Issue-area and horizontalization in Brazilian foreign policy: an exploratory study of decision-making processes in the Fernando Henrique Cardoso government

Author(s)

Martin Egon Maitino

• Document type: Master's Dissertation
• Press: São Paulo.
• Institution: Universidade de São Paulo (USP). Faculdade de Filosofia, Letras e Ciências Humanas (FFLCH/SBD)
• Defense date: 2019-10-07

Examining board members

Janina Onuki; Guilherme Stolle Paixão e Casarões; Marcelo de Almeida Medeiros

• Advisor: Janina Onuki

Abstract

The idea of horizontalization a new configuration of decision-making processes, characterized by the Ministry of Foreign Affairs relative loss of influence and the participation of different actors in the Executive became common in studies on Brazilian foreign policy. The literatures central thesis associates the transformation to a process beginning in redemocratization, hindering the comprehension of deviant cases, such as previous participation of economic departments in trade policy negotiations. As an alternative, we explore the hypothesis that horizontalization varies with the substantive issue being analyzed i.e., that issue-areas affect the pluralization of Brazilian foreign policy decision-making. More specifically, we ask: to what extent do literature propositions stand when dealing with non-economic issues? We address the issue on two fronts. Conceptually, we propose to analyze the phenomenon not as a process, but as a characteristic of the decision unit, associating it to specific decisions. Empirically, we explore the hypothesis, inquiring how the issue area interacts with mechanisms that affect decision unit dispersion. In order to do that, we build upon a mechanism that connects policies domestic distributive effects to decision-making pluralization. We apply process tracing methods and observe whether issue-area is a necessary condition for the mechanism. We analyze two typical cases with distributive effects and minor presidential participation associated with environmental and health issues: the Kyoto Protocol negotiations (1996-2001) and the WTO dispute on drug patents (2001). Results show issue-area is an important dimension to understand foreign policy production and needs to be better addressed by the literature. To strengthen hypotheses, we must consider scope conditions and the variety of patterns in actors relations and exploring issue area variation revealed a productive path to be pursued. We also contribute to discussing issue-area effects, a gap in the literature. Conceptualizing issue-areas as subsystems, we identify relevant dimensions to think its relation to pluralization: technical knowledge, distribution and weight of power capabilities, expert communities, institutionalization of contact channels with non-governmental actors and past interactions within the subsystem itself. (AU)

• FAPESP's process: 17/03988-8 - Issue-area and horizontalization in Brazilian Foreign Policy: variations in the decision-making process during the Cardoso governments
• Grantee: Martin Egon Maitino
• Support Opportunities: Scholarships in Brazil - Master