Brazil's south atlantic zone turns 40: challenges and opportunities
As the United Nations General Assembly's Zone of Peace and Cooperation of the South Atlantic (ZOPACAS) marks its 40th anniversary in 2026, it's a timely moment to assess the diplomatic initiative's achievements and limitations.
Birth of a zone
ZOPACAS was created in 1986 to promote peace and cooperation in the South Atlantic, a strategic region caught between the Cold War's rival superpowers and plagued by colonial legacies and domestic conflicts. With 24 member states, including Brazil, Argentina, and African nations along the Atlantic coast, the Zone aimed to innovate on previous UN efforts, like the Indian Ocean Zone of Peace, by emphasizing 'cooperation' and concrete South-South initiatives.
The timing reflected the strengthening of South-South technical cooperation, driven by the 1978 Buenos Aires Action Plan and UN support for these initiatives. ZOPACAS also served as a response to Cold War dynamics, particularly apartheid South Africa's efforts to court support from South American dictatorships to counter the perceived Communist threat in the region.
Brazil's proactive role
As the main proponent and expected paymaster, Brazil's engagement with ZOPACAS has been a test of its commitment to its immediate neighborhood and broader South-South relations. While the Zone has weathered the end of the Cold War and geopolitical shifts, including the rise of China and the crisis of multilateralism, it still faces challenges in maintaining regular ministerial meetings and securing concrete cooperative efforts.
Domestically, Brazil's shifting priorities, from the 1990s' focus on Asian engagement and South American integration to the Workers' Party's reorientation towards Africa and the Global South under Presidents Lula and Rousseff, have impacted ZOPACAS' momentum. The relative lack of institutional capacity in some member states and logistical hurdles, including language barriers and competing commitments, have also hindered the Zone's effectiveness.
A new chapter begins
However, the relaunch of ZOPACAS with the long-awaited Mindelo meeting in April 2023, hosted by Cabo Verde, suggests a renewed commitment from Brazil and its partners. The Final Declaration and Plan of Action outlined key decisions for the forthcoming Rio de Janeiro ministerial in 2026, including the possibility of a more institutionalized structure and a ZOPACAS Defense College.
As Brazil looks to the Zone's future, it must creatively adapt to a more competitive scenario, where different players, from the North and South, have established ties with African partners. Domestic mobilization of government agencies and support for concrete cooperative efforts in areas like maritime security and sustainable development will be crucial for Brazil's continued engagement within ZOPACAS.