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Viewing cable 09BRASILIA34, BRAZIL,S NEW DEFENSE STRATEGY--STRATEGY FOR
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Reference ID | Created | Released | Classification | Origin |
---|---|---|---|---|
09BRASILIA34 | 2009-01-09 16:35 | 2011-07-11 00:00 | CONFIDENTIAL | Embassy Brasilia |
VZCZCXRO3481
RR RUEHAO RUEHCD RUEHGA RUEHGD RUEHHA RUEHHO RUEHMC RUEHMT RUEHNG
RUEHNL RUEHQU RUEHRD RUEHRG RUEHRS RUEHTM RUEHVC
DE RUEHBR #0034/01 0091635
ZNY CCCCC ZZH
R 091635Z JAN 09
FM AMEMBASSY BRASILIA
TO RUEKJCS/SECDEF WASHDC
RUEHC/SECSTATE WASHDC 3268
INFO RUEHWH/WESTERN HEMISPHERIC AFFAIRS DIPL POSTS
RUEHRG/AMCONSUL RECIFE 8898
RUEHRI/AMCONSUL RIO DE JANEIRO 7082
RUEHSO/AMCONSUL SAO PAULO 3324
RUEKJCS/JOINT STAFF WASHDC
RUEKDIA/DIA WASHDC
RHEHNSC/NSC WASHDC
RHMFISS/CDR USSOUTHCOM MIAMI FL
C O N F I D E N T I A L SECTION 01 OF 05 BRASILIA 000034
SIPDIS
DEPARTMENT FOR WHA/BSC AND PM/RSAT
E.O. 12958: DECL: 01/08/2019
TAGS: PREL MARR BR
SUBJECT: BRAZIL,S NEW DEFENSE STRATEGY--STRATEGY FOR
DEVELOPMENT
REF: A. 08 SAO PAULO 268
¶B. 08 BRASILIA 175
BRASILIA 00000034 001.2 OF 005
Classified By: Ambassador Clifford Sobel. Reason: 1.5 (d)
¶1. (C) SUMMARY AND INTRODUCTION. On December 18, President
Lula signed the National Defense Strategy, concluding a
fifteen month drafting exercise. The document was
principally drafted by Minister for Strategic Planning
Roberto Mangabeira Unger, and it provides a security policy
framework that places defense in the context of the
government,s broader goal of national development. The
strategy is built on the presumption that it is in Brazil,s
interest to be "independent," that is able to project its
military power as it wishes, able to produce its own military
hardware and able to control strategic economic sectors,
including space, cybernetics and nuclear power. Much of the
document focuses on the future roles and structures for
Brazil,s armed forces -- including updating equipment,
promoting deployability and enhancing peacekeeping
capabilities. It also devotes considerable space to issues
such as nuclear energy, reducing imports and national
civilian service that are only indirectly related to how
Brazil,s armed forces will defend the country, but are
crucial when defense is viewed in the context of a vision of
a broader strategy for Brazil,s development into a world
power. By linking reform of the security sector with the
government,s broader development vision, the strategy places
the military, for the first time since the end of military
rule in 1985, into a prominent place on the national agenda
and strengthens its case for increased resources. Comments
on the strategy,s provisions for the Brazilian military will
be reported septel. END SUMMARY AND INTRODUCTION.
¶2. (SBU) On September 7 (Brazilian Independence Day) 2007,
President Lula tasked Minister for Strategic Planning
Roberto Mangabeira Unger to produce a National Defense
Strategy paper within one year. Although Unger announced he
had completed work on September 7, 2008, the new strategy was
not signed by President Lula and published until December 18,
reportedly because of concerns from the armed services that
their inputs were not incorporated. The resulting document
clearly includes many service priorities, especially in the
area of equipment modernization, but the main focus of the
document is less to outline future roles and structures for
the military than to provide a context for the role of the
defense sector in the Brazilian state. The Defense Strategy
is available online via the MOD website:
www.defesa.gov.br/eventos temporarios/2008
/estrategia defesa nacional.pdf in Portuguese. An English
version will be transmitted to Washington agencies when
available.
¶3. (C) The Defense Strategy as approved by the government
and signed by the President reflects the government,s
overall priority: Brazil,s "development" into a modern world
power and sets conditions for the Defense sector,s role in
this development. In creating this strategy for the defense
sector to contribute to development, Unger goes beyond a
normal plan for restructuring the security sector to meet
anticipated challenges and cites two other "axes" for work:
strengthening defense industry and maintaining required
military service in the context of a national service
obligation. In the three main areas of the strategy
(military reform, defense industry and national service), the
document underlines the importance of acquiring control of
the latest technology and of enhancing the role of the
central government.
INDEPENDENCE
------------
¶4. (C) The strategy for defense and development is built
around the concept of "independence." In the government,s
vision, Brazil should be able to control its own security and
not have to go outside its own borders in order to equip its
security forces. The strategy allows for "strategic
partners," but these are seen as countries willing to
transfer to Brazil technologies that will make Brazil more
independent, not as collaborators in security operations.
Similarly, where Brazil currently does not have the
capability to produce defense equipment, it should, according
BRASILIA 00000034 002.2 OF 005
the document, seek to purchase the appropriate articles from
foreign suppliers, but with the aim of allowing for domestic
production. This point is clearly illustrated by the
prescriptive language on acquisition of modern fighter
aircraft which rejects the "extreme solution" of simply
buying foreign-made planes and calls for the Air Force to
either 1) purchase aircraft of which Brazil can then produce
its own upgraded variant, or 2) purchase a minimal number of
foreign planes which then can be augmented by domestic
production of the same model. COMMENT: Given the relatively
small number of aircraft to be ultimately acquired by the Air
Force, neither option makes economic sense, but Unger places
a greater importance on "independence" than military
capability or efficient use of resources. END COMMENT.
¶5. (C) The strategy also repeatedly cites three sectors as
being of critical importance for the independent development
of the Brazilian state: space, cybernetics and nuclear,
calling for Brazil to "control" these technologies. The
strategy calls for enhanced Brazilian space launch capacity,
satellite monitoring and surveillance and for Brazil to
deploy its own GPS-type system. Cybernetics is listed as
important for communications and information processing.
Although, the strategy document acknowledges that as a member
of the Nonproliferation Treaty (NPT), Brazil will not have
nuclear weapons, it then states that for this reason, Brazil
must therefore pursue nuclear power development as an element
of security that is important for Brazil,s development.
This stated connection to defense of the country serves as
justification for inclusion of nuclear power as a strategic
industry, albeit one whose importance is more relevant to
development than security. (NOTE: Nuclear energy is, in
fact, one of the strategic industries enumerated in GOB,s
latest Industrial Policy, published in May - see ref c. The
other Industrial Policy strategic sectors are defense
industry, information technology, nanotechnology,
biotechnology, and healthcare industry.)
MILITARY RESTRUCTURING
----------------------
¶6. (C) The heart of the defense strategy is its plan for
the restructuring of the Brazilian military. Specific
comments on plans for each service and the Ministry of
Defense (MOD) will be reported septel. Much of the
restructuring strategy was contributed by the services and
provides practical answers to key strategic questions about
how Brazil will see to its own security over the next
generation. Among the conclusions are that Brazil must focus
on the three key areas of monitoring/controlling large areas,
strategic mobility and military presence to provide security.
These areas contribute to the services, requirements for
airlift, better communications, satellite reconnaissance and
maritime domain awareness. The strategy notes the necessity
of developing better joint service cooperation and the
capabilities to conduct joint operations and the need for a
professional civil service component in the Defense Ministry.
There is also a clear understanding that a country with
pretensions to world power status will be asked to make
greater contributions to United Nations peacekeeping
operations. (Brazil currently ranks just below Uruguay in
regional UNPKO participation.) The strategy therefore
recognizes that as Brazilian capabilities increase, so should
peacekeeping deployments.
DEFENSE INDUSTRY
----------------
¶7. (SBU) The strategy paper,s most important goal for
defense industry is to use the need to modernize the armed
forces to acquire new technologies with applications for
national development. To do so, the Government of Brazil is
encouraged to offer tax incentives and legal benefits to
these industries (tax and financing benefits are already
provided under the May 2008 Industrial Policy). Unger also
clearly states that commercial considerations, i.e. increased
trade, must be considered subordinate to the country,s
"strategic interest." Therefore, efficient use of resources
and deployment of effective military capabilities are less
important than stimulating domestic defense industries which
are optimistically viewed as having future export potential.
According to the strategy, industrial partnerships with
non-Brazilian entities are advantageous as a means to reduce
BRASILIA 00000034 003.2 OF 005
dependence on foreign purchase -- when the main role in the
partnership is played by the Brazilian side.
¶8. (SBU) In exchange for support for the growth of defense
industries, the strategy proposes that the central government
gain "special powers" over such industries, including through
so-called "golden share" arrangements - government vetoes
over designated corporate actions. Several press reports
carried the story that the MOD would be seeking special taxes
on private businesses that are perceived as benefiting from
security (e.g. Petrobras) to pay the costs of their defense,
but such a proposal is not included in the final document.
NATIONAL SERVICE
----------------
¶9. (C) The strategy states that "the basis of national
defense is the identification of the nation with the armed
forces and the armed forces with the nation." For this
reason, mandatory military service is viewed as essential for
the future. The strategy states explicitly that the armed
forces must "limit and reverse the tendency to lower the
proportion of draftees and raise the proportion of
professionals." Consistent with the overall goal of
encouraging the Brazilian government,s vision of national
development, military service is viewed primarily as a means
of unifying the population and fostering greater social
equality. The strategy document states specifically that its
objectives include forcing higher socio-economic classes to
provide a larger proportion of military draftees and opening
more places in military academies to students from more
diverse backgrounds.
¶10. (C) The means by which the strategy plans to
democratize the armed forces will be a new form of national
service. All young people will have to be available to the
military which would be able to select the best qualified as
its recruits. Everyone else would go into a "civil service"
which would receive basic military training and be available
for mobilization in the case of a national emergency of some
sort. The strategy does not, however, provide any
information as to what sort of national emergency would
require the mobilization of potentially millions of poorly
trained young Brazilians or how the basic training of about
three million civil service members per year will be managed
by the limited number of military professionals available.
REGIONAL FOCUS
--------------
¶11. (C) One of the most notable elements of the strategy
has been the focus on the defense of the Amazon region.
While the document notes that this region faces ongoing
security challenges from uncontrolled borders and potential
instability in neighboring states, it also indulges in the
traditional Brazilian paranoia concerning the activities of
non-governmental organizations and other shadowy foreign
forces that are popularly perceived as potential threats to
Brazil,s sovereignty. The strategy calls for greater use of
mobility and monitoring technology to improve security in the
Amazon region and for the shifting of forces north as needed
to improve security there.
¶12. (C) The strategy also calls for improved defense
relations with other South American states, especially
through the development of the South American Defense
Council, although it notes that a main purpose of the council
will be to enhance Brazil,s defense industrial base through
exports to its neighbors. The strategy concedes that Brazil
will require greater capacity for participation in
international peacekeeping, although increasing Brazil,s
deployments should be linked to restructuring of
international organizations to give developing countries more
important roles in their leadership.
COMMENTS
--------
¶13. (C) The first sentence of the strategy portion of the
document reads: "National defense strategy is inseparable
from national development strategy." This point is key for
understanding the document,s purpose and why it was tasked
to the Ministry of Strategic Planning and not the Defense
Ministry. Not a defense strategy per se, the strategy is a
BRASILIA 00000034 004.2 OF 005
set of ideas for how Brazil,s military, defense industry and
national service can contribute to the goal of development.
Nowhere in the strategy is the goal of development defined,
but it seems to point toward a generally understood vision of
Brazil as a major world power (with a UN Security Council
seat), with strong state institutions and without threats to
its security -- a situation described as "Brazil,s proper
place." By linking reform of the security sector with the
government,s broader development vision, the strategy places
the military, for the first time since the end of military
rule in 1985, into a prominent place on the national agenda
and strengthens its case for increased resources.
¶14. (C) While the restructuring plans generally are
consistent with the goal of a modern, more capable military,
(leaving aside such politically popular white elephants as a
nuclear powered submarine), the strategy document is silent
on how resources will be found to cover the costs of
expensive new hardware including aircraft carriers, satellite
constellations and fighter production. Even ballpark
estimates by embassy staff of possible modernization costs
are far in excess of current defense budgets. The defense
strategy as a whole is in some measure designed to address
this question by linking defense to overall development
goals, but it is likely that defense expenditures will not be
increased to the degree required to fulfill the shorter term
goal of equipping the armed forces with cutting edge
technology produced in Brazil.
¶15. (C) The other two "axes," defense industry and national
service, have less to do with improving the military than
with integrating national security with national development.
Some of the specific proposals in these areas (e.g.,
propping up inefficient industries, increasing conscription)
actually could reduce the effectiveness of the military and
divert resources from modernization. The emphasis on
societal benefits over professionalism in military service is
consistent with the views of a President and other government
leaders who started in politics under the military government
of the 1970s and 80s and want to ensure that the military,s
capacity to become involved in politics remains
circumscribed. The socialist background of Lula,s Workers,
Party is clearly evident in the efforts at social engineering
through mandatory national service at the cost of more
effective defense.
¶16. (C) Perhaps the most significant Brazilian comment on
the defense strategy has been the lack of comment. Most of
the coverage in the Brazilian press relied on official press
releases, in some cases, for example reporting inaccurately
that the strategy would include the possible taxing of
private business to pay for defense. Other coverage focused
on a few headlines, including the construction of a nuclear
submarine, possible redeployments of forces to the Amazon and
protection of maritime oil fields. This may have been, in
part, a reflection of the timing of the release as most
Brazilians were heading away for the holidays. Embassy
contacts do not seem to have read the document and regard it
as a summation of already-known government views on defense.
The document,s legal status is also unclear. By signing,
President Lula seems to have adopted it as national policy,
but as many of the recommendations are non-concrete and would
require further action to develop, it remains to be seen how
much will be implemented. While Lula seems to pay attention
to what Unger has to say, the degree to which the strategy,s
recommendations are implemented will be a good barometer of
the Minister for Strategic Planning,s real influence.
¶17. (C) Even if some of the more grandiose plans (nuclear
submarines, universal military service) are never realized,
there remains a great deal that Brazil can do consistent with
the new defense strategy that will help it develop a more
capable modern military. Focusing on deployability and using
technology to help monitor the northern regions of the
country are the optimal solutions to Brazil,s strategic
problem of controlling a vast, unpopulated territory. These
plans create opportunities for U.S. business to partner with
Brazilian counterparts and for the U.S. armed forces to
engage in increased cooperation as Brazil,s military seeks
to modernize (See ref b). We should, however, expect that
engagement with Brazil will increase only gradually,
BRASILIA 00000034 005.2 OF 005
particularly while the current government is in power. The
strategy document looks at strategic partnerships primarily
in terms of defense trade and technology transfer, but we
should seek to open up the concept to include real security
cooperation in areas of mutual interest. Such cooperation,
however, must be gauged to be consistent with the Brazilian
government,s vision of defense as a means of national
development.
SOBEL