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02/05/2006 | Bolivia and Leftward Movement in Latin America

Stratfor Staff

Bolivian President Evo Morales followed through on a campaign promise on Monday by nationalizing the country's oil and natural gas industries. The move, which Morales discussed frequently during his first 100 days in power, should not have come as a surprise, but the way in which it was done caught many off guard.

 

Rather than sending a bill to the legislature, Morales enacted the law by decree, announced it on the national May Day holiday -- to the surprise of Bolivia's own media -- and immediately sent the armed forces to secure oil facilities, seeking to prevent any disruptions in operations. In other words, everything was done in the style of the old Latin American populist governments, with a flair that portends a penchant for theatricality and unwillingness to compromise.

Monday's development raises two questions. First, given Bolivia's poverty and dependence on other countries as shipping routes for its gas exports, will the nationalization policy be sustainable over the long run? And second, is this part of a leftist trend that Venezuelan President Hugo Chavez has been encouraging in the region, or will Bolivia's lurch to the left with the hydrocarbons policy be an isolated case?

Whatever the answer to the first question, Bolivia is hardly an isolated case. Venezuela has set certain precedents by incrementally changing the playing rules for foreign companies: Taxes have been increased, and foreign-owned firms have been forced to enter into joint ventures with the state-owned oil company. Ecuador is now moving down the same path. Quito recently approved a law that allows the government to renegotiate contracts with oil companies, giving the government more than half of the revenues from oil sold above a certain price level. And in Peru, presidential candidate Ollanta Humala has promised to nationalize gas reserves and production if he wins the runoff election. There is indeed a pattern here.

Another pattern appears to have developed on trade issues as well. During the Summit of the Americas (hosted by Argentina in November 2005), a bloc of countries -- vocally led by Venezuela, with backing from Argentina, Brazil and Bolivia -- expressed strong opposition to calls to move forward with the Free Trade Area of the Americas (FTAA). Instead, Bolivia, Venezuela and Cuba during the past weekend signed the Peoples' Trade Agreement -- note the absence of the word "free" -- as a way to promote unity in the Americas and as their response to the FTAA.

That said, not all the countries in Latin America are treading the same course. In fact, there may be more differences than similarities in the policies emerging from the region. Although most of the recently elected governments have been labeled "leftist" and supposedly have common agendas, Latin America is beginning to show signs of deep divisions rather than growing unity. Only the most radical governments have nationalized their energy industries or attempted to change the rules of engagement for foreign-owned companies. Countries like Brazil, Uruguay and Chile -- all of which have elected leaders belonging to old leftist movements -- have not pursued nationalization policies, and in fact the investment environment in these countries has remained at least level (or improved, in comparison to the more radical countries in the region).

On trade, the countries that favored the FTAA did not sit back and wait for Chavez or Argentine President Nestor Kirchner to take the lead or declare it a good idea -- they moved ahead to negotiate bilateral agreements with the United States themselves. Colombia and Peru already have signed their respective agreements, although they still await ratification. Ecuador also has engaged in negotiations with the United States, although the approval of Quito's version of the hydrocarbons law has stalled talks. As a result of all of this, Chavez decided last week to pull Venezuela out of the Andean Community of Nations -- a group that includes Colombia, Ecuador, Peru and Bolivia -- saying (with Bolivia's agreement) that it is incompatible to seek trade agreements with the United States and fellow Latin American states at the same time. Colombia and Peru, defying Chavez's strange economic logic, have decided to move ahead with their U.S. trade deals.

Deeper south, integration has suffered as well. Uruguay and Paraguay have questioned Mercosur's current structure, claiming that Brazil and Argentina run roughshod over the small members of the trade bloc. Uruguayan President Tabare Vazquez has labeled the organization -- which comprises Brazil, Argentina, Uruguay and Paraguay -- "useless" and called for reform. At the same time, Vazquez has been looking to launch free-trade talks -- or at lest an investment agreement -- with the United States, and he is scheduled to meet this week with U.S. President George W. Bush.

All in all, Venezuela's Chavez appears to have been sowing division among his neighbors rather than uniting Latin America behind the project he envisions for Venezuela. He has engaged in bitter verbal spats with President Vicente Fox of Mexico, with President Alejandro Toledo Manrique of Peru and with Peruvian presidential contender Alan Garcia. It is true that Peru, Mexico and Nicaragua still might elect leaders who would be closer to Chavez ideologically than to the United States or other moderate Latin American leaders. But despite that, it is not entirely clear that all of them would follow the same policy path. It is considerably more likely that divisions will persist among Latin American states. Economic realities place clear constraints on the policies that the governments of the region can follow.

Thus, with economic and geographic realities in mind, we return to Bolivia and our first question: Are the nationalization policies sought by Morales sustainable?

Though Bolivia has South America's second-largest reserves of natural gas, its hydrocarbons industry remains quite underdeveloped. The country currently exports most of its gas to and through Brazil (Brazilian state-owned Petrobras is one of the main foreign companies in Bolivia's hydrocarbons industry.) By expropriating the hydrocarbons -- or, to be even more to the point, by reducing the status of foreign companies to mere operators of oil and gas fields -- Bolivia will obstruct flows of new investment and strain its relationship with Brazil. Considering that Morales came into office strongly opposed to a plan that would build a gas export line through Chile, he basically would have only one other route to get the gas to market if Brazil was alienated: through Paraguay, Argentina and Uruguay. But such a pipeline would take years to construct. And though Chavez has pledged support to his friend in Bolivia, it is not clear whether he can do much to help out, especially since the two countries do not share a border.

Morales has made good on one of his chief campaign promises, but doing so might hurt the indigenous population he wants to lift out of poverty more than it helps. The gas deposits are now theirs, but without assistance, the Bolivians will find it difficult to develop or export the gas. The alternative, in the less-than-diplomatic words of Mexico's President Fox: They might have to eat it instead.

Stratfor (Estados Unidos)

 


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