The Foreign Service Journal, June 2011

28 F O R E I G N S E R V I C E J O U R N A L / J U N E 2 0 1 1 necessarily discouraged, on the two questions most important to them: whether the U.S. would endorse Brazil, as it had India, for a perma- nent seat on the U.N. Security Council; and whether there was any prospect of Washington easing the multiple barriers to agricultural im- ports from Brazil, particularly its sugar-based ethanol, which is cheaper and superior to the corn-based American version. Still, both official Brazil and the country’s ordinary citizens were charmed by Pres. Obama and buoyed by the visit, which almost certainly raised America’s standing in the country. The same held true for the president’s other stopovers, where his repeated call for equal partnerships with the countries of the hemisphere was well received. But many Latin Americans remain skeptical about the U.S. readiness for partnership, so it is clear that Washington still has a lot of work to do to show it can be a reliable partner and ally. Long Memories It will certainly not be easy for Washington and Brasilia to build a more cooperative and trusting relationship. In the past few years, the two governments have openly clashed over many issues as Brazil vigorously pursued an increasingly ambitious international role. Despite a large reservoir of genuine good will, the situation could worsen in the coming period — regardless of how adroitly and carefully Dilma and her advisers manage Brazil’s foreign policy, or the care with which the Obama administration conducts U.S. diplomacy. For the foreseeable future, it is almost inevitable that Brazil and the U.S. will continue to bump up against one another, both in the hemisphere and worldwide. Both na- tions are deeply engaged in global affairs, but pursue poli- cies and agendas that reflect divergent interests, priorities and approaches. They will not always be able to find com- mon ground or keep their disagreements in check. So in most respects, the U.S.-Brazil relationship will involve both conflict and cooperation — just like U.S. ties with other powerful nations. Brazil’s progressively more assertive role in Latin Amer- ica has led to a variety of squabbles. It surprised and irri- tated Washington with its intense opposition to a new U.S.-Colombia security pact. By subsequently concluding its own, albeit far more modest, military accord withWash- ington, Brazil demonstrated a wel- come flexibility. But it left no doubt that it expected the United States to consult and get its agreement be- fore embarking on any new security initiatives in South America — a position endorsed by every other nation on the continent. The country also crossed swords withWashington in Honduras, where a military coup some two years ago produced a still-unresolved political crisis. Unlike the U.S. and many Latin American governments, Brasilia has refused to accept the results of the November 2009 Honduran presidential elections. That disagreement has caused a divisive standoff in hemispheric relations. The U.S. and Brazil are on opposite sides of the Cuba issue, as well. Washington stands alone in its diplomatic and economic isolation of Havana, while every Latin American capital has normal relations with the island. Brazil and the U.S. also clashed in 2009 over the condi- tions under which the Cuban government could be read- mitted to the Organization of American States. But while they will surely continue to collide on many hemispheric questions, Brazil and the U.S. have also demonstrated their capacity to cooperate in regional af- fairs. As noted above, Brasilia recently reached a frame- work security agreement with Washington. The U.S. has appreciated Brazil’s lead role in peacekeeping efforts in Haiti since 2004, and the two countries worked closely on humanitarian relief following that country’s devastating January 2010 earthquake. Although the two governments have dealt very differ- ently with the challenge Venezuelan President Hugo Chávez poses, Brazil has been helpful on occasion in mod- erating his virulent anti-Americanism. Washington has spoken favorably of Brazilian efforts to strengthen the Union of South American Nations, even though a more cohesive and institutionalized UNASUR (as the organiza- tion is known in Spanish) could well diminish U.S. influ- ence in hemispheric affairs. On the World Stage The most serious clashes between the U.S. and Brazil are likely to arise over global, not regional, issues. What has most exasperated Washington and unsettled bilateral relations in recent years is Brasilia’s close, supportive rela- tionship with Iran, including strong and growing economic F O C U S Brazil’s progressively more assertive role in Latin America has led to a variety of squabbles.