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russiancouncil.ru On 30 September 2026, the Russian International Affairs Council (RIAC), together with the Center for Knowledge Diplomacy and the journal Diálogos do Sul Global, held a roundtable titled "Brazil's Choice — 2026: Scenarios of Impact on Russia-Brazil Relations".
Opening remarks were given by Ivan Kryazhev, Deputy Director for International Relations at the Centre for Knowledge Diplomacy; Alexandra Terzi, Program Coordinator at RIAC; and Vanessa Martina-Silva, Editor-in-Chief of Diálogos do Sul Global.
The expert discussion brought together Feliciano de Sá Guimarães, Associate Professor at the Institute of International Relations at the University of São Paulo and Editor-in-Chief of CEBRI-Journal; Leonardo Attuch, President of the Instituto Sul Global and founder of Brasil 247; Varvara Kuznetsova, Research Fellow at the Institute of Latin America of the Russian Academy of Sciences; Ana Lívia Araújo Esteves, Lecturer at the Faculty of World Economy and International Affairs at HSE University; Daniela Vieira Secches, Coordinator and Co-founder of the Observatório Rússia-América Latina (Ruslat) and Professor at the Pontifical Catholic University of Minas Gerais (PUC Minas); Gustavo Pessoa, Professor of Economics at the Getulio Vargas Foundation; Vanessa Martina-Silva, Editor-in-Chief of Diálogos do Sul Global; and Alexandra Terzi, Program Coordinator at RIAC. The discussion was moderated by Ivan Kryazhev, Deputy Director for International Relations at the Center for Knowledge Diplomacy.
The experts discussed the current dynamics of Brazil's presidential campaign and how uncertain its outcome remains, the role of Parliament in the country's political landscape, what previous governments' experience can tell us about the future course, the inertia of Brazilian foreign policy and its ability to stay multi-vector if the political leadership changes, the risks facing BRICS as foreign policy priorities shift, and the structural and situational factors shaping Russia-Brazil relations.
Teses da mesa-redonda "A Escolha Brasileira — 2026: cenários de impacto nas relações Rússia-Brasil"
Key pointsFeliciano de Sá GuimarãesForeign policy in Brazil is no longer a niche topic and increasingly shapes how people vote. Over the past decade, more deputies and senators have been elected on platforms with an international agenda, and the Committee on Foreign Affairs and National Defense is now one of the most contested in Congress. This means a candidate's stance on the US, Russia, Ukraine and Venezuela can directly pull voters closer or push them away.
Research from the University of São Paulo (USP) shows that approval or disapproval of the president is most closely tied to four international issues: Venezuela, the Israel–Palestine conflict, the war in Ukraine, and Brazil's relations with the Trump administration — the last being the most important. On three of the four, Lula is far from the median voter; he is closest on sovereignty and resistance to US pressure. Flávio, by contrast, is closer to the median voter on several of these issues, especially Venezuela and a hard line on organized crime.
If Lula is re-elected, the course towards Russia stays the same: there may be personnel changes at Itamaraty (C. Amorim, M. Vieira), but no abrupt shifts. The only new factor is the Mercosur–EU agreement, which could nudge Brazil slightly closer to European positions, above all on Ukraine. If Flávio wins, the picture is different: his foreign policy team is not yet formed, and within Bolsonarism two groups are competing — the "ideological" one, now weakened, and the "pragmatic" one. The latter's 22-page program text in Gazeta do Povo could have been written by any right-wing politician, not just a Bolsonarist. That points to a tactical goal — winning voters, calming the market and Washington — rather than an ideological shift.
The bilateral relationship can be split into structural and volatile elements. The structural one is Brazil's dependence on Russian fertilizers: the Achilles' heel of its agricultural economy. Any government will try to reduce it, but none will break off relations. The volatile element is the role of BRICS and the position on Ukraine. Flávio and his team signal a possible exit from BRICS or a minimized role, as under Jair, but that is risky given the consequences for relations with China.
Leonardo AttuchUnder Lula, Brazil–Russia relations will keep developing. Recent signals include Patrushev's visit to Brazil, Celso Amorim's trip to Russia, and discussions on defense and fertilizers. There is no reason to expect a deterioration in bilateral cooperation, since the trade agreement with the EU does not oblige Brazil to follow European positions on the war in Ukraine. Brasília has always stood against wars and has pushed to unite supporters of peaceful development. What is more, the belligerent line in Europe itself is running out of steam, weakening centrist governments and strengthening the far right.
In a hypothetical Flávio government, foreign policy would in practice be run by Marco Rubio, which would mean distancing from BRICS but not leaving it. Brazil cannot walk away from the bloc: China is its largest trading partner, the US runs a trade deficit, and the country is betting on ties with India and Russia. Jair did not pull Brazil out of BRICS, and Flávio would not either. What would change is the tone, not the direction: bilateral relations rest on a structural foundation that resists a change of government.
Brazil's election is part of a broader regional story. A Lula victory would act as a counterweight to Trump in the Western Hemisphere and would encourage political change in Argentina, where Milei is struggling to secure re-election. Under Flávio, the agenda would be set by the "Shield of the Americas" line: criminalizing the poor and those on the periphery, and an extremely negative scenario for South American integration.
Varvara KuznetsovaWith just days to go before the election, any forecast risks turning into speculation. The idea is to read the main candidates' programs like a "book of divination", through the eyes of the median Brazilian voter. That means focusing on what voters pick up quickly: images, visual style, strong ideological concepts and key slogans.
In 2022, the programs were predictable: Lula's ran to 21 pages, with a single image and criticism of the previous government; Jair Bolsonaro's ran to 48 pages, a heavy, dense text focused on the economy and on justifying the pandemic response. In 2026, the programs have become more elaborate and read like two films of different genres: Lula's is a large-scale biopic, 84 pages long, with the aesthetics of a great personality; Flávio's is a mix of "City of God" and "Elite Squad" — austere visually and centered on security.
Lula's program is built around strong ideological concepts, with "sovereignty" as the central word, mentioned on 21 of its 84 pages; then come "diversity", "justice" and "democracy". It is a text that, for the first time in the Brazilian left tradition, asserts racial policy so explicitly. Flávio's program, by contrast, avoids words like "nation" and "people", using "Brazilian" at the individual level. Its strongest concept is "cidadão de bem" ("upstanding citizen") — an expression that provokes and defines the voter the text is aimed at.
Visually, the contrast is clear: Lula — extravagance; Flávio — banality. But in terms of values, something deeper is at stake: the central question seems to be who will openly say "I am an upstanding citizen" and vote for Flávio, and who will choose a different model. Election programs are the only thing that is not volatile in these campaigns: everything else shifts with the audience, but what is written stays.
Ana Lívia Araújo EstevesThe dissertation on Russia–Brazil relations under Jair Bolsonaro revealed a dynamic that mirrors the struggle between groups within Bolsonarism. In the first phase, with Ernesto Araújo at Itamaraty, foreign policy was heavily ideologized and inspired by Olavo de Carvalho. Russia was first seen as a possible conservative model and later as a threat, tied to Maduro and the Foro de São Paulo (an umbrella of Latin American left-wing parties founded in 1990). That policy did not hold, because it did not serve the interests of Brazilian economic and political groups, and Congress eventually forced Araújo out.
With Carlos França's arrival, Russia–Brazil relations were not only restored but deepened. One of those who shaped policy towards Russia at the time was Brazil's Ambassador Extraordinary and Plenipotentiary in Moscow — who also helped craft the line on Ukraine. Between the França period and the Lula government there is striking continuity: the key guidelines — a position grounded in the UN Charter, refusal of sanctions, avoiding Russia's isolation, and keeping diplomatic dialogue with Moscow — remain unchanged.
Russia–Brazil relations are stable and have their anchors, but they are constrained by external pressure. A former Russian ambassador to Brazil noted that the two countries can only cooperate up to a point and on certain issues: when defense comes up — as with the purchase of Russian Pantsir systems under Dilma — negotiations stall. Today the relationship operates within what the hegemon allows, in the area of fertilizers, which does not clash with American interests. Any attempt to expand it has historically run into obstacles, regardless of who is in power.
Under Flávio, new factors come into play — Marco Rubio, the Monroe Doctrine — that could make things more complicated than under Jair. Even so, if relations stay within permitted limits, nothing suggests Flávio would struggle to maintain them. Marcos de Galle, who co-wrote the essay on a possible Bolsonarist foreign policy with Eduardo Bolsonaro, was one of the Brazilian officials who visited Russia most often under Carlos França, working in the secretariat for the import and export of defense products. He knows the Russia file well. The main difficulties may lie in BRICS: with the bloc's expansion, intra-bloc dynamics may matter less for bilateral ties, and the trend points to continuity whoever wins.
Daniela Vieira SecchesRussia and Brazil established diplomatic relations in 1828; they will soon mark 200 years. Over that time, ties have almost never been broken, and even in crises interaction continued. This is explained by a strategic resilience that does not depend on absolute ideological alignment but on reasons of state. The two countries share structural features — a vast territory, a heterogeneous population and a semi-peripheral position in international politics and economics — which brings them closer on the agenda of autonomy and diversification.
Brazil sees itself as a middle power with international ambitions and distinctive weight in the region. Its foreign policy has two historical engines: the pursuit of autonomy and state pragmatism, which prioritises economic results. These traditions run deep: even in periods when autonomy weakened, as under Dutra or Castelo Branco, there was no complete break, and the previous course was later restored.
The historical resilience of the relationship will face unprecedented pressure. At home, there is deep polarization and a fragmented Congress, where coalition presidentialism depends on deals with parliamentary blocs. The Foreign Affairs Committee is growing stronger, and it was congressional pressure that helped remove Ernesto Araújo. Abroad, US policy is more aggressive and interventionist — tariffs, attacks on Pix and political pressure — raising the geopolitical cost of Brazilian autonomy.
It is within BRICS that Lula's and Flávio's visions diverge most. Lula is the only candidate who openly defends the bloc's geopolitical dimension. Flávio sees BRICS purely as an economic platform and wants Brazil to step back from its geopolitical agenda. If Brazil does so, it will be sidelined from decisions taken within BRICS — and that will ultimately hurt its own economic interests. Another candidate, Romeu Zema, openly advocates leaving the grouping. On Russia, the central issues are fertilizers and fuels: trade dependence and closeness of positions on international issues are likely to persist whoever takes the presidency — with the caveat of internal and external pressure.
Gustavo PessoaFinancial markets in Brazil and abroad are guided by practical interests, not ideology. That explains why Flávio briefly gained an edge in the markets: he promised a liberalism that has never worked anywhere, and the market saw a candidate weak on team. Bankers who met Flávio said he had neither a solid program nor a clear plan for the country — quite unlike Lula or Jair Bolsonaro, who already had a defined economic line and people in place across the board.
Under Lula, the trend is small adjustments and improvements: it is already clear what economic and social policy will look like. Under Flávio, it is unclear who will shape economic policy and international relations. Flávio will have to "sell" parts of government in exchange for support, and it is unclear who will end up buying them. What is more, a Flávio victory would not really be his: it would be a rejection of Lula and the PT. Flávio is not an autonomous figure with his own proposals but a product of anti-PT sentiment.
Countries have no friends — only interests. So even if Flávio wins, do not expect abrupt changes in relations with Russia. Under Jair Bolsonaro, ties with Russia actually deepened somewhat, because trade and economic links take years to build. The Mercosur–EU deal took thirty years; BRICS is a construction of decades. It is highly unlikely that a change of president would hurt trade with Russia. What is certain is instability — the same pattern seen in the US under Trump — and that creates risk for long-term joint projects.
Financial markets are the media's main sponsor: not only through the capital they inject but through the structure they organize. With money, time and interests, dominant elites build a media machine capable of manipulating a large part of the population. Ordinary voters struggle to grasp complex issues like diplomatic relations between countries, and the media becomes the channel through which banks, fortunes and conglomerates shape votes. In a democracy, the vote of the poorest counts as much as that of the richest — which is why it matters to understand this link between big banks, corporations and control over the population.
Vanessa Martina-SilvaBrazil's 2026 election is not an ordinary one, and it does not look like the "festival of democracy" people like to celebrate. The race is practically tied, and the result could come down to less than one percentage point. In 2022, Lula beat Jair Bolsonaro by a narrow margin; now the picture is even less predictable, with the prospect of an extremely tight second round.
The post-election period is a particular worry. Institutions that should act as checks and balances are toxically politicized, above all the judiciary. The Superior Electoral Court (TSE) is chaired by a minister appointed by Jair Bolsonaro and implicated in scandals tied to Bolsonarist interests. On 8 January 2023, there was an attempted coup; today, the key figures in that process are in prison, while the minister who led the investigation, Alexandre de Moraes, is himself politically discredited. That only deepens the unpredictability and vulnerability of the political process.
The US is applying enormous pressure on Brazil — tariffs resembling economic sanctions, attacks on Pix, interventionist demands. These are elements of a hybrid war aimed at destabilization. On top of that comes a communication war: the hegemonic media presents Lula and Flávio as equals, which is impossible, since Lula is a statesman with three terms and a consolidated party. Rejection of the PT rests largely on a feeling that does not match the numbers: the Brazilian economy is growing, but people perceive it differently — much as under Dilma, when, despite full employment, a negative view of the economy helped pave the way for impeachment.
While topics of interest mainly to the intellectual elite are being debated, ordinary Brazilians are arguing over whether Nossa Senhora Aparecida can be the country's patroness — amid neopentecostal projects. Besides the president, two of each state's three senators are elected, and there is a system for distributing public money through the Party Fund that is now wildly disproportionate: the far right gets an enormous share for lavish campaigns, while the left and centre struggle far more. Then there is coalition presidentialism, in practice close to semi-presidentialism, with budget amendments that each deputy steers to their own electoral fiefdom — a neo-coronelism that guarantees constant re-election.
Alexandra TerziMapping the foreign policy teams of the two main candidates revealed two quite different elites. In Lula's case, continuity is clear: Amorim, Vieira, Maria Laura da Rocha and Audo Faleiro were all part of the UN General Assembly delegation last week. Two elements will hold whatever the outcome: Galípolo at the Central Bank until 2028 and Dilma at the BRICS bank until 2030. In Flávio's case, the elite is still taking shape: the campaign nucleus is Rogério Marinho; the program is under the influence of Paulo Guedes, with Campos Neto and Marcos Troyjo as informal advisers; the family and the ideological wing today barely take part directly. Worth noting: three campaign strategists in five months, and no identified authors of the foreign policy strategy.
Under Lula, minimal changes are expected: a successor to Amorim, who is 84, and the return of ministers who were not elected to other posts. Under Flávio, the scenario is more uncertain, because the team is not yet formed and there is internal infighting. Flávio's camp sends contradictory signals depending on the audience — and it is precisely this inconsistency that makes any forecast about him shaky. The message changes, but the overall direction points to closer alignment with Washington.
In a Flávio government, the most likely outcome for BRICS is a downgrade rather than a withdrawal. Leaving the bloc comes up only in an interview for an American audience; the candidate's closest adviser on the issue once chaired the bloc's bank; and Dilma stays at the bank until 2030. On Russia, none of the candidates proposes sanctions, and Flávio speaks of neutrality in the war in Ukraine. The biggest shift could come in policy towards the Global South: Mercosur drops out of the priorities, and the OECD and Western partners move in.
The decisive moment will be the announcement of the team: the names for Itamaraty and the economic bloc will either confirm the forecast or prove it wrong. If Flávio wins, 2027 — the BRICS summit under Chinese chairmanship — will be the first test of his course in that direction.