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Roads, conservation and governance: Roads, conservation and governance: lessons from BRlessons from BR--163 163
Ane Alencar
lessons from BRlessons from BR--163 163 regional planning processregional planning process
CONDESSA BR163
PAN-AMAZON
Cuiabá-Santarém
Highway
Cuiabá-Santarém
HighwayHighwayHighway
Cuiaba
Santarem
996 km
Cost and benefits of BRCost and benefits of BR--163163
• Integrate Amazon region with southern Brazil
• Enhance transport infrastructure for local populations
• Decrease transport costs for soybean producers and Manaus industrial sector
Benefits
1756 km
996 km Not paved
30% deforested in 100 km buffer
industrial sector
•• Intensification of land occupation Intensification of land occupation (i(illegal land appropriation and speculation)
• Rapid deforestation and intensive logging
• Increase in migration• More social conflicts• Urbanization and social
marginalization• Unbalanced benefits distribution
Costs
Majority of stakeholders want the paving Majority of stakeholders want the paving
jobs
Intensification
Can we change this scenario? Can we change this scenario?
Frontier stage (years)
0 30
Forest
Governance capacity
%Intensification
Stagnation
Natural resources depletionStagnation and
Consolidation
Expansion
Source:Source: Alencar et al. 2004. www.ipam.org.brAlencar et al. 2004. www.ipam.org.br
YES WE CAN!YES WE CAN!
If the main If the main stakeholdersstakeholdersare ready to negotiate:are ready to negotiate:
1. Recognize differences in power and
information, and level the playing field for
YES WE CAN!YES WE CAN!
information, and level the playing field for
negotiation
2. Have clear proposal and objectives
3. Define and negotiate priorities
4. Identify strategies to implement these
priorities
5. Ensure a participatory process
SocioSocio--environmental Movement engagementenvironmental Movement engagement
Steps taken in this planning processSteps taken in this planning process
1. Knowing the place (understand the
historical context and actual socio-economic
dynamics)
2. Building and strengthening
alliances
......
alliances with local people (identify the main
socio-economic actors and their demands)
3. Exchanging information (promote
discussion and education about future land use
trends and make scientific information available)
4. Defining political strategies for
regional planning process and implementation
(joining forces and planning)
Regional seminarIV
SocialSocial--environmental Movements’environmental Movements’Regional Planning ProposalRegional Planning Proposal 2004
CONDESSA BRCONDESSA BR--163163
Identifying local actorsI
Local meetings and workshopsII
Regional workshopsIII
2000/2001
2002
2003
years
Lower Amazon River Region
Transamazon Region
Respecting stakeholders’ diversity Respecting stakeholders’ diversity and territoriality and territoriality
Mato Grosso Region
BR-163 Region
Bu
sin
ess a
s u
su
al s
ce
na
rioB
usin
ess a
s u
su
al s
ce
na
rio
Go
ve
rna
nce
sce
na
rioG
ove
rna
nce
sce
na
rio
Example of Information brought to the processExample of Information brought to the process
SimulatingSimulatingDeforestation Scenarios Deforestation Scenarios
for BRfor BR--163163
Bu
sin
ess a
s u
su
al s
ce
na
rioB
usin
ess a
s u
su
al s
ce
na
rio
Go
ve
rna
nce
sce
na
rioG
ove
rna
nce
sce
na
rio
for BRfor BR--163163
Source: Soares-Filho, B., A. Alencar, D. Nepstad et al. 2004.
Simulating the response of land-cover changes to road paving and
governance along a major Amazon highway: the Santarém-Cuiabá
corridor. Global Change Biology 10(5)745.
Example of Information brought to the processExample of Information brought to the process
Suitability for
Mechanized agr.
Suitability for
Familiar agr.
Suitability for
Cattle ranching
High suitability
Source: Alencar, A., Soares Filho, B. and Nepstad, D. Manuscript Medium-High suitability
CONFLICTSCONFLICTSCONFLICTSCONFLICTS
Major themes Socio-environmental
movements’ regional
development plan
1) Plan outlining socio1) Plan outlining socio--environmental demandsenvironmental demands
1. Infrastructure and Basic Services
2. Land Zoning and Conflict Resolution
3. Productive Strategies and Natural
Resources Management
4. Social and Cultural Strength of the
local Population
5. Environmental Management,
Monitoring and Protected Areas
Available in:Available in: www.ipam.org.br www.ipam.org.br
2) Creation of 2) Creation of BRBR--163 163 sociosocio--environmental consortium environmental consortium
CONDESSA BR163
December 2004Alter do Chão
BRBR--163 Socio163 Socio--environmental Consortiumenvironmental ConsortiumAssociação Floresta Protegida- AFP
*Associação Terra Indígena do Xingu - ATIX
CEAPAC
Central Unica dos Trabalhadores
*Centro de Estudo e Formação dos Trabalhadores do Baixo Amazonas - CEFT-BAM
Conselho Nacional dos Seringueiros – CNS
Federação de Orgãos para a Assistencia Educacional e Social – FASE Amazônia
Federação dos Trabalhadores da Agricultura do Estado do Pará – FETAGRI- PA
*Federação dos Trabalhadores da Agricultura do Baixo Amazonas
Federação dos Trabalhadores da Agricultura da Transamazônica e Xingu
Fórum da Amazônia Oriental – FAOR
Fórum da Produção Familiar do Baixo Amazonas
*Fórum dos Movimentos Sociais da BR-163
*Fórum Mato-Grossense de Meio Ambiente e Cidadania – FORMAD
*Fundação Viver Produzir Preservar – FVPP
Grupo de Defesa da Amazônia – GDA
Grupo Consciência Indígena – GCI
*Grupo de Trabalho Amazônico - GTA Nacional
GTA- Regional BAM
GTA – Regional Norte de Mato Grosso
(CONDESSA BR(CONDESSA BR--163)163)
Government Partner Researchers (helped in the process) Government Partner Researchers (helped in the process)
Grupo Nova Proposta para a Agroecologia- GTNA
*Instituto Centro de Vida – ICV
*Instituto de Pesquisa Ambiental da Amazônia – IPAM
Instituto Floresta
Instituto Ouro Verde
Instituto Padre João Peter
*Instituto Socioambiental – ISA
MONAPE
MOPEBAM
Proteger / GTA – BAM
Sindicato dos Trabalhadores Rurais de Castelo dos Sonhos
Sindicato dos Trabalhadores Rurais de Itaituba
Sindicato dos Trabalhadores Rurais de Lucas do Rio Verde
Sindicato dos Trabalhadores Rurais de Rurópolis
Sindicato dos Trabalhadores Rurais de Santarém
Sindicato dos Trabalhadores Rurais de Trairão
Embrapa/CPATU, MPEG, UFPA, UNEMAT, UFRA
* Promoting institutions
Government Reaction: Government Reaction: Creation of regional sustainable development planCreation of regional sustainable development plan
1. Land zoning and management
2. Support for sustainable activities
3. Infrastructure for development
4. Social inclusion
Main Government actionsMain Government actions• Formation of Interministery Working Group (GTI-BR163)
• Release and discussion of the 1st draft of the BR-163 Government Sustainability Plan (all stakeholders came to table to construct this plan);
• Creation of first conservation units (2 major extractive reserves)
• Creation of 8 million hectare area of suspended land use activities (LAP)2005
2004
• Creation of 8 million hectare area of suspended land use activities (LAP)
• Release and discussion of the 2nd version of BR-163 Government Sustainability Plan (establishment of a monitoring multi-stakeholder group);
• Development of several operations to control illegal logging and land grabbing; increased government presence and governance
• Creation of Forestry district and 6 more conservation units (Fev)
• Final version of BR-163 Government Sustainability Plan (Jun)
• License to pave
• Zee BR163
• Management plans (preparing for concessions)
2006
07/08
What did we What did we concretely concretely achieve?achieve?
Call attention to the
problem
Forest district
New Conservation Units
problem
Major land zoning
Increase regional
governance
Temporarily
decrease deforestation
2004
Evolution of protected areas along BR163Evolution of protected areas along BR163
Evolution of deforestation along BR163Evolution of deforestation along BR163
� Information and social networks played a key role in attracting federal government attention
�Federal government acknowledged that road infrastructure projects
Lessons learned regarding the Lessons learned regarding the GovernmentGovernment
�Federal government acknowledged that road infrastructure projects must be treated by several ministries.
�Negotiation began between multiple levels of government (Federal and State)
�Federal government moderated multi-stakeholder negotiation
�Government incorporated most elements of social movements’ regional plan proposal; however incentives for production strategies are lacking
�Rapid advances in linking BR-163 social groups
� Social movements gained strength and organization towards a shared objective (unique regional plan)
Lessons learned regarding theLessons learned regarding theSocialSocial--Environmental movements Environmental movements
�Respect stakeholders’ territoriality and sharing of responsibilities in the process
�Data generation and information were fundamental to feeding activities and discussions (e.g. maps and modeling tools opened the door to interaction between researchers, policy-makers and other stakeholders)
�Social-environmental movements played a key role in changing the business-as-usual government strategy for the region
Challenges to the Challenges to the Government Sustainability PlanGovernment Sustainability Plan
Conflicting policies related to the destination of public lands (e.g. Colonist settlements created on top of conservation units)
Regional commodities such as soy, cattle, and more recently sugar cane, are considered strategic products by the Federal government
Credit investment for cattle in Amazon (e.g. in Itaituba, one of the largest municipalities, 96% of credit was for this activity)
Lack of involvement of mainly municipal governments in actions and discussions of Plan
Still no monitoring implemented
Large investments in mining being installed in the same territory (ALCOA Plant in Juriti)
Promote sustainable economies in the region (e.g. establish a strong and legal logging industry)
Reflections on the role of research(er)Reflections on the role of research(er)
Time issue: quick turnaround of materials to make
them applicable for decision-making; process too dynamic for “traditional” research;
Redefine priorities for publication (type and
destination)
Identification of gaps in information; directed research
to fill those gaps (chance to focus research towards problem-solving)
Convey information to diverse stakeholders – make information visual; facilitate its interpretation and use
Thank you Thank you Thank you Thank you
www.ipam.org.br
With support from: USAID, European Union and Moore Foundation
CONDESSA
Consórcio Socioambiental da BR-163