Participação, resolução negociada de conflitos e (neo)extrativismo no Brasil: o Parque Nacional da Serra do Gandarela (MG/Brasil)

Re is a de Es udios Andaluces, núm. 36 (2018) pp. 121-146 Re is a de Es udios Andaluces, núm. 36 (2018) pp. 121-146. e-ISSN: 2340-2776 h p://dx.doi.o g/10.12795/ ea.2018.i36.06 Es a ob a se dis ibuye con la licencia C ea i e Commons Reconocimien o-NoCome cial-SinOb aDe i ada 4.0 In e nacional (CC BY-NC-ND 4.0.) 17 “Pa icipa ion”, “nego ia ed se lemen ” o con lic s and (neo) ex ac i ism in B azil: The Se a do Ganda ela Na ional Pa k (Minas Ge ais, B azil) Claudia Ma cela O duz-Rojas Uni e sidade Fede al de Minas Ge ais claudiao duz oja[email p o ec ed] Do alice Ba os-Pe ei a Uni e sidade Fede al de Minas Ge ais [email p o ec ed] Janise B uno-Dias Uni e sidade Fede al de Minas Ge ais [email p o ec ed] Keywo ds: pa icipa ion, se lemen o con lic s, (neo) ex ac i ism, Se a do Ganda ela, Vale S.A. 1.INTRODUCTION AND METHODOLOGY O e he las 25 yea s, La in Ame ica has seen he expansion and dissemina ion o echnologies in he a ea o esolu ion o en i onmen al con lic s, coming om co e coun ies (Acsel ad, H., Beze a, G., 2010). In B azil, his cou se akes place simul aneously wi h he coun y's democ a iza ion, which p omo es he inc easing pa icipa ion o he ci il socie y in he p ocesses o discussion and decision- making. Al hough appa en ly abiding by he democ a ic and he emancipa o y pe spec i es, hese expe iences o con empo a y pa icipa ion and managemen con ibu e o disguising li iga ion and he e y loss o policies (Ranciè e, J., 2006). They "shi he ocus o he ac ions om ' igh s' o 'in e es s,' bending, he e o e, cons i u ionally es ed igh s" (Zhou i, A., Valencio, N., 2014, 9) which s a being g an ed ou o gene ousness. Thus, we aim o s udy how a se ies o ac ions called "public pa icipa ion" wo ks in asymme ic con ex s o powe o social and business segmen s, ha is, he dispu es be ween he mining sec o and en i onmen al conse a ion. Based on he s uggles wi h Vale S.A. and he c ea ion o he Se a do Ganda ela Na ional Pa k (PNSG), in he me opoli an a ea o Belo Ho izon e, Minas Ge ais (B azil), his s udy aims o e alua e he limi s o he mechanisms o pa icipa ion and consensus pa adigm in he pe spec i e o (neo) ex ac i ism in i e di e en momen s. Da a we e collec ed om wo ieldwo ks ocused on a be e p oximi y o a s udy a ea; he es ablishmen o con ac s; and, conduc ion o 31 semi-s uc u ed in e iews wi h local dwellings and echnicians. We analyzed he epo s o he Public Hea ings and Public Consul a ions in which he use and occupa ion o an a ea we e announced. O icial and public documen s we e also examined, such as: Public Hea ing Minu es o he Apolo Mining P ojec ; he p oposal o he c ea ion o he Ganda ela Pa k submi ed by ICMBio, in 2010 and 2013; he minu es o he mee ings o ganized by ICMBio wi h local communi ies; Minu es and Documen s Syn hesis o he Wo k G oup (GT1 and GT2) es ablished by he S a e Depa men o En i onmen and Sus ainable De elopmen (SEMAD); he Books o Minu es o Mee ings o he Ru al “Pa icipação”, “Resolução Negociada” de Con li os e (Neo)ex a i ismo no B asil: o Pa que Nacional da Se a do Ganda ela (MG/B asil) Re is a de Es udios Andaluces, núm. 36 (2018) pp. 121-146. e-ISSN: 2340-2776 h p://dx.doi.o g/10.12795/ ea.2018.i36.06 Es a ob a se dis ibuye con la licencia C ea i e Commons Reconocimien o-NoCome cial-SinOb aDe i ada 4.0 In e nacional (CC BY-NC-ND 4.0.) 18 Communi y Associa ion o And é do Ma o G ande (ACRAMDA) and su ounding a eas; he Books o Minu es o Mee ings o he Ru al Communi y Associa ion o Conceição do Rio Acima and su ounding a eas; and, he P oposal o he C ea ion o he Al o Rio São João Sus ainable De elopmen Rese e (RDS), submi ed by ACRAMDA. 2. MAIN RESULTS Wi h he in en ion o esol ing e i o ial con lic s in he egion and he "ha moniza ion" o in e es s, we mobilized se e al mechanisms o "pa icipa ion" and echniques o nego ia ion and media ion (Ba ban i, O., 2010). The pu pose was o c ea e consensus among he social segmen s in ol ed and o " edis ibu e" powe and con ol o e e i o y and na u al esou ces. The adop ion o mechanisms and managemen echniques as well as esolu ion o con lic s - seeking "concilia ion" be ween con lic ing in e es s and p oposals ha cen e on he same a ea - based on he idea o Sus ainable De elopmen sp ead wo ldwide in he Repo Ou Common Fu u e (1987). Such model o de elopmen , de ined as sus ainable, hos s a happy union be ween economy and ecology so as o each a new age o economic g ow h. Acco ding o F ei as (2014), he ideology o Sus ainable De elopmen has become necessa y o eco e he deg ee o economic g ow h achie ed in he las decades. The e i al o he dominan ideology, ha is, o he de elopmen alis ideology, ga e ise o he inco po a ion o a new discou se " o pai wi h/emb ace e en s onge na u e wi hin he capi alis p oduc ion" (Ibid., 2014, 245). In his global con ex o ede ini ion and econ igu a ion o he neolibe al p ojec , "ci il socie y" pa icipa ion mechanisms a e dissemina ed in he managemen o p o ec ed a eas, which may a ec di e en deg ees o powe o e he decision-making p ocess as sugges ed by Pimbe , M. & P e y, J. (1995). F om he beginning o 2010 up un il he end o 2012, se e al "pa icipa ion" and "nego ia ion" oppo uni ies we e c ea ed, in local, s a e and na ional le els, in o de o make he p oposals easible o he egion and sol e en i onmen al con lic s. Du ing hese e en s, he "pa icipa ion" o he "ci il socie y" go se e al le els o powe o e he decision-making p ocess: passi e and consul a i e pa icipa ion (e.g. in Hea ings and Public Consul a ions) and unc ional and in e ac i e pa icipa ion (e.g. in Wo k G oups and di ec Nego ia ions Round Tables). In he nego ia ions a enas, he "a i ude and he coope a i e spi i s" be ween he pa ies, he "ha moniza ion o in e es s" and he "consensual se ings" became he wa chwo ds o achie e he in ended consensus conce ning he u u e o he egion. A e wo yea s o exhaus i e nego ia ions, he p oposal o he c ea ion o he Se a do Ganda ela Na ional Pa k was a las examined, bo h echnically and legally, by he Minis y o he En i onmen (MMA) o abou a yea and was inally modi ied in o de o mee he in e es s o he mining sec o . VALE S.A., in pa icula , had demanded he exclusion o a eas e en la ge han hose ecommended by he Wo k G oups (GT's). The ac is ha , despi e he all in he p ices o mine al commodi ies om 2014, he mining companies did no gi e up on hei p ojec s, no hei demands o expansions/inc ease. A e hese changes, he p oposal was a las submi ed by he Minis y o En i onmen o he P esiden o he Republic, who is esponsible o sanc ioning he dec ee c ea ing Claudia Ma cela O duz-Rojas, Do alice Ba os-Pe ei a y Janise B uno-Dias Re is a de Es udios Andaluces, núm. 36 (2018) pp.121-146. e-ISSN: 2340-2776 h p://dx.doi.o g/10.12795/ ea.2018.i36.06 Es a ob a se dis ibuye con la licencia C ea i e Commons Reconocimien o-NoCome cial-SinOb aDe i ada 4.0 In e nacional (CC BY-NC-ND 4.0.) 19 ede al conse a ion uni s (B azil, 2000). The changes in he design o he pa k and he ede ini ion o i s bounda ies we e published in he O icial Gaze e (DOU) on Oc obe 14 h, 2014, a day a e he c ea ion o he Se a do Ganda ela Na ional Pa k was dec eed. As s a ed in he dec ee, he pa k co e ed an a ea o 31.2840 hec a es, which ep esen s 7,000 hec a es less han he o iginal p oposal, and s ill allowed mining ac i i ies in he egion. The esul o he nego ia ions, he e o e, b ough abou asymme ical edis ibu ion o powe o e e i o y and esou ces, exposing social hie a chies in p oducing and legi imizing ela ions and posi ion o hose in ol ed. This condi ion demons a e unequal powe ela ions be ween he social ac o s in ol ed, making i impossible o each a solu ion o he en i onmen al con lic in Se a do Ganda ela. The inal decision on which a eas o p ese e, he es ablishmen o i s bounda ies and i s ca ego y is in e wo en wi h a dynamic ha s e ches a beyond he pu ely en i onmen al issue, in which "poli ics, subjec s, in e es s and ep esen a ions acqui e he condi ion o s a egic a iables in a se o dis inc o ces" (Mungai, M., 2008, 161). The idea o p og ess in oduced by he mining indus y can no longe be a ca ego ical impe a i e which coaxes con en men wi h insigni ican dis ibu ion o he explo a ion/exhaus ion o bo h na u al and human esou ces. 3. CONCLUSIONS Th oughou he analyses o he p ojec s unde discussion o he Se a do Ganda ela and he di e en anges o "pa icipa ion," managemen and nego ia ions u ilized o he " esolu ion o con lic s," i became e iden ha he e a e inequali ies - economical, symbolic and poli ical - in he social sec o s in ol ed. As we ha e discussed, he "pa icipa ion" o he "ci il socie y" has eached di e en deg ees o powe o e he decision-making p ocess: passi e and consul a i e pa icipa ion (e.g., Public Hea ings and Consul a ions), and unc ional and in e ac i e (e.g., Wo k G oups and Di ec Nego ia ion ound ables). Despi e he mul iple mechanisms o pa icipa ion and he di e en deg ees o powe in he decision-making hey p esen , he "b oad social pa icipa ion" has p o en o be me ely bu eauc a ic, me apho ical and incapable o de e ing o ende ing un easible any economic p ojec . The c ea ion o Se a do Ganda ela Na ional Pa k, as well as o he s udies (Rede B asilei a de Jus iça Ambien al, 2009; Mungai, M., 2008; San os, A. e al., 2017) show ha hese pa icipa ion mechanisms unc ion a he mo e o legi imize ma e s socially and poli ically han o ac ually ensu e e ec i e pa icipa ion o he a ec ed g oups. The s udies e eal a dis o ion o he mechanisms o poli ical pa icipa ion consolida ed in he pos -dic a o ial pe iod, because, ins ead o endo sing he e ec i e pa icipa ion o he g oups, hey ope a e as "bu eauc a ic de ices o neu alize con lic s" (Acsel ad, H., 2017). In addi ion, as we ha e shown, he nego ia ed se lemen o en i onmen al con lic s in ol ed social subjec s occupying dis inc posi ions in he class s uc u e and whose e i o ial and en i onmen al demands a e equally dissimila . Thus, he e i o ial demands o he mos "powe ul" ac o s, om he economic and poli ical poin o iew, we e p i ileged o he de imen o he subjec s classi ied as mo e " agile," in his case, he local communi ies. The a angemen s ega ding he dis ibu ion “Pa icipação”, “Resolução Negociada” de Con li os e (Neo)ex a i ismo no B asil: o Pa que Nacional da Se a do Ganda ela (MG/B asil) Re is a de Es udios Andaluces, núm. 36 (2018) pp. 121-146. e-ISSN: 2340-2776 h p://dx.doi.o g/10.12795/ ea.2018.i36.06 Es a ob a se dis ibuye con la licencia C ea i e Commons Reconocimien o-NoCome cial-SinOb aDe i ada 4.0 In e nacional (CC BY-NC-ND 4.0.) 20 o powe o e he e i o y and na u al esou ces clea ly p io i ized big businesses and economic g ow h a he expense o ep oduc ions o li elihoods o he local communi ies and biodi e si y. This unequal edis ibu ion also con ibu es o inc ease social/poli ical ulne abili y o local amilies and enhances he his o ical p ocess o concen a ion o land and income, o p i a e owne ship, which a e issues held dea o he B azilian la ge landholding s uc u e. The discussions he ein clea ly e e o a u na ound om he igh s and concessions. They di e en ia e igh s ha ha e been his o ically and collec i ely conque ed as concessions, as hey a e commonly indi idual, empo a y and pa ial. Those who g an hem, as en e p ises, ha e he p e oga i e o wi hd aw whene e hey deem i necessa y. I appea s ha he unde s anding o igh s as concessions de i e om a his o y o submission and domina ion - when any ini ia i e on he pa o he dominan s ep esen s an ex ao dina y ad ance o hose who would only ha e access o lesse c umbs. So, he in e sion be ween igh s and concessions a he slows down and block he eme gence o a b oade democ a ic socie y ounded on he c ea ion, ecogni ion, gua an ee and consolida ion o igh s (Chauí, M., 1994). Finally, we no e ha he a icula ion o he e ms pa icipa ion, nego ia ed esolu ion o con lic s, (neo) ex ac i ism and en i onmen al p o ec ed a eas equi es a wide numbe o le els o analysis and s udy gi en i s complexi y and he exis ence o social in e es s/con lic s/ isions o he wo ld. Such a icula ion su ely dese es a be e app ehension and unde s anding, aking in o conside a ion i s con adic ions and de e mina ions in ace o he p essu es i in ol es.