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Amazon Rev.Qxd ENVIRONMENT AND SECURITY IN THE AMAZON BASIN Woodrow Wilson Center Reports on the Americas • #4 Edited by Joseph S. Tulchin and Heather A. Golding ©2002 Woodrow Wilson International Center for Scholars Washington, D.C www.wilsoncenter.org W ENVIRONMENT AND oodrow Wilson Center Reports on the Americas • #4 SECURITY IN THE AMAZON BASIN Astrid Arrarás Luis Bitencourt Clóvis Brigagão Ralph H. Espach Eduardo A. Gamarra Thomas Guedes Da Costa Margaret E. Keck Edited by Joseph S. Tulchin and Heather A. Golding Latin American Program WOODROW WILSON INTERNATIONAL CENTER FOR SCHOLARS LEE H. HAMILTON, DIRECTOR BOARD OF TRUSTEES Joseph A. Cari, Jr., Chair; Steven Alan Bennett, Vice Chair. Public Members: James H. Billington, Librarian of Congress; John W. Carlin, Archivist of the United States; Bruce Cole, Chair, National Endowment for the Humanities; Roderick R. Paige, Secretary, U.S. Department of Education; Colin L. Powell, Secretary, U.S. Department of State; Lawrence M. Small, Secretary, Smithsonian Institution; Tommy G. Thompson, Secretary, U.S. Department of Health and Human Services. Private Citizen Members: Carol Cartwright, John H. Foster, Jean L. Hennessey, Daniel L. Lamaute, Doris O. Matsui, Thomas R. Reedy, Nancy M. Zirkin WILSON COUNCIL Steven Kotler, President. Diane Aboulafia-D'Jaen, Charles S. Ackerman, B.B. Andersen, Cyrus A. Ansary, Charles F. Barber, Lawrence E. Bathgate II, Joseph C. Bell, Richard E. Berkowitz, A. Oakley Brooks, Charles W. Burson, Conrad Cafritz, Nicola L. Caiola, Raoul L. Carroll, Scott Carter, Albert V. Casey, Peter B. Clark, William T. Coleman, Jr., Michael D. DiGiacomo, Sheldon Drobny, F. Samuel Eberts III, J. David Eller, Sim Farar, Susan Farber, Charles Fox, Barbara Hackman Franklin, Morton Funger, Chris G. Gardiner, Eric Garfinkel, Bruce S. Gelb, Steven J. Gilbert, Alma Gildenhorn, Joseph B. Gildenhorn, David F. Girard-diCarlo, Michael B. Goldberg, William E. Grayson, Raymond A. Guenter, Gerald T. Halpin, Edward L. Hardin, Jr., Carla A. Hills, Eric Hotung, Frances Humphrey Howard, John L. Howard, Darrell E. Issa, Jerry Jasinowski, Brenda LaGrange Johnson, Shelly Kamins, Edward W. Kelley, Jr., Anastasia D. Kelly, Christopher J. Kennan, Michael V. Kostiw, William H. Kremer, Dennis LeVett, Harold O. Levy, David Link, David S. Mandel, John P. Manning, Edwin S. Marks, Jay Mazur, Robert McCarthy, Stephen G. McConahey, Donald F. McLellan, J. Kenneth Menges, Jr., Philip Merrill, Jeremiah L. Murphy, Martha T. Muse, Della Newman, John E. Osborn, Paul Hae Park, Gerald L. Parsky, Michael J. Polenske, Donald Robert Quartel, Jr., J. John L. Richardson, Margaret Milner Richardson, Larry D. Richman, Edwin Robbins, Robert G. Rogers, Otto Ruesch, B. Francis Saul, III, Alan Schwartz, Timothy R. Scully, J. Michael Shepherd, George P. Shultz, Raja W. Sidawi, Debbie Siebert, Thomas L. Siebert, Kenneth Siegel, Ron Silver, William A. Slaughter, Thomas F. Stephenson, Wilmer Thomas, Norma Kline Tiefel, Mark C. Treanor, Christine M. Warnke, Ruth Westheimer, Pete Wilson, Deborah Wince- Smith, Herbert S. Winokur, Jr., Paul Martin Wolff, Joseph Zappala, Richard S. Ziman ABOUT THE CENTER The Center is the living memorial of the United States of America to the nation’s twenty-eighth president, Woodrow Wilson. Congress established the Woodrow Wilson Center in 1968 as an international institute for advanced study, “symbolizing and strengthening the fruitful relation- ship between the world of learning and the world of public affairs.” The Center opened in 1970 under its own board of trustees. In all its activities the Woodrow Wilson Center is a nonprofit, nonpartisan organization, sup- ported financially by annual appropriations from Congress, and by the contributions of founda- tions, corporations, and individuals. Conclusions or opinions expressed in Center publications and programs are those of the authors and speakers and do not necessarily reflect the views of the Center staff, fellows, trustees, advisory groups, or any individuals or organizations that pro- vide financial support to the Center. TABLE OF CONTENTS Preface vii Joseph S.Tulchin and Heather A. Golding Chapter 1 1 The Brazilian Amazon in Strategic Perspective Ralph H. Espach Chapter 2 31 Amazônia in Environmental Politics Margaret E. Keck Chapter 3 53 The Importance of the Amazon Basin in Brazil’s Evolving Security Agenda Luis Bitencourt Chapter 4 75 Drug Trafficking, National Security,and the Environment in the Amazon Basin Astrid Arrarás and Eduardo A. Gamarra | v | Chapter 5 99 SIVAM: Challenges to the Effectiveness of Brazil’s Monitoring Project for the Amazon Thomaz Guedes da Costa Chapter 6 115 SIVAM: Environmental and Security Monitoring in Amazônia Clóvis Brigagão List of Contributors 131 | vi | PREFACE his report and the conferences from which it was developed are the results of a collaborative project between the Woodrow TWilson International Center for Scholar’s Latin American Program and the Environmental Change and Security Project. Ralph H. Espach, former Program Associate of the Latin American Program and Geoffrey D.Dabelko, Director of the Environmental Change and Security Project, through the generous support of Woodrow Wilson Center Conference Funds, hosted a series of three public conferences during Spring 2000: Environment and Security in the Amazon Basin; Environmental Policy in Amazonia; and, Brazil’s SIVAM Project: Implications for Security and Environmental Policies in the Amazon Basin.The conferences brought together select groups of experts and pol- icymakers to discuss issues such as: environmental and sustainable initia- tives in the Amazon Basin; the roles of local, national and international actors; Brazil’s national security agenda in relation to the Amazon Basin; and, the rising threat of international drug trafficking. This volume is a compilation of papers presented at the conferences. Its aim is to provide new insights into the complex and politically delicate security and environmental questions at stake in the Amazon Basin. A number of central themes on national security and the environ- ment in the Amazon region run throughout the following chapters. For the purpose of a short introduction, it is worth highlighting in a general way some of the issues of prime concern to the authors. First, particular definitions of security play a central role in determining how the Brazilian, regional, and international actors approach the problem of environmental protection of the Amazon. The traditional security approach, which highlights national sovereignty and the military’s role in protecting territorial integrity of the nation, is relatively less emphasized than in the past, given the emergence of more expansive notions of security. As Bitencourt points out, however, the security variable can never be ignored in considering the reaction of Brazil and its military to international initiatives. We also see the prominence of the concept of | vii | Preface ecological security—an “ecosystemic” approach—in the Brazilian poli- cy debate. Likewise, drug trafficking and drug interdiction are increas- ingly viewed as interrelated national security and environmental issues, and events in Colombia and elsewhere ensure that such a focus will receive continued attention.These approaches broaden our understand- ing of Amazônia policy and promise to promote efforts at environmen- tal protection. Second, there appears to be considerable support in this volume for a stronger regional or multilateral approach to the preservation of the Amazon. Greater Brazilian leadership in international cooperation on the management of Amazônia would likely redound to Brazil’s benefit in var- ious ways, as Espach explains. Regional cooperation is viewed as the best approach, albeit an unlikely one given nationalistic concerns, to address environmental problems related to drug trafficking and interdiction. We also see that part of the value of the System for the Protection of the Amazon (SIPAM)—or policies aimed at increasing cooperation in region- al development—consists of potential joint actions and sharing of ideas among private, national, regional, and international entities. Third, as we also see below,SIPAM and the System for the Surveillance of Amazônia (SIVAM) are central topics, yet the impact of the two instru- ments remains to be seen. SIVAM is a technologically advanced radar and satellite network for improving the collection of regional information and monitoring. On the one hand, the emergence of SIVAM indicates an extraordinary opportunity to take advantage of the most advanced tech- nology available today.Among SIVAM’s benefits, Guedes da Costa notes, could be the generation of knowledge that challenges the perception of the security threat to the region. On the other hand, SIVAM’s magnitude and complexity raise questions of potential deficiencies in implementa- tion and evaluation. As Brigagão explains, absent SIPAM, which has faced difficulties in getting established, SIVAM risks failing to become a fully developed Amazon management tool. Finally, and perhaps most important, is environmental politics and policymaking concerning the Amazon. Politics is always critical to any major issue of governance and, as Keck emphasizes, some conserva- tionists have ignored this advice to the detriment of their work in the region. The question of the depth and effectiveness of the commit- ment of the Brazilian state to preservation will surely remain open. | viii | Preface Taking a new look at the policymaking process will help avoid the perpetuation of
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