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Universidade De Brasília Instituto De Relações Internacionais Pós-Graduação Em Relações Internacionais UNIVERSIDADE DE BRASÍLIA INSTITUTO DE RELAÇÕES INTERNACIONAIS PÓS-GRADUAÇÃO EM RELAÇÕES INTERNACIONAIS RELAÇÕES INTERNACIONAIS E REGULAÇÃO PELOS ESTADOS UNIDOS DE INVESTIMENTOS ESTRANGEIROS DE 1789 A 2011: DAS ORIGENS DO NACIONALISMO ECONÔMICO DO “SISTEMA AMERICANO” AO ENFRAQUECIMENTO DO LIBERALISMO ECONÔMICO DO “SÉCULO AMERICANO” PEDRO DA SILVEIRA MONTENEGRO BRASÍLIA 2011 PEDRO DA SILVEIRA MONTENEGRO RELAÇÕES INTERNACIONAIS E REGULAÇÃO PELOS ESTADOS UNIDOS DE INVESTIMENTOS ESTRANGEIROS DE 1789 A 2011: DAS ORIGENS DO NACIONALISMO ECONÔMICO DO “SISTEMA AMERICANO” AO ENFRAQUECIMENTO DO LIBERALISMO ECONÔMICO DO “SÉCULO AMERICANO” Tese apresentada à Universidade de Brasília como requisito para obtenção do título de Doutor em Relações Internacionais - área de concentração História das Relações Internacionais Orientador: Prof. Dr. José Flávio Sombra Saraiva BRASÍLIA 2011 Aos meus pais. AGRADECIMENTO A produção desta tese não teria sido possível sem o apoio que recebi do meu orientador, bem como de professores e funcionários do Instituto de Relações Internacionais da Universidade de Brasília e de outras instituições. Ademais, este trabalho não teria passado de mera hipótese sem a ajuda de minha família. Sou muito grato ao Professor José Flávio Sombra Saraiva não somente por sua orientação, mas também por sua paciência e confiança em meu trabalho, bem como à secretária do Programa de Pós-Graduação em Relações Internacionais da UnB, Odalva Araújo, e a outros funcionários da instituição pela boa vontade e competência que demonstraram na resolução de questões administrativas de minha vida acadêmica. Agradeço pelos ensinamentos que recebi dos professores do Instituto de Relações Internacionais e pelo auxílio da Professora Ana Flávia Barros Platiau para que eu usufruísse de temporada de pesquisa no Institut d‟Etudes Politiques de Paris (Sciences Po), onde recebi relevante apoio do Professor Bertrand Badie e de Marie Françoise Durand. Sou igualmente grato a chefes e a colegas de trabalho do Itamaraty, que foram compreensivos com relação à minha dupla condição de diplomata e de doutorando. Por fim, mas não menos importante, agradeço muitíssimo à minha família, lato sensu – na qual incluo a família da minha mulher – pelo incentivo e apoio indispensáveis à produção desta tese. Sou especialmente grato à minha mulher, Sandra, e à minha filha, Joana, pelas inesgotáveis parceria, paciência e compreensão com relação à minha dedicação a este trabalho acadêmico. Além de ser grato pelo apoio sempre presente de minha tia Dóris e dos meus irmãos, Fernando e Thomaz, bem como das suas famílias, agradeço também ao meu padrasto, Francisco, por sua generosidade intelectual demonstrada ao longo de minha formação; ao meu pai, Fernando, pela discussão do texto da tese e por ajudar-me a manter o foco no que era e é importante; à Elca, pelo incentivo e pelas advertências com relação aos perigos do perfeccionismo; e à minha mãe, Themis, por ser amiga de todas as horas e modelo tanto de competência profissional, quanto de dedicação à família e à pesquisa acadêmica. SUMÁRIO DA TESE INTRODUÇÃO…………………………………………………………………………….…8 1. APROXIMAÇÕES CONCEITUAIS E ASPECTOS METODOLÓGICOS.……30 1.1. “Kicking Away the Ladder” e as relações econômicas internacionais………….…30 1.2. “O Século Americano” e as relações econômicas internacionais…………………38 1.3. Aspectos metodológicos……………………………………………………………...52 2. A REGULAÇÃO DOS INVESTIMENTOS ESTRANGEIROS NOS ESTADOS UNDOS SOB O NACIONALISMO DO “SISTEMA AMERICANO” DE ECONOMIA POLÍTICA E DOS SEUS ANTECEDENTES: DE 1789 A 1913…………………………58 2.1. Das origens do nacionalismo econômico à sua consolidação após a “Segunda Guerra de Independência”: de 1789 a 1816……………………………………………..…70 2.2. Do consenso nacionalista ao conflito sobre sistemas de economia política: de 1816 a 1861………………………………………………………………………………………..116 2.3. Da hegemonia política do nacionalismo econômico à superação de sua necessidade: de 1861 a 1913…………………………………………………………….…148 3. RECIPROCIDADE E REGULAÇÃO DOS INVESTIMENTOS ESTRANGEIROS NOS ESTADOS UNIDOS NA TRANSIÇÃO DO NACIONALISMO AO LIBERALISMO ECONÔMICO: DE 1913 A 1945…………………………………174 3.1. Da tentativa frustrada de liberalização comercial ao início do fim do protecionismo econômico: de 1913 a 1934………………………………………………..176 3.2. Da consolidação da reciprocidade comercial à hegemonia econômica internacional: de 1934 a 1945……………………………………………………………...210 4. OS ESTADOS UNIDOS E A REGULAÇÃO DOS INVESTIMENTOS ESTRANGEIROS DO APOGEU AO ENFRAQUECIMENTO DO LIBERALISMO ECONÔMICO DO “SÉCULO AMERICANO”: DE 1945 A 2011……………………..224 4.1. Da busca do tratamento nacional à constatação dos limites do poder norte- americano: de 1945 a 1971………………………………………………………………...228 4.2. Do unilateralismo na política externa econômica ao retorno do status de devedor internacional: de 1971 a 1988……………………………………………………………...251 4.3. Do controle do investimento estrangeiro nos Estados Unidos ao fracasso da ALCA e ao enfraquecimento do liberalismo econômico no fim do Século Americano: de 1988 a 2011……………………………………………………………………………….…272 CONCLUSÃO……………………………………………………………………………...326 REFERÊNCIAS BIBLIOGRÁFICAS……………………………………………………333 ANEXO…………………………………………………………………………………......364 RESUMO Esta tese busca explicar a evolução da regulação do investimento estrangeiro pelos Estados Unidos de 1789 a 2011 por meio de análise de “longa duração”, na qual aquele extenso período foi dividido em três grandes fases – de 1789 a 1913, de 1913 a 1945 e de 1945 a 2011 – diferenciadas pela tendência predominante das normas federais então criadas sobre o tema e pelo papel do país no sistema econômico internacional dessas épocas. Na primeira fase, os EUA ocuparam posição periférica e de devedor no sistema mundial, e, influenciados por Alexander Hamilton e pelo “Sistema Americano” de economia política, adotaram leis sobre investimentos estrangeiros marcadas, em geral, pelo princípio do nacionalismo econômico. Na segunda, quando já havia ultrapassado a Inglaterra como maior potência industrial, mas ainda hesitava em arcar com os custos da liderança mundial, o país se transformou em credor internacional e promoveu, gradualmente e de forma não linear, tanto a liberalização do seu comércio exterior, quanto a reciprocidade no tratamento de investimentos estrangeiros. Na terceira, após terem consolidado sua posição credora internacional, admitido a missão de criar o “Século Americano” e assumido papel hegemônico ao final da Segunda Guerra Mundial, os EUA passaram a defender a adoção – em outros países e por meio de tratados bilaterais, regionais e multilaterais – de normas sobre investimento estrangeiro baseadas no conceito do tratamento nacional e no liberalismo econômico. Recentemente, no entanto, com seu retorno à condição de devedor internacional e com seu declínio relativo no sistema mundial, os EUA têm adotado práticas que denotam enfraquecimento do liberalismo econômico no país, como a imposição de controles à aquisição de empresas norte-americanas por investidores estrangeiros e a aplicação de medidas protecionistas na área comercial. Apóia-se tal análise com o uso de conceitos teóricos relativos às estratégias econômicas de “catch up” e “pulling ahead”, aplicados, respectivamente, à primeira e à terceira fases acima mencionadas. A segunda fase constitui transição tanto entre aqueles períodos, quanto entre as duas eras da política externa norte-americana, identificadas em obra aqui adaptada às relações econômicas internacionais dos Estados Unidos, nas quais o país se comportou, respectivamente, como uma “Promised Land” e como um “Crusader State”. Palavras-chave: EUA; nacionalismo e liberalismo econômicos; investimentos estrangeiros. ABSTRACT This thesis attempts to explain the evolution of foreign investment regulation in the United States from 1789 to 2011 through a “long duration” analysis in which that extensive period is divided into three stages – from 1789 to 1913, from 1913 to 1945 and from 1945 to 2011 – differentiated by the predominant tendency of the federal rules then created about the subject and by the role of that country in the international economic system of those phases. In the first stage, the U.S. occupied a peripheral and debtor position in the world system, and, influenced by Alexander Hamilton and by the “American System” of political economy, adopted laws on foreign investment marked, in general, by the principle of economic nationalism. In the second stage, when it had already surpassed England as the major industrial power, but when it still hesitated on bearing the costs of world leadership, the country became an international creditor and promoted, gradually and in a non-linear manner, the liberalization of its international trade and reciprocity in regard to foreign investments. In the third stage, after consolidating its international creditor position, admitting the mission of creating the “American Century”, and assuming the role of hegemon at the end of World War II, the U.S. started to defend the adoption – in other countries and through bilateral, regional and multilateral treaties – of rules on foreign investment based on economic liberalism and on the concept of national treatment. Recently, however, with its return to the condition of international debtor and with its relative decline in the world system, the U.S. has been implementing actions that indicate a weakening of economic liberalism in that country, such as levying controls on the acquisition of American companies by foreign investors and applying protectionist trade measures. This analysis is supported
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