“Construyendo Confianza e Integración en América Latina.
Las MCM en el área de seguridad”.

Con el propósito de estudiar la integración económica y la seguridad regional se realizó en Tokio, Japón la Conferencia Internacional:”New Linkages in Latin America: Economic Integration and Regional Security”, (Nuevos vínculos en América Latina: Integración Económica y Seguridad Regional) el pasado 24 de marzo del presente año.

La Facultad Latinoamericana de Ciencias Sociales, FLACSO estuvo representada por el Secretario General, Dr. Francisco Rojas Aravena quien ofreció la conferencia: “Construyendo Confianza e Integración en América Latina. Las MCM en el área de seguridad”. Además de Rojas Aravena, participaron representantes de diversas universidades internacionales.

Building Integration and Thrust in Latin America:
Confidence Building Measures in the Security Arena

Francisco Rojas Aravena
FLACSO, Secretary General

Introduction:

The international system evolved very rapidly after the end of the Cold War. The post-Cold War period derived in new possibilities for joint cooperation and the implementation of renewed international regimes. Latin America was not the exception. Following the end of the East-West confrontation, the region also witnessed important transformations whereby military regimes transited towards more democratic expressions of power and elections to designate civilian authorities became the role In addition, in conflict areas, such as Central America, peaceful settlement processes through internationally monitored peace agreements took place. Paradoxically, the exercise of more democratic experiences did not bring automatically a substantial improvement of living standards to meet the expectations of an increasingly demanding population. Simultaneously, in the context of a more global context, agreements for free trade and union customs and more articulate economic integration schemes were emphasized both at the sub-regional and regional level. Nonetheless, the 2001 terrorist attacks in US soil also generated drastic changes in the US response, instilling an enhanced unilateral dimension that eroded the multilateral system~ this meant an even more marginal role for Latin America in the international agenda. In that context, security issues, as a component of the global war on terror, became the new strategic axis in international affairs, lessening the multilateral capabilities to reach consensus in the attainment of peace, international security and development. However, Latin America, despite its diminished influence in the international arena, can contribute to achieve new security regimes and a more effective management of public goods. The more international security there is, thanks to new opportunities for cooperation, the more democratic contribution to governance and human security will prevail.

Measures for Confidence Building:

Within the framework of the international security agenda and preventive diplomacy in Latin America, the development of Confidence Building and Security Measures emerges as a priority. These measures, conceived as bilateral and multilateral actions to prevent conflict and crisis situations, become instrumental in overcoming past disagreements within the countries of the region, and set up the conditions for a more transparent and predictable diplomatic and political interaction. There are several characteristics that help understand the effective use of CBMs as a tool of international security: Transparent goals: a primary requisite to show clear objectives or actions to be developed also linked to verification.

Predictability: The need to show 'behaviours' that counteract established patterns, for instance, information of military activities or exchange of plans for military manoeuvres.
Reciprocity: Actions needed to establish syrnmetrical developments in the cornmitments made by the parties. Reciprocity allows the involvement of actors within the process.
Improved communication: The need to improve perceptions and professional dialogue towards more transparent goals, for example, high level Defense Ministry meetings.
Stability of relationships: Measures need to last over time, which allows for a better understanding and evaluation of the actions (annual exchanges).
Feasibility and realistic approach: Implementation measures must be realistic and relatively simple. A basic degree of feasibility, with good timing and appropriate costs becomes essential.
Coherence with other policies: A coherent use of CBMs is a must in order to improve the global environment and avoid unneeded distractions.
Verification: CBMs are actions that need to be verifiable. Verification means to comply in good timing.
Social support: A strong domestic legitimacy is necessary to reinforce institutional policies that secure long-term stability.
Bilateral, sub/regional or multilateral scope: Although bilateral and sub-regional actions are the most significant, multilateral arrangements require a minimum degree of consensus. In the Western Hemisphere context, and given the variety of powers, interests and practices, the convergence of all these levels when implementing CBMs is important.

In sum, CBMs are a valuable technique and tool for peace building, but do not resolve conflict by themselves. They make comunication channels possible in order to obtain more predictability from all parties involved. The process demands good faith and willingness to avoid confrontation and basically represents the creation of networks and communication channels. CBMs are particularly important in the context of diplomatic and defence related cornmitments, inducing a continuous and progressive line going from risk prevention to cooperation that enhances interdependence. The most influential area of CBMs is found in the sensitive defence sector, where predictability in the use of force becomes fundamental.

Defining a concept of security:

In the Americas, a great effort has been made over the past decade to establish a consensual concept of security based on shared values and capable of producing effective cornmitments for implementing initiatives. A regional and sub-regional chart of threats has been mapped out, resulting in the identification of the main concern issues such as: drug-trafficking, terrorism, trafficking in firearms, organized crime, environment and natural disasters, poverty and social deprivation, and guerrillas and subversive groups. The Declaration on Security in the Americas established a broad-based conceptual framework articulated in the notion of multi-dimensionality, which encompassed non-conventional threats covering political, economic, social, health and environmental aspects, with emphasis in democratic values, human rights performance and peace, solidarity and cooperation. This broad concept made possible its approval. In addition, the Defence Ministers Dec1aration of Nov. 2002 acknowledged the transition towards a more complex system that combines old and new, collective and cooperative institutions and regimes, with hemispheric, regional, sub-regional and bilateral cover. In general, Latin American countries have witnessed the transition from a Cold War old enemy perspective to one with more diffuse threats and les s weight for traditional military factors. Today's threats are more translational. In L.A. the main source of vulnerability is the governance crisis that thwarts the promotion of human and state security.

Latin America: in search of regional cooperation

Latin America must transit towards growing networks of positive cooperation and interdependence to promote democracy, solidarity and integration (trade, telecommunications, financial issues, transport, roads, and defence). Defence is a sector with important advances in the region, as evidenced by the long-term defence committees between Chile and Argentina and Argentina and Brazil, aimed at preventing misunderstandings. In the field of defence, the building of mutual confidence, agreement over military costs, joint training and combined forces, interoperability and peace operations should be highlighted. Also, timing is essential to advance order and structure. On beginning to work out how activities are to be structured over time, it is important to consider and establish priorities and goals to be reached in a time frame. For example, how Brazil stresses multilateralism and pro active measures to reduce its vulnerability and promote global alliances. How Chile, with a strategic plan, could form a bridge between Asia and L.A. How Peru can focus on governability and the instability of its political system. How Colombia can cope with the internal war.

Conclusion:

Finally, mutual confidence-building measures are part of a group of actions for success in order to attain successful cooperation processes in security (others are rationality in decision-making, shared values, territorial differences behind, growing interdependence, perceptions of shared risks and institutional mechanisms). In sum, an integrated, holistic approach needs to be adopted, where new concepts will satisfy the new global security requirements and challenges of the Latin American region.