Apresentação do PowerPoint

A proposition to solve the land cadaster system in
Brazil: the role of CNIR and a new institutionalization
Bastiaan Philip Reydon
Estadual de Campinas – UNICAMP
[email protected]
Ana Paula da Silva Bueno
Universidade Estadual de Campinas – UNICAMP
[email protected]
Ana Karina da Silva Bueno
Universidade de São Paulo - USP
[email protected]
Main Aims
• Present the main reasons
for scarce land governance
• Show the results of recent
improvements of the
Brazilian cadaster (SIGEF)
• Present the SINTER
proposition;
• Propose the philosophy of
a new institutional setting –
Polycentric Governance
Introduction
 Since the Land Law of 1850, Brazil failed to organize
the registration of their public and private lands.
 SNCR – from Estatuto da Terra (1964) – created a
cadaster with 5,4 millions of properties for Tax;
 Law no. 10.267 / 2001, created the National Rural
Property Cadaster - CNIR , has contributed to the
development of the register through
 the Land Management System - SIGEF digital tool,
which in two years has considerable quantitative
results , to knowledge base land in the country.
The causes for the lack of land
governance in Brazil based on LGAF
• Inoperative institutional and legal setting for land
administration;
• Lack of mapped cadaster and control over public land;
• The private registry coverage is incomplete, not up to
date and only partially mapped, so not always reliable;
• Low level of land property taxation;
• Supply, land use planning and regularization of urban
land are not in line with the demand;
• Neglectful governance over large-scale land and forest
acquisitions.
Brazil Land Administration institutional set up
Presidency of the Republic with
Congress approval establishes:
Conservation areas and Aboriginal Lands
Notes
Notary:
State Governors with Congress
approval establishes: State
conservation areas
Properties Notaries: registers properties
based on contracts of purchase and selling
(consulting preview registers)
registers
possessions
and
exchanges
LAW 10,267 – any change in
property at the notaries needs
georefereed plant for register
State Land
Institutes:
responsible
for all state
public land
SPU – Navy land and
other public land
INCRA: grants unique initial registration,
registers properties at a cadastre, concedes
concession of use to resettled,
discriminates public land;
Resettlements of
landless
Colonization – public land
destination to land divisions
Source: legislation and Reydon (2014)
JUDICIARY COURTS - it
homologates or creates titles
in decisions of any type of
conflict
MUNICIPALITY: decisions
about use of rural and urban
land, charging of urban land
tax
INCOME TAX Office: charging
of rural property tax (ITR)
Figure 1. Different Land cadasters and its links
The National Rural Property Cadaster
(CNIR)
• Created by Law nº 10.267/2001;
• Began to be implemented in 2010;
• It consists of a common base of information, land
ownership (SNCR/INCRA) , tax (CAFIR/RFB) ,
registral ( Real Estate Registry Cartorio ) and
many other types of information related to the
scope of satisfactory land governance;
• The CNIR deals only with private property rights;
• The tool used to deploy CNIR is the Land
Management System – SIGEF, a digital platform
Figure 2. Cadaster System proposed - CNIR
Source: Elaborated by INCRA and RFB.
Figure 3.Evolution of Georeferenced properties
Source: INCRA, 2015.
Table 1 Brazilian Land Tenure
INCRA RIGHTS ADMINISTRATION
TYPE
Settlements Projects
Tradicional people´s land - Quilombola
Certified Public Properties Number/Area
Certified Private Properties Number/Area
Agreements of Land Regularization
Subtotal
NUMBER OF POLYGONS 2014
7.789
169
3.139
141.930
107.853
260.880,00
AREA 2014 (ha) NUMBER OF POLYGONS 2015
8.028
78.895.036,6600
305
1.811.779,4000
6.680
60.743.496,7500
222.302
144.082.446,3500
107.853
4.335.993,96
345.168,00
289.868.753,12
AREA 2015 (ha)
77.264.462,5745
2.323.220,6000
78.148.930,4617
80.472.151,0617
4.335.993,96
242.544.758,66
AREA 2014 (ha) NUMBER OF POLYGONS 2015
553
120.989.725,60
1431
153.140.480,1550
80.041
3.254.260,69
134.300
22.071.789,5221
216.325,00
299.456.255,97
AREA 2015 (ha)
120989725,6
153140480,2
3.254.261
22.071.790
299.456.255,97
561.493
542.001.014,63
BASE ACESS OF ENTITIES PARTNERS
TYPE
Indigenous people's land
Conservation Areas UC
Georeferenced Polygons of SRA
Georeferenced Polygons of Terra Legal Program
Subtotal
GERAL TOTAL
NUMBER OF POLYGONS
553
1.431
80.041
134.300
216.325
477.205
TOTAL AREA OF BRAZIL
Source: Acervo Fundiário do INCRA, 2016
589.325.009,09
851.576.700,00
851.576.700,00
Problems with SIGEF
• It is self-declared trough a surveyor and has
no guaranty of truth;
• Does not imply recognition of the domain or
the accuracy of the limits and boundaries
indicated by the owner (IN/INCRA nº
105/2012;
• It only certifies properties, so possessions are
not included;
SINTER – Sistema Nacional de Gestão
de Informações Territorial
• The new system in creation aims utilizing the
existing information available in different
agencies – as the Registry Offices’ electronic
registry and INCRA’s georeferenced certification.
• SINTER will have links with a spatial information
database, juridical and cadastral data from the
different Public Registries, rural and urban
properties at the CNIR and other governmental
agencies cadasters.
SINTER
Ministério da Fazenda
Receita Federal
SINTER
CAR
TERRAS PUBLICAS
Municípios
CNIR
CAFIR
SNCR
Outros
Estados
SIGEF
Polycentric governance proposition
• Definition - social system with several different decision
center, operating under general rules in autonomous and
limited privileged manner.
• Challenge 1- several government institutions, municipalities
and special districts existed, overlapping jurisdiction and
responsibilities, thus causing conflicts.
• Challenge 2 - relationships between government units,
public sector agencies and private sector, coexisting and
working in a public economy that can be controlled by interorganization arrangements.
• Solution - central planning and a coordination center,
maintaining the autonomy of each institution
Polycentric governance proposition
1. decision centers multiplicity is analyzed by the capability of
deploying different methods, layers of autonomous
decisions and a shared set of objectives in common;
2. the institutional and cultural arrangement determinate a
broad rules system that defines the policentric system , then
analysed in terms considering the splited or overlaped
jurisdictions in decision centers, also concerning their
presence in building broad rules (as a mechanism of
collective choice, like via market or consensus);
3. the natural order created by the evolutionary competition
among ideas of different decision centers and their general
availability
(Aligica e Tarko, 2012, p. 254).
Polycentric governance proposition in
Brazil
• Cooperation environment creation – formal or informal forum
or platform environment, where would be possible to gather all
kinds of decision centers;
• Institutional alignment - there is a need to get them to a
common and single objective, voluntarily accepted by all of
them;
• Creation of common rules - the lack of alignment among the
law and rules that regulate the land management. The solution
for this problem requires an enormous effort of evaluating the
law and rules that try to regulate the land management, thus a
proposition for standardizing them, hence eliminating
redundant and contradictory law over land.
• Creation of the institutional/cultural framework – vector of
themes to be developed by the institutions;
Land governance
Institutional/thematic organization
Conclusions
•
•
•
•
The paper highlighted the importance of a reliable cadaster for land
governance in Brazil. The urge for it is greater when considering: Brazilian size,
its biodiversity, fast growing urbanization, large scale mechanized agriculture,
indigenous population justly demanding land, land grabs and a confusing
institutional framework.
The second section, explored the LGAF results showing that Brazilian weak
land governance are caused by: a) the overlapping of laws and institutional
settings and responsibilities on land issues; b) the lack of private and public
mapped land cadasters and c) the uncomplete and unreliable registration
system.
Then the recent efforts in building a cadaster, the SIGEF, the cadaster being
build has already reached about 57 % of the surface of the country in about 3
years. This section showed also the effort of SINTER;
The fourth section proposes polycentric governance setting as a solution for
Brazil through the creating of an institutional environment that shares some
common rules as a base for information exchange and construction of a
multipurpose national cadaster for improving the land governance.
References
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