Brazil - The Environment

According to many critics, the economic crisis in the 1980s worsened environmental degradation in Brazil because it led to overexploitation of natural resources, stimulated settlement in fragile lands in both rural and urban areas, and weakened environmental protection. At the same time, however, the lower level of economic activity may have reduced pressure on the environment, such as the aforementioned decreased level of investment in large-scale clearing in the Amazon. That pressure could increase if economic growth accelerates, especially if consumption patterns remain unchanged and more sustainable forms of production are not found.

Among the specific environmental projects with international support, the most important was the National Environmental Plan (Plano Nacional do Meio Ambiente--PNMA), which received a US$117 million loan from the World Bank (see Glossary). The National Environmental Fund (Fundo Nacional do Meio Ambiente--FNMA), in addition to budgetary funds, received US$20 million from the Inter-American Development Bank (see Glossary) to finance the environmental activities of NGOs and small municipal governments. The Pilot Program for the Conservation of the Brazilian Rain Forests (Programa Piloto para a Prote��o das Florestas Tropicais do Brasil--PPG-7) was supported by the world's seven richest countries (the so-called G-7) and the European Community (see Glossary), which allocated US$258 million for projects in the Amazon and Atlantic Forest regions. The Global Environment Facility (GEF), created in 1990, set aside US$30 million for Brazil, part of which is managed by a national fund called Funbio. GEF also established a small grants program for NGOs, which focused on the cerrado during its pilot phase. The World Bank also made loans for environmental and natural resource management in Rond�nia and Mato Grosso, in part to correct environmental and social problems that had been created by the World Bank-funded development of the northwest corridor in the 1980s.

Desertification, another important environmental problem in Brazil, only received international attention following the United Nations Conference on the Environment and Development, also known as the Earth Summit, held in Rio de Janeiro in June 1992. Desertification means that the soils and vegetation of drylands are severely degraded, not necessarily that land turns into desert. In the early 1990s, it became evident that the semiarid caatinga ecosystem of the Northeast was losing its natural vegetation through clearing and that the zone was therefore running the risk of becoming even more arid, as was occurring also in some other regions.

In urban areas, at least in the largest cities, levels of air pollution and congestion are typical of, or worse than, those found in cities in developed countries. At the same time, however, basic environmental problems related to the lack of sanitation, which developed countries solved long ago, persist in Brazil. These problems are sometimes worse in middle-sized and small cities than in large cities, which have more resources to deal with them. Environmental problems of cities and towns finally began to receive greater attention by society and the government in the 1990s.

The 1988 constitution incorporates environmental precepts that are advanced compared with those of most other countries. At that time, the Chamber of Deputies (C�mara dos Deputados) established its permanent Commission for Defense of the Consumer, the Environment, and Minorities. In 1989 the creation of the Brazilian Institute for the Environment and Renewable Natural Resources (Instituto Brasileiro do Meio Ambiente e dos Recursos Naturais Renov�veis--Ibama) joined together the federal environment secretariat and the federal agencies specializing in forestry, rubber, and fisheries. In 1990 the administration of Fernando Collor de Mello (president, 1990-92) appointed the well-known environmentalist Jos� Lutzemberger as secretary of the environment and took firm positions on the environment and on Indian lands. In 1992 Brazil played a key role at the Earth Summit, not only as its host but also as negotiator on sustainable development agreements, including the conventions on climate and biodiversity. The Ministry of Environment was created in late 1992, after President Collor had left office. In August 1993, it became the Ministry of Environment and the Legal Amazon and took a more pragmatic approach than had the combative Lutzemberger. However, because of turnover in its leadership, a poorly defined mandate, and lack of funds, its role and impact were limited. In 1995 its mandate and name were expanded to include water resources--the Ministry of Environment, Hydraulic Resources, and the Legal Amazon--it began a process of restructuring to meet its mandate of "shared management of the sustainable use of natural resources." In 1997 the Commission on Policies for Sustainable Development and Agenda 21 began to function under the aegis of the Civil Household. One of its main tasks was to prepare Agenda 21 (a plan for the twenty-first century) for Brazil and to stimulate preparation of state and local agendas.

In areas where agriculture is more intense and developed, there are serious problems of soil erosion, siltation and sedimentation of streams and rivers, and pollution with pesticides. In parts of the savannas, where irrigated soybean production expanded in the 1980s, the water table has been affected. Expansion of pastures for cattle-raising has reduced natural biodiversity in the savannas. Swine effluents constitute a serious environmental problem in Santa Catarina in the South.

Deforestation in the Amazon declined from levels averaging 22,000 square kilometers per year during the 1970-88 period to about 11,000 square kilometers per year between 1988 and 1991. There was controversy about the levels in the mid-1990s. Knowledgeable experts placed the level of accumulated deforestation at about 15 percent in 1996, as opposed to 12 percent in 1991. Although unseasonal rainfall patterns may explain some year-to-year variation, the basic cause for the decline in deforestation after 1987 was economic crisis. There was insufficient capital, credit, or incentive for large-scale clearing, as well as insufficient public investment to stimulate new migration. Migration to the Amazon also fell quickly in the late 1980s. More effective enforcement of government regulations and bad publicity for large offenders, both of which were associated with changes in public opinion about the environment, also played a part. Technical changes involved in the transition from horizontal expansion of agriculture to increasing productivity also accounted for decreasing rates of deforestation.

The environment

The environmental problem that attracted most international attention in Brazil in the 1980s was undoubtedly deforestation in the Amazon. Of all Latin American countries, Brazil still has the largest portion (66 percent) of its territory covered by forests, but clearing and burning in the Amazon proceeded at alarming rates in the 1970s and 1980s. Most of the clearing resulted from the activities of ranchers, including large corporate operations, and a smaller portion resulted from slash-and-burn techniques used by small farmers.

In Brazil public policies regarding the environment are generally advanced, although their implementation and the enforcement of environmental laws have been far from ideal. Laws regarding forests, water, and wildlife have been in effect since the 1930s. Brazil achieved significant institutional advances in environmental policy design and implementation after the Stockholm Conference on the Environment in 1972. Specialized environmental agencies were organized at the federal level and in some states, and many national parks and reserves were established. By 1992 Brazil had established thirty-four national parks and fifty-six biological reserves (see fig. 5). In 1981 the National Environment Policy was defined, and the National System for the Environment (Sistema Nacional do Meio Ambiente--Sisnama) was created, with the National Environmental Council (Conselho Nacional do Meio Ambiente--Conama) at its apex, municipal councils at its base, and state-level councils in between. In addition to government authorities, all of these councils include representatives of civil society.

Institutional development at the official level was accompanied and in part stimulated by the growth, wide diffusion, and growing professional development of nongovernmental organizations (NGOs) dedicated to environmental and socio-environmental causes. The hundreds of NGOs throughout Brazil produce documents containing both useful information and passionate criticisms. Among the Brazilian environmental NGOs, the most visible are SOS Atlantic Forest (SOS Mata Atl�ntica), the Social-Environmental Institute (Instituto S�cio-Ambiental--ISA), the Pro-Nature Foundation (Funda��o Pr�-Natureza--Funatura), and the Amazon Working Group (Grupo de Trabalho Amaz�nico--GTA). The Brazilian Forum of NGOs and Social Movements for the Environment and Development and the Brazilian Association of Nongovernmental Organizations (Associac�o Brasileira de Organiza��es N�o-Governamentais--ABONG) are national networks, and there are various regional and thematic networks as well. The main international environmental NGOs that have offices or affiliates in Brazil are the World Wildlife Fund (WWF), Conservation International (CI), and Nature Conservancy.

Especially after the events of the late 1980s, international organizations and developed countries have allocated significant resources for the environmental sector in Brazil. In 1992 environmental projects worth about US$6.8 million were identified, with US$2.6 in counterpart funds (funds provided by the Brazilian government). More than 70 percent of the total value was for sanitation, urban pollution control, and other urban environmental projects. Thus, the allocation of resources did not accord with the common belief that funding was influenced unduly by alarmist views on deforestation in the Amazon.

Despite favorable laws, promising institutional arrangements, and external funding, the government has not, on the whole, been effective in controlling damage to the environment. This failure is only in small measure because of the opposition of anti-environmental groups. In greater part, it can be attributed to the traditional separation between official rhetoric and actual practice in Brazil. It is also related to general problems of governance, fiscal crisis, and lingering doubts about appropriate tradeoffs between the environment and development. Some of the most effective governmental action in the environmental area has occurred at the state and local levels in the most developed states and has involved NGOs. In 1994 the PNMA began to stress decentralization and strengthening of state environmental agencies, a tendency that subsequently gained momentum.

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