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冲击拉丁美洲的两大震荡The Two Shocks Upending Latin America

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在整个拉丁美洲和加勒比地区,担心犯罪率上升的选民选出了承诺在本国恢复秩序与安全的民粹主义者。一些观察人士将这一事态解读为该地区向右转的信号,但几乎没有证据表明出现了持久的右倾转变。推动选民的似乎并非意识形态,而是对传统政客未能解决日常问题的失望。在最近的选举周期中,选民因法律与秩序崩溃而反叛;在下一个周期中,他们可能会对不断上涨的生活成本以及该地区持续存在的社会和经济不平等发起反击。

Across Latin America and the Caribbean, voters worried about rising crime have elected populists who promise to impose order and security in their countries. Some observers have read this development as a sign of a regional swing to the right, but there is little evidence of a durable shift in that direction. Rather than ideology, what seems to be driving voters is a frustration with traditional politicians’ failure to solve everyday problems. In the latest electoral cycle, voters rebelled against the breakdown of law and order; in the next, they may push back on rising costs and the region’s persistent social and economic inequalities.

拉丁美洲和加勒比地区的政府本已财政空间有限,如今还必须应对两大外部冲击:霍尔木兹海峡的长期关闭,以及今年的厄尔尼诺现象——即太平洋海面温度升高,扰乱正常天气模式。两者都在加剧通货膨胀、扰乱供应链,并迫使资金紧张、负债累累的政府做出艰难抉择。

Latin American and Caribbean governments, already operating with limited fiscal space, must now grapple with two external shocks: the prolonged closure of the Strait of Hormuz and this year’s El Niño, a warming of sea surface temperatures in the Pacific Ocean that upends normal weather patterns. Both are fueling inflation, disrupting supply chains, and forcing cash-strapped, indebted governments to make hard choices.

对该地区各地的选民而言,这两场危机使经济重新回到舞台中央。智利总统何塞·安东尼奥·卡斯特和厄瓜多尔总统丹尼尔·诺沃亚等以安全议题为竞选纲领赢得执政的领导人,随着经济困境加深,其公众支持率已大幅下滑。阿根廷总统哈维尔·米莱曾在2023年以局外人身份发起反对经济管理不善的竞选,如今随着阿根廷人尽管国家宏观经济有所改善却仍在日常经济挑战中挣扎,他面临着一场艰难的2027年连任之战。

For voters across the region, these twin crises have brought the economy back to center stage. Leaders such as Chilean President José Antonio Kast and Ecuadorian President Daniel Noboa, who won office on security-focused platforms, have seen their public standing plummet as economic woes deepen. Argentine President Javier Milei, who in 2023 ran an outsider campaign against economic mismanagement, faces an uphill 2027 reelection bid as Argentines struggle with day-to-day economic challenges despite the country’s macroeconomic improvements.

所有这些都为未来几年更多的政治摇摆埋下伏笔,因为气候变化和地缘政治转变引发冲击的速度令任何政府都难以应对。这种动荡可能进一步加剧两极分化,并让那些承诺的解决方案不太可能修复阻碍增长的结构性缺陷的民粹主义者从中得利。

All this sets the stage for more political swings in the coming years, as climate change and geopolitical shifts generate shocks at a pace difficult for any government to contend with. That turbulence could fuel further polarization and reward populists whose promised solutions are unlikely to fix the structural flaws holding back growth.

但混乱并非不可避免。该地区拥有适应更不稳定环境的资源。其关键矿产、丰富的可再生能源和强大的农业部门,正是世界在粮食安全、先进技术和能源转型方面所急需的。然而,要利用这些资源,该地区必须克服严重的基础设施短缺,加强法治,并加速区域一体化。多边开发银行以及美国和欧洲等外部参与者可以通过引入私人投资来建设共享基础设施,促进区域内贸易和监管协调,并建立经济利益广泛共享的价值链,从而提供帮助。否则,该地区将陷入从一场危机走向另一场危机、从一个极端走向另一个极端的境地。

But chaos is not inevitable. The region has the resources to adapt to a more unstable environment. Its critical minerals, abundant renewable energy, and strong agricultural sector are exactly what the world needs for food security, advanced technology, and the energy transition. To harness those resources, however, the region will have to overcome profound infrastructure deficits, strengthen the rule of law, and accelerate regional integration. Multilateral development banks and outside actors, such as the United States and Europe, can help by bringing in private investment for shared infrastructure, promoting intraregional trade and regulatory harmonization, and creating value chains where economic benefits are broadly shared. The alternative is a region that lurches from crisis to crisis, and from one extreme to another.

霍尔木兹海峡的冲击波:霍尔木兹海峡长期处于事实上的关闭状态,由此导致的能源和化肥市场中断已经重塑了拉丁美洲的政治格局。3月,卡斯特(Kast)因拒绝发放消费补贴以缓解能源价格上涨带来的冲击,其支持率下降了14个百分点。4月,秘鲁人对该国30多年来最严重的月度通胀飙升感到不满,这表明经济焦虑如何能够颠覆政治并为民粹主义者敞开大门。

SHOCK WAVES FROM HORMUZ Disruptions to energy and fertilizer markets stemming from the prolonged effective closure of the strait have already reshaped Latin American politics. In March, Kast saw his approval rating drop 14 points after he declined to issue consumer subsidies to soften the blow of rising energy prices. In April, Peruvians, upset by the sharpest monthly inflation spike in the country in more than 30 years, showed how economic anxiety can upend politics and open the door to populists.

左翼人士罗伯托·桑切斯(Roberto Sánchez)在总统选举第一轮中意外领先,但最终在决选中以微弱劣势输给了右翼候选人藤森庆子(Keiko Fujimori)。在阿根廷,尽管碳氢化合物行业蓬勃发展,但能源成本的上升重新引发了对通胀的担忧,并给米莱(Milei)带来了麻烦,其不支持率从年初的49%飙升至4月底的63%。

The leftist Roberto Sánchez unexpectedly surged in the first round of presidential elections but ultimately lost narrowly in the runoff to the right-wing candidate, Keiko Fujimori. In Argentina, despite a burgeoning hydrocarbon sector, higher energy costs have renewed inflation concerns and created a headache for Milei, whose disapproval rating spiked to 63 percent in late April, up from 49 percent at the start of the year.

鉴于该地区对进口汽油和柴油的依赖,持续高企的油价所带来的经济代价正日益加重。多米尼加共和国、尼加拉瓜以及几个加勒比小国的政府已对能源成本进行了补贴,但随着高价持续,这已成为一项沉重的负担。在其他地区,政府无力提供此类救济,消费者深受打击。在洪都拉斯,作为中美洲主食的玉米价格从2025年到2026年上涨了超过60%。在危地马拉,飙升的汽油价格引发了公众抗议。

Given the region’s dependence on imported gasoline and diesel, the economic toll of sustained high oil prices is only growing. The governments of the Dominican Republic, Nicaragua, and several small Caribbean countries have subsidized energy costs—a costly proposition as high prices persist. Elsewhere, governments cannot afford such relief, and consumers have been hit hard. The price of maize, a staple across Central America, rose by more than 60 percent in Honduras from 2025 to 2026. In Guatemala, soaring gasoline prices led to public protests.

诚然,一些国家从能源行业的动荡中获益。其中最主要的是圭亚那,其石油收入今年迄今已增长超过50%。委内瑞拉也从中获利,尽管若没有实质性的民主转型,其油气行业的长期生存能力仍存疑。特朗普政府与临时总统德尔西·罗德里格斯达成的协议已经面临国会的审查,如果美国中期选举导致任何一院的控制权转向反对党民主党,这种审查只会愈演愈烈。

To be sure, some countries have benefited from the turbulence in the energy sector. Chief among them is Guyana, whose oil revenues have grown more than 50 percent so far this year. Venezuela has also profited, although the long-term viability of its oil and gas sector remains in question absent a meaningful democratic transition. The Trump administration’s deal with Interim President Delcy Rodríguez already faces congressional scrutiny that will only intensify if the U.S. midterm elections shift control of either chamber to the opposition Democrats.

在阿根廷,页岩油气产量的扩大已使该国从能源净进口国转变为出口国,增加了其美元出口收入。巴西不断增长的碳氢化合物行业也使其成为拉美最大的石油生产国和全球前十大产油国之一,且仍有进一步增长的空间。秘鲁和智利则通过出口铜和金等矿产抵消了更高的能源成本,这些矿产的价格已攀升至历史新高。

In Argentina, expanding shale oil and gas production has turned the country from a net energy importer into an exporter, boosting its dollar export revenues. Brazil’s growing hydrocarbon sector has also made it Latin America’s largest oil producer and one of the world’s top ten, with room for further growth. And Peru and Chile have offset higher energy costs by exporting minerals, including copper and gold, whose prices have climbed to record highs.

尽管如此,如果海峡继续关闭,特别是如果美国削减柴油出口,该地区各国将面临更高的能源进口成本,这将拖累农业生产并推高通胀。

Still, if the strait remains closed—and particularly if the United States curtails diesel fuel exports—countries across the region will face higher energy import costs that will weigh on agricultural production and drive inflation.

雪上加霜 今年,霍尔木兹海峡关闭所带来的后果,将因有记录以来最严重的厄尔尼诺现象之一而进一步放大。在接下来的几个月里,它很可能会给阿根廷、巴西、厄瓜多尔、巴拉圭和秘鲁带来洪水;给中美洲和亚马逊雨林带来干旱;并扰乱太平洋的关键渔业。由于各国政府在应对海湾冲突带来的市场冲击时已经耗尽了预算,面对这些新挑战时,许多政府将面临国库空虚的窘境。

FROM BAD TO WORSE This year, the consequences of the closure of the Strait of Hormuz will be magnified by what could be one of the most significant El Niños on record. In the coming months, it will likely bring flooding to Argentina, Brazil, Ecuador, Paraguay, and Peru; drought to Central America and the Amazon rainforest; and disruptions to key Pacific fisheries. Having drained their budgets responding to the market shocks of the Gulf conflict, many governments will meet these new challenges with empty coffers.

该地区已经感受到了一些影响。秘鲁遭受了暴雨、山体滑坡和洪水的侵袭,数十万人受到影响,随着今年时间的推移,由此产生的经济混乱可能会加剧。哥伦比亚在8月份遭遇了7.4级地震,其水力发电厂和作为主要出口收入来源的咖啡产量正面临厄尔尼诺现象带来的压力。在这两个国家,灾难应对工作都让那些以安全为竞选纲领、但现在必须应对经济脆弱性的新领导人的财政和能力捉襟见肘。

The region is already feeling some of the effects. Peru has endured heavy rains, landslides, and flooding that has affected hundreds of thousands of people, and the resulting economic disruptions are likely to intensify as the year continues. Colombia, hit by a 7.4-magnitude earthquake in August, faces El Niño–driven pressure on its hydroelectric plants and its coffee output, which remains a major source of export income. In both countries, disaster response is straining the finances and capacity of new leaders who campaigned on security but must now contend with economic fragility.

随着中美洲面临严重干旱、粮食不安全以及燃料和化肥成本高昂的可能性,各国政府很可能不得不暂停征收燃料税(并放弃大量收入)以平息抗议。十年前,强烈的厄尔尼诺现象重创了萨尔瓦多、危地马拉和洪都拉斯的农民,引发了一波前往美国的移民潮。现在,随着美墨边境实施更严格的限制,移民这一“减压阀”被关闭,这些国家正面临国内社会动荡加剧的前景。

As Central America faces the possibility of severe drought, food insecurity, and high costs for fuel and fertilizer, regional governments will likely have tosuspend fuel taxes (and forgo substantial revenues) to head off protests. A decade ago, a strong El Niño hurt farmers in El Salvador, Guatemala, and Honduras, fueling a wave of migration to the United States. Now, with far tighter restrictions at the U.S.-Mexican border closing off migration as a relief valve, those countries face the prospect of growing social unrest within their borders.

降雨量减少也导致巴拿马运河水位下降,航运速度放缓,进一步加剧了本已中断的液化天然气贸易。在世界各地区中,拉丁美洲和加勒比地区的内部贸易往来最少。

Lower rainfall totals are also reducing water levels in the Panama Canal and slowing shipping, further straining the already disrupted trade in liquefied natural gas. No region in the world trades less with itself than Latin America and the Caribbean.

鉴于巴西幅员辽阔且气候多样,其面临的风险敞口最为广泛。厄尔尼诺现象不仅威胁着南部地区的大豆和玉米收成,还导致热带草原和雨林陷入干旱并引发野火。作为巴西主要电力来源的水力发电可能会承受压力,迫使北部和东北部地区更加依赖成本更高的燃气、燃油和燃煤发电。这种转变可能需要政府向消费者提供价格补贴,并减缓该国数据中心的建设热潮。

Given its expanse and varied climates, Brazil faces the broadest exposure. El Niño threatens soy and corn harvests in the south while plunging savannahs and rainforests into drought and sparking wildfires. Hydropower, which supplies most of Brazil’s electricity, will likely come under strain, forcing greater reliance on more expensive gas-fired, diesel-fired, and coal-fired electricity generation in the north and northeast. That shift could require price subsidies for consumers and slow the country’s data-center boom.

所有这一切都发生在一场两极分化的总统选举期间,竞争双方是现任总统路易斯·伊纳西奥·卢拉·达席尔瓦,以及曾因策划政变被定罪的极右翼前总统雅伊尔·博索纳罗之子——参议员弗拉维奥·博索纳罗。

All of this is unfolding during a polarizing presidential election between President Luiz Inácio Lula da Silva and Senator Flávio Bolsonaro, son of the far-right former president Jair Bolsonaro, who was convicted of plotting a coup.

在阿根廷,米莱的经济计划依赖于强劲的粮食收成,以重建美元储备并维持其抗击通胀的行动。在经历了导致此前收成减少的长期干旱后,阿根廷需要厄尔尼诺现象带来的高于平均水平的降雨,但过多的降雨可能会破坏基础设施并降低产量,从而打击出口收入。农业收入减少将导致政府资金短缺,而国内粮食产量的下降则会推高消费价格——这两者都将成为2027年与米莱竞争的最激进庇隆主义民粹派的利好因素。

In Argentina, Milei’s economic plan depends on a strong grain harvest to rebuild dollar reserves and sustain his crusade against inflation. After a prolonged drought that curtailed previous harvests, Argentina needs the above-average rainfall El Niño will bring, but too much could damage infrastructure and reduce yields, hitting export income. Lower agricultural revenue would leave the government with less money, and lower domestic food production would drive up consumer prices—both boons to the most extreme Peronist populists running against Milei in 2027.

霍尔木兹海峡的关闭与历史性的厄尔尼诺现象接踵而至,而此时该地区才刚刚从新冠疫情中恢复元气。新冠疫情对拉丁美洲和加勒比地区造成了尤为沉重的打击,导致该地区经历了120年来最严重的经济萎缩。该地区避免了又一个“失去的十年”增长,这是一个积极的信号。然而,随着外部冲击频繁来袭,各国政府将缺乏必要的财政和政治空间来解决限制增长与发展的结构性因素。如果不能在不断变化的全球经济中通过全地区协同努力来把握机遇,长期表现不佳的局面将持续存在。

The closure of the Strait of Hormuz and a historic El Niño arrive just as the region was regaining its footing after the COVID-19 pandemic, which hit Latin America and the Caribbean especially hard and caused the region’s sharpest economic contraction in 120 years. That the region avoided another decade of lost growth is a positive sign. But with external shocks now arriving regularly, governments will lack the fiscal and political space needed to address the structural factors limiting growth and development. Without concerted region-wide efforts to seize opportunities in a shifting global economy, chronic underperformance will prevail.

关键结论:拉丁美洲国家在重新开放霍尔木兹海峡或缓解太平洋地区的紧张局势方面几乎无能为力。若要应对这些危机,它们必须采取过去未曾尝试过的联合行动。

FULL-COURT PRESS Latin American countries can do little to reopen the Strait of Hormuz or cool the waters of the Pacific. If they are to weather these crises, they will have to band together in ways that have eluded them in the past.

全球范围内,拉丁美洲和加勒比地区的内部贸易量是最低的。各国政府必须具备政治意愿,加强经济合作,以实现惠及普通民众的增长目标。同时,它们还需加强法治建设并提高财政纪律。该地区的多边开发机构(如美洲开发银行、CAF-拉丁美洲和加勒比开发银行以及众多次区域银行)可以在多个方面提供帮助:提供紧急融资和灾害应对计划支持,并吸引更多私人投资。

No region in the world trades less with itself than Latin America and the Caribbean. Governments must find the political will to better link their economies in the interest of achieving growth that reaches ordinary citizens. They also must strengthen the rule of law and exercise greater fiscal discipline. The region’s multilateral development banks—the Inter-American Development Bank, CAF-Development Bank of Latin America and the Caribbean, and a panoply of subregional banks—can help on several fronts. They can provide emergency financing and planning support for disaster response.

如果各国政府未能有效解决通货膨胀、粮食安全问题及其他经济动荡,社会动荡必将随之而来。那些以“国家安全”为竞选纲领的领导人(例如萨尔瓦多总统纳伊布·布克莱和厄瓜多尔总统诺博阿)很可能会加剧其强硬的言论和政策立场。另一些领导人(如最近对委内瑞拉移民采取强硬措施的哥伦比亚总统阿贝尔拉多·德·拉·埃斯普里埃拉)则可能借助仇外情绪来转移公众对自身政策缺陷的指责。

They can also court more private investment. If governments in the region fail to address inflation, food insecurity, and other economic disruptions, social unrest will follow. Leaders elected on security agendas, such as Salvadoran President Nayib Bukele and Ecuador’s Noboa, will likely intensify their hardline rhetoric and policies. Others, including Colombian President Abelardo de la Espriella, who recently launched a crackdown on Venezuelan migrants in his country, will be tempted to stoke xenophobia to deflect blame for policy shortcomings.

阿根廷前总统克里斯蒂娜·费尔南德斯·德·基尔希纳的支持者(基尔希纳主义势力)以及其他经济民粹主义者很可能会在选举中重新获得支持。然而,正如民粹主义者惯常做的那样,他们会承诺一些无法兑现的目标,并推行那些只会增加开支和财政赤字、却无法带来实质性经济增长的政策。

Argentina’s Kirchneristas—supporters of former President Cristina Fernández de Kirchner—and other economic populists will once again gain ground at the ballot box. As populists are wont to do, they will run on promises they cannot fulfill and enact policies that drive up spending and deficits without generating significant and broadly shared growth.

除了该地区各国政府自身外,欧洲和美国这两个外部参与者也能帮助其避免这些危机带来的最严重后果。欧盟正将自身定位为中国和美国之外一个可靠且可预测的替代选择。如果欧盟法院明年批准期待已久的《欧盟-南方共同市场伙伴关系协定》,欧盟将锁定与阿根廷、巴西、巴拉圭和乌拉圭的自由贸易关系。通过“全球门户”倡议,欧盟还正以超过500亿美元的公共和私人投资支持该地区的经济。

Beyond the region’s own governments, two outside players can help it avoid the worst consequences of these crises: Europe and the United States. The European Union is already positioning itself as a reliable, predictable alternative to both China and the United States. If the bloc’s Court of Justice upholds the long-sought EU-Mercosur Partnership Agreement next year, the EU will lock in free trade with Argentina, Brazil, Paraguay, and Uruguay. Through its “Global Gateway” initiative, the EU is also supporting the region’s economy with more than $50 billion in public and private investments.

在唐纳德·特朗普总统领导下的美国正采取一种不同的方针:通过关税和武力进行胁迫。华盛顿或许能够通过强硬手段迫使委内瑞拉等国在短期内让出资源,但这种做法有损美国在该地区长期的影响力。一个稳定繁荣的拉丁美洲符合美国的利益,将关键供应链保持在近邻地区也同样如此,特别是在关键矿产和先进技术领域。

The United States under President Donald Trump is taking a different approach: coercion through tariffs and the use of force. Washington may be able to strong-arm a country such as Venezuela for a short-term resource grab, but such an approach risks squandering U.S. influence in the region over the long term. A stable and prosperous Latin America is in the United States’ interest, and so is keeping key supply chains close to home, particularly for critical minerals and advanced technologies.

为此,华盛顿应鼓励该地区各国政府、多边开发银行和私营部门在拉丁美洲和加勒比地区建立具有韧性的供应链。通过共同努力,他们可以为拉美国家提供走出危机、实现更强劲复苏所需的资金和灾害应对支持。

To that end, Washington should encourage governments in the region, multilateral development banks, and the private sector to build resilient supply chains across Latin America and the Caribbean. Together, they can provide Latin American countries with the financing and disaster-response support the region needs to emerge from these crises stronger.

尽管该地区面临诸多挑战,各国政府仍有机会帮助解决一些全球最紧迫的问题,并促进共同发展。如果他们未能成功,就会为极端的经济民粹主义者打开大门,而这些民粹主义者只会让该地区的问题变得更加严重。如果美国和欧洲不支持经济一体化,中国将通过向各种意识形态的政府提供快速、显而易见的“胜利成果”来加深与该地区的联系;这虽然能在短期内为这些政府提供支持,但从长远来看只会加剧他们的困境。然而,这些“快速胜利”并不能解决阻碍经济增长的结构性问题。

Despite the challenges they face, the region’s governments have an opportunity to help meet some of the world’s most pressing needs and promote shared growth. If they fail, they will open the door to increasingly extreme economic populists who will only make the region’s problems worse. And if the United States and Europe fail to support economic integration, China will deepen its ties throughout the hemisphere by promising quick, visible wins to governments of all ideological stripes—propping them up in the short term but compounding their difficulties in the long run. Quick wins will not fix the structural flaws holding back growth.