THE AFRO-ASIAN DIMENSION OF BRAZILIAN FOREIGN POLICY. 1956-1968 By WAYNE ALAN SELCHER A DISSERTATION PRESENTED TO THE GRADUATE COUNCIL OF THE UNIVERSITY OF FLORIDA IN PARTIAL FULFILLMENT OF THE REQUIREMENTS FOR THE DEGREE OF DOCTOR OF PHILOSOPHY UNIVERSITY OF FLORIDA 1970 UNIVERSITY OF f\°^9Ji 3 1262 08666 460 3 To my wife, Susan A nation such as ours, which has all the attributes to become a power, has the essential obligation to study and explore all the alternatives. Adolpho Justo Bezerra de Menezes Subdesenvolvimento e Politica Internacional ACKNOWLEDGMENTS • Among those Brazilians who helped me in the preparation of this study, my special appreciation must go to Candido xMendes de Almeida and Jose'Garrido Torres, who gave freely of their experiences and knowledge to orient and inform, as well as to Antonio Olinto, Antonio Houaiss, and Jayme Azevedo Rodrigues, who graciously allowed me to benefit by their experiences in the diplomatic service. Professors JoseHonorio Rodrigues, Cleantho de Paiva Leite, and Manuel Diegues Junior granted generous use of the libraries of the IBRI and the CIAPCS, and for this I express my thanks. I am also grateful for suggestions and criticisms lent by Rudolph Rumm.el (University of Hawaii), Robert Keohane (Brookings Institution), Steven Bram.s (New York University), Roger Bastide (Sorbonne), and H. Jon Rosenbaum (Wellesley College), My gratitude is extended as well to the members of my doctoral committee, especially Dr. Ruth McQuown and Dr. Thomas Page who aided in correcting the manuscript. Finally a special, unique vote of thanks is . due my wife v/ho gave valuable assistance in collating statistics, typing, and proofreading, also lending encouragement to bring the research and writing to a successful conclusion. To the above I owe an intellectual and personal debt, but all debits accruing from deficiencies and errors in this undertaking must be attributed to my account alone. TABLE OF CONTENTS Page LIST OF TABLES vii ABSTRACT ix Chapter L INTRODUCTION 1 II. TRENDS IN THE FOREIGN POLICY OF REPUBLICAN BPvAZIL 13 The Imperial Prelude 14 The Early Republic \ 17 Extra -Continental Initiation 26 Great Power Apprenticeship and the Domestic Debate over Foreign Policy 29 The Kubitschek Years. 39 Politica Externa Independente ........ 42 The Conservative Reaction 57 The Diplomacy of Prosperity 60 Patterns of Growth and Nationalism 64 Continuity and Change 76 m. AFRO-ASIA. IN BRAZILIAN POLITICAL THOUGHT AND POLICY, 1356-1968 81 Public Opinion and Afro-Asia . 83 The Culiairalists 87 Lusotropicology 102 Economic Conflict and Cooperation . 105 The Neutralist Viev/point 108 Interdependence with the West . 113 Africa in Military Thought 117 Afro-Asian Area Study Centers . 120 Ijelusions of Grandeur or an Efficacious Policy? . 126 The Course of Bilateral Relations: Hit^torical Overview, 1956--1968 130 Chapter Page IV. DIMENSIONS OF BRAZILIAN REIATIONS V/ITH AFRO-ASIA . , . i!55 Diplomatic and Consular Representation , . 158 Salience 169 Emigration and Communications 179 Exports 185 Dimensional Summary . 2C5 Three Case Studies 210 Japan 212 Israel. ... 220 India . 224 V. DECOLONIZATION, HUMAN RIGHTS, AND BRAZILLAN POLICY IN SOUTHERN AFRICA . 231 Brazilian Policy on Colonialism in the Postv/ar Decade . , . - . 240 Brazil, Portugal, and Portuguese Africa: The Controversial Triangle 246 The Consensus on Portuguese Africa . 301 Human Riglrts, Nonintervention, and Trade in Relations v/ith South Africa: The Attraction of , Opposites ? , 304 Rhodesia 313 VL ECONOMIC CONFLICT AND COOPERATION WITH AFRO-ASIA 315 Brazil and UNCTAD 318 Coffee .332 Cocoa 345 VII. CONCLUSIOi\'S: AFRO-ASIA IN THE GLOBAL CONTEXT OF BR/lZIiJAN FOREIGN RELATIONS 354 APPENDIX I, Personal Interviews Used in the Preparation of this Study 370 APPENDIX II. Regional Distribution of Brazilian Diplomatic and Consular Posts in 1955, 1952, and 1968 . 374 BIBLIOGRAPHY . .376 BIOGRAPHY 402 LIST OF TABLES • Table Page 1. Total Personnel Employed by the Brazilian Ministry of Foreign Relations, 1956-1968 ....... 65 2. Selected Features of Foreign Ministry Budget Allocations, 1956-1968 .......... 67 3. Total Number of Brazilian Diplomatic and Consular Posts in Selected Years . ... 69 4. Distribution of Brazilian Diplomatic Personnel in Embassies and Legations Abroad,; by Region, • 1956-1968 ........ - 160 5. Distribution of Brazilian Consular Personnel in Consulates and Consulates-General Abroad, , by Region, 1956-1968 . 155 6. Brazilian Diplomatic and Consular Personnel Allocated to Africa, Asia, and the Middle East, 1956-1968. 165 7. Conferrals of the Ordem Nacional do Cruzeiro do Sul, by Region, 1956-1967 . 171 8. ' Bilateral Agreements Concluded by Brazil Since January 1, 1950, and in Effect on June 1, 1958: Distribution by Region 173 9. Foreign Tourists Entering Brazil, by Region of Nationality, 1962-1965 175 10. National Origin of Asian and Middle Eastern Tourists Entering Brazil, 1962-1966. ... ... 178 11. Regional Distribution of International Telephone Traffic to and from Brazil, January, 1966--June, 1968 . 181 12. Regional Distribution of International Telegraph Traffic to and from Brazil, July, 1965--June, 1958. 184 vli Table Page 13. Distribution of Brazilian Exports, by Region of Destination, 1956-196^ 198 14. Destination of Brazilian Exports to Asia and the Middle East, 1962-1967 . 200 15. Distribution of Exports of Brazilian Manufactures, by Region, 1967 . 203 16. Brazilian Transactions with Afro-Asia, on Selected Measures, Expressed as Percentages of Brazil's Global Transactions 208 17. Selected Group Scores on Issues Before UNCTAD I . 323 Abstract of Dissertation Presented to the Graduate Council of the University of Florida in Partial Fulfillment of the Requirements for the Degree of Doctor of Philosophy THE AFRO-ASIAN DIMENSION OF BRAZILIAN FOREIGN POLICY, I956-.1.968 by Wayne Alan Selcher December, 1970 Chairman: Dr. O. Ruth McQuown Co-chairman: Dr. Thomas Page Major Department: Political Science The central problem of the study is the determination of Brazil's reactions to the enierging states of Africa, Asia, and the Middle East and its quantification in transaction flow terminology, with an analysis and evaluation of these relations in comparison to Brazil's older, strongly established ties to Western Europe, the United States, and Latin America. This involves a chronological account of relations during the period, an inquiry into the images which different sectors of national opinion have held about Afro-Asia and Brazil's role there, and the application of statistical measures of interaction between nations from ; the Dimensionality of Nations Project to ascertain the relative importance of Afro- Asia in the global range of Brazilian foreign policy through time and to isolate three of the most salient states (Japan, Israel, and India) for case studies. Economic relations with Afro-Asia are covered in trade analysis and studies of interaction in UNCTAD and competition in coffee and cocoa. Political conflicts with Afro-Asia are explored in policy differences over anti-colonialism, Portuguese Africa, and South Africa. Changing policy toward Afro-Asia is explained in terms of changes in regime, conflicting images of the role of Brazil in the global system, and cross-pressures arising from Brazil's cross-cutting and only partially inclusive multiple memberships in five political, economic; and cultural groups: Latin America, VVestern Hemisphere, Western Community, Group of 11 , and the Luso-Brazilian Community. Overlapping conflicts and contradictory demands arising from these several member- ships result in what may appear to be vacillation or incoherence when judged from a single standard but which is explained by the fact that Brazil is neither fully committed to any single membership nor highly polarized by only highly congruent memberships. Brazilian political and economic interests thus converge with and diverge from those upon which the Afro-Asian bloc has struck a consensus in much more subtle ways than^the mere grouping of Brazil with Afro-Asia as a "developing, " "Southern, " or ''Third World" state would suggest. Within limits of priority imposed by the relatively low salience which Afro-Asia has for Brazil, a summary of current Brazilian goals in these developing regions out:ude the Western Hemisphere can be drawn up as follov/s. 1. Increase in trade relations, involving preferably the exchange of manufactured products for raw materials to be used in . Brazil's new industries; otlierwise the general expansion of all types of sales to new markets. 2. Defense of national economic interests in competition in primary commodities, notably coffee, cocoa, sugar, and cotton, including persuasion for African states associated with the Common Market to either yield or universalize their tariff preferences there. 3. Encouragement of solidarity among developing countries to negotiate as a group with the developed states for the reversal of unfavorable terms of trade and other economic concessions sought by the Group of 11 4. Preservation of Portuguese language and culture in Africa to serve as a facilitator for a future Brazilian presence on that continent, under the supposition that the Portuguese territories will eventually achieve independence and that Brazil, while not meddling in Lisbon's internal affairs, should do everything possible to make this emancipation relatively pain- less and of a nature to ensure the continuation of Portuguese language and culture rather than alienation from them on the part of the Africans. 5.