Jrgen Budike

A diplomacia comercial do Suriname

Introduo
Este artigo trata sobre a diplomacia comercial do Suriname. O conceito de
diplomacia promoo comercial definido como: a utilizao concomitante
de ferramentas diplomticas, de inteligncia comercial e de marketing com
vistas obteno de ganhos na esfera comercial sejam eles de estmulo s
exportaes,
atrao
de
investimentos
externos
ou
apoio

internacionalizao de empresas nacionais e salientar a importncia da

chamada nation-brand na promoo dos interesses econmico-comerciais
em escala mundial.1 Este conceito ser discutido na medida em que seja
aplicvel pela situao Surinamesa. Nos ltimos 10 anos os processos de
globalizao intensificaram-se, acompanhado por novas oportunidades e
ameaas comerciais e econmicas 2. Estamos diante uma crescendo
demanda mundial para bens bsicos consumidores entre outros produtos
agrcolas, e tambm de recursos naturais entre outros ouro e petrleo. No
outro lado percebemos um aumento do suprimento mundial, que por causa
de ficar atrs deste demanda acarreta em preos crescentes 3. Assim, o papel
de diplomacia comercial deveria ser adapta a este situao. Dentro este
contexto o atual governo de Suriname, governo Bouterse-Ameerali,
explicitamente reorientou a sua diplomacia tradicional para uma diplomacia
comercial que esta dividida em uma diplomacia presidencial, diplomacia
Econmica, e Diplomacia de Desenvolvimento 4. Todos os trs conceitos so
baseados no, e salientam variais reas do conceito de diplomacia promoo
comercial. Todos os diplomatas tm tarefas adicionais alinhadas com este
novo entendimento de relaes exteriores. Diplomacia Presidencial ressalta a
mudana de funo somente cerimonial para uma funo mais proativa do
presidente no mbito domestico mundial5.
Hoje em dia, por causa de desenvolvimentos no mercado mundial
tinha provocada uma transformao inevitvel e profunda dentro a base
1 Ministro Rubens Gama Dias Filho, A nova diplomacia comercial brasileira, DDPR, 2011
2 McGrew A., Globalization and global politics, em: Baylis J., Smith S. (e. o.), The
Globalization of World Politics, Oxford Press, 2012, p. 16
3 World Economic Outlook 2012, Executive Summary; World Bank Prospects for
Development: http://blogs.worldbank.org/prospects/category/tags/historicalcommodity-prices
4 National Development Plan (MOP) 2012-2016
5 General Political Reviews , Surinam Parliament, 2010
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domestica econmica que precise uma responde apropriada do governo.

Este artigo tenta discutir de qual maneira o governo lida como estes
desenvolvimentos conjunturais, e se a direo tomada faa sentido em
termos de diplomacia promoo comercial. Tambm limite-se para tratar o
papel de diplomacia presidencial, das embaixadas como Setores de
Promoo Comercial, e das instituies recm-fundadas o Investment and
Development Corporation Suriname (IDCS) e o Hi-Ex Suriname.

Estrutura econmica do Suriname

Perfil da exportao
Suriname tem, em comparao regio, uma economia relativamente
pequena. Entre 2007 e 2011 a esfora trabalhadora cresceu de 157.000 a
229.413 e o desemprego diminui de 12% a 8%. 6 As estatsticas do Banco
Central do Suriname mostram que os maiores setores de emprego,
vinculados com comercia, so: Agrcola, Pescaria e Pecuria (12%),
Restaurantes e Hotis (18%), Indstria (excluindo o Processamento da
bauxita) (6%) e Turismo (4%). Em termos atuais da contribuio individual
de exportao, os maiores setores so Minerao (Bauxita, Ouro e Petrol)
(82%), Turismo (30%), e Agrcola (Banana e Arroz) (6%). 7 Ate pouco antes
o turismo comeasse a jogar um papel crescente na economia contribuindo
por 30 % de exportao em 2008 e 25% da exportao no ano 2011. 8 Este
setor cresceu com 70% entre 2005 e 2009. Interessante anotar que o setor
de minerao constitui somente 3% do emprego, uma situao que ainda
ficou inalterada os ltimos seis anos, apesar de investimentos neste setor.
Por isso para melhorar o desenvolvimento pelo a disponibilizao de
emprego muito importante do investir em setores que so flexveis em
fornecer espaos de emprego. Investimentos em grande parte guiada pelo
governo nos setores de Agrcola e Turismo deveriam ser aplicados. Expanso
6 IDCS, Country Profile Suriname:
http://www.caipainvest.org/countryprofile_suriname.pdf
7 Central Bank of Suriname, Investment Guide Suriname (2012):
http://www.cbvs.sr/investment-guide-oktober-2011/
8 Idem; The Observatory of Complex Economics:
http://atlas.media.mit.edu/country/sur/
2

do setor Turismo significa mais oportunidades pra expanso no setor de

Restaurantes e Hotis o que significa mais empregos e mais lucros. Mais
investimentos de tecnolgica e na escala produo no setor Agrcola
tambm significam mais emprego e mais lucros por razo de sua
atratividade gerada. Em geral esta poltica domestica de desenvolvimento,
que esta refletido na diplomacia comercial, alimentaria o purchasing
power. Considerando a balana de comercia (Trade Balance) percebemos
um extraordinrio aumento do supervit atual na balana de comercia em
relao com os anos atrs. Enquanto o supervit mdio entre 2005 e 2009
foi U$200 milhes, somente em 2010 ele foi U$630 milhes 9 (veja tabela 2:
economic indicators). Esta informao indica que novos recursos tornam
disponvel pelo governo para investir na economia e para avanar sua
politica exterior comercial. A informao salienta demais a posio
vulnerabilidade da economia pequena do Suriname como price taker.
Historicamente tendncias negativas nos preos mundiais de commodities
bsicos (agrcolas e minerao) tiveram (ou tendesse de ter) efeitos
negativos concomitantes nos setores acompanhados. Especialmente no
setor de arroz. O mesmo tempo de baixos preos dos gros entre 2000 e
2005 um desinvestimento tive lugar neste sector10. Isso implicou entre outro
a importncia de diversificao: dos produtos domesticais, diversificao da
pauta exportadora para diminuir a dependncia ao setor minerao, e a
diversificao dos mercados e acordos bilaterais. Com certeza o governo
liberou recursos e desempenhou esforos de executar o objetivo verstil de
diversificao.

Investimentos e comercial diplomacia

Como parte de diplomacia comercial faz a obteno de fundos e
Investimentos Estrangeiros Direitos (IED), necessrios para realizar os
objetivos de desenvolvimento. muito interessante de entender o papel de
Presidente Desir Bouterse como o chefe do aparelho diplomtico. Em
primeiro lugar para diversificar a economia o pais precisa diminuir sua
grande dependncia de ajudo desenvolvimento de Holanda, o ex-colonisador
do Suriname. Apareceu que a relao tradicional com Holanda desmotivasse
9 Central Bank of Suriname, Investment Guide Suriname (2012):
http://www.cbvs.sr/investment-guide-oktober-2011/; Economist Intelligence Unit,
Country Profile Suriname (2012)
10 Manglies Rice Company: http://www.manglie.com/index.php?
option=com_content&task=view&id=17&Itemid=10
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o desenvolvimento econmico ou estimulasse um sentimento de seguridade

e, como referido pelos muitas literaturas econmicas, uma situao de
Schijn Welvaart, o que significa falso bem-estar. Ate agora esta situao
seja valido com salrios medidos muito mais baixos sobre a grande parte da
populao. Embora a sua eleio resultasse na perda do desenvolvimento
ajuda pelo lado da Holanda (por causas politicas), Bouterse conseguiu um
compromisso de US$ 300 milhes do IDB para o seu programa de
desenvolvimento 2011-2015. O Governo tambm est buscando uma
reaproximao com o Banco Mundial11. Ao mesmo tempo, Bouterse tomou
medidas para integrar mais completamente Suriname na poltica regional e
redes econmicas. Com sue esforo da diplomacia presidencial ele conseguiu
a reativar a comercia entre Suriname e Brasil pela reativao de conexo
martima entre os dois pases. Um acontecimento sem precedente quando
tenhamos em conta que esta conexo fizesse fechado por 25 anos e que
entre 1990 e 2006 a parcela de exportao para o Brasil descendo drstico
de 10% a menos de 1%. 12 Segundo um relatrio do CEPAL o Foreign Direct
Investment in Latin America and the Caribbean os investimentos totais para
o Suriname durante os ltimos dez anos foi mais de US$2 bilhes. 13 A
maioridade foi desempenhado no setor de minerao. 14 E os previstos
investimentos pelo menos os prximos trs anos ser US$ 3.5 bilhes um
maioridade tambm no setor de minerao. Em geral os investimentos
consistem mais de 20% do BIP. Pela posio fortalezada negociador o
governo ganhou um significante parcelo do mercado dos maiores empresas
mineraes que vo expandir suas operaes. No setor de ouro o governo
conseguiu de obter uma parcela de 50% dos lucros (25% da empresa
multinacional New Mont e 27% da empresa multinacional Iamgold). 15 Com a
direo comercial renovada o governo colocou mais nfase na utilizao
11 Economist Intelligence Unit, Country Profile Suriname (2012), p.3
12 Carribean Export Development Agency, Doing Business with Suriname, 2007:
http://www.carib-export.com/login/wp-content/uploads/2009/08/Doing%20Business
%20With%20Suriname.pdf
13 ECLAC, Foreign direct investment in Latin Amerca and the Carribean (2012), p.
25: http://www.eclac.org/cgi-bin/getProd.asp?
xml=/prensa/noticias/comunicados/6/48226/P48226.xml&xsl=/prensa/tpl/p6f.xsl&ba
se=/tpl/top-bottom.xslt
14 Economist Intelligence Unit, Country Profile Suriname (2012), p.3
15 Starniews,
http://www.starnieuws.com/index.php/welcome/index/nieuwsitem/14510
4

estratgica das embaixadas para espalhar a imagem atrativa do Suriname

como um lugar de investimento. Neste contexto a embaixada Surinamesa no
Washington lanou na comea de 2012 uma campanha internacional em
cooperao com uma empresa especializado em comunicao, Business &
Investement Ltd16. Para promover o turismo o governo introduziu em 25 de
novembro 2011o carto de turista. Este carto pode ser adquirido na sede
da Embaixada do Suriname Repblica por cidados ou os seguintes pases:
Holanda, Frana, Estados Unidos da Amrica, Bolvia, Chile, Paraguai, Peru,
Uruguai, Venezuela e Canad. Esta maneira de utilizar as embaixadas
aproxima a ideal de Setores de Promoo Comercial (SECOMs): unidades,
dentro das Embaixadas brasileiras no exterior, especializada na Promoo
Comercial.
A direo do governo e o papel de instituies
The government is progressing to fulfill its strategic development to
stimulate the growth of a business friendly environment by bringing order,
transparency and reforms within the institutional and legislative settings.
Based on various national and international research reports it became clear
that an Export and Investment Promotion Agency is needed to strengthen
the various sectors that are facing heavy competition and trade barriers on
the international market. Especially the agricultural sector saw a decline in
its international market share due to factors like: the lack of: technological
upgrading tools; investments; innovation; Research & Development;
transparency; useful information about external market and how to
overcome trade barriers. It is said for example that the Guyanese rice sector
survived due to governmental financial support and the upgrading of its
production chain by producing at lower costs and higher end products like
parboiled rice which is more consumed in the Caribbean then the normal
long sleeve rice.
The Hi-Ex Suriname
Within this context we should understand the establishment of Hi-Ex
Suriname, a non-profit export promotion agency (EPA). Its objective is to act
as a Central Export Window for entrepreneurs in the agricultural, forestry and
tourist sector which provides them with provide them with specific trade
information and advices in a strategic manner. In general an EPA has four
main activities are: 1) country image building; 2) export support services; 3)
marketing; and 4) market research and publications. The largest share of EPA
budgets is generally spent on marketing and market research and
publications. It is a bit early to see in which direction this initiative will
16Business & Investement Ltd homepage:
http://www.opentoamericanbusiness.com/
5

develop, because it depends on the willingness of (potential) exporters to

recognize the usefulness of this agency.17 Nevertheless, the emerging
Surinam market is dominated by small and medium sized enterprises which
devote most of their resources on short term administrative questions in
order to survive, than on long term profound research on international
market conditions. According to the World Bank Research paper on the role
of EPAs
it became clear that they have a positive effect on exports.
However, it also showed that the government should be wise in how it
provides budget, because in the long run as a certain growth limit in export
volume has been reached a sector a process of diminishing returns the
returns is likely to take place. Moreover, higher returns may be obtained by
investing those resources in improving the overall business climate (e.g.,
infrastructure, education, etc.)18. This all indicates that EPAs prove especially
effective during the takeoff phase of a certain sector.
The IDCS
The IDCS is a 100% state owned enterprise that will comprise eleven state
owned enterprises (SOEs). Most of the SOEs to be held by IDCS are inactive
with land assets that are not utilized or underutilized. Only four out of the
twelve enterprises are active, however at marginal profits. The value of total
assets to be held is estimated at US$ 767 million. The aim of this organ is to
provide new life for underutilized SOEs trough through a program of
privatization, with some of the SOEs being restructured and rehabilitated.
The privatization will be a mix of the following options: 1) Sale of assets, 2)
long lease of assets, 3) offering assets for minority shares in joint-ventures
with private investors, or 4) distribution of some of the lands to smallholders
within special development programs. These projected activities are in line
with the governments development plan for 2012-2016 19. It is to be seen
how effective this agency will be. But there are enough best practice
examples to learn about, like the Nicaraguan Investment promotion agency
which against all odds as a developing country holds the number one
position in the world in terms of the results it provided for the country20.
Other institutions worth mentioning are the Surinam Standard Bureau
(2010) which provides the standardization of exported goods in line with
WTO rules, the Surinam Business Forum (2006) which provides among others
17 World Bank, Export Promotion Agencies Revisited, Policy Research Working
Paper 5125, 2009, p. 6
18 Idem, p. 19
19 National Development Plan 2012-2016 (MOP); IDCS: http://www.idcs.sr/
20 PRONicaragua Number One Investment Promotion Agency: World Bank, april
27th 2012: http://www.nearshoreamericas.com/world-bank-names-pronicaraguanumber-investment-promotion-agency/
6

business workshops, trainings, researches for company managers and senior

public officials.
Current developments in the light of export promotion
Economic Outlook
The average economic growth of the country was 4.9% between the years
2001 and 2005, and 4.2% between the years 2006 and 2010. The IMF
predicted an economic growth of 5% for 2013. Furthermore the countrys
credit rating was upgraded by Fitch Ratings in July 2011 from B to B+ for
foreign currency and local currency was affirmed at B+. Standard & Poors
raised Surinames rating from B+ to BB- with a stable outlook for foreign
currency and local currency was affirmed at BB- with a stable outlook.
Suriname's upgrade reflects a stable macro-economic environment,
comparatively strong external credit metrics, structural improvements in
balance of payments dynamics, and positive growth momentum.
Furthermore, increasing international reserves and a low debt (the lowest in
the region) service have positively affected the debt dynamics over the
recent years.21 The following measures are expected by the government:

Improvement of the investment climate to attract Foreign Direct

Investments.

Improvement of infrastructure (ports, roads, bridges).

Further improvement international credit rating by conducting sound

macroeconomic policies.

Continue with prudent fiscal and monetary policies and reduce

dependency on mining commodities by further diversifying the
economy. Specific areas identified for economic expansion are tourism,
agriculture, and forestry.

Deregulating the telecommunication sector and investing in new

technologies.

Improvement of the reporting standards for the financial sector.

Improvement of regulation, order and transparency in the extractive

industries.
An Analysis based on Rostow Growth Model
The expectations will not automatically materialize due to various
conjuncture barriers
related to the stage of development of the country.
First of all Suriname became independence in 1975. Surrounding that period
one third of the population, including cadre, immigrated to the Netherlands.
21 Central Bank of Suriname, Investment Guide Suriname (2012):
http://www.cbvs.sr/investment-guide-oktober-2011/
7

Despite the relatively peaceful coexistence between the various ethnicities,

it can be claimed that due to divide and rule policies of the ex-colonizer,
Suriname lacked a firm national identity. This may have contributed to clientpatron relationships between groups within the public and private sector.
Many laws still need to be passed (around 200) through the parliament, like
an updated investment law and anti-corruption law. It is just recently that the
national identity begins to take shape after the overly multi-ethnic political
coalition came to power. Institutions are being strengthened and people are
more mobilized than before.
Based on the Rostow Growth Model the Surinam economy can be
categorized at the takeoff stage. There are five stages of development: 1)
traditional society, 2) transitional stage, 3) takeoff stage, 4) drive to
maturity, 5) High Mass Consumption.22 Suriname shares all characteristic of
the second stage and is now in process of fulfilling qualifications of the third
stage: As indicated by table 1, the manufacturing sector provides the biggest
contribution to the GDP followed by the mining sector (point number 2 of
stage 3 satisfied); the level of capital investment is well around 50% of the
GDP (see table 2) (point number 1 satisfied); there is an evolution of new
political and social institutions that support industrialization (point number 4
in progress). Point number 1 and number 5 needs to materialize.

Rostow Growth Model

Stage 2 -- Transitional Stage (the preconditions for takeoff):
1) Increased specialization generates surpluses for trading.
2) Emergence of a transport infrastructure to support trade.
3) As incomes, savings and investment grow entrepreneurs emerge.
4) External trade also occurs concentrating on primary products.
Stage 3 -- Take Off
1) Industrialization increases, with workers switching from the agricultural
sector to the manufacturing sector.
2) Growth is concentrated in a few regions of the country and in one or two
manufacturing industries.
3) The level of investment reaches over 10% of GNP
4) The evolution of new political and social institutions that support the
industrialization.
5) The growth is self-sustaining as investment leads to increasing incomes in
turn generating more savings to finance further investment.
22 Rostows stages of development:
http://www.nvcc.edu/home/nvfordc/econdev/introduction/stages.html
8

Given the state of takeoff as demonstrated above, the economic outlook

may not be taken as a given because in order for this to materialize the
government needs to cope with many societal and political pressures. But
this all is part of the game and to be expected.

Conclusion
This brief article has tried to show that in order to understand the current
Surinam trade promotion diplomacy we need trace a logical, consistent line
of thought, of ideology. This line is difficult to find when the country is
undergoing a takeoff face within a delicate historical, political, and
economical context. I was not able to discuss other important topics like
capacity of the government to provide a high degree of transparency on its
actions trough providing useful information. Nevertheless I have shown that
on the front of trade promotion the government tries to provide this
transparency and accountability trough giving more focus on public private
partnerships, providing producers, potential and existing exporters with
centralized public-private services through institutions like Hi-Ex Suriname
and the IDCS. The open and small size of the Suriname economy makes it
vulnerable to changes in international prices of commodities. These changes
had in the past negatively influenced the investment in certain important
sectors like agriculture. But this is changing. As Suriname gets more known
or recognized on international level, the tourism starts to play a growing role
of importance as a great source of GDP growth. Now that the government
has reoriented its policies towards a more diversified export economy, which
is also reflected in its trade diplomacy, it is highly likely that the economic
outlook as demonstrated above will materialize. But not without the systemic
barriers that are related to the stage of development as demonstrated by the
Rostow model analysis. The barriers are more prevalent at national level with
respect to the management and coordination of the internal institutional and
legal structures and the creation of a local business friendly environment.
Due to the smallness of the Surinam economy we need not to worry about its
effect on the international market like other big emerging countries would.
So the key to its development lays at the sound macro-economic policies at
home and the ability to attract investment and international publicity trough
nation branding, presidential diplomacy and commercial diplomacy.

ANNEX

10

Graphic 1 Regional Current Account/GDP ratio (source: Country

Profile Suriname (2012), Economist Intelligence Unit)

11

Table 1 (Sources: General Bureau of Statistics Suriname and

Investment Guide 2012, Central Bank of Suriname)

12

Table 2 economic indicators (source: Country Profile Suriname,

Economist intelligence Unit)

13

Graphic 2 (Source: World Bank:

http://blogs.worldbank.org/prospects/category/tags/historicalcommodity-prices )

14

Graphic 3 (Source: World Bank:

http://blogs.worldbank.org/prospects/category/tags/historicalcommodity-prices )

15

Graphic 4 the Gold Price (Source: World Bank:

http://blogs.worldbank.org/prospects/category/tags/historicalcommodity-prices )

16