GEF Caatinga Conservation and Management Project

Policy Framework for Indigenous Peoples and Quilombolas in Bahia and Ceará

The project does not foresee any negative impacts on Indigenous Peoples or Quilombolas. The project has been designed so that the areas of intervention in both states include areas in which indigenous and quilombo communities are located, in order to include these groups as beneficiaries of the project. According to Bank Policy OD. 4.20, an Indigenous Peoples Framework for each state are has been prepared by each state. A summary of the policy framework for indigenous peoples and quilombolas and the full report for each state is presented below.

INDEX

1. Summary of the Policy Framework for Indigenous Peoples and Quilombolas

2. Policy Framework For Indigenous Peoples and Quilombolas – Full Reports for Bahia and Ceará

Bahia

Ceará......

1. Summary of the Policy Framework for Indigenous Peoples and Quilombolas

Presentation

The states of Ceara and Bahia presented an Indigenous Peoples Framework that responds to the World Bank Operational Policy 4.10 (July 2006). This annex is a summary of both frameworks.

Based on the information provided by INCRA, there are 15 ethnic groups in Ceara: Tremembé, Tapeba, Pitaguary, Jenipapo Kanidé, Potiguara de Paupina, Anacé, Kanindé, Potiguara, Juá, Kariri, Kalabaça, Tabajara, Tupinambá e Gavião. Of the 15, 7 are recognized by official organisms. The other ethnic groups are awaiting the decision by FUNAI. The National Health Foundation (FUNASA) states that there are 9.622 indigenous peoples cadastered in the State of Ceara. Other reports mention a much larger figure of 30.000 indigenous peoples in the state. Most of the ethnic groups speak portuguese. The socio-economic situation of these groups is very precarious and they live under extreme poverty conditions. Their lands are too small to sustain their traditional forms of survival and livelihood.

In Ceara, there are 47 lands titled to the Quilombolas (based on information from INCRA and IDACE) that are distributed among 17 municipalities. There are other sources of information that mention a different number indicating that Ceara has 67 Quilombo communities. The following rural communities have been identified as the main groups in the state of Ceara: Bom Sucesso, Barriguda, Barra, Lagoa de Dentro, Mirador, Paraná e Santo Antônio and Queimadas.

In Bahia, based on the demographic census of 2000, the Geographic and Statistics Brazilian Instituto (IBGE) reported that Bahia has 64.240 indigenous peoples (8.5% of the national average). The Indigenist Missionary Council (CIMI) mentions that there are only 9.847 indigenous peoples that have 96.776 ha of indigenous titled to them. The project will intervene in the following municipalities: Glória, Ribeira do Pombal, Banzaê, Euclides da Cunha, Rodelas, Abaré e Curaçá and, Baixo Médio São Francisco. The following ethnic groups are found in the state of Bahia, Pataxo, Tupinamba, Pankararé, Kantaruré, Xucuru-Kariri, Kiriri, Kaimbé, Atikum, Pankaru, Tuxá e Tumbalalá. The Indigenous Lands in the municipalities of Glória, Ribeira do Pombal and Euclides da Cunha have already been registered. In the municipalities of Rodelas, Abaré and Curaçá they have been identified.

Bahia reports that 16.930 Quilombolas live in the state (27 % of country total) and they correspond to 23 distinct communities or 2.795 families, distributed in the municipalities of

Bom Jesus da Lapa (8.316), Malhada (5.000), Senhor do Bonfim (2.884), Rio de Contas (564) and Antônio Gonçalves (166). The institution in charge of geographic information systems for African-Brazilian (SICAB) reports that of the 23 distinct ethnic Quilombolas, 12 communities have been recognized, 7 have been titled, one has been registered; and the remaining still await to be recognized officially.

Legal Framework.

Indigenous Peoples. In the late 1980s, as a result of intensive mobilizations and debates promoted by indigenous organizations and various sectors of civil society, Brazil inaugurated a new framework for indigenous rights. Under the Constitution adopted in 1988, the constitutional rights of indigenous peoples were granted prominence and space, with a specific chapter of the Constitution dedicated to them (title VIII, “On Social Order,” chapter VIII, “On Indigenous Peoples”), as well as various other provisions and an article in the Transitional Constitutional Provisions Act. Two significant conceptual innovations with regard to previous Constitutions, to the 1916 Civil Code, and to the so-called “Indigenous Statute,” were highlighted: (1) The first abandoned the idea that Indigenous Peoples will have to assimilate into Brazilian society and the expectation that their culture, social organization, usages, and customs were transitory. (2) The second and most relevant, because it involved the interest in land possession and ownership, defined Indigenous Peoples’ as original owners of their lands. By this definition, the BrazilianState recognized that indigenous peoples’ rights to the land even precede the existence of the BrazilianState. In addition to extending certain land rights to indigenous peoples, the 1988 Constitution, also assured them of respect for their social organization, customs, languages, beliefs, and traditions. Over all, the constitutional provisions gave rise to the legal basis for defining ownership and State protection with regard to preservation, demarcation, integrity, and respect for indigenous lands. In particular, Article 231 prescribes a variety of elements with regard to the nature of the ties of possession, occupation, and domain. Thus, indigenous lands are:

  • Federal Government property;
  • Intended for the permanent occupation by Indigenous Peoples;
  • Any legal acts that affect this right of possession are declared null and void, except those of relevant public interest to the Federal Government;
  • Only Indigenous Peoples may enjoy the wealth of the soil, the rivers, and lakes existing within them;
  • The exploitation of water resources, research, and the extraction of mineral wealth may only be carried out [on indigenous lands] with the authorization of the National
  • Congress after hearing the concerns of the affected communities and assuring their participation in the benefits of such exploitation;
  • Granted inalienability and immunity, and the rights over these lands cannot be assigned to any other party
  • Indigenous Peoples may not be removed from their lands except in exceptional and temporary situations.

With regard to rules for the demarcation of indigenous lands, since the 1973 Indigenous Statute (Law 6.001 of 12/19/73), the Federal Government began to adopt specific rules for administrative acts dealing with the demarcation of indigenous lands, in observance 79 of article 19 of said law. Over the years this regulation underwent several modifications. The last one occurred with Decree 1775 in January 1996.

The Constitution for the state of Bahia in its Chapter XXIV, Article 291 is dedicated to the Indigenous issues. It recognizes as a duty of the State to collaborate with the Federal government to benefit indigenous peoples, prohibiting any action or omission that could result in negative impacts on their ancestral rights.

Quilombolas

Article 68 of the Act of Transitional Constitutional Provisions–ADCT of the 1988 Constitution contains the first initiative to includeQuilombolas (members of Quilombos) in the national legal system, assuring their right to the ownership of their lands. Under the Federal Constitution, Decree 227 of 11/21/03, returned the responsibility of regularizing the ownership of Quilombolalands to INCRA and provided the legal frameworks for the definition ofQuilombolasgroups and the demarcation of their lands (using concepts already employed in Pará’s legislation, mentioned above). Under the Brazilian legal framework, land occupied by Quilombolas came to be understood as important for the physical, social, economic, and cultural reproduction of these populations. Quilombolasland is not individually titled but rather is registered as a collective title in the name of the interested community, which acquires the status of a legal non-profit association. In Ceara, a historic moment for the Quilombolas was the I Meeting of the Quilombolas in Ceara in 1998. The State of Bahia mentions in its constitution, Chapter XXII, Article 286, the rights recognition of Quilombos. It recognizes that the Bahian society and culture is historically influenced by the presence of the Afro-Brazilian communities, instituting that any form of racism is a crime that is subject to persecution by the FederalState.

Participatory mechanisms to benefit indigenous peoples and quilombolas in the project areas

The project does not foresee any negative impacts on indigenous peoples or Quilombolas, on the contrary several of the components will support livelihood activities compatible with the ecological restoration of degraded areas and that promote their traditional ways of living and ensures their cultural survival and enrichment.

The project aims to contribute to the preservation, conservation and sustainable use of biodiversity in the Caatinga biome in the states of Bahia and Ceara. The project has been organized in three components. The first component is to support the integrated ecosystem management of the Caatinga. The component will support inter-sectoral activities and will ensure that all policies and legal frameworks to be developed will be subject to a participatory process that will include indigenous peoples and quilombolas from the states. The sub-components include: (i) participatory design and implementation of legal incentives and policies to promote IEM approaches; (ii) support the integrated management of the states’ protected areas; (iii) support capacity and training programs to strengthen the use of IEM by government, civil society and community organizations and leaders.

Component 2 will support the testing and replication of improved land uses and natural resources management that recover and reduce land degradation and biodiversity loss. The component envisage to support the following types of activities: (i) water and soil conservation management; (ii) conservation and sustainable use of biodiversity; (iii) rehabilitation of degraded areas; (iv) alternative technological innovation to improve sustainable use; (v) increase economic, social and cultural aspects of the poor rural communities that live off the land. (vi) coordination and technical assistance mechanisms.

Component 3 will support the monitoring, evaluation and dissemination of information to ensure that project results and impacts are systematized and disseminated.

Indigenous peoples and quilombolas in both states will participate in all three components through the following activities: 1) training and capacity building activities to beneficiaries that are located in the project intervening areas; 2) implementation of sub-projects that are located in their ancestral territories and that are part of the project sites; 3) technical assistance, based on the needs identified in the community sub-projects; 4) participatory diagnostic studies with the local communities that will work in the preparation of local community development plans; 5) workshops and other events that will be necessary to mobilize the involvement of communities in certain sub-projects or in the management plans of the protected areas to be consolidated; 6) consultation process for the creation of new protected areas; 7) consultation process of some of the legal and policy studies that will be prepared to promote IEM approach for the Caatinga biome.

Under component 1, the project will not create new protected areas in their ancestral territories and will make every effort to ensure that their lands are recognized and that the protected areas to be created enjoy their full support especially if adjacent to their own territories.

Component 2 would foresee as priority sub-projects those that contribute to the management of ancestral indigenous or quilombolas territories as long as they are located within the project’s intervention areas. The component would design specific interventions (25 percent of all demonstration projects) to benefit indigenous and quilombola groups. The sub-projects could support activities such as: restoration of degraded habitats, environmental education, and sustainable use of natural resources of indigenous peoples or quilombolas. Selection procedures will ensure that their cultural values are respected as well as are preserved through the activities of the sub-projects. One of the ways to provide them with new opportunities is by valuing their traditional and ancestral knowledge with respect to natural resources use. Component 2 will seek to invite sub-projects from indigenous groups and quilombolas and if capacity building is needed, the project will ensure that it is provided so that they may participate meaningfully. Many indigenous groups and quilombolas in Brazil and the states of Bahia and Ceara are strong stewards of biological diversity. Their ancestral territories have been preserved compared to the surrounding landscape that is mainly subject to degradation and over-exploitation of resources. Their ancestral knowledge has guaranteed that they use resources moderately without a commercial purpose which is usually the main driver of degradation. The quilombolas have very valuable experience in managing water resources, wildlife species and vegetation cover. Both groups have many positive things to contribute to the conversation of the Caatinga and the project teams in both states will promote their participation.

Component 3 will address the need for up-dated information about the demographics, socio economic conditions, land rights and tenure and natural resources about the indigenous peoples and quilombolas in the two states. This information will be of great benefit to them as some information about their conditions is still unavailable or scattered and will help strengthen their claims, social and market inclusion as well as their participation in government or other development programs.

Altogether, given the legal framework at the federal and state level, given that indigenous peoples and quilombolas have an ancestral and historic relationship with the land, and given that they still live closest to nature, the project sees the partnership with indigenous peoples and quilombolas as a major ingredient for successfully reverting the degradation of the Caatinga and will make every effort to give them a special place during the implementation of the project. Therefore the World Bank policy OP 4.10 on Indigenous Peoples is fully addressed in the design of the project and will be monitored during project implementation to ensure that the proposed actions are met.

2.Policy Framework For Indigenous Peoples and Quilombolas – Full Reports for Bahia and Ceará

Bahia

BRASIL

Governos dos Estados da Bahia e Ceará

Secretaria do Planejamento – SEPLAN (BA)

Secretaria do Meio Ambiente e Recursos Hídricos – SEMARH (BA)

Companhia de Desenvolvimento e Ação Regional – CAR (Ba)

Secretaria da Ouvidoria-Geral e do Meio Ambiente – SOMA (CE)

Fundo Mundial para o Meio Ambiente - GEF

Banco International para Reconstrucão e Desenvolvimento – BIRD

GEF-PPG TF054984

PROJETO MATA BRANCA

BAHIA

ESTRATÉGIA PARA ALCANÇAR POVOS INDÍGENAS E QUILOMBOLAS

NOVEMBRO, 2005

S U M Á R I O

1 Marco Legal

2 Diagnóstico Rápido e Dados de Linha de Base

3 Situação Fundiária

4 Relação com a Comunhão Nacional

5 Meios e Formas de Acesso para Negociação

6 Avaliação das Necessidades

7 Identificação de Formas de Participação

8 Identificação Técnica de Atividades de Desenvolvimento e Preservação

9 Medidas de Mitigação de Possíveis Impactos Negativos do Projeto

10 Medidas de Otimização dos Impactos Positivos e Benefícios do Projeto

A N E X O S

Tabela 1 – Bahia – Distribuição Espacial dos Povos Indígenas e Situação Jurídico-Administrativa das Terras

Tabela 2 – Projeto Caatinga – Distribuição Espacial dos Povos Indígenas e Situação Jurídico-Administrativa das Terras

Tabela 3 – Brasil – Distribuição Espacial das Comunidades Quilombolas

Tabela 4 – Bahia – Distribuição Espacial das Comunidades Quilombolas e Situação Jurídico-Administrativa das Terras

Figura 1 – Áreas /especiais – Povos Indígenas.

POVOS INDÍGENAS E QUILOMBOLAS DO ESTADO DA BAHIA

1 Marco Legal

O marco legal dos povos indígenas e quilombolas do estado da Bahia guarda estreita relação com os dos demais Estados do Brasil, quais sejam: a Convenção no 169 da Organização Internacional do Trabalho – OIT;a Constituição da República Federativa do Brasil; a Lei 6001/73 – Estatuto do Índio; o Decreto 4887/03 que regulamenta procedimentos para identificação, reconhecimento, delimitação, demarcação e titulação das terras ocupadas por remanescentes das comunidades dos quilombos e a Lei 10406/02 do Novo Código Civil Brasileiro, dentre outras normas também importantes.

A Convenção 169 da OIT, promulgada pelo Decreto 5051, de 18 de abril de 2004, reconhece a tendência natural dos povos indígenas de assumir o controle de suas próprias instituições com vista a preservação da sua identidade, ao desenvolvimento da sua economia, à manutenção da língua e religião, etc. e lembra a particular contribuição dos povos indígenas e tribais à diversidade cultural, à harmonia social e ecológica da humanidade e à cooperação e compreensão internacional.

Os governos, Artigo 2º, deverão assumir a responsabilidade de desenvolver, com a participação dos povos interessados, uma ação coordenada e sistemática e ao aplicar dispositivos dessa Convenção, artigo 6º, deverão:

a)consultar os povos interessados, mediante procedimentos apropriados e, particularmente, através de suas instituições representativas, cada vez que sejam previstas medidas legislativas ou administrativas suscetíveis de afetá-los diretamente;

b)estabelecer os meios através dos quais os povos interessados possam participar livremente, pelo menos na mesma medida que outros setores da população e em todos os níveis, na adoção de decisões em instituições efetivas ou organismos administrativos e de outra natureza responsáveis pelas políticas e programas que lhes sejam concernentes;

c)estabelecer os meios para o pleno desenvolvimento das instituições e iniciativas dos povos e, nos casos apropriados, fornecer os recursos.

Quanto aos recursos naturais existentes nas terras indígenas, Artigo 15, deverão se constituir em direitos especialmente protegidos.Esses direitos abrangem o direito desses povos a participarem da utilização, administração e conservação dos recursos mencionados.

Em caso de pertencer ao Estado a propriedade dos minérios ou dos recursos do subsolo, ou de ter direitos sobre outros recursos, existentes nas terras, os governos deverão estabelecer ou manter procedimentos com vistas a consultar os povos interessados, a fim de se determinar se os interesses desses povos seriam prejudicados, e em que medida, antes de se empreender ou autorizar qualquer programa de prospecção ou exploração dos recursos existentes nas suas terras.Os povos interessados deverão participar sempre que for possível dos benefícios que essas atividades produzam, e receber indenização eqüitativa por qualquer dano que possam sofrer como resultado dessas atividades.

Quanto à sua mobilidade, com as reservas do disposto nos parágrafos do Artigo 16, os povos indígenasnão deverão ser transladados das terras que ocupam. Quando, excepcionalmente, o translado e o reassentamento desses povos sejam considerados necessários, só poderão ser efetuados com o consentimento dos mesmos, concedido livremente e com pleno conhecimento de causa.Quando não for possível obter o seu consentimento, o translado e o reassentamento só poderão ser realizados após a conclusão de procedimentos adequados estabelecidos pela legislação nacional, inclusive enquetes públicas, quando for apropriado, nas quais os povos interessados tenham a possibilidade de estar efetivamente representados.