWDWDO >@ /DSURSLHGDGGHOVXEVXHOR/DVUHJDOtDVVHH[SOLFDQMXUtGLFDPHQWHSRUTXHXQGHUHFKRDEVROXWRFRPR HVHOGHGRPLQLRQRSXHGHHMHUFHUVHDODYH]SRUHOSURSLHWDULRGHOELHQUDt]\TXLHQDGTXLHUH HOGHUHFKRDH[SORWDUXQ\DFLPLHQWR6RQGRVELHQHVGLVWLQWRV(OORGLRRULJHQDODIyUPXODGHO GRPLQLRHPLQHQWHSDUDODPLQDTXHHVHOTXHVHFRQVLGHUDSURSLRGHO(VWDGRSRUUD]yQGHOELHQ FRP~QFRQUHVSHFWRDODSURSLHGDGSULYDGD3RUHOORVHGHWHUPLQyTXHHOVREHUDQRGHDKtYLHQH ODSDODEUDUR\DOW\TXHORVLQJOHVHVWRPDURQGHOIUDQFpVHQOD(GDG0HGLDFRQFHGHHOGHUHFKR DH[SORWDUXQDPLQDDFDPELRGHOSDJRGHXQFDQRQ(QWLHPSRVGHOD&RORQLDGLFKRSDJRHUD HQHVSHFLHHVGHFLUHQPLQHUDOHOTXLQWRUHDOPLHQWUDVTXHKR\HVHQGLQHUR$FWXDOPHQWHOD UHJDOtDVHGHILQHFRPRODSUHVWDFLyQSHFXQLDULDSHULyGLFDTXHJUDYDXQDFRQFHVLyQHVWDWDORXQ GLVIUXWHHQHOGRPLQLRS~EOLFRTXHLQFOX\HHOHPLQHQWH (QHOFDVRFKLOHQRKDVXFHGLGRDOJRUHPDUFDEOHHQUHIHUHQFLDDODVUHJDOtDVPLQHUDV/RTXHDOOtVH WHUPLQySRUDSOLFDUQRIXHXQUHDO³5R\DOW\´VLQRXQLPSXHVWRHVSHFtILFRDODVXWLOLGDGHVQRDOD H[WUDFFLyQRYHQWDGHODDFWLYLGDGPLQHUD6LQHPEDUJRORPiVLOXVWUDWLYRHPHUJHFXDQGRVHREVHUYD TXHGLFKRLPSXHVWRQRVHLPSOHPHQWRHQWDQWRUHJDOtDSDUDQRUDWLILFDUHOGHUHFKRGHSURSLHGDG GHODQDFLyQVREUHHOUHFXUVRPLQHUR(VWRSRUTXHODOH\PLQHUDFKLOHQDPDQWLHQHHOSULQFLSLRGH ³/LEHUWDGGH0LQDV´VHJ~QHOFXDOODSURSLHGDGGHOHVWDGRQRHVHIHFWLYDVLQRLPSHUIHFWDSRUOR FXDOHO(VWDGRVyORWLHQHODIDFXOWDGGHFRQFHVLRQDUDORVSULYDGRV%DMRGLFKRDUJXPHQWRXQDYH] TXHVHHQWUHJDEDODFRQFHVLyQVyORHQHVHPRPHQWRVHFRQFUHWDEDXQDSURSLHGDG³SHUIHFWD´\UHDO TXHREYLDPHQWHHVSURSLHGDGGHOSULYDGR(VORTXHVHKDGHQRPLQDGROD³FRQFHVLyQSOHQD´(V GHFLUTXHHO(VWDGRSXHGHUHSDUWLUSHURQRGHWHQWDODSURSLHGDG3RUORWDQWRHQ&KLOHDGLIHUHQFLD GH&RORPELDQRVHDSOLFDXQUHDO5R\DOW\SDUDQRUHFRQRFHUODSURSLHGDGDEVROXWDGHO(VWDGR VREUHORVUHFXUVRVPLQHURV &DUORV0DQFLOODYLFHSUHVLGHQWHGHOD&87ă&KLOHHQOD5HJLyQGHORV5tRV(QKWWSZZZELRELRFKLOHFO (Q'LDULR&RUUHRGHO2ULQRFRGH2FWXEUH análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 27 Carlos Duarte 4.3 La estrategia de desposesión a la pequeña minera bajo el modelo de enclave exportador 8QHMHUFLFLRPiVVLVWHPiWLFRQRVSHUPLWLUtDREVHUYDUTXHORVSUR\HFWRVGHH[SORUDFLyQ\H[SORWDFLyQ PLQHUDH[WUDFWLYDVHKDQHQFDUJDGRKLVWyULFDPHQWHGHRUGHQDU\H[WHQGHUYDULDVGHODVIURQWHUDV JHRJUiILFDV H LPDJLQDULDV GH OD QDFLyQ FRORPELDQD HO RUR TXH LPSXOVR HQ OD FRORQLD WDQWR OD FRORQL]DFLyQDQWLRTXHxDFRPRORVSULPHURVGLVWULWRVPLQHURVGHOJUDQ&DXFDODH[SORWDFLyQGH HVPHUDOGDVPDQWHQLGDUHJXODUPHQWHGHVGHHOVLJOR;,;HQ%R\DFiODVFRQFHVLRQHVSHWUROHUDVDOR ODUJRGHOPDJGDOHQDPHGLRORV6DQWDQGHUHV$UDXFD\3XWXPD\RGXUDQWHHOVLJOR;;DVtFRPR ODVFRQWHPSRUiQHDVH[SORWDFLRQHVGHFDUEyQDFLHORDELHUWRHQHO&HVDU\OD*XDMLUD coyuntura IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR 3RUWDOUD]yQHVUHFXUUHQWHHQFRQWUDUXQDUHODFLyQHQWUHODOHJLVODFLyQPLQHUD\ODPDQHUDFRPRHO HVWDGRDFRQFHELGRODDGMXGLFDFLyQ\DGPLQLVWUDFLyQGHGLFKRVHVSDFLRV(VLPSRUWDQWHVHxDODU TXHGXUDQWHDxRVFRQUHVSHFWRDODGHOHJDFLyQ\DGPLQLVWUDFLyQGHHVRVWHUULWRULRVHO(VWDGR FRORPELDQRDFW~RFRPRVLGLFKDViUHDVJHRJUiILFDVQRIXHUDQKDELWDGDVSRUORWDQWRODILJXUDGH FRQFHVLyQPLQHUDIXHHQHVHQFLDXQSURFHVRGHH[WHQVLyQGHODIURQWHUDFRORQL]DGRUDGHODQDFLyQ 'HVGH HVWH SXQWR GH YLVWD QR H[WUDxD TXH OXHJR GHO UHFRQRFLPLHQWR GHO HVWDGR PXOWLFXOWXUDO HQ JUDQ SDUWH GH ORV SURFHVRV GH H[SORUDFLyQ \ H[SORWDFLyQ PLQHUD VH VREUHSRQHQ D ORV SURFHVRV GH SREODPLHQWR LQGtJHQD DIURGHVFHQGLHQWH \ GH FDPSHVLQRV FRORQL]DGRUHV 'H HVH FDODGRKLVWyULFRVRQORVDFWXDOHVFRQIOLFWRVHQWUHODVDOYDJXDUGDGHORVGHUHFKRVpWQLFRVSURIHULGRV SRUHOHVWDGRPXOWLFXOWXUDO\ODSURIXQGL]DFLyQGHODH[SORWDFLyQPLQHUDVXVWHQWDGDHQHOPRGHOR GHHQFODYHH[SRUWDGRU 'HRWUDSDUWHGLFKRVFRQIOLFWRVVHKDQYHQLGRDH[SUHVDUHQHO~OWLPR&yGLJR0LQHUR/DOH\ GHOEDMRODFRQIXVLyQTXHSODQWHDLQWURGXFLUHQXQDPLVPDFDWHJRUtDODPLQHUtDLQIRUPDO\ ODSHTXHxDPLQHUtD'LFKDFRQIXVLyQHVJUDYHHQODPHGLGDTXHLQGXFHDSHQVDUTXHODPLQHUtD ,QIRUPDOODFXDOJHQHUDOPHQWHXWLOL]DHOGUDJDGRLQWHQVLYRFRPRKHUUDPLHQWDH[WUDFWLYDFDXVDQGR SURIXQGRVGDxRV\GHVHTXLOLEULRVDOPHGLRDPELHQWH\TXHDGHPiVVHHQFDGHQDDODHFRQRPtD LOHJDO\PDILRVDSRUPHGLRGHVXILQDQFLDFLyQFRQGLQHURVGHOQDUFRSDUDPLOLWDULVPRSXHGHVHU FRPSDUDEOH D OD SHTXHxD PLQHUtD \ D OD PLQHUtD DQFHVWUDO UHDOL]DGDV HQ WHUULWRULRV pWQLFRV R PXOWLFXOWXUDOHV\VXVWHQWDGDVHQIRUPDVGHHFRQRPtDFRPXQLWDULDRGHVXEVLVWHQFLD >@ 'LFKD FRQIXVLyQ SURYLHQH GH WUHV GHWHUPLQDQWHV L OD HOLPLQDFLyQ GH OD SHTXHxD PLQHUtD FRPR FDWHJRUtD MXUtGLFD UHFRQRFLGD HQ HO &yGLJR GH PLQDV GH LL OD HTXLSDUDFLyQ GH ORV UHTXLVLWRVEXURFUiWLFRVSDUDFXDOTXLHUWLSRGHPLQHUtDTXHHTXLSDURGHIDFWRORVUHTXLVLWRVSDUD LPSOHPHQWDUFXDOTXLHUWLSRGHDFWLYLGDGPLQHUDVHDQH[WUDFFLRQHVDQFHVWUDOHVGHSHTXHxDHVFDOD RPHJDSUR\HFWRVGHJUDQPLQHUtDDFLHORDELHUWR\LLLODOHQWLWXGGHOPLQLVWHULRSDUDUHFRQRFHUORV WtWXORVPLQHURVDQFHVWUDOHVRGHSHTXHxDPLQHUtD IUHQWHDVXGLOLJHQFLDSDUDDSUREDUODVOLFHQFLDV /RVFXDOHVKDQUHFLELGRGLIHUHQWHVQRPEUHVWHUULWRULRVFRORQLDOHVWHUULWRULRVEDOGtRV\WHUULWRULRVQDFLRQDOHVHQWUHRWURV (OLQIRUPHGH5HFDOFD)HUQiQGH]9DOHQFLD\DQRVKDEtDPRVKHFKRXQDLGHDGHODGLVSDULGDGHQHOSURFHVRGHOHJDOL]DFLyQ (QUHIHUHQFLDDHVWHËWHPHO5HSRUWDMHGH,QYHVWLJDFLyQGH0DUtD7HUHVD5RQGHURVSDUDOD5HYLVWD6HPDQDHVEDVWDQWHGLFLHQWH 'HDFXHUGRFRQHVWHWUDEDMRODVLWXDFLyQGHDSUREDFLyQ\OHJDOL]DFLyQGHORVWtWXORVPLQHURVFRQWUDVWDDPSOLDPHQWHHQWUHODSHTXHxD\ ODJUDQPLQHUtD³>«@ORVPLQHURVDUWHVDQDOHVRUJDQL]DGRVHQYDULDVDVRFLDFLRQHV\VLQGLFDWRVKDEtDQFRQVHJXLGRTXHHO&yGLJR0LQHUR GHOHVGLHUDWUHVDxRVSDUDOHJDOL]DUVXVPLQDV'HORVPLOPLQHURVGHKHFKRTXHVHJ~QOD'HIHQVRUtDGHO3XHEORKD\HQHO SDtVOOHJDURQD,QJHRPLQDVVROLFLWXGHVGHIRUPDOL]DFLyQ<GHHOODVDSHQDVFRQVLJXLHURQIRUPDOL]DUVH¢/DUD]yQ"/DQRUPD OHVH[LJtDTXHSUHVHQWDUDQPDSDVWpFQLFRVGHVXVPLQDV\IDFWXUDVFRPHUFLDOHVGHYDULDVGpFDGDVDWUiV/DOH\TXHUHIRUPyHO &yGLJRHQIHEUHURGHYROYLyDDEULUODSRVLELOLGDGGHOHJDOL]DUPLQDVDUWHVDQDOHV(QXQDxROOHJDURQRWUDVSHWLFLRQHV'H pVWDV\DKDQVLGRHYDOXDGDVSHURFRPRODVQRUPDVVRQODVPLVPDVVyORXQDSDVyODSUXHEDGRFXPHQWDO\SUy[LPDPHQWHVHOH KDUiXQDYLVLWDWpFQLFD(FKDUDDQGDUODVSHWLFLRQHVGHORVPLQHURVDUWHVDQDOHVDSDVRGHWRUWXJD\ODVGHORVQXHYRVWtWXORVDJDORSH FHUUyD~QPiVODSRVLELOLGDGGHTXHORVDUWHVDQDOHVORJUDUDQIRUPDOL]DUVXVPLQDVFXDQGROOHJDEDQVXVSHWLFLRQHV\DHVDViUHDVKDEtDQ VLGRDGMXGLFDGDVDQXHYRVPLQHURVRDHVSHFXODGRUHV´ análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 27 IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR Carlos Duarte GHH[SORUDFLyQ\SRVWHULRUWLWXODFLyQGHSUHGLRVGHVWLQDGRVDODJUDQPLQHUtDRDQRPEUHGHORV JUDQGHVPXOWLQDFLRQDOHVPLQHUDVD~QFXDQGRYDULDVGHGLFKDVWLWXODFLRQHVVHVXSHUSRQHQFRQ WHUULWRULRVpWQLFRVGHPLQHUtDDQFHVWUDORGHUHVHUYDPHGLRDPELHQWDOHV $VtODVFRVDVHQODPHGLGDTXHVHHVWLJPDWL]D\VHFRQIXQGHODSHTXHxDPLQHUtDDVtFRPRORV SUR\HFWRV PLQHURV GH ODV FRPXQLGDGHV LQGtJHQDV \ QHJUDV FRQ OD PLQHUtD LOHJDO VH DEUH WRGR XQDJDPDGHSRVLELOLGDGHV\PHWRGRORJtDVGHGHVSRVHVLyQGHGLFKRVUHFXUVRV$GHPiVHVPX\ SRVLEOHTXHGLFKRVPHFDQLVPRVGHGHVSRVHVLyQMXHJXHQDIDYRUGHODPLQHUtDWUDQVQDFLRQDOOD FXDOVHFDUDFWHUL]DSRUXQDLQREMHWDEOHFDSDFLGDGGHFDELOGHRLQVWLWXFLRQDO\GHSUHVLyQVREUHODV LQVWDQFLDVJXEHUQDPHQWDOHVFRPRIXHSRVLEOHREVHUYDUDSDUWLUGHOSUR\HFWRGHPRGLILFDFLyQGHO FyGLJRPLQHURHQSRUODDERJDGD$UDPEXUX\GHOGHEDWHHQHOSDUODPHQWRFDQDGLHQVHHQ UHODFLyQDODLQWHUYHQFLyQGHODDJHQFLDGHFRRSHUDFLyQGHHVHSDtVSDUDLQIOXLUHQHOGLVHxRGHOD /H\GHO ¢3HURSRUTXpKDEODUGHGHVSRVHVLyQ"&RQYLHQHREVHUYDUTXHHQORV~OWLPRVDxRVORVFRQFHSWRV GHGHVSRVHVLyQ\GHVSRMRKDQYHQLGRWRPDQGRIXHU]DHQODDFDGHPLDFRORPELDQD /DLGHDGH ³GHVSRMR´KDUHVXOWDGRSDUWLFXODUPHQWHDSURSLDGDSDUDGHVFULELUHOSURFHVRGHDFXPXODFLyQGH WLHUUDV\GHGHVSOD]DPLHQWRIRU]DGR'HDFXHUGRFRQHOÈUHDGH0HPRULD+LVWyULFDGHOD&RPLVLyQ 1DFLRQDOGH5HSDUDFLyQ\5HFRQFLOLDFLyQ&155 >@ ³'HVSRMRYLHQHGHOODWtQGLVSROLDUHVLJQLILFDGHVSRMDUVDTXHDUGHVYDOLMDUH[SURSLDU3ULYDUGH VXVIDFXOWDGHVRYHQWDMDVQDWXUDOHVDDOJXLHQ/D5HDO$FDGHPLDGHOD/HQJXD(VSDxRODGHILQH HOGHVSRMRFRPRSULYDUDDOJXLHQGHORTXHJR]D\WLHQHGHVSRVHHUORGHHOORFRQYLROHQFLD(O 'HVSRMRVHDVRFLDHQHVWDGHILQLFLyQFRQHODFWRYLROHQWRRFODQGHVWLQRSRUHOFXDOXQRHVSULYDGR GHXQDFRVDPXHEOHRUDt]TXHSRVHtDRGHOHMHUFLFLRGHXQGHUHFKR´ 6L ELHQ HO UHFXUVR PLQHUR SXHGH VHU ³GHVSRMDGR´ SRU PHGLR GH OD IXHU]D OR TXH HV DSUHFLDEOH EDMRHOPRGHORGH³PLQHUtDGHHQFODYHH[SRUWDGRU´HVTXHGLFKRHYHQWRVXFHGHSRUPHGLRGHXQD HVWUDWHJLDOHJDO(QWRQFHVDXQTXHHQODSUiFWLFDORVHIHFWRVOHJLVODWLYRVVHWUDGXFHQHQ³GHVSRMRV´ TXHDGRSWDQYDULDVGHODVFDUDFWHUtVWLFDVHQXQFLDGDVSRUOD&155SULYDFLyQGHXQELHQRUHFXUVR TXHSXHGHVHULQGLYLGXDOVRFLDORFRPXQLWDULRORVFXDOHVSXHGHQOLJDUVHDODVGLQiPLFDVSURSLDV GHODJXHUUDRDODVSULRULGDGHVGHOGHVDUUROOR(QHOFDVRGHODOHJLVODFLyQPLQHUDYDOHODSHQD UHPDUFDUTXHHQODPD\RUtDGHORVFDVRVODSULYDFLyQQRDSHODHQSULPHUDLQVWDQFLDDOUHFXUVR YLROHQWRFRPRVXFHGLyFRQODPD\RUtDGHSURFHVRVGHGHVSOD]DPLHQWRIRU]DGR\FRQFHQWUDFLyQGH ODWLHUUDVLQRTXHFRPRKHPRVYLVWRODEDWDOODVHLQVWDODHQHOiPELWRGHODVLQWHUSUHWDFLRQHV\ODV WUDQVIRUPDFLRQHVMXUtGLFDV(QHVWRVFDVRVQRVHQIUHQWDPRVDXQIHQyPHQRTXHVLELHQVHUHODFLRQD FRQHO³GHVSRMR´GHVFULEHXQDVHULHGHGLQiPLFDVSURSLDVTXL]iVDQWHULRUDOXVRGHODIXHU]D (VDVtFRPRODVGLYHUVDVIRUPDVGHH[SORWDFLyQPLQHUDDORODUJRGHODKLVWRULDFRORPELDQDGHVGH ODVH[SORWDFLRQHVLQGtJHQDVIXQGDGDVHQILQHVFHUHPRQLDOHVRGHLQWHUFDPELRODVVHUYLGXPEUHV PLQHUDVFRORQLDOHVFRQYHUWLGDVHQH[SORWDFLRQHVDIURGHVFHQGLHQWHVEDMRHOHIHFWRGHORVSURFHVRV $MXOLRGHILJXUDQWtWXORVGHOD$QJOR*ROG$VKDQWLUHJLVWUDGRVHQGLYHUVRVPXQLFL SLRVFRORPELDQRVGHXQH[WUHPRDORWUR GHOSDtVORVTXHVXPDQPiVGHPLOKHFWiUHDV/RV&XDOHVVHJ~Q0DUtD7HUHVD5RQGHURVIXHURQDSUREDGRVHQHOODSVR UHFRUGGHWUHVDxRV 'HDFXHUGRFRQ5RQGHURVHQ-XQLRGHO&DUORV5RGDGRPLQLVWURGH0LQDV\(QHUJtDEDMRHOJRELHUQRGH-XDQ0DQXHO6DQWRV DILUPRGHVGHTXHVHDSUREyHO&yGLJRGH0LQDVHQ³KXERVXSHUSRVLFLyQGHWtWXORVPLQHURVHQiUHDVGHSDUTXHVQDFLRQDOHV \SiUDPRVMXHJRVHVSHFXODWLYRVH[SHGLFLyQGHWtWXORVVLQFRQWURO\DOJXQRVGHPDQHUDVRVSHFKRVDYLRODFLyQGHORVGHUHFKRVDODV FRPXQLGDGHVPLQHUDVLQGtJHQDV\DIURGHVFHQGLHQWHV\DFDSDUDPLHQWRGHWtWXORV´,ELG 5LQFyQ-9HJD$OHMDQGUDÈUHDGH0HPRULD+LVWyULFD&1555H\HV3RVDGD$\ análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 27 Carlos Duarte GHHVFODYL]DFLyQ\GLiVSRUDRODVGLQiPLFDVGHODSHTXHxDPLQHUtDPHVWL]DDXVSLFLDGDVEDMROD SUHVLyQGHORVIUHQWHVGHFRORQL]DFLyQSHUPLWHQSHQVDUTXHHVWRVWLSRVGHPLQHUtDWXYLHURQTXHYHU PiVFRQSURFHVRVVRFLDOHVFRQWLQJHQWHVDODKLVWRULDGHODVGLQiPLFDVWHUULWRULDOHV\HQXQVHJXQGR SODQRFRQSROtWLFDVGHHVWDGRDQFODGDVHQODVWUDQVIRUPDFLRQHVGHORVGHUHFKRVGHSURSLHGDG (QHVWHVHQWLGRODSHTXHxDPLQHUtDVHHQFXHQWUDHQUHODFLyQGLUHFWDFRQHODFWRGHWUDEDMDUODV PLQDVPiVTXHFRQODSURSLHGDGOHJDOPHQWHUHFRQRFLGDSRUHOHVWDGRFRORPELDQR3RGUtDGHFLUVH TXHGHPDQHUDSDUHFLGDDORVHMLGRVORVEDOGtRVRORVWHUUHQRVFRPXQDOHVVXOHJLWLPLGDGGHULYDGHVX SRVHVLyQHQWDQWRDFWRGHDSURSLDFLyQ\XVXIUXFWRFRPXQLWDULRTXHGHVXOHJDOLGDGUHFRQRFLGDSRU PHGLRGHXQDWLWXODFLyQSURIXQGDPHQWHYDULDEOH6LWHQHPRVHQFXHQWDTXHSDUDOD5HDO$FDGHPLD GHOD/HQJXDODSRVHVLyQHV³>«@XQDFWRGHWHQHUFRVDVFRQDQLPRGHJXDUGDUODVSDUDVtR SDUDRWURDXQTXHHQULJRUQRVHSRVHDQ´DFWRTXHVHPDQLILHVWDHQXQ³>«@iQLPRGHGXHxRRGH WLWXODUOHJtWLPR´(QWRQFHVHOWHUPLQR³GHVSRVHVLyQ´SDUHFHPHMRUSURYLVWRTXHHOGH³GHVSRMR´SDUD GHVFULELUODVHULHGHIHQyPHQRVUHIHULGRVVXSHUWLQHQFLDVHIXQGDHQTXHORTXHVHSLHUGHVHHIHFW~D VREUHDOJRGRQGHUHDOPHQWHQRVHKDWHQLGRXQDSURSLHGDGDEVWUDFWDVLQRGHIDFWR coyuntura IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR >@ análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 27 IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR Carlos Duarte BIBLIOGRAFÍA $FRVWD$³*REHUQDELOLGDG\GHPRFUDFLD3HUVSHFWLYDVGHOGHEDWHDYHLQWHDxRVGHOUHSRUWHDOD&RPLVLyQ 7ULODWHUDO´(Q1RHVLV*REHUQDELOLGDG\GHPRFUDFLD $]XHUR)%DUULRV,%XUJRV%&DxyQ&*yPH]:3DH]&$OJXQRVDVSHFWRVMXUtGLFRVGHODSURSLHGDG GHOVXEVXHORSHWUROtIHURIUHQWHDODVPLQRUtDVpWQLFDV3RQWLILFLD8QLYHUVLGDG-DYHULDQDă)DFXOWDGGH&LHQFLDV-XUtGLFDV %RJRWi&RORPELD $XVWUDOLD¶V)XWXUH7D[6\VWHP5HYLHZ)LQDO5HSRUWRIWKH$XVWUDOLD¶V)XWXUH7D[6\VWHP5HYLHZ %LJUDV % &DQDGD &RORPELD )UHH 7UDGH $JUHHPHQW ,PSOHPHQWDWLRQ $FW *RYHUQPHQW 0D\ WK KWWSV RSHQSDUOLDPHQWFDKDQVDUGVKO &iUGHQDV05HLQD0/D0LQHUtDHQ&RORPELD,PSDFWRVRFLRHFRQyPLFR\ILVFDO)HGHVDUUROOR &RQVHMRGH(VWDGR6DODGH&RQVXOWD\6HUYLFLR&LYLO&RQVHMHUR3RQHQWH-DLPH3DUHGHV6HQWHQFLDGHO GHIHEUHURGH &RPLVLyQ&KLOHQDGHO&REUHKWWSZZZFRFKLOFRFO &RPLVLyQ1DFLRQDOGH5HSDUDFLyQ\5HFRQFLOLDFLyQ&155ÈUHDGH0HPRULD+LVWyULFD/tQHDGH,QYHVWLJDFLyQ 7LHUUD \ &RQIOLFWR (O 'HVSRMR GH 7LHUUDV \ 7HUULWRULRV $SUR[LPDFLyQ FRQFHSWXDO ,(35, &155 ZZZ PHPRULDKLVWRULFDFQUURUJFRZZZFQUURUJFR &RUWH &RQVWLWXFLRQDO 6HQWHQFLD 1R & ZZZFRUWHFRQVWLWXFLRQDOJRYFRUHODWRULD& KWP &RUUHRGHO2ULQRFR'LDULRGH2FWXEUH >@ 'XDUWH & *REHUQDELOLGDG 0LQHUD FURQRORJtDV OHJLVODWLYDV GHO VXEVXHOR HQ &RORPELD &HQWUR GH 3HQVDPLHQWR 5$,=$/$FFHVLEOHHQODGLUHFFLyQ:HEKWWSZZZUDL]DOFRPWH[WRVGHUDL]DOYVWF PLQHULD 'XLFD/5H\HV$(OGHVSRMRGHWLHUUDVSRUSDUDPLOLWDUHVHQ&RORPELD8QLYHUVLGDGGHO5RVDULR&HQWURGH HVWXGLRV\2EVHUYDWRULRGH'URJDVLOtFLWDV\GHOLWR%RJRWi )HGHVDUUROOR/DPLQHUtDHQ&RORPELDLPSDFWRVRFLRHFRQyPLFR\ILVFDO3UR\HFWRGHOD&iPDUD$VRPLQHURVGHOD $1',%RJRWi&RORPELD )HUQiQGH]-9DOHQFLD0/LEUHFRPHUFLR\PLQHUtDHQ&RORPELD(OFDVRGHOD$QJORJROG$VKDQWL5(&$/&$ ZZZUHFDOFDRUJFR *DOHDQR-³0LQHUtD\0HGLR$PELHQWHHQ&RORPELDOD1XHYD5HJXODFLyQGHO´(Q3RUWDIROLR +XJKHV&&DQDGD&RORPELD)UHH7UDGH$JUHHPHQW,PSOHPHQWDWLRQ$FW*RYHUQPHQW0D\WKKWWSV RSHQSDUOLDPHQWFDKDQVDUGVSDJH 0DQFLOOD&&KLOHHQOD5HJLyQGHORV5tRV(QKWWSZZZELRELRFKLOHFO 0DVVH % &DQDGD &RORPELD )UHH 7UDGH $JUHHPHQW ,PSOHPHQWDWLRQ $FW *RYHUQPHQW 0D\ WK KWWSV RSHQSDUOLDPHQWFDKDQVDUGVKO SDJH 0D\RUJD)³/RVUHVJXDUGRVLQGtJHQDV\HOSHWUyOHRRUtJHQHV\SHUVSHFWLYDVGHORURQHJURHQ&RORPELD´(Q 5HYLVWD&UHGHQFLDO+LVWRULD(GLFLyQ%RJRWiă&RORPELD 0D\RUJD)³/DLQGXVWULDSHWUROHUDHQ&RORPELD´(Q5HYLVWD&UHGHQFLDO+LVWRULD(GLFLyQ-XOLRGH 0LQLVWHULRGH0LQDV\(QHUJtD$QXDULRHVWDGtVWLFRPLQHURFRORPELDQR00(%RJRWi&RORPELD análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 27 Carlos Duarte 0LQLVWHULRGH0LQDV\(QHUJtD&RPSRUWDPLHQWRGHODSURGXFFLyQGHPLQHUDOHV\GHUHJDOtDVPLQHUDVHQ &RORPELD 0XxR] 0 'H OD VHUYLGXPEUH PLQHUD D OD VHUYLGXPEUH SHWUROHUD 7HVLV GH SUHJUDGR HQ GHUHFKR )DFXOWDG GH &LHQFLDV-XUtGLFDVă'HSWRGHGHUHFKRHFRQyPLFRÈUHDGHPLQDV\SHWUyOHRV%RJRWi 2ULKXHOD&³(VWLPDQGRODUHJDOtDySWLPDSDUDODPLQHUtDPHWiOLFDSHUXDQD´(Q(FRQRPtD\6RFLHGDG&,(6 2FWXEUH8QLYHUVLGDG1DFLRQDO$JUDULD/D0ROLQDă3HU~SS coyuntura IMPLEMENTACIÓN Y CRISIS DEL ACTUAL SISTEMA DE GOBERNABILIDAD MINERA EN COLOMBIA: EL MODELO DE ENCLAVE EXPORTADOR 3DUGRȳ/DORFRPRWRUDPLQHUDVLJXHSXMDQWHSHURHOJRELHUQRSHUGLyHODxR´(QKWWSUD]RQSXEOLFDFRP 3RYHGD*³/DPLQHUtDFRORQLDO\UHSXEOLFDQDFLQFRVLJORVGHYDULDQWHV\GHVDUUROORV´(Q5HYLVWD&UHGHQFLDO +LVWRULD(GLFLyQ-XOLRGH%RJRWiă&RORPELD 5HVWUHSR&³&RQVLGHUDFLRQHVVREUHODPLQHUtDHQ&RORPELD´(Q/D0LQHUtDKLVSDQDHLEHURDPHULFDQD9RO, 9,&RQJUHVR,QWHUQDFLRQDOGH0LQHUtD/HyQ 5H\HV$*XHUUHURV\FDPSHVLQRV(GLWRULDOQRUPD%RJRWi 5LQFyQ-1RVTXLWDURQDODIXHU]DDOJRPiVTXHODWLHUUD«'HVSRMR\UHRUGHQDPLHQWRVRFLDOGHOWHUULWRULRDWUDYpVGH ODYLROHQFLDHQ&RORPELD&HQWURGHSHQVDPLHQWR5DL]DOZZZUDL]DOFRP 5RQGHURV0³5DGLRJUDItDDODLQGXVWULDPLQHUDODILHEUHPLQHUDVHDSRGHUyGH&RORPELD´(Q5HYLVWD 6HPDQDVHSWLHPEUHGH 5HDO'LFFLRQDULRGHOD/HQJXD(VSDxROD9LJpVLPDVHJXQGDHGLFLyQKWWSZZZUDHHVUDHKWPO 8QLWHG1DWLRQV,QWHJUDWHG(QYLURQPHQWDQG(FRQRPLF$FFRXQWLQJă$QG2SHUDWLRQDO0DQXDO1HZ<RUN 9HJD$'HVSRMRGHWLHUUDVFDPSHVLQDV\YXOQHUDFLyQGHWHUULWRULRVDQFHVWUDOHV&RPLVLyQ&RORPELDQDGH-XULVWDV %RJRWi >@ análisis político nº 74, Bogotá, enero-abril, 2012: págs. 3 - 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