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### Viewing cable 05BRASILIA2589, BRAZIL'S FINANCE MINISTRY MAKES PITCH FOR

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Reference ID | Created | Released | Classification | Origin
--- | --- | --- | --- | ---
05BRASILIA2589 | 2005-09-28 19:54 | 2011-07-11 00:00 | UNCLASSIFIED//FOR OFFICIAL USE ONLY | Embassy Brasilia

`

    This record is a partial extract of the original cable. The full text of the original cable is not available.

` `

    UNCLAS SECTION 01 OF 03 BRASILIA 002589

    SIPDIS

    DEPT FOR WHA/BSC, WHA/EPSC AND EB/TPP
    DEPT PLEASE PASS TO USTR SBOVIM AND LYANG
    TREASURY FOR FPARODI
    USDOC FOR 3134/USFCS/OIO/WH/EOLSON
    USDOC FOR 4332/ITA/MAC/WH/OLAC/MWARD
    NSC FOR SCRONIN

    SENSITIVE

    E.O. 12958: N/A
    TAGS: ETRD ECON WTO
    SUBJECT: BRAZIL'S FINANCE MINISTRY MAKES PITCH FOR
    AGGRESSIVE TARIFF REDUCTIONS IN NAMA NEGOTIATIONS

    ¶1. (U) Summary. An aggressive tariff cutting proposal for
    WTO Doha Development Agenda (DDA) non-agricultural market
    access negotiations (NAMA), put forward internally by
    Brazil's Finance Ministry, has generated a storm of protest
    by the country's private sector and largest labor union, and
    angst for Brazilian negotiators who are concerned that
    public discussion of the proposal has exposed Brazil's
    bottom line.  In government deliberations, the Finance
    Ministry has proposed the GoB advocate a simple Swiss
    formula approach to tariff reduction for industrial products
    utilizing 15 as the formula coefficient; the Finance
    Ministry proposal is in line with USG calls for adoption of
    a Swiss formula in the NAMA negotiations with two different
    coefficients, one for developed countries, the other for
    developing countries.  However, Finance's proposal is at
    odds with the approach Brazil previously formulated with
    Argentina and India and which continues to define the GoB's
    official position.  On September 19, Brazil's inter-
    ministerial trade chamber, CAMEX, decided to continue
    deliberation on four tariff reduction proposals, including
    Finance's, in order to analyze new studies, expand
    consultations with the private sector and interested social
    groups, and assess prospects for significant advances in the
    WTO agricultural negotiations.  Even if not adopted by the
    GoB as is, Finance's proposal may give some glimpse into
    Brazil's potential market opening for industrial products.
    End Summary.

    ¶2. (U) On September 6, the coordinating committee for
    Brazil's inter-ministerial Trade Chamber (CAMEX) received
    four proposals on the level of market opening Brazil would
    be willing to provide for non-agricultural products in the
    NAMA negotiations should adequate advances be made in the
    agriculture talks.   An aggressive tariff cutting proposal
    put forward by the Finance Ministry sparked substantial
    criticism from other ministries and the private sector.
    Finance's proposal differed significantly from the three
    proposals put forward by the Ministry of Development,
    Industry and Trade (MDIC), the Foreign Ministry, and the
    Coalizao Empresarial (Business Coalition) not only in the
    level of market opening recommended, but also in that it was
    based on a simple Swiss formula; the other proposals were
    premised on the April 2005 Argentina-Brazil-India (ABI) NAMA
    tariff cutting proposal, which links a country's item-
    specific tariff cuts, and establishment of bindings, to its
    existing overall level of tariff protection.

    ¶3. (SBU) According to Maria Elisa Maia (please protect), of
    the Foreign Ministry's Market Access Division, the Finance
    Ministry had not been active in internal discussions on the
    NAMA negotiations until April of this year, at which point,
    as it searched for new policy tools, it seized on the idea
    of reducing Brazil's import tariffs as a means of inducing
    economic growth.  Maia told Econoff that sharp differences
    then emerged between Finance and MDIC, industry's principal
    advocate.  Finally in an attempt to overcome the internal
    impasse, the Foreign Ministry and MDIC asked Finance to
    produce something in writing to give better definition to
    their vision.  The result was the September 6 Finance
    proposal, unexpected in its form (simple Swiss formula) and
    aggressiveness.

    ¶4. (U) According to press reports, Finance used 15 as the
    formula coefficient, which would reduce Brazil's maximum
    consolidated tariff rate from 35 percent to 10.5 percent;
    its average consolidated tariff rate from 30 percent to 9.78
    percent; and its average applied tariff rate from 10.5
    percent to 7.4 percent (some reports cited a drop from 10.77
    percent to 7.39 percent in the Mercosul bloc average applied
    tariff).  As a result, final tariff levels would be below
    current applied tariff rates for 62 percent of the 8,822
    tariff lines Brazil has registered with the WTO.  In arguing
    that its proposal is not too aggressive, Finance said it had
    proposed flexibility for 5 percent of the tariff lines and
    implementation would be over 10 years.

    ¶5. (U) On September 8, daily Folha de Sao Paulo published
    the following table with eighteen examples of how the
    Finance Ministry'S tariff cutting formula would affect
    certain groups of products:

                                   Average   Effective
                                    Bound     Applied  Proposed
                                     Rate       Rate    Tariff
    Autos, tractors, auto parts     33.31      24.44     10.31
    Clothes and accessories         35.00      20.00     10.50
    Cotton                          35.00      16.30     10.50
    Shoes and gaiters               35.00      19.64     10.50
    Toys and Games                  35.00      20.00     10.50
    Arms and munitions              34.52      20.00     10.45
    Umbrellas, walking sticks       35.00      19.25     10.50
    Organic chemical prods          23.39      12.55      8.92
    Pharmaceutical prods            34.78      13.79     10.47
    Electronics - TVs, stereos      32.65      16.18     10.14
    Glass                           34.79      14.64     10.48
    Pearls, precious and
     semiprecious stones            35.00      15.24     10.50
    Perfumes and essential oils     24.42      17.46      9.28
    Instruments/apparatus, optical,
     photo, med-surgical,
     cinematographic                33.02      15.22     10.18
    Iron, cast iron, and steel      35.00      12.77     10.50
    Books, periodicals, engravings  35.00      16.00     10.50
    Paper, cartons, other
     cellulose products             33.74      13.66     10.17
    Furniture, lamps, mattresses,
     furnishings                    32.73      17.65     10.02

    ¶6. (SBU) Much to the consternation of Foreign Ministry
    negotiators, details of Finance's proposal were leaked to
    the press and widely reported.  Maia claimed the leaked
    proposal was not the final, but implied there was not much
    difference between the two versions.

    ¶7. (U) The Finance Ministry has publicly defended its
    proposal on macroeconomic grounds.  While acknowledging that
    NAMA tariff concessions constitute part of Brazil's mix for
    trade-offs in the DDA negotiations, the Finance Ministry
    argues that aggressive tariff reductions would have the
    further benefit of enhancing Brazil's overall
    competitiveness and thereby helping to spur economic growth.
    Not surprisingly, the Ministry of Agriculture was mentioned
    as supporting Finance's proposal, arguing that the country
    should be more forward leaning in the NAMA negotiations to
    obtain desired concessions in agriculture.

    ¶8. (U) Opponents to Finance's proposal mobilized quickly.
    MDIC Minister Furlan publicly opposed Finance's proposal as
    too aggressive as did Paulo Skaf, president of Sao Paulo's
    Federation of Industries (FIESP).  Ministers in a September
    19 CAMEX meeting, used in part to prepare for the WTO quad
    (US, EU, Brazil, India) meeting in Paris September 22-23,
    listened to criticism of the proposal from representatives
    of the private sector, and received studies done by the
    Institute of Applied Economic Research (Ipea) and the
    Brazilian Agency for Industrial Development (Abdi), which
    predict decimation of certain industrial sectors under
    Finance's proposal.  The powerful CUT labor union argued for
    slower liberalization citing a study by Unicamp (University
    Campinas) that links protection, with government support for
    modernization, to increased productivity.  However, while
    not supporting such an aggressive opening as advocated in
    Finance's proposal, Soraya Rosar of the National
    Confederation of Industries (CNI) told reporters that her
    organization could accept use of a simple Swiss formula,
    depending on the coefficient used.

    ¶9. (U) Despite the outcry over Finance's proposal, CAMEX
    ministers did not discard it; a final decision has been
    postponed to allow for further analysis of the proposals and
    consultation with the private sector, as well as to enable
    Ministers to better assess the overall DDA negotiating
    environment.  Brazil would have to consult with its Mercosul
    partners before offering specific tariff concessions and
    would likely consult with its G-20 partners as well.

    ¶10. (SBU) While some local commentators argue that Brazil
    needs to make a bold gesture in NAMA negotiations in order
    to pressure the EU and US into wanted concessions in
    agriculture, statements by Foreign Ministry officials
    suggest an entrenched reluctance to signal any flexibility
    in NAMA without first obtaining sufficient concrete advances
    in agriculture.  Maia confirmed as much, saying the Foreign
    Ministry had prevailed in maintaining instructions for its
    NAMA negotiators on both support for the ABI proposal and
    for conditioning movement in NAMA on advances in
    agriculture.

    ¶11. (SBU) In discussing the predicament of a limbo in which
    all sides are waiting for others to expose their potential
    for concessions, Maia implied, what negotiators had feared,
    that the Finance proposal provides some insight into
    Brazil's bottom line.  Maia phrased it as follows: it's
    reasonable to conclude that the powerful and technically
    competent Finance Ministry would not have produced a
    proposal without having a good idea of what is possible.
    But, according to Maia, the proposal generated such a strong
    reaction because it is too extreme in applying an aggressive
    formula across the entire range of industrial products
    without incorporating sufficient flexibilities.  She added,
    however, that one very positive outcome of the debate over
    Finance's proposal had been a clarification of the country's
    sensitivities.

    Comment

    ¶12. (SBU) Although it is unlikely the Finance Ministry's
    market access proposal will be adopted as is, it may at
    least pull Brazil's final position toward one of greater
    market opening.  By providing the GoB with a ready analysis
    of the implications of using a simple Swiss formula (with at
    least with one coefficient), the Finance Ministry proposal
    also may prove useful in lowering the barrier to an eventual
    acceptance by the GoB of this methodology.

    CHICOLA

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