This year is the 50th anniversary of diplomatic relations between Brazil and China—a milestone that offers a timely opportunity to reflect on the strategic partnership that has evolved between the two nations.

Since its official establishment in August 1974, this relationship has been characterized by consistency, a quality that has underpinned both the continuity and growth of their bilateral ties.

China's rise as Brazil's largest trading partner has been well-documented, with direct investment today accounting for 30 percent of Brazil's exports and 50 percent of its trade surplus.

But to truly appreciate the depth of this relationship, we must look beyond the numbers and focus on the partnership that has been cultivated over decades.

The Brazil-China relationship is not just a trade partnership, but a strategic partnership built on mutual respect and shared interests.

The history

The seeds of this in-depth partnership were sown during Brazilian President João Figueiredo's visit to China in 1984. Figueiredo, guided by the expertise of Chancellor Ramiro Guerreiro and a team from the Itamaraty (Brazil's indigenous name for the palace where the Ministry of Foreign Affairs is located) colloquially known as "the bearded ones"—progressive figures within the Brazilian Government at that time—carefully laid the groundwork for an enduring relationship. This team recognized the importance of engaging with China, setting the stage for future collaboration.

Two key elements underscoring the consistency of Brazil-China relations emerged from Figueiredo's visit: a trade agreement and three accords in the field of science and technology. These agreements were not just symbolic, but they also provided a roadmap, emphasizing the long-term potential of the partnership.

Fast forward to 1988, when President José Sarney visited China, building on the foundation laid by Figueiredo. By then, trade between the two nations had already surged to $2 billion annually—a testament to the effectiveness of the earlier agreements. Sarney's delegation, comprising two Boeings carrying around 350 people, focused on further deepening ties, particularly in industrial technology, energy and transportation. It was during this visit that Sarney signed the first major bilateral agreement with China—the CBERS satellite program, which remains active to this day.

Sarney's meeting with Chinese leader Deng Xiaoping was particularly telling. Related documentation from the Brazilian Senate reads that when Sarney expressed a desire for a "special relationship" with China, "one that Brazil had not yet experienced with any other country," Deng's response was: "That will come with time."

These remarks encapsulate the essence of their dialogue—a commitment to a long-term, consistent partnership.

The idea of a strategic partnership between Brazil and China, first hinted at during Sarney's time, took formal shape under President Fernando Henrique Cardoso, in January 1995. However, the bilateral relationship flourished with the arrival of President Luiz Inácio Lula da Silva and the Workers' Party in government in the early 2000s.

Lula's 2004 visit to Beijing marked another milestone, with the creation of the China-Brazil High-Level Coordination and Cooperation Committee (COSBAN), established to strengthen and coordinate strategic cooperation across different sectors, including trade, technology and sustainability, and a landmark cooperation agreement between the Federal University of Rio de Janeiro and Tsinghua University in Beijing on climate change and sustainability.

The creation of BRICS during Lula's tenure further solidified Brazil-China relations, providing a platform for more intimate and strategic dialogue among the group's leaders. Established in June 2009, BRICS is now a 10-member group of emerging economies originally consisting of Brazil, Russia, India, China and South Africa.

As China's importance in global manufacturing surged, Brazil adapted its economic strategy, shifting the focus to agriculture—a sector that coincided with China's own economic reform and opening up. Despite these changes, the consistency of the Brazil-China relationship remained intact, adjusting to new realities while maintaining the core principles established decades earlier.

The present

The Brazil-China relationship today is anchored in the strategic partnership forged in the 1990s. China relies heavily on Brazilian exports, including soybeans, iron ore, proteins and cellulose, among other key commodities. This dependency is not merely transactional. It stems from the reality that alternative suppliers, including the United States, often present challenges for China due to geopolitical tensions. In times of global crisis, China has consistently turned to Brazil, increasing its imports to ensure stability in its supply chains.

Beyond trade, the strategic nature of this partnership is further exemplified by China's considerable investment in Brazil's critical infrastructure. A prime example is the acquisition of CPFL Energia, a Brazilian company that operates in all segments of the country's power sector, by China's largest power grid operator, State Grid Corp., in 2017, making China the owner of the largest energy distribution company in São Paulo, Brazil's economic hub. This intertwining of interests underscores the depth of the strategic ties that bind the two nations, with Brazil serving as a reliable supplier of essential goods and China as a major investor in Brazilian infrastructure.

The bilateral relationship today remains anchored in an institutional framework that has the potential to shape both nations' futures, i.e., the earlier mentioned COSBAN. 

COSBAN represents a unique strategic cooperation structure between Brazil and China. Unlike Brazil's relationships with other global partners, this framework is unparalleled, comparable only to Brazil's close ties with members of Mercosur (the Southern Common Market) in South America, which is one of the world's leading economic blocs.

Brazil has engaged in a broad exercise of identifying its specific interests in its relationship with China, a process reflected in numerous bilateral agreements, memorandums and declarations. These documents, while not a national strategy for China in themselves, provide insights into the commitments Brazil and China have made and the implementation of these commitments.

The revitalization of COSBAN following the 2008 global financial crisis, with five meetings held between 2010 and 2019, and most recently in 2024, despite the volatile political climate in Brazil between 2016 and 2018, highlights the resilience of this partnership.

The strategic plans developed and signed over the last decade all signal Brazil's unwavering commitment to deepening ties with China.

They represent an attempt to address planning and coordination deficiencies, reflecting Brazil's determination to enhance political dialogue and synchronization in international forums with its Asian partner. These plans, while ambitious, have often been ahead of their time, proposing objectives that depend on levels of trust and decisions that are still evolving within the context of the countries' partnership.

The future

While Brazil-China relations have seen successes, they also present challenges that must be addressed to ensure sustained mutual benefits. Key among these are the need to diversify trade relations, enhance industrial competitiveness and prioritize sustainability.

Currently, Brazil's exports are heavily commodity-focused, which limits the development of more complex production chains. To move forward, the country must focus on exporting higher value-added products and services, expanding trade into diverse sectors—a strategic necessity for the future.

Chinese investments in Brazil, totaling over $71 billion across multiple sectors in the last 17 years, highlight the growing importance of the partnership. Both nations must treat agricultural trade with strategic importance, focusing on sustainability and long-term food security through mature dialogue and mutual trust.

Brazil needs to establish a strong framework of cooperation and formal trade agreements with China to reduce risks and diversify its economy.

The infrastructure sector also requires enduring vision and effective communication among stakeholders to foster a conducive environment for investment.

As global uncertainties persist, maintaining clear political dialogue with China is vital.

Looking ahead, sustainability will be the central theme of the Brazil-China relationship.

Both countries have the potential to lead in eco-scientific research, technology and biotechnology, setting global standards for sustainable development. The shift toward a low-carbon economy is inevitable and requires a radical transformation of consumer behavior and corporate practices.

China is likely to be a global leader in this area, and Brazil has a big role to play as a partner in this transformative journey. 

The author is a Brazilian researcher of international relations and an editorial consultant at China Hoje magazine

(Print edition title: Five Decades of Consistency)

Copyedited by Elsbeth van Paridon

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