GEO Brazil Water Resources Is the First Report of the GEO Brazil Series

GEO-Brazil Brazil Brazil

GEO Brazil Water Resources is the first report of the GEO Brazil Series. By exploring prospects opened up by use of the GEO ORDE M E P RO GR Component of a Series of Reports on the ES S O methodology, it aims to contribute toward a comprehensive Water Resources Status and Prospects for the Environment in Brazil and integrated evaluation of concepts and premises, and of the Executive Summary organizational and legal framework and management instruments that comprise the National Water Resources System (SINGREH). Water Resources Publication of this report takes on special significance, as it marks the tenth anniversary of the enactment of Brazil’s Water Law (Law 9.433, of January 8, 1997). Component of a Series Reports on the Status and Prospects for Environment in Brazil

Ministry of Environment NATIONAL WATER AGENCY NATIONAL WATER AGENCY GEO Brazil Water Resources

Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

Executive Summary Federative Republic of Brazil Luiz Inácio Lula da Silva President

José Alencar Gomes da Silva Vice-President

Ministry of Environment Marina Silva Minister

Cláudio Langone Executive Secretary

João Bosco Senra Secretary for Water Resources

Volney Zanardi Júnior Director of the Department for Institutional Articulation

National Water Agency – ANA Board of Directors José Machado – Director President Benedito Braga Oscar de Morais Cordeiro Netto Bruno Pagnoccheschi Dalvino Troccoli Franca

United Nations Environment Programme – UNEP Achim Steiner Executive Director

Ricardo Sanchez-Sosa Regional Director for Latin America and the Caribbean

Cristina Montenegro Coordinator of the UNEP Office in Brazil NATIONAL WATER AGENCY UNITED NATIONS ENVIRONMENT MINISTRY OF ENVIRONMENT PROGRAMME

GEO Brazil Water Resources

Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

Executive Summary

National Water Agency – ANA Brasilia – DF January / 2007 c National Water Agency – ANA c MINISTRY OF ENVIRONMENT– MMA Setor Policial – Área 5 - Quadra 3 – Bloco L Esplanada dos Ministérios – Bloco B CEP 70610 - 200 – Brasília-DF CEP 70068 - 901 – Brasília-DF PABX: (61) 2109 5400 PABX: (61) 4009 1000 http://www.ana.gov.br http://www.mma.gov.br

c United Nations Environment Programme – UNEP Setor Comercial Norte – SCN Quadra 2 – Bloco A - Ed. Corporate Financial Center 110 andar - Módulo 1.101 CEP 70712 - 901 – Brasília-DF PABX: (61) 3038 9233 http://www.UNEP.org/brasil

Graphic Design: TDA - Desenho & Arte Ltda. www.tdabrasil.com.br

English Translation RAPPORT traduções e interpretação Ltda. George Aune

Disclaimer. The content of this publication does not necessarily reflect the opinions or policies of UNEP or of the Brazilian Government.

Source catalogue - CEDOC – library

G342g GEO Brazil : water resources : component of a series of reports on the status and prospects for the environment in Brazil : executive summary. / National Water Agency ; United Nations Environment Programme. Brasilia : ANA; PNUMA, 2007. 60 p. : il. (GEO Brazil Tematic Series : GEO Brazil Water Resources)

ISBN: 978-85-89629-22-5

1. Water Resources. 2. Water Resources Management. I. National Water Resources (Brazil). II. United Nations Environment Programme.

CDU 556.18 (81) (047.32) = 111

This document was submitted to the ANA editorial council. GEO Brazil Water Resources

Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

General Coordination:

MINISTRY OF ENVIRONMENT Volney Zanardi Júnior Director of the Department for Institutional Articulation Executive Secretariat

National Water Agency Bruno Pagnoccheschi Director of the Information Area

United Nations Environment Programme Cristina Montenegro Coordinator of the UNEP Office in Brazil

Technical Supervision Group Evandro Mateus Moretto – DAI/SECEX/MMA Marco José Melo Neves – SRH/MMA Maria Bernadete Ribas Lange – UNEP/ROLAC/Office in Brazil. Marly Santos Silva – DAI/SECEX/MMA Kakuko Nagatani Yoshida – UNEP/ Division of Early Warning and Assessment (DEWA-LAC)

Research and Production Group Antonio Eduardo Leão Lanna Francisco José Lobato da Costa – Editor Gilberto Valente Canali Maria de Fátima Chagas Dias Coelho Ulisses Lacava

Executive Coordinator: Regina Gualda – ANA Collaborators (in alphabetical order)

Ana Lucia Dolabella José Edil Benedito Antonio Félix Dominguez Luis André Muniz André Trigueiro Luiz Augusto Bronzatto Antonio Luitgards Moura Luiz Correa Noronha Augusto Franco Malo da Silva Bragança Lupércio Ziroldo Antonio Carlos Motta Nunes Marcelo Pires da Costa Cláudia Enk Magaly Gonzáles de Oliveira Claúdia Ferreira Lima Maria Cristina de Sá Oliveira Matos de Brito Danielle Bastos Serra de Alencar Ramos Maria Leonor Baptista Esteves Déa Solange Fernandes Maria Manuela Martins Alves Moreira Eduardo Felipe Cavalcante de Correa Oliveira Mário Edson Vieira de França Eldis Camargo Marley Caetano de Mendonça Emiliano Ribeiro de Souza Marco Alexandro Silva André Fábio Feldmann Marcos Airton de Souza Freitas Fabrício Bueno da Fonseca Cardoso Maria do Socorro Lima Castello Branco Francisco Lopes Viana Maurício Andrés Gisela Damm Forattini Moisés Pinto Gomes Herman Antunes Laurindo dos Santos Ney Maranhão Hilda Verônica Kessler Ninon Machado de Faria Leme Franco Hidely Grassi Rizzo Paulo Augusto Cunha Libânio Horácio da Silva Figueiredo Junior Paulo R. Haddad Humberto Cardoso Gonçalves Raimundo Alves de Lima Filho Hypérides Macedo Rodrigo Flecha Ferreira Alves Jerson Kelman Rosana Garjulli João Bosco Senra Rubem La Laina Porto João Climaco Soares de Mendonça Filho Sergio Augusto Barbosa João Gilberto Lotufo Conejo Valdemar Santos Guimarães Joaquim Guedes Correa Gondim Filho Vaneide Ramos de Lima John Briscoe Vera Maria da Costa Nascimento Vicente Paulo Pereira BarbosaVieira Wilde Cardoso Gontijo Junior

Photo: Arquivo ANA Foreword

Agenda 21, approved fifteen years ago at the not been resolved, we have learned something of the United Nations Conference on Environment and complexity, time horizons, and dynamic processes Development, foresaw the need to implement integrated involved. We have gained awareness of the need to water resources management. It raised concern at the develop new and dynamic thinking patterns so as to widespread scarcity of freshwater resources in many of address recurrent issues in pursuit of the best possible the world’s regions and warned of the limitations that tradeoff between present adverse conditions and utopian water scarcity imposes upon development in various solutions. We have now reached a point from which we countries. Indeed, Agenda 21 stated that: “the holistic can more clearly view the paths leading toward our goal management of freshwater as a finite and vulnerable of achievable and equitable human development. resource and the integration of sectoral water plans and programs within the framework of national economic Questions surrounding the equitable and and social policy are of paramount importance for sustainable use of freshwater resources clearly action in the 1990s and beyond”. illustrate the impasses, caveats, and potential of such paths. Whereas 70.8% of the surface of our planet is The United Nations Development Programme’s covered by water, it is surely a paradox that, of the Human Development Report of 2006, by drawing a 2.2% of the Earth’s water that is potable, a mere 0.3% parallel between the eight Millennium Goals approved is readily available to humankind. in 2000 and increasing demands for water and sanitation, clearly illustrated the intimate relationship Brazilians, especially, are faced with a colossal between the goals and adequate treatment of water challenge. Covering practically half of the South resources. With respect to the goal of eradicating American continent, Brazil holds 60% of the extreme poverty and hunger, the report stated that, Amazon Basin, through which flows one fifth of the in the developing world, one in five persons has no world’s freshwater supplies. Holding so significant access to adequate drinking water; that poor families an asset, in an era of global water shortages, implies pay ten times as much for water as rich families; and that Brazilians must assume a responsible strategic that the inexorable reallocation of water from farming management approach to this precious heritage, and to industry threatens to exacerbate rural poverty. provide leadership in global water resources issues.

Estimates show that, by 2025, the number of Within Brazil, we are faced with the paradox of people living in countries where water resources are having, adjacent to the abundantly-watered Amazon under greatest pressure will have increased from the basin, a region chronically afflicted by water shortages. current level of 700 million, to over 3 billion. Today, Approaches for dealing with these extreme situations more than 1.4 billion people live in river basins where must entail integration of public policy instruments, demand for water exceeds minimum replacement articulation among all governmental policies affecting values, thus contributing toward the drying up of rivers water resources, and enhancements in mechanisms and depletion of groundwater reserves. By 2080, water for fostering social participation in decision making, insecurity and climate change are likely to increase the in deployment of actions, in supervision, and in number of undernourished people worldwide, from the permanent evaluation activities. current figure of 75 million, to 125 million. Water resources management in Brazil was Despite Agenda 21 and the UNDP’s Human much enhanced in the early 1980s when a three- Development Report, the situation on the planet has pronged approach was adopted, focusing upon: hardly improved. Though problems identified have environmental, social, and economic sustainability; the quest for an appropriate regulatory framework water resources management instruments in the and institutional structure; and formulation of an public interest. On the positive side, there is a growing appropriate descriptive and operational model for the awareness that we are embarking upon new and critical new policy arrangements and social pacts necessary for phases, on the path toward sustainability, that our promoting grass-roots representation and participatory Nation, and indeed the whole Planet, now requires. management of public policies. Elaboration of new strategic-planning instruments, Drafting and approval of the National Water such as GEO Water Resources - Brazil, bear witness Resources Management System (SINGREH), foreseen to our efforts to achieve sustainability. Courage and in the 1988 Federal Constitution and in Law 9.433 determination are needed to take up the challenges of January 8, 1997, were landmark achievements. raised by this report. Perhaps the greatest of such Today, the efforts of various protagonists dedicated challenges relates to the implicit commitments that this to promoting full deployment of SINGREH, and publication poses, and that extend beyond the scope of the National Environment System (SISNAMA), of technical options. These include efforts to mobilize have brought about a sea change in governmental and prepare Brazilian society to assume the social approaches to social and environmental policy. These and environmental responsibilities of citizenship. efforts have coalesced into key elements of current Therein lies true sustainability; the true essence and policies pursued by the Ministry of Environment under justification for our hope. the current Administration, building upon progress achieved in previous periods, and advances made by It is gratifying for the executive managers and staff the Brazilian environmental and socio-environmental of the Ministry of Environment to have participated, movements. alongside the National Water Agency, and the United Nations Environment Programme (UNEP), a cherished Huge difficulties remain to be overcome and international partner with which we share such close structural weaknesses still need to be corrected. These ties, in the initiative that resulted in this report that include resistance on the part of certain segments of the so truthfully assesses the potentialities, obstacles that productive sector to implementation of environmental must be surmounted, and feasibility of our goals for protection measures and deployment of integrated the future.

Marina Silva Minister of State for Environment Foreword

In terms of water resources, Brazil is renowned as 1980s and ‘90s of the need to promote sustainable one of the most abundantly endowed nations on the development, culminating with acceptance of the planet. Such abundance makes it incumbent upon perception of water as a scarce resource, have led us Brazilians, as we fulfill our own needs, to accept to a review of governmental strategies and actions responsibility for the conservation and sustainable use for implementation of integrated water resources of these precious resources while, at the same time, management. maintaining the planet’s ecological balance and, ultimately, ensuring the survival of humankind. The cornerstones of this review were: a mention, in the chapter of the 1988 Federal In the 1930s, in view of the first evidence of Constitution that defines the powers of the the toll that burgeoning industrialization and rapid Federal Union, of an obligation to institute a urbanization were imposing upon the nation’s water national water resources management system; the resources, measures were instituted to promote inauguration (by Law 9.433/97) of the National rational water use. The Water Code of 1934, and the Water Resources Management System (SINGREH) founding of the National Water and Electric Energy with its administrative structure and management Department (DNAEE) are evidence of Brazil’s early instruments; the founding of the National Water efforts to discipline the use of water resources, in the Agency, as the federal body responsible for light of prevailing knowledge and the contemporary implementation of the National Water Resources institutional and political culture, the Nation’s social Policy and coordination of the SINGREH; and priorities, and current internationally accepted the launching (in 2006) of the National Water standards of sustainability. Resources Plan which, aside from ratifying Brazil’s international commitments toward meeting the This model, in effect for over seventy years, Millennium Goals through actions and programs proved ineffectual in the face of the rapid growth and to be pursued up until 2020, also provides an burgeoning development challenges that characterized important instrument for governance. the final decades of theth 20 Century. The mismatch between the growing intensity of demand for water The executive managers of the National Water on the one hand, and the paucity of investment Agency are most gratified to see the fruits of efforts in conservation on the other, became increasingly exerted in the production of this publication - GEO evident. Moreover, despite the abundance of water Brazil Water Resources - that results from a successful in Brazil, persistent environmental problems and the partnership between this Agency, the Ministry of emergence of new or previously unperceived threats Environment, and the United Nations Environment led to a consensus that the Nation’s water resources Programme. management system was in need of a thorough overhaul. This system, though overly centralized and This publication coincides with the 10th anniversary lacking in scope for social participation, nonetheless of Law 9.433/97, and provides an opportunity for set the premises for State controlled water resources Brazil to display, to the international community, management, enabled the training of a cadre of highly- the progress it has achieved in deployment of water qualified professionals, laid down the bases for training resources management instruments. Most certainly, and technological development, and produced basic the analyses and proposals contained herein will knowledge and information of fundamental importance make a significant contribution toward transparent, for strategic planning of the water-resources sector. democratic, and socially effective natural resources management, while ensuring that the National Water The environmental awareness that emerged in Resources Management System is implemented in a the 1970s, allied to widespread acceptance in the decentralized and participatory manner.

José Machado Director-President of the National Water Agency Photo: Zig Koch/Ecotrópica Foreword

A defining feature of our age is the accelerating institutional conditions necessary to move forward to pressure on ecosystems such as forests, wetlands and effectively administer its natural resources. soils which is triggering unprecedented and widespread changes in the Earth’s life support systems. The focus on water resources management – perhaps the most vital and strategic resource for a Innovative solutions are required for these complex sustainable future – is a reflection of the importance challenges. One of the main responses of the United of the theme, the magnitude of the resources and the Nations Environment Programme (UNEP) has been complexity of managing these in a country such as the GEO (Global Environmental Outlook) process. Brazil, whether because of its continental extension, It is a broad and integrated approach of analysing, or because it has one of the largest water resources recording and assessing environmental conditions as in the world. they relate to a defined geographic space or theme, thus permitting operations to be carried out on Another unique feature of this work is that it goes different levels, from the municipal to the global. beyond analysing the status, availability and quality of water resources and includes the construction of A vital role of GEO is supporting decision-makers scenarios that project the future outlook for the year around the world by providing improved, up to date 2020. The report makes an in-depth analysis of matters and reliable information that can underpin integrated such as planning and management instruments and sustainable public policies. GEO, besides adopted in the country; it also addresses aspects being a constantly evolving process, is also a highly relating to participatory management and economic adaptable and versatile tool that can be applied to the instruments in order to make recommendations specific requirements of each geographical unit under – recommendations designed to achieve ever consideration. more effective tools to formulate policies aimed at conserving and managing water bodies in Brazil in a Brazil has embraced the GEO process and sustainable manner. partnered its development and utilized its outputs for building knowledge and capacity in sustainable Indeed the report considers the importance of water environmental management. in the broadest sense and as an input for innumerable economic activities, ranging from providing vital support This new report- GEO Water Resources- has for the country’s vast biodiversity to its use to improve for example been produced by the Ministry of the quality of life and permit development at all levels. Environment of Brazil, the National Water Agency (ANA) and a significant group of Brazilian institutions Besides being the first Latin American country and specialists. The report was prepared in association to prepare its National Water Resources Plan, Brazil with the UNEP Office in Brazil, and with technical has well-established environmental institutions support provided by UNEP’s Division of Early Warning and installed capacities capable of meeting the and Assessment (DEWA-LAC). challenges the country faces. This puts it in a position to systematically advance towards meeting the This is the first of a series of thematic reports Millennium Development Goals, particularly those on the state of and outlook for the environment in aimed at combating poverty and increasing access to Brazil. It is a continuation and updating of the work potable water and sanitation services. initiated by GEO Brazil I which was launched at the World Summit on Sustainable Development held in Water is not only a critical resource in terms of Johannesburg in 2002. the environment and human security; it also presents great opportunities for new advances to be made The decision to continue the GEO process as in terms of sustainable development. As is the case a series of reports on Brazil – and with a focus on with other subjects to be dealt with in the GEO Brazil environmental management – not only recognizes the series, and consolidated in the GEO Brazil II report, it size and diversity of the country but also acknowledges is hoped that this report will help Brazil to fully meet that the country has the political, technical and its sustainable development demands.

Achim Steiner Executive Director of UNEP Photo: Arquivo TDA Table of Contents

Forewords 9 Introduction 17

GEO conceptual framework of the GEO process 18 I – Status of water resources in Brazil 19 II – Pressure and impacts 29 III – Responses 33 III.1 – Background 33 III.2 – Paradigm change: SINGREH 37 IV – Scenarios 52 V – Recommendations 55 Lists Graphs 1. Worldwide distribution of surface freshwater 20 2. Distribution of surface freshwater on the American continent 20 3. Surface area 22 4. Population 22 5. Population density 22 6. Urbanization 22 7. Mean flow 23 8. Specific discharge 23 9. Water availability 23 10. Specific water availability 23 11. Exploitable renewable groundwater resources 23 12. Specific exploitable renewable groundwater resources 23 13. Total abstractions (m3/s) 24 14. Total abstractions (% of water availability) 24 15. Total abstractions (% of mean flow) 24 16. Total abstractions by area 24 17. Total abstractions per person 25 18. Categories of water use by region 26 19. Basic sanitation coverage in urban areas of Brazil’s hydrographic regions 27

20. BOD5 loads 29 21. Licensed flows, by category of use 42 22. Investments in sewerage up until 2020, to achieve the goal of universal services 54

Map 1. The 12 hydrographic regions and political administrative map of Brazil 21

Boxes 1. The Amazon basin 30 2. National hydrometeorological network 44 3. Territorial bases and the water resources management map 51

Tables 1. Types of electric power generation in Brazil 34 2. Investments required in water supply and sewerage systems up until 2020, to achieve the goal of universal services, by hydrographic region 53 3. State level water resources management instruments 45

Figures 1. General structure of SINGREH 38 2. Breakdown of PNRH information (A) Brazil, (B) national hydrographic division and (C) 56 planning units 41 Photo: Arquivo TDA Introduction

Since Brazil is endowed with so generous a portion GEO Brazil Water Resources is a contribution of the Planet’s water resources, it bears a special toward this effort, and the first report of the GEO Brazil responsibility for conservation and adequate management Series. With 267 pages, the report builds upon prospects of this heritage. opened up by the GEO methodology, and provides a comprehensive and integrated review of concepts and Brazil has been an active participant in all the premises, of the institutional and legal framework, and of principal international forums and initiatives relating to water resources management instruments that currently the theme of water resources: universal access to water; comprise the National Water Resources Management conservation and management of water and of related System (SINGREH). environmental resources; the economic importance of water; and the role of such resources in development This Executive Summary is an integral part of the policies. GEO Brazil Water Resources report, and provides a summary of the information and conclusions presented Moreover, Brazil is party to the main conventions and in the complete version which is available for download international declarations relating directly or indirectly at the National Water Agency website (www.ana.gov. to water resources issues, including: the Millennium br). Since this summary is targeted at a broader and Declaration; Agenda 21; the United Nations Convention on less specialized audience, some of its chapters contain Biological Diversity; the RAMSAR Convention; the United simplified explanatory texts not found in the full report. Nations Framework Convention on Climate Change; and the United Nations Convention to Combat Desertification. This volume of the GEO Brazil Series presents a set of essential information and recommendations for In the South-American context, Brazil has sought to public policy formulation and implementation. It aims contribute toward a broader analysis of water resources to promote sustainable access and conservation of water management problems and challenges, with the aim of resources and better governance. achieving better coordination and integration for the benefit of all countries of the continent. Furthermore, GEO Brazil Water Resources will provide inputs for actions and policies targeted at meeting Such commitments are in line with the principles water-related objectives of the Millennium Development enunciated in Brazil’s National Water Resources Policy. Goals, a pledge signed by 189 countries at the United This Policy encompasses the National Water Resources Nations Millennium Summit, in September 2000. Management System (SINGREH), and a set of innovative strategies and instruments developed and adopted over Within this context, water resources play a the past decade to provide society and public managers fundamental role in general socioeconomic development, with state-of-the-art integrated and participatory and in efforts to fulfill objectives under no less than four instruments for the management of the Nation’s water of the eight Millennium Development Goals: Goal 4 resources. These include the National Water Resources – reduce infant mortality; Goal 5 – improve maternal Plan, approved in 2006. health; Goal 6 – combat HIV/AIDS, malaria, and other diseases; and Target 10 of Goal 7 – reduce by half, by Since 1995, the United Nations Environment 2015, the proportion of people without sustainable Programme (UNEP) has been engaged in a bold global access to safe drinking water and sanitation. environmental evaluation exercise, known as Global Environment Outlook (GEO), that focuses on a variety The references GEO Brazil Water Resources provides on of geographic and thematic aspects at different levels. issues relating to water resources will most certainly enable In Brazil, this process has been conducted within the Brazil to improve its current policies and instruments, by scope of the National Environment Information System fostering sustainable water resources management, and (SINIMA) in the form of a Thematic Series that aims to contributing toward regional and global initiatives for disclose consistent information and integrated analyses, ensuring the protection of such resources, both within the with a view to enabling continual enhancement of scope of initiatives of United Nations agencies, and of environmental management processes in Brazil. bilateral relations with other countries. GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

Conceptual framework of the GEO process

Since 1995, the United Nations Environment balance of environmental conditions in space and Programme (UNEP) has been engaged in an integrated time; environmental evaluation project known as the Global • What is the impact of this? (impact) - analysis of Environment Outlook (GEO). The GEO process may immediate effects on the environment and on the be applied to a variety of different geographic spaces, quality of human life, resulting from pressures – be they defined by natural boundaries (biomes, changes in qualitative and quantitative indicators; eco-regions, continents, etc.) or determined by human • What policies have been adopted to face up to society (cities, states, countries, and regions). environmental problems? (responses) - analysis GEO adopts a scientifically sound pressure- of human interventions - policies, actions, status-impact-response (PSIR) approach, based upon programs, adaptive responses etc. – currently which it develops projections for future scenarios, adopted in face of problems, their causes, and proposals, and recommendations. Its components are consequences; interactive and, at the same time, reflect the dynamics • What will happen in the future if we do not act of relationships between natural environments and today? (future scenarios) – projection of possible human society. future scenarios resulting from the currently Based upon this integrated situation analysis, the observed situation and the impacts resulting next step in the GEO process entails projection of therefrom; and scenarios, to assist in policy formulation and decision • What can be done to address current problems? making for environmental management. (proposals and recommendations) - proposals and The development of scenarios involves the recommendations for ensuring a better future. selection of spatial and temporal parameters; the definition of themes, variables and indicators to be The final stage of the GEO process cycle entails considered; analyses of cause-effect relationships; preparation of proposals and recommendations that must and the construction of mathematical and/or narrative be in line with technically-feasible, scientific, economic, models. and socio-cultural policy orientations, and which should The following questions guide each component of contribute toward the decision-making process. the analytical process: It is important to underscore that the GEO process is subject to continuous monitoring, evaluation, and • What is happening to the environment? (status) improvement. Thus, over the course of the decade – analysis of the status of the environment, during which it has been applied, it has been enhanced encompassing current observed qualitative and and adapted to a variety of scenarios, scales of analysis, quantitative factors in a given geographic space or and varying levels of data availability. At each cycle, sector; the GEO process accumulates new lessons learned, • Why is it happening? (pressure) – analysis of and reinforces the building of sustainable natural anthropogenic factors that change the natural resources management and development capacities.

18 Executive Summary

I – Status of water resources in Brazil

Geographical and Environmental Context Brazil is a huge country. With a land area of just sedimentation, such as the floodplains of the Pantanal over 8.5 million square kilometers, it covers 47.7% of of Mato Grosso, parts of the Amazon, and certain the South American landmass and is the world’s fifth stretches of the northeastern and southern coastline. largest nation (after Russia, Canada, China and the Such characteristics have contributed toward United States). It is also known for the striking diversity Brazil’s exuberant biodiversity, the wealth and variety of its landscapes, for the vast wealth of its natural of which are renowned throughout the world. Brazil resources, and for the significant portion of the planet’s has seven continental biomes – Amazon Rainforest, fresh water reserves that lie within its borders. Cerrado, Caatinga, Atlantic Forest, Pantanal, and In terms of climate, warm weather generally Pampa, each with its own characteristic vegetation predominates in Brazil - 92% of the country lies in cover and typical animal species. The Amazon the inter-tropical zone, and has median temperatures Rainforest Biome, considered the world’s largest higher than 20ºC. Six climate types with quite repository of biological diversity, is also the nation’s distinct characteristics can be identified, ranging from largest, covering almost half of Brazil’s landmass equatorial, with average temperatures reaching as high (49.29%). The Atlantic Forest and Cerrado biomes are as 40ºC and abundant rainfall (over 2,500 mm per also immensely rich in biodiversity. Cerrado (savannah) year) predominant in the Amazon region; to the semi- vegetation covers much of central Brazil, and is arid climate characteristic of the Northeast region, with currently coming under considerable anthropogenic low rainfall (below 1,000 mm per year) long periods pressure from the expansion of farming. The Atlantic of drought and a rainy season lasting only three months Forest, the predominant vegetation in the most densely of the year. Between these two extremes there are vast populated portions of Brazil’s coastal regions, has also areas under the influence of varying types of tropical come under intense anthropogenic pressure. Caatinga climates (upland tropical, and atlantic tropical); and a is a vegetation type characterized by dry thorny scrub subtropical zone located below the Tropic of Capricorn, with few leaves, found in semi-arid areas of the where the greatest annual temperature variations Northeast region. The vegetation of the Pantanal is a occur, with hot summers and cold winters and, very consequence of the annual rise and ebb of waters in occasionally, snow on high ground. the Upper Paraguay River Basin; whereas the Pampa Climate and rainfall patterns are the determining Biome is typified by vast flat grass plains, that stretch factors for Brazil’s water resources, and ultimately south from Brazil into Argentina and Paraguay. account for the vast networks of rivers containing immense volumes of water. With the exception of Water resources the headwaters of the Amazon, fed by glaciers and Brazil is in a privileged position in the world in terms snowmelt in the Andes, all the waters of Brazil’s rivers of availability of water resources. Total average annual originate from rainfall. The majority of Brazil’s rivers flows of rivers in Brazilian territory amount to 180,000 flow year round; only in the semi-arid region of the cubic meters per second (m3/s); by way of illustration, Northeast are there seasonally intermittent rivers. this is equivalent to 72 olympic swimming pools per In terms of relief, Brazil’s mountain ranges generally second. This volume corresponds to approximately attain only fairly modest heights, there being only 12% of the world’s available freshwater resources, one peak above 3,000 meters (Neblina 3,014 meters, which total 1.5 million1 m3/s. If flows originating near the border with Venezuela). The predominant upstream from Brazil’s borders are included, the basins geological formations are plateaus, plains, and of the Amazon (86,321,000 m3/s), the Uruguai (878 depressions, typically comprised of ancient geological m3/s) and the Paraguai (595 m3/s), total average flows structures (dating from the Paleozoic to the Mesozoic amount to some 267,000 m3/s (i.e., roughly 18% of eras), though there are also basins with more recent available surface freshwater flows worldwide).

19 GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

Graph 1: Worldwide distribution of surface freshwater

Australia and Oceania Europe 6% 7% Asia The Americas 32% 46%

Brazil 12% of the total

Africa 9%

Source: Adapted from Unesco

Graph 2: Distribution of surface freshwater on the American Continent

South America North America 60% 34%

Brazil 28% of the total

Central America 6%

Source: Adapted from Unesco

In terms of per-capita distribution, average flows in Given that average flow levels are not available year Brazil amount to approximately 33,000 cubic meters round, actual water availability estimates are in fact lower: per person per year (m3/person/year); i.e., 19 times roughly 92,000 m3/s. Nonetheless, this volume is sufficient greater than minimum value set by the UN (1,700 m3/ to fulfill 57 times the current demand for water, and would person/year), below which a country is considered to be sufficient to serve a population of up to 32 billion, be facing water stress. practically five times the current world population2.

2 Calculated on the basis of an average consumption of 250 liters per person per day.

20 Executive Summary

Hydrographic regions For planning and management purposes, Brazil’s the country by location and river basin into 12 National Water Resources Plan (PNRH), divided Hydrographic Regions.

Map 1: The 12 hydrographic regions and political administrative map of Brazil

RR AP

AM MA CE PA RN PB PI PE AC AL SE RO TO BA

DF GO

MG ES MS

SP RJ

AmazonAmazon Hydrographic Hydrographic Region Region ParnaíbaParnaíba Hydrographic Hydrographic Region Region East AtlanticEast Atlantic Hydrographic Hydrographic Region Region São FranciscoSão Francisco Hydrographic Hydrographic Region Region WesternWestern Northeast Northeast Atlantic Atlantic Hydrographic Hydrographic Region Region TocantinsTocantins Araguaia Araguaia Hydrographic Hydrographic Region Region EasternEastern Northeast Northeast Atlantic Atlantic Hydrographic Hydrographic Region Region UruguayUruguay Hydrographic Hydrographic Region Region SoutheastSoutheast Atlantic Atlantic Hydrographic Hydrographic Region Region ParaguayParaguay Hydrographic Hydrographic Region Region SouthSouth Atlantic Atlantic Hydrographic Hydrographic Region Region ParanáParaná Hydrographic Hydrographic Region Region

21 GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

Brazil’s largest hydrographic region is the Amazon, Low population density in the Amazon region covering 3,870 km²; whereas its most populous is the contrasts with a relatively high proportion (67%) of the Paraná hydrographic region, with a population of regional population that lives in towns. For Brazil as almost 55 million. Population density is highest in the whole, the urbanization rate is 81%, reflecting intense Atlantic Southeast hydrographic region, which has migration from the countryside to the cities over the 118 people per square kilometer; in stark contrast to past 60 years, in the wake of rapid industrialization. the Amazon region, where population density is only The following graphs present characteristics of 2 people per square kilometer. each of Brazil’s hydrographic regions:

Graphic 3: Surface area (1,000 km2) Graph 5: Population density (people/km2)

Amazon Amazon Tocantins - Araguaia Tocantins - Araguaia Western Northeast Western Northeast Parnaíba Parnaíba Eastern Northeast Eastern Northeast São Francisco São Francisco East Atlantic East Atlantic Southeast Atlantic Southeast Atlantic South Atlantic South Atlantic Uruguay Uruguay Paraná Paraná Paraguay Paraguay

0 1,000 2,000 3,000 4,000 0 20 40 60 80 100 120

Graphic 4: Population (x 1,000) Graphic 6: Urbanization (%)

0 10,000 20,000 30,000 40,000 50,000 60,000 0% 20% 40% 60% 80% 100%

In terms of surface water availability, the has the lowest average flow levels. The Uruguay most abundant average flows, almost 132,000 basin is the region with the largest exploitable m³/s, are to be found in the Amazon region. By renewable groundwater resources: 1.85 liters contrast, Parnaíba region, with only 753 m³/s per second per km2.

22 Executive Summary

Graph 7: Mean flow (m3/s) Graphic 10: Specific water availability4 (l/s/km2)

Graph 8: Specific discharge (l/s/km2) Graph 11: Exploitable renewable groundwater resources (m3/s)

Graphic 9: Water availability3 (m³/s) Graph 12: Specific exploitable renewable groundwater resources (l/s/km2)

0 20,000 40,000 60,000 80,000 0 0.5 1.0 1.5 2.0

3 Discharge is equaled or exceeded in 95% of the time 4 Discharge is equaled or exceeded in 95% of the time

23 GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

Multiple use Total abstractions for all categories of use in Brazil critical situation is the Eastern Northeast Atlantic, where amount to 1,568 m³ per second, i.e., 3.4% of total abstractions levels exceed water availability, which in turn flows with a discharge that is equaled or exceeded amounts to less than 1,200 m3/person/year on average, in 95% of the time. This volume is equivalent to 38 owing to the intermittent nature of local water courses. olympic swimming pools per minute. Of this total, The highest average per capita water consumption, roughly 840 m³ per second is effectively consumed, including all types of water use, is reported in the Uruguay i.e., not returned to river basins. hydrographic region, where consumption amounts to The hydrographic region with the highest level of 3,353 liters per person per day, whereas the national water consumption (478 m³/s) is the Paraná basin. This average is 799 liters/person/day. The South Atlantic is the amounts to 30% of all water abstracted in Brazil, and region with the highest abstraction levels by area (1.26 23% of total consumption. The region facing the most l/s/km2) against a national average of 0.18 l/s/km2.

Graph 13: Total abstractions (m3/s) Graph 15: Total abstractions (% of mean flow)

0 100 200 300 400 500 0% 5% 10% 15% 20% 25%

Graph 14: Total abstractions (% of water availability)5 Graph 16: Total abstractions by area (l/s/km2)

0% 100% 200% 300% 400% 500% 600% 0.0 0.2 0.4 0.6 0.8 1.0 1.2

5 Discharge is equaled or exceeded in 95% of the time

24 Executive Summary

Graph 17: Total abstractions per person (liters/person/day) supply, which accounts for 27% of abstracted flows, is the second largest category of use; followed by Amazon industry, which consumes 18%. Tocantins - Araguaia When water use distribution is broken down Western Northeast Parnaíba by region, the Paraná basin, which has the highest Eastern Northeast consumption levels, reports the heaviest demand in São Francisco East Atlantic all categories of use except irrigation. The heaviest Southeast Atlantic consumption levels for irrigation are reported in the South Atlantic South Atlantic and Uruguay regions, especially as Uruguay Paraná a consequence of the predominance of paddy rice Paraguay production. In the Southeast Atlantic region, where 0 500 1,0001,500 2,000 2,500 3,000 3,500 Brazil’s largest metropolitan areas are located, the major categories of use are urban water supply for human and industrial consumption. The Southeast When broken down by category of use and type Atlantic and Paraná regions are the only ones in which of demand, human water supply (urban and rural) the major category of use is water-intensive industry, amounts to just under 1/3 of total consumption; though irrigation also consumes comparable volumes. whereas productive activities (irrigation, industrial In the Western Northeast Atlantic region human use, and livestock) account for the rest. It is hardly consumption is the major category of use, reflecting the surprising, in the light of the vibrancy of Brazil’s relatively low numbers of water-dependant economic agribusiness sector (see Pressure and Impacts) that users. The Paraguay region is the only one in which the irrigation, which consumes 46% of total volumes major category of use is watering livestock, reflecting abstracted, is the major category of use. Human water the strength of the local stock farming sector. Pantanal/MS – Photo: Arquivo TDA Arquivo – Photo: Pantanal/MS

25 GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

Graph 18: Categories of water use by region

100% 2% 3% 2% 5% 5% 7% 12% 11% 17% 90%

27% 29% 23%

24% 80%

11% 46%

33% 70% 5%

60%

47% 26% 64% 60% 16% 71% 29%

33% 8% 39% 50%

8% 22%

6% 3% 86% 40%

7% 2% 7% 9% 3% 4% 30% 2% 4% 4% 10% 50% 46%

40% 12% 20% 3% 33% 28% 30% 32% 1% 25% 25%

18% 10% 14% 3% 1%

15%

0% Paraná Amazon Parnaíba Uruguay Paraguay East Atlantic East São Francisco South Atlantic South Eastern Northeast Southeast Atlantic Southeast Western Northeast Western Tocantins - Araguaia - Tocantins Urban human Rural human Industrial Irrigation Livestock

26 Executive Summary

The high proportions of urban human consumption to piped water supply. Nationwide, the proportion of reported reflect high rates of urbanization and water- households connected to sewage mains (54%) is much supply coverage. Eighty-nine percent of Brazilian homes lower, and even in the best served regions (the Paraná are connected to piped water supply and, in the more and Southeast Atlantic) coverage levels are under 70%. urbanized Paraná, São Francisco, Uruguay, and South In the Paranaíba region, only 4% of households are Atlantic regions, over 90% of households are connected connected to sewage collection facilities.

Graph 19: Basic sanitation coverage in urban areas of Brazil’s hydrographic regions

Amazon

Tocantins–Araguaia

Western Northeast

Parnaíba

Eastern Northeast

São Francisco

East Atlantic

Southeast Atlantic

South Atlantic

Uruguay

Paraná

Paraguay

0% 20% 40% 60% 80% 100%

Water Supply Sewage Collection

The ready availability of Brazilian water resources, exact a heavy toll, water is the most critical factor for provided that they are adequately managed, could local populations. Small reservoirs for storing water prove a significant international competitive advantage. and regularization of flows on intermittent rivers are Despite the overall abundance of water in Brazil, its of fundamental and strategic importance for ensuring geographical distribution and availability to the adequate supplies for human consumption, watering population is quite unequal. Though the Amazon region livestock, irrigation, and other types of water use. contains 74% of the nation’s available water resources, Productive activities, and especially irrigation, it is home to less than 5% of the Brazilian population. account for major proportions of the water abstracted. The balance between supply and consumption is In the Central-West, for example, abundant supplies relatively stable in most regions of the country, except of water for irrigation are among the factors that have in semi-arid areas of the Northeast. Water shortages contributed toward transformation of the region into especially affect the Eastern Northeast Atlantic Brazil’s major area for agricultural expansion. In the hydrographic region, the only one where the water Southeast and South regions, where Brazil’s main balance is critical. In some river basins of the Eastern cities and industrial hubs are concentrated, the major Northeast Atlantic, water availability amounts to less problems relate to the quality of water available, as will than 500 m3/person/year, and is thus considered be discussed in the following chapter on Pressure and critical.6 Aside from this area, certain river basins in the Impacts. As in many other countries, such problems East Atlantic, Parnaíba, and São Francisco hydrographic are related to poor basic sanitation, and Brazil is much regions suffer from low relative availability. In semi- closer to achieving universal water supply than it is arid areas of these regions, where recurrent droughts meeting its goals with respect to sewage collection.

6 Under the UN classification, scarcity is defined as flows of less than 1,0003 m /person/yearr

27 GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

II – Pressure and impacts on water resources in Brazil

With its dynamic and diversified economy, high semi-manufactured goods, reflecting its industrial rates of urbanization, and strong demand for electric prowess advanced technological capabilities. power, Brazil’s available water resources are subject to Concentration of the Brazilian population in the competing pressures from various categories of use. Such Southeast reflects the region’s higher incomes and pressures affect present and future demand for water, and levels of economic activity. Though the Southeast have an impact upon water quality and the sustainability comprises only 11% of Brazil’s territory, it is home of environmental conditions. Significant social and to 43% of the population and holds 56% of national economic changes currently underway in Brazil, purchasing power. By contrast, the North region targeted at reducing regional economic disparities, may comprises 45% of Brazil’s land area, but is home to result in changes in consumption patterns and could end only 8% of the Brazilian population and holds a mere up transferring some of these pressures to hitherto less 4.5% of the nation’s purchasing power. In recent years, affected hydrographic regions. these disparities have become less marked, as rates According to the latest (2005) census data, Brazil of GDP growth have been greater in the North and has a population of 184.2 million, and a population Northeast regions. It should be remembered, however, density of 22 people per square kilometer. In recent that in terms of the availability of water resources, there years, the rate of population growth has declined, as a are tremendous contrasts between the North, which consequence of urbanization (84.3% of the population has abundant supplies of surface freshwater, and the lives in towns) industrialization, and lower birthrates. Northeast where, in some areas, water is in critically In 2004, Brazil ranked 69th out of 177 countries on short supply. A decentralization of productive activities the UNDP’s Human Development Index, with an HDI is also likely to result in changes in migratory patterns rating of 0.788. and to alter current demographic distribution trends. The Brazilian population is spread very unevenly Even though Brazil’s economic indicators place it and, historically, the greatest concentrations have among the ranks of the middle-income countries, unequal always been in coastal regions, especially of the income distribution hampers coverage of sanitation Southeast, the formerly forested areas (Zona da services among poorer segments of the population, Mata) of the Northeast, and in the South region. The who end up paying a higher price for drinking water. North and Central-West regions have much lower According to the UNDP’s 2006 Human Development populations. A majority of the Brazilian population Report, the richest 20% of the Brazilian population enjoys lives in towns, and large cities are to be found in the access to water and sanitation services comparable the interior, far from the coastal regions. Indeed, over half rich countries; whereas for the poorest 20% coverage of the Brazil’s population currently lives in towns with levels for these two essential services are worse than in over 100,000 population. Vietnam. If a correlation is made between coverage of In 2005, Brazil’s Gross Domestic Product (GDP) essential services and social inclusion, future prospects are at market prices amounted to R$ 1.9 trillion. Brazil favorable, since in recent years there has been a marked accounts for three fifths of the industrial production decline in inequality, as a consequence of social programs of South America. It is a member of MERCOSUR (the launched by the Brazilian Government. However, the Common Market of the South), G-22, and the Cairns impacts of bringing new contingents of the population Group on the treatment of farm products. Brazil’s into the consumer economy will unquestionably include agribusiness sector accounts for 34% of GDP, 37% of greater demand for water resources, basic sanitation, and the nation’s jobs, and 43% of its exports by value.7 other public services. Brazil maintains regular trade with some one hundred Questions relating to water quality, collection and countries, and 74% of its exports are manufactured or treatment of urban sewage and industrial effluents,

7 Source: Ministry of Agriculture, Livestock and Food Supply

28 Executive Summary

and disposal of wastes from intensive livestock raising Graph 20: BOD5 loads (tonnes of BOD5/day) and extensive farming, are among the critical issues that must be faced.

Since few studies have been conducted on Amazon pollution loads discharged into Brazilian waters, it Tocantins - Araguaia is difficult to estimate the true scope of the problem. Western Northeast Parnaíba Nonetheless, it is possible to calculate the volumes of Eastern Northeast household wastes discharged: organic loads originating São Francisco East Atlantic from domestic drains are responsible for some 6,392 Southeast Atlantic tonnes of Biological Oxygen Demand (BOD) per day.8 South Atlantic This volume represents roughly 150 times the organic Uruguay Paraná load generated by domestic drains in a town with a Paraguay population one million, such as Campinas (SP). When 0 500 1,000 1,500 2,000 2,500 compared with average national flow levels, domestic pollution amounts to some 0.41 grams of BOD5 per cubic meter. Household organic pollution loads vary considerably from one hydrographic region to another, and the Against this background, GEO Water Resources highest levels are to be found in the more densely examined a set of typological reports on the problems populated Paraná and Southeast Atlantic regions. encountered in Brazil: Photo: Arquivo TDA Arquivo Photo:

8 This implies that, in order to oxidize the organic matter present in sewage, each day there is a need for 6,392 tonnes of oxygen in Brazil’s

29 GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

BOX 1: The Amazon basin

The Amazon Basin covers 2/5 of the South American As one of the most humid regions on Earth, the Amazon continent and 5% of the world’s land area. Covering basin is of enormous importance to the Planet’s climatic and approximately 6.5 million square kilometers, it comprises hydrological cycles, given its role in evapotranspiration and the largest hydrographic region on the planet, through which the maintaining of rainfall patterns throughout South America flows 1/5 of all the world’s freshwater. Sixty percent of the and adjacent regions. The hand of mankind, and especially the Amazon Basin lies within Brazilian territory. clearing of over 600,000 square kilometers of tropical rainforest The Amazon basin contains a huge but fragile to form cattle pasture and cropland are causing changes in the wealth of biological diversity, seated on a sedimentary climate and hydrology of the Amazon region. Among the changes floodplain. With only a superficial layer of organic matter, reported are accelerated ice melt in the Andes and phenomena its ecosystem is highly dependent on maintenance of relating to alterations in sea temperatures (notably El Niño and La the forest cover for the reproduction and stability of its Niña). Such changes, reported in 2005, resulted in altered flows soils. In view of the ‘environmental services’ it provides of humid air over the Amazon basin, and led to a severe drought, for the planet, the Amazon rainforest is of inestimable with serious consequences for the 167,000 people living in the importance, especially in its role of recycling humidity State of Amazonas alone. Further studies are needed to assess and sequestering carbon dioxide, both of which have future hydrological risks and provide better bases for planning of repercussions at the global level. water resources management approaches for the region.

Water resources in the upper Paraguay river basin Water resources in the cerrado regions of central and Pantanal Brazil The Upper Paraguay River Basin encompasses The Cerrado biome covers vast swathes of the the largest inland floodplain on the Planet, forming Brazil’s central highlands. The climate is characterized a vast wetland area in which retained water is by average annual rainfall of around 1,660 mm, with slowly released throughout a long dry season. The marked seasonal variations (an intense rainy season, Pantanal biome, with its vast diversity of biological followed by periods of 4 to 5 months with no rainfall), resources, is regarded as a fragile ecosystem, given and consequently relatively low availability of water that it is highly dependent upon seasonal rainfall resources. The cerrado region is relatively flat, and is patterns and the quality of water flowing down currently the main area for agricultural expansion in from headwaters on the surrounding plateau. The Brazil, in view of its suitability for extensive mechanized luxuriant vegetation and wildlife of the region soybean and corn (maize) production. These crops make it a prime destination for tourists, however make huge demands upon local water resources, the economy of the region has traditionally been especially during the dry season, and there have been based upon beef-cattle raising (over 30 million cases of water-use conflicts when the demands of head) and extensive farming of grain, both of farming compete with the requirements of domestic which make demands upon the region’s water water supply in towns of the region. Moreover, in resources. Major problems identified relate to the periods of intense rain, agricultural practices have impact of encroaching farmland on the plateau at been blamed for pollution by agricultural chemicals the headwaters of streams that feed the Pantanal; and silting of streams, aggravated by clearing of pollution from household drains and mining riparian vegetation. There are also problems stemming activities; clearing of riparian vegetation, and from urban pollution, especially in towns located near compacting of river banks by cattle; and changes the headwaters of rivers. Since the sources of many of in the qualitative and quantitative dynamics of Brazil’s major river systems are in the cerrado region, water within the Pantanal’s ecosystems. Planned such pollution may have effects on populations living infrastructure projects, such as the erection of downstream in other regions of the country. levees, establishment of iron and steel works, and dredging and engineering works on the Upper Water resources in semi-arid areas of Brazil Paraguay Waterway, all require more intense water With average annual rainfall of around 900 mm, resources management responses in the region. and as low as 400 mm in certain localities, the

30 Executive Summary

hydrography of the interior of Brazil’s semi-arid areas resources. Among the main problems that need to is comprised of intermittent rivers that gradually be addressed are household and industrial pollution; become perennial as they approach the coastline. irregular settlement of hillsides, wetlands, floodplains, Prospects for tapping groundwater are remote, and and riverbanks; and flooding in medium and large the storing of water in reservoirs is limited by rates of towns. Compromised sources of water supply, lower evaporation above 2,000 mm per year. The exception available flows, and deteriorating water quality are to this low availability of water is the São Francisco among the consequences of such problems. river, whose catchment area encompasses 638,000 square kilometers. The São Francisco river crosses a Water resources in coastal areas of the south and huge swath of central and northeastern Brazil, with southeast flows that reach 1,850 m³/s, thus enabling multiple Problems in the coastal zone of the South and use, for such purposes as irrigation and electric-power Southeast reflect afore-mentioned weaknesses in generation. Despite adverse climatic conditions, some sanitation infrastructure in Brazil’s urban areas. 48 million Brazilians live in the semi-arid region, Since these regions are renowned as leisure and almost 1/3 of them in rural areas. Water scarcity vacation destinations, their populations are subject severely hampers prospects for regional development to great seasonal fluctuations during holiday in Brazil’s semi-arid areas, and the need to ensure periods and at weekends when, in some cases, the water supply and basic sanitation for urban and thinly- population may increase twenty fold. The result of spread rural populations poses great challenges. such seasonality is that sanitation systems alternate between having idle capacity and being overloaded. Water resources along the coastal strip and zona da Tourism is jeopardized by problems such as flooding, mata of northeastern Brazil inadequate water-supply systems (especially at peak One of the initial effects of severe drought in the tourist seasons), deficient sewage collection and interior of Brazil’s Northeast is migration from rural treatment (with malodorous wastes washing up on areas to the large cities of the region. Such migration beaches), and breakdowns of solid-waste collection is blamed for huge urban environmental problems, as and disposal systems. this population crowds into burgeoning slums (favelas) that sprout in areas unsuitable for habitation, such as Water resources affected by extensive agriculture wetlands, hillsides, floodplains, and along the banks and agribusiness of rivers and streams. Water quality is compromised by Favorable hydrological and climatic conditions urban and industrial pollution, and seasonal flooding and fertile soils have endowed the states of the South is exacerbated by compacting and paving of urban and Southeast of Brazil with dynamic, modern, and land. Tourism, one of the most promising economic diversified agriculture, with abundant production alternatives for development in the Northeast, is of grains (soy, maize and wheat), coffee, sugarcane, jeopardized when water quality at popular vacation cotton, and fruit. The foremost water resources beaches of the region is deemed unfit for bathing. problems in rural areas of the South and Southeast stem from overexploitation of all potential farming areas, Water resources in metropolitan conurbations and include failure by farmers to respect protective Though in Brazil’s South and Southeast regions vegetation on the banks of streams. High levels of water resources are fairly abundant and reasonably mechanization, intensive use of agricultural chemicals well distributed throughout the year, there are (pesticides and fertilizers), and successive harvests nonetheless problems stemming from the rapidity without due consideration for such environmental of Brazil’s urbanization process. It is estimated that, impacts as topsoil loss (that may be as high as 15 over the past 60 years, Brazil’s urban population has tons per hectare in some cases) and the consequent increased by some 110 million; and that half of the silting of streams and pollution of water sources by urban population is concentrated in 23 metropolitan agricultural chemicals and untreated animal wastes, regions. Despite a recent decline in urban growth greatly increase the cost of providing supplies of water rates, such conurbations have a huge impact on water for human consumption or industrial use.

31 GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

Groundwater management It has been estimated that Brazil’s exploitable problems among Brazil’s regions. It is worth renewable groundwater resources amount to 4,000 observing, however, that the division of a country m3/s, and that these are tapped by some 400,000 wells, the size of Brazil into large hydrographic regions that to meet the needs of public water supply networks, encompass various basins and subbasins, each with irrigation, industry, and leisure. Water supply for its own specificities and characteristics, does not over 15% of Brazilian homes comes exclusively imply that all the critical situations, pressures, and from groundwater sources. Tapping groundwater impacts that occur throughout this vast country have makes it possible to provide safe drinking water for been clearly identified. poor communities located at a distance from public Indeed, although this approach provides a useful water mains, particularly in semi-arid rural areas of spatial overview of hydrological conditions in Brazil, the Northeast region. Underlying much of central it is unable to account for all the diverse situations and southern Brazil, and extending into Paraguay, that occur in each vast geographical area, or to Uruguay, and Argentina is the Guarani Aquifer System, portray the full scope of water resources management one of the largest freshwater reserves on the planet. In problems that need to be addressed. To mitigate such recent decades, the quality of groundwater in certain shortcomings, more detailed basin-level assessments aquifers has been jeopardized by anthropogenic are required, not only of geographic and hydrological activities. To date, few systematic studies on the variables, but also of the implications of the various regional importance of aquifers and on the chemical types of problems identified. Such assessments and microbiological quality of groundwater resources encompass environmental, social, and economic have been carried out. realities, and take into account policy and institutional The general overview provided in this report factors, all of which need to be addressed from a water shows that vast regional contrasts exist in terms of resources management standpoint. The following water balance, patterns of use, and predominant chapter on Responses will address these themes. Photo: Arquivo TDA Arquivo Photo:

32 Executive Summary

Responses adopted by Brazil to water resources issues III. 1 – Background

Public sector intervention in the field of water place with the framing of the Federal Constitution of resources is nothing new in Brazil. Indeed, since the 1934, when the Water Code (Código de Águas) was 18th Century, or more precisely 1723 when construction approved. The Water Code established the role of the work began on the imposing Lapa Aqueduct in Rio de public authorities in controlling and stimulating the Janeiro, public managers and private entrepreneurs use of water. It established principles for institutional have vied for projects in the water resources sector. control, management instruments, and regulation, Burgeoning urban growth and incipient industrialization with the aim of ensuring availability of water for in the 19th Century awakened interest in provision of multiple uses. Though it dedicated an entire article public water supply, and in the earliest projects for to guaranteeing adequate water supply to fulfill ‘the using water power to generate electricity. Initially, such primary necessities of life, it also adopted a sectoral projects tended to be managed by private enterprise, approach by devoting 65 articles on the use of water and generally entailed foreign capital investment. by the incipient electric power generation industry. Up until the beginning of the 20th Century, the State’s The 1940s witnessed the inauguration of the role in the water resources sector was negligible, since first State funded sanitation services, and the first it neither provided services nor exercised regulatory or experiences of integrated multiple use of water for inspection activities. However, in the 1920s, popular electric power, navigation, and irrigation. The sectoral dissatisfaction with the quality of services provided focus remained strong, and was the inspiration for led to the State’s assuming control of a number of specific sets of policies for each area. water supply and sanitation services. The first steps toward establishing a legal Electric Power Generation framework for the water resources sector in Brazil took The creation of the Ministry of Mines and Energy, in 1960, marked the development of Brazil’s State electric power sector. In 1968, the National Water and Electric Energy Department (DNAEE) was created, as the successor to the Water Service of the National Mineral Production Department (DNPM), and to the National Water and Electric Power Council. The DNAEE held responsibility for management of water and electric power services at the federal level, until

Aqueduto da Lapa - RJ – Photo: Riotur it was abolished in 1997, to make way for the new National Electric Energy Agency (ANEEL). The earliest environmental concerns found expression in the Forestry Code (Law 4.771, of 1965) which created areas of permanent preservation and, indirectly, afforded protection for flow levels and water quality by ordaining the protection of riparian forests, and the banks of rivers, streams, springs, lakes, lagoons and reservoirs. Thus both environmental and economic approaches were brought to bear, and a balance was sought between them. The 1967 Constitution assigned two roles to the Federal Government: on the one hand it acted as the conceding power and regulator; on the other it was

33 GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

the main investor and developer, and thus subject grandiose plans brought into effect under this state- to its own regulations. Brazil’s electric power sector sponsored model. Within the space of a few decades expanded under state-owned companies up until Brazil developed the vast and complex electricity the mid 1990s. Brazil’s largest hydroelectric power production, transmission, and distribution system, station, the huge Itaipu Plant, a bi-national project on based on hydroelectric plants, that remain the central the border between Brazil and Paraguay, typifies the elements of Brazil’s energy mix to this day.

Table 1: Types of electric power generation in Brazil Installed potential

Installed Capacity Type % Plants (kW)

Hydroelectric 625 73,361,927 70.28

Gas 102 10,851,916 10.40

Oil 570 4,680,510 4.48

Biomass 270 3,709,785 3.55

Nuclear 2 2,007,000 1.92

Coal 7 1,415,000 1.36

Wind 14 186,850 0.18

Imports 8,170,000 7.83

Total 1,590 104,382,988 100

Source: www.aneel.gov.br - updated November 9, 2006. Usina hidrelétrica de Itaipú – Photo: Arquivo TDA Arquivo Usina hidrelétrica de Itaipú – Photo:

34 Executive Summary

The predominance of water-powered electricity it is likely that there will be more private investment, generation plants has brought incalculable benefits especially as a consequence of better regulations for that go far beyond the scope of the electricity sector, the sector and guarantees for concession contracts, including training of high-quality human resources, supported by adequate technical, economic, and production of scientific and technological knowledge financial feasibility studies. (especially systematization of hydrological data and information on Brazil’s principal river basins), and Irrigation regularization of downstream flow levels on large rivers In 1979 the National Irrigation Policy (Law as a consequence of management of hydroelectric 6.662) was approved to serve as a framework for the reservoirs. National Irrigation Program and the Irrigation Program for the Northeast. Initiatives, both on the part of the Sanitation government and of the private sector, led to a doubling In the sanitation sector, it was estimated, in 1967, of the area under irrigation in the 1960s, and a further that 45% of Brazil’s urban population was connected doubling in the 1980s, by which time 1,600,000 ha to water-supply systems, whereas only 24% had access were dedicated to irrigated farming. This is still a to sewage mains. In 1970, the Brazilian Government relatively modest area in relation to the vast potential launched the National Sanitation Plan (PLANASA) available. with the aim of promoting significant improvements At first there was little coordination or logistical in the provision of sanitation services. planning for transport of inputs and crops, and not The Plan earmarked resources for the sanitation much in the way of technical assistance or marketing sector and strengthened the state-level sanitation policies. Only later, with private sector participation companies. These state-level companies thus began in the production of crops for the domestic and to encroach upon the activities of municipal bodies export markets, did the agribusiness sector undergo that had previously subcontracted water-supply and significant expansion. sanitation services on a concession basis. This was the onset of disputes over the right to provide such Inland waterways services that persist to the present day. Although inland navigation offers one of the cheapest Among the achievements of PLANASA were: means of transporting goods, the inland navigation sector the establishment of integrated systems in certain in Brazil has remained relatively underdeveloped, owing metropolitan areas; planned exploitation of water at the to certain unfavorable topographical and geographic regional level, with better quality control; instituting of factors, and competition from the network of highways charges for services based upon standardized criteria; that underwent significant growth during much of the and the development of technologies to reduce losses. 20th Century. Moreover, poor articulation among different Despite the advances brought in under the Plan and sectors has hampered development, and the building increased coverage levels (89% of households are now of hydroelectric dams, without provision of locks, has connected to water supply and 54% to sewage mains), created serious obstacles to navigation. environmental liabilities relating to uncollected and Subsequent engineering works have sought to untreated sewerage remain a serious problem in rectify such lack of forethought, but work on the Brazil. With the exhaustion of PLANASA’s investment Tietê-Paraná waterway, started in the 1970s, was only capacity in the late 1980s, Brazil lacked an institutional concluded in the 1990s. In the 1990s the Taquari- and financial framework for the sanitation sector, until Jacuí waterway in Rio Grande do Sul accounted for January 2007, when Federal Law 11.445 was approved, a major portion of the freight transported by inland with the aim of reinvigorating the sanitation sector. waterways in Brazil. The new law provides for: basic sanitation services; forms of regulation and regionalized provision of River basin management services; planning requirements; technical, economic, During the course of the 20th Century, the Brazilian and social aspects; and establishes mechanisms for federal administration experimented a variety of social control. Under such conditions and incentives, water resources management models - ranging

35 GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

from centralized to decentralized, state and private adopted a “Command and Control” approach, and are ownership, allowing or forbidding foreign investment based upon the capacity of the State to set emissions - depending upon contemporary political trends. What limits and monitor compliance. has become clear from all these experiences is the need Thus water resources use became subject to for institutional and inter-sectoral coordination among increasingly stringent controls: in 1986, for example, Federal, State and Municipal authorities, so as to the National Environment Council (CONAMA) minimize institutional and legal obstacles, and ensure required that environmental impact studies be carried sources of funding for the water resources sector. out prior to installation of new hydroelectric plants, In 1978 the first attempt was made to overcome and established a detailed set of classifications for difficulties imposed by the traditional sector-based fresh, salt, and brackish waters. It also set limits for approach, through the adoption of river basins as the discharges of substances into water bodies, and basic unit for management, and the establishment of the determined water quality criteria. Executive Committee for Integrated River Basin Studies Thus, Brazil can look back on the following (CEEIBH), comprised of representatives of the Ministry achievements: of Mines and Energy and the Ministry of the Interior. • Expansion of treated water supply systems (though More than ten basin committees were established water supply networks have failed to reach some for rivers under federal jurisdiction, responsible for of the poorest areas, and sewage collection and “classification of federal rivers, conducting integrated treatment systems have not expanded sufficiently, water use studies, and monitoring rational water use owing to lack of investment); in river basins under federal jurisdiction, multiple • The hydroelectric sector has successfully accompanied water use, and mitigation of practices that damage the expanding urban and industrial demand; ecology of the region”. • A reasonable expansion of areas under irrigation, Although this was an innovative approach, these basin especially in the semi-arid Northeast; committees were comprised entirely of governmental • Reduced industrial pollution, as a consequence technical specialists, and lacked participation of the of more stringent environmental licensing and municipalities and of organized civil society. Moreover, inspection requirements. the committees lacked a legal framework and sources of funding and, as a consequence, only the São Francisco On the other hand, the limitations of current River Basin Committee (CEEIVASF) managed to survive. management instruments and of the capacity of Nonetheless, this initiative demonstrated the merit of individual sectors to promote further progress were focusing upon river basins as the essential planning and becoming evident. Certain of the main water resources management unit, an approach adopted by subsequent problems required new planning and management efforts. paradigms, especially the quest for sustainability In the 1980s, efforts to protect the environment and through integrated approaches and multidisciplinary discipline productive activities that have an impact on solutions. natural resources also adopted river basins as the principal territorial focus. In 1981, the National Environment Policy (Law 6.938) created the National Environment III. 2 – Paradigm change - SINGREH System (SISNAMA) and set standards for sustainable Promulgation of the new Federal Constitution development. Among the instruments instituted under by the National Congress, in 1988, marked the this Policy were Environmental Impact Studies (EIA) and culmination of the redemocratization movement in Environmental Impact Reports (RIMA). Brazil, and led to a redistribution of powers among This new legislation also provided for the creation the Federal Union, the States, and the Municipalities. of new federal and state environmental management Decentralization, and the role of the private sector bodies, responsible for licensing and inspecting in promoting development, were among the issues potentially polluting productive activities, and for addressed by the new Constitution. identifying areas of special environmental interest. Principles and guidelines laid down in the Management instruments for the environmental sector Constitution had strong repercussions on water

36 Executive Summary

resources and environmental management, the The Law established the following fundamental latter being the subject of a specific chapter of the premises: (i) water as a public good; (ii) water as a limited constitutional text, which states that “All have the right resource, with economic value; (iii) priority for human to an ecologically balanced environment, which is an consumption and watering livestock; (iv) multiple use of asset of common use and essential to healthy quality water; (v) river basins as the planning and management unit; of life, and both the Government and the community and (vi) decentralized and participative management. shall have the duty to defend and preserve it for The objectives set forth in the Law are: (i) to ensure present and future generations”. necessary availability of water for current and future Though the 1988 Constitution does not have a generations, with adequate quality standards; (ii) to specific chapter on water, various articles imply promote rational and integrated use of water resources; a more economic approach to water resources and (iii) to prevent critical hydrological events. management. Among the changes introduced under The general guidelines foreseen in the law include: the 1988 Constitution are: (i) systematic management of quantities and quality; • An alteration in jurisdiction over water, placing it (ii) adaptation to (physical, biotic, economic, social under jurisdiction of the Federal Union and the and cultural) regional diversity; (iii) integration with States, thus removing it from Municipal control; environmental management; (iv) articulation with • Abolition of private jurisdiction of water, that had regional and land-use planning; and (v) integration hitherto been accepted under the Water Code. All with estuarine and coastal zone systems. water is under public jurisdiction; To put these principles into effect and ensure • It is the competence of the Federal Union to decentralization and social participation, SINGREH legislate on water and electric power, and to is provided with a set of decision-making bodies, establish a national water resources management comprised of a higher deliberative board made up system. of the National Water Resources Council and its corresponding state-level bodies, the State Water Based on principles and obligations established by the Resources Councils; regional deliberative boards to 1988 Constitution, Law 9.433/97 of 1997 introduced the be installed at planning and management units, i.e., National Water Resources Policy and created the National Federal River Basin Committees and State River Basin Water Resources Management System (SINGREH). Committees; and executive regional decision-making Law 9.433/97 is aligned with concepts derived bodies, Water Agencies at the federal and state levels. from international conferences on the environment and There follows a diagram showing how agencies at water resources, such as the Mar Del Plata Conference various levels combine to form the National Water and the third edition of the World Water Forum. Resources Management System: Canal de Irrigação/PB – Photo: Arquivo TDA Arquivo Canal de Irrigação/PB – Photo:

37 GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

Figure 1: General Structure of SINGREH

Federal Level National Water Resources Council - CNRH Federal framework in accordance with Federal Law 9.433/97 and Law 9.984/00 that created ANA; the SRH is responsible for formulation of policies to be Minstry of Environment approved by the CNRH and its executive secretariat; ANA is an operational entity of the system Secretariat of Water National Water responsible for its implementation Resources - SRH Agency - ANA

Federal River Federal Level Shared with Water Agencies Basin Committees the States

River Basin Framework, in accordance with Federal Law 9.433/97

State Water Resources State Levels Councils - CERH State level frameworks that vary from one state to another, in accordance with their respective State Secretariat with power over Water Resources laws; an Independent Body or State Company for Water Resources is the model generally found in states of the Northeast State Water State Water Region. Other states may also Resources Management Resources Management adopt this model, with an Body Company or Agency operational body responsible for implementation, similar to ANA at the federal level.

States Rivers Basin Committees Water Agencies

National water resources council (CNRH) Inaugurated in 1998, the CNRH is the policy The CNRH has the following competences: (i) to formulation body of SINGREH. It is responsible for provide general guidelines and policies that govern issuing resolutions for the purpose of implementing the System; (ii) to approve the establishment of basin the National Policy and for deployment of its committees; (iii) to arbitrate in cases of disputes management instruments, as foreseen in law. Presided between basin committees and State Water Resources over by the Minister of Environment, membership Councils; (iv) to approve and monitor execution of the Council consists of 57 representatives, nominated for National Water Resources Plan; and (v) to approve three-year terms, of which: general criteria for the granting of licenses for the use • 29 are representatives of the Federal Government; of water and water use charges. • 10 are representatives of the states (State Councils); To assist members of the Council in their decision • 12 are representatives of water-user sectors; and making, the CNRH has ten Technical Chambers, • 6 are representatives of civil-society organizations. comprised of between seven and seventeen members

38 Executive Summary

that serve two-year terms. These chambers are Water agencies and basin agencies generally made up of members of the council, and These are the executive bodies responsible for meet on average once a month. implementation of decisions of their respective Basin Committees. They may vary in structure, and among Basin committees the institutional alternatives currently in effect are: Basin Committees are regional deliberative bodies, • Public-private joint capital companies (the model representing the planning and management units (i.e., adopted in the State of Ceará); the river basins), and serve as forums for the discussion • Independent regional public body (State of Rio of issues of interest to various user segments relating Grande do Sul); to the use and protection of local water resources. The • Foundation under private law (State of São Paulo); number of serving members of these Committees may vary, but the proportion of representatives from each Or they may be structured as an: sector should be as follows: • Independent social organization (OS), private • Up to 40% representatives of the Public Authorities; civil law entities that have greater managerial and • Up to 40% representatives of water user sectors; operational flexibility; • At least 20% representatives of civil society. • Civil society organization in the public interest (OSCIP), entities of private law, accredited by the The basic competences of the Committee are: (i) to public sector to provide non-exclusive services. arbitrate in disputes over the use of water resources; (ii) to approve and monitor execution of the Water Their basic competencies include: (i) acting as Resources Plan for the river basin; (iii) to propose to the executive secretariats for their respective committees; National and State Councils what levels of insignificant (ii) maintaining a register of water users and an updated use should be exempted from compulsory water balance of available water; (iii) deployment of water use licensing; and (iv) to propose rates and establish use charges, by delegation of the licensing authority; mechanisms for deploying water use charges. (iv) drafting of Water Resources Plans, for approval by the respective basin committee; (v) conducting studies The national water agency (ANA) and analyses of plans, projects, and engineering works Created by Law 9.984 of 2000, the National Water financed by water use charges. Agency (ANA) is an autonomous executive and regulatory agency, with a special independent management and Management instruments financial structure, whose officers enjoy administrative Aside from providing an institutional structure, the decision-making independence and, as a body of the National Water Resources Policy establishes a set of State, are not beholden to any specific Administration. five essential management instruments, designed to ANA was founded to complement the National endow agencies of the system with effective means of Water Resources Policy, as an institutional response achieving the desired goals. These are: to the complexity and difficulties inherent to • Water resources plans, prepared at three levels – the implementation of the SINGREH which, despite its National Plan, State Plans, and Basin Plans; strong legal framework, had not initially produced • Classification of water bodies, according to their the effects expected by Brazilian society and the main main category of use, with water-quality standards stakeholders involved. With the founding of ANA, the to be attained when deploying basin plans; Basin Committees have taken on greater dynamism • Licensing of the right to use water, with State needed to deploy a series of management instruments regulations for water use, in line with goals set made available under the new water resources policy. through public participation in the drafting of ANA’s basic competencies are: (i) the issuing of licenses plans, and in line with their respective category for the use of water resources; (ii) inspection of water of use classification; use and water resources users; and (iii) deployment • Deployment of water use charges, denoting that of water use charges, through delegation to Water water is an economic good and that availability is Agencies and Basin Agencies. conditioned to a publicly determined price; and

GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

• Establishment of a water resources information secretariats that manage water resources, whereas the system, containing comprehensive information on State Water Resources Councils are responsible for water availability, demand (registers of water users), approving such plans. At the river basin level, water and decision-making support systems. resources plans are prepared by the respective Water Agencies, and subject to appreciation and approval of Water resources plans their respective Basin Committees. These master plans aim to institute and guide The National Water Resources Plan (PNRH) implementation of water resources management currently in effect was approved by the National policies. They contain long-term objectives, with Water Resources Council on January 30, 2006, planning horizons compatible with the periods after a participatory planning process carried out foreseen for deployment of their programs and in conjunction with the state level water resources projects. Moreover, they contain diagnostic situation management systems. The conceptual bases for analyses, evaluations of land use and of the conduct this plan were guided by the premises, objectives, of economic activities, balances of current water and guidelines foreseen in Law 9.433/97. The availability and future demand for water resources, PNRH proposed the division of the country into 12 priorities and guidelines for licensing, and provisions Hydrographic Regions and 56 planning units, so as for deployment of water use charges. better to fulfill its three main objectives, namely: The Secretariat for Water Resources of the Ministry improve water availability; reduce the incidence of of Environment is responsible for coordination and water use conflicts; and promote public awareness preparation of the National Water Resources Plan, of the need to conserve water, in view of its socio- whereas ANA is responsible for its implantation, environmental value. The Plan also drew up scenarios monitoring, and evaluation. The drafting of state water for national water resources up to the year 2020, using resources plans is the responsibility of the state-level a prospective exploratory analysis methodology. Pantanal/MS – Photo: Arquivo TDA Arquivo – Photo: Pantanal/MS

Executive Summary

Figure 2: Breakdown of PNRH information. (A) Brazil, (B) national hydrographic division and (C) 56 planning units.

AmazonAmazon Hydrographic Hydrographic Region Region ParaguayParaguay Hydrographic Hydrographic Region Region EastEast Atlantic Atlantic Hydrographic Hydrographic Region Region ParanáParaná Hydrographic Hydrographic Region Region WesternWestern Northeast Northeast Atlantic Atlantic Hydrographic Hydrographic Region Region ParnaíbaParnaíba Hydrographic Hydrographic Region Region EasternEastern Northeast Northeast Atlantic Atlantic Hydrographic Hydrographic Region Region SãoSão Francisco Francisco Hydrographic Hydrographic Region Region SoutheastSoutheast Atlantic Atlantic Hydrographic Hydrographic Region Region TocantinsTocantins Araguaia Araguaia Hydrographic Hydrographic Region Region SouthSouth Atlantic Atlantic Hydrographic Hydrographic Region Region UruguayUruguay Hydrographic Hydrographic Region Region

Source: SRH (2006) Eight of Brazil’s 27 states have now concluded A CONAMA resolution sets eleven main classes preparation of their State Water Resources Plans, of use for water resources: five for freshwater, three and an additional five are nearing completion. At for brackish water, and three for salt water. These the basin level, 75 water resources planning studies categories range from “human water supply” to have been conducted for rivers under federal and state “aquaculture and fisheries” and “navigation”. jurisdiction, 65 of which have now been concluded. Most of these basin plans were concluded prior to Licensing of the right to use water resources the establishment of Basin Committees, and thus Licensing is an administrative procedure whereby were not duly monitored and validated by regional a competent authority grants the licensee the right to stakeholders, as required by Law 9.433/97. use water resources, for final consumption or as an input for a production process, for a given period, and Classification of water bodies in accordance with specified conditions. Licenses are Classification of water bodies according to issued by the Federal authorities with the aim of ensuring categories of use, regarded as an essential stage for quantitative and qualitative control of water use, and strategic planning at the basin level, has been a common promoting the effective exercise of rights of access to practice in Brazil since the 1980s. Such classification such resources. To safeguard the principle of multiple aims to set quality goals to be attained within a given uses, licensing of the right to use water resources must period, by means of implementation of basin plans. abide by priorities established in water resources plans, The rational for such classification is the need and must respect classification criteria. to ensure water quality compatible with the most ANA holds responsibility for the issuing of demanding categories of use and reduce the cost of licenses to use water under federal jurisdiction, but combating pollution by deployment of preventative it may delegate such power to the States and Federal measures. Classification must be carried out in District. Studies conducted by ANA indicate that, accordance with water resources plans and approved by December 2004, over 95,000 licenses had been by the National Water Resources Council (CONAMA) issued throughout Brazil, most of them for human or the respective State Council, in response to a water supply; and that the largest licensed flows are request submitted by the River Basin Agency to the for irrigated farming, which accounts for 60% of respective Committee. licensed abstractions.

41 GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

Graph 21: Licensed flows, by category of use

1.200

1.000

800

600

400

200 Licensed flows by category of use (m³/s) by Licensed flows

0 Other Industry Irrigation Livestock Discharge Aquaculture Recreational Water supply Water Not informed

Source: ANA (2005)

Water use charges Though water use charges had been foreseen in Janeiro, and São Paulo. At the federal level, charges the Water Code of 1934, they were only deployed as a for the use of water under federal jurisdiction were management instrument after enactment of Law 9.433/97. instituted in the Paraíba do Sul river basin, in Brazil’s The aim of such charges is to consolidate the concept of Southeast region, in March 2003. A second experience water as an economic good, and to make water users currently underway in the State of São Paulo entails aware of its real value, as a function of the quantities and deployment of water use charges in the Piracicaba, quality required for a given form of use. Charges serve Capivari and Jundiaí (PCJ) basins. as an incentive for rational water use; provide funding for studies, programs, projects and engineering works Water resources information system foreseen in water resources plans; and help defray the The Water Resources Information System is an implantation and administrative costs incurred by agencies instrument for collection, treatment, storage, and that comprise the National Water Resources Management retrieval of information on water resources and System. The Law foresees that charges should always be factors that have a bearing on their management. associated with licensing, and that funding generated by Such consolidated information enables identification water use charges should preferentially be invested in the of seasonal, regional, and annual variations in water river basin where it was collected. availability; gaps and deficiencies that affect prospects ANA is entitled to set charges for the use of water for effective and efficient management; potential under federal jurisdiction, whereas state level water conflicts among the multiple forms of water use; resources management bodies set charges for water and enables contingency planning for critical events under state jurisdiction, though collection may be (floods, drought, and degradation of water quality). delegated to a Basin Agency or similar body, by means The System aims to provide inputs for decision making of a Management Contract. on the part of communities, water users, and public In view of the complexity of instituting water use authorities, through decentralized production of data charges, this form of management instrument has so and information, unified coordination, and guaranteed far been deployed only in the States of Ceará, Rio de public access to data.

42 Executive Summary

For many decades the Hydrological Information The National Water Resources Information System System (SIH), operated by the now-defunct National (SNIRH) is organized in a participatory and decentralized Water and Electric Energy Department (DNAEE), manner, and comprises six inter-related modules: a Water gathered information for use in hydrological studies. Typology Module; a Qualitative and Quantitative Data In 2000, the SIH was absorbed by the National Module; a Water Availability and Hydraulic Operations Water Resources Information System (SNIRH) which Module; a Water Use Regulation Module; a Planning and now serves as a unified platform for water resources Management Module; and a Documentation Module. data used by a variety of public bodies. Today, all Apart from unifying the various databases, the new System hydrological information, including SHI’s historical enables transmission of information, control of processes, time series, are stored on the SNIRH, and can be sharing of data, and integration with state-level systems accessed by the general public through ANA’s and, especially, the National Register of Water Resources HIDRO database. Users (CNARH) that is gradually being implanted. Photo: Arquivo ANA Arquivo Photo:

43 GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

Box 2: National hydrometeorological network

Brazil’s first hydrological surveys were conducted over a ANA itself maintains 4,341 measurement stations, century ago, when the first systematic pluviometric stations of which 1,806 take fluviometric measurements (1,286 were installed to take regular measurements. In the early 20th to assess water quality, and 456 to collect sediments) and Century the first river depth and flow measurement stations 2,535 that take pluviometric measurements. Hydrological were set up, with the aim of assessing hydroelectric potential. measurements may be taken at pluviometric stations and Currently, the National Hydrometeorological Network conventional fluviometric stations by onsite observers, or by comprises 23,910 measurement points, cataloged on telemetrics using automatic sensors. ANA’s HIDRO database. Of this total, 14,169 are active The data generated is available on the HIDRO database, measuring stations, operated by a variety of public and which is a component of the National Water Resources private institutions. Information System.

Management instruments in the states With the exception of the State of Roraima, the State-level water resources policies and legislation other 25 Brazilian states and the Federal District have provide for decision-making bodies and a variety of now enacted legislation relating to their water resources management instruments, similar to those foreseen management systems. Some of these laws were at the federal level. In many cases, however, these approved prior to enactment of Federal Law 9.433/97. measures have not yet been deployed, principally Thus, a “second generation” of state laws has since because they require enabling legislation. A survey of been approved, to bring the states into alignment with the options available in each state reveals that water the new federal legislation, and the majority of states resources managers have a variety of alternatives at now have laws that reflect the spirit of Law 9.433/97. their disposal: São Paulo/SP – Photo: Arquivo TDA Arquivo – Photo: São Paulo/SP

44 Executive Summary

Table 3: State level water resources management instruments Instruments Region/State PERH PRH Class. Lic. Pen. WUC. C.S. CM Comp. Fund SIRH South Region Rio Grande do Sul D L Santa Catarina D D Paraná D D Southeast Region São Paulo L DDL/D D Rio de Janeiro P L D Espírito Santo Minas Gerais DDDPDDDD DD Central - West Region Mato Grosso Mato Grosso do Sul Goiás R Distrito Federal D D Northeast Region Bahia D D Sergipe D D Alagoas D Pernambuco L P Paraíba D D Rio Grande do L D D Norte Ceará D D D Piauí D Maranhão North Region Pará Amazonas Tocantins P Amapá Roraima PD D Acre L

PERH – State Water Resources Plan PRH – Water Resources Plan – basin level Class. – Classification of water bodies, according to the main category of use. Pen. – Penalties WUC – Water use charges C.S. – Cost sharing for multiple use works. CM – Compensation for Municipalities Comp. – Other forms of Compensation. Fund – State Water Resources Fund, for investment in the same river basin. P – Order D – Decree R – Resolution L – Law

= absence of an instrument in the law = presence of an instrument in the law = under implantation

45 GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

Advances in water resources management in Brazil plans that range from the national to the basin level, The National Water Resources Policy replaces and the classifi cation of water bodies. These instruments the ad hoc management system in effect until 1997, were drafted and approved by the boards of the basin with an advanced model based on the principles committees, and are the bases of negotiated water- of decentralization and integrated water resources use pacts that govern priority actions and investments. management. These underlying principles result in an Licensing and water use charges, on the other hand, are institutional arrangement embodied by the National the responsibility of the public authorities, and should Water Resources Management System (SINGREH) be oriented by these planning instruments and data and a set of synergistic instruments, the application of available from the Information System. which aims to induce harmonious social participation, Policy instruments are closely related to the alongside actions that are the exclusive prerogative of the entities that comprise SINGREH: their guidelines and public authorities, such as licensing and inspection. criteria must be analyzed, debated, and approved The SINGREH brings a new focus to water by the boards of the System, and implemented by resources issues, by opening up opportunities for executive bodies such as the National Water Agency, public participation in decision making, in the form of the competent state bodies and basin agencies, all of Basin Committees and other deliberative bodies. The which must implement decisions approved by their new paradigm enables better governance by enhancing respective committees. the performance of the State, while promoting greater Apart from its intrinsic merits, the model is being social participation, thus imbuing decisions with implemented within a favorable context, in which: greater transparency. It promotes a sharing of social • specifi c legal and normative mechanisms exist; responsibilities and closer integration and cooperation • an administrative infrastructure has been installed; in relations between the three levels of government • qualifi ed human resources are available; and civil society, aside from providing support for • good technological capabilities are present deployment of new management instruments based (especially in the IT area); and upon economic incentives. • technical-strategic and operational-planning SINGREH was designed to operate in an integrated competencies exist. manner, and its Information System gathers, compiles, and systemizes information and data for use in the In the decade since enactment of Law 9.433/97 decision-making processes that underpin integrated and the establishment of SINGREH, advances have water resources management. For strategic policy and been achieved with regard to various aspects of planning purposes, the System uses water resources implementation of the System:

46 Executive Summary

• 22 State Water Resources Councils have now been founded in the 27 Brazilian states, and an additional four Councils are in the process of formation; • 140 federal and state basin committees have been created and are in activity; • 2 committees, with their respective Water Agencies and management instruments, including water use charges have been instituted; • The National Water Resources Plan was recently launched to guide implementation of Reunião Ordinária do Comitê do PCJ – Foto: Arquivo PCJ Arquivo Reunião Ordinária do Comitê PCJ – Foto: a

the National Water Resources Policy; 16 • The National Water Agency (ANA) has introduced order to water resources management at the Federal level; • The Program for Sustainable Development of compliance with water use charges from bodies under Water Resources in the Semi-Arid region (ProÁgua federal jurisdiction in these basins has been 97%. Semi-árido) has enabled qualitative improvements At the state level, the States of São Paulo, Rio de in water resources management in the Northeast. Janeiro, Minas Gerais, and Ceará all now have legal frameworks that enable them to institute charges for the From the standpoint of river basin management, use of water from rivers under their jurisdiction. Indeed, the main focus of attention and new experiences has Brazil is among the few countries that effectively been the Paraíba do Sul river, in Brazil’s Southeast apply water use charges and have functioning basin region. This is an area of considerable importance, committees and regional boards that deliberate on in view of its location in the proximity of two major water resources issues. In brief, few countries in Latin metropolitan regions (São Paulo and Rio de Janeiro) America can match the progress achieved by Brazil in and because the basin encompasses one of the the field of water resources management. most economically productive parts of the country, accounting for some 12% of GDP. The Paraíba do Sul The challenge of deploying management instruments Basin was the first to institute water use charges, in Although conceptually SINGREH has now generally 2003, in compliance with concepts and provisions been accepted, considerable scope for improvement of Law 9.433/97. It was also the first basin to enter remains, especially in terms of implementation. into a management contract with ANA, in 2004, after Specific weaknesses are most evident at the state having secured approval from its basin committee (the level, where water resources management bodies are Paraíba do Sul River Basin Integration Committee - still incipient and have experienced difficulties in the CEIVAP) for the founding of the Pro-Water Resources deployment of management instruments. At the federal Management Association of the Paraíba do Sul River level, also, obstacles of a structural and circumstantial Basin (AGEVAP), the ‘delegated entity’ empowered to nature to full implementation of the System still need perform functions inherent to a basin agency. to be surmounted. There is, moreover, scope for Another example that merits mention is the discussion as to whether the institutional strategies Piracicaba, Capivari and Jundiaí (PCJ) river basins adopted are fully adequate. complex, in the State of São Paulo, where an association of municipalities, concession holders, Weaknesses of the system public and private companies, and water resources Though the water resources management system is users established the PCJ Inter-municipal Consortium national in scope, its performance depends to a great to serve as a “delegated entity”. The Consortium, having extent upon deployment of management instruments secured approval from the respective committee, at the state level. In some states, deployment of such signed a management contract with ANA. Initial instruments has hardly begun.

47 GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

• Funding for management systems, owing to scarcities of local revenue sources and over dependence of state governments upon federal funding allocations; • Lack of evaluation mechanisms to appraise management systems and stimulate adjustments and corrections necessary for further progress.

Structural obstacles Aside from the aforementioned specifi c weaknesses, there are structural problems that also hamper implementation of SINGREH, both at the federal and state levels. There is a need for strategy adjustments to overcome such institutional problems, many of which relate to the legal and administrative structure of the Brazilian State. There follows a brief To identify specifi c fl aws in state-level water assessment of the main such obstacles: resources management and establish a base line 1. Mismatches between national water resources on the current status of integrated water resources legislation and the legal framework of the Brazilian management in Brazil, an evaluation study carried out State – ten years after enactment of Federal Law within the context of the National ProÁgua Program 9.433/97, there remains a signifi cant gap between its identifi ed 30 variables, involving institutional and principles and their effective application in practical legal aspects, and problems relating to deployment of terms. Water use charges, for example, are defi ned management instruments. as a “public price”, for lack of a better legal term. As The results of this evaluation reveal that no a consequence, the proceeds of such charges were Brazilian state has complied with all the necessary initially regarded as budgetary revenue, and thus conditions for full implementation of SINGREH. subject to spending cuts and controls - a concept Of Brazil’s 27 States, only fi fteen fulfi ll over half of totally at odds with the principles of decentralized the System’s requirements. This refl ects very uneven economic management. Another consequence was levels of implementation of management bodies and the inability of basin agencies to institute charges, as of deployment of management instruments. the law had initially foreseen. Charges can now only Among the fl aws in state-level water resources be collected by publicly licensed entities (ANA and its management identifi ed by the evaluation were: corresponding state bodies). The problem was partially • Limitations relating to: resolved when a change in the Budget Guidelines - staffi ng levels, with poor qualifi cation, training, Law (LDO) reclassifi ed the proceeds from water use wages, job security, and renewal; charges. Nonetheless, there are still issues pending - operation of pluviometric, fl uviometric and in relation to charges for the use of water resources water quality networks; and, by the hydroelectric sector, which are still subject to - technical and managerial instruments, including budget spending constraints. gaps in the cartographic base, registers of water 2. Diffi culties inherent to the State’s administrative users, decision making support systems, etc.; culture – as a rule, the States are resistant to reform • Weaknesses of the councils and committees, and modernization processes, and react negatively to that often lack a quorum, and whose agendas all attempts at change. In the fi eld of water resources often neglect issues of importance to the main management, such resistance has been manifested stakeholders; in attempts (i) to limit the managerial and fi nancial • Planning instruments (state plans, basin plans, and autonomy of regulatory agencies such as ANA, either by strategic plans) drafted on the basis of extensive imposing budget spending constraints, or by demanding diagnostic studies, but lacking in concrete proposals adoption of the same bureaucratic procedures that for intervention; hamper the effectiveness of other segments of the

Executive Summary

public administration; and, (ii) to impose procedural implementation of SINGREH, and requires great efforts regulations upon entities governed by private law (civic to promote integration and coordination among the associations and foundations) engaged in partnerships various levels.1 with the State for the management of river basins, 4. Distortion of Concepts and Premises in the thereby interfering with their flexibility to contract staff, Implementation of SINGREH – adequate implementation and hold tenders for procurement of goods, services, of SINGREH requires observance of the principles of and engineering works. Under Brazil’s political and the National Water Resources Policy, when interpreting institutional traditions, it is not uncommon for decision- current legal standards or applying provisions of Law making to be delegated, without allowing effective 9.433/97. In line with these principles, four sets of decentralization. In other words, many procedures at management instruments must be deployed: Command the local level are dependent upon decisions taken at and Control Instruments of a disciplinary nature a higher level, when it ought to be possible to adopt imposed by the State, such as licensing; Socially Shared solutions independently, provided that they do not Management Instruments that involve the State and violate specific policy guidelines or the interests of other players, such as Basin Committees; and Economic third parties. Management Instruments that entail price mechanisms 3. Challenges relating to the dual jurisdiction such as Water Use Charges, under the responsibility over water bodies – Brazil is a Federative Republic, of Water Agencies. Though not strictly subordinated comprised of 26 States, a Federal District, and 5,563 to SINGREH, the fourth set corresponds to Voluntary Municipalities. In principle, the Federal Union, the Compliance Mechanisms, such as ISO 9000 and ISO States, and the Municipalities all enjoy administrative 14000 standards, normally assumed by productive autonomy. Brazil’s Constitution establishes that water enterprises that wish to preserve their competitivity. is a public good, under the jurisdiction of the Federal It is worth noting that, even in those states where Union or of the States, that can be used subject to implementation of SINGREH has advanced the most, licensing. Municipalities do not have jurisdiction over the concepts that underlie its execution have neither water bodies. On the other hand, public services that been sufficiently well assimilated, nor fully applied. use water may be operated by bodies at different levels, subject to authorizations for the provision of public Institutional strategies services. For example, for electric-power generation, Certain of the problems faced during the Conceding Power is a Federal authority; whereas implementation of SINGREH stem from flaws in the basic sanitation services (provision of drinking water, institutional strategies adopted. Some states (and sewage drains, and solid-waste collection) are the certain areas of the Federal administration) have responsibility of the municipalities. Some rivers under concentrated efforts on the establishment of basin federal jurisdiction have tributaries that are under the committees, in the belief that public participation jurisdiction of a state, if their headwaters and mouth alone would lead to achievement of the desired are both in the same state. In short, governance results. In reality, only when management activities are of water resources management depends upon a organized in the form of basin plans, backed by viable degree of cooperation between the various levels of sources of funding, can such advances be achieved. Government (a river basin being the common territory Thus, in the absence of management instruments that of the Federal, State, and Municipal authorities). Such secure regular funding, many committees have proven cooperation, especially between the federal and unable to make significant contributions toward state levels, poses one of the greatest challenges to effective management in their respective basins.

1 One example of difficulties that stem from dual jurisdiction over water bodies is the two committees, one at the state level and the other at the federal level, that share jurisdiction over the Piracicaba, Capivari and Jundiaí (PCJ) river basins, with an overlap that encompasses over 90% of their respective territories, and practically the same membership. Another example is the Paraíba do Sul river basin where, aside from the federal Paraíba do Sul River Basin Integration Committee (CEIVAP), there are no less than five state-level committees (for tributary basins and specific stretches of the river) and nine inter-municipal consortia or associations of water users.

GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

Among issues that need to be addressed is light of current budgetary and financial conditions failure, at certain of the component bodies (councils, since, although these two federal bodies are directly committees and basin agencies) to assimilate the responsible for stewardship of the Nation’s water principles of shared and participatory management. resources, they handle only 5% of the investments that The consequence of this is a proliferation of meetings, affect the water resources sector, whereas water-user usually within the scope of Technical Chambers and sectors (such as electric-power generation, sanitation, Committees, which greatly add to the operational irrigation and others) provide the remaining 95%. costs of the System. A more rational division of labor Thus, many of the guidelines that ought to orient water among such bodies and their technical support staff resources programs and projects, in effect tend to be ought to be pursued, to reduce operational costs and conditioned by sectoral interfaces. ensure a more focused approach toward achievement Issues relating to coordination also entail securing of the goals and objectives of SINGREH. greater participation of municipalities in the ANA and the Secretariat for Water Resources of the implementation of management strategies, given that Ministry of Environment, especially, need to concentrate it is at the municipal level that a series of significant on fostering links and improving communications and variables (including land use and settlement cooperation with the states and water-user sectors. regulations, sanitation services, drainage interventions, Such coordination is of fundamental importance in the and disposal of solid wastes) must be resolved. Lagoa Manguaba/AL – Photo: Eraldo Peres Lagoa Manguaba/AL – Photo: Eraldo

50 Executive Summary

Box 3: Territorial bases and the water resources management map

The Water Law established the river basin as the scales to encompass a variety of analysis perspectives territorial unit for implementation of the National of a spatial and sectoral nature, in order to take into Water Resources Policy (PNRH). However, in view of account such disparate realities as, for example, the jurisdictional differences between bodies of water, the Pantanal and the São Paulo metropolitan region, both vast size of Brazil, and the diversity of socioeconomic, of which share the same basin (the Paraná). cultural, and hydrographic conditions, there is a need ANA has proposed a more flexible complementary to establish clear criteria, within the scope of these methodology to enable spatial ‘cross-cuts’ that permit territorial definitions, in support of implantation of adjustment of the various factors that intervene in the the National Water Resources Management System definition of territorial management units, and water (SINGREH). resources management instruments that need not be In methodological terms, effective promotion deployed in exactly the same way in every region, of integrated water resources management must thus fostering more flexible application of institutional necessarily entail adoption of variable geometric alternatives for each case.

Piranhas-Açu

Curimataú (...) Amazon Goiana (...) Parnaíba Una / Jacuípe

Tocantins/ Mundaú (...) Araguaia S. Francisco Vaza-Barris Real / Piauí-SE

Jequitinhonha/ Pardo Mucuri/ Extremo Sul-BA Paraguay Itaúnas / São Mateus Terra Seca Tabapoana / Itapemirim Pirapanema Paraíba do Sul

Iguaçu Ribeira do Iguape/ Litoral Sul Uruguay

A = Monitoring, Strategic Planning, D = (C) + Committee, Basin Plan, Information System, and Capacity Building Agency, and Water Use Charges

B = (A) + Licensing, Inspection, State Jurisdiction and Basin Agencies in critical regions

C = (B) + Licensing System, Inspection, and Registration

Units that encompass the territory of only one State and management instruments that must be deployed were not initially classified, however, it was found for every river basin or hydrographic region. Rather, it that some have characteristics that extend beyond aims to plot the institutional progress achieved toward the local and state levels. In such units, the federal meeting priorities, and the consistency of solutions level should provide support for efforts of the states to to be employed in the various different basins and deploy management instruments. regions, without restricting local initiatives that may The “Management Map” should not be construed fully and legitimately contribute toward attainment of as a unilateral imposition of institutional arrangements goals initially identified in the “Management Map”.

Source: Map of Management Actions for River Basins – ANA, October/2006.

51 GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

IV – Scenarios

Prospective analyses were carried out under Analysis of these prospective scenarios reveals the National Water Resources Plan (2006) with certain common elements or “invariables”, i.e., the aim of assessing quantitative and qualitative factors present whichever scenario is selected. Such aspects of future demand for water resources in invariables include: Brazil, in the light of the consolidated worldwide • An increase in environmental sanitation problems; scenario and in line with recommendations of the • Expansion of rural activities, especially irrigation; GEO methodology, using a time horizon stretching • Implantation of multiple-use infrastructure for to 2020. production of hydroelectricity and for inland The Plan postulates three possible world scenarios waterways, observing environmental and social that could influence developments in Brazil; it concerns; also outlines three possible Brazilian scenarios, • The need to conserve strategic aquifers; depending upon the degree to which political • The need to expand knowledge and develop stability is maintained, and economic development, technologies; and, environmental sustainability, and social inclusion are • Indispensable investments to promote more effective achieved over the next 13 years. water resources management. In presenting alternative worldwide scenarios, the Plan offers the following possibilities: (i) a long cycle It is important to remember that the water resources of prosperity; (ii) exclusionary dynamism; and (iii) management sector does not have competences or instability and fragmentation. instruments to tackle all the social variables that affect these prospective scenarios and the macroeconomic For Brazil, the proposed scenarios are as follows: development context. Nonetheless, by taking “invariables” into account, 1. Water for All – a scenario of greater economic it is possible to reduce uncertainties and anticipate growth with reduced social inequality. Under trends associated with the various hypotheses, and this scenario there is an expansion of economic to prepare a consistent national policy. The approach activity throughout Brazil, with strong but adopted by the National Water Resources Plan declining impacts on water resources. Water use includes not only proactive thinking with regard management becomes more effective as SINGREH to variables that affect water resources, but also is strengthened, with fewer water use conflicts over preventative strategies for attenuating economic, quantities abstracted and less damage in terms of social, and environmental impacts, with a view to water quality. avoiding certain trends associated with the least 2. Water for Some – a scenario with reasonable desirable scenarios. levels of economic growth accompanied by social Unquestionably, there will be an increase exclusion, and heavy impacts on water resources. in the consumption of water resources, both for Conflicts and problems relating to water use become public water supply and for economic activities. more common, and the quality of available water is For example, the Ministry of Agriculture, Livestock jeopardized. and Food Supply estimates that, to the current 3. Water for Few – a scenario of low growth, 62 million hectares under cultivation in Brazil, with less pressure on urban infrastructure and an additional 30 million hectares will be added logistics. Non-sustainable economic activities over the next 15 years. Part of this expansion will predominate; there may be an increase in water result from cultivation of areas currently used as use conflicts, and water supply problems may grazing land, and part from the application of proliferate as groundwater suffers contamination, new technologies and increased productivity of with consequent increases in the incidence of livestock raising. Such expansion implies additional waterborne diseases. demand for irrigation water and transport of grain,

52 Executive Summary

and a consequent increase in demand for inland Sanitation shipping. Thus, multiple use of water becomes a Sanitation is an area in which Brazil faces huge key strategy. challenges, if it is to meet the commitments assumed The degree of increase of economic activity will under the Millennium Development Goals. condition demand for electric power. Brazil’s hydroelectric According to the Ministry of Cities, to attain the generating potential has been estimated at 260 GW, goal of universal water supply and sewage collection by whereas current installed capacity amounts to 73.6 2020, investments of the order of R$ 180 billion will be GW. Thus Brazil is in a relatively comfortable position required. This amounts to annual investment of roughly with regard to energy potential. Much of this potential, 0.45% of GDP over the next two decades. The major however, is located in the North region where the building portion of such investments will have to be earmarked of dams is likely to face serious social and environmental for the Paraná basin, where the greatest concentrations challenges. of the Brazilian population are located.

Table 2: Investments required in water supply and sewerage systems up until 2020, to achieve the goal of universal services, by hydrographic region (Reais million)

Hydrographic Region Water Supply Sewerage Total

Amazon 4,354 6,844 11,198

Tocantins-Araguaia 3,332 4,906 8,238

Atlantic Western NE 1,735 2,568 4,302

Parnaíba 1,089 1,692 2,782

Atlantic Eastern NE 5,838 10,133 15,971

São Francisco 4,619 7,235 11,855

Atlantic East 4,694 7,241 11,935

Atlantic Southeast 9,217 16,189 25,406

Atlantic South 5,566 9,482 15,048

Uruguay 1,896 3,216 5,111

Paraná 24,526 39,536 64,062

Paraguay 966 1,532 2,498

Total 67,831 110,574 178,405

Sewerage will require roughly 62% of the total the Program for Depollution of River Basins (PRODES), investment. Were it not for specific initiatives, such as it is very unlikely that this goal would be met.

53 GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

Graph 22: Investments in sewerage up until 2020, to achieve the goal of universal services.

45.000

40.000

35.000

30.000

25.000

20.000

15.000

10.000

Investments up to 2020 (reais million) Investments 5.000

0 Paraná Eastern Atlantic Western Amazon Parnaíba Uruguay Paraguay Araguaia Tocantins Southeast Northeast Northeast East Atlantic East São Francisco South Atlantic South

Hydrographic regions

Under the Water for All scenario, the projections To this end, it is necessary to proceed with considered advances in water resources management the implantation of the National Water Resources systems, and especially the deployment of water use Management System (SINGREH); prepare and charges as an alternative for financing installation implement basin plans; ensure integration with other of sewerage systems. It is foreseen that the greatest public policies; and secure the necessary public progress will be made in the Southeast Atlantic, South participation inherent to the process, by enlisting and Atlantic, Paraná, and Uruguay hydrographic regions. educating stakeholders to participate at the various In other regions, relatively less progress is to be levels of the System. expected, especially in those basins that face the most It is also essential that various management serious problems but still have greatest capacity to pay instruments, and especially Water Use Charges be for management services. The basins with low indices extensively deployed, in view of their strategic role of sewage collection and treatment tend to be those in in regulating and promoting rational use of water, and which there are few large-scale industries. of the importance of securing independent sources An examination of the above described prospective of funding, provided by the users themselves, to scenarios indicates the presence of an additional underwrite investments necessary to ensure future invariable that could have serious negative repercussions: availability of water resources. namely, the risk that overly bureaucratic or ineffective Finally, in view of the need to manage an implantation of SINGREH could hamper its capacity to environment undergoing constant if gradual effect objective interventions. In other words, regardless transformation, especially in the light of global of which scenario proves correct, the building of a climate change, the implantation of water resources future in which undesirable impacts can be foreseen, management systems needs to be flexible and and ample supplies of high quality water are ensured, adaptable, to reflect changing conditions. This presupposes the establishment of a strong and effective concept and other related issues are further water resources management system in Brazil. discussed in the following chapter.

54 Executive Summary

V – Proposals and recommendations for sustainable water resources in Brazil

Following on from the overview presented in the • Adoption of a pro-active attitude toward water chapters on the status of water resources in Brazil, resources management, with the aim of inducing the pressures and impacts that affect such resources, the desired scenarios through the use of more agile responses adopted to address such pressures, and information systems and more flexible strategies, possible future scenarios, 95 recommendations capable of surmounting uncertainties and better and proposals have been prepared, with the aim of exploiting opportunities; assisting decision makers in their efforts to build a • The strengthening of SINGREH as a decentralized sustainable future for water resources in Brazil. These and participative system, with emphasis upon 95 proposals have been consolidated and synthesized articulation with user segments, based upon a in this Executive Summary, and the full version can be positive agenda with accountability for negative viewed in the GEO Brazil Water Resources report. environmental impacts and the cost these impose Three lines of investigation guide the proposals upon production processes and the provision of and recommendations presented: services on the part of these user segments; 1. The main line relates to guidelines and principles • Expansion of management activities, using enunciated in the National Water Resources mechanisms beyond the traditional command and Plan, the objectives of which are based upon control focus, with emphasis upon deployment of innumerable consultations, studies, and research. economic management instruments and shared Efforts concentrated upon preparing convergent institutional management arrangements, for fostering proposals, in line with programs and projects sustainable and efficient use of water resources; contained in the Plan, and these are now in the • More extensive articulation among bodies responsible final stages of preparation. for water resources management, in the context of 2. The second line of investigation sought to organize macro-economic development policies, through aspects and singularities that comprise the typology incorporation of cross-cutting guidelines, with of the problems identified in the chapter on emphasis upon multiple use and environmental Pressures and Impacts, and sought to frame specific aspects; questions that need to be addressed with regard to • Launching of public information activities, to these areas and/or themes. disseminate awareness of the importance of water 3. Lastly, a third line was established, based on resources management instruments; and, observations listed in other chapters of this report, • Definition of results-oriented indicators for indicating paths, alternatives, and prospects for measuring outcomes and instituting of a system strengthening and enhancing SINGREH. for continuous monitoring and adjustment to The guidelines established in the National Plan are enhance the implementation of water resources based on a crossing of so-called “critical uncertainties” management. (the dynamics of the national and international economy, the need for sanitation, the energy mix, Taking such elements into consideration, effective implantation of SINGREH, and investments application of the GEO methodology led to formulation in environmental protection and water resources of proposals and recommendations (convergent management) with the expectations of the various with programs and projects of the National Water relevant stakeholders (other countries, multilateral Resources Plan) organized in accordance with the agencies, water resources users, etc.). The crossing of following thematic lines: such variables leads to identification of “invariables”, • Promote shared management with neighboring i.e., factors that persist in all prospective scenarios, as countries of transboundary rivers and strategic described in the chapter on Scenarios. aquifers, and conduct strategic studies to The result of the crossing of elements necessary for a complement Brazil’s participation in the global and robust national strategy can be summarized as follows: South-American context;

55 GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

• Consider endogenous factors and vectors of • Conduct systematic evaluations of the SINGREH development, and especially those that affect water implementation process. resources, including the outlining of territorial units With respect to the second line of investigation, for intervention in accordance with the dynamics of a further set of proposals was drawn up, targeted at such (hydrological, environmental, socioeconomic apportioning the spatial selection to the typology of and political-institutional) factors; problems that must be addressed: • Enhance SINGREH, and especially its articulations • In the Amazon and Pantanal regions, the and capacity to generate its own funding. This predominant themes relate to environmental implies support for the organization of state-level preservation (biodiversity, environmental services, management systems, with the aim of instituting combating deforestation, mitigation of the social more effective decentralization of policies, through and environmental impacts of large-scale projects, capacity building and consolidation at the local level control of point-specific pollution, and multiple use for facing up to issues relating to water resources; of water). In the Pantanal, special attention must be • Consolidate the current legal and institutional devoted to the basins of the Cuiabá, Miranda, and framework, to harmonize SINGREH, the administrative Taquari rivers; structure of the Brazilian State, and the model foreseen • In the Cerrado, the main focus is upon improving the under national legislation, to take into account Brazil’s efficiency of water use, by means of the installation social and environmental diversity; and strengthening of state water resources • Place greater emphasis upon implementation and management bodies and improving the delimitation operation of management instruments, including: a of planning and management units; database on water availability, demand, and users; • Water scarcity is the main focus in Semi-arid Areas, upgrading of licensing procedures; integration and available water and demand need to be better with other instruments such as environmental managed, through adaptation of management licensing; integrated inspection procedures; instruments to regional realities. Addressing aspects continuous integration among environmental and such as serving the needs of sparsely distributed water resources information systems, currently populations in rural areas of Brazil’s Northeast underway; better coordination between the local region, while improving water supply networks that and state water resources plans and the National serve urban areas and ensuring adequate sewage Plan; development of procedures for instituting collection and treatment, are also high priorities; water use charges; and promoting of public access • To address the problems of large conurbations to information on water resources, as a means of and metropolitan regions, including towns located providing support for decision making; in the zona da mata and coastal areas of Brazil’s • Establish a pro-active agenda of links between water Northeast, there is a pressing need for inter-sectoral resources policies and other public policies, based upon approaches that transcend territorial boundaries to better articulation between users of water resources and address environmental problems and concentrations public institutions, focusing upon water as an essential of poverty (favelas and squatter settlements in valley public good for sustainable development; bottoms, on hillsides, and in other high-risk areas); • Promote multiple and integrated use of water, with a • In the coastal zone of the South and Southeast special focus on facing up to critical events (drought regions, where there are great seasonal fluctuations and flooding); rational water use; demand management in population, the proposals relate to control of land policies and efforts to increase supplies of water use and settlement patterns, with the aim of restoring through planning of integrated solutions for urban water quality at beaches, thereby preserving environmental problems; water and soil conservation the attractiveness of the region for tourism, and measures in rural areas, for the preservation of environmental and geographic features including ecosystems; protection of groundwater; and the mangroves and sand spits; resolution of water use conflicts; • In rural areas where extensive and intensive farming • Develop regional programs adapted to specific is carried out, priority should be given to land problems that must be tackled; and, management and soil and water conservation, such

56 Executive Summary

as no tillage and contour bunds, barriers to contain • Promote scientific and technological development in erosion, refurbishing of rural roads, protection of the field of water resources, and public awareness riparian forests, control of agricultural chemicals of environmental issues relating to water resources and disposal of packaging, with specific attention management; to agribusiness hubs. At the same time, attention • Conduct in-depth studies in the field of Water Law, should be paid to the preservation and consolidation with the aim of resolving possible legal disputes; of “corridors of biodiversity” that link conservation • Explore synergies between water resources areas, native and riparian forests; and management and efforts underway to modernize • With respect to groundwater, it is necessary to the Brazilian State; expand and disseminate knowledge of the dynamics • Consider the establishment of integration committees of aquifers, including replenishment areas, avoiding (or federations of committees) as an alternative risks of contamination, and establishing interfaces applicable to very large river basins, with the aim of between land use patterns and potentially harnessing local public participation in support of sustainable exploitation, by deploying and the management system; adapting management instruments so as to protect • Stimulate policies for effective decentralization of water groundwater and finance management activities, resources management, by ensuring a more balanced within the framework of the National Water sharing of responsibilities among the Public Authorities, Resources Policy. water users, and civil society, in accordance with the availability of local capacities and the potential of the Finally, the points raised in this report were Federal Government to participate; systematized, and the following proposals were • Apply, whenever possible, the principle of made for fostering further progress of integrated water subsidiarity, to ensure that problems are dealt with resources management in Brazil: at the level closest to their source, and referred • Promote sustainable and rational exploitation of the to higher levels only when the local level proves comparative advantages that abundant available incapable of resolving them; water provide; • Conduct strategic studies on the national From examination of the proposals and development context, stressing the importance recommendations of GEO Brazil Water Resources, it attributed to water resources; can be surmised that the National Water Resources • Contemplate the various spatial scales of analysis, Management System (created by Law 9.433/97 and with the aim of integrating water resources planning complemented by Law 9.984/00 that created the with macroeconomic planning; National Water Agency - ANA) and the National Water • Strengthen inter-sectoral ties for water resources Resources Plan, approved in 2006, are fully endowed management, through more substantive participation with all the necessary elements to enable Brazil, in the of the municipalities in SINGREH and state water long term, to promote sustainable management of its resources management systems; water resources. • Include the theme of water resources planning To this end, it is necessary that the National onto the agendas and programs of water users, by Water Resources Policy and its instruments be fully harnessing enhanced investment capacities; implemented, taking into account regional differences. • Prioritize deployment of SINGREH management The institutional structure needs to be successfully instruments, with a results-oriented focus, and assimilated by the full array of stakeholders, and develop sustainability indicators and a permanent reliable sources of funding for implementation of the evaluation system for measuring progress obtained process must be secured. at the federal and state levels; How successful the National Water Resources • Through the offices of ANA, encourage the States Plan will be depends upon its capacity to respond with to institute and strengthen their water resources flexibility to the specificities and processes inherent to management bodies, since these are essential for each thematic or territorial context, without relaxing achieving progress in this area; the technical standards and established guidelines.

57 GEO Brasil | Water Resources | Component of a Series of Reports on the Status and Prospects for the Environment in Brazil

SINGREH has been endowed with the necessary resolve difficulties identified during the early phases management instruments to fulfill its goals. Now of implantation of the System. Finally, it is immensely it is up to each component to assume its role, in important that water users and other stakeholders accordance with the model: i.e., it is incumbent upon effectively assume their share of responsibility by the agencies to prepare their proposals and technical participating fully in the SINGREH decision-making inputs; the committees to debate and approve the process. necessary measures; and the regulatory bodies to In brief, it is necessary that the lessons learned implement their decisions using the appropriate up to the present time be fully assimilated by all instruments. It is, moreover, essential that the Federal stakeholders and converted into adjustments and authorities and those of the states and municipalities corrections in course, in order to ensure that the engage constructively in coordinated efforts to ensure process of instituting water resources management in fulfillment of their respective roles, and seek to Brazil gains scale and advances at the desired rate. Pantanal/MS – Photo: Arquivo TDA Arquivo – Photo: Pantanal/MS

58 Executive Summary

Brazil in brief Sources:

Location: South America

Guiana; Venezuela; Suriname; French Guiana; Uruguay; Argentina; Paraguay; Bolivia; Neighboring countries IBGE (2000) Peru; Colombia.

Equatorial, tropical, highland tropical, tropical atlantic or humid tropical, subtropical http://www.suapesquisa. Climates of Brazil and semi-arid. com/clima/clima-brasil.gif Total area: 8,514,876.599 km2 Percentage of Latin IBGE (2000) 47% America Amazônia 4,196,943 km2 49.29% of Brazil Cerrados 2,036,448 km2 23.92% of Brazil Mata Atlântica 1,110,182 km2 13.04% of Brazil Brazilian Biomes IBGE (2006) Caatinga 844,453 km2 9.92% of Brazil Pampa 176,496 km2 2.07% of Brazil Pantanal 150,355 km2 1.76% of Brazil

Men: 88,673,733 Urban: 152,711,363 Population 182,060,108 IBGE, 2005 - PNAD Women: 93,386,375 Rural: 31,677,257

IBGE (2001) States 26 States and a Federal District http://www.brasil.gov. Municipalities 5,563 br/pais/

Political-administrative regions

Area: 3,869,637 km2 States: Acre, Amazonas, Roraima, Percentage of Brazil: 45.3% Pará, Rondônia, Amapa, Tocantins North Population: 12,900,704 (7.6% of the total) States: 7 Urban: 9,014,365 Municipalities: 449 Rural: 3,886,339

Area: 1,561,177km2 States: Maranhão, Piaui, Ceará, Rio Percentage of Brazil: 18.2% Grande do Norte, Bahia, Sergipe, Northeast Population: 47,741.711 (28,1% of the total) Paraíba, Alagoas, Pernambuco Urban: 32,975.425 States: 9 Rural: 14,766.286 Municipalities: 1,792 Sources: IBGE, 2000 http://www.ibge.gov.br Area: 1,612,077km2 States: Distrito Federal, Goias, Mato Percentage of Brazil: 18,9% Central-West Grosso, Mato Grosso do Sul Population: 11,636,728 (6.9% of the total) States: 3, 1 DF Urban: 10,092,976 Municipalities: 463 Rural: 1,543,752

Area: 927,286 km2 States: Minas Gerais, Rio de Percentage of Brazil: 10.8% Janeiro, Espírito Santo, São Paulo. Southeast Population: 72,412,411 (42.6% of the total) States: 4 Urban: 65,549,194 Municipalities: 1188 Rural: 6,863,217

Area: 577,214 km2 States: Paraná, Santa Catarina, Rio Percentage of Brazil: 6,8% South Grande do Sul Population: 25,107,616 (14.8% of the total) States: 3 Urban: 20,321,999 Municipalities: 1668 Rural: 4,785,617 http://www.ibge.gov.br/ Area under cultivation 49 million/ha in the 2004/2005 harvest

Source: Ministry of Cattle herd 205 million head in 2004 Agriculture, Livestock and Food Supply and IBGE Grain production 113,892 million tonnes in the 2004/2005 harvest http://www.ibge.gov.br/

Gross Domestic Product R$ 1.9 trillion in 2005 (GDP) http://www.brasil.gov.br/ pais/indicadores/cat_eco/ Surplus US$ 44.7 billion in 2005 categoria Illiteracy rate 11.2% among persons over the age of 15 in 2004

59 Printed on Reciclato Paper. Cover pages 240 g/m2 and inside pages 90 g/m2 GEO-Brazil Brazil Brazil

Ministry of Environment NATIONAL WATER AGENCY NATIONAL WATER AGENCY