Challenges in Regional Planning and Management in the Brazilian Amazon

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Szlafsztein This is a preprint; it has not been peer reviewed by a journal. https://doi.org/ 10.21203/rs.3.rs-1941682/v1 This work is licensed under a CC BY 4.0 License Status: Posted Version 1 posted You are reading this latest preprint version Abstract Territorial management in the Amazon region of Brazil presents important challenges for the coming years, considering the unresolved problems of the main government instrument, the Economic Ecological Zoning of the EEZ, and the changes that are taking place in this territory. The EEZ is an instrument that has been applied at different scales for more than 30 years, but it has not been able to overcome the problems related to the diverse and profound pressures on the environment and the poor quality of the social and economic development of the population. In this sense, the article presents, based on its own experiences, government information and data and interviews with managers who worked in the elaboration of the EEZ, a reflection on the main obstacles resulting from the implementation of the EEZ and the changes in the development processes in the region (increasing demand for energy, economic production based on natural resources, climate change). Finally, possible ways of overcoming these challenges are presented, considering methodological guidelines, governance and ways of social participation. Economic Ecological Zoning Amazonia regional planning regional changes Figures Figure 1 Figure 2 Figure 3 Figure 4 1. Introduction The amazon region in Brazil (Figure 1), around 6.5 millions square kilometers, is known due to one of the most extensive tropical forests, the rich biodiversity (Antonelli et al. 2018), the large Amazon River Basin, the ways of life of indigenous and traditional communities (Cunha and Almeida, 2000), and the economic exploitation of huge mineral deposits (Diele-Viegas et al., 2020), hydropower energy resources (Latrubesse et al. 2017), and agriculture and livestock (Maranhão et al., 2019). Despite the evidences of environmental degradation (Barona et al. 2010; Sonter et al. 2017), roughly 80% of the region maintains primary forest, particularly in numerous and diverse conservation units and indigenous territories (Hansen et al. 2020). These dynamic and growing economic expansion, driven by demands from domestic and international markets, have coexisted in this region with large socioeconomic inequalities, little awareness of social organization, and low efficiency in public policies implementation (Gollnow and Lakes 2014). Motivated by these scenarios, governments have sought to understand the territories, not only to guarantee geopolitical occupation, but also to promote a sustainable development process, considering their natural fragility and socioeconomic potential (Arana and Magula 1996; Vagula et al. 2021; Vasconcelos et al., 2013a, Vasconcelos et al. 2013b). As a result, over the last 30 years, the territorial zoning of the Amazon region has been developed through the Ecological-Economic Zoning - EEZ (Brasil 2016). ZEE projects have provided countless positive results, but there are still problems associated mainly with their implementation, which results in the loss of effectiveness of their proposals (Szlafsztein et al. 2016, Brasil 2016; Lopes et al. 2019; Sombroek and Souza Carvalho 2002). In addition, the Amazon is constantly changing (Davidson et al. 2012; Laurance et al. 2001; Phillips et al. 2008; Timpe and Kaplan 2017). Scenarios of large uncertainties are described associated with modifications in climate conditions (Malhi et al. 2008; Marengo 2007; Cook and Vizy 2008; Soares-Filho et al. 2010), deforestation and environmental degradation (Castello et al. 2013), expansion of mining and agriculture activities of (Finer et al. 2008; Oliveira et al. 2013), interruptions in water flows (Shiogama et al. 2011; Tundisi et al. 2014), and urbanization processes (Trindade 2013). This article discusses the challenges of regional planning and management in the Brazilian Amazon, considering the possibility of strengthening the effectiveness of the governmental instrument of territorial planning and management - Ecological-Economic Zoning (EEZ), through the proposals for the improvement of the methodology, the governance and the social participation, and the incorporation of new perspectives derived from the scenarios of changes occurring in the region. 2. Methodology The reflections presented integrate information from documents available in government institutions, analyze bibliographic references and interpret narratives from interviews with 20 key actors who actively participated in the EEZ elaboration processes or who acted directly in the coordination and elaboration of certain EEZ initiatives. The interviews were guided through previously established key questions, contemplating the peculiarities of the interviewee and their contributions to the elaboration and implementation of the instrument and are presented in Brasil (2016). The questions were grouped into the following dimensions: Social Participation (How did society participate in the development of the EEZ?), Institutionalization (What is the EEZ's relationship with other state and national legislation?), Relation with Public Policies (Which public policies consider the ZEE in their elaboration? What is the relationship of the ZEE with the governments' Pluriannual Plan?), Process Evaluation (What are the positive aspects of the ZEE? The negatives? What is the importance of the ZEE in the current context of the Amazon?), and Perspectives (Xhat are the main weaknesses and proposals for overcoming them? 3. The Economic And Ecological Zoning In The Amazon Region The diversity of concepts and methods of elaboration of the firsts EEZ initiatives allowed the proposal of a unique EEZ methodology in 1996 (Becker and Egler 1996). Currently, the elaboration of the EEZ follows, even with adaptations, that document, the norms established in Federal Decree 4297/2002 (Brasil 2002) and in the methodological guidelines of the Ministry of the Environment (Brasil 2006). The EEZ in Brazil is integrated by 4 work phases (Brasil 2006) (Figure 2). The Planning phase guides the political-institutional articulations, identifies the social demands and mobilizes financial and human resources. The Diagnosis of the current situation stage consists of 3 components related to the description and analysis of the legal-institutional organization, the physical-biotic systems (geology, geomorphology, climate, pedology and vegetation) and the socioeconomic dynamics (human, natural, productive and political-institutional potentials) of the territory. These components must present results in an integrated way. The assess of the physical-biotic describes and maps the “Environmental Vulnerability”, and the studies on socioeconomic dynamics understand the land occupation and the use of natural resources, assessing “Social Potentiality”. The diagnosis is the basic component for the elaboration of a Prognosis map “Subsidies to the Territorial Planning and Management”, that defines the sustainable land use, classifying areas as Productive and Critical. The scale of all the maps is of little detail, the most common being 1,250,000. Productive Areas strengthen human potential in occupied territories (Consolidation) and the installation of social and economic activities in sparsely occupied territories (Expansion). The Critical Areas are associated with the preservation of environmental heritage given the high degree of natural vulnerability (Conservation) and the implementation of corrective activities in environments impacted by economic development (Recovery). The long trajectory of implementation of the EEZ in the Amazon offers governments and society an important legacy, which sometimes extends beyond the objectives initially established. The regional planning through the EEZ in the Amazon made possible the pioneer inclusion of the environmental issues in the state governmental management and the cooperation of several institutions, at different scales, despite the records of different degrees of disarticulation of public policies being evident in Brazil (D’Almeida et al., 2010). The EEZs projects developed regional scientific, technical and management capacities, started and strengthened the collection, store, systematization and spatialization of data and information, and allowed deep scientific and political thoughts, on the part of governments and society, about its territory. The results of the EEZ projects are references for numerous environmental policies in the Amazon region. The regional zoning is one of the main objectives of the Action Plan for the Prevention and Control of Deforestation in the Legal Amazon (PPCDAm), an instrument of the Climate Change National Policy (Law 12187/2009). Loans from the federal government for rural activities require environmental regularity of the properties, some of which must comply with the recommendations and restrictions of the EEZ (Banco Central do Brasil, 2008)). The EEZ products guide the preparation of government pluriannual plans, the annual budget and the environmental licensing processes, and the delimitation and creation of conservation units and biodiversity corridors. Finally, the Law for the Protection of the Native Forest (Brazil, 2012) was an important environmental milestone, since it establishes the obligation of all States to prepare, approve and consolidate their EEZ, as a condition for resizing the protected areas in the rural properties located in the Amazon region. 4. The Challenges Of Regional Planning In The Amazon: Some Problems Of Eez Implementation Such a complex and diversified process of designing and implementing the EEZ in the Amazon also presents trouble spots, which become challenges to be overcome in the near future. Many sectors of society and the government do not believe in the real effectiveness of the results achieved by the EEZ for the occupation and use of the territory, due to the outdated information after a long elaboration process, the use of inadequate scales for making decisions, mainly at the local level, and the difficulty of measuring territorial management guidelines, using monitoring and evaluation methods. Added to this scenario are the institutional, financial and political discontinuities that permeate the long processes of EEZ. Other factors have been identified as causing problems in the implementation of the ZEE in the Amazon: - The difficulty of appropriating the results of regional planning: The governors of small municipalities, far from the big cities, cannot easily use the results of the ZEE, since they were rarely involved in its development and their strategies and political measures were not were associated with a culture of long-term planning. - The sectoral view of the territory: Despite being a transversal instrument of territorial planning, the process of elaboration and implementation of the EEZ is delegated to state environmental agencies and the national Ministry of the Environment, accentuating a mistaken perception of favoring the protection of the environment over the economic development. - The role of the society: The productive sectors (for example, agriculture, mining, forestry) have a low participation in the elaboration and implementation of the EEZ due to (i) the perception that the instrument often prioritizes environmental preservation, to the detriment of the productive, (ii) disrepute in inspections and sanctions in case of non-compliance with the ZEE guidelines and strategies, and (iii) the small scale of zoning and planning does not satisfy the needs of local production. The Society is not very participative or little heard, in the definition of its needs, which would allow the construction of future scenarios that are more consistent with reality. - Some outdated concepts and methodology: The EEZ clearly conceptualizes the sustainability of the territories through a vision in which human action is an element external to the natural environment on which it exerts intense negative pressures. In this context, policies and strategies to protect or restrict the use of the environment are always associated with its status as a “passive” element that does not offer any service to society. Methodologically, there is a great concentration of efforts (time and money) in carrying out detailed diagnoses, which no longer respond to the reality of the first zoning works of an Amazonian territory that was still "unknown" at that time, and concomitantly no description of the way of monitoring and evaluating the results of the regional planning. There is a need to introduce new issues in the zoning of the region, which respond to more contemporary realities and that have not been included in the original methodology or in the different adaptations made over time 5. The Challenges Of Regional Planning In The Amazon: Changes And Their Reflections On The Territory The other great challenge for the planning and management of the territory is the need to incorporate in the analyzes and results of the EEZ the changes that occur in the region, often unobserved, since they occur faster than the time necessary for the elaboration of zoning (3 to 4 years on average) or because the methodology used does not yet consider them. Economic cycles sustained in the provision of natural resources have stood out throughout the history of the Amazon in Brazil (e.g., rubber, Brazil nuts, black pepper) (Loureiro 2015), which required little in terms of infrastructure works for their production, transport and marketing. Since the last decades of the 20th century, the Amazon, already partially integrated by highways and airports, began new economic periods, now supported by the growing supply of electricity, minerals and agricultural products to Brazil and the world (Silva et al. 2016). These activities have a high impact on landscapes, biotas, traditional and indigenous populations, as well as growing cities (Ometto et al. 2011; Fearnside 2016; Sonter et al. 2017). Some of the main changes impacting the development of the Amazon territory can be mentioned: Population and the urbanization process: Population densities and urbanizations are growing in the Amazon region as a result of development activities (Tritsch and Le Tourneau 2016). This region has an estimated population in 2021 of 17 million inhabitants (8% of the country's total population). Despite being one of the lowest percentages in the country, the population growth rate in the region was the highest in Brazil when compared to national values and those of other regions for the periods 2000/2010 and 2010/2021. In the context of an eminently urban country, the amazon has one of the highest growth percentages in urban population between 1960 and 2010, being the largest among Brazilian regions between 2000 and 2010 (Table 1). Table 1 resident population by regions in Brazil – population growth rate and proportion of urban population. Source: data available at the Brazilian Institute of Geography and Statistics (Instituto Brasileiro de Geografia e Estatística) - https://censo2010.ibge.gov.br/ and https://cidades.ibge.gov.br/brasil/es/panorama Region Population Growth Rate Urban Population (%) Periods Years 2000/2010 2010/2021 1960 1970 1980 1991 2000 2010 Brazil 1.17 1.03 Total population of Brazil 45.08 55.98 67.7 75.47 81.23 84.36 Amazon (North) 2.08 1.62 Total urban population 3.25 3.37 4.14 5.35 6.54 7.25 North East 1.06 0.76 24 22.65 21.9 23.23 23.9 24.12 South East 1.04 1 55.67 55.47 53.1 49.74 47.51 46.42 South 0.87 0.96 13.96 14.05 14.82 14.78 14.74 14.45 Center West 1.91 1.59 3.11 4.46 6.04 6.9 7.31 7.76 The growing demand for electric energy in Brazil: Considering the depletion of the hydroelectric potential of other basins in Brazil, the Amazon basin emerges as an “inexhaustible” source of water, useful for hydroelectric production. For the most part, these infrastructure works are located on tributaries of the Amazon River. Considering data up to March 2020, there are 833 hydroelectric plants in existence or planned. The majority of active projects are in Brazil (52%). Of the 181 existing hydroelectric plants, 137 are small power stations whose power is less than 30 MW. The same group represents 75% of those planned (RAISG, 2020). Those that generate the greatest power, some over 2000 MW, are the most worrying because of their large artificial lakes, impacting the hydrologic flows, the vegetation cover, the biota, altering the limits of protected areas and forcing the migration of the population residing in the flooded areas, all of this with enormous impact on the territory (Chaudari and Pokhrel 2022; Cavalcante et al. 2021; Mayer et al. 2021). Economic Production Based on Natural Resources – Mining: Mining in the Amazon region of Brazil (Triner 2016), offers products for several and varied types of industry. The expansion of mining in the region has allowed annual records of production, profits, job creation and participation in Brazil's Gross Domestic Product to be surpassed. This industry greatly collaborates with the socio-economic development of many Amazonian municipalities (Cordani and Juliani 2019) (Figure 3). This progress is based on the diversity of products (e.g., bauxite, iron, gold) and the discovery of new deposits in areas still untouched (Brasil 2018). The open surface extraction (pit) and placer mining types are the most common in the region, impacting the relief (for example, large and deep excavations, mountains of mining tailings), the vegetation cover and soil characteristics, and contaminating the rivers. thus, altering the ability to provide ecosystem services. The mining sector concentrates the population and the urban areas of the neighborhood, and installs transport logistics for production that have enormous effects on the territory. Economic Production Based on Natural Resources: Agriculture and Livestock: The Amazon region has emerged in recent years as a frontier of the expansion of agricultural and livestock activity, mainly resulting from investments in large-scale projects supported by the availability of low-cost land and the existence of varieties adapted to the particular environmental conditions (Oliveira 2016; Sauer 2018; McManus et al. 2016). This recent growth is associated with the expansion of consumer markets and the region's greater proximity to them, reducing transport costs. Government programs, often strengthened by the partnership with the private sector, are planning and implementing the construction and improvement of the highway network (Moran 2016), the expansion of the railroad network, as well as overcoming obstacles to the full operation of waterways (Fearnside 2015). These productive activities (Santos et al. 2021, Brando et al. 2020, Silva et al. 2021) result in an intense and growing processes of deforestation and forest fires that impact extensive areas, changing the conditions of the original and secondary vegetation cover, the forms of use and occupation of the landscape, and the characteristics of the most superficial horizons of the soil. In short, altering the ability to provide ecosystem services (Figure 4). Climate change and natural disasters in the Amazon: The hydroclimatic disasters and their territorial reflexes are not considered in the Amazon, since this is perceived as a region with low population density, predominantly rural and riverside adapted to the natural dynamics. However, several climatological scenarios indicate changes in natural conditions, making extreme events more frequent, increasing temperatures and decreasing precipitation for the coming years in the region (Oliveira et al. 2021). These changes are exacerbated by deforestation and forest fires, and have enormous impacts on the territory and the activities that are carried there (Tanure et al. 2020; Nobre et al. 2019). 6. Proposal To Overcome The Futures Challenges Of Territorial Planning In The Amazon As a way to overcome the challenges in the territorial planning in the Brazilian Amazon in the near future, efforts should be made to carry out revisions of methodological guidelines, governance and forms of social participation, that takes into account the changes and new demands of the territory. The current methodology is the result of the evolution of knowledge, technical capacity, available data and political visions (Vasconcelos et al. 2013b; Silva et al. 2017). The methodology integrates the physical, biotic, socio-economic, legal and institutional dimensions of the territory and has been able to incorporate, throughout its experience in the Amazon, modern tools for the acquisition and critical examination of data. However, without considering a line of action that proposes deep changes, some aspects are identified as potential ways to improve the EEZ methodology: Elaborate EEZ in detail scales: With EEZs that are spatially more detailed (1:50,000 or more), governments and society can find answers to their demands for subsidies for decision-making, as well as facilitate the identification of potentialities and vulnerabilities in the territories by social actors, whose participation throughout the processes of elaboration and implementation of the ZEE should be promoted and qualified. The clear increase in the amount of information needed must be balanced with the planning of specific regions, previously and proposedly chosen. Improve the diagnoses of reality : The proposal to change the methodological processes of the diagnosis stage of an EEZ considers the need to reduce the great times and costs of collecting numerous and complex information and data, in the vast work areas. The diagnosis, no longer more general, must now be geared towards responding to the main needs of society, previously identified in the planning stage of the EEZ's activities. Detail the methodology for the preparation of future scenarios: this proposal aims to highlight the importance of the prognosis phase of future scenarios in the preparation of EEZ. For this, the anticipation of this methodological stage is proposed for the beginning of the processes, allowing the applicability of the EEZ to be strengthened as a regional planning tool, with a "look to the future". With the same importance, a single method of elaboration of the forecast scenarios should be defined for the whole region, which would permit a greater understanding of the results and the possibility of comparison between spatially contiguous areas. Include monitoring and evaluation tools : Define methodology for the monitoring and evaluation stage of EEZ results, clearly indicating guidelines, actions, development strategies, responsible parties, period of execution, and necessary financial resources. These tools allow sustainability over time and improvement of the results of the planning of the territory. Introduction of new themes: It is possible to propose the introduction of new themes, such as natural disasters in a context of climate change, urbanization process, and environmental degradation, as well as new approaches to planning the territory based on natural solutions, such as the valorization of ecosystem services, which can renew the instrument and adapt it to the expectations of the public authorities and the society involved, fostering its effectiveness as a tool for territorial planning. The territory is no longer vulnerable, but it has the potential to contribute to development based on the services that can be offered, which in turn underpin its conservation and protection even more. Territorial planning and the EEZ instrument, as well as many existing policies in Brazil, present enormous difficulties in implementation, law enforcement and sustainability due to problems mainly associated with governance (Donadelli, 2017). In this regard, we propose: Integrate and/or enhance integration of the EEZ: The collaboration with policies and instruments (e.g., land tenure regularization and nature protection) is an important challenge for the territorial planning and management, particularly the National Policy for Regional Development (PNDR) (Decree No. 9.810/2019). Special attention should be paid to the complementarity, even at different spatial scales, with the provisions of the municipal master plans (Federal Law 10257/2001) and with the methodological processes for conducting environmental impact studies (Federal Law 6938/1981) for licensing potentially impactful activities in mining, civil construction and logistics structures. Develop an action plan: the implementation of the guidelines for zoning and planning of the Amazon region require the definition of actions, objectives, deadlines and those responsible with a view to improving the effectiveness and effective monitoring of the proposed initiatives. Transfer responsibilities: the proposal is related to the possibility of delegating the responsibilities for coordinating the elaboration and implementation of the SEZs of the environmental agencies (Ministry at the national level and secretaries at the state level) to other ministries and secretaries ( for example, Planning) that in theory have a greater capacity for articulation with the various government sectors that act on the territory. - Better define financial support: Include or strengthen the inclusion of the EEZ in the budget cycles of the federal and state governments to financially support all stages, including the monitoring and updating of results. Strengthening and qualifying governmental and social participation in territorial planning processes is one of the main factors for overcoming challenges in the future, especially in socioeconomically unequal regions like the Amazon. In this sense, it is fundamental to reflect on mechanisms that: Promote the direct involvement of the highest levels of government, strengthening its elaboration and ensuring greater success when it is implemented. Prepare federal and state managers and technicians to stimulate the use of the results generated by the EEZ, contributing to the internalization of zoning in their work routines; Build the EEZ, taking into account the forms of vision and planning of the inhabitants of indigenous territories and conservation units; e Ensure available financial resources for the mobilization of actors, the time set aside for consultation and technical explanation of documents, and awareness of those responsible for EEZ initiatives on the importance of favoring a broad process of discussion regarding zoning. Conclusion The results of the research presented allow us to verify evidence that the EEZ, in the absence of another instrument with a common methodology and nationally recognized, is still of great importance in the territorial planning agenda of Brazil. However, the development of activities that degrade Amazonian ecosystems still persists, even after numerous years of environmental education, monitoring systems by satellite sensors, inspection in the territory and penalization of those who break the law. It is important to highlight that the dispersion of forms of use and occupation of the land that are illegal, makes it difficult and challenges the zoning of the territory (Condé et al. 2019; Siqueira-Gay and Sanchez 2021) and that there are areas that have not yet been covered by EEZ, such as the coastal zone of the state of Pará, indicating thar it is an opportunity to reformulate the principles, objectives and methodology of the instrument, given the particularities of these environments. The future of the EEZ is clearly associated with the possibility of finding mechanisms that can help, with the lowest political, economic and social cost and as quickly as possible (considering the transformation that affects the territory), the implementation of its results, enhancing its appeal as reference to other land use planning and management policies. 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Nature Ecology & Evolution 5(2):144-145. 10.1038/s41559-020-01368-x Siqueira-Gay J, Sánchez L (2021) The outbreak of illegal gold mining in the Brazilian Amazon boosts deforestation. Regional Environmental Change 21 , 28 https://doi.org/10.1007/s10113-021-01761-7 Soares-Filho B, Moutinho P, Nepstad D, Anderson A, Rodrigues H, Garcia R, Dietzsch L, Merry F, Bowman M, Hissa L, Silvestrini R, Maretti C (2010) Role of Brazilian Amazon Protected Areas in Climate Change Mitigation. Proceedings of the National Academy of Sciences of the United States of America 107(24): 10821–10826. https://doi.org/10.1073/pnas.091304810 Sombroek W, Souza Carvalho A (2002) Macro- and Micro Ecological-economic Zoning in the Amazon Region – History, First Results, Lessons Learnt and Research Needs. In: Lieberei R, Bianchi H-K, Boehm V, Reisdorff C (eds.) Neotropical Ecosystems, Proceedings of the German-Brazilian Workshop, Hamburg 2000. GKSS-Geesthacht. 91-98 Sonter L, Herrera D, Barret D, Galford G, Moran C, Soares Filho B (2017) Mining drives extensive deforestation in the Brazilian Amazon. Nature Communications 8, 1013. https://doi.org/10.1038/s41467-017-00557-w Szlafsztein C, Azevedo A, Alencar A (2016) Amazônia em Pauta No 6: Análise da implementação do Zoneamento Ecológico-Econômico (ZEE) sobre o uso e a ocupação do solo na Amazônia brasileira. IPAM, Brasília. Tanure T, Miyajima D, Magalhães A, Domingues E, Carvalho T (2020) The Impacts of Climate Change on Agricultural Production, Land Use and Economy of the Legal Amazon Region Between 2030 and 2049. EconomiA 21(1): 73–90. https://doi.org/10.1016/j.econ.2020.04.001. Timpe K, Kaplan D (2017) The Changing Hydrology of a Dammed Amazon. Science Advances 3(11): 1–14. 10.1126/sciadv.1700611 Trindade S (2013) Uma floresta urbanizada? Legado e desdobramentos de uma teoria sobre o significado da cidade e do urbano na amazônia. Espaço Aberto 3(2): 89–108. Tritsch I, Le Tourneau F-M (2016). Population densities and deforestation in the Brazilian Amazon: New insights on the current human settlement patterns. Applied Geography 76: 163-172. https://doi.org/10.1016/j.apgeog.2016.09.022. Tundisi J, Goldemberg J, Matsumura-Tundisi T, Saraiva A (2014) How Many More Dams in the Amazon? Energy Policy 74: 703–8. 10.1016/j.enpol.2014.07.013 Vagula P, Uliana M, Arana A (2021) Panorama of Ecological-Economic Zoning in Brazil. Geopauta 5(2), e8431. https://doi.org/10.22481/rg.v5i2.2021.e8431 Vasconcelos V, Hadad R, Martins Jr P (2013a) Zoneamento Ecológico-Econômico - Objetivos e estratégias de politica ambiental. Gaia Scientia 7(1): 119-132 Vasconcelos V, Hadad R, Martins Jr P (2013b) Methodologies for integrated studies of natural resources: a discussion on ecological-economic zoning Pesquisas em Geociencias 40 (1): 21-30 Additional Declarations No competing interests reported. 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Also discoverable on Platform About Our Team In Review Editorial Policies Advisory Board Help Center Resources Author Services Accessibility API Access RSS feed Manage Cookie Preferences © Research Square 2026 | ISSN 2693-5015 (online) Privacy Policy Terms of Service Do Not Sell My Personal Information {"props":{"pageProps":{"initialData":{"identity":"rs-1941682","acceptedTermsAndConditions":true,"allowDirectSubmit":true,"archivedVersions":[],"articleType":"Research Article","associatedPublications":[],"authors":[{"id":127574170,"identity":"d06fdeb1-bc07-4265-8777-54bdbf995a95","order_by":0,"name":"Claudio F. Szlafsztein","email":"data:image/png;base64,iVBORw0KGgoAAAANSUhEUgAAAZAAAAAyAQMAAABI0h/eAAAABlBMVEX///8AAABVwtN+AAAACXBIWXMAAA7EAAAOxAGVKw4bAAAAsklEQVRIiWNgGAWjYBACNhDxgMGGgb2BgYGZeC0JDGkMPAeI1cIA0XKYBC187O0PHyRUnE/skW5+wFy4hxiH8ZwxNkg4czuxR+aYAfOMZ8Rokchhk0hsu524XyLBgBnkOiK0pD//kfjvXGKPRPoHYrUkmDEkNhwAaskh1hagXyQSjiUb98icKTg8gxgt8u3tDz98qLGT7ZFu3/i4gBgtCCDBwECaBrCWUTAKRsEoGAVYAQA1qTWu0NDJUQAAAABJRU5ErkJggg==","orcid":"","institution":"Federal University of Para","correspondingAuthor":true,"prefix":"","firstName":"Claudio","middleName":"F.","lastName":"Szlafsztein","suffix":""}],"badges":[],"createdAt":"2022-08-08 14:29:22","currentVersionCode":1,"declarations":"","doi":"10.21203/rs.3.rs-1941682/v1","doiUrl":"https://doi.org/10.21203/rs.3.rs-1941682/v1","draftVersion":[],"editorialEvents":[],"editorialNote":"","failedWorkflow":false,"files":[{"id":25145127,"identity":"8346eaf1-8b70-423d-bfa3-e83476df3876","added_by":"auto","created_at":"2022-08-12 15:52:38","extension":"png","order_by":1,"title":"Figure 1","display":"","copyAsset":false,"role":"figure","size":220159,"visible":true,"origin":"","legend":"\u003cp\u003eLocation’s map of the study area.\u0026nbsp;\u003c/p\u003e","description":"","filename":"1.png","url":"https://assets-eu.researchsquare.com/files/rs-1941682/v1/7a0604f555585f023e046077.png"},{"id":25145735,"identity":"97207075-35a2-4754-afc7-1820b5cacc48","added_by":"auto","created_at":"2022-08-12 15:57:37","extension":"png","order_by":2,"title":"Figure 2","display":"","copyAsset":false,"role":"figure","size":26533,"visible":true,"origin":"","legend":"\u003cp\u003eDiagram of stages and products of the EEZ according to the methodology explained by the Ministry of the Environment (Brasil, 2006).\u003c/p\u003e\u003cp\u003e\u003cbr\u003e\u003c/p\u003e","description":"","filename":"2.png","url":"https://assets-eu.researchsquare.com/files/rs-1941682/v1/5e653290422d87767597a408.png"},{"id":25145124,"identity":"95147cd2-2e8d-4081-82f1-e5ade82cc1ee","added_by":"auto","created_at":"2022-08-12 15:52:37","extension":"png","order_by":3,"title":"Figure 3","display":"","copyAsset":false,"role":"figure","size":29348,"visible":true,"origin":"","legend":"\u003cp\u003eproportion of the gross mineral production of the amazon to the total national production between 2010 and 2020. Source: National Mining Agency (\u003cem\u003eAgencia Nacional de Mineraçao\u003c/em\u003e) (https://www.gov.br/anm/pt-br)\u003c/p\u003e\u003cp\u003e\u003cbr\u003e\u003c/p\u003e","description":"","filename":"3.png","url":"https://assets-eu.researchsquare.com/files/rs-1941682/v1/2fc49e205ace386745ea68c3.png"},{"id":25146359,"identity":"e44e712b-ca15-431e-aa78-4b28ef685bb5","added_by":"auto","created_at":"2022-08-12 16:02:37","extension":"png","order_by":4,"title":"Figure 4","display":"","copyAsset":false,"role":"figure","size":51345,"visible":true,"origin":"","legend":"\u003cp\u003eComparison of deforestation rates (square hectares) and the proportion of planted areas over the national total (%) in the Amazon between 2007 and 2021. Source: IBGE - Levantamento Sistemático da Produção Agrícola (https://www.ibge.gov.br/) e Instituto Nacional de Pesquisas Espaciais (http://www.obt.inpe.br/).\u003c/p\u003e\u003cp\u003e\u003cbr\u003e\u003c/p\u003e","description":"","filename":"4.png","url":"https://assets-eu.researchsquare.com/files/rs-1941682/v1/5dc1b94754018949c6c521cc.png"},{"id":25947588,"identity":"6c46442c-c201-4705-98db-835b4858b265","added_by":"auto","created_at":"2022-09-01 18:44:33","extension":"pdf","order_by":0,"title":"","display":"","copyAsset":false,"role":"manuscript-pdf","size":567709,"visible":true,"origin":"","legend":"","description":"","filename":"manuscript.pdf","url":"https://assets-eu.researchsquare.com/files/rs-1941682/v1/28140b6d-540a-449d-bd78-144a3dc4440a.pdf"}],"financialInterests":"No competing interests reported.","formattedTitle":"\u003cp\u003eChallenges in Regional Planning and Management in the Brazilian Amazon\u003c/p\u003e","fulltext":[{"header":"1.\tIntroduction ","content":"\u003cp\u003eThe amazon region in Brazil\u0026nbsp;(Figure 1), around 6.5 millions square kilometers,\u0026nbsp;is known due to one of the most\u0026nbsp;extensive\u0026nbsp;tropical forests, the rich\u0026nbsp;biodiversity\u0026nbsp;(Antonelli et al. 2018),\u0026nbsp;the large Amazon River Basin,\u0026nbsp;the ways of life of indigenous and traditional communities\u0026nbsp;(Cunha and Almeida, 2000), and the economic\u0026nbsp;exploitation of huge mineral deposits\u0026nbsp;(Diele-Viegas et al., 2020), hydropower energy resources\u0026nbsp;(Latrubesse et al. 2017), and agriculture and livestock (Maranh\u0026atilde;o et al., 2019). Despite the\u0026nbsp;evidences of environmental degradation\u0026nbsp;(Barona et al. 2010;\u0026nbsp;Sonter et al. 2017),\u0026nbsp;roughly 80% of the region maintains primary forest,\u0026nbsp;particularly in numerous and diverse conservation units and indigenous territories\u0026nbsp;(Hansen et al. 2020).\u0026nbsp;These dynamic and growing economic expansion, driven by demands from domestic and international markets, have coexisted in this region with large socioeconomic inequalities, little awareness of social organization, and low efficiency in public policies implementation (Gollnow and Lakes 2014).\u003c/p\u003e\n\u003cp\u003eMotivated by these scenarios, governments have sought to understand the territories, not only to guarantee geopolitical occupation, but also to promote a sustainable development process, considering their natural fragility and socioeconomic potential (Arana and Magula 1996; Vagula et al. 2021; Vasconcelos et al., 2013a, Vasconcelos et al. 2013b). As a result, over the last 30 years, the territorial zoning of the Amazon region has been developed through the Ecological-Economic Zoning - EEZ (Brasil 2016).\u0026nbsp;\u003c/p\u003e\n\u003cp\u003eZEE projects have provided countless positive results, but there are still problems associated mainly with their implementation, which results in the loss of effectiveness of their proposals (Szlafsztein et al. 2016, Brasil 2016; Lopes et al. 2019; Sombroek and Souza Carvalho 2002).\u0026nbsp;\u003c/p\u003e\n\u003cp\u003eIn addition, the Amazon is constantly changing\u0026nbsp;(Davidson et al. 2012; Laurance et al. 2001; Phillips et al. 2008; Timpe and Kaplan 2017). Scenarios of large uncertainties are described associated with modifications in climate conditions\u0026nbsp;(Malhi et al. 2008; Marengo 2007; Cook and Vizy 2008; Soares-Filho et al. 2010),\u0026nbsp;deforestation and environmental degradation\u0026nbsp;(Castello et al. 2013), expansion of mining and agriculture activities of\u0026nbsp;(Finer et al. 2008; Oliveira et al. 2013), interruptions in water flows\u0026nbsp;(Shiogama et al. 2011; Tundisi et al. 2014), and urbanization processes\u0026nbsp;(Trindade 2013).\u003c/p\u003e\n\u003cp\u003eThis article discusses the challenges of regional planning and management in the Brazilian Amazon, considering the possibility of strengthening the effectiveness of the governmental instrument of territorial planning and management - Ecological-Economic Zoning (EEZ), through the proposals for the improvement of the methodology, the governance and the social participation, and the incorporation of new perspectives derived from the scenarios of changes occurring in the region.\u003c/p\u003e"},{"header":"2.\tMethodology ","content":"\u003cp\u003eThe reflections presented integrate information from documents available in government institutions, analyze bibliographic references and interpret narratives from interviews with 20 key actors who actively participated in the EEZ elaboration processes or who acted directly in the coordination and elaboration of certain EEZ initiatives. The interviews were guided through previously established key questions, contemplating the peculiarities of the interviewee and their contributions to the elaboration and implementation of the instrument and are presented in Brasil (2016).\u0026nbsp;\u003c/p\u003e\n\u003cp\u003eThe questions were grouped into the following dimensions: Social Participation (How did society participate in the development of the EEZ?), Institutionalization (What is the EEZ\u0026apos;s relationship with other state and national legislation?), Relation with Public Policies (Which public policies consider the ZEE in their elaboration? What is the relationship of the ZEE with the governments\u0026apos; Pluriannual Plan?), Process Evaluation (What are the positive aspects of the ZEE? The negatives? What is the importance of the ZEE in the current context of the Amazon?), and Perspectives (Xhat are the main weaknesses and proposals for overcoming them?\u003c/p\u003e"},{"header":"3.\tThe Economic And Ecological Zoning In The Amazon Region","content":"\u003cp\u003eThe diversity of concepts and methods of elaboration of the firsts EEZ initiatives allowed the proposal of a unique EEZ methodology in 1996 (Becker and Egler 1996). Currently, the elaboration of the EEZ follows, even with adaptations, that document, the norms established in Federal Decree 4297/2002 (Brasil 2002) and in the methodological guidelines of the Ministry of the Environment (Brasil 2006).\u0026nbsp;\u003c/p\u003e\n\u003cp\u003eThe EEZ in Brazil is integrated by 4 work phases (Brasil 2006) (Figure 2). The Planning phase guides the political-institutional articulations, identifies the social demands and mobilizes financial and human resources. The Diagnosis of the current situation stage consists of 3 components related to the description and analysis of the legal-institutional organization, the physical-biotic systems (geology, geomorphology, climate, pedology and vegetation) and the socioeconomic dynamics (human, natural, productive and political-institutional potentials) of the territory. These components must present results in an integrated way. The assess of the physical-biotic describes and maps the \u0026ldquo;Environmental Vulnerability\u0026rdquo;, and the studies on socioeconomic dynamics understand the land occupation and the use of natural resources, assessing \u0026ldquo;Social Potentiality\u0026rdquo;. The diagnosis is the basic component for the elaboration of a Prognosis map \u0026ldquo;Subsidies to the Territorial Planning and Management\u0026rdquo;, that defines the sustainable land use, classifying areas as Productive and Critical. The scale of all the maps is of little detail, the most common being 1,250,000. Productive Areas strengthen human potential in occupied territories (Consolidation) and the installation of social and economic activities in sparsely occupied territories (Expansion). The Critical Areas are associated with the preservation of environmental heritage given the high degree of natural vulnerability (Conservation) and the implementation of corrective activities in environments impacted by economic development (Recovery).\u0026nbsp;\u003c/p\u003e\n\u003cp\u003eThe long trajectory of implementation of the EEZ in the Amazon offers governments and society an important legacy, which sometimes extends beyond the objectives initially established. The regional planning through the EEZ in the Amazon made possible the pioneer inclusion of the environmental issues in the state governmental management and the cooperation of several institutions, at different scales, despite the records of different degrees of disarticulation of public policies being evident in Brazil (D\u0026rsquo;Almeida et al., 2010). The EEZs projects developed regional scientific, technical and management capacities, started and strengthened the collection, store, systematization and spatialization of data and information, and allowed deep scientific and political thoughts, on the part of governments and society, about its territory. The results of the EEZ projects are references for numerous environmental policies in the Amazon region. The regional zoning is one of the main objectives of the Action Plan for the Prevention and Control of Deforestation in the Legal Amazon (PPCDAm), an instrument of the Climate Change National Policy (Law 12187/2009). Loans from the federal government for rural activities require environmental regularity of the properties, some of which must comply with the recommendations and restrictions of the EEZ (Banco Central do Brasil, 2008)). The EEZ products guide the preparation of government pluriannual plans, the annual budget and the environmental licensing processes, and the delimitation and creation of conservation units and biodiversity corridors. Finally, the Law for the Protection of the Native Forest (Brazil, 2012) was an important environmental milestone, since it establishes the obligation of all States to prepare, approve and consolidate their EEZ, as a condition for resizing the protected areas in the rural properties located in the Amazon region.\u003c/p\u003e"},{"header":"4.\tThe Challenges Of Regional Planning In The Amazon: Some Problems Of Eez Implementation","content":"\u003cp\u003eSuch a complex and diversified process of designing and implementing the EEZ in the Amazon also presents trouble spots, which become challenges to be overcome in the near future.\u0026nbsp;\u003c/p\u003e\n\u003cp\u003eMany sectors of society and the government do not believe in the real effectiveness of the results achieved by the EEZ for the occupation and use of the territory, due to the outdated information after a long elaboration process, the use of inadequate scales for making decisions, mainly at the local level, and the difficulty of measuring territorial management guidelines, using monitoring and evaluation methods. Added to this scenario are the institutional, financial and political discontinuities that permeate the long processes of EEZ. Other factors have been identified as causing problems in the implementation of the ZEE in the Amazon:\u003c/p\u003e\n\u003cp\u003e- \u003cu\u003eThe difficulty of appropriating the results of regional planning:\u003c/u\u003e The governors of small municipalities, far from the big cities, cannot easily use the results of the ZEE, since they were rarely involved in its development and their strategies and political measures were not were associated with a culture of long-term planning.\u003c/p\u003e\n\u003cp\u003e\u003cu\u003e- The sectoral view of the territory:\u003c/u\u003e Despite being a transversal instrument of territorial planning, the process of elaboration and implementation of the EEZ is delegated to state environmental agencies and the national Ministry of the Environment, accentuating a mistaken perception of favoring the protection of the environment over the economic development.\u003c/p\u003e\n\u003cp\u003e- \u003cu\u003eThe role of the society:\u003c/u\u003e The productive sectors (for example, agriculture, mining, forestry) have a low participation in the elaboration and implementation of the EEZ due to (i) the perception that the instrument often prioritizes environmental preservation, to the detriment of the productive, (ii) disrepute in inspections and sanctions in case of non-compliance with the ZEE guidelines and strategies, and (iii) the small scale of zoning and planning does not satisfy the needs of local production. The Society is not very participative or little heard, in the definition of its needs, which would allow the construction of future scenarios that are more consistent with reality.\u0026nbsp;\u003c/p\u003e\n\u003cp\u003e- \u003cu\u003eSome outdated concepts and methodology:\u003c/u\u003e The EEZ clearly conceptualizes the sustainability of the territories through a vision in which human action is an element external to the natural environment on which it exerts intense negative pressures. In this context, policies and strategies to protect or restrict the use of the environment are always associated with its status as a \u0026ldquo;passive\u0026rdquo; element that does not offer any service to society. Methodologically, there is a great concentration of efforts (time and money) in carrying out detailed diagnoses, which no longer respond to the reality of the first zoning works of an Amazonian territory that was still \u0026quot;unknown\u0026quot; at that time, and concomitantly no description of the way of monitoring and evaluating the results of the regional planning. There is a need to introduce new issues in the zoning of the region, which respond to more contemporary realities and that have not been included in the original methodology or in the different adaptations made over time\u003c/p\u003e"},{"header":"5. The Challenges Of Regional Planning In The Amazon: Changes And Their Reflections On The Territory","content":"\u003cp\u003eThe other great challenge for the planning and management of the territory is the need to incorporate in the analyzes and results of the EEZ the changes that occur in the region, often unobserved, since they occur faster than the time necessary for the elaboration of zoning (3 to 4 years on average) or because the methodology used does not yet consider them.\u0026nbsp;\u003c/p\u003e\n\u003cp\u003eEconomic cycles sustained in the provision of natural resources have stood out throughout the history of the Amazon in Brazil (e.g., rubber, Brazil nuts, black pepper) (Loureiro 2015), which required little in terms of infrastructure works for their production, transport and marketing. Since the last decades of the 20th century, the Amazon, already partially integrated by highways and airports, began new economic periods, now supported by the growing supply of electricity, minerals and agricultural products to Brazil and the world (Silva et al. 2016). These activities have a high impact on landscapes, biotas, traditional and indigenous populations, as well as growing cities (Ometto et al. 2011; Fearnside 2016; Sonter et al. 2017). Some of the main changes impacting the development of the Amazon territory can be mentioned:\u003c/p\u003e\n\u003cul\u003e\n \u003cli\u003e\u003cu\u003ePopulation and the urbanization process:\u0026nbsp;\u003c/u\u003ePopulation densities and urbanizations are growing in the Amazon region as a result of development activities (Tritsch and Le Tourneau 2016). This region has an estimated population in 2021 of 17 million inhabitants (8% of the country\u0026apos;s total population). Despite being one of the lowest percentages in the country, the population growth rate in the region was the highest in Brazil when compared to national values and those of other regions for the periods 2000/2010 and 2010/2021. In the context of an eminently urban country, the amazon has one of the highest growth percentages in urban population between 1960 and 2010, being the largest among Brazilian regions between 2000 and 2010 (Table 1).\u0026nbsp;\u003c/li\u003e\n\u003c/ul\u003e\n\u003cp\u003eTable 1 resident population by regions in Brazil \u0026ndash; population growth rate and proportion of urban population. Source: data available at the Brazilian Institute of Geography and Statistics (Instituto Brasileiro de Geografia e Estat\u0026iacute;stica) - https://censo2010.ibge.gov.br/ and https://cidades.ibge.gov.br/brasil/es/panorama\u003c/p\u003e\n\u003ctable border=\"1\" cellpadding=\"0\" cellspacing=\"0\"\u003e\n \u003ctbody\u003e\n \u003ctr\u003e\n \u003ctd rowspan=\"3\"\u003e\n \u003cp\u003e\u003cstrong\u003eRegion\u003c/strong\u003e\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd colspan=\"2\"\u003e\n \u003cp\u003e\u003cstrong\u003ePopulation Growth Rate\u003c/strong\u003e\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd colspan=\"7\"\u003e\n \u003cp\u003e\u003cstrong\u003eUrban Population (%)\u003c/strong\u003e\u003c/p\u003e\n \u003c/td\u003e\n \u003c/tr\u003e\n \u003ctr\u003e\n \u003ctd colspan=\"2\"\u003e\n \u003cp\u003e\u003cstrong\u003ePeriods\u003c/strong\u003e\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd rowspan=\"2\"\u003e\n \u003cp\u003e\u003cstrong\u003e\u0026nbsp;\u003c/strong\u003e\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd colspan=\"6\"\u003e\n \u003cp\u003e\u003cstrong\u003eYears\u003c/strong\u003e\u003c/p\u003e\n \u003c/td\u003e\n \u003c/tr\u003e\n \u003ctr\u003e\n \u003ctd\u003e\n \u003cp\u003e2000/2010\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e2010/2021\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e1960\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e1970\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e1980\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e1991\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e2000\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e2010\u003c/p\u003e\n \u003c/td\u003e\n \u003c/tr\u003e\n \u003ctr\u003e\n \u003ctd\u003e\n \u003cp\u003eBrazil\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e1.17\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e1.03\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003eTotal population of Brazil\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e45.08\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e55.98\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e67.7\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e75.47\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e81.23\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e84.36\u003c/p\u003e\n \u003c/td\u003e\n \u003c/tr\u003e\n \u003ctr\u003e\n \u003ctd\u003e\n \u003cp\u003eAmazon (North)\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e2.08\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e1.62\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd rowspan=\"5\"\u003e\n \u003cp\u003eTotal urban population\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e3.25\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e3.37\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e4.14\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e5.35\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e6.54\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e7.25\u003c/p\u003e\n \u003c/td\u003e\n \u003c/tr\u003e\n \u003ctr\u003e\n \u003ctd\u003e\n \u003cp\u003eNorth East\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e1.06\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e0.76\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e24\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e22.65\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e21.9\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e23.23\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e23.9\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e24.12\u003c/p\u003e\n \u003c/td\u003e\n \u003c/tr\u003e\n \u003ctr\u003e\n \u003ctd\u003e\n \u003cp\u003eSouth East\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e1.04\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e1\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e55.67\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e55.47\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e53.1\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e49.74\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e47.51\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e46.42\u003c/p\u003e\n \u003c/td\u003e\n \u003c/tr\u003e\n \u003ctr\u003e\n \u003ctd\u003e\n \u003cp\u003eSouth\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e0.87\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e0.96\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e13.96\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e14.05\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e14.82\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e14.78\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e14.74\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e14.45\u003c/p\u003e\n \u003c/td\u003e\n \u003c/tr\u003e\n \u003ctr\u003e\n \u003ctd\u003e\n \u003cp\u003eCenter West\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e1.91\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e1.59\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e3.11\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e4.46\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e6.04\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e6.9\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e7.31\u003c/p\u003e\n \u003c/td\u003e\n \u003ctd\u003e\n \u003cp\u003e7.76\u003c/p\u003e\n \u003c/td\u003e\n \u003c/tr\u003e\n \u003c/tbody\u003e\n\u003c/table\u003e\n\u003cp\u003e\u003cbr\u003e\u003c/p\u003e\n\u003cul\u003e\n \u003cli\u003e\u003cu\u003eThe growing demand for electric energy in Brazil:\u0026nbsp;\u003c/u\u003eConsidering the depletion of the hydroelectric potential of other basins in Brazil, the Amazon basin emerges as an \u0026ldquo;inexhaustible\u0026rdquo; source of water, useful for hydroelectric production. For the most part, these infrastructure works are located on tributaries of the Amazon River. Considering data up to March 2020, there are 833 hydroelectric plants in existence or planned. The majority of active projects are in Brazil (52%). Of the 181 existing hydroelectric plants, 137 are small power stations whose power is less than 30 MW. The same group represents 75% of those planned (RAISG, 2020). Those that generate the greatest power, some over 2000 MW, are the most worrying because of their large artificial lakes, impacting the hydrologic flows, the vegetation cover, the biota, altering the limits of protected areas and forcing the migration of the population residing in the flooded areas, all of this with enormous impact on the territory (Chaudari and Pokhrel 2022; Cavalcante et al. 2021; Mayer et al. 2021).\u003c/li\u003e\n \u003cli\u003e\u003cu\u003eEconomic Production Based on Natural Resources \u0026ndash; Mining:\u0026nbsp;\u003c/u\u003eMining in the Amazon region of Brazil (Triner 2016), offers products for several and varied types of industry. The expansion of mining in the region has allowed annual records of production, profits, job creation and participation in Brazil\u0026apos;s Gross Domestic Product to be surpassed. This industry greatly collaborates with the socio-economic development of many Amazonian municipalities (Cordani and Juliani 2019) (Figure 3). This progress is based on the diversity of products (e.g., bauxite, iron, gold) and the discovery of new deposits in areas still untouched (Brasil 2018). The open surface extraction (pit) and placer mining types are the most common in the region, impacting the relief (for example, large and deep excavations, mountains of mining tailings), the vegetation cover and soil characteristics, and contaminating the rivers. thus, altering the ability to provide ecosystem services. The mining sector concentrates the population and the urban areas of the neighborhood, and installs transport logistics for production that have enormous effects on the territory.\u003c/li\u003e\n \u003cli\u003e\u003cu\u003eEconomic Production Based on Natural Resources: Agriculture and Livestock:\u0026nbsp;\u003c/u\u003eThe Amazon region has emerged in recent years as a frontier of the expansion of agricultural and livestock activity, mainly resulting from investments in large-scale projects supported by the availability of low-cost land and the existence of varieties adapted to the particular environmental conditions (Oliveira 2016; Sauer 2018; McManus et al. 2016). This recent growth is associated with the expansion of consumer markets and the region\u0026apos;s greater proximity to them, reducing transport costs. Government programs, often strengthened by the partnership with the private sector, are planning and implementing the construction and improvement of the highway network (Moran 2016), the expansion of the railroad network, as well as overcoming obstacles to the full operation of waterways (Fearnside 2015). These productive activities (Santos et al. 2021, Brando et al. 2020, Silva et al. 2021) result in an intense and growing processes of deforestation and forest fires that impact extensive areas, changing the conditions of the original and secondary vegetation cover, the forms of use and occupation of the landscape, and the characteristics of the most superficial horizons of the soil. In short, altering the ability to provide ecosystem services (Figure 4).\u0026nbsp;\u003c/li\u003e\n \u003cli\u003e\u003cu\u003eClimate change and natural disasters in the Amazon:\u0026nbsp;\u003c/u\u003eThe hydroclimatic disasters and their territorial reflexes are not considered in the Amazon, since this is perceived as a region with low population density, predominantly rural and riverside adapted to the natural dynamics. However, several climatological scenarios indicate changes in natural conditions, making extreme events more frequent, increasing temperatures and decreasing precipitation for the coming years in the region (Oliveira et al. 2021). These changes are exacerbated by deforestation and forest fires, and have enormous impacts on the territory and the activities that are carried there (Tanure et al. 2020; Nobre et al. 2019).\u003c/li\u003e\n\u003c/ul\u003e"},{"header":"6.\tProposal To Overcome The Futures Challenges Of Territorial Planning In The Amazon","content":"\u003cp\u003eAs a way to overcome the challenges in the territorial planning in the Brazilian Amazon in the near future, efforts should be made to carry out revisions of methodological guidelines, governance and forms of social participation, that takes into account the changes and new demands of the territory.\u003c/p\u003e\n\u003cp\u003eThe current methodology is the result of the evolution of knowledge, technical capacity, available data and political visions (Vasconcelos et al. 2013b; Silva et al. 2017). The methodology integrates the physical, biotic, socio-economic, legal and institutional dimensions of the territory and has been able to incorporate, throughout its experience in the Amazon, modern tools for the acquisition and critical examination of data. However, without considering a line of action that proposes deep changes, some aspects are identified as potential ways to improve the EEZ methodology:\u0026nbsp;\u003c/p\u003e\n\u003cul\u003e\n \u003cli\u003e\u003cu\u003eElaborate EEZ in detail scales:\u0026nbsp;\u003c/u\u003eWith EEZs that are spatially more detailed (1:50,000 or more), governments and society can find answers to their demands for subsidies for decision-making, as well as facilitate the identification of potentialities and vulnerabilities in the territories by social actors, whose participation throughout the processes of elaboration and implementation of the ZEE should be promoted and qualified. The clear increase in the amount of information needed must be balanced with the planning of specific regions, previously and proposedly chosen.\u003c/li\u003e\n \u003cli\u003e\u003cu\u003eImprove the diagnoses of reality\u003c/u\u003e: The proposal to change the methodological processes of the diagnosis stage of an EEZ considers the need to reduce the great times and costs of collecting numerous and complex information and data, in the vast work areas. The diagnosis, no longer more general, must now be geared towards responding to the main needs of society, previously identified in the planning stage of the EEZ\u0026apos;s activities.\u003c/li\u003e\n \u003cli\u003e\u003cu\u003eDetail the methodology for the preparation of future scenarios:\u0026nbsp;\u003c/u\u003ethis proposal aims to highlight the importance of the prognosis phase of future scenarios in the preparation of EEZ. For this, the anticipation of this methodological stage is proposed for the beginning of the processes, allowing the applicability of the EEZ to be strengthened as a regional planning tool, with a \u0026quot;look to the future\u0026quot;. With the same importance, a single method of elaboration of the forecast scenarios should be defined for the whole region, which would permit a greater understanding of the results and the possibility of comparison between spatially contiguous areas.\u003c/li\u003e\n \u003cli\u003e\u003cu\u003eInclude monitoring and evaluation tools\u003c/u\u003e: Define methodology for the monitoring and evaluation stage of EEZ results, clearly indicating guidelines, actions, development strategies, responsible parties, period of execution, and necessary financial resources. These tools allow sustainability over time and improvement of the results of the planning of the territory.\u003c/li\u003e\n \u003cli\u003e\u003cu\u003eIntroduction of new themes:\u0026nbsp;\u003c/u\u003eIt is possible to propose the introduction of new themes, such as natural disasters in a context of climate change, urbanization process, and environmental degradation, as well as new approaches to planning the territory based on natural solutions, such as the valorization of ecosystem services, which can renew the instrument and adapt it to the expectations of the public authorities and the society involved, fostering its effectiveness as a tool for territorial planning. The territory is no longer vulnerable, but it has the potential to contribute to development based on the services that can be offered, which in turn underpin its conservation and protection even more.\u003c/li\u003e\n\u003c/ul\u003e\n\u003cp\u003eTerritorial planning and the EEZ instrument, as well as many existing policies in Brazil, present enormous difficulties in implementation, law enforcement and sustainability due to problems mainly associated with governance (Donadelli, 2017). In this regard, we propose:\u0026nbsp;\u003c/p\u003e\n\u003cul\u003e\n \u003cli\u003e\u003cu\u003eIntegrate and/or enhance integration of the EEZ:\u003c/u\u003e The collaboration with policies and instruments (e.g., land tenure regularization and nature protection) is an important challenge for the territorial planning and management, particularly the National Policy for Regional Development (PNDR) (Decree No. 9.810/2019). Special attention should be paid to the complementarity, even at different spatial scales, with the provisions of the municipal master plans (Federal Law 10257/2001) and with the methodological processes for conducting environmental impact studies (Federal Law 6938/1981) for licensing potentially impactful activities in mining, civil construction and logistics structures.\u003c/li\u003e\n \u003cli\u003e\u003cu\u003eDevelop an action plan: the implementation of the guidelines for zoning and planning of the Amazon region require the definition of actions, objectives, deadlines and those responsible with a view to improving the effectiveness and effective monitoring of the proposed initiatives.\u003c/u\u003e\u0026nbsp;\u003c/li\u003e\n \u003cli\u003e\u003cu\u003eTransfer responsibilities: the proposal is related to the possibility of delegating the responsibilities for coordinating the elaboration and implementation of the SEZs of the environmental agencies (Ministry at the national level and secretaries at the state level) to other ministries and secretaries ( for example, Planning) that in theory have a greater capacity for articulation with the various government sectors that act on the territory.\u003c/u\u003e\u003c/li\u003e\n \u003cli\u003e\u003cu\u003e- Better define financial support:\u0026nbsp;\u003c/u\u003eInclude or strengthen the inclusion of the EEZ in the budget cycles of the federal and state governments to financially support all stages, including the monitoring and updating of results.\u0026nbsp;\u003c/li\u003e\n\u003c/ul\u003e\n\u003cp\u003eStrengthening and qualifying governmental and social participation in territorial planning processes is one of the main factors for overcoming challenges in the future, especially in socioeconomically unequal regions like the Amazon. In this sense, it is fundamental to reflect on mechanisms that:\u003c/p\u003e\n\u003cul\u003e\n \u003cli\u003ePromote the direct involvement of the highest levels of government, strengthening its elaboration and ensuring greater success when it is implemented.\u003c/li\u003e\n \u003cli\u003ePrepare federal and state managers and technicians to stimulate the use of the results generated by the EEZ, contributing to the internalization of zoning in their work routines;\u003c/li\u003e\n \u003cli\u003eBuild the EEZ, taking into account the forms of vision and planning of the inhabitants of indigenous territories and conservation units; e\u0026nbsp;\u003c/li\u003e\n \u003cli\u003eEnsure available financial resources for the mobilization of actors, the time set aside for consultation and technical explanation of documents, and awareness of those responsible for EEZ initiatives on the importance of favoring a broad process of discussion regarding zoning.\u003c/li\u003e\n\u003c/ul\u003e"},{"header":"Conclusion","content":"\u003cp\u003eThe results of the research presented allow us to verify evidence that the EEZ, in the absence of another instrument with a common methodology and nationally recognized, is still of great importance in the territorial planning agenda of Brazil. However, the development of activities that degrade Amazonian ecosystems still persists, even after numerous years of environmental education, monitoring systems by satellite sensors, inspection in the territory and penalization of those who break the law.\u0026nbsp;\u003c/p\u003e\n\u003cp\u003eIt is important to highlight that the dispersion of forms of use and occupation of the land that are illegal, makes it difficult and challenges the zoning of the territory (Cond\u0026eacute; et al. 2019; Siqueira-Gay and Sanchez 2021) and that there are areas that have not yet been covered by EEZ, such as the coastal zone of the state of Par\u0026aacute;, indicating thar it is an opportunity to reformulate the principles, objectives and methodology of the instrument, given the particularities of these environments.\u0026nbsp;\u003c/p\u003e\n\u003cp\u003eThe future of the EEZ is clearly associated with the possibility of finding mechanisms that can help, with the lowest political, economic and social cost and as quickly as possible (considering the transformation that affects the territory), the implementation of its results, enhancing its appeal as reference to other land use planning and management policies.\u003c/p\u003e"},{"header":"Declarations","content":"\u003cp\u003eAuthor Statement\u003c/p\u003e\n\u003cp\u003eClaudio F Szlafsztein is the unique author of the manuscript\u003cstrong\u003e\u0026nbsp;CHALLENGES IN REGIONAL PLANNING AND MANAGEMENT IN THE BRAZILIAN AMAZON\u0026nbsp;\u003c/strong\u003eis\u003cstrong\u003e\u0026nbsp;\u003c/strong\u003eresponsible of the conceptualization, research and writing of the document.\u003c/p\u003e"},{"header":"References","content":"\u003col\u003e\n\u003cli\u003eAntonelli A, Zizka A, Carvalho F, Scharn R, Bacon C, Silvestro D, Condamine F (2018) Amazonia is the Primary Source of Neotropical Biodiversity. 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Gaia Scientia 7(1): 119-132 \u003c/li\u003e\n\u003cli\u003eVasconcelos V, Hadad R, Martins Jr P (2013b) Methodologies for integrated studies of natural resources: a discussion on ecological-economic zoning Pesquisas em Geociencias 40 (1): 21-30\u003c/li\u003e\n\u003c/ol\u003e"}],"fulltextSource":"","fullText":"","funders":[],"hasAdminPriorityOnWorkflow":false,"hasManuscriptDocX":true,"hasOptedInToPreprint":true,"hasPassedJournalQc":"","hasAnyPriority":false,"hideJournal":true,"highlight":"","institution":"","isAcceptedByJournal":false,"isAuthorSuppliedPdf":false,"isDeskRejected":"","isHiddenFromSearch":false,"isInQc":false,"isInWorkflow":false,"isPdf":false,"isPdfUpToDate":true,"isWithdrawnOrRetracted":false,"journal":{"display":true,"email":"[email protected]","identity":"researchsquare","isNatureJournal":false,"hasQc":true,"allowDirectSubmit":true,"externalIdentity":"","sideBox":"","snPcode":"","submissionUrl":"/submission","title":"Research Square","twitterHandle":"researchsquare","acdcEnabled":true,"dfaEnabled":false,"editorialSystem":"","reportingPortfolio":"","inReviewEnabled":false,"inReviewRevisionsEnabled":true},"keywords":"Economic Ecological Zoning, Amazonia, regional planning, regional changes","lastPublishedDoi":"10.21203/rs.3.rs-1941682/v1","lastPublishedDoiUrl":"https://doi.org/10.21203/rs.3.rs-1941682/v1","license":{"name":"CC BY 4.0","url":"https://creativecommons.org/licenses/by/4.0/"},"manuscriptAbstract":"\u003cp\u003eTerritorial management in the Amazon region of Brazil presents important challenges for the coming years, considering the unresolved problems of the main government instrument, the Economic Ecological Zoning of the EEZ, and the changes that are taking place in this territory. The EEZ is an instrument that has been applied at different scales for more than 30 years, but it has not been able to overcome the problems related to the diverse and profound pressures on the environment and the poor quality of the social and economic development of the population. In this sense, the article presents, based on its own experiences, government information and data and interviews with managers who worked in the elaboration of the EEZ, a reflection on the main obstacles resulting from the implementation of the EEZ and the changes in the development processes in the region (increasing demand for energy, economic production based on natural resources, climate change). Finally, possible ways of overcoming these challenges are presented, considering methodological guidelines, governance and ways of social participation.\u003c/p\u003e","manuscriptTitle":"Challenges in Regional Planning and Management in the Brazilian Amazon","msid":"","msnumber":"","nonDraftVersions":[{"code":1,"date":"2022-08-12 15:52:35","doi":"10.21203/rs.3.rs-1941682/v1","editorialEvents":[{"type":"communityComments","content":0}],"status":"published","journal":{"display":true,"email":"[email protected]","identity":"researchsquare","isNatureJournal":false,"hasQc":true,"allowDirectSubmit":true,"externalIdentity":"","sideBox":"","snPcode":"","submissionUrl":"/submission","title":"Research Square","twitterHandle":"researchsquare","acdcEnabled":true,"dfaEnabled":false,"editorialSystem":"","reportingPortfolio":"","inReviewEnabled":false,"inReviewRevisionsEnabled":true}}],"origin":"","ownerIdentity":"ba10bbb7-3809-41ff-9a85-2e1435fba967","owner":[],"postedDate":"August 12th, 2022","published":true,"recentEditorialEvents":[],"rejectedJournal":[],"revision":"","amendment":"","status":"posted","subjectAreas":[],"tags":[],"updatedAt":"2022-09-01T18:44:24+00:00","versionOfRecord":[],"versionCreatedAt":"2022-08-12 15:52:35","video":"","vorDoi":"","vorDoiUrl":"","workflowStages":[]},"version":"v1","identity":"rs-1941682","journalConfig":"researchsquare"},"__N_SSP":true},"page":"/article/[identity]/[[...version]]","query":{"redirect":"/article/rs-1941682","identity":"rs-1941682","version":["v1"]},"buildId":"_2-kVJe1T_tPrBINL-cwx","isFallback":false,"isExperimentalCompile":false,"dynamicIds":[84888],"gssp":true,"scriptLoader":[]}