Identifier
Created
Classification
Origin
04SAOPAULO843
2004-06-04 19:20:00
UNCLASSIFIED//FOR OFFICIAL USE ONLY
Consulate Sao Paulo
Cable title:  

RACE RELATIONS IN BRAZIL: THE AFFIRMATIVE ACTION

Tags:  PGOV PHUM EINV SOCI BR TIP 
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UNCLAS SECTION 01 OF 03 SAO PAULO 000843 

SIPDIS

SENSITIVE

NSC FOR MIKE DEMPSEY

DEPARTMENT ALSO FOR WHA/PD

E.O. 12958: N/A
TAGS: PGOV PHUM EINV SOCI BR TIP
SUBJECT: RACE RELATIONS IN BRAZIL: THE AFFIRMATIVE ACTION
DEBATE

REF: SAO PAULO 00789

SENSITIVE BUT UNCLASSIFIED.

SUMMARY
-------

UNCLAS SECTION 01 OF 03 SAO PAULO 000843

SIPDIS

SENSITIVE

NSC FOR MIKE DEMPSEY

DEPARTMENT ALSO FOR WHA/PD

E.O. 12958: N/A
TAGS: PGOV PHUM EINV SOCI BR TIP
SUBJECT: RACE RELATIONS IN BRAZIL: THE AFFIRMATIVE ACTION
DEBATE

REF: SAO PAULO 00789

SENSITIVE BUT UNCLASSIFIED.

SUMMARY
--------------


1. (U) Affirmative action measures aimed at improving the
socioeconomic situation of Afro-Brazilians are fundamental
to the "Movimento Negro," or Black Movement. Though
affirmative action remains controversial, even among Afro-
Brazilians, the controversy itself is drawing public
attention to the issue of social inequality in an
unprecedented way. Advocacy efforts of the Black Movement
have generally focused on the periphery of society, and thus
have remained out of the public eye, but the affirmative
action debate is a mainstream concern. Whether or not
advocates overcome numerous challenges to create viable
affirmative action programs, the increasing visibility of
race issues has contributed to higher levels of Afro-
Brazilian political participation and to new legislative
efforts designed to benefit Afro-Brazilians. By mobilizing
the large Afro-Brazilian population in support of specific
political issues, affirmative action could bring about
changes in Brazil's broader political scene. This is the
sec7QQQsUUS QUO
--------------


2. (U) As explained reftel, self-declared "black" and
"brown" Brazilians (a rough measure of self-identified Afro-
Brazilians) comprise 46 percent of the population, but have
lower incomes and higher rates of illiteracy than other
segments of society, and are underrepresented at all levels
of business, academia, media, and government. Anecdotal
evidence also indicates that Afro-Brazilians are not easily
accepted in the upper echelons of society. Maria Aparecida
de Laia, the Sao Paulo State Secretary of Culture's Advisor
for Gender, Race and Ethnicity, told us that professional
contacts who do not know her tend to ignore her and to
address her white subordinates when they meet her for the
first time. Laia explains such occurrences by saying that
Afro-Brazilians are "aliens" within the circles of the white-
dominated political and socioeconomic elite.


3. (U) Change is occurring in small increments. Before
soccer hero Pele's appointment as the Sports Minister in

1995, no Afro-Brazilian had ever served as a minister in the
federal GOB. In 2003, President Lula appointed 4 Afro-
Brazilians to his Cabinet, including Matilde Ribeiro as the
head of the newly created Secretariat for the Promotion of
Racial Equality. At the Afro-Brazilian/African-American
Business Summit in April, Judith Morrison of the Inter-
American Foundation said that there are 632 black-owned
businesses in Sao Paulo, and more than 7 million Afro-
Brazilians in the middle class nation-wide. "Raca" ("Race")
magazine, the first publication aimed specifically at an
Afro-Brazilian audience, achieved immediate and unexpected
success when it was launched in 1996, providing an
indication of the untapped potential of Afro-Brazilian
buying power and the growing interest in products tailor-
made for Afro-Brazilians.


4. (U) Despite these indicators of progress, many Black
Movement activists contend that the current pace of change
is much too slow. Laia told us that the time is ripe for
Afro-Brazilians to "take a leap forward" through affirmative
action programs designed to expand Afro-Brazilian presence
in educational institutions and in the senior ranks of
government and business. She contends that integrating Afro-
Brazilians into the economic and political mainstream will
reduce prejudice. Many of our contacts expressed the view
that Afro-Brazilians would not improve their socioeconomic
status without a stronger presence in government. Sao Paulo
City Councilwoman Claudete Alves argues that Afro-Brazilians
must be involved in the development of public policy because
it is "impossible to understand" Brazilian racism without
seeing Brazil "from a black perspective." Jose Vicente,
president of the Afro-Brazilian advocacy group AFROBRAS,
told us that he believes that affirmative action measures
can help to show Afro-Brazilians that "there is hope." He
contends that offering black youth educational and
employment opportunities, as well as positive role models,
will have a positive impact that "will be felt throughout
Brazil."


5. (U) The debate to date has revolved almost exclusively
around the racial quotas recently introduced in several
public universities (see septel on race and education
policy). Opponents of affirmative action believe that race-
based programs are misguided, because they view
discrimination as a matter of social class rather than skin
color. They argue that college entrance exams are color-
blind, and that the low Afro-Brazilian participation in the
upper echelons of society is not the result of racism. Some
point out that Brazil's traditional system of racial self-
identification is inadequate for the proposed quota systems,
since it provides no objective basis for determining which
candidates are eligible for programs, but worry that
officially delineating the Afro-Brazilian community through
the use of objective physical criteria would only increase
racial divisions within society. Despite the objections, a
public opinion poll conducted by the Sensus Institute in
May, 2004, found that 61.1 percent of respondents support
quotas for Afro-Brazilians in public universities.

PUBLIC SECTOR GETTING STARTED
--------------


6. (U) Afro-Brazilians are far from achieving equal
representation in the public sector, but some progress has
been made in the last decade. According to Claudete Alves,
the only Afro-Brazilian woman on the Sao Paulo City Council,
the mere fact that the government is acknowledging the
existence of racism is a step in the right direction.
Economic and social inclusion of Afro-Brazilians has become
a political concern for the GOB. In addition to appointing
Afro-Brazilians to the cabinet and creating a special
cabinet post for race-related issues, President Lula has
reached out to the Afro-Brazilian community with such
visible gestures as visiting a traditional Afro-Brazilian
community (quilombo). The Foreign Ministry (Itamaraty) has
introduced a new program to assist Afro-Brazilians and other
underprivileged groups to prepare for the rigorous entrance
exam for the diplomatic service.


7. (U) Quota systems have been introduced in some
municipalities in Sao Paulo state. Both state- and national-
level institutions are exploring the possibilities for new
affirmative action programs, some of which would go beyond
quotas. The draft Statute of Racial Equality, sent to
Brazilian Congress in April, would introduce quotas for
federal workers, and offer incentives for private companies
with government contracts to implement affirmative action
programs. Other proposals include diversity training for
police, who are often accused of racial profiling and of
using unnecessary force against Afro-Brazilian suspects.

PRIVATE SECTOR SLOW TO TAKE ACTION
--------------


8. (U) Anecdotal evidence indicates that discrimination in
hiring practices is widespread, but not openly acknowledged
or endorsed. Afro-Brazilian contacts tell us that a job
announcement that requires a "nice appearance" is understood
to mean that "blacks need not apply." Recent studies in Sao
Paulo shopping malls by the researchers of the Inter-
American Union Institute for Racial Equality (INSPIR)
estimated that only 2 percent of the employees were "black,"
while another 13 percent were "brown" (mixed). Neide
Aparecida Fonseca, president of INSPIR, concluded that there
is "color and race-related prejudice" in hiring practices
for "positions that are visible or require interaction with
the public." However, studies of discrimination in
employment are rare. Some activists conjecture that
companies choose not to track their employees' racial
identity, because they do not want to be pressured to
introduce affirmative action measures. Recently, the
Colombo clothing company introduced a twenty percent quota
for Afro-Brazilians, but it is the only major company to
have done so.


9. (U) Leaders of the Black Movement would like to see a
push for affirmative action measures in the private sector.
They assert that even multinational corporations that have
affirmative action programs elsewhere have not instituted
them in Brazil. At the Afro-Brazilian/African-American
Business Summit in April, Dr. Sueli Carneiro, President of
Geledes Institute for Black Women, criticized international
companies operating in Brazil for "conforming to Brazilian
racism," rather implementing affirmative action and
nondiscrimination policies similar to those they use outside
of Brazil.

LESSONS LEARNED FROM U.S. EXPERIENCE?
--------------


10. (U) The affirmative action debate is seldom raised
without reference to the U.S. experience. At the Afro-
Brazilian/African-American Business Summit, Brazilian and
U.S. participants were quick to point out that Brazil's
present situation is comparable to that of the U.S. twenty
or thirty years ago. Afro-Brazilian activists tend to view
the current U.S. situation in a very positive light. From
the Afro-Brazilian perspective, African-Americans have
achieved considerable social, economic and political
empowerment. Humberto Adami, president of the Institute of
Racial and Environmental Advocacy, complained that most
Brazilians do not hesitate to "import the American way of
life...as seen on Fox Television," but "complain about
copying the U.S." when it comes to affirmative action.

COMMENT
--------------

11. (SBU) Affirmative action is a relatively new and very
controversial idea in Brazil. So far, affirmative action
has not progressed beyond simple quota systems and attempts
to increase recruitment of Afro-Brazilians to government
positions and in a few public universities. While Brazilian
authorities have yet to determine how far to carry such
programs, affirmative action is the issue that has most
sparked the interest of the general public, generated public
debate, and drawn attention to the Black Movement in Brazil.
Only time will tell whether the ambitions of the Black
Movement on this and other issues will come to fruition, but
the incipient mobilization of the Afro-Brazilian community
that it represents could lead to wider changes over time in
Brazilian politics. End comment.


12. (U) This message was coordinated with Embassy Brasilia
and Consulate General Rio de Janeiro.

DUDDY