A Mediação Facilitadora Das Organizações Internacionais Na

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A Mediação Facilitadora Das Organizações Internacionais Na A mediação facilitadora das organizações internacionais na resolução de conflitos Uma análise da atuação da onu e a da ua no conflito entre o Sudão e o Sudão do Sul1 Jeane Silva de Freitas e Jan Marcel de Almeida Freitas Lacerda INTRODUÇÃO Os conflitos civis são fenômenos desestabilizadores anti- RESUMO gos, mas que se apresentam na contemporaneidade com ste artigo tem como objetivo novas nuances, em que os estados, por si só, não são capa- E debater a efetividade da mediação zes de controlá-los e, portanto, necessitam estabelecer facilitadora da Organização das Nações Unidas (ONU) e da União uma cooperação mais eficiente com outras instituições. Africana (UA) na resolução do conflito Essa parceria se justificaria em função da atuação dos envolvendo o Sudão e o Sudão do Sul, tomando-se como base a análise dos organismos internacionais na esfera da despolitização, estudos de caso no Jonglei e Abyei, pois, além de desempenharem atividades no campo fun- entre 2011-2012. Argumenta-se que essa atuação mediadora impactou de cional, são entidades consideradas neutras em suas atua- forma considerável nas negociações ções no cenário internacional, como preceituam os entre a República do Sudão e a Repú- blica do Sudão do Sul, uma vez que: 2 princípios basilares do humanitarismo . i) percebeu-se um cessar-fogo nas Assim, as organizações internacionais (OI) e não gover- hostilidades entre as partes beligeran- tes, especialmente, nas regiões fron- namentais (ONG) buscaram exercer um papel mais proa- teiriças entre os dois estados tivo nas negociações dos litígios internacionais, sudaneses; ii) uma ativa efetividade, por parte das operações de paz da notadamente, porque passaram a atuar como mediadores ONU e apoio regional da UA, em asse- em acordos políticos. Sendo assim, a relevância concedida gurar a proteção civil e a ajuda huma- nitária em face da escalada da ao papel das OI está relacionada, principalmente, ao plano violência na região; iii) o estabeleci- da competência, uma vez que essas instituições passaram mento de acordos mais significativos em relação às questões pendentes, a operar em áreas que antes competiam exclusivamente principalmente no que se referiu à à jurisdição do Estado, como a manutenção da paz, da criação de uma zona desmilitarizada em Abyei. Desse modo, analisa-se o segurança internacional e dos problemas relacionados ao papel mediador da ONU, enquanto âmbito social de cada Estado3. meios de resolução de conflitos por > RELAÇÕES INTERNACIONAIS SETEMBRO : 2016 51 [ pp. 089-106 ] 089 vias pacíficas, frente a essas questões Dentro dessa conjuntura, em 2011, a declaração de inde- pendentes, resultantes do Acordo pendência do Sudão do Sul incorporou um conjunto par- Geral de Paz (CPA). Para tanto, a metodologia emprega foi dedutiva e ticular de suposições sobre a emergência de um novo qualitativa, com procedimentos his- Estado no território africano. Por um lado, o consenso tórico, comparativo e estudo de caso. Apontaram-se seus acertos e falhas conservador das elites africanas enfatizava a mútua pre- na condução desse processo de servação de suas fronteiras. Esse tradicionalismo, enrai- mediação no conflito e na manuten- ção da paz nas áreas beligerantes, zado na cultura político-administrativa sudanesa, especialmente em termos de impacto contribuiu inicialmente para o fomento da violência na humanitário no terreno. região e o alargamento das desigualdades entre o Norte Palavras-chave: Mediação facilitadora, e o Sul do Sudão. Paradoxalmente, as dicotomias entre ONU, Jonglei, Abyei, Sudão, Sudão do Sul. essas regiões se acentuaram a partir do estabelecimento, em 2005, do Comprehensive Peace Agreement (CPA), ou simplesmente Acordo Geral de Paz, que colocou fim for- mal ao longo conflito violento entre o Norte e o Sul do ABSTRACT Sudão. Apesar de ter representado um documento de Facilitative mediation extrema importância para o povo sudanês, muitas ques- of international tões fundamentais permaneceram pendentes na agenda organizations in conflict resolution: dos dois estados sudaneses, sobretudo, no que concerne An analysis of the UN à partilha das riquezas provenientes do petróleo, a deli- and the AU role in the 4 conflict between Sudan mitação das fronteiras e a soberania da região de Abyei . and South Sudan Quanto à metodologia aplicada no presente artigo, o his article aims to discuss the método de abordagem adotado será o dedutivo, partindo Teffectiveness of facilitative de premissas mais gerais sobre a atuação das organizações mediation of the United Nations (UN) and African Union (AU) in resolving internacionais como mediadores internacionais para espe- the conflict involving Sudan and cificar nos casos das intervenções para a região do Sudão South Sudan, taking as a basis for e Sudão do Sul. Os métodos procedimentais são: o his- analysis the case studies in Jonglei and Abyei, between 2011-2012. It is tórico, já que há a necessidade de um panorama histórico argued that this mediating role sobre os conflitos na região estudada; o comparativo e impacted considerably in the negotia- tions between the Republic of Sudan estudo de caso, pois se pretende comparar as mediações and the Republic of South Sudan, das organizações em dois casos específicos, com a missão since: i) realized a ceasefire in hosti- lities between the warring parties, para o conflito no Jonglei e a força interina para Abyei. especially in border regions between A pesquisa é qualitativa, com revisões literárias sobre o the two Sudanese states; ii) an active effectiveness on the part of UN pea- tema e uso da análise documental. cekeeping operations and regional No tocante às organizações estudadas, foram escolhidas support of the AU, to ensure civil pro- tection and humanitarian aid in the a Organização das Nações Unidas (ONU), por ser uma face of escalating violence in the instituição global que atua na segurança e paz interna- region; iii) the establishment of the most significant agreements on outs- cionais, e a União Africana (UA), que é uma organização tanding issues, especially when it regional e tem maior aceitabilidade pelos estados africa- referred to the creation of a demilita- rized zone in Abyei. Thus, it analyzes nos. Sobretudo, a ação conjunta dessas duas organizações the UN mediating role while solving complementa a atuação mais militar e econômica da ONU RELAÇÕES INTERNACIONAIS SETEMBRO : 2016 51 090 means of conflict by peaceful means, com os aparatos mais negociadores da UA, já que essa against those outstanding issues ari- sing from the Comprehensive Peace organização não possui recursos militares, econômicos Agreement (CPA). Therefore, the e estruturais suficientes para agir sozinha em uma gama methodology employed was deductive and qualitative, with historical com- de conflitos no continente. parative and case study procedures. It O presente artigo é dividido, além de introdução e das pointed to its successes and failures considerações finais, em quatro tópicos em seu desenvol- in the conduct of the mediation pro- cess in conflict and peacekeeping in vimento. O primeiro abordará a mediação internacional, warring areas, especially in terms of trazendo seus principais aspectos e destacando a atuação humanitarian impact on the ground. das organizações internacionais, especialmente como Keywords: Facilitative mediation, UN, mediadores facilitadores. Em seguida, faz-se um pano- Jonglei, Abyei, Sudan, South Sudan. rama histórico sobre os conflitos entre os estados do Sudão e do Sudão do Sul, os quais chamam a atenção dessas organizações e seus mecanismos de resolução de conflitos. A partir disso, os dois tópicos decorrentes tra- rão os dois casos estudados sobre a atuação da ONU e da UA na mediação dos conflitos no Jonglei e Abyei, ambos em 2011. 1. A MEDIAÇÃO FACILITADORA: ALGUMAS CONSIDERAÇÕES No ambiente internacional, a mediação tem sido utilizada como um importante meca- nismo na gestão de controvérsias em face de sua efetividade para lidar com as diferen- ças entre os estados antagônicos5. Nessa percepção, para cada conflito que emerge no sistema internacional exige-se, também, o emprego de um determinado mediador para a resolução da disputa. Esse papel de mediador pode ser exercido tanto por atores individuais, como também por estados ou instituições internacionais, a exemplo do envolvimento da Organização da Unidade Africana (OUA) – a partir de 2002 foi fundada como União Africana (UA) – no conflito da Tanzânia e Uganda ou a intervenção do Reino Unido na disputa da Rodézia-Zimbabué6. Dito isto, a mediação internacional tem proporcionado melhores perspectivas no sen- tido de controlar o uso da força nas tensões internacionais. Mas, conforme debatido anteriormente, para que seu emprego seja eficazmente bem-sucedido são necessárias várias condições, entre as quais se destacam a natureza e a atuação do mediador7 no gerenciamento e na resolução desses litígios8. Contudo, nossa análise se concentrará na modalidade facilitadora por apresentar características precisas com o objeto estu- dado, ou seja, a mediação das Nações Unidas no Jonglei e em Abyei. Para compreendermos as distinções terminológicas em torno do papel exercido pela terceira parte, buscaremos inicialmente esclarecer as características gerais em torno dos termos «mediador», «interventor» e «facilitador». Desse modo, em linhas gerais, o mediador é um indivíduo ou organismo «que coloca o seu conhecimento e habilidades a serviço das partes em um processo voluntário e confidencial, cujo resultado espera-se que seja imparcial»9. Outro termo utilizado para se referir a um terceiro como auxiliador das partes confli- tantes é interventor. Esse terceiro é convidado pelas partes ou por uma ação unilateral A mediação facilitadora das organizações internacionais na resolução de conflitos Jeane Silva de Freitas e Jan Marcel de Almeida Freitas Lacerda 091 com a finalidade de afetar o resultado do conflito, utilizando-se de seu poder de influên- cia, seja por meio das pressões econômicas ou militares. Nesse aspecto, esse poder de persuasão se constitui como ponto negativo nas negociações, pois nesses processos, geralmente, os acordos não são construídos naturalmente entre as partes, mas sim «comprados» pelo interventor, a exemplo da atuação intervencionista dos Estados Uni- dos no conflito entre Israel e Egito10.
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