Tuesday, December 07, 2010

Latin America's Support for a Palestinian State

Stratfor

Summary

Argentina and Brazil recently recognized a “free and independent” Palestinian state, and Uruguay expressed its intention to do the same. The latest endorsements from Latin America are part of a campaign by Palestinian President Mahmoud Abbas to rally support for his government and apply pressure on Israel to freeze settlement activity as a means of restarting the peace process. While Latin America has long been the scene of territorial recognition battles, there is little reason to believe this latest campaign will produce any meaningful change in the Israeli-Palestinian conflict.
Analysis

In a letter to Palestinian National Authority (PNA) leader Mahmoud Abbas published Dec. 6, Argentine President Cristina Fernandez de Kirchner said her country recognizes an independent Palestinian state as defined by the 1967 borders. On Dec. 4, Brazil’s Foreign Ministry announced that Brazilian President Luiz Inacio Lula da Silva had sent a similar letter to Abbas recognizing the Palestinian state, a decision it said was “in line with Brazil’s historic willingness to contribute to peace between Israel and Palestine.” Earlier, on Nov. 12, Uruguay publicly announced its intention to recognize an independent Palestinian state and said it plans to set up a diplomatic mission there in 2011.

Nearly 100 countries recognize an independent Palestinian state, including most Arab countries, a large number of African countries and India, China, South Africa and Turkey. The latest wave of recognition on the part of Latin America stems from a campaign by Abbas to build pressure on Israel to commit to a settlement construction freeze in the West Bank and East Jerusalem in order to break the current stalemate in peace talks. Abbas has upped his usual threat to resign with bolder threats to unilaterally declare an independent Palestinian state or dissolve the PNA altogether.

There are a number of pitfalls to Abbas’s plan. Adding more names to the list of countries that recognize a Palestinian state may add to the PNA’s credibility in pushing for Israel to act, but there is little reason to believe the Israeli government will respond favorably to these moves. The more Israel feels it is on the defensive, the more pressure will be put on the United States to fend for its ally. Indeed, the United States appears to have been taken by surprise by the latest announcements by Brazil and Argentina, and some lawmakers in the U.S. Congress are already lambasting these governments. U.S. President Barack Obama’s administration has been trying to improve its image in the Middle East by appearing more forceful with Israel in demanding a freeze on settlement construction, but will find it more difficult to take a strong stance on the issue the more Israel feels isolated and the more pressure the administration faces in Congress to come to Israel’s defense. Moreover, rather than responding to low-level pressure from states that recognize a Palestinian state, Israel will typically make temporary concessions on settlement building as part of its broader negotiations with the United States, especially when those negotiations concern more pressing issues, such as Iran. In a more recent example, Israel’s decision to engage in peace talks hosted by Washington had little to do with the Palestinians themselves and was instead driven by Israel’s desire to mend relations with the Obama administration and seek help in dealing with both Turkey and the Iranian nuclear affair.

Israel fully understands that the Palestinians lack both a credible leader and a negotiating team. Not only are the Palestinian territories divided geographically, politically and ideologically between the Islamist Hamas-controlled Gaza Strip and the secular Fatah-controlled West Bank, but Abbas can barely speak for his own Fatah party. This is a situation that Israel would prefer to maintain, as it eases the pressure to engage in meaningful negotiations. Abbas’s latest set of threats are therefore likely hollow. Unilaterally declaring a Palestinian state will only create further problems between the PNA and its donors in Europe and the United States. Turkish Prime Minister Recep Tayyip Erdogan, who met with Abbas on Dec. 6, is believed to have told the Palestinian leader that such a move would be counterproductive and would make it appear as though the Palestinians are politically immature and unfit for negotiations. Dissolving the PNA would also run the risk of producing a revolt within Fatah, giving Hamas more room to expand its power by exploiting fissures within Fatah.

Though Abbas is severely lacking options in trying to push negotiations forward, his plight could help countries that are seeking diplomatic attention, such as Brazil and Turkey. Both countries have been promoting themselves as mediators to the Middle East’s thorniest affairs, from the Iranian nuclear controversy to the Israeli-Palestinian conflict. Such promotion helps build broader diplomatic credentials as both countries seek to expand their regional prowess, while also providing the opportunity to present their foreign policy agendas as distinct from that of the United States. Turkey actually has enough influence in the region to involve itself in these issues, but Brazil is taking a leap across the Atlantic in trying to present itself as a credible stakeholder in the region. Though STRATFOR has heard some quiet consternation from some Brazilian diplomats, from the standpoint of the current Brazilian administration, recognizing Palestine is a relatively low-cost foreign policy move. Brazil would be the last of the BRIC countries (the emerging states of Brazil, Russia, India and China) to do so and has already asserted its support for a Palestinian state. Moreover, such a move could help Brazil garner more Arab support for its bid for a permanent seat on the U.N. Security Council. Brazilian bilateral trade with Israel remains low — about $748 million in 2009 — so Brazil is not risking a major trade loss with this decision. Argentina’s trade volume with Israel likewise remains low, totaling $356 million in 2009. In announcing Argentina’s recognition of a Palestinian state, Fernandez mentioned that all Mercosur members (full-members include Brazil, Argentina, Paraguay and Uruguay) had reached a consensus on a Palestinian state. Conveniently, Brazil, Argentina and Uruguay decided to move forward with Palestinian recognition after they had already signed a free trade agreement with Israel in late 2007.

Those countries that have taken part in this latest recognition campaign are likely to experience some diplomatic friction with the United States, but the timing may also be more conducive to make such statements now that Washington is acting more apologetic to its diplomatic partners following the Wikileaks affair. Just as the Taiwanese have discovered in their checkbook diplomacy with against China, Latin America has provided the PNA with an opportunity to expand its list of supporters. However, diplomatic grandstanding aside, these gestures are unlikely to have any real or practical impact on the current intractability of the Israeli-Palestinian conflict.

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