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Viewing cable 06BRASILIA1670, BRAZIL NONCOMMITTAL ON PARTNERSHIP FOR DEMOCRATIC
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Reference ID | Created | Released | Classification | Origin |
---|---|---|---|---|
06BRASILIA1670 | 2006-08-14 19:20 | 2011-07-11 00:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Brasilia |
VZCZCXRO0073
OO RUEHRG
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ZNR UUUUU ZZH
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FM AMEMBASSY BRASILIA
TO RUEHC/SECSTATE WASHDC IMMEDIATE 6339
INFO RUEHAC/AMEMBASSY ASUNCION PRIORITY 5585
RUEHBO/AMEMBASSY BOGOTA PRIORITY 3880
RUEHBU/AMEMBASSY BUENOS AIRES PRIORITY 4193
RUEHCV/AMEMBASSY CARACAS PRIORITY 3384
RUEHGT/AMEMBASSY GUATEMALA PRIORITY 0282
RUEHLP/AMEMBASSY LA PAZ PRIORITY 4772
RUEHPE/AMEMBASSY LIMA PRIORITY 3120
RUEHMN/AMEMBASSY MONTEVIDEO PRIORITY 6400
RUEHOT/AMEMBASSY OTTAWA PRIORITY 0980
RUEHPU/AMEMBASSY PORT AU PRINCE PRIORITY 0130
RUEHQT/AMEMBASSY QUITO PRIORITY 1931
RUEHSG/AMEMBASSY SANTIAGO PRIORITY 5679
RUEHRG/AMCONSUL RECIFE PRIORITY 5275
RUEHRI/AMCONSUL RIO DE JANEIRO PRIORITY 2658
RUEHSO/AMCONSUL SAO PAULO PRIORITY 7728
RUCNDT/USMISSION USUN NEW YORK PRIORITY 0155
RUEHUB/USINT HAVANA PRIORITY 0032
RUEKJCS/SECDEF WASHDC PRIORITY
RHEHNSC/NSC WASHDC PRIORITY
RUEAIIA/CIA WASHDC PRIORITY
UNCLAS SECTION 01 OF 05 BRASILIA 001670
SIPDIS
SENSITIVE
SIPDIS
E.O. 12958: N/A
TAGS: PREL UNSC BR
SUBJECT: BRAZIL NONCOMMITTAL ON PARTNERSHIP FOR DEMOCRATIC
GOVERNANCE
¶1. (SBU) Summary. GOB officials responded in a
noncommittal fashion to visiting S/P Director Krasner's
presentation on the Partnership for Democratic Governance
(PDG). During an August 4 meeting at the Foreign Ministry,
GOB officials expressed concerns about the PDG's
relationship, if any, to UN programs, and said Brazil prefers
to work within established international organizations rather
than new ones. FM Undersecretary Patriota also raised UNSC
reform, arguing strongly for Security Council enlargement.
In the discussion of regional topics, Patriota expressed deep
concern about Lebanon and support for a UN-authorized force
in Lebanon; noted that Brazil has named an ambassador to
Baghdad; and said the GoB believes the time has come for a
UN-authorized force to replace Australia in East Timor.
Brazil wants to retain command of MINUSTAH forces in Haiti.
U/S Patriota accepted S/P Krasner's invitation for broader
policy planning talks, and continued discussions on the PDG,
in Washington. Krasner also briefed the PDG to Presidential
Foreign Affairs Advisor Marco Aurelio Garcia during a
separate meeting. Garcia reviewed the history of popular
participation in Brazil's budget process as an example of GOB
experience with public/private partnerships. End summary.
-------------------------------------
PARTNERSHIP FOR DEMOCRATIC GOVERNANCE
-------------------------------------
¶2. (SBU) Dr. Stephen Krasner, Director of Policy Planning,
provided a briefing on the Partnership for Democratic
Governance (PDG) initiative in a meeting at the Brazilian
Foreign Ministry on August 4. A discussion of UN reform and
regional issues followed. In his opening remarks, Antonio
Patriota, Undersecretary for Political Affairs, noted the
good relationship between Presidents Lula and Bush, which he
said illustrates the maturity, competency, and trust of the
bilateral relationship. (Full participant list is in para.
21)
¶3. (SBU) Krasner told Patriota that the USG is discussing the
PDG with a number of countries, with the goal of establishing
a group of some 20-25 supporting countries, based largely on
government capacity, Freedom House indicators, and geographic
diversity. He suggested that we might be able to have
preliminary meetings this fall leading to an agreement on the
form of the PDG by the end of the year. Krasner said the PDG
is aimed to provide support where democratic elections have
been held but institutions are weak and newly elected
governments confront difficulties governing and building
institutions. Krasner said we do not see the PDG as a
replacement for anything else we are doing, or for the work
of the Peace Building Commission (PBC). He emphasized that
the PDG initiative will require the involvement and approval
of leaders from inside the beneficiary governments, not
outside.
--------------------------------------------- -------
SEEING HOW THE PDG FITS INTO A MULTILATERAL PARADIGM
--------------------------------------------- -------
¶4. (SBU) Patriota said his reaction was a very preliminary
one. He indicated that Brazil needs more time to prepare its
response, but that he had mentioned the PDG to Foreign
Minister Celso Amorim and Vice FM Samuel Guimaraes. Patriota
said Krasner's description of the initiative was reassuring
because Brazil had some initial concerns. Brazil views
democracy as a means to end: development, harmony, and
opportunity. A one-size fits all approach is wrong since
there are more and less mature democracies. Patriota said
Brazil prefers to work with multilateral institutions, and
Brazil invests its energies in improving and strengthening
BRASILIA 00001670 002 OF 005
those that already exist.
¶5. (SBU) Patriota said above all Brazil's priorities are
the UN and the WTO. He said multilateral organizations
should not be confused with groups of like-minded countries,
which nonetheless can be useful (he cited the India, Brazil,
and South Africa group, known as IBSA). He said he was
pleased that Krasner mentioned the PBC since Brazil
recognized in the 1990s the lacuna in the UN system that the
PBC has filled. He also noted that the UN system had not
always been able to deal with situations such as Rwanda and
Haiti because as soon as the security crisis had passed,
there was no mechanism to deal with the aftermath.
¶6. (SBU) Donor conferences, Patiota noted, suffer from too
much north-south dynamic, and conditionalities imposed by
donors could scuttle the work if the recipient lapsed. For
this reason, Brazil is committed to making the PBC work.
Patriota said Brazil is also hesitant to embrace the PDG
because it could weaken the UN restructuring effort. He
suggested that the PDG might be integrated in to the work of
the PBC and Community of Democracies. Finally, Patriota said
the upcoming Brazilian elections place a natural brake on
Brazil's ability to take on new initiatives, particularly
since Brazil is very involved in the India-Brazil-South
Africa initiative.
¶7. (SBU) Krasner agreed that we cannot work without the
multilateral system, adding that he believes the PDG would
bring diversity and legitimacy that would help transcend
north-south divisions. The PDG could be a part of UN work.
The USG does not see it necessarily as something distinct,
but does not view it as an initiative that would become
universal because its success could hinge on its sponsorship
by high capacity, geographically diverse democracies that are
truly committed to its overall objectives. This would
necessarily limit the partnership.
¶8. (SBU) Patriota said he was reassured by this because
Brazil had concerns about how the PDG would fit in the UN
system.
¶9. (SBU) At a separate meeting with Presidential Foreign
Affairs Advisor Marco Aurelio Garcia, Krasner reviewed the
thinking behind the PDG, emphasizing the need to look at
problems of democratic participation in a new light. After a
lengthy review of Brazil's experience reintroducing democracy
following the 1964-1985 dictatorship, Garcia reviewed recent
experiences in drawing the public into the government's
budgetary process. Krasner said citizen involvement in the
budget process was a great idea.
¶10. (SBU) In follow-up conversations between Ambassador
Sobel and U/S Patriota, and between the Embassy Political
Counselor and Marcel Biato, the president's deputy foreign
policy advisor, the Brazilians stressed that they were not
rejecting the PDG and it was not an unwelcome initiative.
Both said they were interested in further discussion of the
PDG and wanted to follow up with Embassy officers.
--------------------------
UN SECURITY COUNCIL REFORM
--------------------------
¶11. (SBU) Patriota said UN reform would not be complete
without UNSC reform. He said there is now a majority in the
General Assembly favoring an expansion of the UNSC to include
both permanent and non-permanent members, developed
countries, and developing countries. Patriota said he had
discussed this with Secretary Rice and U/S Burns, and he did
BRASILIA 00001670 003 OF 005
not interpret the U.S. position as placing any restrictions
on Brazilian UNSC aspirations. He also said the U.S. is the
only country that supports adding only Japan. He asked
whether Krasner had any new ideas.
¶12. (SBU) Krasner said the USG remains very committed to UN
reform, but noted the difficulty of charting a way forward.
Patriota said the issue would not go away, and there is a
growing awareness of the democracy deficit in the UNSC. He
said the G-8's decision to include developing countries in
its meetings is proof of that, and it is a positive
development that the G-8 has expanded its agenda to include
political issues, non-proliferation and others. He also said
that Brazil must be engaged on UNSC reform; in view of its
size, geographical location, and other reasons, it will be
seen as running away from the issue if it does not engage.
¶13. (SBU) Patriota added that a recent blue ribbon panel
convened by Kofi Annan pointed to two possible reform models,
one of which has broad support in among member states:
expanding the UNSC in both categories, but without veto
privileges. Patriota also said China might accept a non-veto
wielding Japan, but that China's behavior in the developing
world has so far blocked reform. He predicted that if
current trends continue the UNGA will become ever closer to
accepting the G-4 platform, and that Brazil might present a
resolution to the UNGA before the end of the year on UNSC
reform.
--------------------
MIDDLE EAST: LEBANON
--------------------
¶14. (SBU) Krasner said the components of the current crisis
are clear: there must be a way to expand the authority of
the government of Lebanon right up the borders with Israel
and Syria. Since Hizballah is not going to disarm, the big
challenge is to get an agreement by making trade-offs such as
rules of engagement vs. the capacity of Hizballah. If
Hizballah's capacity is not reduced, an agreement will be
impossible. The USG wants an end to the fighting as soon as
possible, and a robust force must be put together to
strengthen the legitimacy and sovereignty of the GOL, he said.
¶15. (SBU) Patriota said that President Lula wrote to the P-5
members plus the two Latin American Security Council members,
Peru and Argentina, on August 3, expressing Brazil's concern
and consternation over the situation in Lebanon. Brazil's
position is that there has been a disproportionate response,
an excessive use of force. Brazil, he stressed, condemns the
use of terrorism by whoever uses it, and Brazil calls for an
immediate cessation of hostilities.
¶16. (SBU) Brazil supports a force authorized by the UNSC,
and Brazil would have to consider carefully whether it could
participate. Patriota said Brazil has taken note of our
position that we cannot go back to the status quo ante. He
reiterated that Brazil's main concern is to strengthen the
GOL and Lebanese sovereignty.
-----------------
MIDDLE EAST: IRAQ
-----------------
¶17. (SBU) Krasner said we are guardedly hopeful, but we
cannot say with high confidence that we will have the result
we hoped for. Patriota said Brazil has established an office
in Amman to handle its affairs in Iraq, and has named a
career ambassador to Baghdad. He will go there when
conditions permit. Brazil remains disheartened over the
BRASILIA 00001670 004 OF 005
turbulence and loss of life.
----------
EAST TIMOR
----------
¶18. (SBU) Brazil is waiting for Kofi Annan's report on E.
Timor. The crisis took Brazil by surprise, and Brazil, as a
lusophone country, has a strong commitment to E. Timor,
Patriota said. Brazil views with concern the longstanding
military presence of any country or group of countries
without UN oversight. Patriota acknowledged that Australia
had gone to E. Timor invited by the Timorese, but said Brazil
prefers a multinational force under UN supervision. He
agreed with Krasner that under the circumstances it was
probably the only option to have Australians enter quickly,
but said now it is time for something different.
-----
HAITI
-----
¶19. (SBU) Patriota noted that the MINUSTAH agreement is
about to lapse, and said Brazil is interested in retaining
command because its leadership seems to have been a positive
factor. He asked for USG support to retain the Haitian
command. Krasner expressed our appreciation for Brazil's
contribution in Haiti. He pointed to Haiti as the kind of
situation where the PDG could make a real contribution. For
example, he said we might consider bringing in international
judges but we need a situation in which Haitians will see
them as a technical detail, not an international infringement
on sovereignty. Patriota said Brazil does not oppose this,
but bringing them under the auspices of an untested
organization will not do that. Krasner replied the PDG could
stipulate that UN auspices would be the best way, and perhaps
France might be the best participant, but the most important
matter is that Preval make the decision, and that the
decision must empower the GOH. Patriota said Brazil would
continue to think about it.
---------------------------------------------
PATRIOTA ACCEPTS OUR INVITATION TO WASHINGTON
---------------------------------------------
¶20. (SBU) Patriota accepted Krasner's invitation to continue
discussions on the PDG in Washington. No date was discussed
for those talks.
¶21. (SBU) The meeting took place on August 4, 2006 at the
Foreign Ministry.
Brazilian participants:
Antonio Patriota, Undersecretary for Political Affairs
Glivania Maria Oliveira, United Nations Division chief
Antonio Salgado, Chief of Staff to Mr. Patriota
Ana Cabral, Human Rights Division chief
Achilles Zaluar, United Nations Division
Joao Tabajara, U.S. and Canada Division chief
Igor Kipman, Central America and Caribbean Division chief
Jorge Tavares, U.S. and Canada Division (notetaker)
U.S. participants:
Stephen Krasner, Director of Policy Planning (S/P)
Ambassador Clifford Sobel
William McIlhenny, Member, Secretary's Policy planning Staff
(S/P)
Greg Manuel, Member, Secretary's Policy Planning Staff (S/P)
Mark Kennon, Embassy Brasilia
BRASILIA 00001670 005 OF 005
Dale Prince, Embassy Brasilia (notetaker)
Sobel