Brazil’s execution of these activities is intentional and muted. Brasilia finds itself in the difficult position of needing to both protect national security interests and preserve existing regional relationships. If it were to broadcast its local engagement efforts, Brazil would be seen as undermining the regional and U.S. position, which is focused on regime change. Instead, the government passed off each of the above cases as an informal, even spur-of-the-moment event – or altogether out of the government’s purview. Through these informal channels, however, Brasilia can support dialogue with the Maduro government, focused on local stability and aid delivery, while maintaining plausible deniability. But all of these moves could be laying the groundwork for higher-level political solutions.
Washington’s Tacit Approval
The United States had until recently taken a hands-off approach to Venezuela’s malaise. U.S. oil interests in Venezuela, and its desire to maintain stability in the region, weren’t enough to warrant intervention. It was also preoccupied with other countries like China, North Korea and Iran. As the U.S. changed course, it courted Colombia and Brazil as regional partners in its efforts to end the crisis in Venezuela. Brazil, along with the vast majority of the region, got on board. Even though its motivations and tactics differed from Washington’s, it shared the same end goal.
Historically, there have been few instances where the U.S. and Brazil have forged strong bilateral ties over shared interests. In most cases, the U.S. needs something from Brazil and sets the terms of the relationship. As Bolsonaro took office, academics, politicians and foreign policy analysts raised concerns over the idea of Brazil cozying up to the United States, believing that Brazil could get caught up in the tensions between the U.S. and its rivals, such as China and Russia, that still support Maduro. Through public statements on issues like Israel and globalism, it seemed Bolosnaro’s government was planting itself firmly in the U.S. camp. Bolosnaro’s early declaration that he favored regime change in Venezuela was seen as a near-desperate attempt to garner favor with Washington. But Brazil’s overtures to Venezuela prove that its relationship with the U.S. is secondary to its need to deal with the national security threat posed by Venezuela.
The U.S. is aware of Brazil’s new maneuvers but hasn’t publicly responded. The cost of trying to fix Venezuela is climbing, and Washington is running out of cards to play, so from its perspective, it doesn’t hurt to have Brazil trying out alternative options. For the U.S., military intervention isn’t a viable option – it would jeopardize the United States’ standing in the region. Washington has imposed a barrage of sanctions on Venezuela, and it’s rallied more than 50 countries to recognize Guaido as interim president. Now it’s playing one of the last cards it has to debilitate the Maduro regime: going after its security apparatus, by way of Cuba. Havana and Caracas have a long-standing security and intelligence-sharing relationship, and Cuba is credited with helping Maduro and his military hang on to power. The U.S. is now putting greater economic pressure on Cuba and calling on others to do the same, as Guaido asks for global support in blocking Venezuelan oil exports to Cuba.
Washington can afford to let Brazil try out its own solutions to the Venezuela crisis because they have complementary goals – an end to the crisis and political transition in Venezuela. It cannot criticize Brazil for deviating slightly from the U.S. approach, but nor will it openly endorse Brazilian efforts. Right now, the U.S. is still seen as the hemispheric leader, even on this matter. Washington has no reason to jeopardize its regional image, especially when Brazil’s moves are still low-level, low-risk and not fully developed.
The crisis in Venezuela gives Brazil an opportunity to assume greater regional leadership at a time when the country’s entire foreign policy is being re-evaluated. Historically, Brazil has shirked the role of regional leader, unsure if it wants to assume the accompanying responsibility. But it now faces security threats from Venezuela, and Brazil will have to deal with them, whether it likes it or not. In the process, Brazil will also have to decide whether it’s ready to assume regional leadership.
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