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Community resources
courage is contagious
Viewing cable 06CARACAS1209, CHAVEZ' "BOLIVARIAN" BUSINESS MODELS: THE TRIUMPH
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Reference ID | Created | Released | Classification | Origin |
---|---|---|---|---|
06CARACAS1209 | 2006-05-05 19:38 | 2011-08-24 01:00 | UNCLASSIFIED | Embassy Caracas |
VZCZCXRO5907
RR RUEHAO
DE RUEHCV #1209/01 1251938
ZNR UUUUU ZZH
R 051938Z MAY 06
FM AMEMBASSY CARACAS
TO RUEHC/SECSTATE WASHDC 4351
INFO RUEHBO/AMEMBASSY BOGOTA 6404
RUEHBU/AMEMBASSY BUENOS AIRES 1180
RUEHLP/AMEMBASSY LA PAZ 1951
RUEHPE/AMEMBASSY LIMA 0175
RUEHQT/AMEMBASSY QUITO 2031
RUEHSG/AMEMBASSY SANTIAGO 3481
RUEHAO/AMCONSUL CURACAO 0783
RUEHGL/AMCONSUL GUAYAQUIL 0445
RUCNDT/USMISSION USUN NEW YORK 0151
RHEHNSC/NSC WASHDC
RUCPDOC/DEPT OF COMMERCE
RUEATRS/DEPT OF TREASURY
UNCLAS SECTION 01 OF 04 CARACAS 001209
SIPDIS
SIPDIS
E.O. 12958: N/A
TAGS: ECON VE
SUBJECT: CHAVEZ' "BOLIVARIAN" BUSINESS MODELS: THE TRIUMPH
OF IDEOLOGY
REF: A. CARACAS 944
¶B. CARACAS 172
This message is sensitive but unclassified, please treat
accordingly.
-------
Summary
-------
¶1. (SBU) As part of his "XXI-Century Socialism" project,
President Chavez has chosen to reward business models that
conform to his political vision via financial incentives and
preferential treatment. The BRV has supported the creation
of thousands of cooperatives, which have largely failed to
revive the economy as promised. It has also "rescued" a
handful of nearly-bankrupt companies by promoting the
"Co-Management" model of buying out a majority of shares and
leaving the rest to workers or the original owners. Chavez
has fostered the creation of Social Production Enterprises
(EPS), structured like cooperatives -- with a mandate to
reinvest in surrounding communities -- but without a basis in
law. PDVSA is requiring all contractors to become EPSs or
pay a percentage of gross income for social programs. The
BRV has touted "endogenous development" (development from
within) as a guiding principle. However, rewarding business
models based on ideology versus their productivity or
financial health is economic folly, and predictably, the
"Bolivarian" models are already showing signs of weakness.
End Summary.
------------
Cooperatives
------------
¶2. (SBU) Since Pres. Chavez took office, the BRV has
actively promoted cooperatives, defined as structures where
means of production and profits are distributed equally, and
a lack of hierarchy guarantees all members have equal rights.
By April, the Ministry of Popular Economy (MINEP) had over
107,000 registered cooperatives, 42,000 in 2005 alone. An
estimated 4.6 percent of employed Venezuelans work in
cooperatives, and setting up a cooperative takes little more
than a willing group of five people and some minimal
training. Mision Vuelvan Caras (Mission About Face) trains
participants on how to form and operate a cooperative, with
over 6,014 cooperatives created under this program in 2005.
According to MINEP, 3,007 of these are producing and selling
products, 800 are waiting for land to work on (Ref A), and
the rest -- 37 percent -- are in the "planning stages."
MINEP announced in April 2006 that it hoped to oversee the
creation of 100,000 cooperatives in 2006, over 28,000 through
Mision Vuelvan Caras.
¶3. (SBU) The infusion of new cooperatives into the economy is
catalyzed by preferential financing from the BRV. Many
existing companies are taking advantage of the situation and
simply "re-structuring" their charters as cooperatives to
obtain financial benefits. However, most keep their
operating model intact. This same trend is occurring in all
BRV-favored business models, though no figures are available
to estimate how many cooperatives are "just for show."
¶4. (SBU) The financial probity of new cooperatives is
questionable. Of 1,500 cooperatives audited by the National
Superintendency of Cooperatives (SUNOOP) in 2005, 628 of them
presented "irregularities" and are being sanctioned for a
myriad of violations, ranging from denying partnership to
employees after six months of employment (required by law) to
incomplete or missing financial records. The National
Assembly is launching a separate investigation to determine
the extent of "irregularities." To get a handle on
cooperatives, SUNOOP announced on April 11 that they planned
to carry out a nationwide census to gather information. Some
analysts believe that the cooperatives have largely "failed"
-- high loan default rates and poor productivity have
dampened the high hopes the BRV had for these production
models.
-------------
CARACAS 00001209 002 OF 004
Co-management
-------------
¶5. (SBU) Another favored business model is Co-Management
("Co-gestion"). Co-management is not a clearly defined term,
even by the BRV. In most cases, co-management means worker
involvement in management of a company, either through a
worker's union taking over management decisions or a
cooperative sitting on a company board. The model also
requires investment in social programs that benefit the
surrounding community. In all cases, the BRV comes to own a
majority share in the company, while the minority is left to
workers, original owners, or a combination of the two.
According to legal experts, fewer than 260 co-management
enterprises were formed in 2005 in all of Venezuela.
¶6. (SBU) Many co-managed companies are born out of near
bankruptcy -- workers fear for their jobs and call on the
government to intervene, either to buy out the company's
majority shares (a de facto capital infusion), or to outright
expropriate. (Note: in the last year, there have been less
than 10 actual expropriations (Ref B). End Note.) Many
companies which suffered financially from the 2002 general
strikes turn to co-management. As with cooperatives, the BRV
provides financial incentives to co-managed companies. The
National Assembly (AN) approved USD 52.5 million in
additional credits for use by MINEP's Program for Investment
in Co-Management. The government doles out the credits on
the condition that companies reinvest 10 percent of profits
in social programs. SENIAT, the tax agency, also provides
tax breaks to co-managed enterprises. On April 28, Chavez
issued a presidential decree saying that companies that were
going to fire workers due to "economic hardship" could be
required to re-structure under the co-management model.
¶7. (SBU) The success of co-management schemes overall is
difficult to gauge, given that their ownership structures
vary greatly. Alcasa, a large aluminum processing plant (and
landmark co-management enterprise) reported a USD 56.7
million loss in 2005, despite nearly USD 210 million of BRV
investment. In Zulia state, Sideroca (a steel mill) was
expropriated in September of 2005, yet administrative delays
have prevented the completion of the legal process required
to operate under a co-management model, prompting worker
protests and illegal occupation of the plant. (Note:
Chavista workers blame Zulia state's opposition governor for
stalling the company's transformation. End Note). Since
co-management is largely born out of failing companies, the
BRV argues that its intervention keeps them operational,
which is true. However, these "rescues" in turn prompt other
workers to mobilize and seek government intervention.
Selfex, an underwear and bathing suit manufacturing plant,
was taken over by workers in March 2006 and is awaiting BRV
funding to continue operating.
-----------------------------------
Social Production Enterprises (EPS)
-----------------------------------
¶8. (SBU) A third business model favored by the BRV is the
Social Production Enterprise (Empresas de Produccion Social,
EPS). There is no legislation that defines EPS structure,
and only two documents (a September 2005 BRV decree and a
November 2005 PDVSA document) shed any light on what an EPS
should achieve (but not its structure). According to this
guidance, EPS management is non-hierarchical and property is
collective (like a cooperative). Its objectives should
include generating goods and services that satisfy the needs
of the community, employing the "men and women of the
missions," and holding values of "solidarity" and
"cooperation." It should keep an "economic balance" that
allows continued re-investment of profits into social
programs. The Minister of Mining and Basic Industry (MIBAM),
Victor Alvarez, failed to clarify the picture when he stated
that EPSs "will not be classic mercantile companies, nor will
they have collective contracts and a predatory effect on the
environment."
¶9. (SBU) The BRV is encouraging the creation of EPSs via
direct investment. In November 2005, PDVSA pledged USD 100
CARACAS 00001209 003 OF 004
million to "promote socialism" via EPSs. In February 2006
the BRV created CONIBA (National Company for Basic
Industries), a holding unit for state-owned companies in this
sector, including a steel mill, a tubing manufacturer, a
cement plant, a cotton processing plant, a rail manufacturer,
a pulp and paper processing company, a mining enterprise and
a construction materials manufacturer. The BRV owns 51
percent of the companies and private or public foreign
entities own the rest. As EPSs, companies are expected to
re-invest in the community -- CONIBA has already allocated
USD 2.8 million of investment toward badly-needed housing
construction. So far, the BRV has allocated USD 1.39 billion
for EPSs from FONDEN (National Development Fund), and will
provide preferential loans for these companies via the
Foreign Commerce Bank of Venezuela (Bancoex). SENIAT, as
with other favored business models, offers tax breaks to
EPSs.
¶10. (SBU) The private sector is alarmed about BRV backing of
EPS enterprises, especially in relation to PDVSA. PDVSA has
traditionally had a contractor registry (RAC), but now has
created a parallel registry only for EPSs (REPS). Rumors
abound that they've dropped the RAC altogether, though PDVSA
hasn't issued an official statement confirming this. PDVSA
is already unofficially requiring all contractors to adopt
the EPS business model or pay a percentage of profits (1-2
percent of gross income) for social programs. As a result,
non-EPS companies are adjusting their bids to account for
what amounts to an extra-legal "social tax" and PDVSA's costs
are being inflated artificially. In some areas of the
country PDVSA is requiring that companies include a social
project proposal in contract bids.
¶11. (SBU) Though the EPS movement is relatively new, already
some weak spots are showing. In the case of CVG Venalum, a
state-owned aluminum processor, 14 of their subcontracted
EPSs are protesting because they haven't been paid in over 18
months, despite the preferential treatment they're supposed
to receive as EPSs.
-----------------------------
Endogenous Development Nuclei
-----------------------------
¶12. (SBU) As an overall economic concept, Chavez has often
referred to "Nuclei of Endogenous Development" (Nucleos de
Desarrollo Endogeno), but a concrete and coherent definition
is hard to come by. Official BRV websites explain that
endogenous development is "development from within -- by the
community and for the community" and represents a more "human
economy," but has no objective standards on what a "nucleus"
looks like or how it operates (Note: given the randomness of
the projects approved under this model, it is likely there is
no set definition. End Note.) The BRV has awarded grants
for everything from chicken farming projects by high
schoolers, to tropical fruit processing plants, to housing
repair programs in disadvantaged neighborhoods. Endogenous
development is more of a concept than a business model. If
anything, it's become an umbrella justification for BRV
support of ad hoc -- and politically correct -- projects that
don't fit easily into other models.
-------
Comment
-------
¶13. (SBU) Rewarding business models based on their ideology
versus their productivity or financial solvency is economic
folly. In fact, many companies are taking advantage and
simply "re-structuring" themselves to obtain BRV benefits
while keeping operations unchanged. For Chavez, however,
it's a way to play to his voter base and direct funds toward
businesses that align to his political vision. Of the three
business models discussed (Cooperatives, Co-Management, and
EPS), the future of co-management is the most uncertain,
since too many variables in ownership structure preclude a
sensible prediction. EPSs, however, will likely go down the
same familiar path that cooperatives have traveled by virtue
of their non-hierarchical, not-for-profit structures. The
fact that EPSs are not rooted in law may be intentional -- it
CARACAS 00001209 004 OF 004
provides a quiet exit in case the model fails. For now, poor
economic decisions are sustainable only with high oil
windfall revenue. When that inflow slows down, the
consequences of favoring ineffective business models will
become all too apparent. End Comment.
BROWNFIELD