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The Context of REDD+ in Brazil Drivers, Actors and Institutions – 3Rd Edition

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The Context of REDD+ in Brazil Drivers, Actors and Institutions – 3Rd Edition OCCASIONAL PAPER The context of REDD+ in Brazil Drivers, actors and institutions – 3rd Edition Peter H. May Maria Fernanda Gebara Luiza Muccillo de Barcellos Maytê Benicio Rizek Brent Millikan Occasional Paper 160 The context of REDD+ in Brazil Drivers, actors and institutions – 3rd Edition Peter H. May Federal Rural University of Rio de Janeiro (UFRRJ) Maria Fernanda Gebara Federal Rural University of Rio de Janeiro (UFRRJ) and London School of Economics (LSE) Luiza Muccillo de Barcellos Federal Rural University of Rio de Janeiro (UFRRJ) Maytê Benicio Rizek Federal University of Rio de Janeiro (UFRJ) Brent Millikan International Rivers – Brazil Center for International Forestry Research (CIFOR) Occasional Paper 160 © 2016 Center for International Forestry Research Content in this publication is licensed under a Creative Commons Attribution 4.0 International (CC BY 4.0), http://creativecommons.org/licenses/by/4.0/ ISBN 978-602-387-047-9 DOI: 10.17528/cifor/006338 May PH, Gebara MF, Barcellos LM, Rizek M and Millikan B. 2016. The context of REDD+ in Brazil: Drivers, actors and institutions – 3rd Edition. Occasional Paper 160. Bogor, Indonesia: CIFOR. Foto by Luke Perry CIFOR Jl. CIFOR, Situ Gede Bogor Barat 16115 Indonesia T +62 (251) 8622-622 F +62 (251) 8622-100 E [email protected] cifor.org We would like to thank all donors who supported this research through their contributions to the CGIAR Fund. For a list of Fund donors please see: http://www.cgiar.org/about-us/our-funders/ Any views expressed in this publication are those of the authors. They do not necessarily represent the views of CIFOR, the editors, the authors’ institutions, the financial sponsors or the reviewers. Contents List of abbreviations vi Introduction xi Acknowledgments xii Executive summary xiii 1 Forests, land use trends and drivers of deforestation and degradation 1 1.1 Current forest cover and historical overview of forest cover change 1 1.2 Analysis of the main causes of changes in forest cover 8 1.3 Mitigation potential 23 2 Institutional environment and forest governance 24 2.1 Global governance and international agreements 24 2.2 Conditions of governance in areas under high threat from deforestation and degradation 25 2.3 Institutional spaces for political dialogue and forest governance 27 2.4 Decentralization in Brazilian environmental governance 32 2.5 Implications for REDD+ 35 3 Rights and natural resources 36 3.1 Land tenure context in the Brazilian Amazon 36 3.2 The rights of indigenous peoples to carbon, land and forests 39 3.3 Implications for REDD+ 43 4 The political economy of deforestation and forest degradation 45 4.1 Large-scale infrastructure projects 45 4.2 Persistence of rural credit programs that prioritize extensive livestock ranching 46 4.3 Development policies 48 4.4 Commodity markets (consumer products) 49 4.5 Divergence between ministries 50 4.6 Law enforcement 50 4.7 Governance and dominance of the elite 50 5 The environmental policy of REDD+: Actors and political processes 57 5.1 The wider context of climate change policy 57 5.2 Chronology of the REDD+ policy process in Brazil 61 5.3 Policy actors 66 5.4 Consultation processes and multistakeholder forums 70 5.5 Policy learning 72 5.6 Future REDD+ processes and policies 74 iv 6 Financing REDD+ 80 6.1 General context of climate finance 80 6.2 Main sources and mechanisms for financing in Brazil 83 6.3 Aspects of funding provided in Brazil’s National REDD+ Strategy 86 7 Monitoring, reporting and verification (MRV) 88 8 Benefit sharing 90 8.1 General context 90 8.2 Instruments and mechanisms for benefit sharing 90 9 Implications for the 3Es 92 9.1 3Es, national policies and policy options 92 9.2 Evaluation of the 3Es of principal REDD+ aspects 93 10 Conclusions: Next steps for Brazil on REDD+ 99 References 101 Annex 1 11 v List of figures, tables and boxes Figures 1 Amazon biome and Legal Amazon. 2 2 States of the Brazilian Legal Amazon. 2 3 Main natural vegetation categories in the Legal Amazon. 3 4 Image of the Cristalino RPPN, the first private forest reserve in Mato Grosso. 3 5 Rate of annual deforestation in the Legal Amazon – from 1988 to 2014 (km2). 4 6 Daily activities in a settlement in northwest Mato Grosso, Brazil. 6 7 Cattle under extensive management at Mato Grosso, Brazil. 7 8 Transport of logs and a sawmill in northwest Mato Grosso, Brazil. 9 9 Official roadways in the Brazilian Amazon and deforestation up to 2015. 10 10 Propaganda of the military government to motivate migrants to occupy Amazonia. 11 11 Area of public forests subject to concession from 2007 to 2014. 13 12 The arc of deforestation, indigenous areas and protected areas in the Brazilian Legal Amazon, with deforestation up to 2015. 15 13 Aerial photo of a settlement project along the BR-364 highway in the state of Rondônia, 2006. 16 14 Map of clandestine roads in the Brazilian Amazon. 16 15 Price fluctuations for beef cattle and soybeans between 1994 and 2006 and rate of deforestation in Amazonia in the following years (1995 to 2007). 17 16 Monitoring of forest degradation in Paragominas, Pará, in 1999 19 17 Works on the site of Belo Monte, in November 2013. 46 18 Images of daily lives in a settlement in the municipality of Cotriguaçu, northwest MT. 48 19 Empty houses on rural settlement properties. 49 20 Deforestation rate, projected goals and a baseline for deforestation in the Amazon according to the National Climate Change Plan. 67 21 Reduction targets for deforestation rates in the Legal Amazon in 5-year intervals. 67 22 Formulation of the REDD+ governance architecture in Brazil (Di Gregorio et al. 2015). 68 23 ENREDD+ governance structure (based on MMA (2015)). 68 Tables 1 Concessions in national public forests. 13 2 Timeline of mitigation activities in Brazil: 1988–present. 20 3 Chronology describing Brazilian position and initiatives aligned with the UNFCCC. 62 4 REDD+ projects in Brazil. 75 Boxes 1 Changes in Brazilian environmental legislation. 51 2 The new Brazilian Forest Law. 52 vi List of abbreviations ABC Low Carbon Agriculture Plan (Plano para Agricultura de Baixo Carbono) AGU Brazilian Attorney General ALAP Provisional Administrative Limitation ANA National Water Agency APA Environmental Protection Area (Área de Proteção Ambiental) APIB Articulation of Indigenous Peoples of Brazil APP Permanent Preservation Area (Área de Preservação Permanente) BAU Business as usual BNDES Brazilian Development Bank (Banco Nacional de Desenvolvimento Econômico e Social) CAR Rural Environmental Registry (Cadastro Ambiental Rural) CBD Convention on Biological Diversity CCTs Thematic dvisoryA Chambers (Câmaras Consultivas Temáticas) CDM Clean Development Mechanism CEBDS Brazilian Business Council for Sustainable Development (Conselho Brasileiro para o Desenvolvimento Sustentável) CECLIMA State Center for Climate Change of Amazonas (Centro Estadual de Mudanças Climáticas - Amazonas) CF Federal Constitution (Constituição Federal) CGFLOP Commission on Public Forest Management (Comissão de Gestão de Florestas Públicas) CIM Interministerial Committee on Climate Change (Comissão Interministerial sobre Mudança do Clima) CIMGC Interministerial Commission on Global Climate Change (Comissão Interministerial de Mudança Global do Clima) CITES Convention on International Trade in Endangered Species of Wild Fauna and Flora CNS National Council of Extractivist Populations (Conselho Nacional de Populações Exrativistas) COFA Advisory Committee for the Amazon Fund (Comitê Orientador do Fundo Amazônia) vii COIAB Coordination of Indigenous Organizations of the Brazilian Amazon (Coordenação de Organizações Indígenas da Amazônia Brasileira) COICA Coordinator of the Indigenous Organizations of the Amazon Basin (La Coordinadora de las Organizaciones Indígenas de la cuenca Amazónica) CONAFLOR Coordinating Commission for the National Forestry Program (Comissão Coordenadora do Programa Nacional de Florestas) CONAMA National Environmental Council (Conselho Nacional do Meio Ambiente) CONAMAZ National Council of the Legal Amazon (Conselho Nacional da Amazônia Legal) CONAREDD+ National REDD+ Committee (Comissão Nacional para REDD+) COP Conference of the Parties COPPE-UFRJ Engineering Graduate School of Federal University of Rio de Janeiro (Instituto Alberto Luiz Coimbra de Pós-Graduação e Pesquisa de Engenharia da Universidade Federal do Rio de Janeiro) CRA Environmental Reserve Quota (Cota de Reserva Ambiental) DETER System for Detection of Deforestation in Real Time (Sistema de Detecção do Desmatamento em Tempo Real) Embrapa Brazilian Agricultural Research Corporation (Empresa Brasileira de Pesquisa Agropecuária) EPE Energy Research Company (Empresa de Pesquisa Energética) FAO United Nations Organization for Food and Agriculture FAS Sustainable Amazonas Foundation (Fundação Amazonas Sustentável) FBMC Brazilian Forum on Climate Change (Forum Brasileiro de Mudanças Climáticas) FBN - Biological Nitrogen Fixation FBOMS Brazilian Forum of NGOs and Social Movements (Forum Brasileiro de ONGs e Movimentos Sociais) FIP Forest Investment Program FLEGT Forest Law Enforcement, Governance and Trade FNDF National Forest Development Fund (Fundo Nacional de Desenvolvimento Florestal) FNO Constitutional Fund for the North Region (Fundo Constitucional do Norte) FPMC Pará State Forum on Climate Change (Forum Paraense de Mudanças Climáticas) FUNAI National Indian Foundation (Fundação Nacional do Índio) GCF Governors’ Climate and Forests Task ForceGEx – Executive Group on Climate Change (Grupo Executivo sobre Mudanças Climáticas) GTA Amazon Working
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