O que é este blog?

Este blog trata basicamente de ideias, se possível inteligentes, para pessoas inteligentes. Ele também se ocupa de ideias aplicadas à política, em especial à política econômica. Ele constitui uma tentativa de manter um pensamento crítico e independente sobre livros, sobre questões culturais em geral, focando numa discussão bem informada sobre temas de relações internacionais e de política externa do Brasil. Para meus livros e ensaios ver o website: www.pralmeida.org. Para a maior parte de meus textos, ver minha página na plataforma Academia.edu, link: https://itamaraty.academia.edu/PauloRobertodeAlmeida.

sexta-feira, 29 de março de 2019

Jair Bolsonaro’s Southern Strategy - Jon Lee Anderson (New Yorker)


Se Bolsonaro tivesse uma "estratégia meridional, como argumenta Jon Lee Anderson, da New Yorker, isso representaria um enorme progresso, pois significaria que haveria algo, ainda que minimamente racional, em lugar do caos criado pela famiglia Bolsonaro, com três zeros igualmente caóticos dividindo o trabalho para atrapalhar o governo, um na política externa, outro na interna e um terceiro sabe-se lá com quem exatamente, pois os vínculos com as milícias criminosas é o que foi reportado pela imprensa.
Ou seja, ainda falta um enorme progresso para que se chegue a um arremedo de estratégia.
Por enquanto, o que se tem é um "esquecimento" providencial de coisas do passado, das quais se encarregou de lembrar Jon Lee: “I would prefer that my son die in an accident than show up with some guy with a mustache.” 
Mas Anderson também parece minimizar a gigantesca corrupção do regime lulopetista: 
[Lula's] administration did little to diminish Brazil’s tradition of corruption, and not enough to reduce crime or develop industry,...". 
De fato, Lula foi o maior mafioso quadrilheiro de toda a história do Brasil, o maior ladrão do hemisfério, um psicopata megalomaníaco.
Paulo Roberto de Almeida

The New Yorker, April 1, 2019 Issue
Jair Bolsonaro’s Southern Strategy
In Brazil, a budding authoritarian borrows from the Trump playbook.

Jair Bolsonaro promises prosperity and order. His critics fear tyranny.


 Illustration by Bráulio Amado; photograph by Simon Dawson / Bloomberg / Getty

The authoritarian leaders taking power around the world share a vocabulary of intolerance, insult, and menace. Jair Bolsonaro, who was elected President of Brazil on promises to end crime, right the economy, and “make Brazil great,” has spent his career gleefully offending women, black people, environmentalists, and gays. “I would be incapable of loving a homosexual son,” he has said. “I would prefer that my son die in an accident than show up with some guy with a mustache.” As a national legislator, he declared one political rival, Maria do Rosário, “not worth raping.” Immigrants are “scum.” The United Nations is “a bunch of communists.” He supports the torture of drug dealers, the use of firing squads, and the empowerment of a hyper-aggressive police force. “A policeman who doesn’t kill,” he has said, “isn’t a policeman.”
On New Year’s Day, Bolsonaro was inaugurated in the capital city of Brasília. Standing in the back of a Rolls-Royce Silver Wraith convertible, he waved at crowds of supporters, and they shouted back, “The captain has arrived!” “The legend!” Bodyguards trotted alongside the car, flanked by uniformed cavalrymen on elegant white horses. Bolsonaro is sixty-four, tall and slim, with sharply parted dark hair and heroically bushy eyebrows. His third wife, Michelle, stood next to him, waving at the masses.
After the inaugural ceremony, Bolsonaro gave a speech outside Planalto, the Presidential palace; huge video screens magnified his image for tens of thousands of supporters. Many wore Brazilian flags draped over their shoulders and T-shirts featuring the outline of Bolsonaro’s face, in the style of the movie poster for “The Godfather.” At the ceremony, Bolsonaro had spoken broadly of the need to “unite the people.” Now, addressing his most fervent supporters, he could relax. He said that he had come to free them from the scourge of socialism—an allusion to his left-leaning predecessors Luiz Inácio Lula da Silva and Dilma Rousseff, who had governed from 2003 to 2016. “Our flag will never be red,” he said. “It will be red only if we need to bleed over it.” The crowd took up a chant: “Never red!”
A former Army captain, Bolsonaro served seven undistinguished terms in the Chamber of Deputies, Brazil’s highest legislative body, representing four different political parties. Over twenty-seven years, he delivered some fifteen hundred speeches and introduced more than a hundred and fifty bills, but only two passed—one exempting computer equipment from taxation and another approving a controversial cancer drug. Mostly, he spoke on behalf of the armed forces, even calling for a restoration of the repressive military dictatorship that governed Brazil from 1964 to 1985. In one interview, he discounted the idea that democracy could bring order and prosperity: “You’ll only change things by having a civil war and doing the work the military regime didn’t do. . . . If a few innocent people die, that’s all right.”
Like many autocrats, Bolsonaro came to power with a suddenness that alarmed the élites. He had run a low-budget campaign, consisting mostly of a social-media effort overseen by his son Carlos. At events with supporters, he posed for selfies making a gesture as if he were shooting a machine gun. He promised to “reconstruct the country”—and to return power to a political right that had been in eclipse for decades. In the inaugural ceremony, he vowed to “rescue the family, respect religions and our Judeo-Christian tradition, combat gender ideology, conserving our values.”
Afterward, Bolsonaro received a procession of foreign dignitaries, and as they stepped up to pay their respects the crowd greeted them with cheers or boos. The Hungarian autocrat Viktor Orbán got perfunctory applause; the bolsonaristas seemed not to know who he was. The Israeli Prime Minister, Benjamin Netanyahu, who is fending off charges of fraud and bribery, got a riotous cheer. Bolivia’s President, Evo Morales, the only left-wing leader to attend, was subjected to shouts of “Get out, communist,” and “índio de merda”—“fucking Indian.”
Despite Bolsonaro’s divisive rhetoric, American conservatives were enthusiastic about his Presidency. He had expressed leeriness of China and hostility toward socialists in Cuba and Venezuela; he promised to move Brazil’s Embassy in Israel from Tel Aviv to Jerusalem. Donald Trump didn’t attend the inauguration, but he tweeted his solidarity: “The USA is with you!” Bolsonaro, who sees in Trump a kindred spirit and an opportunity, tweeted back, “Together, under God’s protection, we shall bring prosperity and progress to our people!”
Brasília, built in the late nineteen-fifties, is a city of immense spaces, with sweeping lawns and public buildings in curvilinear shapes—a “Jetsons”-era vision of optimism for the future. As the seat of government, it is home to tens of thousands of middle-class bureaucrats and their families. It is also a place where destitute people camp out in improvised shelters alongside highways and use grand fountains to wash their laundry. The country’s population, two hundred and nine million people, is bitterly polarized. Violent crime is endemic. In 2017, nearly sixty-four thousand Brazilians were murdered, an average of about a hundred and seventy-five every day. The economy, after several years of devastating recession, is virtually stagnant. Twenty-five per cent of the population lives below the poverty line of five dollars and fifty cents a day.
A decade ago, Brazil was prospering, amid a boom in oil and other commodities. Luiz Inácio Lula da Silva, the President at the time, was a charismatic leftist; the son of farmworkers, he had gone from shoeshine boy to steelworker and union leader before taking office, in 2003. Lula was popular, and his Workers’ Party (known by its Portuguese initials, P.T.) instituted generous domestic programs. His administration did little to diminish Brazil’s tradition of corruption, and not enough to reduce crime or develop industry, but, as long as commodities prices stayed high, the economy thrived. In 2005, his government finished paying off a fifteen-billion-dollar loan to the International Monetary Fund, a year ahead of schedule.
In 2010, Lula stepped aside, having reached the legal limit of two consecutive terms, and his protégée Dilma Rousseff—a leftist guerrilla in her youth—became Brazil’s first female President. But commodities prices were slipping, and in her second term a corruption scandal exploded around the state-run oil company, Petrobras. Brazilians came to the streets to protest, and Rousseff’s political rivals sensed an opportunity. In 2016, they began hearings to impeach her, on charges of improperly using loans from state banks to obscure a budget deficit. Rousseff’s supporters complained of hypocrisy, noting that many members of the Brazilian legislature had been indicted for crimes ranging from bribery and money laundering to kidnapping and slavery. (The legislator who led the impeachment effort, Eduardo Cunha, was subsequently convicted of taking forty million dollars in bribes.) But the bid to remove Rousseff worked. It also helped draw attention to Bolsonaro. During the proceedings, he dedicated his vote to Carlos Brillhante Ustra, who had commanded the military unit that captured and tortured Rousseff when she was a young guerrilla.
For Brazilians watching the news in recent years, the country can appear to be perilously in decline. An enormous scandal—called Operação Lava Jato, or “Operation Car Wash”—seems to involve every third official in the government. Two dams have collapsed at mine sites in the countryside, releasing millions of gallons of waste. Last September, an accidental fire broke out at the two-hundred-year-old National Museum, destroying an irreplaceable ethnographic collection. “The country is overwhelmed by a terrible feeling that we have failed as a nation,” Gunter Axt, a Brazilian historian, told me. “And perhaps it is true.”
When Bolsonaro won his party’s nomination, in July, 2018, he seemed to offer a total inversion of political power and ideology. The military, despite a constitutional mandate to stay out of politics, backed him openly, as did a raft of wealthy business interests. His strongest competitor, Lula, was sidelined;Sérgio Moro, the judge who oversaw the Car Wash trials, had sentenced him to twelve years in prison, on charges of corruption and money laundering. Still, Lula retained a large lead in the polls, and he appealed to the Supreme Court to allow him to remain free so that he could run in the election. The appeal was denied, a few days after the commander of the Brazilian Army suggested on Twitter that the armed forces wanted him in jail. This February, Lula, who is seventy-three, was given an additional thirteen-year sentence. Moro is now Bolsonaro’s minister of justice.
Bolsonaro’s Vice-President, Hamilton Mourão, told me that his boss’s greatest virtue was his humble roots. “People have to understand, he comes from one of the poorest parts of São Paulo state,” he said. “He is a self-made man. He understands the problems of poor people, and he says what they want to hear.” Bolsonaro is often compared with Trump, but Mourão disputed the analogy. “Trump has always had a lot of money,” he said. “Bolsonaro was never rich. But both came in the moments that their countries needed them.”
Bolsonaro grew up in Eldorado, a sleepy town in Brazil’s “banana heartland,” south of São Paulo. His parents, who were of Italian and German descent, moved there when he was a boy, and his father, an itinerant dentist, set up a practice. One of six children—several of whom have never left Eldorado—Bolsonaro did not get along with his father, whom he has described as a heavy drinker who inspired discord in the family. He has claimed, perhaps straining credulity, that he did not speak to his father until he was twenty-eight, at which point he stopped hoping for him to change and decided to buy him a drink; after that they became “good friends.”
In 1970, during the first decade of military rule, a Brazilian Army unit descended on Eldorado in pursuit of Carlos Lamarca, an officer who had gone rogue and joined a Marxist guerrilla group. As the soldiers ransacked houses and searched the woods for hideouts, Bolsonaro, who was fifteen, was enthralled; he offered to help them in their search.
Three years later, Bolsonaro was accepted into the Army’s cadet corps, and he soon transferred to the élite Agulhas Negras (Black Needles) Military Academy. While he was training, Brazil’s Army was engaged in a vicious campaign to eliminate leftists. Thousands of Brazilians were detained in secret torture centers, and more than four hundred were killed, their bodies disappeared. Bolsonaro apparently played no part in the repression, but he hasn’t condemned it. He has said of the military regime that its “biggest mistake was to torture and not kill.”
In 1985, Brazil returned to democratic rule, and the military returned to its barracks. Soon afterward, Bolsonaro wrote an unauthorized magazine article in which he complained about the military hierarchy and argued for increased wages for the troops. His superiors imprisoned him for two weeks, for creating an “environment of unrest.” A year later, he faced a more serious charge: as part of his campaign to increase wages, he had conspired to put pressure on commanders by setting off grenades at military garrisons around Rio. Although he proclaimed his innocence, investigators found sketches for the bombing plan drawn in his hand. Bolsonaro was found guilty by a disciplinary committee but cleared in the Superior Military Court, where a majority of judges decided that there was insufficient evidence; he was allowed to enter the reserves as a captain, with a full pension. There were reports that Bolsonaro had been treated favorably, to prevent unrest in the lower ranks—although several judges chided him for being “consumed by vanity.”
Around that time, Bolsonaro won a seat on Rio’s city council, representing the Christian Democratic Party. In 1990, he was elected to the Chamber of Deputies, where he became known for intemperate behavior, registering more disciplinary proceedings than any of his peers. In 2003, he grew violent during a dispute with the legislator Maria do Rosário, twice shoving her roughly in the chest. When she protested, he said that she was a “slut” and told her to “go cry.” In 2014, he called out to Rosário during a congressional session, crudely reminding her of the incident. Bolsonaro was fined twenty-five hundred dollars for having “offended his colleague’s honor.”
During Bolsonaro’s Presidential campaign, women protested his candidacy, under the slogan #NotHim. Nevertheless, he got more than half the female vote. When he was denounced, it often seemed only to strengthen his support. Last September, a month before the first round of voting, he visited the provincial city of Juiz de Fora. He was relaxed, wearing jeans and a T-shirt, as his supporters carried him through the streets on their shoulders. Suddenly, a man carrying a knife concealed in a plastic bag lurched forward and stabbed him in the stomach. The attack nearly killed Bolsonaro; his liver, lung, and intestines were punctured, and he lost a great deal of blood. But it gave him a clear bounce in the polls. On October 7th, he won forty-six per cent of the vote. His nearest opponent—Fernando Haddad, called in at the last minute to replace the imprisoned Lula—got twenty-nine per cent. In the second round, Bolsonaro beat Haddad again, and he began to speak of the attack in providential terms. At his inauguration, he thanked God for saving him so that he could “carry out the honorable mission of governing Brazil.”
In late November, Bolsonaro appeared at an anniversary celebration for Brazil’s Paratrooper Infantry Brigade, from which he graduated, in 1977. The Brigade is stationed inside the Military Village, a fastidiously maintained complex on the run-down outskirts of Rio de Janeiro. When Bolsonaro arrived, in a procession of black S.U.V.s, officers in camouflage swarmed around, greeting him with salutes and affectionate hugs. Bolsonaro stood at the podium, watching with satisfaction, as parachutists jumped from planes and descended onto a wide lawn.
Later, Bolsonaro spoke to a group of reporters, who seemed unfazed by the habitual abuse that he directed at them. One asked about rumors that he was using a colostomy bag after the assault, and that he would have to undergo more surgery. He said yes, with a disdainful look. Asked whether his son Carlos might join his administration, Bolsonaro replied defensively: “My children are still with me, without any problem. He can have a place in the government if he so desires.”
Bolsonaro’s three sons from his first marriage, who are in their mid-thirties, are a central part of his political team. He calls them Zero One, Zero Two, and Zero Three. Flávio, the eldest, won a seat in the Senate last year. Carlos, who helped run his father’s campaign, is an alderman in the Rio city council. Eduardo, the youngest, is possibly the most extreme of the brothers. In the impeachment proceedings against Rousseff, he stood behind his father, mouthing along with his words as he cast his vote in the name of her torturer. A former federal policeman, Eduardo recently joined Steve Bannon’s far-right organization, the Movement, as its Latin America representative. (Bolsonaro also has a fourth son, Renan, a law student, from his second marriage, and a young daughter, Laura, with his current wife.)
Bolsonaro’s administration is heavily stocked with military leaders; eight of the twenty-two cabinet positions are filled by ex-generals. His ideas are informed by Olavo de Carvalho, a philosopher and a former astrologer who has attracted a following with eccentric interpretations of works by Machiavelli, Descartes, and others. Carvalho, seventy-one, lives in Richmond, Virginia, where he identifies with American “redneck” culture by hunting bears, smoking cigarettes, and drinking. Two current cabinet ministers were appointed on his recommendation: the education minister, Ricardo Vélez Rodríguez, a conservative theologian; and the foreign minister, Ernesto Araújo. Both subscribe to Carvalho’s notions that “cultural Marxism” has contaminated Western society and that climate change is a Marxist plot. Carvalho lends a patina of intellectualism to Bolsonaro’s proposals; recently Carvalho told an interviewer that Brazil’s problem with violent crime might have been averted if the military regime had killed the right twenty thousand people.
Much of Bolsonaro’s political support comes from agribusiness, the arms industry, and the religious right, a nexus of power referred to as the Three “B”s—beef, bullets, and Bibles. In Brasília, I met with Alberto Fraga, one of his oldest friends and a close political ally, who headed the “bullet bloc” in congress for two decades, until a recent conviction on bribery charges. (Fraga is appealing the decision.) In office, Bolsonaro had moved quickly to loosen gun laws, and Fraga, who was a police officer for twenty-eight years, was pleased that more people would be able to own weapons. (It was also good for business; the stock value of Taurus, Brazil’s largest gun manufacturer, has doubled since Bolsonaro secured his party’s nomination.) “Guns don’t increase crime,” Fraga said. “Public policies do.” He had forty-eight guns himself, he told me, shrugging: “I like them.”
Bolsonaro posits authoritarian violence as the way to solve Brazil’s crime problem. In one television interview, he said that officers who kill dozens of troublemakers “need to be decorated, not prosecuted.” His allies, like Trump’s, at least feign exasperation at their leader’s rhetorical excesses. Fraga told me, “I think that’s just him talking. We need to get him to control that.” But these sorts of views are common among his loyalists. The newly elected governor of Rio de Janeiro state recently initiated a “shoot to kill” policy against armed criminals and recommended that police helicopters patrolling the favelas carry snipers to “slaughter” anyone openly carrying a weapon. In February, police officers in the Fallet-Fogueteiro favela killed thirteen young men, most of whom were reportedly executed after they had surrendered.
Bolsonaro’s programs risk giving greater license to a police force that is famously violent and corrupt. For years, Marielle Franco, a popular left-wing city councilwoman, spoke out against extrajudicial killings by police officers in the city’s favelas. In March, 2018, Franco, an openly bisexual black woman, was killed in downtown Rio.
One afternoon, I visited Marcelo Freixo, a fifty-one-year-old congressman from Franco’s party, who has spent years investigating Rio’s milícias—paramilitary groups, linked to the police, that compete for territory with criminal gangs in the favelas. Because he has received many death threats, he lives in a closely guarded building, next to an Army base, and travels with armed guards provided by the state. He told me that he believed Franco was killed by former members of the police’s Élite Squad, working for a group of hit men known as the Crime Bureau. “Her assassination was the most sophisticated in the history of modern Rio,” he said. Franco was tracked by men driving a car with a cloned license plate, and killed with four precise shots to the head; the weapon was a submachine gun often used by Rio’s military police. Freixo surmised that her killers were hired by rival politicians. “You can’t understand Rio unless you understand the organized crime here,” he said. “Naples has nothing on us. It’s not a parallel state—it is the state.”
Franco’s killing has led to one of the Bolsonaro administration’s biggest scandals, as the Brazilian press has noted links between suspects and the President’s family. Flávio served in the state legislature alongside Franco, and the two sometimes clashed. Like his father, he has argued to legalize the milícias, in the hope of putting pressure on drug-trafficking gangs. In January, it was revealed that Flávio had employed the wife and the mother of Adriano Magalhães da Nóbrega, a former policeman who was now the leader of the Crime Bureau. Nóbrega was wanted in connection with the killing, but he had fled before he could be detained. As an investigation began, Flávio persuaded a friendly judge to have it quashed, but another judge reversed the ruling, and the inquiry has continued. Flávio maintains that he has “nothing to hide,” and Jair Bolsonaro says that he believes his son—though he has promised to let justice take its course. Steve Bannon dismissed the case as politically motivated—a witch hunt. The forces of “cultural Marxism,” he said, had attacked the Bolsonaros, who were “extraordinary people.”
The investigation has produced no conclusions, but there has been some political fallout. Jean Wyllys, one of the country’s three openly gay lawmakers, was on a trip abroad when the news broke about Flávio’s connection with the Crime Bureau. Wyllys, a friend and political ally of Franco’s, announced that he would not return to Brazil; he did not want to choose between living with bodyguards and risking death. Wyllys was an antagonist of Bolsonaro’s. When Bolsonaro cast his vote during Rousseff’s impeachment, Wyllys spat at him. After Wyllys announced that he was not returning, Bolsonaro tweeted, “Great Day!” with a thumbs-up emoji. Freixo, from his apartment in Rio, shot back: “How about you start behaving like President of the Republic and stop acting like a brat? Show some dignity.”
On the left, the new administration has inspired fears that the country is “going back to 1964,” the year that the military seized power. But some liberals have strained to understand the new order on its own terms. One of the most visible is Fernando Gabeira, a founder of Brazil’s Green Party who is legendary for his involvement in a Marxist guerrilla group that, in 1969, kidnapped the American Ambassador to Brazil. In the eighties, Gabeira gained additional celebrity by posing for seaside photographs wearing only a crocheted bikini bottom.
Gabeira is now seventy-eight. A lean man with silver hair and rimless glasses, he lives in an apartment near Ipanema Beach. Working as a television interviewer, he spoke with Bolsonaro supporters during the campaign, trying to understand their motivations. Gabeira told me that he saw Bolsonaro’s victory as a reaction to the “moral collapse” of the left, owing to the P.T.’s corruption scandals. In his view, “the left is finished unless it deals with its failings and engages in self-criticism.” Many leftists evidently believe that the criticism is better applied elsewhere; after Gabeira had a friendly exchange with Bolsonaro on the air, he was accused of “normalizing barbarism.”
Brazil, particularly in the countryside, is a traditionalist, Catholic country, and at times the urban left has made it easy for Bolsonaro to score points. In Rio, a woman who works as a literary translator told me about a fracas in her son’s public high school. Last year, amid a debate on gender identity, the chancellor decreed that the female school uniform was valid for both sexes, and some male students and teachers began wearing skirts to class. Conservative parents were furious. “You can just imagine,” she said. The school had also hosted a commemoration of China’s bloody Cultural Revolution, with activities that uncritically celebrated Mao’s “achievements.” Worst of all, the teachers belonged to a communist-linked union, and often went on strike, sometimes for months. A parents’ group was formed to get the children back into the classroom, with little success. “The Maoist and gay stuff was crazy, but we were able to deal with it,” she said. “We couldn’t get the union to budge.” She laughed bitterly and held open her hands. “And so now we have the fascists.”
In situations like these, Bolsonaro has deftly exploited conservative resentments. Under Rousseff, the government offended traditionalists by legalizing same-sex marriage and designing materials for schools to combat homophobia. During the Presidential race, Bolsonaro repeatedly told crowds that the P.T. had tried to introduce a “gay kit” to their children. A rash of messages linked to his campaign arrived on voters’ phones, accusing P.T. candidates of endorsing pedophilia.
For gay Brazilians, these actions intensified a sense of siege. There has been an alarming increase in homophobic attacks. Brazil already had the world’s highest levels of lethal violence against L.G.B.T.Q. people, with four hundred and forty-five murders reported in 2017. During the Presidential election, some fifty attacks took place that were directly linked to Bolsonaro’s supporters; among them were at least two incidents in which trans women were killed by men who invoked his name.

A destruição da diplomacia, nos EUA e no Brasil - William J. Burns, Paulo Roberto de Almeida


O livro do diplomata Bill Burns, The Back Channel: a memoir of American Diplomacy and the case for its renewall,  é oportuno, e ele pergunta se a diplomacia americana, ou seja, o Departamento de Estado, pode ser salva. Sim, porque aquele presidente acidental está empenhado em destruir tudo o que os diplomatas americanos criaram desde 1944, ou seja, desde Bretton Woods. 
Aqui no Brasil, temos um problema quase similar: pode o Itamaraty ser salvo, em face do empenho conjunto de olavistas e bolsonaristas em destruir a diplomacia brasileira, tal como a conhecemos?
Perguntas cruciais. Os problemas do DOS e do Itamaraty são similares mas não semelhantes. Com medíocres no comando do processo, tanto na instituição própria, como ao lado e mais acima, parece que profundas transformações, para pior, vão prevalecer.
Minha função, similar a de Bill Burns, mas não semelhante, é a de tentar salvar o que pode ser salvo. Apenas pela denúncia, claro, e pelo ridículo...

Paulo Roberto de Almeida

Can the State Department Be Saved?
By William J. Burns

Foreign Affairs, March 2019

Diplomacy may be one of the world’s oldest professions, but it’s also one of the most misunderstood. It’s mostly a quiet endeavor, less swaggering than unrelenting, oftentimes operating in back channels, out of sight and out of mind. U.S. President Donald Trump’s disdain for professional diplomacy and its practitioners—along with his penchant for improvisational flirtations with authoritarian leaders such as North Korea’s Kim Jong Un—has put an unaccustomed spotlight on the profession. It has also underscored the significance of its renewal.
The neglect and distortion of American diplomacy is not a purely Trumpian invention. It has been an episodic feature of the United States’ approach to the world since the end of the Cold War. The Trump administration, however, has made the problem infinitely worse. There is never a good time for diplomatic malpractice, but the administration’s unilateral diplomatic disarmament is spectacularly mistimed, unfolding precisely at a moment when American diplomacy matters more than ever to American interests. The United States is no longer the only big kid on the geopolitical block, and no longer able get everything it wants on its own, or by force alone.
Although the era of singular U.S. dominance on the world stage is over, the United States still has a better hand to play than any of its rivals. The country has a window of opportunity to lock in its role as the world’s pivotal power, the one best placed to shape a changing international landscape before others shape it first. If the United States is to seize that opportunity and safeguard its interests and values, it will have to rebuild American diplomacy and make it the tool of first resort, backed up by economic and military leverage and the power of example.
ANOTHER ERA
I remember clearly the moment I saw American diplomacy and power at their peak. It was the fall of 1991, and I—less than a decade into my career—was seated behind Secretary of State James Baker at the opening of the Madrid peace conference, a gathering convened by the George H. W. Bush administration in a bid to make progress on the Israeli-Palestinian conflict. Around a huge table in the Spanish royal palace sat a collection of international leaders and, for the first time, representatives of Israel, the Palestinians, and key Arab states. They were united less by a shared conviction about Israeli-Palestinian peace than by a shared respect for U.S. influence. After all, the United States had just triumphed in the Cold War, overseen the reunification of Germany, and handed Saddam Hussein a spectacular defeat in Iraq.
On that day in Madrid, global currents all seemed to run toward a period of prolonged U.S. dominance. The liberal order that the United States had built and led after World War II would, we hoped, draw into its embrace the former Soviet empire, as well as the postcolonial world for which both sides had competed. Russia was flat on its back, China was still turned inward, and the United States and its allies in Europe and Asia faced few regional threats and even fewer economic rivals. Globalization was gathering steam, with the United States taking the lead in promoting greater openness in trade and investment. The promise of the information revolution was tantalizing, as was that of remarkable medical and scientific breakthroughs. The fact that an era of human progress was unfolding only reinforced the sense that the nascent Pax Americana would become permanent.
The triumphalism of that heady era was nevertheless tempered by some sober realizations. As I wrote in a transition memorandum for incoming Secretary of State Warren Christopher at the beginning of 1993, “alongside the globalization of the world economy, the international political system is tilting schizophrenically toward greater fragmentation.” Victory in the Cold War had stimulated a surge of democratic optimism, but “it has not ended history or brought us to the brink of ideological conformity.” Democracies that failed to produce economic and political results would falter. And while it was true that for the first time in half a century, the United States didn’t have a global military adversary, it was “entirely conceivable that a return to authoritarianism in Russia or an aggressively hostile China could revive such a global threat.”
JONATHAN ERNST / REUTERS
U.S. President Barack Obama shakes hands with Cuban President Raul Castro in Panama City, April 2015
The question, then, was not whether the United States should seize the unipolar moment but how and to what end. Should the United States use its unmatched strength to extend its global dominance? Or, rather than unilaterally draw the contours of a new world order, should it lead with diplomacy to shape an order in which old rivals had a place and emerging powers had a stake? Bush and Baker chose the second option, harnessing the United States’ extraordinary leverage to shape the new post–Cold War order. They combined humility, an ambitious sense of the possibilities of American leadership, and diplomatic skill at a moment when their country enjoyed unparalleled influence.
DIPLOMATIC DRIFT
It proved difficult, however, to sustain a steady commitment to diplomacy. Successive secretaries of state and their diplomats worked hard and enjoyed notable successes, but resources grew scarce, and other priorities loomed. Lulled into complacency by a seemingly more benign international landscape, the United States sought to cash in on the post–Cold War peace dividend. It let its diplomatic muscles atrophy. Baker opened a dozen new embassies in the former Soviet Union without asking Congress for more money, and budget pressures during the tenure of Secretary of State Madeleine Albright froze intake into the Foreign Service. Between 1985 and 2000, the U.S. government’s foreign affairs budget shrank by nearly half. Then, shocked by 9/11, Washington emphasized force over diplomacy even more than it already had, and it stumbled into the colossal unforced error of the Iraq war. Officials told themselves they were practicing “coercive diplomacy,” but the result was long on coercion and short on diplomacy.
Early on, the Trump administration inflicted its brand of ideological contempt and stubborn incompetence on the State Department.
Throughout the long wars in Afghanistan and Iraq, U.S. diplomats preoccupied themselves with social engineering and nation building, tasks that were beyond the capacity of the United States (or any other foreign power, for that matter). Stabilization, counterinsurgency, countering violent extremism, and all the other murky concepts that sprang up in this era sometimes distorted the core mission of U.S. diplomacy: to cajole, persuade, browbeat, threaten, and nudge other governments and political leaders so that they pursue policies consistent with U.S. interests. The State Department often seemed to be trying to replicate the role of the nineteenth-century British Colonial Service.
During his two terms in office, President Barack Obama sought to reverse these trends, reasserting the importance of diplomacy in American statecraft. Backed up by economic and military leverage, and the multiplier effect of alliances and coalitions, Obama’s diplomacy produced substantial results, including the opening to Cuba, the Iran nuclear deal, the Trans-Pacific Partnership, and the Paris climate accord.
Even so, the dependence on military instruments proved hard to break. The number of drone strikes and special operations grew exponentially, often highly successful in narrow military terms, but complicating political relationships and inadvertently causing civilian casualties and fueling terrorist recruitment. On the rugged playing fields of Washington’s bureaucratic politics, the State Department too often found itself pushed to the sidelines: assistant secretaries responsible for critical regions would be squeezed out of meetings in the Situation Room, where the back benches were filled with National Security Council staffers. The Obama administration’s commitment to diplomacy was increasingly held hostage to poisonous partisanship at home. Members of Congress waged caustic fights over the State Department’s budget and held grandstanding spectacles, such as the heavily politicized hearings over the attacks that killed four Americans in Benghazi, Libya.
As the Arab Spring turned into an Arab Winter, the United States got sucked back into the Middle Eastern morass, and Obama’s long-term effort to rebalance the country’s strategy and tools fell victim to constant short-term challenges. It became increasingly difficult for the president to escape his inheritance: a burgeoning array of problems much less susceptible to the application of U.S. power in a world in which there was relatively less of that power to apply.
UNILATERAL DIPLOMATIC DISARMAMENT
Then came Trump. He entered office with a powerful conviction, untethered to history, that the United States had been held hostage by the very order it created. The country was Gulliver, and it was past time to break the bonds of the Lilliputians. Alliances were millstones, multilateral arrangements were constraints rather than sources of leverage, and the United Nations and other international bodies were distractions, if not altogether irrelevant. Trump’s “America first” sloganeering stirred a nasty brew of unilateralism, mercantilism, and unreconstructed nationalism. In just two years, his administration has diminished the United States’ influence, hollowed out the power of its ideas, and deepened divisions among its people about the country’s global role.
JONATHAN ERNST / REUTERS
Trump on the phone with Putin in the Oval Office, Washington, DC, January 2017
Turning the enlightened self-interest that animated so much of U.S. foreign policy for 70 years on its head, the Trump administration has used muscular posturing and fact-free assertions to mask a pattern of retreat. In rapid succession, it abandoned the Paris climate accord, the Iran nuclear deal, the Trans-Pacific Partnership, and a slew of other international commitments. There have been glimmers of real possibility, including overdue efforts to get NATO allies to spend more on defense and attempts to improve the terms of trade with rivals such as China. Career diplomats have continued to do impressive work in hard places around the world. But the broader pattern is deeply troubling, with disruption seeming to be its own end and little apparent thought given to what comes after. Taken as a whole, Trump’s approach is more than an impulse; it is a distinct and Hobbesian worldview. But it is far less than anything resembling a strategy.
Early on, the Trump administration inflicted its brand of ideological contempt and stubborn incompetence on the State Department, which it saw as a den of recalcitrants working for the so-called deep state. The White House embraced the biggest budget cuts in the modern history of the department, seeking to slash its funding by one-third. Secretary of State Rex Tillerson reduced the Foreign Service’s intake by well over 50 percent and drove out many of the State Department’s most capable senior and midlevel officers in the course of a terminally flawed “redesign.” Key ambassadorships overseas and senior roles in Washington went unfilled. What were already unacceptably gradual trend lines toward greater gender and racial diversity began moving in reverse. Most pernicious of all was the practice of blacklisting individual officers simply because they worked on controversial issues during the Obama administration, such as the Iran nuclear deal, plunging morale to its lowest level in decades. And Tillerson’s successor, Secretary of State Mike Pompeo, has managed adeptly his relationship with the president but has had less success repairing the structural damage.
Standing alongside Russian President Vladimir Putin at their July 2018 summit in Helsinki, Trump asserted that he was an advocate of “the proud tradition of bold American diplomacy.” But Trump’s view of diplomacy is narcissistic, not institutional. When dictators such as Putin see his compulsive need for attention and flattery, his attacks against his predecessors and his political opponents, and his habit of winging it in high-level encounters, they see weakness and manipulability.
TOOL OF FIRST RESORT
For all the injuries the United States has inflicted on itself in recent years, it still has an opportunity to help shape a new and more durable international order. No longer the dominant player that it was after the Cold War, the United States nevertheless remains the world’s pivotal power. It spends more every year on defense than the next seven countries combined. It has more allies and potential partners than any of its peers or rivals. Its economy, despite risks of overheating and gross inequalities, remains the biggest, most adaptable, and most innovative in the world. Energy, once a vulnerability, now offers considerable advantages, with technology having unlocked vast natural gas resources and advances in clean and renewable energy accelerating. The task now is to use these advantages, and what remains of the historic window of U.S. preeminence, to update the international order to reflect new realities. That, in turn, will require recovering the lost art of diplomacy.
This endeavor must start with reinvesting in the fundamentals of the craft: smart policy judgment, language skills, and a feel for the foreign countries where diplomats serve and the domestic priorities they represent. George Kennan described his fellow diplomats as “gardeners,” painstakingly nurturing partners and possibilities, always alert to the need to weed out problems. Such a prosaic description may not fit well on a recruitment poster, but it still rings true today. Diplomats are translators of the world to Washington and of Washington to the world. They are early warning radars for troubles and opportunities and builders and fixers of relations. All these tasks demand a nuanced grasp of history and culture, a hard-nosed facility in negotiations, and the capacity to translate U.S. interests in ways that allow other governments to see those interests as consistent with their own—or at least in ways that drive home the costs of alternative courses. That will require modestly expanding the Foreign Service so that, like the military, the diplomatic corps can dedicate time and personnel to training, without sacrificing readiness and performance.
Renewing American diplomacy will be impossible without a new domestic compact.
Reaffirming the foundations of American diplomacy is necessary but not sufficient to make it effective for a new and demanding era. The State Department will also have to adapt in ways it never before has, making sure that it is positioned to tackle the consequential tests of tomorrow and not just the policy fads of today. It can begin by taking a cue from the U.S. military’s introspective bent. The Pentagon has long embraced the value of case studies and after-action reports, and it has formalized a culture of professional education. Career diplomats, by contrast, have tended to pride themselves more on their ability to adjust quickly to shifting circumstances than on paying systematic attention to lessons learned and long-term thinking.
As part of a post-Trump reinvention of diplomacy, then, the State Department ought to place a new emphasis on the craft, rediscovering diplomatic history, sharpening negotiation skills, and making the lessons of negotiations—both successful and unsuccessful—accessible to practitioners. That means fully realizing the potential of new initiatives such as the Foreign Service Institute’s Center for the Study of the Conduct of Diplomacy, where diplomats examine recent case studies.
The U.S. government will also have to update its diplomatic capacity when it comes to the issues that matter to twenty-first-century foreign policy—particularly technology, economics, energy, and the climate. My generation and its predecessor had plenty of specialists in nuclear arms control and conventional energy issues; missile throw-weights and oil-pricing mechanisms were not alien concepts. During my last few years in government, however, I spent too much time sitting in meetings on the seventh floor of the State Department and in the White House Situation Room with smart, dedicated colleagues, all of us collectively faking it on the intricacies of cyberwarfare or the geopolitics of data.
The pace of advances in artificial intelligence, machine learning, and synthetic biology will only increase in the years ahead, outstripping the ability of states and societies to devise ways to maximize their benefits, minimize their downsides, and create workable international rules of the road. To address these threats, the State Department will have to take the lead—just as it did during the nuclear age—building legal and normative frameworks and ensuring that every new officer is versed in these complex issues.
It will also have to bring in new talent. In the coming years, the State Department will face stiff competition from the Pentagon, the CIA, and the National Security Agency, not to mention the private sector, as it seeks to attract and retain a cadre of technologists. The department, like the executive branch in general, will have to become more flexible and creative in order to attract tech talent. It should create temporary postings and launch a specialized midlevel hiring program to fill critical knowledge gaps. New fellowships can help leverage the tried-and-true tactic of using prestige as a recruiting tool, but more dramatic changes to compensation and hiring practices will be necessary to build up and retain in-house expertise.
The State Department will also have to become more dexterous. Individual U.S. diplomats can be remarkably innovative and entrepreneurial. As an institution, however, the State Department is rarely accused of being too agile or too full of initiative. Diplomats have to apply their gardening skills to their own messy plot of ground and do some serious institutional weeding.
The State Department’s personnel system is far too rigid and anachronistic. The evaluation process is wholly incapable of providing honest feedback or incentives for improved performance. Promotion is too slow, tours of duty too inflexible, and mechanisms to facilitate the careers of working parents outdated. The department’s internal deliberative process is just as lumbering and conservative, with too many layers of approval and authority.
During my final months as deputy secretary of state, I received a half-page memo on a mundane policy issue—with a page and a half of clearances attached to it. Every imaginable office in the department had reviewed the memo, including a few whose possible interest in the matter severely strained my imagination. A serious effort at reducing the number of layers in the department, one that pushed responsibility downward in Washington and outward to ambassadors in the field, could markedly improve the workings of a bureaucracy that too often gets in its own way.
AN OPPORTUNITY, NOT AN ELEGY
No matter what reforms the State Department undertakes, renewing American diplomacy will be impossible without a new domestic compact—a broadly shared sense of the United States’ purpose in the world and of the relationship between leadership abroad and middle-class interests at home. Trump’s three immediate predecessors all began their terms with a focus on “nation building at home” and a determination to limit overseas commitments. Yet each had trouble, some more than others, marrying words with deeds, and they ended up taking on more and more global responsibilities with little obvious benefit. Most Americans understand instinctively the connection between disciplined American leadership abroad and the well-being of their own society; they just doubt the capacity of the Washington establishment, across party lines, to practice that style of leadership.
The starting point for reversing this trend is candor—from the president on down—about the purpose and limits of the United States’ international engagement. Another ingredient is making the case more effectively that leadership abroad produces beneficial results at home. When the State Department plays a valuable role in nailing down big overseas commercial deals, it rarely highlights the role of diplomacy in creating thousands of jobs in cities and towns across the United States. There are growing opportunities for diplomats to work closely with governors and mayors across the country, many of whom are increasingly active in promoting overseas trade and investment. Policymakers have to do a better job of showing that smart diplomacy begins at home, in a strong political and economic system, and ends there, too—in better jobs, more prosperity, a healthier climate, and greater security.
The next administration will have a brief window of possibility to undertake imaginative transformations that can move the State Department into the twenty-first century and reorient American diplomacy toward the most pressing challenges. Trump’s disregard for diplomacy has done substantial damage, but it also underscores the urgency of a serious effort at renewal, on a competitive and often unforgiving international landscape.
What I learned time and again throughout my long career is that diplomacy is one of the United States’ biggest assets and best-kept secrets. However battered and belittled in the age of Trump, it has never been a more necessary tool of first resort for American influence. It will take a generation to reverse the underinvestment, overreach, and flailing that have beset American diplomacy in recent decades, not to mention the active sabotage of recent years. But its rebirth is crucial to a new strategy for a new century—one that is full of great peril and even greater promise for America.

O risco de uma política externa patética - Vinicius Muller

Entre os mitos e o pragmatismo: o risco de uma política externa patética

Ao representar o interesse nacional, a Política Externa carrega em si um elemento que torna sua configuração ainda mais complexa.

por Vinícius Müller
Estado da Arte, O Estado de S. Paulo, 29/03/2019

A formulação de qualquer política, no sentido de manifestação de certa intenção amparada em planejamento, em uma ideologia ou em uma simples reconfiguração eleitoral, é fundada em um modo como se escolhe, hierarquiza e reconta a História. Os elementos que orientam esta reorganização da História variam ao gosto de quem a conta e conforme suas limitações do presente. Ou seja, é no presente, com todas as suas determinações, que escolhemos qual história vamos contar de modo a justificar aquilo que imaginamos estar preparando para o futuro. 
A confusão pode ser exemplificada. Há uma quase unânime opinião, ao menos entre aqueles que têm o mínimo de responsabilidade, acerca da necessidade de um ajuste das contas públicas brasileiras. Um dos elementos que compõem esse quadro é a dificuldade de estados e municípios em equilibrar seus orçamentos e cumprir com suas responsabilidades. Entre elas, o pagamento de seus funcionários. Como resolver esse problema? Para alguns, diminuindo o número de funcionários, criando, inclusive, mecanismos formais que permitam a demissão de alguns deles. Para outros, reformando as regras da aposentadoria dos futuros inativos. Para outros tantos, aumentando os impostos para ampliar a receita dos estados e municípios. Ou ainda reorganizando as relações de direitos e deveres entre municípios, estados e união, de modo a redefinir o que chamamos, grosso modo, de pacto federativo.
É no presente que escolhemos qual história vamos contar de modo a justificar aquilo que imaginamos estar preparando para o futuro
Em geral, essa última proposta é defendida por aqueles que entendem ser a centralização excessiva. Também, em geral, são aqueles que se identificam com abordagens mais liberais sobre a economia, a política e a sociedade. São os mesmos que, muitas vezes, reconhecem na trajetória dos EUA elementos de sucesso, riqueza e desenvolvimento, justificando-os pela inovação e precocidade do modelo federativo que o país adotou desde sua independência no final do século XVIII. E, também, aqueles que, por isso, buscam na trajetória brasileira os elementos constitutivos da centralização, apontando para os males que nos legou. Assim, são críticos ao legado da centralização imperial, assim como do governo Vargas, e insistem em identificar na Constituição de 1988 um desequilíbrio relacionado ao pacto federativo que, em tese, teria ampliado a descentralização sem, em contrapartida, viabilizar financeiramente os estados e municípios. Em outras palavras, ao identificarem um problema presente (a falência de estados e municípios), propõem uma política esperando que no futuro o problema acabe. Mas, tal proposta é justificada pelo modo como enxergam e reconstroem a História, ou ao menos, aquela que destaca os itens que confirmam o modo como definem os problemas. 
Outros tantos exemplos podem ser dados. Política externa é um deles. Isso porque ela carrega um elemento que torna sua configuração ainda mais complexa, dado que deve, entre suas funções, representar interesses baseados em uma possível unidade. Ou seja, representa os interesses do país como se fosse possível defini-los em meio à diversidade que o configura. Por isso, busca sempre algum tipo de embasamento mais subjetivo: interesse nacional, patriotismo, defesa de valores universais, valores culturais, tradições morais, etc. Não que esta subjetividade unificadora seja simplória por definição. Ao contrário, pode ser bastante complexa em sua construção. E isso envolve o modo como recuperamos nossa História. 
Sobre isso, Demétrio Magnoli, na obra O Corpo da Pátria (Editora Unesp/Moderna, 1997) retoma  uma parte desta História ao analisar como a geografia, especialmente o que chama de “imaginação geográfica”, moldou parte considerável da política externa brasileira no século XIX. A imaginação, no caso, relaciona-se ao modo como construímos certa identidade a partir da definição do território. E essa identidade esteve tanto na maneira que entendemos o gigantismo territorial como parte essencial de nossa “brasilidade”, como também na formulação das posições externas, principalmente nas definições das fronteiras do norte (Amazônia e a compra do Acre em 1903) e na relação com a África Atlântica sob a pressão britânica ao longo do debate sobre o tráfico de escravos. Além, certamente, das definições das fronteiras do sul, envolvidas pelas disputas e interesses argentinos e paraguaios. 
O interessante nesse caso é que a justificativa de uma política externa amparada na identidade territorial foi amplamente vista como uma simples definição de algo que o Brasil teria uma espécie de direito histórico. Este direito, na narrativa construída, derivava das definições territoriais da época colonial. Tanto, em caso específico, das fronteiras organizadas pelo Tratado de Madri de 1750, como também – e especialmente – de um certo mito criado como um elo entre um Brasil colonial e um Brasil definido como um Estado Nacional soberano. Um mito romântico, portanto, como foi o do indianismo. Ou como foi e, para muitos ainda é, aquele que identifica a abertura econômica como sendo inimiga dos reais interesses nacionais. 
Neste sentido, a projeção relativa ao papel do país em seu posicionamento externo deve-se não só aos problemas identificados no presente, mas também a como o passado é reconstruído de modo a justificar tal projeção. Já foi assim em outros episódios, quando uma certa narrativa que nos incluía na tradição ocidental foi parcialmente responsável pelo posicionamento do país na Segunda Grande Guerra. Ou quando, logo depois, um antigo entusiasta da ‘germanização’ optou por recuperar uma inexistente trajetória democrática para justificar a aproximação entre o Brasil e os EUA. Ou ainda, quando a defesa dos interesses nacionais foi confundida com certo anticapitalismo juvenil. Assim como, logo depois, um perigoso anticomunismo lustrava a ideia de que ‘o que é bom para os EUA é bom para o Brasil’. Por fim, a heroica política que se sustentava pela perspectiva de que negócios internacionais que envolvem países com níveis diferentes de desenvolvimento resultam, invariavelmente, em prejuízo aos menos desenvolvidos. Uma espécie de imperialismo contemporâneo. Assim, toda a política externa deveria buscar certo isolamento em relação aos países ricos e, ao contrário, aproximação com países em desenvolvimento. 
Vale destacar que nenhuma delas era mentirosa. Todas tinham alguma referência histórica pertinente. Mas, mesmo diferentes em suas propostas e justificativas, superestimavam os itens que as constituíam. E se justificavam por uma visão mitológica sobre o passado. Mitos não são mentirosos. Só exageram e romantizam o tempo pretérito em nome de uma ligação entre o passado e o presente. E ajudam a criar narrativas que, em tese, nos unem em um passado e um futuro comum. Por isso, os exageros românticos que amparam as políticas externas tendem a criação de mitos como o da grandiosidade geográfica, o da essência ocidental, o da exploração pelo imperialismo, o da superioridade racial, entre outros. 
Se tais mitologias nos ajudam a resgatar um passado que nos une, até pela própria necessidade da política externa em representar de modo coerente um país que, internamente, apresenta tantas variações, também ajudam a captura por questões ideológicas de parte importante de nossa representação internacional. Manter o que seria o equilíbrio entre tais formulações românticas e ideológicas, de um lado, e o pragmatismo, de outro, parece ser o ideal. Muitos já conseguiram, conforme a leitura do grande José Honório Rodrigues nos revela (Uma História Diplomática do Brasil, 1531 – 1945. Com Ricardo Seitenfus. Civilização Brasileira, 1995). Mas, a dificuldade está exatamente em manter esse equilíbrio. Nesse caso, o pendor, que muitos apresentam, favorável à idealização de um passado que nos une,  que explica o presente e justifica o que projetamos em matéria de política externa pode nos tornar mais do que irrelevantes no plano internacional: coloca-nos em risco de sermos verdadeiramente patéticos. A Venezuela comprova. O Brexit idem. O Brasil desta quadra da História parece correr esse risco também.

Vinícius Müller  é doutor em História Econômica pela USP e professor do Insper.