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Brazil's BRICS+ presidency ahead of the summit in Rio de Janeiro

Brazil is using its BRICS+ presidency in 2025 to promote a more inclusive and sustainable world order as a pragmatic mediator for developing and emerging countries and to preserve its independence in foreign policy. For Europe, this presents both challenges due to the growing heterogeneity and independence of the BRICS+ group, as well as opportunities for a strategic partnership with Brazil, for example through the EU-Mercosur agreement and joint projects in the areas of climate, health, and technology. It is crucial that Europe recognizes Brazil as an equal partner in order to jointly set global standards and actively shape the international order.

The Brazilian BRICS+ presidency

With the assumption of the BRICS+ presidency in January 2025, the first following the expansion of the alliance, Brazil is once again assuming a vital role on the international stage after the G20 presidency in the previous year. Under the motto "Strengthening cooperation in the Global South for more inclusive and sustainable governance", Brazil is setting clear priorities: global health cooperation, trade and finance, climate change, regulation of artificial intelligence, multilateral peace architecture and institutional development of the BRICS+ bloc. Brazil is advancing the latter, for example, through events such as the 11th Parliamentary Forum in Brasília in June 2025, which aims to deepen political dialog and parliamentary cooperation and promote the democratic legitimacy of the bloc. Between February and July, the Brazilian Presidency set a broad agenda with over one hundred ministerial and technical meetings. The selected topics reflect the interests of many emerging and developing countries and illustrate Brazil's claim to function as a bridge builder between the so-called "Global South" (a controversial term due to its vagueness and homogenization) and the established industrialized countries.

Foreign policy pragmatism as a leitmotif

Brazil's foreign policy has historically been characterized by pragmatism and a clear focus on national interests. For decades, the country has pursued a strategy aimed at preserving the greatest possible autonomy and not subordinating itself to the priorities of the major powers. This attitude is currently particularly evident: Brazil has not joined the Chinese Belt and Road Initiative and voted against the inclusion of Nicaragua and Venezuela in the BRICS. Brazil's great dependence on its most important trading partner China is now also being viewed critically in parts of Brazilian politics and diplomacy. However, the government in Brasília continues to strictly refuse to be pigeonholed or categorized into a fixed camp, instead opting for flexibility and openness - a strategy that ensures maximum freedom of action. In contrast to countries such as Mexico, which is more closely tied to the USA due to its geographical location and economic ties, Brazil can balance its foreign policy between different centers of power and represent its interests with confidence.

Heterogeneity and dynamics of the BRICS+

The BRICS+ group is anything but homogeneous. The member states are democracies, autocracies and dictatorships and disagree on a variety of issues. For example, whether BRICS+ should function as an anti-Western force or serve as a platform for a reformed, more inclusive world order. The refusal of President Xi Jinping and President Vladimir Putin to attend the BRICS+ summit in Rio de Janeiro on July 6-7 highlights the internal tensions and heterogeneity of the alliance of states. If Putin could take part in the summit virtually, there is speculation in Brasília about the reasons for Xi's refusal. Is the Chinese partner annoyed by Brazil's rejection of the Belt and Road Initiative or are they bothered by India's prominent participation in Rio de Janeiro? Chinese voices justify Xi's absence with the fact that he has already met President Lula twice in less than a year, once at the G20 summit in Brazil in 2024 and most recently at the China-CELAC summit in Beijing in May. The Egyptian government also recently announced that President Al-Sisi will not be traveling to the summit due to the situation in the Middle East. Other high-ranking guests such as Mexican President Sheinbaum and Turkish President Erdoğan have also announced that they will not be traveling to Rio. An Iranian delegation has not yet been confirmed. On the one hand, the absence of the two heavyweights, Xi and Putin, could weaken the international appeal and political weight of the meeting, as the media attention and the signal effect of such a summit depend on the presence of the heads of state. On the other hand, this constellation opens up new scope for action, especially for those countries that are not clearly anti-Western - above all Brazil, India, and South Africa. These countries could use the opportunity to set their own priorities and campaign for a more pragmatic, more open orientation of the BRICS+.

Brazil in particular, which traditionally pursues an interest-oriented and pragmatic foreign policy, sees itself in the role of a mediator who does not want to commit the bloc to a confrontation with the West. Rather, Brazilian diplomacy is concerned with using BRICS+ as a platform for reforming the international order without submitting to the priorities of individual major powers. The fact that Brazil has neither joined China's Belt and Road Initiative nor supported Venezuela's admission to the BRICS underlines this independent and active course of non-alignment.

Within Brazilian politics, academia and diplomacy, the increasing heterogeneity of the BRICS+ group is being increasingly criticized. Although the expansion to include new members such as Indonesia and Ethiopia has increased the global reach, it has also exacerbated internal conflicts of interest. There are voices in Brasília who fear that the bloc's coherence and ability to act could suffer as a result of this diversity. At the same time, however, diversity also offers opportunities for Brazil: it enables Brazil to distinguish itself as a constructive force and promote dialog between different political and economic systems. However, it is questionable whether the current government under President Luiz Inácio Lula da Silva (PT) will be able to take advantage of this opportunity.

Multipolarity, geography and new zones of influence

The multipolar world order that is currently emerging following the end of US unipolar dominance is tending towards instability. Several centers of power are competing for influence, the complexity of international relations is increasing, and the risk of conflict is rising. In the course of these developments, the BRICS+ are also gaining relevance. We are experiencing a time in which zones of influence such as those actively pursued by the USA and Russia are once again gaining in importance - be it in Eastern Europe, the Middle East or in North and South America. In this environment, Brazil is pursuing a "hedging" strategy: it is skillfully balancing between the major powers without committing itself, thus preserving its foreign policy autonomy. A balancing act that is becoming increasingly difficult, as demonstrated by the recurring critical questions from Europe about Brazil's BRICS+ membership. Brazilian diplomatic pragmatism is difficult to reconcile with the European idea of a value-based multilateral world order and is therefore difficult for Europeans to understand.

Brazil's geographical location - as the largest nation in South America, with access to the Atlantic and as a bridge between North and South - also has a major influence on its foreign policy stance. Geography plays a key role in understanding certain political actions. Its distance from the global centers of conflict allows Brazil to take on a moderate, mediating role. While many conflicts in other parts of the world are dominated by geopolitical tensions, Brazil can often act more neutrally and constructively. Brazil's wealth of raw materials and the associated potential, as well as its special geographical and strategic position, make it an important player in international diplomacy and a key player for Europe.

Resources, narratives, and soft power

In the 21st century, power is no longer measured exclusively in terms of military superiority. Rather, access to natural resources - especially rare earths -, economic innovation and the ability to shape global narratives are at the heart of the modern exercise of power. Soft power, i.e., influence through diplomacy, cultural exchange, and the targeted shaping of narratives, has become a central instrument of international politics.

A striking example of the importance of soft power was demonstrated during the COVID-19 pandemic: China and Russia made targeted use of vaccine diplomacy to expand their influence in Latin America. The BRICS alliance also gained in importance and stood for cooperation in the so-called "Global South". Europe, but also the USA, on the other hand, was initially perceived in the region as cautious and concerned with its own advantage. The EU's so-called "vaccine nationalism" at the beginning of the pandemic had a lasting impact on the trust of many countries in European solidarity. This experience is still present in Latin American memory today.

Brazil has made great progress in its own vaccine production in recent years and has established itself as a regional player in the healthcare sector. Nevertheless, the country is still dependent on international supply chains, particularly for the procurement of precursors and technologies. The opening up to China and Russia in the healthcare sector as a result of vaccine diplomacy has created additional opportunities for these players to strengthen their presence and influence in Brazil and the region.

Opportunities for a strategic partnership with Europe

It is precisely against this backdrop that Europe must seek new opportunities to put its relationship with Brazil on a future-oriented and partnership-based footing. The EU has considerable strengths: economic and technological innovation, diplomatic experience, and the ability to set international standards. With the "Strategic Compass", the EU has further developed its foreign policy instruments and focuses on the four guiding principles of "Acting, Securing, Investing, Partnering". However, in order to be successful in global competition, Europe must act faster and be prepared to meet Brazil on an equal footing and take it seriously as an equal partner.

The EU should make targeted use of its economic, technological, and diplomatic strengths for sustainable and strategic cooperation. This includes the promotion of joint research projects, technology and science transfer and support for the development of local production capacities - particularly in the healthcare sector, but also in areas such as sustainable raw material extraction, digitalization, and green transformation. Especially at a time when the reliability of the USA as a partner is being questioned for good reasons, Europe and Germany can score points with reliability, transparency, and long-term commitment. In addition to the EU-CELAC summit in November 2025, another important instrument in this context would be to hold renewed German-Brazilian government consultations before the Brazilian presidential and parliamentary elections in the fall of 2026.

The conclusion of the EU-Mercosur agreement, cooperation on renewable energies, the promotion of sustainable agriculture, the deepening of cooperation in the defense industry and the co-design of global health standards are fields in which Europe and Brazil can jointly set standards. At the same time, it is essential for the EU to strengthen its own raw material security and secure access to key technologies and rare earths in order to maintain its own ability to act.

In the long term, a close partnership with Brazil offers the EU and Germany the opportunity not only to pursue economic interests, but also to jointly develop global standards and actively help shape, reform and strengthen the rules-based international order. However, this requires Europe to respect Brazil as an independent, equal player and to recognize and consider the country's specific interests and experiences. The latter also applies equally to the other side. Symbolic gestures such as Brazilian President Lula's participation in the military parade in Moscow on May 9 to mark the 80th anniversary of the end of the war are detrimental to cooperation with Europe. They hinder trusting, forward-looking cooperation between Europe and Brazil, which could bring great benefits to both sides and contribute to stabilizing the multilateral world order.

Outlook: COP30 and Brazil's global agenda

In November 2025, Brazil will host the UN Climate Change Conference COP30 in the Amazon region in Belém in the final phase of its two-year leadership role - a further step towards positioning itself as a global player in climate and environmental policy and acting as a mediator between the so-called "Global South" and the industrialized nations. The Brazilian agenda focuses on sustainable development, the protection of biodiversity and the promotion of renewable energies. This underlines Brazil's claim to assume not only regional but also global responsibility. The COP30 offers Europe and Brazil a further opportunity to intensify their cooperation on climate protection and related issues and to provide joint impetus for a more sustainable world order.

Conclusion

The emerging multipolar world order is more unstable and prone to conflict than the unipolar phase before. Brazil acts skillfully in the field of tension between the great powers and uses its resources and diplomatic flexibility to secure national interests. Europe should recognize this reality and actively shape its partnership with Brazil to its own advantage.

The influence of the BRICS+ alliance should be viewed soberly - neither overestimated nor underestimated, but with a realistic assessment of its importance and potential. Only through strategic engagement and a little more pragmatism can the EU and Germany safeguard their interests and contribute to stabilizing an increasingly fragmented world. The BRICS+ summit and the upcoming COP30 are touchstones for Brazil's and Europe's ability to help shape a new, complex world order and act on an