Ane Alencar

Roads, conservation and governance:

lessons from BR-163

regional planning process

CONDESSA BR163

ane@ipam.org.br

PAN-AMAZON

Cuiabá-Santarém

Highway

Cuiaba

Santarem

Planning the Amazon and

BR163

• Operação Amazonia (1965 – 1969)

• PIN - PND I (1970 – 1973)

• Polamazônia - PND II (1974 – 1979)

• Brasil em Ação - PPA (1995 – 1999)

• Avança Brasil – PPA (2000 – 2003)

• Brasil de Todos – PPA (2004- 2007)

• PAC

Historically these plans have represented the vision of the State to reach its interests as a nation

BR-163 History

BR163 e o PAC

Frontier Evolution

Mineral and Vegetal

ExtractivismExtensive Cattle

Ranching and slash

and burn agriculture

Intensive cattle ranching

and perrenial crops

Large scale cropsLarge scale crops

with high value in

the market

BR163

N

Soybeans productionareas

Experimentalsoybeans areas

Source: IBGE and Costa,2000

•Santos

•Paranagua

•Santarem

The way of Mato Grosso’s Soy

Porto Velho

•Cuiaba-Santarem would represent a

increase of 18.7% of the soy area in

Amazonia (Castro, 2002)

•Representing a reduction in soybean

transport costs from Northern Mato

Grosso by nearly $80-120 million per

year (depending on the price of soy),

•Exporting for Porto Velho generated

an economy of $23.5/ ton

1756 km

996 km

Not paved

Cost and benefits of BR-163

30% deforested in 100 km buffer

• Integrate Amazon region with

southern Brazil

• Enhance transport infrastructure

for local populations

• Decrease transport costs for

soybean producers and Manaus

industrial sector

• Intensification of land occupation

• Illegal land appropriation and speculation

• Rapid deforestation and intensive logging

• Increase in migration

• More social conflicts

• Urbanization and social marginalization

• Unbalanced benefits distribution

Benefits

Costs

Majority of stakeholders want the paving

Defasagem temporal entre custos e benefícios

Com a duração da

obra tem

defasagem de 8 a

10 anos entre o

início do dano e do

benefício.

Linha do tempo dos custos e benefícios ao longo das etapas da pavimentação

Início da obra Conclusão da obra Anúncio da obra

Início do dano socioambiental

Tempo (anos)

Início do benefício (transporte)

Investimento

Investimento em governança

Efeito do investimento em governança

t0 t0+4

t’0+1-2 t’0

t0-5

O dano ambiental

antecipou em 4 a 6

anos o início da

obra.

Tem uma defasagem

estimada em no

mínimo 1 a 2 anos,

entre as medidas de

governança e seu

resultado efetivo.

O investimento na mitigação dos impactos negativos da pavimentação, especialmente o ordenamento territorial e a criação e proteção de UC’s, deve ser prioridade absoluta para reverter o atraso acumulado desde o anúncio da obra.

Fonte: Alencar et al. 2005. A pavimentação da BR-163 e os desafios à sustentabilidade: uma análise econômica, social e ambiental. Conservation Strategy Fund. Belo Horizonte. Disponível em: www.ipam.org.br

Frontier stage (years)

0 30

Forest

jobs

Governance capacity

%Intensification

Stagnation

Natural resources depletionStagnation and

Consolidation

Expansion

Can we change this scenario?

Source: Alencar et al. 2004. www.ipam.org.br

We believe it is possible

If the main stakeholders

are ready to negotiate:

1. Recognize differences in power and

information, and level the playing field for

negotiation

2. Clarify different objectives

3. Define and negotiate priorities

4. Identify strategies to implement these

priorities

5. Ensure a participatory process

Linhas de AçãoAções para a construção de um processo de planejamento

1. Capacitação dos atores locais em planejamento e gestão

2. Fortalecimento institucional das entidades da sociedade civil

para avaliação e monitoramento dos programas e ações dos

planos

3. Desenvolvimento de experiências de planejamento local

4. Mobilização e articulação dos atores para a elaboração e

implementação do plano

5. Desenvolvimento de cenários como ferramenta de apoio ao

planejamento

6. Disseminação da experiência do planejamento regional

Steps taken in this planning process

1. Knowing the place (understand the

historical context and actual socio-economic

dynamics)

2. Building and strengthening

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)

...

Building and strengthening alliances, knowing the place

and defining strategies

1) Local Meetings and Workshops

3) Regional Workshops 4) Local government meetings

2) Participatory land use mapping

http://www.ipam.org.br/web/index.php

Main problems of BR163 according to

the workshops

Busin

ess a

s u

sual s

cenario

Govern

ance s

cenario

Example of Information brought to the process

Simulating

Deforestation Scenarios

for BR-163

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.

Bu

sin

ess a

s u

su

al

Go

vern

an

ce

Source: Soares Filho et al. 2006. Nature

Example of Information brought to the process

Suitability for

Mechanized agr.

Suitability for

Familiar agr.

Suitability for

Cattle ranching

Source: Alencar, A., Soares Filho, B. and Nepstad, D. Manuscript

High suitability

Medium-High suitability

CONFLICTS

Identifying local actorsI

Local meetings and workshopsII

Regional workshopsIII

Regional seminarIV

Social-environmental Movements’Regional Planning Proposal

2000/2001

2002

2003

2004

years

CONDESSA BR-163

Socio-environmental Movement engagement

Mato Grosso Region

BR-163 Region

Lower Amazon River Region

Transamazon Region

Respecting stakeholders’ diversity

and territoriality

BR-163 Socio-environmental Consortium

Government Partner Researchers (helped in the process)

Associação 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

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

(CONDESSA BR-163)

Major themes Socio-environmental

movements’ regional

development plan

1) Plan outlining socio-environmental 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: www.ipam.org.br

Oficina de Trabalho BR-163 Sustentável27 a 29 de abril de 2004

Brasília

Representantes do Governo

1. Infra-estrutura rural e urbana (Transportes e Saúde)

2. Ordenamento fundiário (ZEE e política fundiária para a agricultura familiar)

3. Gestão Ambiental (Criação e consolidação de áreas protegidas, gestão de

propriedades privadas e reestruturação dos órgãos públicos)

4. Estratégias produtivas (Criação de novos pólos do Proambiente)

5. Fortalecimento social e cultural (Participação da sociedade civil no GT

interministerial da BR-163)

Ministério do Meio Ambiente

Ministério do Desenvolvimento Agrário

Ministério dos Transportes

Ministério da Saúde

Ministério da Integração Nacional

Casa Civil

Ações prioritárias negociadas

2) Creation of BR-163 socio-environmental consortium

December 2004

Alter do Chão

CONDESSA BR163

Government Reaction: Creation of regional sustainable development plan

1. Land zoning and management

2. Support for sustainable activities

3. Infrastructure for development

4. Social inclusion

Main Government actions• Formation of Interministry 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)

• 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 (Map and state law)

• Management plans (preparing for concessions)

2006

2005

2004

07/08

What did we

concretely

achieve?

Call attention to the

problem

Major land zoning

Increase regional

governance

Temporarily

decrease deforestation

Forest district

New Conservation

Units

2004

Evolution of protected areas along BR163

Evolution of deforestation along BR163

A política da BR-163 como oportunidade

• Necessidade de Coordenação (executiva) definida.

• Priorização orçamentária.

• Modelo de gestão em funcionamento.

• Tomada de decisão conjunta Sociedade Civil e Governo – conselho deliberativo no modelo de gestão.

Plano BR-163

Modelo de Gestão

GTI e Sociedade Civil

Plano de Ação Orçamentária

Fonte: Velasquez 2007. ISA/Condessa.

Challenges to the

Government Sustainability PlanConflicting 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)

Information and social networks played a key role in attracting

federal government attention

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

Lessons learned regarding the

Government

Rapid advances in linking BR-163 social groups

Social movements gained strength and organization towards a shared objective (unique regional plan)

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

Lessons learned regarding the

Social-Environmental movements

Gracias

www.ipam.org.br

With support from:

USAID, European Union and Moore Foundation

CONDESSA

Consórcio Socioambiental da BR-163