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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 • • • • • • • • • • • • • • • BENATTI, J. H. Direito de Propriedade e Proteção Ambiental no Brasil: apropriação e o uso dos recursos naturais no imóvel rural. Belém, 2003. 345 p. Tese de doutorado. Universidade Federal do Pará, Belém. Código Civil Brasileiro. In: http://www.planalto.gov.br/ccivil_03/leis/2002/l10406.htm, visualizado em 06 de janeiro de 2015. FIUZA, Ricardo. Novo Código Civil Comentado. São Paulo: Saraiva, 2003. Lei nº 11.977/2009. In: http://www.planalto.gov.br/ccivil_03/_ato2007-2010/2009/lei/l11977.htm, visualizada em 23 de janeiro de 2015. Lei de Registros Públicos. 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