Política externa como política pública: análise da participação do Brasil em missões de paz das Nações Unidas a partir do modelo de coalizações de defesa (2004 - 2018)

Abstract

This qualitative, exploratory, bibliographic and documentary research describes the Brazilian foreign public policy for UN peace missions based on the mixture of Foreign Policy Analysis (FPA) and Public Policy Analysis (PPA) models. It started from the premise that foreign policy is public policy. A literature review was carried out on these subdisciplines, demonstrating connection points between their analytical models and theoretical constructs. Once the theoretical-conceptual body of such fields was examined, it was identified that the investigated object would be better described through the Advocacy Coalition Framework (ACF) model, since the previous review of the literature on Brazil's participation in peace missions pointed for the strategic action of defense coalitions in the analyzed policy subsystem. In order to fulfill the general objective of the research, a historical, critical and descriptive analysis of these missions in the international system was carried out, from its genesis to the present time. Based on theoretical contributions from Political Administration, it was demonstrated how such missions are accomplished in their geopolitical, normative and institutional aspects. This analysis adequately placed Brazilian public policy in national and international times and spaces, an indispensable variable for an adequate understanding of foreign policy. As a parameter for its spatio-temporal situation, a discussion was presented about it, observed in the light of the PPA. Since all and any public policy is aimed at achieving specific objectives, the analysis of that policy was deepened through our own analytical model, based on the analysis of speeches and official documents (Appendices B and C), and articulating a concept of Grand National Strategy – derived from the assertions of Guerreiro Ramos (1960) on the political and strategic dimensions of National Security –, with the identification of Brazilian strategic objectives concerning its engagement in peace missions. The application of this model allowed, in turn, the verification of two extremely important factors: 1) the official Brazilian discourse argues that Brazil's participation in UN peacekeeping operations is a means of promoting the country internationally (increasing prestige and influence, which can bring benefits); 2) there is a dense activity of (domestic) defense coalitions in the subsystem of the aforementioned policy, particularly the military. Thus, an analysis of the first factor was carried out based on the FPA model of the “graduation dilemma” (MILANI; PINHEIRO; LIMA, 2017); concerning the second factor, the ACF was applied (SABATIER; WEIBLE; 2007). As a result, the research showed that: the application of an analytical model that articulates FPA and PPA is plausible and viable; UN peace missions are instruments for the political administration of the international order; Brazil does not have a Grand National Strategy that allows, in the face of such political administration, an adequate execution of its foreign public policy for peace missions; the agenda of this public policy is susceptible to the oscillations of the political interests of defense coalitions placed in the Brazilian domestic environment.