In a sense the origin of the Rio Group can be located in the crisis which Central America faced in the 1980s. Political polarization, repression, egregious violations of human rights, violence and crippling underdevelopment were much in evidence. By 1984 Central America was a region at war and had become a theatre in which the superpower rivalry between the USA and the USSR was allegedly being manifested.
Support for revolutionaries has never been a policy option exercised by the USA in Central America. However, an additional consideration in the determination of US policies there in the 1980s was the prevention and eradication of Soviet strategic outreach. On the other hand the emergence of the socialist Sandinista government in Nicaragua and the support given by that government and Cuba to liberation movements elsewhere in the neighborhood was perceived as adding a Cold War dimension to conflicts in the region.
The USA was never comfortable with a Sandinista-led Nicaragua (remember Ronald Reagan's avowal that the Sandinistas should cry 'Uncle'). Nevertheless the USA continually held out the prospect of negotiations with Nicaragua and with respect to the region as a whole. In the result, however, US policies hardened, especially under President Reagan. Specifically he embraced the CIA- backed Nicaraguan rebel group known as the Contras and pressured the Sandinistas in several ways to change course. More generally, it was surmised that for the USA "(T)he goal in Central America was and is to prevent the spread of left-wing revolutions. This was to be accomplished by a three-way policy- frighten Cuba and Nicaragua with the threat of intervention; build up El Salvador, Honduras and others with military and economic aid and maintain a negotiating process." ('Reagan Foreign Policy' by Leslie H. Gelb - New York Times, October 26, 1984). Interestingly, the USA was doing in Nicaragua then what it accuses Iran of doing in Iraq today; and ironically, it was the USA which involved Iran indirectly in Central America through the Iran Contra Affair.
Other developments on the international scene involving both state and non-state actors had a bearing on the search for solutions to the crisis in Central America. Prominent among them were:-
(a) the quest by Latin America and Caribbean states for regional identity coupled with greater capability for the pursuit of their collective interests;
(b) the growing assertiveness of European foreign policy;
(c) the impact of the Non-Aligned Movement;
(d) the role of socialist and social democratic parties in Europe, Latin American and Caribbean countries in influencing policies of governments both directly and through the activities of the Socialist International.
In the interplay among the various influences, peace through negotiations was widely advocated. It was in such a context that Colombia, Mexico, Panama and Venezuela took an initiative to deal with the Central American crisis. Known as the Contadora Group (they first met on the Panamanian island of Contadora) those countries produced a Peace Plan in 1984. The next year representatives from Argentina, Brazil, Peru and Uruguay met in Lima in support of the Contadora Group. Subsequently at a meeting in Rio de Janeiro in 1986 a fusion of the two Groups was effected. Based on their experience of collaboration in the Contadora and Support Groups they widened their agenda for action by deciding to strengthen political co-ordination by having regular consultations on issues which affect or are of interest to their countries "in the context of a growing Latin American unity". In this respect the countries recognised the need for joint efforts to assist them to find their own solutions to difficulties they faced and to promote independent and sustained development in the region and to strengthen democracy.
A permanent mechanism of political consultation and coordination - The Rio Group - was constituted. The major objectives of the Group were set out as follows:
* to expand and systematise political cooperation among the member states;
* to examine international issues which may be of interest and coordinate common positions on these issues;
* to promote more efficient operation and coordination of Latin American cooperation and integration organizations.
* to present appropriate solutions to the problems and conflicts affecting the region;
* to provide momentum, through dialogue and cooperation, to the initiatives and actions undertaken to improve inter-American relations;
* to explore jointly new fields of cooperation which enhance economic, social, scientific and technological development.
It was also agreed that systematic dialogue would be promoted with other countries and groups of countries within and outside the region.
Over the years the membership of the Rio Group has been expanded. In 1989 Caricom accepted an invitation from the Group to be represented at that forum. Jamaica was designated the first regional representative and was succeeded by Trinidad and Tobago. Since 1998 Guyana has been Caricom's representative at the forum. Today the Group comprises all the countries of Central America, Mexico, the Dominican Republic and all of South America except Suriname. The Group does not have a permanent secretariat. However each country charged with the responsibility for hosting consultations at the highest political level provides a Pro Tempore (temporary) Secretariat.
The highest level at which consultation are usually held - annually - is that of presidents. At that forum group positions on important issues are determined and policy decisions made. These are normally expressed in Declarations issued at the conclusion of summits. Group consultations are also held at other levels including that of foreign ministers.
Issues on which positions and principles have been shared and agreed include democracy, the achievement and consolidation of peace in Central America, actions against terrorism, corruption, the narco enterprise and its derivatives, the promotion and protection of human rights, the strengthening of multilateralism, trade relations, investments and financial flows, poverty eradication and sustainable development.
The Group promotes its positions and policies primarily at the United Nations and at specially arranged meetings with specific countries and groups of countries such as Canada, China, the Republic of Korea, the Russian Federation, the African Union, the European Community and the Gulf Cooperation Council.
What has the Rio Group achieved over the years? First, like the Latin American Economic System (SELA), and unlike the Oeganization of American States (OAS) the forum can discuss issues of interest to them without the dominating - some may say domineering - presence of the regional hegemon, the United States. Secondly, the Rio Group has not only pointed the way to a peaceful solution to the Central American crisis but has also contributed significantly to that solution by promoting dialogue and reconciliation. When the Group made an assessment of its accomplishments on the occasion of its tenth anniversary it concluded that "the objectives that inspired us, such as the strengthening of consultation and concerted political action, are being fully realized. In these years of uninterrupted dialogue, the mechanism has effectively represented the interests of Latin America and the Caribbean, thus becoming a fundamental element of regional unity and solidarity".
More specifically the Group has asserted inter alia that it has:
- contributed to the defence and consolidation of representative democracy and human rights, essential principles for our peoples;
- become a renowned interlocutor on the international scene and maintains continuous and increasingly expansive dialogue with different regions and countries in the world;
- consistently supported and promoted regional integration, which has made substantial progress as evidenced in the increase of trade and intraregional investments.
Presumably, the fact that the Group continued to meet thereafter and to update, refine and add to its positions is an indication of its conviction that its efforts remain effective in achieving its original objectives.
The agenda for the Rio Group's Guyana Summit is not yet in the public domain. However President Bharrat Jagdeo has been reported in the media as saying that the focus at the meeting will be on social issues. It is expected, however, that other issues which have become part of the customary menu will be discussed.
Take democracy for example. This has been a constant theme in Rio deliberations. The region has a well established tradition of adherence to the principle of non-interference in the internal affairs of states. Will this forestall discussion on democratic aberrations? It would be good if consideration of democracy could include the need for greater democracy at the international level. Another important issue which the summit might address is the role of civil society nationally, regionally and globally.
On the economic front President Jagdeo is reported to have said that in the past the Group "had a lot of deliberations on trade issues…" Having regard to the damaging effect the Washington Consensus has had on many economies in the developing world, including countries in Latin America and the Caribbean, including the marginalization of vulnerable groups and the increase in poverty it may be useful for the summit to launch an initiative aimed at developing an alternative "consensus" rooted in the needs and experiences of the members of the Rio Group. The ideas and talents of civil society and other non-state actors in the region could be engaged in this enterprise which can, with advantage, be linked to the consideration of social issues.