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Atividade De Inteligncia E Relaes Internacionais UNIVERSIDADE DE BRASÍLIA – UnB INSTITUTO DE RELAÇÕES INTERNACIONAIS PROGRAMA DE PÓS-GRADUAÇÃO EM RELAÇÕES INTERNACIONAIS SED QUIS CUSTODIET IPSO CUSTODES? O CONTROLE DA ATIVIDADE DE INTELIGÊNCIA EM REGIMES DEMOCRÁTICOS: OS CASOS DE BRASIL E CANADÁ JOANISVAL BRITO GONÇALVES Brasília Junho de 2008 ii JOANISVAL BRITO GONÇALVES SED QUIS CUSTODIET IPSO CUSTODES? O CONTROLE DA ATIVIDADE DE INTELIGÊNCIA EM REGIMES DEMOCRÁTICOS: OS CASOS DE BRASIL E CANADÁ Tese apresentada ao Curso de Pós-Graduação em Relações Internacionais do Instituto de Relações Internacionais da Universidade de Brasília, como requisito final à obtenção do título de Doutor em Relações Internacionais Área de Concentração: Política Internacional Comparada Orientador: Prof. Dr. Eduardo Viola Brasília Junho de 2008 ii iii JOANISVAL BRITO GONÇALVES SED QUIS CUSTODIET IPSO CUSTODES? O CONTROLE DA ATIVIDADE DE INTELIGÊNCIA EM REGIMES DEMOCRÁTICOS: OS CASOS DE BRASIL E CANADÁ Tese defendida no Curso de Pós-Graduação em Relações Internacionais do Instituto de Relações Internacionais da Universidade de Brasília, como requisito final à obtenção do título de Doutor em Relações Internacionais, aprovada em 23 de junho de 2008, perante Banca Examinadora constituída pelos seguintes professores: Prof. Dr. Eduardo Viola – UnB Orientador Prof. Dr. Eiiti Sato – UnB Prof. Dr. Jorge Luiz Fontoura Nogueira – UFPR e Instituto Rio Branco Prof. Dr. Nizar Messari – PUC-Rio de Janeiro Prof. Dr. Paulo Roberto de Almeida – UNICEUB Prof. Dr. Antônio Barbosa – UnB (Suplente) iv v A minhas meninas e a meu guri, pela compreensão, paciência, resignação, apoio, carinho e tolerância nas incontáveis horas de que abriram mão para que este trabalho fosse realizado. Aos abnegados homens e mulheres que operam no silêncio, aprendendo a resistir a frustrações e oferecendo até a própria vida no cumprimento do dever. vi vii AGRADECIMENTOS “Mais vale ter amigos que tesouros amontoados.” Provérbio Russo Ainda que pareça lugar comum, se todas as pessoas que contribuíram para a presente Tese fossem aqui listadas, seriam preenchidas mais páginas que as do próprio conteúdo do trabalho. Assim, optou-se por fazer o agradecimento expresso aos principais colaboradores, sem os quais não se chegaria a este resultado. Primeiramente, nosso agradecimento ao Professor Doutor Eduardo Viola, amigo e orientador, sempre aberto ao diálogo e incentivador constante desta pesquisa. Graças à orientação do Professor Viola e de sua perspicácia como interlocutor, conseguiu-se chegar a este produto acabado, cujas deficiências se devem exclusivamente à incompetência do orientando em assimilar os sábios conselhos do mestre. Nosso agradecimento também ao Governo do Canadá que, por meio do Governor General Award for Doctoral Research, permitiu-nos ir a Ottawa e desenvolver a pesquisa. Sem esse período na América do Norte, o trabalho não poderia ser feito. A iniciativa canadense de apoio à pesquisa é marca da indelével preocupação daquele país com a educação, a cooperação internacional e o intercâmbio de conhecimento. Espera-se que esta singela pesquisa contribua para o processo de aproximação entre Brasil e Canadá. Também para o período no Canadá foi fundamental o apoio do Senado Federal, da Mesa desta Casa e de seus órgãos técnicos e administrativos, com destaque para a Consultoria Legislativa e o Instituto Legislativo Brasileiro. Assim, fica a dívida com o Estado brasileiro e com o Poder Legislativo, a qual se espera sanar com a dedicação no trabalho de assessoramento desta Casa e do Congresso Nacional, em particular no que concerne a assuntos relacionados ao controle da atividade de inteligência. Agradecimentos não podem faltar ainda ao Centro Universitário de Brasília, instituição na qual lecionamos, pelo apoio à ida ao Canadá. Nossa gratidão ao Doutor João Herculino Filho e à Professora Doutora Any Ávila, cujo respaldo foi fundamental para nossa missão no Hemisfério Norte. Doutor João mostrou-se grande incentivador do jovem docente do UniCeub, instituição pela qual temos muito apreço e na qual nos formamos em Direito. viii Nossa gratidão, ademais, ao Professor Doutor George Felipe de Lima Dantas, por suas observações à época do Exame de Qualificação. A análise de George sobre nosso projeto foi muito importante para aperfeiçoá-lo e nos prepararmos para a pesquisa no Canadá. E agradecendo ao mestre, também o faço a meus alunos de graduação e pós-graduação, particularmente àqueles que, em nossos cursos sobre atividade de inteligência e planejamento estratégico, ajudaram com seus questionamentos a aperfeiçoar nossas perspectivas sobre o tema. In Canada, our special thanks to Professor Martin Rudner, who kindly accepted us in the Canadian Centre of Intelligence and Security Studies, opening to us the hermetic Canadian intelligence community. It was a great honor to become a visiting fellow at the Norman Paterson School of International Affairs (NPSIA) at Carlton University. I’d also like to thank the School, its Chair and staff. Without this support by NPSIA and by Carleton University, this Dissertation would be never concluded. Par ailleurs à Carleton, mes remerciements au cher Professeur Jean Daudelin, qui, plus qu’un superviseur de ma recherche au Canada, est devenu un grand ami. Jean est le responsable d’enlever les voiles sur le système politique et la société du Canada. Avec sa gentille famille, il m’a présenté aussi à l’hospitalité canadienne. Mes salutations cordiales et gratitude au plus noble fils de la ville de Cururupu, au Maranhão. In Academia, the period in Canada was extremely proficuos in terms of contacts with experts on intelligence, law and politics. All my gratitude to Professors Stuart Farson and Reg Whitaker, whose considerations about intelligence in Canada and its mechanisms of control and accountability where extremely important. Farson and Whitaker also became good friends of ours and it’s a great pleasure to keep in touch with them. My thanks also to friends from Carleton, as Sean Burges (a very good brazilianist) and Maureen Molot, for the great conversations during lunchtime at the University. À Montréal, il ne faut pas oublier des Professeurs Peter Leuprecht et Bernard Duhaime. And there are also many contacts and friends from the Canadian Association for Security and Intelligence Studies (CASIS), particularly Matina Kokkas and Arne Kislenko. Also in Canada, many people gave an essential contribution to our research. Among the control boards, my particular thanks to Tim Farr, former Associate Executive Director of the Security Intelligence Review Committee (SIRC). More than an interlocutor, Tim became a great friend. Thanks to Paul Kennedy, Chair of the Commission for Public Complaints Against the Royal Canadian Mounted Police, Eva Punklett, Arnold Zeman, ix respectively Inspector General and Assistant Inspector General of the Canadian Security Intelligence Service, Joanne Weeks, Executive Director of the Office of the Communications Security Establishment Commissioner, who all received me and spent their precious time with this researcher. In the Canadian Intelligence Community, my thanks to all, particularly to Peter Jones, Senior Policy Analyst at Security and Intelligence Secretariat of the Privy Council Office and Robert Fahlman, who is presently the Director General of the Criminal Intelligence Service Canada. Peter and Bob, our conversations were extremely productive! In the Royal Canadian Mounted Policy, my thanks to Anna Gray and Richard Evans, both from the Criminal Intelligence Directorate. The experience in Ottawa would be not complete without the researches in the Parliament. Thanks very much to all the friends from the Library of the Parliament and from the Committees at the Senate and at the House. Among the kind people that received me at the Parliament, my gratitude to Andrew Bartholomew Chaplin and Angela Crandall, respectively the Clerks of the Standing Committee on National Defense and of the Standing Committee on Foreign Affairs and International Trade at the House of Commons, and to all the colleagues of the Parliamentary Research Branch of the Library of Parliament, specially Gerald Schmitz, Philip Rosen, James Lee, James Cox and Steven James. Et, bien sûr, je ne peux pas oublier François Michaud, le greffier du Comité permanent des affaires étrangères et du commerce du Sénat du Canada. François est devenu plus qu’un bon contact au Parlement et, avec sa merveilleuse famille, m’a présenté aussi l’hospitalité canadienne et québécoise – oui, je me souviens! De volta ao Brasil, incontáveis foram aqueles que tiveram papel fundamental em nosso trabalho. Nossa gratidão aos inomináveis amigos da comunidade de inteligência brasileira, alguns de longa data, outros que conhecemos graças à presente pesquisa. Estes, repita-se, não podem ser nominados, mas sabem o quanto foram de suma importância. No Poder Legislativo, seria impossível citar a todos que deram sua contribuição, entre colegas das Consultorias Legislativa e de Orçamento, da Secretaria-Geral da Mesa, das Comissões, dos Gabinetes, da Administração do Senado, e do Instituto Legislativo Brasileiro. Saudamos todos esses colegas nas pessoas de Sérgio Penna, Bruno Dantas, Amália Figueiredo da Luz, Paulo Tominaga e Lúcia Mello. Na Biblioteca do Senado, nosso abraço a Mariinha, a Rose e a Conceição. Ademais, agradecimento não pode faltar à equipe de apoio técnico da Consultoria Legislativa do Senado, sempre prestativa e eficiente x em suas pesquisas e que muito nos ajudou a sistematizar o conhecimento – a eles nossa gratidão na pessoa de
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