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Brazil's Lessons in Rural Development Brazil’s Lessons in Rural Development Family Agriculture, Access to Water, and Civic Engagement By Joseph Bateman and Viviane Brochardt, with contributions from Silvio Porto WOLA WASHINGTON OFFICE ON LATIN AMERICA February 2013 Table of Contents Introduction 3 Food Acquisition Program 5 Historical context of rural development and family agriculture in Brazil 5 Greater focus on rural development and food insecurity in Brazilian public policy 6 The Food Acquisition Program 6 Impact of the Program and processes of evaluation and adjustment 9 PAA implementation at the local level 11 Some lessons from the PAA 12 Increasing Water Access through Brazil’s Rainwater Captation Programs 14 Introduction 14 Analyzing policies to address the Brazilian Semiarid 15 Living with the Semiarid 17 Final Conclusions and Recommendations 20 ABOUT THE AUTHORS Joseph Bateman is WOLA’s Program Officer for Brazil and Citizen Security. Viviane Brochardt is a journalist and graduate student in Politics of Communication and Culture at the University of Brasilia. She is also an adviser for Communications and Resource Mobilization for the Brazilian Semiarid Association (ASA). Silvio Porto is the Director of Agricultural Policy and Information at the National Food Supply Company (Conab). The introduction, conclusion, and recommendations were written by Joseph Bateman and reflect the views of WOLA. The Food Acquisition Program section was written by Joseph Bateman based on information provided by Silvio Porto. The Cistern Program section was written by Viviane Brochardt. WASHINGTON OFFICE ON LATIN AMERICA | FEBRUARY 2013 3 FREQUENTLY USED ACRONYMS ABC: Brazilian Cooperation Agency (Agência MAPA: Ministry of Agriculture, Livestock, and Brasileira de Cooperação) Supply (Ministério da Agricultura, Pecuária e ASA: Brazilian Semiarid Association Abastecimento) (Articulação no Semiárido Brasileiro) MDA: Ministry of Agrarian Development Conab: National Food Supply Company (Ministério do Desenvolvimento Agrário) (Companhia Nacional de Abastecimento), MDS: Ministry of Social Development and a public company within the Ministry of the Fight against Hunger (Ministério do Agriculture, Livestock, and Supply that Desenvolvimento Social e Combate à Fome) manages much of the Food Acquisition P1+2: One Land, Two Waters Program (Programa Program (PAA) Uma Terra e Duas Águas) Consea: National Council of Food and Nutritional P1MC: One Million Cisterns Program (Programa Security (Conselho Nacional de Segurança Um Milhão de Cisternas) Alimentar e Nutricional) PAA: Food Acquisition Program (Programa de Embrapa: Brazilian Agricultural Research Acquisição de Alimentos) Corporation (Empresa Brasileira de Pesquisa Agropecuária) PNAE: National School Meals Program (Programa Nacional de Alimentaão Escolar) FAO: Food and Agriculture Organization of the United Nations UNICEF: United Nations Children’s Fund 1. Introduction international borders—for example, Nicaraguans who travel to Costa Rica. Whether in the San Across Latin America, rural poverty rates remain Joaquin Valley in California or the fields of eastern stubbornly high. While many countries in the region El Salvador, migrant workers, both documented have experienced notable national-level economic and undocumented, often face discrimination, labor growth rates over the past decade, income and abuses, and the threat of deportation. opportunities have not grown at the same rate in In some countries that have experienced relatively rural areas. In Mexico and Central America, as small high growth rates and reductions in national levels of farmers, rural laborers, and especially young people poverty, such as Mexico, rural poverty has increased consider their future, the lack of opportunity in rural or remained at high levels, and inequality between areas is one of several issues that factor into decisions the urban areas and rural farmlands has intensified.2 about whether to stay in the community or leave for In recent years, long-standing issues of lack of urban centers or opportunities abroad. opportunity and development in rural areas have been The decision to leave is not an easy one, as compounded by a growing problem of food insecurity migrants face many challenges. Mexicans and Central for rural communities. This has been caused in part Americans travel north toward the United States by drastic international price fluctuations and the in hopes of a better future as agricultural laborers increasing tendency to produce cash crops, such as or urban workers, but they can place their lives at palm oil, instead of food for local markets. great risk as they pass through Mexico.1 Significant To address high levels of poverty and food numbers of migrants also travel within Latin America insecurity, increased social spending across Latin to work as agricultural laborers, whether remaining America has focused on alleviating rural poverty and in their own countries—for example, Mexicans who decreasing hunger. Many countries have implemented travel from Oaxaca to Guerrero—or traveling across 4 Brazil’s Lessons in Rural Development poverty reduction strategies, such as conditional cash This study attempts to draw attention to Brazil’s transfers, that have reduced poverty rates and that may efforts to promote family agriculture. In particular, increase the employability and “human capital” of the this study highlights two specific programs in next generation. However, like remittances, these types Brazil—the Food Acquisition Program (Programa of measures do not by themselves promote long-term de Aquisição de Alimentos, PAA) and the Cistern solutions that help increase the output and the incomes Programs (P1MC and P1+2)—looking at how they have of small farmers or generate investments that create achieved success in promoting rural development by other rural employment opportunities.3 focusing on support for family agriculture. Governments, policy makers, and rural The PAA, an element of the Zero Hunger program, populations continue to be concerned about rural is funded through the Ministry of Social Development poverty and food insecurity. Additionally, many and the Ministry of Agrarian Development and is governments and international donors have become managed by a consortium of Brazilian government increasingly concerned about rural development agencies. It uses federal funds to make direct and food security after seeing the negative effects purchases of agricultural products in local markets, on the rural sector caused by the increase in natural thus generating income for small farmers. The disasters and drought associated with climate change. purchased agricultural goods are then donated to food But the growing concern about rural poverty has not assistance programs, used to create food reserves, yet translated into sustained action. or used in schools or other public institutions. The Nevertheless, there are examples in Latin America program complements its purchasing program of sustained investment in rural family agriculture and with a capacity-building component that includes local economic development which may be of interest training programs for participating small farmers to development practitioners, campesino organizations, and cooperatives; the trainings address issues of governments, and donors across Latin America. organizational management and financial planning. Brazil’s approach to rural development and food The program also supports network building between security is one worth examining. Most studies small producers to share best practices. The PAA has focusing on Brazil’s development strategy have multiplier effects beyond the benefits it brings to the given attention to former President Luiz Inácio participants: other community members indirectly “Lula” da Silva’s signature Zero Hunger (Fome Zero) benefit from the more predictable demand and more strategy to reduce hunger through a comprehensive stable prices that result from government purchasing government approach. In particular, the Brazilian contracts, as well as from increased skills and government’s conditional cash transfer program, knowledge within their communities. Bolsa Familia, has received widespread attention The Cistern Program is a project funded by the and praise. On the other side, critics of Brazil’s rural Ministry of Social Development and implemented development strategy have focused on the argument by NGOs that addresses lack of access to water in that the Brazilian government and legislature have the Brazilian Semiarid region (o Semiárido), through promoted export-oriented agribusinesses, with partnerships between a network of NGOs and dramatic increases in land devoted to soy and other federal and local governments. The program trains export commodities and with negative effects on land local community members in the skills needed to concentration and on the environment.4 build different kinds of cisterns to collect rainwater But the focus on these issues has meant that less and then provides funding to employ them to build attention has been given to Brazil’s effort to promote cisterns for personal and agricultural use. In doing family agriculture, including the ways in which the so, it supports small farmers, strengthens local Ministry of Agrarian Development (Ministério do economies, and promotes rural development. Desenvolvimento Agrário, MDA) and the Ministry of Both of these programs were developed in Social Development (Ministério do Desenvolvimento partnership with communities to address locally Social, MDS) have incorporated support
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