Marine extractive reserves of Brazil: contradictions of legal order, sustainability and ecological aspect

Authors

Keywords:

co-management, conflict, traditional population, legislation

Abstract

The objective was to analyze the Marine Extractive Reserves role as a tool for co-management of coastal and marine resources by beneficiaries and discuss the conflicts generated between this management model and objectives contained in the National System of Conservation Units (SNUC, in Portuguese). The Marine Extractive Reserves are the materialization of a community-based protected area model through a system of co-management where natural resources are managed pursuing its sustainable use. However, the model transferred to the coastal and marine environment finds conflicts of legal order, given the current Brazilian legislation. The conflict is due to the denial of access to resources in the areas demarcated as a reserve by citizens not designated as "traditional population". This access restriction does not find basis in Brazilian law, which can generate conflicts between beneficiaries and "excluded". Extractive Reserves are areas where the culture and values of traditional population should be preserved concurrently with the sustainable use of natural resources. But until today there is no long-term studies that prove empirically whether the resources used are being managed in order to perpetuate themselves, considering their use by communities. Biological and anthropogenic factors must be constantly monitored in order to separate the fluctuations capture of natural order from those caused by human beings. With this, it is possible that catch rates supported by extractive system become more reliable. The state needs to turn its attention to this type of protected area, giving greater institutional support and reviewing the contradictions of legal order.

References

ABURTO, J.; THIEL, M.; STOTZ, W. 2009 Allocation of effort in artisanal fisheries: The importance of migration and temporary fishing camps. Ocean & Coastal Management, 52: 646í 654.

ACHESON, J.M. 2006 Institutional failure in resource management. Annual Review of Anthropology, 35: 117-134.

ACHESON, J.M. e WILSON, J. 1996 Order out of chaos: The case for parametric fisheries management.American Anthropologist, 98(3): 579-594.

AGRAWAL, A. e GIBSON, C.C. 1999 Enchantment and disenchantment: the role of community in natural resource conservation. World Development, 27: 629-649.

ALMEIDA, M.W.B. 2004 Direitos í­Â  floresta e ambientalismo: seringueiros e suas lutas. Revista Brasileira de Ciências Sociais, 19(55): 33-52.

AMBROSE, E.E.; SOLARIN, B.B.; ISEBOR, C.E.; ILLIAMS, A.B. 2005 Assessment of fish bycatch species from coastal artisanal shrimp beam trawl fisheries in Nigeria. Fisheries Research, 71:125í 32.

ANDERSON, C.N.K.; HSIEH, C.H.; SANDIN, S.A.;HEWITT, R.; HOLLOWED, A.; BEDDINGTON, J.; MAY, R.M.; SUGIHARA, G. 2008 Why fishing magnifies fluctuations in fish abundance. Nature, 452: 835í 839.

BEGOSSI, A. 1998 Extractive reserves in the Brazilian Amazon: An example to be followed in the Atlantic forest? Ciência e Cultura - Journal of the Brazilian Association for the Advancement of Science, 50(1): 24-28.

BERKES, F. 2006 From community-based resource management to complex systems. Ecology and Society, 11(1): 45. [online] URL:http://www.ecologyandsociety.org/vol11/iss1/art45/

BERKES, F.; MAHON, R.; MCCONNEY, P.; POLLNAC, R.C.; POMEROY, R.S. 2001
Managing Small-scale Fisheries: alternative directions and methods. International
Development Research Centre. Ottawa, 308p.

BRASIL, 1988 CONSTITUIÇÃO DA REPí­Å¡BLICA FEDERATIVA DO BRASIL. Diário Oficial da União, Brasí­­lia, 05 de outubro de 1988, Nº 191-A,Seção 1, p.1.

BRASIL, 1990a DECRETO Nº 98.863, de 23 de janeiro de 1990. Cria a Reserva Extrativista do Alto Juruá. Diário Oficial da União, Brasí­­lia, 24 de janeiro de 1990, Nº 17, Seção 1, p.2.

BRASIL, 1990b DECRETO Nº 98.897, de 30 de janeiro de 1990. Dispõe sobre as reservas extrativistas e dá outras providências. Diário Oficial da União,
Brasí­­lia, 31 de janeiro de 1990, Nº 22, Seção 1, p.2.

BRASIL, 2000 LEI Nº 9.985, de 18 de julho de 2000.Regulamenta o art. 225, § 1º, incisos I, II, III, e VII da Constituição Federal, institui o Sistema Nacional de Unidades de Conservação da Natureza e dá outras providências. Diário Oficial da União, Brasí­­lia, 19 de julho de 2000, Nº 138,Seção 1, p.45.

BRASIL, 2002 LEI Nº 10.406, de 10 de janeiro de 2002.Institui o Código Civil. Diário Oficial da União, Brasí­­lia, 11 de janeiro de 2002, Nº 8, Seção 1, p.1.

BRASIL, 2007 INSTRUÇÃO NORMATIVA Nº 02, de 18 de setembro de 2007. Disciplina as diretrizes, normas e procedimentos para formação e funcionamento do Conselho Deliberativo de Reserva Extrativista e de Reserva de Desenvolvimento Sustentável. Diário Oficial da União, 20 de setembro de 2007, Nº 182, Seção 1,p.102.

CAMPBELL, S.J. e PARDEDE, S.T. 2006 Reef fish structure and cascading effects in response to artisanal fishing pressure. Fisheries Research, 79:75í 83.

CARDOZO, L.S.; PORTO, M.F.; PIMENTEL, P.C.B.;RODRIGUES, J.S.; SCHIAVETTI, A.;
CAMPIOLO, S. 2012 Discussões do Conselho Deliberativo da Reserva Extrativista de
Canavieiras, Bahia, Brasil: da gestão pesqueira í­Â  ambiental. Revista da Gestão Costeira Integrada, 12(4): 463-475.

CARVALHO FILHO, J.S. 2010 Manual do Direito Administrativo. 23ª ed. Rio de Janeiro: Lúmen Juris. 1420p.

CUNHA, C.C. e LOUREIRO, C.F.B. 2009 Reservas extrativistas: limites e contradições de uma territorialidade seringueira. Revista THEOMAI,20: 169-185.

DENNY, C.M. e BABCOCK, R.C. 2004 Do partial marine reserves protect reef fish assemblages?Biological Conservation, 116: 119í 129.

DIEGUES, A.C. 2001a Repensando e recriando as formas de apropriação comum dos espaços e recursos naturais. In: DIEGUES, A.C. e MOREIRA, A.C.C. (eds). Espaços e Recursos Naturais de Uso Comum. NUPAUB-USP, São Paulo. p.97-124.

DIEGUES, A.C. 2001b O Mito Moderno da Natureza Intocada. 3ª ed. São Paulo: NUPAUB/USP. Ed.HUCITEC. 169p.

DIEGUES, A.C. 2008 Marine Protected Areas and Artisanal Fisheries in Brazil. Samudra Monograph. International Collective in Support of Fishworkers (ICSF). 68p.

FERNANDEZ, F.; ANTUNES, P.; MACEDO, L.; ZUCCO, C. 2012 How sustainable is the use of natural resources in Brazil? Natureza &Conservação, 10(1): 77-82.

GERHARDINGER, L.C.; GODOY, E.A.S.; JONES, P.J.S.; SALES, G.; FERREIRA, B.P. 2011 Marine Protected Dramas: the flaws of the Brazilian National System of Marine Protected Areas.Environmental Management, 47: 630í 43.

GELCICH, S.; GODOY, N.; CASTILLA, J.C. 2009 Artisanal fishers’ perceptions regarding coastal co-management policies in Chile and their potentials to scale-up marine biodiversity conservation. Ocean & Coastal Management, 52(8):424í 432.

GLASER, M. e OLIVEIRA, R.S. 2004 Prospects for the co-management of mangrove ecosystems on the North Brazilian coast: whose rights, whose duties and whose priorities? Natural Resources Forum, 28: 224í 233.

GRIMBLE, R. e WELLARD, K. 1997 Stakeholder methodologies in natural resource management:A review of principles, contexts, experiences and opportunities. Agricultural Systems, 55(2):173í 193.

HAWKINS, J. e ROBERTS, C.M. 2004 Effects of Artisanal Fishing on Caribbean Coral Reefs. Conservation Biology, 18(1): 215-226.

HSIEH, C.H.; REISS, C.S.; HUNTER, J.R.;BEDDINGTON, J.R.; MAY, R.M.; SUGIHARA,
G. 2006 Fishing elevates variability in the abundance of exploited species. Nature, 443:859í 862.

HUTCHINGS, J.A. e REYNOLDS, J.D. 2004 Marine Fish Population Collapses: Consequences for Recovery and Extinction Risk. BioScience, 54(4): 297-309.

HYRENBACH, K.D.; FORNEY, K.A.; DAYTON, P.K. 2000 Marine protected areas and ocean basin management. Aquatic Conservation: Marine and Freshwater Ecosystems, 10: 437í 458.

ICMBIO í  Instituto Chico Mendes de Conservação da Biodiversidade. 2010a Plano de Manejo Participativo Reserva Extrativista do Mandira í  Cananéia / São Paulo. Ministério do Meio Ambiente í  (MMA). Diretoria de Unidades de Conservação de Uso Sustentável e Populações Tradicionais. Coordenação Geral de Reservas Extrativistas e de Desenvolvimento Sustentável. 192p.

ICMBIO í  Instituto Chico Mendes de Conservação da Biodiversidade. 2010b PORTARIA Nº 77, de 27 de agosto de 2010. Cria o Conselho Deliberativo da Reserva Extrativista Marinha de Arraial do Cabo/RJ. Diário Oficial da União,Brasí­­lia, 01 de setembro de 2010, Nº 168, Seção 1,p.69.

ICMBIO í  Instituto Chico Mendes de Conservação da Biodiversidade. (sem data, on line). Relação de UCs com Plano de Manejo. Disponí­­vel em
http://www.icmbio.gov.br/portal/biodiversidade/unidades-de-conservacao/planos-demanejo/lista-plano-de-manejo.html. Acesso em: 16 ago. 2012.

JACKSON, J.B.C.; KIRBY, M.X.; BERGER, W.H.;BJORNDAL, K.A.; BOTSFORD, L.W.;
BOURQUE, B.J.; BRADBURY, R.H.; COOKE, R.; ERLANDSON, J.; ESTES, J.A.; HUGHES, T.P.;KIDWELL, S.; LANGE, C.B.; LENIHAN, H.S.; PANDOLFI, J.M.; PETERSON, C.H.; STENECK, R.S.; TEGNER, M.J.; WARNER, R.R. 2001 Historical overfishing and the recent collapse of coastal ecosystems. Science, 293: 629-638.

JOHNSON, A.E.; CINNER, J.E.; HARDT, M.J.; JACQUET, J.; MCCLANAHAN, T.R.;SANCHIRICO, J.N. 2012 Trends, current understanding and future research priorities for artisanal coral reef fisheries research. Fish and Fisheries, 14: 281í 292.

JONES, E.; GRAY, T.; UMPONSTIRA, C. 2009 The impact of artisanal fishing on coral reef fish health in Hat Thai Mueang, Phang-nga Province, Southern Thailand. Marine Policy, 33: 544í 552.

KNOWLTON, N. 2004 Multiple "stable” states and the conservation of marine ecosystems. Progress in Oceanography, 60: 387-396.

LAM, M.E. e PAULY. D. 2010 Who is right to fish? Evolving a social contract for ethical fisheries.Ecology and Society, 15(3): 16. [online] URL:http://www.ecologyandsociety.org/vol15/iss3/art16/

LAMBERT, Y. 2008 Why should we closely monitor fecundity in marine fish populations? Journal of Northwest Atlantic Fishery Science, 41: 93í 106.

LEVIN, S. 1992 The problem of pattern and scale in ecology. Ecology, 73(6): 1943-1967.

LITTLE, P. 2002 Territórios Sociais e Povos Tradicionais no Brasil: por uma antropologia da territorialidade. Série Antropologia 2002-2003:1-32.

LOPES, P.F.M.; SILVANO, R.A.M.; BEGOSSI, A. 2011 Extractive and sustainable development reserves in Brazil: resilient alternatives to fisheries? Journal of Environmental Planning and Management, 54(4): 421-443.

MACE, P.M. 1994 Relationships between common biological reference points used as threshold and targets of fisheries management strategies.Canadian Journal of Fisheries and Aquatic Sciences,51: 110í 122.

MANGI, S.C. e ROBERTS, C.M. 2006 Quantifying the environmental impacts of artisanal fishing gear on Kenya’s coral reef ecosystems. Marine Pollution Bulletin, 52(12): 1646í 60.

MARSCHKE, M.; ARMITAGE, D.; AN, L.V.;TUYEN, T.V.; MALLEE, H. 2012 Do collective
property rights make sense? Insights from central Vietnam. International Journal of the Commons, 6(1): 1í 27.

MATHEW, S. 2002 Small-scale fisheries perspectives on an ecosystem-based approach to fisheries management. In: SINCLAIR, M.;VALDIMARSSON, G. (Eds.). Responsible Fisheries in the Marine Ecosystem. CAB International,Wallingford. p.47-81.

MCCLANAHAN, T.R. e CINNER, J.E. 2008 A framework for adaptive gear and ecosystembased management in the artisanal coral reef fishery of Papua New Guinea. Aquatic Conservation: Marine and Freshwater Ecosystems, 18: 493í 507.

MCCLANAHAN, T.R. e OMUKOTO, J.O. 2011 Comparison of Modern and Historical Fish Catches (AD 750í 1400) to Inform Goals for Marine Protected Areas and Sustainable Fisheries. Conservation Biology, 25(5): 945í 955.

MEA í  Millennium Ecosystem Assessment 2003 Ecosystems and human well-being: a framework for assessment. Chapter 5: Dealing with scale.Millennium Ecosystem Assessment, World Resources Institute/Island Press, Washington,D.C., USA. p.107-126.

MEIRELLES, H.L. 1997 Direito Administrativo
Brasileiro. 22ª ed., São Paulo: Malheiros. 431p.

MENDES, C. 1989 O testamento do homem da floresta:Chico Mendes por ele mesmo. Organização, notas e introdução de Cí­¢ndido Grzybowski. Rio de Janeiro, FASE. 70p.

MILANO, Y.M.R. 2011 As implicações do Contrato de Concessão do Direito Real de Uso para Gestão de uma Reserva Extrativista Marinha.Revista de Direito dos Monitores da UFF, 4(11): 1-16.

MISUND, A.; KOLDING, J; FRÉON, P. 2002 Fish capture devices in industrial and artisanal fisheries and their influence on management. In:HART, P.; REYNOLDS, J. (eds.) Handbook of Fish and Fisheries. Blackwell Publishing, Oxford,vol.2. 13-36 p.

MYERS, R.A. 2001 Stock and recruitment:generalizations about maximum reproductive rate, density dependence, and variability using meta-analytic approaches. ICES Journal of Marine Science, 58: 937í 951.

MYERS, R.A. e WORM, B. 2003 Rapid worldwide depletion of predatory fish communities. Nature,423: 280-283.

MYERS, R.A.; ROSENBERG, A.A.; MACE, P.M.; BARROWMAN, N.J.; RESTREPO, V.R. 1994 In search of thresholds for recruitment overfishing.ICES Journal of Marine Science, 51: 191í 205.

OSTROM, E. 1990 Governing the Commons: The Evolution of Institutions for Collective Action.Cambridge University Press. 280p.

PEREIRA, A.L.C. 2010 Estrutura populacional do caranguejo-uçá, Ucides cordatus, (Linnaeus, 1793) (Crustacea, Brachyura, Ocypodidae) e sustentabilidade do extrativismo na Reserva Extrativista do Mandira, Cananéia, São Paulo,Brasil. São Carlos. 79p. (Tese de Doutorado.Programa de Pós-Graduação em Ecologia e
Recursos Naturais do Centro de Ciências Biológicas e da Saúde. Universidade Federal de São Carlos - UFSCar). Disponí­­vel em:http://www.bdtd.ufscar.br/htdocs/tedeSimplificado//tde_busca/arquivo.php?codArquivo=3469 Acesso em: 23 dez. 2012.

POMEROY, R.S. e BERKES, F. 1997 Two to tango:The role of government in fisheries comanagement. Marine Policy, 21: 465í 480

POTEETE, A.R.; JANSSEN, M.A.; OSTROM, E. 2010 Working Together: Collective Action, the Commons, and Multiple Methods in Practice. Princeton, NJ:Princeton University Press. 370p.

ROBERTS, C.M.; BRANCH, G.; BUSTAMANTE,R.H.; CASTILLA, J.C.; DUGAN, J.; HALPERN,
B.S.; LAFFERTY, K.D.; LESLIE, H.; LUBCHENCO, J.; MCARDLE, D.; RUCKELSHAUS, M.; WARNER, R.R. 2003 Application of ecological criteria in selecting marine reserves and developing reserve networks. Ecological Applications, 13: S215í S228.

RUSS, G.R. e ALCALA, A.C. 1996 Do marine reserves export adult fish biomass?Evidence from Apo Island, central Philippines. Marine Ecology Progress Series, 132: 1í 9.

RUTTAN, L.M. 1998 Closing the Commons:cooperation for gain or restraint? Human Ecology,26(1): 43-66.

RUTTENBERG, B.I. 2001 Effects of artisanal fishing on marine communities in the Galápagos Islands. Conservation Biology, 15(6): 1691-1699.

SALAS, S.; CHUENPAGDEE, R.; SEIJO, J.C.;CHARLES, A. 2007 Challenges in the assessment and management of small-scale fisheries in Latin America and the Caribbean. Fisheries Research,87: 5í 16.

SCHEFFER, M.; BASCOMPTE, J.; BROCK, W.A.;BROVKIN, V.; CARPENTER, S.R.; DAKOS, V.;HELD, H.; VAN NES, E.H.; RIETKERK, M.;SUGIHARA, G. 2009 Early-warning signals for critical transitions. Nature, 461: 53í 59.

SCHIAVETTI, A.; MANZ, J.; SANTOS, C.Z.;MAGRO, T.C.; PAGANI, M.I. 2013 Marine
Protected Areas in Brazil: an ecological approach regarding the large marine ecosystems. Ocean &Coastal Management, 76: 96-104.

SEIXAS, C.S. e KALIKOSKI, D.C. 2009 Gestão participativa da pesca no Brasil: levantamento das iniciativas e documentação dos processos.Desenvolvimento e Meio Ambiente, 20: 119-139.

SEIXAS, C.S.; MINTE-VERA, C.V.; FERREIRA, R.G.;MOURA, R.L.; CURADO, I.B.; PEZZUTI, J.; THÉ, A.P.G.; FRANCINI-FILHO, R.B. 2009 Comanaging commons: advancing aquatic
resources management in Brazil. In: LOPES,P.F.M. e BEGOSSI, A. (eds.). Current Trends in Human Ecology. Newcastle upon Tyne:Cambridge Scholars Publishing, p.183í 204.

SHESTER, G.G. e MICHELI, F. 2011 Conservation challenges for small-scale fisheries: Bycatch and habitat impacts of traps and gillnets. Biological Conservation, 144: 1673í 1681.

SILVA, P.P. 2004 From common property to comanagement: lessons from Brazil’s first maritime extractive reserve. Marine Policy, 28:419-428.

SILVANO, R.A.M.; MACCORD, E.P.F.L.; LIMA,E.R.V.; BEGOSSI, A. 2006 When does this fish spawn? Fishermen’s local knowledge of migration and reproduction of Brazilian coastal fishes. Environmental Biology of Fishes, 76: 371í 386.

SILVERTOWN, J. 2004 Sustainability in a nutshell. Trends in Ecology & Evolution, 19(6): 276-278.

SONG, S.L.; SOPHA, L.; TRY, I.; SOTHARITH, H.2005 The unsustainable exploitation of inlandfisheries resources in Cambodia. In: SWAN, J. e GRÉBOVAL, D. (eds.) Overcoming factors of unsustainability and overexploitation in fisheries: selected papers on issues and approaches. International Workshop on the Implementation
of the International Fisheries Instruments and Factors of Unsustainability and Overexploitation in Fisheries. Siem Reap, Cambodia, 13í 16 September 2004. FAO Fisheries Report . No. 782. Rome, FAO. p.265-275.

STENSETH, N.C. e ROUYER, T. 2008 Ecology:destabilized fish stocks. Nature, 452: 825í 826.

SUTHERLAND, W.J. 2001 Sustainable exploitation: a review of principles and methods. Wildlife Biology, 7: 131-140.

VASCONCELLOS, M.; DIEGUES, A.C.; SALES, R.2007 Limites e possibilidades na gestão da pesca artesanal costeira. In: COSTA, A. (Org.). Nas redes da pesca artesanal. 1ª ed., v.1, Brasí­­lia: IBAMA; PNUD: p.15-84.

WORM, B.; BARBIER, E.B.; BEAUMONT, N.; DUFFY, J.E.; FOLKE, C.; HALPERN, B.S.; JACKSON, J.B.C.; LOTZE, H.K.; MICHELI, F.; PALUMBI, S.R.; SALA, E.; SELKOE, K.A.;
STACHOWICZ, J.J.; WATSON, R. 2006 Impacts of biodiversity loss on ocean ecosystem services. Science, 314: 787í 790.

Published

2018-11-13