Guía de buenas prácticas para la Consulta Previa en las Américas PDF
Preview Guía de buenas prácticas para la Consulta Previa en las Américas
gniltraH yaJ ROHTUA PROGRAMA REGIONAL DE PARTICIPACIÓN POLÍTICA INDÍGENA EN AMÉRICA LATINA Guía de buenas prácticas para la CONSULTA PREVIA en las Américas saciremA eht ni NOITATLUSNOC ROIRP ot ediug secitcarp tseB ACIR EMA NITAL NI NOITAPICITRAP LACITILOP SUONEGIDNI MARGORP LANOIGER AUTORA Jay Hartling OT. 17534 / Konrad Adenauer - Guia de buenas Prácticas para la consulta previa / Lomo OK: 5mm. - Avena 80 gr. - 84 pp. - COSIDO / Medida: 38.5 x 25.0 cm. / Javier PROGRAMA REGIONAL DE PARTICIPACIÓN POLÍTICA INDÍGENA EN AMÉRICA LATINA Guía de buenas prácticas para la Consulta Previa en las Américas AUTORA: Jay Hartling ©©©©©©©©©©©©©©©© KKKKKKKKKKKKKKKKoooooooooooooooonnnnnnnnnnnnnnnnrrrrrrrrrrrrrrrraaaaaaaaaaaaaaaadddddddddddddddd AAAAAAAAAAAAAAAAddddddddddddddddeeeeeeeeeeeeeeeennnnnnnnnnnnnnnnaaaaaaaaaaaaaaaauuuuuuuuuuuuuuuueeeeeeeeeeeeeeeerrrrrrrrrrrrrrrr SSSSSSSSSSSSSSSSttttttttttttttttiiiiiiiiiiiiiiiiffffffffffffffffttttttttttttttttuuuuuuuuuuuuuuuunnnnnnnnnnnnnnnngggggggggggggggg 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ContenIDo Prólogo 5 Introducción ····················································································································································································7 Resumen de los Esquemas Internacionales y Regionales Claves ··············································································9 Convenio OIT 169 ·························································································································································································10 Declaración de las Naciones Unidas Sobre los Derechos de los Pueblos Indígenas ·················································13 Protocolos, Acuerdos y Consejos Adicionales ·······························································································································14 Corporación Financiera Internacional (Grupo del Banco Mundial) Estándar de Desempeño 7 (2012): pueblos indígenas ···············································································································14 Los Principios del Ecuador III [Equator Principles III] (2013) ····································································································15 Consejo Internacional de Minería y Metales (ICMM) (2013) ···································································································16 Temas/Análisis ············································································································································································19 Mejores Prácticas de Consulta: Procesos ····························································································································25 Mejores Prácticas en Consulta: Ejemplos Prácticos ········································································································29 Ejemplo Práctico #1.: Consulta sobre Energía, Nueva Escocia, Canadá ········································································29 Ejemplo Práctico #2. Ley Forestal y de Fauna Silvestre - Normativa, Perú ····································································32 Ejemplo Práctico #3: Corrección de Procedimientos en Panamá ·······················································································35 Ejemplo Práctico #4: Creando un nuevo Ministerio de Cultura en Chile ·······································································38 REFERENCIAS ············································································································································································41 PPrrÓÓllooGGoo EEll PPrrooggrraammaa RReeggiioonnaall ddee PPaarrttiicciippaacciióónn PPoollííttiiccaa IInnddííggeennaa ((PPPPII)) ddee llaa FFuunnddaacciióónn KKoonnrraadd AAddeennaauueerr,, eevvaallúúaa ppeerriióóddiiccaammeennttee llaass pprriioorriiddaaddeess rreellaattiivvaass aa llooss ddeerreecchhooss ddee llooss ppuueebbllooss iinnddííggeennaass ddee llaa rreeggiióónn.. EEnn eessttee mmaarrccoo ddee eevvaalluuaacciióónn yy aannáálliissiiss,, ddeessddee eell aaññoo 22001111 eexxppeerrttooss iinnddííggeennaass yy nnoo iinnddííggeennaass ddee mmááss ddee 1100 ppaaíísseess ddee llaa rreeggiióónn nnooss hhaann aaccoommppaaññaaddoo ccaaddaa aaññoo eenn llaa ttaarreeaa ddee ddeessaarrrroollllaarr aacccciioonneess qquuee rreessppoonnddaann aa llaass nneecceessiiddaaddeess rreettaaddoorraass yy ccaammbbiiaanntteess ddee llaa aaggeennddaa iinnddííggeennaa eenn AAmméérriiccaa LLaattiinnaa.. CCoommoo ppaarrttee ddee nnuueessttrraa lleeccttuurraa,, qquueeddaa ccllaarroo qquuee llooss pprroocceessooss ddee CCoonnssuullttaa PPrreevviiaa ssoonn uunnaa ccuueessttiióónn pprriioorriittaarriiaa eenn eell aaccttuuaall ccoonntteexxttoo ddee llaa aaggeennddaa iinnddííggeennaa.. AA mmeeddiiddaa qquuee ddeessaarrrroollllaammooss mmaayyoorr pprrooffuunnddiizzaacciióónn yy eenntteennddiimmiieennttoo ddee llaa CCoonnssuullttaa PPrreevviiaa,, eessttaabblleecciimmooss llaa nneecceessiiddaadd ddee ccoonnttaarr ccoonn uunn ddooccuummeennttoo ccoonn rriiggoorr aaccaaddéémmiiccoo,, qquuee rreefflleejjee yy ssiisstteemmaattiiccee llaass ddiivveerrssaass eexxppeerriieenncciiaass ddee ccoonnssuullttaa.. EEnn nnuueessttrroo ccaammiinnoo rreeccoorrrriiddoo,, ttuuvviimmooss eell hhoonnoorr ddee ttoommaarr ccoonnttaaccttoo ccoonn llaa eessppeecciiaalliissttaa ccaannaaddiieennssee eenn CCoonnssuullttaa PPrreevviiaa,, JJaayy HHaarrttlliinngg,, aauuttoorraa ddee eessttaa iimmppeerrddiibbllee ccoonnttrriibbuucciióónn aall ddeebbaattee rreeggiioonnaall ssoobbrree ccoonnssuullttaa pprreevviiaa.. LLaa eexxppeerriieenncciiaa ddee llaa SSrraa.. HHaarrttlliinngg eess mmuuyy nnuuttrriiddaa ttaannttoo eenn CCaannaaddáá ccoommoo eenn AAmméérriiccaa LLaattiinnaa,, ssee ddeesseemmppeeññaa ccoommoo ccoonnssuullttoorraa ddeessddee HHaalliiffaaxx,, NNuueevvaa EEssccoocciiaa,, eess eessppeecciiaalliissttaa eenn tteemmaass rreellaacciioonnaaddooss ccoonn llaa ccoonnssuullttaa iinnddííggeennaa yy eenn llaass rreellaacciioonneess ddee llaass ccoommuunniiddaaddeess iinnddííggeennaass eenn CCaannaaddáá yy AAmméérriiccaa LLaattiinnaa.. LLaa SSrraa.. HHaarrttlliinngg ttiieennee mmááss ddee 1166 aaññooss ddee eexxppeerriieenncciiaa eenn eell aasseessoorraammiieennttoo aa llooss ggoobbiieerrnnooss ffeeddeerraalleess yy pprroovviinncciiaalleess ccaannaaddiieennsseess,, aassíí ccoommoo aa oorrggaanniizzaacciioonneess iinntteerrnnaacciioonnaalleess,, ggoobbiieerrnnooss ddee AAmméérriiccaa LLaattiinnaa,, ccoommuunniiddaaddeess yy oorrggaanniizzaacciioonneess iinnddííggeennaass yy ttaammbbiiéénn aall sseeccttoorr pprriivvaaddoo;; ddeessaarrrroollllaa ee iimmpplleemmeennttaa ppoollííttiiccaass,, pprrooggrraammaass yy pprrááccttiiccaass jjuussttaass,, ttrraannssppaarreenntteess yy ddee ccoonnssuullttaa ccoonnssttaannttee ppaarraa ttooddooss llooss sseeccttoorreess iinnvvoolluuccrraaddooss eenn CCoonnssuullttaa PPrreevviiaa,, aassíí ccoommoo ttaammbbiiéénn ddeessaarrrroollllaa ee iimmpplleemmeennttaa pprrooggrraammaass ddee rreessppoonnssaabbiilliiddaadd ssoocciiaall ccoorrppoorraattiivvaa.. EEnn eessttaa ooppoorrttuunniiddaadd,, ggrraacciiaass aa ssuu vvaalliioossaa eexxppeerriieenncciiaa aaccuummuullaaddaa,, ooffrreecceemmooss uunnaa ppuubblliiccaacciióónn ccoonn uunn eennoorrmmee vvaalloorr aaggrreeggaaddoo,, qquuee ssee ttrraadduuccee eenn bbrriinnddaarr uunnaa ppeerrssppeeccttiivvaa pprrááccttiiccaa ddee ddiissttiinnttooss pprroocceessooss ddee CCoonnssuullttaa PPrreevviiaa eenn AAmméérriiccaa LLaattiinnaa yy eenn CCaannaaddáá,, ccuubbrriieennddoo uunn aammpplliioo eessppeeccttrroo ggeeooggrrááffiiccoo,, ttoommaannddoo eenn ccuueennttaa ccoonntteexxttooss nnaacciioonnaalleess mmuuyy ppaarrttiiccuullaarreess ddee llooss qquuee ssee eexxttrraaee vvaalliioossaass lleecccciioonneess aapprreennddiiddaass,, iinncclluussoo eessttaabblleecciieennddoo ssiimmiilliittuuddeess yy ddiiffeerreenncciiaass ddee llooss pprroocceessooss ddee CCoonnssuullttaa PPrreevviiaa eennttrree AAmméérriiccaa LLaattiinnaa yy CCaannaaddáá.. TTooddoo eelllloo,, ttoommaannddoo eenn ccuueennttaa eell rriiggoorr aaccaaddéémmiiccoo qquuee ddeebbee tteenneerr eell ttrraattaammiieennttoo ddee llaa CCoonnssuullttaa PPrreevviiaa.. AA lloo llaarrggoo ddeell tteexxttoo ssee pprrooffuunnddiizzaa ccuueessttiioonneess ffuunnddaammeennttaalleess ddee eexxppeerriieenncciiaass ddee CCoonnssuullttaa PPrreevviiaa,, iinncclluuyyeennddoo llaa rreelleevvaanncciiaa ddee llooss ccoonnvveenniiooss iinntteerrnnaacciioonnaalleess eenn llaa mmaatteerriiaa yy eessttuuddiiooss ddee ccaassooss ccoonnccrreettooss ddee CCaannaaddáá,, PPeerrúú,, PPaannaammáá yy CChhiillee.. EEssttaammooss sseegguurrooss qquuee qquuiieenneess aacccceeddaann aa eessttee aappoorrttee,, tteennddrráánn aa llaa mmaannoo uunn rreeccuurrssoo mmuuyy vvaalliioossoo qquuee lleess ppeerrmmiittiirráá pprrooffuunnddiizzaarr eessttooss pprroocceessooss,, ccoommpprreennddeerrllooss ddeessddee llaa pprrááccttiiccaa ssiinn ppeerrddeerr llaa ppeerrssppeeccttiivvaa ddee pprroocceessoo yy eell mmaarrccoo lleeggaall qquuee oorrddeennaa ssuu aapplliiccaacciióónn.. MMaaxxiimmiilliiaann BBeennjjaammiinn HHeeddrriicchh RepresRReeenpptarreenssteeenn (tt2aa0nn1tt4ee-2017) PPrrooggrraammaa RReeggiioonnaall ddee ““PPaarrttiicciippaacciióónn PPoollííttiiccaa IInnddííggeennaa”” FFuunnddaacciióónn KKoonnrraadd AAddeennaauueerr IntroDuCCIÓn El derecho de las comunidades indígenas a ser consultadas y a su consentimiento libre, previo, e informado ha sido ampliamente examinado y debatido. Esta guía tiene como objetivo proporcionar una mirada a las mejores prácticas en la consulta y al consentimiento libre, previo e informado (CLPI/FPIC - por sus siglas en inglés) con pueblos indígenas, particularmente de una perspectiva práctica del proceso y de las prácticas en sí. La guía describe en forma breve los principales instrumentos normativos internacionales que apoyan a la consulta y el CPLI; los temas claves que han emergido con respecto a la implementación de la consulta con los pueblos indígenas en Latinoamérica (y Canadá)1; los consejos paso a paso de alto nivel sobre cómo implementar la consulta; y cuatro ejemplos muy diferentes de las “mejores prácticas” a modo de ilustración. Los procesos emergentes en Latinoamérica de consulta con pueblos indígenas están experimentando creciente agonía, críticas, retrocesos y alguna resistencia de parte de todos los involucrados. Tiene que existir un compromiso con la implementación debida de los procesos institucionalizados de consulta con pueblos indígenas a nivel de Estado. Existe una tendencia a creer que los procesos necesitan ser perfectos para ser implementados, y que todos los temas relativos deben ser resueltos con anterioridad. Todos los casos presentados en esta guía indican que el sistema no necesita ser perfecto para proceder con la consulta y que, un compromiso con el aprendizaje y el mejoramiento del proceso conllevará a una confianza incrementada y mejores resultados, y se convertirá en la base de futuras consultas. 1 Nota del autor: A pesar de que el contexto Canadiense es diferente que el de Latinoamérica, los fundamentos, procesos y temas asociados con la implementación de consulta con pueblos indígenas son similares. resumen De los esquemAs InternACIonAles y reGIonAles ClAves El desarrollo histórico de los derechos de los indígenas y su codificación en acuerdos, tratados y declaraciones de derecho internacional, como por ejemplo la Declaración Universal de los Derechos Humanos, la Conferencia y Década Contra el Racismo, la Declaración de Patzcuaro, y los estudios esenciales de Martinez Cobo (1981-83), lideraron los dos instrumentos internacionales fundamentales con relación a los derechos de los pueblos indígenas: los Convenios Sobre los Derechos de los Pueblos Indígenas y Tribales en Países Independientes de la Organización Internacional del Trabajo [OIT] de 1989 (OIT 169),y la Declaración de las Naciones Unidas Sobre los Derechos de los pueblos indígenas del 2007 (UNDRIP - por sus siglas en inglés). Estos dos documentos (sea uno o el otro, o ambos) proporcionan el marco conceptual para la implementación de consultas previas en la mayoría de los países de Latinoamérica, y la jurisprudencia nacional o regional correspondiente. La creación de instrumentos legales propios para proteger los derechos de los indígenas, tales como el Convenio OIT 169, no crean una clase especial de derechos, es decir derechos adicionales para los pueblos indígenas. Más bien proporcionan la igualdad de oportunidad y tratamiento que ya son disfrutados por otros, a un grupo históricamente desfavorecido o discriminado. Los indígenas tienen y disfrutan de derechos individuales, sin embargo los derechos específicos de los pueblos indígenas, de acuerdo a el Convenio OIT 169 y la UNDRIP, son derechos colectivos – la expresión de una cultura u organización con característica colectivas. Por ejemplo, la Convención OIT 169 y la UNDRIP ambas tienen que ver con varios derechos colectivos en las siguientes áreas: justicia, tierras, territorios y recursos naturales, empleo, capacitación profesional, seguridad social, educación y cultura; así como en las consultas y la participación. Es importante también hacer una distinción y comprensión de la relación entre dos piezas claves de textos legales internacionales que enmarcan los derechos de los pueblos indígenas. El Convenio OIT 169 (1989), el cual reemplazó a la OIT 107 (1957), fue desarrollado antes que la UNDRIP y es el elemento central del marco normativo internacional para la promoción y protección de los derechos de los pueblos indígenas y tribales. El Convenio OIT 169 es un instrumento internacional legalmente vinculante que, una vez ratificado, establece que el Estado goza de un año para adaptar y alinear su legislación, políticas y programas al Convenio mismo antes de que ésta se vuelva legalmente vinculante. Los países que ya han ratificado el Convenio están sujetos a la supervisión y comentario con respecto a su implementación por parte de un comité de vigilancia. (ver: Convenio OIT 169: Mecanismo, a continuación). La Declaración de las Naciones Unidas Sobre los Derechos de los Pueblos Indígenas fue el resultado de un largo diálogo y proceso de negociación y fue adoptada por la mayoría de los países el 20072. La UNDRIP describe los derechos individuales y colectivos de los pueblos indígenas así como sus derechos a cultura, identidad, lenguaje, empleo, salud, educación y otros temas. No se lo considera un documento de vinculación 2 Cuatro países (EE.UU., Australia, Canadá y Nueva Zelanda) inicialmente votaron en contra de la adopción de la UNDRIP pero luego la avalaron con algunas reservas. Ciento cuarenta y tres países la aprobaron, 11 países se abstuvieron -dos de los cuales posteriormente la apoyaron-, y varios países estuvieron ausentes durante el voto.
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