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Viewing cable 10BRASILIA5, Brazil: Foreign Policy as an Emerging Campaign Issue
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Reference ID | Created | Released | Classification | Origin |
---|---|---|---|---|
10BRASILIA5 | 2010-01-08 16:29 | 2011-07-11 00:00 | CONFIDENTIAL | Embassy Brasilia |
VZCZCXYZ0000
RR RUEHWEB
DE RUEHBR #0005/01 0081629
ZNY CCCCC ZZH
R 081629Z JAN 10
FM AMEMBASSY BRASILIA
TO RUEHC/SECSTATE WASHDC 0277
INFO RUEHBR/AMEMBASSY BRASILIA
RUEHRI/AMCONSUL RIO DE JANEIRO
RUEHSO/AMCONSUL SAO PAULO
C O N F I D E N T I A L BRASILIA 000005
SIPDIS
AMEMBASSY BRASILIA PASS TO AMCONSUL RECIFE
E.O. 12958: DECL: 2020/01/08
TAGS: PGOV PREL PINR BR SU VE CO
SUBJECT: Brazil: Foreign Policy as an Emerging Campaign Issue
REF: 09 BRASILIA 1476; 09 BRASILIA 1439; 09 BRASILIA 1262
CLASSIFIED BY: Lisa Kubiske, Charge d'Affaires; REASON: 1.4(B), (D)
¶1. (C) Summary. With both sides unwilling to promote distinctive
alternatives to prevailing economic policy in a pre-election
environment, Brazil's two principal rival parties - President
Lula's Worker's Party (PT) and front-running presidential candidate
Jose Serra's Brazilian Social Democratic Party (PSDB) - are
increasingly eager to air their differences on foreign policy.
Congressional voting and debate over issues such as
Colombia-Venezuela, Honduras, and Iran have grown increasingly
partisan, with coalition lines enforced. Strongly opinionated
individual members, especially those who travel frequently to key
countries, have proven more effective than party leaders or
relevant committees in shaping the foreign policy debate. In the
case of PT, this allows some of their most militant to shape
priorities, as seen in PT's new foreign policy platform,
tentatively approved in December. PT has addressed its lack of
foreign policy outside of Lula by bolstering the credentials of
presidential candidate Dilma Rousseff with recent visits to
Copenhagen and Germany. PSDB and its allies, meanwhile, are
staking out positions neither rightist nor isolationist - most
heavily favor Brazil's stance on post-Kyoto negotiations in
Copenhagen, for example - but wish to promote a Brazilian foreign
policy more in line with traditional, pre-Lula approaches. As 2010
unfolds, the PT and the PSDB can be expected to continue ratcheting
up the rhetoric on foreign policy, largely due to the need to find
a way to distinguish their parties before the October elections.
End summary.
The Emerging Issue?
¶2. (C) In separate late December discussions, federal deputy Bruno
Araujo (PSDB-Pernambuco) and Valter Pomar, Director of PT's
International Relations office, made the same basic point to
poloff: foreign policy will be a bigger campaign issue in 2010 than
in previous elections, and that their respective parties see it as
advantageous to their side for it to be so. Neither is under
illusion that the general public will much focus on foreign policy,
and each conceded that they are pressing foreign policy matters for
other reasons. Araujo, like other tucanos (members of PSDB),
acknowledged that his party has become more aggressive on foreign
policy in large part because it is not advantageous for them to
oppose popular government economic initiatives like the Pre-Salt
oil legislation. He further argued that voters, the media, and
most rank-in-file diplomats at Itamaraty (Ministry of Foreign
Relations) disagree with Brazil's recent adventurous tack in
foreign policy.
¶3. (C) Pomar explained PT's desire to highlight Brazil's
increasingly visible foreign policy as a means of communicating
with the voter about what Brazil can become - a first-tier country.
He said that keeping issues such as Honduras, the Middle East, and
Copenhagen in the public sphere reinforces to the voter the image
of a new Brazil, and that the debate with PSDB shows voters that
the party of Lula and Dilma is the only real vehicle for achieving
that outcome. Other petista (PT member) voices, such as Dep.
Emiliano Jose (PT-Bahia) made an argument mirroring that of PSDB's
Araujo. "The economy is about negotiations and compromises....With
the U.S. in Colombia...we will be militante." Colombia, he added,
will not be the only issue where PT members will emphasize their
differences with U.S. policy during this election year.
¶4. (C) Votes in Congress show the increasingly enforced divide and
the more heated quality of the rhetoric. The December 18 Senate
vote to approve Venezuela's accession to Mercosul, while expected,
was carried out on a strict party line vote that did not reflect
the privately held views of many senators. In comparison with a
mid-October Mercosul vote count estimate provided to poloff by Sen.
Arthur Virgilio (Amazonas), leader of the PSDB in Senate and a key
opponent of Venezuela's accession, at least one-quarter of the
senate - including several members from both sides - switched their
projected vote by December due to pressure from each side's
respective coalition leadership. Senate floor debate was unusually
rancorous. (see ref A for more on Mercosul.) President
Ahmadinejad's November visit brought a similarly heated response,
with hours of pointed speeches on both sides. The vast majority
of activists in these debates are tucanos and petistas, with PSDB's
coalition partners DEM and PPS also playing a visible role. The
Brazilian Democratic Movement party (PMDB), PT's primary coalition
partner in the government, only sometimes joins the debate -
strongly aligned with Lula on Mercosul but much more distanced on
Iran and Honduras. The many small center-right parties within
Lula's governing coalition are conspicuously silent on foreign
policy.
Travels to the Andes, Honduras, Sudan
¶5. (SBU) Given the weak role of Brazil's Congress in foreign
policy, with limited budget-shaping ability and oversight of MRE,
activist individual members play a large role in shaping party
positions and debate. Members with acknowledged foreign policy
expertise who travel frequently, such as Dep. Raul Jungmann
(PPS-PE), become more influential than committee chairmen - to the
extent that Foreign Affairs Committee and both Senate and Chamber
presidency staff have complained to poloff recently that Congress
has lost institutional control over its ever-expanding number of
CODELs that purport to speak for the GOB. Trips over the last two
months that received media coverage include Honduras, the Andean
region, Egypt, and Sudan, in addition to the 40-member
congressional delegation in Copenhagen in December. In some
cases, bipartisan delegations work well together. PSDB's Araujo
and Dep. Mauricio Rands (PT-PE), both members of the October
delegation to Honduras organized by Jungmann, told us
enthusiastically that, despite differences of opinion, the mission
focused successfully on the single goal of protecting the Brazilian
Embassy housing deposed president Manuel Zelaya (ref C).
¶6. (C) Other delegations become more politicized. Jungmann's
mid-November delegation to Colombia, Venezuela, and Ecuador - which
included visits with Colombian President Uribe and Ecuadorian
President Correa - revealed sharp differences among participants.
Jungmann, per his post-visit conversations with Recife Principal
Officer and Brasilia poloff, expressed concern that low-level armed
conflict between Colombia and Venezuela was now quite likely. He
did not see the U.S.-Colombia Defense Cooperation Agreement (DCA)
as a contributing factor in regional instability or as any
particular novelty. In contrast, the PT member in the delegation,
Dep. Emiliano Jose (Bahia), returned making speeches claiming that
the USG is building seven new army bases in Colombia, and that the
U.S. is planning to build up troop size in order to carry out
missions in neighboring countries. Another PT Deputy, Nilson
Mourao (Acre), traveled to Sudan in September at GOS expense and
returned issuing a spirited defense of Sudanese President Omar
al-Bashir, including a sharp rejection of the international
community's approach to Sudan.
PT: The Militant View
¶7. (C) Hardliners such as Jose and Mourao play a strong role in
PT's public foreign policy because the party counts few among its
ranks who have training or natural interest in the area. Their
historical distrust of the United States can make communication
difficult. Early December conversations between poloff and Dep.
Emiliano Jose and Dep. Jose Genoino (PT-Sao Paulo) bogged down into
extended discussions about a U.S. Air Force budget document, which
they were convinced was a mistakenly released confidential document
that proved U.S. intentions to carry out military operations
against neighboring governments. While it seemed that we made
progress clarifying the nature of the document and the DCA in
general, it was equally clear that the PT deputies did not want to
be convinced. As Jose put it, "PT has its own vision of South
America, which is against the presence of the U.S. military. That
will not change." In early December, Jose and Genoino successfully
pushed for language in PT's draft international policy platform
chastising the U.S. for its "military buildup" and "new U.S. bases"
in Colombia. (Comment: While PT leaders had been previously
briefed on the real nature of the U.S.-Colombia DCA, the message
has not been relayed down the ranks and the perceived advantages
during an election year of a public stand against an American
presence in the region make such a position irresistible. End
Comment)
¶8. (C) There are some checks within PT against such hard-liner
inaccuracies. The PT International Relations office went out of
its way to tell us that Mourao's glowing report in support of the
Sudanese government represented neither PT nor GOB positions, and
that Mourao was told to quiet down. PT staff and party moderates
also softened and/or removed language in the draft international
platform that directly criticized the U.S. position in Honduras and
the Middle East. The PT nevertheless promotes Mourao as its
"Middle East expert," despite his strong biases and evident lack of
understanding of the basics of the region. He helped organize
schedules for the November Ahmadinejad and Abbas visits, and,
according to several sources, is the party's designated
interlocutor with all embassies from the region except Israel's.
(It bears noting that Foreign Minister Celso Amorim officially
affiliated with PT in September and has taken an increasingly
active interest in the region, to be reported septel.) There are
no signs that PT has anyone else available to work Middle East
issues.
¶9. (C) As the 2010 elections approach, the PT will find itself
under pressure to keep such party hardliners out of view as it
tries to sell presidential candidate Dilma Rousseff as the leader
of an emerging, optimistic, internationalist Brazil. Rousseff was
heavily advertised as the point person for the Brazilian delegation
at the COP-15 Climate Change Conference. She also accompanied Lula
to Germany before Copenhagen. Rousseff surprised by making
statements in Germany to the effect that GOB recognition of the
November 29 Honduran elections will have to be reconsidered down
the line. As reported in ref B, Lula also went out of his way to
contrive a prominent Rousseff role in Rio's successful 2016 Olympic
bid. PT contacts view Rousseff's international travel not only as
a means of bolstering her foreign policy credentials - which they
admit are weak - but also as a way of communicating to the voter
that Brazil will continue to be a bold emerging player on the
international scene. The PT is convinced the voters want this even
if they don't know all the details; Pomar described it in terms of
projecting the optimism of the PT against the cautious pessimism of
the PSDB. In a pre-Copenhagen meeting with poloff, Dep. Rands (PT)
defended the idea that Brazil could cut projected CO2 emissions 39
percent by 2020, but also said the emissions goal was set with the
image of Brazil and Rousseff squarely in mind.
The Opposition: Traditionalist, not Center-Right
¶10. (C) The PSDB and its fellow opposition members sense
opportunity vis-C -vis the PT, but it would be inaccurate to
categorize their international approach as right-of-center or
deferential to U.S. positions. Dep. Jungmann (PPS) and Dep. Araujo
(PSDB) both expressed strong support for Brazil's new position on
climate change negotiations. The PSDB and PPS voted nearly in bloc
to support the domestic legislation, signed into law by Lula on
December 22, committing Brazil to make the emissions cuts that form
the basis of its Copenhagen proposal. DEM, the most rightward of
Brazil's major parties, expressed greater reservations, but Dep.
Ronaldo Caiado (Goias), the party's leader in the Chamber, told
poloff during the COP-15 negotiations that DEM would not oppose any
agreement reached in Copenhagen. Jungmann anticipates that a
prospective Serra administration would still be in conflict with
the U.S. on some issues, with distinctions on trade, energy and
ethanol assuming a higher profile while disagreements on Middle
East and Latin America recede. The PSDB and PPS also have
exhibited strong socially liberal streaks in their foreign policy
statements, frequently criticizing Iran and other authoritarian
governments for their positions on gay rights, abortion, and other
issues that the PT is reluctant to address even domestically.
¶11. (C) The opposition is working to project a foreign policy
that, in the words of the policy advisor to Sen. Joao Tenorio
(PSDB-Alagoas), is "both liberal and traditional." Some tucano
contacts, such as Araujo, emphasize the traditional. In his view,
PSDB should campaign to show that a Serra win will move Brazil back
to its pre-2002 foreign policy stances, especially on Latin
America. He viewed PSDB's bloc vote against Venezuela's Mercosul
accession as a primary case in point. Others, including Jungmann
and Tenorio's advisor, are careful to emphasize the "liberal,"
acknowledging that PT has a point when it says that Brazilians
enjoy seeing their government take an active role in international
affairs because it speaks well of the country. In their view,
promoting democracy and conflict resolution abroad and taking an
aggressive stand on climate change are winning issues domestically,
if carried out properly. The opposition's challenge will be to
expose the poor decisions and unhealthy alliances developed by Lula
and the PT in Honduras, Iran and elsewhere, in order to develop
maximum advantage for Serra in the campaign.
Comment: How Important is This?
¶12. (C) It is questionable whether foreign policy will have a
meaningful impact on public opinion and the election season. The
PT's Pomar correlated the spike in Lula's activity on international
issues with his subsequent recent rise in the polls while the
PSDB's Araujo argued that the party's position on Iran helped
turned the media against Lula and the PT. Both may be right, but
there's no evidence that the voters who decide elections care much
about Ahmadinejad, Zelaya and the like. In any case, all parties
have to define themselves against their opposition in some fashion,
and all indicators suggest that foreign policy will be the easiest
way to do so. This is especially true for the PSDB, which is
reluctant to discuss economic issues given the electorate's
discomfort with Brazil's economic performance under former
President Fernando Henrique Cardoso. Meanwhile, as distinctive
foreign policy positions solidify over the next year, the stage
will be set for either Dilma Rousseff or Jose Serra to take the
next administration's foreign policy in substantively very
different directions. End comment.
KUBISKE