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INSIGHTS | P E R S P E C T I V E S
ENVIRONMENT AND DEVELOPMENT
Brazil’s environmental leadership at risk
Mining and dams threaten protected areas
By J. Ferreira*, L. E. O. C. Aragão,
J. Barlow, P. Barreto, E. Berenguer,
M. Bustamante, T. A. Gardner, A. C. Lees,
A. Lima, J. Louzada, L. Parry, C. A. Peres,
R. Pardini, P. S. Pompeu, M. Tabarelli,
J. Zuanon
O
ver the past two decades, Brazil has
emerged as an environmental leader,
playing a prominent role in international fora such as the United Nations
(UN) Conferences on Sustainable Development. The country has earned
praise for the expansion of its protected area
(PA) network and reductions in Amazon
deforestation. Yet these successes are being
compromised by development pressures and
shifts in legislation. We highlight
POLICY concerns for the newly elected
government regarding development of major infrastructure and natural
resource extraction projects in PAs and indigenous lands (ILs).
Brazil has the largest PA system of any
country, covering nearly 2.2 Mkm2 or 12.4%
of the global total (1). This network helps
conserve some of the most species-rich biomes on Earth and safeguard regionally and
globally important ecosystem services [e.g.,
(2, 3)]. Since 2008, Brazil has lost 12,400 km2
of PAs due to degazetting and 31,700 km2 due
to downsizing, with an additional 21,000
km2 threatened by proposals in the National
Congress to downsize or degazette reserves
in the Brazilian Amazon (4). Until now, unplanned agricultural expansion has been the
greatest pressure on the environment, but
new pressures are being exerted in response
to rising demands for hydropower and mineral resources (see the chart). Hydropower
accounts for 77% of Brazil’s energy supply,
while 70% national potential, much of which
is in the Amazon and Cerrado, remains untapped (5). The Brazilian government predicts that the majority of this latent capacity
will need to be exploited by 2030 (5). Mining has grown from 1.6% of gross domestic
product in 2000 to 4.1% in 2011; production
is expected to further increase by a factor of
3 to 5 by 2030 (6).
Brazil has made concerted efforts to create a political and legislative framework supportive of mining and energy sectors. This
includes strategic plans and draft legislaSee the supplementary materials for author afliations.
*E-mail: [email protected]
706
7 NOVEMBER 2014• VOL 346 ISSUE 6210
tion (PL 1610/96) to develop new mines in
sustainable use reserves and ILs (5, 6). Legislation being debated in the Congress (PL
3682/2012) calls for 10% of even strictly protected areas to open for mining concessions,
and general prohibition of new PAs in areas
of high mineral or hydropower potential.
Our analysis indicates that across Brazil
there are 1.65 Mkm2 of land with some form
of registered mining interest; 1.01 Mkm2 are
in Amazonia (chart, A). While relatively few
areas have been physically cleared for min-
“Brazil’s new government
should not squander
the country’s hard-won
environmental leadership.”
ing, at least 20% of all strictly protected areas and ILs overlap with areas registered as
under consideration for mining (chart, B),
demonstrating the potential for widespread
effects if a small fraction is authorized (chart,
D and E). In the Amazon alone some 34,117
km2 of strictly protected areas (8.3% of their
total area) and 281,443 km2 of ILs (28.4% of
the total) lie in areas of registered interest
for mining. Few PAs are free from the influence of large hydroelectric dams (chart, C).
This analysis raises four key issues. First,
the existing PA network plays a critical role
in conserving Brazil’s ecosystems, counter to
claims that PAs fail to serve their intended
function. Second, there is potential for lasting environmental damage from direct, indirect, and cumulative effects associated
with many large-scale development projects.
Third, environmental mitigation policies are
poorly conceived, fall short of international
minimum standards for mitigation, and
are unlikely to succeed. Finally, systematic
inconsistencies and contradictions in the
political process, if left unresolved, will undermine the credibility, effectiveness, and
transparency of Brazil’s PA system and ILs.
Politicians who support industrial development within PAs argue that many PAs only
“lock away” mineral reserves and are nothing
more than poorly managed “paper parks,”
often embroiled in chronic land tenure disputes. Many Brazilian PAs are understaffed,
yet there is strong and growing evidence of
their key role in conserving Brazilian ecosystems. For instance, the probability of deforestation 7 to 10 times lower in Amazonian PAs
than in surrounding areas (7). The limited PA
network in the Cerrado biome has reduced
conversion to other land uses.
Environmental effects of large-scale mining and hydropower within PAs are likely to
be multiple and severe. Localized, direct effects can be particularly destructive within
hyperfragmented Cerrado and Atlantic Forest biomes, where further loss or degradation
of native vegetation could undermine opportunities to restore ecological connectivity and
prevent extinctions (8). Yet direct local effects
of development within PAs may be eclipsed
by indirect environmental effects likely to ensue in surrounding regions over decadal time
scales, such as increased deforestation, illegal
logging, overhunting, and forest fires.
Current proposals (e.g., PL 3682/2012) for
mitigating environmental damage caused
by extractive activities within PAs are inadequate, poorly conceived, and fail to meet
international best-practice standards prescribed by the basic mitigation hierarchy:
avoid; minimize; mitigate; offset [for example, (9)]. In presuming that extraction can be
authorized within PAs, the first mitigation
option—avoid effects—is discarded. The assumption that there are no “no-go” areas for
development could result in irreversible environmental damage.
Mitigation actions can provide substantial
conservation benefits relative to a businessas-usual “no mitigation” development scenario (10). But mitigation actions for large
development projects in Brazil are rarely
designed before project approval and initiation and may never be implemented (11).
Restoration is often viewed as a magic wand,
yet there is little evidence that we can restore
complex natural ecosystems after large-scale
mining (12). Mitigation and restoration efforts rarely address indirect and cumulative
effects. Recognizing that environmental effects cannot be fully mitigated on-site, proposed legislation to open up to 10% of strictly
protected areas for mining recommends that
offset areas be twice the size of affected areas
(PL 3682/2012). Applying biodiversity offsets
here is, at best, inappropriate. Although a
case can be made to use offsets to enhance
protection of threatened PAs to compensate
for environmental damage elsewhere, it is
counterintuitive to expect that protection
elsewhere can compensate, on an ecological
sciencemag.org SCIENCE
A
B
C
Indigenous lands
Strictly protected
lands
N
0°
10°S
E
Strictly protected
200,000
80
300
25,000
250
20,000
200
15,000
150
150,000
60
100
100,000
40
50
50,000
Am
az
on
ia
Ca
at
in
ga
Ce
rr
At
ad
la
o
nt
ic
fo
re
st
Pa
m
pa
Pa
nt
an
al
0
Biomes
0
500,000
300,000
95.9 999
0.2 0.0
762
0.1
2.3
0.0
0.0
0.0
20
200,000
100,000
0
50°W
40°W
20,000
18,000
16,000
14,000
12,000
105,495
10,000
295,418 8,101
8,000
209,208 5,764
3,069
6,000
4,000
20,801
1,214 4,467 2,000
125
0
400,000
Am
az
on
ia
Ca
at
in
ga
Ce
r
ra
At
do
la
nt
ic
fo
re
st
Pa
m
pa
Pa
nt
an
al
Area (km2)
0
0.1
0.0
Under consideration
Approved
281,443
135
160
Approved but not yet
under construction
No protection
600,000
30,000
1.0
1.2
F
Indigenous land
100
300,000
816
47.9
60°W
250,000
350
344
23.3
70°W
120
350,000
5,000
40°W
800,000 691,433
18,001
700,000
400
10,000
50°W
1.500
0
at
in
ga
Ce
r
ra
At
do
la
nt
ic
fo
re
st
Pa
m
pa
1,320
359
40,000 34,117
276
35,000
60°W
750
Under construction
Biomes
Area (km2)
70°W
0
1.125
Operational status
Operating
Pa
nt
an
al
40°W
km
375
>75
a
50°W
35–50
Hydroelectric dams
energy production (kw)
30,000
30,001–252,000
252,001–300,000
300,001–370,000
370,001–820,000
1,820,000–11,250,000
Ca
D
60°W
0.5
0.5–5
05–10
10–35
Am
az
on
i
70°W
Under consideration
30°S
Approved
20°S
Percent of each
protected
area covered by
mining areas
Unprotected areas
Under consideration
Approved
Mining areas overlapping
indigenous lands
No overlap
Under consideration
Approved
Overlap with mining
strictly protected areas
No overlap
Under consideration
Approved
Biomes
Distribution of municipal, state, and federal strictly protected areas, ILs, approved mining concessions, areas of registered mining interest, and approved
hydroelectric dams in Brazil (A and C). Areas officially approved as mining concessions and publicly registered as under consideration for extraction are compared against
the distribution of all strictly protected areas (D), ILs (E), and unprotected areas (F), in addition to the percentage of overlap between all protected areas and approved mining
concessions and areas of registered mining interest (B). See the supplementary materials for details.
like-for-like basis, for effects on PAs. PAs established in part on criteria of vulnerability
and irreplaceability may be too risky or impossible to offset (14), as is increasingly the
case in the most deforested areas of Brazil.
In addition, such offsets are designed to target only direct, not indirect and cumulative,
effects.
Brazil’s National System of Protected Areas was established in 2000 after more than
a decade of debate in the Congress, building
on public consultation across society and academia and representing a major contribution
toward Brazil’s international environmental
commitments, including UN Conventions on
Biological Diversity and Climate Change. In
contrast, the process of dismantling PAs to
allow industrial development has paid little
regard to criticism from Brazilian society,
exemplified by a recent campaign in defense
of Brazilian PAs by the federal Public Prosecutor’s Office. To be credible and fair, any
attempt to change and downgrade this legislation should involve the same level of public
consultation and democratic due process.
Beyond conservation and stewardship of
its own biodiversity and environmental reSCIENCE sciencemag.org
sources, Brazil has a vital role in motivating
and supporting adoption of more sustainable development trajectories around the
world. Yet, the integrity of Brazil’s ecosystems and the credibility of its environmental
leadership are jeopardized by recent shifts
toward weaker and poorly negotiated environmental safeguards in the national PA
system and ILs. This is consistent with recent changes in Brazil’s Forest Code which
include an amnesty for large areas that were
illegally deforested in the past (14). Although
there are often strong economic and ethical
arguments for development, Brazil should
not squander its hard-won record of success and leadership in favor of fast-tracking
short-lived development projects that leave
a long legacy of environmental damage. We
call on Brazil’s newly elected government to
ensure that individual development initiatives are subject to a comprehensive, socially
inclusive, and long-term cost-benefit analysis that allows for any new proposal to be
compared against possible alternatives and
that takes full account of environmental and
social effects, including rights of traditional
and indigenous peoples. ■
REFERENCES
1. WDPA, 2012. World Database on Protected Areas.
Database accessed in June 2014 from www.protectedplanet.net.
2. A. Veríssimo et al., “Protected areas in the Brazilian
Amazon: Challenges and Opportunities” (Imazon, Belém,
Brazil; Instituto Socioambiental (ISA), Sao Paulo, Brazil,
2011)
3. D. V. Spracklen et al., Nature 489, 282 (2012).
4. E. Bernard et al., Conserv. Biol. 28, 939 (2014).
5. Brasil Ministério de Minas e Energia (MME), Plano
Nacional de Energia 2030 (MME, Rio de Janeiro, 2007).
6. Brasil Ministério de Minas e Energia (MME), Plano
Nacional de Mineração 2030 (MME, Rio de Janeiro, 2010).
7. T. H. Ricketts et al., PLOS Biol. 8, e1000331 (2010).
8. F. P. L. Melo et al., Trends Ecol. Evol. 28, 462 (2013).
9. Business and Biodiversity Offsets Programme (BBOP),
Guidance Notes to the Standard on Biodiversity Offsets
(BBOP, Forest Trends, Washington, DC, 2012).
10. A. Villarroya et al., PLOS ONE 9, e107144 (2014).
11. P. M. Fearnside, Environ. Sci. Policy 38, 164 (2014).
12. M. Maron et al., Biol. Conserv. 155, 141 (2012).
13. J. D. Pilgrim et al., Conserv. Lett. 6, 376 (2013).
14. B. Soares-Filho et al., Science 344, 363 (2014).
ACKNOWL EDGMENTS
The following authors thank the following grants for support:
L.E.O.C.A. (CNPq 304425/2013-3), T.A.G. (Formas 2013-1571),
R.P. (CNPq 306715/2011-2), J.B. (CNPq 400640/2012-0), and
E.B. (NE/K016431/1).
SUPPLEMENTARY MATERIALS
www.sciencemag.org/content/346/6210/706/suppl/DC1
10.1126/science.1260194
7 NOVEMBER 2014• VOL 346 ISSUE 6210
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