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Social Capital and Local Development Theories: Lessons from the Pintadas

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Social Capital and Local Development Theories: Lessons from the Pintadas Social Capital and Local Development Theories: Lessons from the Pintadas Experience (Bahia, Brazil) Carlos Milani 1 The academic literature and the reports from international agencies that deal with the theme of social capital are generally based on the idea that economic variables are not enough to produce sustainable development, from its social and environmental perspectives. Economic growth, they say, does not necessarily and directly produce social development. These documents point out that the institutions as well as the social system are key elements in solving the problem of access to economic benefits and their distribution. In their respective fields of study, authors such as Robert Putnam, James Coleman, Michael Woolcock, Henrique Rattner, Ricardo Abramovay, among others, address civic commitment networks, mutual trust norms and the wealth of the social fabric as fundamental factors in local development (both rural and urban). Social, institutional and cultural factors are therefore recognized for their direct impact on qualitative increases in communication among individuals and social actors, in the production of better ways of social interaction and in the reduction of collective action dilemmas. It is well known that local development involves social, cultural and political factors, which are not exclusively regulated by the market system. Economic growth is an essential variable although not enough to promote local development. Considered as pluridimensional (Henri Bartoli, 1999), a historical path (Ignacy Sachs, 1993) and a project (François Perroux, 1961), local development is wisely marked by the culture of the context in which it evolves. Local development can be considered as a set of cultural, economic, political and social activities –from an intersectorial and micro/meso/macro-scale perspective – that participate in a project of conscious transformation of the local reality. In this social transformation 1 Research project title: Social Capital, Political Participation and Local Development: Actors in Civil Society and Local Development Policies in Bahia (2002-2005), funded by the Research Support Foundation of the State of Bahia (FAPESB) and developed within the Escola de Administração at the Federal University of Bahia (UFBA/NPGA/NEPOL/PDGS). Thanks to the following junior researchers for their support: Diana Santos, Sheila Cunha and Tiago Guedes. Contact at cmilani@ ufba.br, and information about the project at http://www.adm.ufba.br/apesqnepol_capital.htm 1 project, there is a significant degree of interdependence among the diverse segments that compose society (political, legal, educational, economic, environmental, technological, and cultural) and the agents present in different economic and political scales (from local to global). It is fundamental to consider local development as a project that is integrated in the market, but not just this: local development is also a product of social relationships rooted in conflict, competition, cooperation and reciprocity; these social relationships put together actors, interests and projects of a social political and cultural nature. Consequently, to reaffirm the relevance of these dimensions of local development does not seem to constitute the particularly innovative and pertinent aspect of the literature on social capital. What are the premises and the origin of social capital? What can critical analysis of the concept of social capital bring to the field of local development? Does the definition of social capital integrate the notions of social control, citizen participation, political culture, cohabitation and civic culture? Does the concept of social capital represent an epistemological advance in the current attempt at constructing new analytical categories for reading and explaining the reality of local development? What is the heuristic value of this concept? In this article, first we will expose and analyze the experiences of local development in the Municipality of Pintadas (Bahia, Brazil). These experiences should provide us with meanings (practices and expressions) of social capital, which represent a main input in the local development equation in Pintadas. They should allow us to explain, in a contextualized way and by means of empirical evidence, possible relationships between these meanings of social capital and the social transformations project in the city of Pintadas (both in its discourse and in its results). In a second moment, based on a preliminary revision of some studies on social capital, we attempt to question the importance of this concept in order to understand the structures of local power and to analyze local development in its complexity. We work with the hypothesis that the analytical potential of the “social capital” category has two main pillars of sustainability: on the one hand, the concept of social capital has explicative and evaluative con-committal dimensions, in as much as it aims at 2 comprehending and analyzing the local development, and at the same time, valorizing and evaluating social reality (ie, via project evaluation methodologies, new indicators for measuring local development, strengthening public policies on social capital or social interventions by associations and NGOs); on the other hand, this concept tries to articulate the dynamic of the processes and history (values, trust norms and participation) with the logic of the economic results and efficiency (economic development). I. PINTADAS: FROM CONSERVATIVE MODERNIZATION TO POLITICAL CONTESTATION The Municipality of Pintadas, located close to 350 km west of Salvador, in the semi- arid region of Bahia, with 100% of its territory included in the so-called “Drought Polygon”, is classified by UNDP as having a low human development index (HDI). Brazilian National Statistics (IBGE) Data from 2000 reveals that the population is of 11,166 inhabitants, of which 63% live in the rural zone (the average rural population in the state of Bahia is 37.6%). The farm concentration and the extensive agricultural practice (an activity which saves on labor costs) are essential trademarks in the rural world of Pintadas; close to 80% of the rural producers own 15% if the land; the small-scale producers cultivate subsistence food, such as corn, beans and manioc, highly susceptible to drought. From this socio-economic picture results the seasonal migration to the Brazilian Southwest: each year (in general between March and December), close to three thousand workers, mainly men, leave this area, mostly for São Paulo, in order to work in the alcohol mills. Due to the lack of work and income opportunities, and to the precarious survival condition, 50% of the families were classified as below-poverty in 1989 (Freitas, 1999). Given this context, the social movement in Pintadas, a people’s movement organized based on the needs of the rural producers, began in the 1960s, led by the Catholic Church. Therefore the popular practice of mutual aid (mutirão), known in Pintadas as “stolen bull” and “whale”, already constitutes an instrument of collective resistance. The participation of more progressive sectors of the Catholic Church since the 1970s, with the installation of the Ecclesial Base Communities (CEBs), has strongly influenced the local social organization. 3 The CEBs encouraged the formation of the Pastoral Community Council and the Pastoral Youth Council. The presence of the Pastoral Land Council, since the 1980s, has strengthened the solidarity practices among the rural workers, and contributed to transforming the popular manifestation of mutirão into a regular labor activity at the service of the Pintadas community. The philosophical, humanistic and religious basis of this movement is rooted in the theology of freedom. Upon the arrival in 1984 of three missionaries – including the current mayor Mrs. Neusa Cadore (from the Labor Party, PT) –groups were formed to discuss the local reality and the needs of the rural workers. In 1985, Pintadas became a municipality, emancipating itself from the neighboring Municipality of Ipirá – which granted the social movement greater local political structure. The cooperation with international agencies is another mobilizing element towards local development in Pintadas. The TAPI Project (Project “Appropriate Technology for Small-scale Irrigation”) was launched in 1988, based on a partnership with the French government, seeking improvement in the management of water resources 2. Two years later, a Dutch agency created connections with the city for the training of local monitors, in order to fill the need for more trained labor force. Currently, the international NGOs most present in Pintadas are DISOP (Belgian NGO: micro-financing), Peuples Solidaires (France: water resources), Il Canale (Italy: capacity-building) and DED (German Service of Technical and Social Cooperation: monitoring of socio-productive activities). 2 See, for example, BAZIN, Frédéric. Projeto Pintadas: do apoio à agricultura familiar ao desenvolvimento territorial. Online at http://www.pronaf.gov.br/Enconro/textos/Pintadas%2003%2006.doc. 4 Figure 1: Pintadas Network Comunità Montana DISOP (Italy) Peuples (Belgium) Solidaires (France) DED ASA SICOOB (Germany) Rural Union Parish COOAP EFA Community Center Padre Ricardo Association Radio Cinema Women’s RHELUZ Il Clemente Association Canale Mariani Foundation (Italy) (Salvador) Town Hall CESE UFBA (Salvador) (Salvador) Source: Fischer and Nascimento (2002); Moura et al. (2001); Informativo Rede Pintadas (julho de 2003).
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