The citizenship territories program and the challenges for the rural exodus combat in north plateau catarinense: a case study in municipalities of São Bento do Sul and Rio Negrinho

544 THE CITIZENSHIP TERRITORIES PROGRAM AND THE CHALLENGES FOR THE RURAL EXODUS COMBAT IN NORTH PLATEAU CATARINENSE: A CASE STUDY IN MUNICIPALITIES OF SÃO BENTO DO SUL AND RIO NEGRINHO Gabriela Willemann Siviero Maximo Doctoral student in Civil Engineering gabrielaarquite[email protected]m Carlos Loch Doctorate degree in Forest Engineering Professor [email protected] Federal University of Santa Catarina (UFSC) Department of Civil Engineering Laboratory of Photogrammetry, Remote Sensing and GIS Campus Universitário Reitor João David Ferreira Lima – Bairro Trindade Centro Tecnológico – CTC – Departamento de Engenharia Civil – Bloco A 88040-900 Florianópolis, Santa Catarina, Brasil +55 48 37212398 +55 48 37212397 Key words: public policy, Citizenship Territories Program, rural exodus, Brazil Abstract In February 2008, the Brazilian Federal Government created the Citizenship Territories Program, whose purpose is to promote and accelerate the elimination of poverty and social inequality in rural areas, including gender, race and ethnicity, through a sustainable territorial development strategy. The choice of the territories entered in the Citizenship Territories Program results from pre-defined criteria, examples of the low Human Development Index (HDI) and low economic dynamism, in which were chosen 60 territories to be benefited with structuring actions in 2008 and more 60 in 2009, totaling 120, divided into five regions of Brazil, where, within these territories, are being applied three axes to support productive activities, citizenship and access to rights and the qualification of the infrastructure. In this sense, this article aims to demonstrate the challenges of combating rural exodus, since the implementation of this Program in the North Plateau of Santa Catarina State, specifically in the municipalities of São Bento do Sul and Rio Negrinho, Citizenship Territories Program members. The case study is based on bibliographic and documentary research; data analysis provided by the Brazilian Institute of Geography and Statistics (IBGE), and; in analysis of thematic maps produced in 545 environment of Geographic Information Systems (GIS). With the found results expected to ratify that despite the efforts and actions taken by the Citizenship Territories Program, in these members municipalities, public policy has not been able to be effective in combating rural exodus, where it is believed that the appeal to such an act are still insufficient. Initial considerations Since the industrial revolution that occurred in Europe in the late nineteenth century, the rural exodus appears as a one of its most important consequences. In Brazil, the phenomenon happened in the mid-twentieth century, starting in the southeast, the main industrial center of the country. The rural exodus is the migration of people from rural areas to urban centers, which occurs in many countries across the globe and involves the search for better working conditions and quality of life. At this process of search for human sustainability, cities become more attractive rural populations, because the various possibilities of employment, education, health, infrastructure and leisure. Therefore, from the demographic growth of the great centers that urbanism arose. As a multidisciplinary study, studies and urban actions have been trying to answer the questions related to territorial planning problems, the migration processes and unprecedented urban development, which generated multiple exhaustion physical, social and environmental issues in urban areas. Among the various process problems, it is observed, environmental problems related to unhealthy conditions and solid waste, government in which favored the upper classes of society and sociocultural related to health, education and the process of segregation that among the consequences, do raise the crime rate and poverty in large cities. In seeking to ameliorate the problems caused by the rural exodus, various events and global discussions happened, mostly focused on achieving sustainable territorial development. Among the international past events for this purpose, it can be highlighted as propellant to the Stockholm Conference in Sweden in 1972 and the recent Rio+20 that occurred in Brazil in 2012. In Brazil, in order to contribute to a better quality of life of rural populations and, in order to minimize social inequalities in the field, the Federal Government instituted the Citizenship Territories Program, in which one of the challenges is to establish ways to combat rural exodus from structuring actions proposed by state and municipal governments with the participation of communities. This challenge of combating rural depopulation, has been observed, in some groups of municipalities until then termed as territories without greater progress, as we shall see from the data presented in this research. Citizenship Territories Program “Citizenship Territories” at the national level Linked to the Presidency of the Republic, through the Ministry of Civil House, with participation of 22 ministries, state and municipal governments and community representatives on 25 546 February 2008, the Brazilian Federal Government created the Citizenship Territories Program (PTC), with the purpose of "promoting and accelerating the elimination of poverty and social inequality in rural areas, including gender, race and ethnicity, through sustainable territorial development strategy" (Our translation) (BRAZIL, 2008). According to the decree that created the program, the main objectives listed: "I - integration of public policies based on territorial planning; II - expanding mechanisms of social participation in the management of public policies of interest to the development of territories; III - increasing the supply of basic citizenship programs; IV - inclusion and productive integration of poor populations and the most vulnerable social groups, such as rural workers, quilombolas, indigenous and traditional populations; V - appreciation of social, cultural, economic, political, institutional and environmental regions and populations" (Our translation) (BRAZIL, 2008). In order to put this public policy in practice, was created several structuring actions, directed to planning and sustainable rural development in support of productive activities, citizenship and access to rights and the classification of the infrastructure, which linked the strategies of state governments and municipal, which were presented to civil society organizations and the collegiate of each territory for the creation of a sustainable territorial development plan and later it passed to be executed (TERRITORY OF CITIZENSHIP, 2015). The criteria for the choice of the territories inserted in the Citizenship Territories Program were: “I - to be incorporated into the Sustainable Development Program for Rural Areas, the Ministry of Agrarian Development; II - the lowest Human Development Index - HDI territorial; III - the highest concentration of beneficiaries of the Family Allowance Program; IV - higher concentration of family farmers and agrarian reform settlers; V - the largest concentration of traditional populations, quilombolas and indigenous; VI - low economic dynamism, according to the typology of constant regional inequalities of the National Policy for Regional Development, the Ministry of National Integration; VII - convergence programs to support the development of different levels of government; VIII - the largest social organization; and IX - the highest concentration of municipalities with the lowest IDEB - Basic Education Development Index. Single paragraph. The criteria described in section IX will be used for the incorporation of Territories from 2009" (Our translation) (BRAZIL, 2009). In 2008 and 2009 were chosen 120 territories, 60 per year, in which the municipalities needed to have the same geographical, socioeconomic, cultural identity and social cohesion, to be beneficiaries of the Citizenship Territories Program. These territories would need to be divided by all Brazilian regions (North, Northeast, Midwest, Southeast and South), at least one in each state for the year 2008 and 2 for the year 2009. According to the Citizenship Territory (2015) estimated that 1,852 Brazilian municipalities (32.9% of the country) were the beneficiaries of this public policy. 547 "Territories of Citizenship" at the state level In the state of Santa Catarina, were listed two territories for the practice of public policies of the Citizenship Territories Program (Figure 1). The Middle West Contestado, composed of 29 municipalities, first implemented in 2008 and the second, the North Plateau of Santa Catarina, whose municipalities of São Bento do Sul and Rio Negrinho corpus of this research make up this territory, which was inserted in 2009 and it consists of 14 municipalities (Figure 2) (TERRITORY OF CITIZENSHIP, 2015) Figure 1. Map of Citizenship Territories in Brazil and Santa Catarina Source: Authors The land area of the municipalities that make up the Citizenship Territories Program Middle West Contestado is 8288.10Km² consisting of: Abelardo Luz, Água Doce, Bom Jesus, Capinzal, Catanduvas, Coronel Martins, Entre Rios, Erval Velho, Faxinal dos Guedes, Galvão, Herval d'Oeste, Ibicaré, Ipuaçu, Joaçaba, Jupiá, Lacerdópolis, Lajeado Grande, Luzerna, Marema, Ouro, Ouro Verde, Passos Maia, Ponte Serrada, São Domingos, Treze Tílias, Vargeão, Vargem Bonita, Xanxerê and Xaxim (Figure 2). The total population is 271,996 inhabitants, of which 72,666 (26.72%) live in rural areas, with 13,155 farmers, 2,105 settler families and four (4) indigenous lands and, in particular, the Human Development Index (HDI) Average 0.81. (TERRITORY OF CITIZENSHIP, 2015) 548 Figure 2 - Map of Two Citizenship Territories in Santa Catarina State Source: Authors Already the land area of the municipalities that make up the program Territories of Citizenship North Plateau is 10,466.70 Km², consisting of: Campo Alegre, Canoinhas, Irineópolis, Itaiópolis, Mafra, Major Vieira, Matos Costa, Monte Castelo, Papanduva, Três Barras, Bela Vista do Toldo, Porto União, Rio Negrinho e São Bento do Sul (Figure 2). The total population of this territory is of 357,082 inhabitants, of which 84,430 (23.64%) live in rural areas, with 12,909 family farmers, 460 families settled and two (2) indigenous lands and, in particular, the Human Development Index ( HDI) average of 0.79 (TERRITORY OF CITIZENSHIP, 2015). General aspects Physical Characterization, Economic and Demographic a) Santa Catarina Santa Catarina is the twentieth State of Brazil in area with 95.733,978km² (square kilometers) equivalent to 1.12% of the entire national territory is divided into mesoregions 6 (Figure 3), it has a total of 295 municipalities, with around 450km (kilometers) of coastline in the Atlantic Ocean. The state, whose capital bears the name of Florianópolis, has 6,248,436 inhabitants, according to census data from 2010, and 1,000,523 the population living in rural areas and 5,247,913 in urban areas (BRAZILIAN INSTITUTE OF GEOGRAPHY AND STATISTICS, 2016a). 549 Figure 3. Map of Three Mesoregions in Santa Catarina State Source: Authors According to the Government of the State of Santa Catarina (2016a) colonization of the state was given predominantly by European immigrants where: "(...) the Portuguese colonized the coast in the eighteenth century; Germans colonized the Itajai Valley, part of the South and the North of Santa Catarina in the mid-nineteenth century; and the Italians the southern state at the end of the same century; already the West was colonized by gauchos of Italian and German origin in the first half of the twentieth century" (Our translation). With a humid subtropical climate, pleasant and well-defined and distinct seasons between their regions between the plateau, the mountains and the coast, the state has pluvial indexes that spin at 1500 mm / year and rains well distributed throughout the year. Santa Catarina has a relief of different altitudes ranging from coast to peaks of 1827 meters of altitude, with portions of the Atlantic Forest, Forest of Araucaria, Savannah, Sandbank and Mangrove (UFSC, 2014). The state's economy is diversified and has a strong agriculture of national importance where the main products are rice, corn and soybeans. In other sectors the Florianópolis metropolitan area stands out for its technology, tourism, services and construction; the north by the technological center, furniture and mechanical engineering; in West concentrate the food production and mobile activities; the Serrano Plateau paper industries and wood; in South garment segments, plastics, coal and ceramic and; in Itajaí Valley there is a predominance textile and clothing industry, shipbuilding and technology (GOVERNMENT OF THE STATE OF SANTA CATARINA, 2016b). 550 b) The region of the Citizenship Territories Program, the North Plateau of Santa Catarina The exploitation of wood was always significant for the region, the Citizenship Territory, the North Plateau of Santa Catarina, which is inserted in Mesoregion North of the State of Santa Catarina, in which the economic feature prominent is the branch of wood, especially by industries furniture sector and the paper industry. Within this panorama, currently the region is also composed of forests with native trees - Mixed Ombrophilous Forest - Araucaria Forest - and pine reforestation areas. Among the divisions of Catarinenses Mesoregions, the Northern region, 1970-2010 remained on the list of municipalities that together always preserved below the national average, regional and state in the question of the number of inhabitants living in rural areas as it can be seen in Table 1, behind the metropolitan region of Florianopolis. Table 1. Demographic data the urban population and rural Brazil – Region – Federation Unit - Mesoregions 1970 1980 1991 2000 2010 Urban 52.097.260 80.437.327 110.990.990 137.925.238 160.934.649 Rural 41.037.586 38.573.725 35.834.485 31.947.618 29.821.150 Urban 7.305.650 11.876.780 16.403.032 20.318.991 23.261.985 Rural 9.190.672 7.155.210 5.726.345 4.791.358 4.124.906 Urban 1.247.158 2.154.250 3.208.537 4.217.763 5.247.903 Rural 1.654.502 1.474.042 1.333.457 1.140.100 1.000.533 Urban - - 532.959 702.849 860.563 Rural - - 518.124 414.114 340.149 Urban - - 680.254 875.481 1.063.909 Rural - - 157.957 151.125 148.934 Urban - - 267.304 312.470 332.431 Rural - - 107.817 88.714 74.310 Urban - - 718.164 993.376 1.322.041 Rural - - 225.456 193.808 186.939 Urban - - 521.069 725.358 915.804 Rural - - 98.196 77.897 78.291 Urban - - 488.787 608.230 753.156 Rural - - 225.907 214.441 171.909 Note: 1 - For the year 1991, the universe data. For other years, Sample data 2 - By the year 1991 the age groups go up to 80 years or more; from 2000, going up to 100 years or more. Itajaí Valley Greater Florianópolis South Catarinense Brazil Souh Santa Catarina West Catarinense North Catarinense Serrano Plateau Resident population by sex, age groups and situations - Sample - General Population Characteristics Variable = Resident Population (People) Sex = Total Age groups = Total Brazil, Region, Federation Unit, Mesoregions Household Situation Year Source: IBGE – Statistic data The fact of the Mesoregion North State not be characterized with rural prevalence may be related to the inclusion of coastal municipalities in grouping as Araquari, Balneario Barra do Sul, Itapoá, Joinville (largest and most populous county in the state), São Francisco do Sul. In Table 1, you can see that in mesoregion North of Santa Catarina, the number of inhabitants in rural 551 areas is 12.28% and, when considering only the group of municipalities in the territory of the Northern Plateau Citizenship and Santa Catarina that are inserted this mesoregion (Table 2) this figure rises to 36.98%. Table 2. Demographic data the urban population and rural Brazil – Region – Federation Unit - CTP Plateou North Catarinense 1970 1980 1991 2000 2010 Urban 55,94 67,59 75,59 81,19 84,37 Rural 44,06 32,41 24,41 18,81 15,63 Urban 44,29 62,4 74,12 80,92 84,94 Rural 55,71 37,6 25,88 19,08 15,06 Urban 42,98 59,37 70,64 78,72 83,99 Rural 57,02 40,63 29,36 21,28 16,01 Urban 34,41 46,89 58,05 59,39 63,02 Rural 65,59 53,11 41,95 40,61 36,98 Note: 1 - For the year 1991, the universe data. For other years, Sample data 2 - By the year 1991 the age groups go up to 80 years or more; from 2000, going up to 100 years or more. 3 - The municipality of Matos Costa was not considered in this table because, despite being inserted in the Citizenship Territories Program - North Plateau Catarinense, is not a member of Mesoregion North of Santa Catarina Brazil Souh Santa Catarina North Catarinense (Only municipalities in CTP - North Plateau) Resident population by sex, age groups and situations - Sample - General Population Characteristics Variable = Resident Population (People) Sex = Total Age groups = Total Brazil, Region, Federation Unit, Mesoregion North Household Situation Year Source: IBGE – Statistic data Despite this demographic characteristic for the region, the Citizenship Territory, the North Plateau of Santa Catarina, there are some municipalities whose vocation does not help in determining the man in the field, such as the municipalities of São Bento do Sul, Rio Negrinho (neighboring municipalities in the eastern portion the Territory) and Porto União (municipality located in the western portion the Territory) that since 1970 have always had the majority of the population residing in its urban areas, always staying below the average national, regional and state. Leaving aside the three cities mentioned above, only the municipality of Três Barras, from the year 1991, reversed his balance and started to be part of this statistic, remaining below average. These four municipalities have an economy highlighted by the manufacturing products in which the feedstock revolves around the wood chain. São Bento do Sul and Rio Negrinho in the furniture area, Port Union in producing wooden frames and Três Barras by the paper industry. In the proportion of residents in urban and rural areas of the Citizenship Territories Program - North Plateau of Santa Catarina, presented in Figure 4 visualizes the evolution of each municipality since the year 1970 and the numbers have been increasing in recent decades. 552 Figure 4. Map of Citizenship Territories North Plateau and rural exodus Source: Authors According to the Brazilian Institute of Geography and Statistics, for the group of municipalities that make up the territory of citizenship, the North Plateau of Santa Catarina, in the Census 1970 only Mafra, Porto União, Rio Negrinho and São Bento had the largest number of urban population. Over the decades this statistic has changed to such an extent that in the Census of 2010, only three municipalities remained classified as typically rural populations: Bela Vista do Toldo, Irineópolis and Major Vieira. Aspects that characterize and strengthen the rural exodus in the municipalities of São Bento do Sul and Rio Negrinho According to the Brazilian Institute of Geography and Statistics (2016a), the municipality of São Bento do Sul is the most populous territory with 74,801 inhabitants and the 2nd Human Development Index - highest, with the value of 0.782, having a land area of 501,634km²; Rio Negrinho already has 39,846 inhabitants, a Human Development Index of 0.738 and a land area of 907,311km² (ranked as the 4th largest city in area the Territory).