Construção de mecanismos de pagamento por serviços ambientais no cinturão de cana-de-açúcar do interior paulista através de métodos participativos
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Data
2016-09-15
Autores
Teixeira, Moara Almeida Canova [UNESP]
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Universidade Estadual Paulista (Unesp)
Resumo
O Brasil encontra-se na posição de grande produtor e exportador de commodities agrícolas, ao passo que é uma potência mundial em termos de biodiversidade e recursos hídricos. Com o uso e ocupação do solo em franca intensificação, torna-se cada vez mais importante direcionar atenções para potenciais sinergias entre a exploração agrícola e a proteção ambiental através do conceito de Serviços Ambientais (SA). Logo, instrumentos econômicos como o Pagamento por Serviços Ambientais (PSA) configuram-se como uma alternativa de assegurar a manutenção de processos ecológicos concomitante à atividade agropecuária. Desta forma, a nova versão do Código Florestal Brasileiro (CFB nº 12651/2012) da Legislação Ambiental Brasileira (LAB), prevê pagamento ou incentivos à conservação dos ecossistemas que forneçam serviços, entretanto, o texto desta nova lei deixa lacunas quanto aos mecanismos de implementação. Com base nestes aspectos, esse trabalho aborda em três capítulos questões sobre SA e PSA, cujo primeiro é uma apresentação geral do tema e da metodologia base utilizada nos capítulos seguintes. O capítulo 2 inicia a investigação dos serviços de maior relevância fornecidos nas áreas de produção de cana-de-açúcar e de alimentos (dentro do Cinturão de cana-de-açúcar), pela perspectiva dos agricultores destes dois grupos. Como resultado, evidencia-se que ambos os grupos apresentam perspectivas de sinergia, mas também distinções significativas quanto à percepção sobre os serviços ambientais fornecidos nas diferentes paisagens. Os serviços de regulação climática local e manutenção da água são importantes para o desenvolvimento agrícola, bem-estar da população urbana e dos agricultores de modo geral. Enquanto a polinização, dispersão de sementes e controle de pragas foram reconhecidos apenas pelos produtores das unidades rurais de alimentos. Posto isto, a visão política dos produtores e tomadores de decisão do município de Rio Claro-SP, referente à operacionalização dos SA, convergiu em pagamentos destinados à preservação de remanescentes florestais de custódia obrigatória (i.e Área de Preservação Permanente-APP e Reserva Legal-RL), a fim de proteger os mananciais. No entanto, houve conflito de opiniões entre os atores em caso de o poder público decidir implementar esquemas de PSA que contemplem apenas produtores com déficits de APP e RL em detrimento daqueles que sempre estiveram de acordo com a LAB, o que caracterizaria futuras externalidades sociais e econômicas negativas no contexto de política pública. Por fim no capítulo 3, a comparação de experiência de PSA entre Brasil e Escócia, mostrou que a integração dos objetivos das políticas públicas agrícolas, ambientais e de desenvolvimento econômico, com um fundo de financiamento comum e claro, ajuda atenuar processos burocráticos de gestão orçamentária e conflito entre pagadores e beneficiários em projetos de PSA locais. Diante de toda a avaliação da pesquisa, conclui-se que a abordagem participatória de estudo, ou seja, que envolve diversos atores sociais dentre eles o corpo científico, possibilitou compreender as diferentes perspectivas dos atores em nível local, seja de produção agrícola em grande escala (cana-de-açúcar) quanto na escala familiar de alimentos e de tomada de decisão para as exigências de SA nacionais. Dessa forma, evidenciou-se a necessidade de várias e complexas etapas para operacionalização de SA e sua possibilidade na gestão dos recursos naturais, diante da situação de expansão de commodities agrícolas e acelerada perda de serviços ambientais. Portanto, o estudo se faz relevante para elaboração de políticas públicas voltadas a implementação de PSA, no contexto de desenvolvimento agrícola e paisagens degradadas.
Brazil is a major producer and exporter of agricultural commodities and a world power in terms of biodiversity and water resources. With the ongoing process of land-use intensification, it becomes increasingly important to investigate and promote potential synergies between agriculture and natural resources conservation, mostly represented through the concept of Ecosystem Services (ES). Therefore, economic instruments such as Payment for Environmental Services (PSA) are an alternative to ensure the maintenance of ecological processes concomitant to agricultural activity. The new version of the Brazilian Forest Code (BFC nº 12651/2012) of the Brazilian Environmental Legislation (BEL) predicts payment or incentives for the conservation of ecosystems that provide services. However, the text of this law leaves gaps regarding implementation mechanisms. Based on these aspects, this dissertation addresses three chapters on ES and PES, the first of which is a general presentation of the theme and the methodology used in the following chapters. The chapter 2 begins the investigation of the services the most relevance provided in the areas of sugarcane and food production in Rio Claro (inside sugarcane belt in São Paulo state), according farmers’ perspective of these two groups. As results, both groups show perspectives of synergy, but also significant distinctions regarding the perception on the ES provided in the different landscapes. The services relative to local climate regulation and water maintenance are important for agricultural development, farmers and urban population well-being, overall. While pollination, seed dispersal and pest control were services recognized only by food farmers. Therefore, political point of view of farmers and decision-makers from Rio Claro municipality, referring to the operationalization of the SA, converged in payments destined to the preservation of forest remnants of compulsory custody (i.e. Permanent Preservation Area-PPA and Legal Reserve- LR) in order to protect the water springs. Therefore, political point of view of farmers and decision-makers from Rio Claro municipality, referring to the operationalization of the ES converged in payments destined to the preservation of forest remnants of compulsory custody (i.e. Permanent Preservation Area-PPA and Legal Reserve- LR) in order to protect the water springs. Nevertheless, there were opinion conflicts among the actors, supposing that public authorities decide to implement PES schemes that only contemplate producers with PPA and LR deficits, in detriment of those who have always been in agreement with LAB. This, in turn, cam characterize social and economic externalities in the context of public policy. Finally, in chapter 3, the comparison of PES experiences between Brazil and Scotland showed us that, the integration of agricultural, environmental and economic public policy with a common and clear financing fund helps to attenuate bureaucratic processes of budgetary management and reduces the conflicts between payers and beneficiaries in local PES projects. In additional, it was concluded which, the study participatory approach, involving several social actors, among them the scientific body, made possible to comprehension of the different actor’s perspective at the local level either agricultural of large-scale (sugarcane) or familiar scale (food production), as well as, of decision making for national ES requirements. Thus, the study demonstrates need of various and complexes steps to ES operationalization and its possibility in the management of natural resources, in reason of the expansion of agricultural commodities, as well as, in local where there is accelerated loss of ES. Therefore, the study is relevant for the elaboration of public policies aimed at the implementation of PES in the context of agricultural development and degraded landscapes.
Brazil is a major producer and exporter of agricultural commodities and a world power in terms of biodiversity and water resources. With the ongoing process of land-use intensification, it becomes increasingly important to investigate and promote potential synergies between agriculture and natural resources conservation, mostly represented through the concept of Ecosystem Services (ES). Therefore, economic instruments such as Payment for Environmental Services (PSA) are an alternative to ensure the maintenance of ecological processes concomitant to agricultural activity. The new version of the Brazilian Forest Code (BFC nº 12651/2012) of the Brazilian Environmental Legislation (BEL) predicts payment or incentives for the conservation of ecosystems that provide services. However, the text of this law leaves gaps regarding implementation mechanisms. Based on these aspects, this dissertation addresses three chapters on ES and PES, the first of which is a general presentation of the theme and the methodology used in the following chapters. The chapter 2 begins the investigation of the services the most relevance provided in the areas of sugarcane and food production in Rio Claro (inside sugarcane belt in São Paulo state), according farmers’ perspective of these two groups. As results, both groups show perspectives of synergy, but also significant distinctions regarding the perception on the ES provided in the different landscapes. The services relative to local climate regulation and water maintenance are important for agricultural development, farmers and urban population well-being, overall. While pollination, seed dispersal and pest control were services recognized only by food farmers. Therefore, political point of view of farmers and decision-makers from Rio Claro municipality, referring to the operationalization of the SA, converged in payments destined to the preservation of forest remnants of compulsory custody (i.e. Permanent Preservation Area-PPA and Legal Reserve- LR) in order to protect the water springs. Therefore, political point of view of farmers and decision-makers from Rio Claro municipality, referring to the operationalization of the ES converged in payments destined to the preservation of forest remnants of compulsory custody (i.e. Permanent Preservation Area-PPA and Legal Reserve- LR) in order to protect the water springs. Nevertheless, there were opinion conflicts among the actors, supposing that public authorities decide to implement PES schemes that only contemplate producers with PPA and LR deficits, in detriment of those who have always been in agreement with LAB. This, in turn, cam characterize social and economic externalities in the context of public policy. Finally, in chapter 3, the comparison of PES experiences between Brazil and Scotland showed us that, the integration of agricultural, environmental and economic public policy with a common and clear financing fund helps to attenuate bureaucratic processes of budgetary management and reduces the conflicts between payers and beneficiaries in local PES projects. In additional, it was concluded which, the study participatory approach, involving several social actors, among them the scientific body, made possible to comprehension of the different actor’s perspective at the local level either agricultural of large-scale (sugarcane) or familiar scale (food production), as well as, of decision making for national ES requirements. Thus, the study demonstrates need of various and complexes steps to ES operationalization and its possibility in the management of natural resources, in reason of the expansion of agricultural commodities, as well as, in local where there is accelerated loss of ES. Therefore, the study is relevant for the elaboration of public policies aimed at the implementation of PES in the context of agricultural development and degraded landscapes.
Descrição
Palavras-chave
Pagamento por serviços ambientais, Produção de alimentos e cana-de-açúcar, Novo Código Florestal Brasileiro, Legislação ambiental brasileira, Recursos hídricos, Payment for ecosystem services, Sugarcane and food production, New Brazilian Forest Code, Brazilian environmental legislation, Hydric resources