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IPP202
BRAZIL
Alto Solimões Basic Services and Sustainable Development Project
Indigenous Peoples Plan 1
(Appraisal Version: January 22, 2007)
Introduction: Indigenous Peoples in the Project (OP and BP 4.10)
The Amazonas Regional Development Project is an integrated, cross-sectoral project
comprising sustainable development, water and sanitation (WSS) and health components.
The Project involves local stakeholders, including Indigenous populations, to achieve
more effectively its development objectives and benefits. The Project’s design highlights
the importance of working with the Indigenous people in the Project’s area, not only
because of their special needs as a historically excluded group, but also because of the
wealth of their culture and their central role in preserving the region’s natural resources
and maintaining its ecological balance.
In accordance with the Bank’s policy, this Indigenous Peoples Plan (IPP) was prepared
for the proposed Project. Representatives of Indigenous Peoples groups will be involved
as beneficiaries and in advisory activities at the planning and policy level, and in
monitoring and evaluation activities of Project-financed activities. The Project would not
generate negative impacts on Indigenous people, but indigenous participation is crucial to
optimize the Project’s benefits. Indigenous people have for a long time used the rain
forest ecosystems for their subsistence and trade without causing major environmental
degradation, and many scientists the Indigenous expertise knowledge in natural resources
management, as exemplary. Nevertheless, Indigenous peoples are vulnerable to changes
occurring in the Amazon.
The first section of this IPP provides general background on Indigenous peoples in
Brazil. The second section describes the main characteristics of the Indigenous peoples
residing in Amazonas and the target Alto Solimões Region. The third section reviews the
legal and institutional frameworks. The fourth section briefly describes land tenure
issues. The next section details the consultation process. The remaining section specifies
the plan for Indigenous participation, as well as the anticipated direct and indirect
expected from the Project.
1. Background
Brazil is one of the most diverse of all Latin American countries, with descendents of
several ethnic groups blending together, including original Amerindian inhabitants,
Portuguese and Dutch colonizers, French invaders, European and Asian immigrants, and
Africans brought as slaves. Contrary to popular belief, miscegenation was not always
1
This document is based on the work of the consultant Villy Fritz Seilert, who carried out all field trips and direct
interactions with the indigenous people representing organizations and Amazonas State Government’s officials.
1
harmonious. It has produced inequities and unequal results in terms of access to resources
and opportunities and control over access. In general, the Portuguese traveled without
women and without wives, miscegenation was inevitable. Research on the Brazilian
human genome shows that for 60 percent of the Brazilians who consider themselves as
white -- have at least one Amerindian or African ancestor.
Considering the above, a fundamental problem arises: how can one clearly identify that a
person or a group of persons is Indigenous? In Brazil, the most accepted criterion is selfidentification. In other words, the Indigenous peoples are those who identify themselves
as belonging to a group that is collectively distinct from the national society as a whole,
due to their historical links to pre-Colombian population.2
The Brazilian denomination of color instead of race as an identification criterion is
consistent with the scientific findings about the non-existence of human races. First, the
human species is too recent and its migration pattern too broad to have produced racial
differentiations of human groups; and second, what is commonly known as different
races indeed share between 90 percent and 95 percent of their genome variation. Skin
color and human morphological characteristics originate from a small number of genes,
and reflect variations only of a thousand, among billions of nucleotides in the human
genome.3 Any ethnic group, such as Indigenous peoples in Brazil, is a historical, social,
political and cultural reality, rather than a biological one. As such, it requires the
appropriate social, political and cultural treatment from the Project. Henceforth, although
many of the Indigenous individuals who will benefit from the Project do not live in
Indigenous “aldeias”(agglomerates of residences where Indigenous live, within their
lands or reserves) but reside in small urban and rural agglomerates that are part of the
Project’s areas, their Indigenous identity was considered during Project preparation, taken
into account in the Project design, and will continue so, during Project implementation.
The Indigenous peoples in Brazil (Povos Indígenas) include a large number of different
ethnic groups whose ancestors lived in the Brazilian territory before the existence of the
Brazilian State. Brazil probably has the largest Indigenous population in the world living
in isolation. At the time of European discovery, Indigenous peoples were traditionally
semi-nomadic and subsisted on hunting, fishing, gathering and migratory agriculture.
Many of the estimated 300 nations and tribes that existed before 1500 died from diseases
brought by European settlers or from ulterior contact with other groups. Many were also
assimilated. The Indigenous population has decreased from an estimated four to six
million to 734,000 in 2000, according to IBGE, which uses the self-identification criteria.
However, there are some methodological differences in the data collection on the
Indigenous population. While IBGE uses the criterion of self-identification, thus
2
http://www.socioambiental.org/pib/english/rights/stat.shtm, consulted January 31, 2006.
Parra, F.C, Amado, R.C. Lambertucci, J.R., Rocha, J., Antunes, C.M., Pena, S.D.J. 2003. Color and
genomic ancestry in Brazilians. Proceedings of the National Academy of Sciences of the U.S.A. 100:177182. Pena, S. Divergent Human Y-Chromosome Microsatellite Evolution Rates, Journal of Molecular
Evolution, Volume 49, Number 2, August 1999 Pages: 204 - 214; Pena, S.D., Santos, F.R. (2000)
L'origine des Amérindiens. Pour la Science, 227: 82-85.
3
2
comprising those who, although living in urban areas, consider themselves as Indigenous,
FUNAI (National Agency for Indigenous Affairs)considers as Indigenous peoples only
those who live in “aldeias”. This difference is reflected in the figures: while IBGE data
shows 734,000 Indigenous people in Brazil, FUNAI reports 450,000. The difference is
also reflected in targeting mechanism: only those living in aldeias are targeted by the
Indigenous peoples governmental policies. In the Project’s design, to benefit Indigenous
individuals living in the Project’s areas, the IBGE definition will be used. In other words,
the Project will generate direct benefits for ‘urbanized” and rural indigenous groups (not
residing in aldeias), while generating indirect benefits for Indigenous people residing in
aldeias through agreements and partnership with the official institutions such as FUNAI
and FUNASA (National Health Foundation). FUNASA has the legal mandate to work
with them in the water, sanitation and health sectors supported by the project4.
Since colonial times, Brazil has dealt with the issue of landless farmers by extending the
agricultural frontier westward. The occupation of the State of Amazonas by nonIndigenous peoples began in the 1970s and continues to the present. At that time, the
military regime provided incentives through both colonization programs and agrarian
reform schemes to a large number of landless people to migrate to the state. However, the
experience was disappointing. The migration of small farmers from old to new frontiers
posed a threat to the forest, and a decade later, the local economy was stagnant and the
price of land had escalated.
The macroeconomic instability of the 80s and 90s also contributed to deforestation in two
ways: (a) shifting the demand for land as a productive factor to a speculative asset; and
(b) reducing the opportunity costs for small farmers to leave their lands and thus continue
deforesting new land5. As a result, these settlers shifted out the frontier to areas deeper in
the forest. Eventually these farmers started to migrate to urban settlements in the region,
which did not have the capacity, the revenues, or the services to respond to the inflow of
new inhabitants. Their vulnerability became extreme as well as the vulnerability of
Indigenous peoples, who were dislodged and whose lives were dismantled with this
process.
2. Indigenous People in the Amazonas State
The State of Amazonas has the largest number of Indigenous peoples (27.5 percent) and
the largest land area inhabited by Indigenous groups. As shown in Table 1 below, the
following groups are found in the state: Apurinã, Banawá, Baniwá, Bará, Barasana, Baré,
Deni, Desana, Jamamadi, Jarawara, Jiahui, Juma, Kambeba, Kanamari, Kaixana,
Karapanã, Katukina, Kaxarari, Kocama, Korubo, Kubeo, Kulina Madiha, Kuripako,
Makuna, Marubo, Matis, Matsé, Miranha, Mirty-Tapuya, Mura, Parintintin, Paumari,
Pirahã, Piratapuya, Sateré-Mawé, Tariana, Tenharim, Ticuna, Torá, Tsohom Djapá,
Tukano, Tuyuka, Wanana, Warekena, Witoto, and Zuruahã.
4
Between the 1991 and the 2000 Census, there was an increase of 150 percent in the number of people who declared
themselves as Indigenous, six times higher than the Brazilian population growth4. Only 45 percent of Indigenous
Peoples, according to the 2000 Census, live in Indigenous territories, validating the design of adequate interventions
also to Indigenous who live in urban settlements.
5
Osorio, A.L. and Campari, J, Sustainable Settlement in the Brazilian Amazon, The World Bank 1995.
3
Table 1: Indigenous peoples in the State of Amazonas
Language Family
(1)
Other names
Location: State in Brazil
and nearby countries
Apurinã.
.
Aruák
Arapaso.
Banawá.
Baniwa.
Tukano
Arawá
Aruak
Bará.
Arapaço
Banawá Yafi
Baniua, Baniva,
Walimanai,
Wakuenai
Waípinõmakã
Tukano
Barasana.
Hanera
Tukano
Baré.
.
Deni.
Desana.
Jarawara.
Jiahui.
.
Desano, Dessano,
Wira, Umukomasá
falta strike no 'u'
Yamamadi,
Kanamanti
Jarauara
Djahui, Diarroi
Juma.
Yuma
Kaixana.
Kambeba.
Caixana
Cambeba, Omágua
Kanamari.
Tüküná, Canamari
Karapanã.
Carapanã,
M*u*teamasa,
*U*kopinôpôna
Tüküná
.
Caxarari
Cocama
Jamamadi.
Katukina.
Katukina.
Kaxarari.
Kocama.
Korubo.
Kubeo.
Kulina
Madihá.
Kulina Pano.
.
Cubeo, Cobewa,
Kubéwa, Pamíwa
Culina, Madija,
Madiha
Culina
Nheengatu
Arawá
Tukano
AM
(Amazonas)
AM
AM
AM
Colombia
Venezuela
AM
Colombia
AM
Colombia
AM
Venezuela
AM
AM
Colombia
Census
population
estimate
(2)
4,087
Year
328
100
5,141
6,790
3,236
39
296
61
939
2,790
(1,210)
736
1,531
(2,036)
(Funasa,
2003)
2001
1999
2002
2000
2000
2001
1988
2001
1988
1998
1992
2002
2001
1988
Arawá
AM
800
2000
Arawá
TupiGuarani
TupiGuarani
Português
TupiGuarani
Katukina
AM
AM
160
50
2000
2000
AM
5
2002
AM
AM
224
156
1997
2000
AM
1,327
1999
Tukano
AM
Colombia
42
(412)
2001
1988
Katukina
Pano
Pano
TupiGuarani
AM
AC/AM
AM/RO
AM
Peru
Colombia
AM
AM
Colombia
AC/AM
Peru
AM
289
318
269
622
(10,705)
(236)
250
287
(4,238)
2.318
(300)
20
2000
1998
2001
1989
1993
1988
2000
2001
1988
1999
1993
1996
Pano
Tukano
Arawá
Pano
4
Other names
Language Family
(1)
Location: State in Brazil
and nearby countries
Kuripako.
Curipaco, Coripaco
Aruak
Maku
(subgrupos
Yuhupde,
Hupdá, Nadöb,
Dow, Cacua e
Nucak).(4)
Makuna.
Macu
Maku
Marubo.
Matis.
Matsé.
.
.
Mayoruna
Pano
Pano
Pano
Miranha.
Mirãnha, Miraña
Bora
Mirity-Tapuya.
Miriti-Tapuia, BuiaTapuya
.
.
Mura.
Parintintin.
Paumari.
Pirahã.
Pira-tapuya.
Macuna, Yeba-masã
2002
1998
1995
AM
Colombia
AM
AM
AM
Peru
AM
Colombia
AM
168
528
1.043
239
829
(1,000)
613
(445)
95
2001
1988
2000
2000
2000
1988
1999
1988
1998
AM
AM
5.54
156
2000
2000
AM
AM
AM
Colombia
870
360
1,004
(400)
2000
2000
2001
,1988
Mawé
AM/PA
7.134
2000
AM
Colombia
AM
Colombia
AM
17
665
1,914
205
585
2001
,1988
2001
,1988
2000
AM
Peru
Colombia
AM
AM
32.613
(4,200)
(4,535)
51
100
1998
1988
1988
1999
1985
AM
Colombia
AM
Colombia
4,604
6,330
593
570
2001
1988
2001
1988
Tukano
Tukano
Mura
TupiGuarani
Arawá
Mura
Tukano
Sateré-Mawé.
Siriano.
Siria-Masã
Tukano
Tariana.
Tariano, Taliaseri
Aruak
Tenharim.
Kagwahiva
Ticuna.
Tikuna, Tukuna,
Magüa
Torá.
Tsohom
Djapá.
.
Tsunhum-Djapá,
Tyonhwak Dyapa,
Tucano
Tucano, Ye'pã-masa,
Dasea
Tuiuca, Dokapuara,
*U*tapinõmakãphõná
Tuyuka.
Year
2.548 678
Palmari
Mura Pirahã
Piratapuia,
Piratapuyo, PiraTapuia, Waíkana
Sataré-Maué
Tukano.
AM
Colombia
AM
Colombia
Census
population
estimate
(2)
1,115?
Kagwahiva,
da família
TupiGuarani
Ticuna
Txapakura
Katukina
Tukano
Tukano
5
Other names
Wai
Wai(subgrupos
Karafawyana,
Xereu,
Katuena e
Mawayana).(4)
WaimiriAtroari.
Wanana.
Warekena.
Witoto.
Yanomami
(subgrupos
Yanomam,
Sanumá e
Ninam).(4)
Zuruahã.
Waiwai
Karib
RR/AM/PA
Guyana
Census
population
estimate
(2)
2.020
130
Kinã, Kinja
Karib
RR/AM
931
2001
Uanano, Wanano
Tukano
Uarequena,
Werekena
Uitoto, Huitoto
Aruak
AM
Colombia
AM
Venezuela
AM
Colombia
Peru
RR/AM
Venezuela
447
1,113
491
(409)
?
(5 .939)
(2.775)
11,700
(15,193)
2001
1988
1998
1992
1988
1988
AM
143
1995
Language Family
(1)
Location: State in Brazil
and nearby countries
Witoto
Ianomãmi, Ianoama,
Xirianá
Yanomami
Yanomami
Yanomami
Yanomami
Sorowaha, Suruwaha
Arawá
Year
2000
2000
2000
1992
Source: Instituto Sócio-Ambiental.
http://www.socioambiental.org/pib/portugues/quonqua/quadro.asp - Consulted in 04/01/06.
AC stands for Acre; PA for Para; RO for Rondonia; RR for Roraima;
2.1 Indigenous Peoples in Alto Solimões
Alto Solimões is home to 11 ethnic groups, with a total population of approximately
40,000 Indigenous inhabitants, representing between 15 to 20 percent of this Region’s
population. Six of these groups have relatively large numbers of inhabitants (Ticuna,
Kulina, Kokama, Kaixana, Matsé [or Mayoruna] and Marubó). However, the size of this
population varies according to sources and to criteria applied, and SIASI, the information
system operated by FUNASA, counts a total of 31,610 indigenous in the region. These
ethnic groups reside in 150 aldeias within the Vale do Javari and the Alto Solimões
Indigenous districts. However, these numbers do not account for approximately 5,000
Ticuna Indigenous living in dispersed hamlets in neighboring areas or for other dispersed
Indigenous groups not belonging to the most numerous ethnic groups. This number also
does not include isolated Indigenous with whom contact has not been established.6
Considering these gaps in the information systems, in the State’s Indigenous People’s
Foundation (FEPI) estimates an Indigenous population of 36,615 in 2004. A description
of the main characteristics of the major groups follows.
6
According to FUNAI, there are at least seven “isolated groups” in the region, with very little contact with
urban centers. One such group is the Korubos.
6
Ticuna: The Ticuna Indigenous group is the most numerous in the state, residing in a
territory that extends from the Rio Solimões/Jutaí to Peru and Colombia. The group’s
livelihood depends on hunting, fishing and subsistence agriculture. However, because of
the Ticuma’s demographic density, unsustainable agricultural practices and predatory
fishing, natural resources are becoming increasingly depleted and the environment
degraded. This situation has resulted in negative consequences on food security and
health. Other issues affecting their well-being include drug trafficking across the
Colombian border, which inevitably generates violence and crime. Health conditions are
poor and health services are irregular and of low-quality, as indicated by the frequent
reporting of diarrheal disease and malaria. Yet, despite these problems, the Ticunas are
highly organized, as evidenced by the following activities. From 1996 to 1999, they
benefited from an environmental and health project, supported by Museu Nacional, PPG7
and FINEP, which received a favorable evaluation; nevertheless, the project was not able
to stop the degradation of natural resources. Currently, another PPG7 project finances
environmental education and forest protection. In addition to environmental projects, the
Ticunas have also created the Organization of Bilingual Teachers in which more than 500
teachers participate. Through this organization and in collaboration with Government,
education materials are produced that are culturally- and linguistically appropriate for
Ticuna students. The Ticunas have also created their own museum, Museu Maguita,
which is visited by tourists. Finally, in collaboration with the Government of Japan, the
Ticunas have perfected crafting paper from Turiti, a tree of the region. The paper is used
in art, crafts and clothing.
Kulina: The Kulinas migrated to the Vale do Javari during the1950s and 1960s. Their
lands were demarcated in 1998. This process, although violent and conflictive, facilitated
the development of a strong group identity with their land, together with mistrust of nonIndigenous populations. The main economic activity of the Lulinas is fishing, but it is
also a source of conflict with non-Indigenous fishing boats originating from Manaus. In
regards to health, the group understands disease as the result of instruments inserted in
their bodies through magic mechanisms. Although refuting health diagnosis by official
entities, the Kulina are in frequent conflict with FUNASA, whose services they consider
unreliable and ineffective.
Kaixana. The Kaixanas live in three Indigenous lands in Alto Solimões and speak
Portuguese. They are not beneficiaries of governmental program. Very little is known
about them, except that they are few in numbers (about 320), and suffer from high
maternal and child mortality.
Kokama. Inhabiting an area encompassing Alto Solimões, Peru and Colombia, there are
an estimated 3.500 Kokamas in the Project’s area. The Kodama reside in four Indigenous
reserves whose demarcation has been conflictive. The group has also had a stormy
relationship with FUNAI. The Kokamas maintain their mother tongue which is derived
from the Tupi-Guarani linguistic family. The Kokamas are essentially fishermen and
farmers, but are also hunters and gatherers. Wood is extracted only for small home
constructions.
7
Mayoruna. The Mayaruna live in the Vale do Javari (in three Indigenous lands Lameirão, Marajaí and Vale do Javarí) and in Peru. They speak Mayoruna, which is of
the Pano linguistic family. Very few speak Portuguese. About 3,000 Mayorunas live in
Alto Solimões. Their homes are large tents (malocas) whose doors are decorated with the
skulls of animals. Health is a continuous source of worry, resulting in conflicts with and
protests against FUNASA. Although verifiable data is absent, infectious diseases such as
malaria and viral hepatitis are frequent; infant mortality is high; and, malnutrition is
common.
Marubó. About one thousand Marubós live in Alto Solimões in an area located between
the River Ituí and River Curaça, in the Javarí Basin. The Marubós combine Indigenous
from different groups which were fragmented during the process of occupation of the
Amazon Region by non-Indigenous settlers. Only the Indigenous health agents (agents de
saúde indígena) and some male youth who attend schools in neighboring areas speak
Portuguese. Their “aldeia” (hamlet) is organized around a big house (maloca), where they
sleep, cook, sing and host their visitors. Around the maloca, there are smaller buildings to
keep food and working tools. Men are hunters, while women farm the land. Although
verifiable data is absent, cholera, malaria, whooping cough and measles are common,
resulting in high infant mortality.
Finally, according to the 2000 population
census, about 1,100 Indigenous peoples
resided in urban areas in Alto Solimões,
representing about one percent of the
region’s urban population. Table 2
displays the number of urban Indigenous
and corresponding percent of urban
population by municipality. Like the nonIndigenous groups, they are concentrated
in and around municipal capitals.
2.2 Indigenous Organizations
Table 2: Urban Indigenous in Alto Solimões
Number and Percent of Urban Population
By Municipality
Municipality
No. of
% Urban
Urban
Population
Indigenous
Amarturá
277
5.8
Atalaia do Norte
19
0.4
Benjamin Constant
194
1.4
Fonte Boa
150
1.3
Jutaí
0
0.0
Santo Antônio do Icá
78
0.9
São Paulo de Olivença
79
0.9
Tabatinga
376
1.4
Tonantins
0
0.0
TOTAL
1,124
1.2
Since the end of the military period, the
number of Indigenous organizations has multiplied. In 1988, there were ten such
organizations in the Amazonian Region. Yet by 2005 there were more than 180
organizations identified in the six Amazon states (Amazonas, Roraima, Rondonia, Acre,
Pará and Amapá) and more than 250 organizations in what is known as the Legal
Amazon (which also includes parts of the States of Mato Grosso, Tocantins and
Maranhão). At least two main factors explain this increase: first, the recognition of
Indigenous rights by the 1988 Constitution, particularly the Indigenous right to be treated
differentially; and second, the decentralization of many social services to states and
municipalities, such as health care and education, which were previously delivered (or
presumably delivered) by the Federal Government.
Beginning with a movement of informal ethno-political mobilization engaged in
conflictive dialogues with the Federal Government over land, which subsequently
8
embraced a large array of social and economic issues, a new institutional setup was
created for the political representation of Indigenous peoples. In 1987, the Federação
Indígena do Rio Negro (Indigenous Federation of River Negro - FOIRM) was formed,
representing several organizations in municipalities of the state, including São Gabriel da
Cachoeira and Santa Isabel do Rio Negro. In 1989, the creation of the Coordenação das
Organizações Indígenas da Amazonia Brasileira (Coordination of Amazonian Indigenous
Organizations – COIAB) started a new pattern for action that was programmatic,
practical and project-oriented. At that time, Indigenous organizations began to seek the
legalization of their organizations, including the opening bank accounts to receive
donations and grants to carry out projects. This movement redefined their relationship
with the Brazilian Government by making Indigenous peoples more of an actor in their
lives instead of being passive recipients of State assistance.7 Today, the majority of
Indigenous organizations are local and many are structured around a professional or
economic activity, such as producers’ groups, health agents, teachers, etc. There are also
important networks of women’s associations and associations of Indigenous students.
Finally, Indigenous peoples are well-organized in Alto Solimões, as shown in Table 3.
The Indigenous assessment identified over 30 formal and active organizations. In
addition to organizations related to specific ethnic groups, a large number of
organizations have coalesced around an array of themes, including gender, health,
agricultural production, education, and artisanship. These organizations can serve as
potential partners for project implementation.
In summary, despite the diversity shown above, the Indigenous peoples living in the
Project’s area share important common features, including:
•
•
•
•
•
•
Traditional adaptive subsistence systems based on forest resources. Economic
activities include subsistence farming, fishery, hunting, gathering and art craft.
As a result of contact with the non-Indigenous society and the loss of identity,
there are many social problems such as intra-group conflicts and violence (for
example, between the elderly and the young), high suicide rate among women and
youth, alcoholism, and proliferation of sexually transmitted diseases.
Increasing dependency on monetary earnings and external assistance,
abandonment of traditional cultural habits, degradation of natural resources, and
impoverishment.
Semi-nomadic patterns of settlement related to adaptive needs and cultural
traditions.
Due to the geographical centralization of governmental services (very often,
around FUNAI facilities), some population groups are concentrated in limited
territories.
Pressure from other social groups over land resources.
7
Fundação Estadual dos Povos Indígeneas, htpp://www.fepi.am.gov.br/programas_02.php?cod=1100,
consulted on 02/06/2006.
9
•
•
1
2
3
4
5
6
7
8
9
10
11
12
13
14
15
16
17
18
19
20
21
22
23
24
25
26
27
28
29
30
31
Over the past fifteen years organizations that represent Indigenous interests have
become increasingly effective with regional civil society and governmental
agencies.
Health outcomes of Indigenous populations lag those of non-Indigenous groups,
although the former’s overall health status is improving. FUNASA, the federal
agency responsible for water, sanitation and health activities in the aldeias is the
subject of protests by Indigenous groups for the low quality and irregularity of
care.
Table 3: Existing Indigenous Organizations in the Alto Solimões Meso-Region
Acronym
Name
CGTT
Conselho Geral das Tribos Ticuna
CIVAJA
Conselho Indígena do Vale do Javari.
FOCCITT
Federação das Org., dos Caciques e Comunidades Indígenas da Tribo Ticuna.
OSPTAS
Organização de Saúde do Povo Ticuna do Alto Solimões.
OMITTAS
Organização da Missão Indígena da Tribo Ticuna do Alto Solimões.
OGMITAS
Organização Geral das Mulheres Indígenas do Alto Solimões
AMITRUT
Associação das Mulheres Indígenas de Taracuá, Rio Uapés e Tiquié
AMI
Associação das Mulheres Ticuna
OASPT
Organização de Agentes de Saúde do Povo Ticuna.
CACIB
Cooperativa Agrícola da Comunidade Indígena Betânia
CITGG
Comunidade Indígena Ticuna Cunëëcü – Guanabara III
MEMATÜ
Associação das Mulheres Artesãs da Comunidade Porto Cordeirinho
OCIBTM
Organização da Comunidade Indígena Ticuna Betânia Mecürane
OCIF
Organização Comunidade Indígena Feijoal
AWAS
Associação dos Witotas do Alto Solimões
ACMAAssociação dos Cocamas do Município de Amaturá
TUYUCA
ACIU
Associação dos Artesãos e Cultura Indígena de Umariaçu
CAITI
Centro Artesanal Indígena Ticuna Içaense
OAIBS
Organização dos Artesãos de Belém do Solimões
OGPTB
Orgaação Geral dos Professores Ticuna Bilíngüe.
OIATTUR
Organização Indígena dos Agentes Ticuna de Turismo
OGEITAM
Organização Geral dos Estudantes Indígenas Ticuna do Alto Solimões
AARCITPE
Associação dos Artesãos da Comunidade Indígena do Porto Espiritual
AMACIU
Associação das Mulheres Artesãs da Comunidade Indígena do Umariaçu
OIKAM
Organização Indígena Kocama do Amazonas
OCIKAM
Organização dos Caciques Indígenas Kaixanas da Amazônia
OGCCIPC
Organização Geral dos Caciques e Comunidades Indígenas do Povo Cocama
COITF
Comunidade Indígena Ticuna Filadélfia
AMATÛ
Associação das Mulheres Ticuna de Bom Caminho
OCAS
Organização Cambeba do Alto Solimões
APPIAS
Associação dos Parlamentares dos Povos Indígenas do Alto Solimões
3. Legal and Institutional Framework
The Brazilian Government has ratified the International Labor Organization Convention
No. 169 on Indigenous Peoples and Tribal Populations. In 1966, Brazil signed the UN
Declaration of Human Rights, which included the Pact for Civil and Political Rights and
the Pact for Economic, Political, Social and Cultural Rights which became Law in 1992.
As part of the Law and together with rights that cover the entire population (rights to
work, health, education, environmental sustainability, etc.), specific rights addressing
10
vulnerable populations were included.8 Provisions were established to protect all
vulnerable groups, including Indigenous peoples and the diversity of their cultural pattern
and social organization.
Law 6,001, known as the Estatuto do Índio (Indigenous Statute), was approved in 1973.
This law stipulates the relationship between the Brazilian Government and Indigenous
peoples. Indigenous peoples were considered ‘relatively capable” who should be tutored
by a federal government organization: first, the Serviço Nacional do Proteção ao Índio
(National Service of Protection to the Indigenous), replaced by the Fundação Nacional do
Indio (National Indigenous Foundation – FUNAI).
In the late 1980s, as a result of intensive mobilizations and debates promoted by
Indigenous organizations and various civil society groups, Brazil inaugurated a new
framework for Indigenous rights. Although the Indigenous Statute continues in effect, the
1988 Federal Constitution modified one of its central premises: Indigenous peoples
should be integrated into the general Brazilian society. The 1988 Constitution
acknowledged the diversity of Brazil, but did not call for the integration of Indigenous
peoples in a general Brazilian pattern. Rather, it recognized historically produced
differences while ensuring the right of Indigenous peoples to be different. The
Constitution contains an entire chapter about Indigenous peoples’ rights that secures
respect for their social organization, customs, languages, beliefs and traditions, and
recognizes their original right over the lands that they have traditionally occupied (title
VIII, "Of the Social Order ", chapter VIII, "of the Indigenous peoples").
Since then, the constitutional rights of the Indigenous peoples include at least two
innovative and important concepts compared to the previous Constitutions and the
Indigenous Statute. The first innovation is the abandonment of the assimilation point of
view, which destined Indigenous peoples to disappear. The second innovation is the
recognition of the rights of Indigenous peoples over their lands, defined as prior to the
creation of the Brazilian State itself.
Since the 1988 Constitution, and in parallel to broader political changes related to the
return to democracy, indigenous policy in Brazil, began to transition towards a more
decentralized institutional setting, with responsibilities for Indigenous peoples being
shared by multiple organizations at multiple levels. Traditionally, FUNAI centrally
implemented Indigenous policies and programs. Decree 1141 (May 1994) replaced other
decrees and established a framework for the decentralization of the major services
provided to the Indigenous population. It redistributed to at least six Ministries (Justice,
Agrarian Development, Environment, Social Development and Health) the activities that
address Indigenous peoples in the areas of health, education, economic development and
natural resources management. The Indigenous body (FUNAI) continued to be
8
Art. 11 - 1. The party-states of the present Pact recognize every person’s right to an adequate level of life
for themselves and their family, including the right to food, clothing, and adequate living conditions, as
well as to a continuous improvement in their lives conditions. The party-states will take the appropriate
measures to make sure these rights are achieved, recognizing the essential importance of international
cooperation based on the free choice.
11
responsible for coordinating and monitoring these policies. Decree 1141 also established
that the basic preventive and curative care related to Indigenous health should become a
FUNASA mandate. In 1999, through Law 9,936, the norms governing a health care
delivery subsystem for Indigenous health were more precisely defined. This new
subsystem was organized under the premise that Indigenous health is an attribute of the
federal government (Ministry of Health), should be linked to Unified Health System
(SUS), respecting all the principles that are applicable to it, and be based on Indigenous
sanitary districts (distritos sanitários). These districts would deliver health services to
Indigenous localities (aldeias Indigenous) and be responsible for linking these services to
SUS. In addition, the Indigenous districts should consider the diversity of each of the
Indigenous groups.9 Moreover, Indigenous peoples should participate in the management
of these districts through local councils.
The Decree No. 3,156, 27 (August 27, 1999) confirmed the Federal Government’s
responsibility for addressing Indigenous health, establishing as priorities for Indigenous
peoples health: (a) decrease of maternal and child’s mortality; (b) interruption of the
cycle of transmissible diseases; (c) control of malnutrition; (d) dental care; (e) restoration
of degraded environmental conditions; and (f) full and complete medical and dental care,
in collaboration with Indigenous organizations. It also establishes that these actions
should not conflict with those undertaken by state and municipal governments, under
Unified Health System (SUS).
In sum, two important advances of the current legislation include: (i) emphasis on a
differentiated approach with regard to local realities and cultural diversity; and (ii) a
systemic view of Indigenous health, encompassing not only health services but also
housing, water supply, sanitation, food security, environment and environmental
education, and land security.
The approval of the National Indigenous Health Policy and creation of the Indigenous
Health Subsystem (SIS) in 1999 and 2000 respectively mark major achievements for both
indigenous groups and the government. Since SIS inception and concomitant delegation
of institutional responsibility to the National Health Foundation (FUNASA), much effort
has been directed to creating surveillance systems, expanding access to preventive,
promotional and curative care, and establishing an organizational and governance
framework.
9
Luciano Maia, Minorias: Retratos do Brasil de Hoje,
htpp:www.dhnet.org.br/direitos/militantes/lucianomaia102.html, consulted on 02/06/2006.
12
4. Land Tenure10
This Project does not involve land tenure and should have no impact on this issue.
However, as in the past, the price of land has increased considerably on most of the
frontiers. Speculative pressure for deforestation has grown at a faster pace than pressure
from production. Also, past conflicts over Indigenous land may have an impact on the
Project, as they had created an often difficult relationship between Indigenous peoples
and non-Indigenous peoples and between Indigenous peoples and Governmental
institutions.
Since the beginning of the twentieth century, Brazilian law has accorded legal
recognition to the rights of Indigenous people to their lands, which constitute about 82
million hectares, or 16.4 percent of the Legal Amazon11. In addition, Indigenous lands are
reserved areas protected through the Forest Code, designated to be permanent
conservation areas. Legalization of Indigenous lands requires that the land be formally
identified, delimited, demarcated, decreed, and registered.
Indigenous lands are territories officially recognized by the Federal Government as
permanently owned by Indigenous peoples. It is worth mentioning the sui generis legal
nature of Indigenous lands: they belong to the Union (Federal Government) but are
constitutionally recognized as permanent possessions and dedicated to the exclusive use
by Indigenous living in the lands. These lands are non-disposable, while the Indigenous
rights over them are perennial. The Constitution recognizes expressly these rights as
primordial, which mean that they precede the national State itself. As an integral part of
the national territory, the general norms of the Brazilian legal system are applied to them.
For example, if it is illegal to deforest stream heads anywhere in the country, it is also
forbidden to do so in the Indigenous lands. Therefore, any specific act or norm over a
specific parcel that is incompatible with or restrictive of the right of exclusive Indigenous
use is constitutionally considered void. The Constitution also declares null and void any
private property claim over Indigenous lands. It allows for mining, forestry or other
activities on Indigenous lands only when they are in the national interest and are
specifically agreed to by an act of Congress. As a result of the 1988 Constitution, about
80 percent of the Indigenous lands are now delineated.
10
The World Bank works directly with the demarcation of indigenous peoples’ territories in the Amazon
region under PPG7; and, as part of the Pilot Program to Conserve the Brazilian Rain Forest, the
Indigenous Land Project aims to “enhance the well-being of indigenous people and promote the
conservation of their natural resources by completing the legalization and assisting in the protection of
approximately 121 indigenous areas in the Amazon.” The Ecological Corridors Project supports the
protection of biological diversity in indigenous land, contributing to the sustainable use of these lands and
to the conservation of their ecological resources. Beneficiaries are indigenous peoples living in the states
Acre, Amapá, Amazonas, Rondônia, Roraima, Pará, Mato Grosso, Tocantins and Maranhão.
11
According to FUNAI, indigenous lands in Brazil occupy 929,209 km2, about 11 percent of the Brazilian
territory.
13
In sum, indigenous lands are:
(a) Federal Government property and only federal agencies, as FUNAI and FUNASA
have mandates to conduct policy actions in their interior;
(b) Intended for the permanent occupation by indigenous peoples;
(c) Any legal acts that affect this right of possession are declared null and void, except
those of relevant public interest to the Federal Government;
(d) Only indigenous peoples may enjoy the wealth of the soil, the rivers, and lakes
existing within them;
(e) The exploitation of water resources, research, and the extraction of mineral wealth
may only be carried out [on indigenous lands] with the authorization of the National
Congress after hearing the concerns of the affected communities and assuring their
participation in the benefits of such exploitation.
After almost three decades, Amazon’s 170 indigenous peoples now have 377 reserved
areas, of which 286 enjoy some degree of legal recognition, with legalization moving
forward at fast pace. Nevertheless, several important areas still await resolution.
Numerous Indigenous Lands (Terras Indígenas) are present in this area, as showed in
Table 4. According to FUNAI, there are at least 07 “isolated groups” in the region,
meaning groups with very little contact with urban centers, such as the Korubos.
5. Project Preparation and Consultations
During Project preparation, the following processes and consultative activities were
carried out to assess possible participation and impacts on Indigenous peoples:
Screening. Early in the Project cycle, with support from qualified Bank staff and an
anthropologist (IPP consultant) a process was initiated to determine whether Indigenous
peoples were present in, or had a collective attachment to the target region (Alto
Solimões). Information was available for this assessment from the 2000 Brazil
Table 4: Indigenous Lands in Alto Solimões
Name of the
Indigenous Land
Acapuri de Cima
Nova Esperança do
Jandiatuba
São Domingos do
Jacapari
Betânia
Matintin
Area (ha)
Municipalities
Ethnic Groups
Land Situation
19467
199,000
Fonte Boa
São Paulo de Olivença
Kokama
Tikuna
Homologated
Homologated
135,350
Jutaí e Tonantins
Kokama
To be demarked
Tikuna
Tikuna
Registered
Identified
Vale do Javari
Santo Antônio do Içá
Santo Antônio do Içá e
Tonantins
8,544,482.27 Atalaia do Norte,
Benjamin Constant,
Jutaí e São Paulo de
Olivença
Kanamari, Kulina
(Arawá), Kulina (Pano),
Marúbo, Matís,
Mayoruna e Isolados
Registered
Vui-Uata-In
Uati Paraná
121,198.60
127,199.06
Tikuna
Tikuna
Demarked
Registered
122,769.03
20,230
Amaturá
Tonantins e Fonte Boa
14
Feijoal
Espírito Santo
Estrela da Paz
Evare I
Evare II
São Francisco do
Canamarí
São Sebastião
Sapotal
Macarrão
Maraitá
Lauro Sodré
Lameirão
Bom Intento
Porto Espiritual
Riozinho
Santo Antônio
Tikuna Umariaçu
São Leopoldo
Total
40,948.80
33,849.87
12,876
548,177.60
176,205.72
3,033
57,700
44,267
4,700
9,400
49,500
1,613.04
2,839.35
--1065.27
4,855
69,270.54
São Paulo de Olivença
Jutaí
Jutaí
São Paulo de Olivença,
Tabatinga e Santo
Antônio do Içá
São Paulo de Olivença
Amaturá
Tikuna
Kokama
Tikuna
Tikuna
Demarked
Homologated
Homologated
Demarked
Tikuna
Tikuna
Tonantins
Tabatinga
Jutaí
Amaturá
Benjamin Constant
Atalaia do Norte
Benjamin Constant
Benjamin Constant
Jutaí
Benjamin Constant
Tabatinga
Benjamin Constant
Kaixana e Kokama
Kokama
Tikuna
Tikuna
Tikuna
Mayoruna
Tikuna
Tikuna
Tikuna
Tikuna
Tikuna
Tikuna
Demarked
Being
demarked
Demarked
Demarked
Homologated
To be demarked
Homologated
To be demarked
Demarked
Demarked
To be demarked
Demarked
Homologated
Demarked
9,871,383.96
Source: FUNAI/PPTAL – June 2004
Population Census, FUNASA and FUNAI. It was concluded that Indigenous peoples
account for 15 to 20 percent of the population in the Project area and will benefit directly
and indirectly from the Project.
Consultation with the Borrower. Consultation with the Government of the State of
Amazon followed. The Government validated the findings regarding the presence of
Indigenous peoples. The State possessed a detailed diagnosis of the characteristics of the
main groups in the area.12
Consultations with Indigenous peoples: The strategy for local participation was built on
the assumption that improved research, capacity building and partnerships will contribute
to improved performance. An effort to collaborate more effectively with local experts has
been, and will continue to be made, as well as continuous support for networks among
Indigenous groups. During preparation, key Indigenous organizations were identified.
In the past, Projects related to Indigenous peoples were designed outside of Indigenous
areas and then presented to Indigenous for acceptance and informed consent. Yet, as
participation is different than attending meetings or consenting to decisions already made,
the lack of communication has often led to serious misunderstandings and eventual
conflictive relationships. Increasingly Indigenous peoples in Brazil are demanding ex12
A similar diagnosis can be viewed at http://www.socioambiental.org/home_html.
15
ante participation in decision- making processes. Consultations took place during
preparation and before activities addressing Indigenous peoples were designed, with the
aim of decentralizing decisions to Indigenous areas, understanding the Indigenous reality
in the area, gathering their views on Project design and promoting transparency.
To prepare a draft Project design, technicians from the state’s PIU and the IPP consultant
promoted public consultation in the Indigenous location (aldeia indigena), Filadelfia, in
Tabatinga in February, 2006. This consultation was organized by the State Government,
through the Indigenous Policy Foundation (FPI)13 and the State’s Planning Secretariat
(SEPLAN). This consultation featured broad participation of Indigenous peoples’
representatives from Alto Solimões. Over 200 people were present, ranging from
municipal assembly representatives, community leaders, Indigenous organizations
directors, and the mayor of one municipality (Benjamin Constant).
A second round of consultations was held in September 2006, with indigenous peoples’
organizations also participating in the environmental assessment consultative process.
Approximately 150 indigenous peoples, including 89 community leaders from the eight
principal ethnic groups residing in Alto Solimões, attended the consultation session held
in the same Indigenous location (aldeia indigena), Filadelfia, in Tabatinga. Also present
were representatives from state-wide indigenous NGOs, mayors, FUNASA, FUNAI and
State Government. Annex A identifies the groups consulted. Annex B (in Portuguese)
reviews the methodologies applied during the consultations. Annex C contains photos
from both two consultations.
5.1 Identification of Main Challenges: Following are the key challenges identified which
the IPP responds to and that the Project should address:
a) Legislation alone, although an important step, does not guarantee rights
automatically. Brazil has passed progressive policies and important constitutional
resolutions for Indigenous peoples, but the rights guaranteed in those documents are
often not implemented or enforced;
b) Indigenous health and WSS initiatives are growing and health programs for
Indigenous peoples are designed in a comprehensive manner to include
environmental management, land tenure, water supply and sanitation and food
security. However, there is a lack of professionals able to carry out these
interventions in a culturally-appropriate way; and a lack of appropriate models for
sustainable WSS service provision in Indigenous areas, as FUNASA readily
recognizes.
c) Female participation at all levels of decision making is inadequate, but this is often
considered culturally acceptable practice. This occurs despite the central role they
play in indigenous family life; and
d) There is no clear policy regarding the institutional framework that should deal with
the increasing number of Indigenous peoples who live outside Indigenous lands but
13
The State Indigenous Peoples’ Foundation (FEPI) is the main body in the state bureaucracy responsible
for designing, planning and coordinating the government policies towards the indigenous peoples.
16
who identify themselves as Indigenous. Many often live in urban areas, but maintain
Indigenous belief systems.
Following are the recommendations of consultations with Indigenous Peoples’
organizations that are incorporated in the Project’s design. These include actions to:
•
Strengthen traditional extracting practices and family agriculture and provide support
for inputs and basic social infrastructure;
o Response: Indigenous Peoples will participate in productive activities
financed through Components B2 - Support for Productive Activities and
B3- Micro-buisness management incubators (see below). Productive
activities involving extraction and agriculture are eligible. The Project
will support basic social infrastructure in health (Component D) and
water/sanitation (Component C) for indigenous peoples residing in urban
areas. The federal agency FUNASA is constitutionally responsive for
providing such services to indigenous populations residing in the aldeias.
•
Support small business and/or joint ventures with private partners, with the adoption
of a policy view of Indigenous peoples that goes beyond mere laborers, gathers or
producers of raw materials;
o Response: This is purpose of Subcomponent B#. It is expected that 40
percent of these subprojects will be directed to Indigenous Peoples.
•
Increase and strengthen the production capacity for traditional and non-traditional
products with a “marketing appeal” through the development of market chain analysis
and business plans which, within a framework of cultural coherence, make use of
traditional knowledge, while respecting biological conservation (ecological and site
specific variables). Specific activities include: fishing management, processing and
marketing of agricultural and agro-forestry products and handicrafts;
o Response: This request is covered through Subcomponents B2 and B3. It
is expected that 20 percent of B2 subprojects (productive activities) and
40% of B3 subprojects (micro-business management) will be directed to
Indigenous Peoples.
•
Address threats by non-Indigenous to rivers and aquatic resources in Indigenous
reserves, which have resulted in environmental degradation and negative impacts on
Indigenous health and quality of life; and support activities that, through a clear
conservation strategy, guarantee the improvement of the quality of life of Indigenous
peoples;
o Response: These threats are being directly addressed through the Pilot
Program to Conserve the Brazilian Rain Forests (PPG7), the Forest
Management Project (PROMANEJO), the Demonstration Projects (PDA),
17
the Floodplain Resources Management Project (PROVARZEA) and the
Ecological Corridors Project. All are financing conservation activities in
Alto Solimões. Furthermore, Subcomponent B1 contain activities to
strengthen state monitoring and control of natural resources in Alto
Solimões, including financing of a floating control post on the confluence
of the Solimões and Javari Rivers.
•
Promote economic use of traditional knowledge, particularly with respect to forest
and biological conservation. This includes fishing management, processing and
marketing of agro-forestry products (for example, frozen fruits, dried fruits, and pulp)
and handicrafts.
o Response: This request is covered through Subcomponents B2 and B3. It is
expected that 20 percent of B2 subprojects (productive activities) and 40%
of B3 subprojects (micro-business management) will be directed to
Indigenous Peoples. Subcomponent B2 subprojects include support for
non-timber forest products (e.g., nuts, fruits, etc.) and fisheries.
•
Strengthen the role of accountability and ownership mechanisms through meaningful
participation that goes beyond informed consent and promotes joint decision-making.
o Response: These mechanisms will be in place throughout the Project and
would involve the creation of a tripartite committee (Federal – FUNAI and state Government and indigenous people’s organizations) to define
activities that will benefit indigenous, as well as follow up implementation,
monitoring and evaluation (See Component A below). Indigenous Peoples
will in included in sectoral policy reviews, mapping of public sector
activities, development of a regional development plan and
baseline(economic and social) data collection and analysis.
•
Strengthen the partnership among FUNASA, FUNAI and the state to enhance the
knowledge about local solutions and, ultimately, the coverage and quality of WSS
and health services in the aldeias.
o Response: Under Components C and D, the Project together with
FUNASA and FUNAI will jointly finance consultancies and workshops to
explore alternative organizational arrangements and delivery models for
improving WSS and Health in the Indigenous reserves. The project will
aim to reach an agreement during Phase 1 and initiate implementation in
Phase 2. However, if agreement is reached early in Phase 1, the project
would attempt piloting an arrangement.
6. Strategy and Plan for Indigenous Participation in Proposed Project
The key elements of the Project’s strategy for reaching out to Indigenous peoples’
residing in the Project’s area include: (a) emphasizing the importance of an integrated
approach to human development, economic growth and environmental sustainability; (b)
18
strengthening the representation, particularly for indigenous peoples’ in the Project area
during project implementation; (c) incorporating participatory mechanisms for
prioritizing, planning, and selecting (productive activities), implementing and monitoring
and evaluating; (d) mobilizing representative bodies to maximize benefits,
acknowledging the value of local resources, assets and cultural background; and (e)
disseminating the project design from preparation to completion using culturallyappropriate materials, including guiding principles, objectives, strategies and results.
6.1 General Anticipated Benefits
The project design consists of three sectors: (1) Health, (2) Water Supply and Sanitation,
and (3) Sustainable Development. It will be implemented in nine municipalities in the
Alto Solimões meso-region (Amaturá, Benjamin Constant, Fonte Boa, Jutaí, Santo
Antônio do Içá, São Paulo de Olivença, Tabatinga, Tonantis e Atalaia do Norte).
According to the 2000 Census, these municipalities have a total population of
approximately 200,000, of which about 20 percent (about 36,500 inhabitants) are
Indigenous.
The anticipated benefits of the project include:
•
•
•
•
For Indigenous peoples: the Project will (a) improve their public representation
capacity by recognizing their role as social actors; (b) build social capital and
advance the appreciation for local knowledge and appropriate solutions for local
problems; (c) make available financing for small but sustainable productive
subprojects, together with technical assistance and training.
For governmental agencies: The Project will promote openness and transparency
in their decision-making processes by strengthening social control mechanisms,
simplifying procedures and improving accountability. It will also strengthen their
management capacity.
For women: The Project will improve services delivery, especially in the health
area, providing special attention to reproductive and maternal health. As
household division of labor is gender based, with women taking most
responsibilities for household cores but also for income generation, the Project
expects to reduce the burden of household responsibilities held by women. As
social capital develops, an expected benefit is a greater awareness about the
essential inequity of the long hours required to meet the female’s double
responsibilities, and the incorporation of men into household and productive
activities, coupled with more access of women to more effective productive
opportunities.
For all social groups including Indigenous peoples in the project area: The Project
will improve their living conditions through:
¾ Collecting information on economic and quality of life indicators.
¾ Creating management capacity.
¾ Improving access to markets and promoting small-scale productive projects.
19
¾ Promoting the sustainable and equitable development of the region by
fostering the sustainable use of its renewable natural resources and by putting
in place an institutional and policy framework supportive of this, through (a)
policy and institutional development; (b) grants and technical assistance to
productive activities for organized producers associations and cooperatives,
(c) support for Indigenous organization and training; and (d) implementation
and management.
6.2 Specific Anticipated Benefits
Indigenous people residing in Alto Solimões will benefit directly and indirectly from the
proposed Project through all its Components). Activities incorporated into Project design
draw on: (i) consultations with formal Indigenous organizations;14 (ii) lessons learned
from projects in which Indigenous peoples are beneficiaries, particularly the Disease
Surveillance and Control Projects (VIGISUS I and VIGISUS II); and (iii) the country’s
legal and regulatory framework on Indigenous peoples. A summary of benefits for
Indigenous People by Component follows:
Project-wide: The project’s Advisory Council will contain a specialist on indigenous
affairs agreed by indigenous organizations. This Council will review and advise on all
project-financed activities.
Component A: Policy and Institutional Strengthening for Regional, Cross-sectoral
Development: Benefits will be both direct and indirect under this Component. Activities
related to participatory regional planning and institutional development will create an
enabling institutional environment that will facilitate the state’s capacity to develop,
implement and monitor the sustainable use of natural resources while protecting the
environment. Under this component, no longer than three months after effectiveness, the
state will create a special consultative committee consisting of representatives of state,
federal (FUNAI, FUNASA), municipal governments of the area and Indigenous
organizations to define a policy-making and participatory planning mechanism that
would:15 (i) identify and prioritize economic and social issues affecting Indigenous
peoples in the Alto Solimões Region; (ii) define activities that would benefit Indigenous
peoples in urban areas and in the reserves; (iii) propose indicators and a mechanism to
monitor and evaluate these activities; (iv) facilitate cross-sectoral collaboration to address
Indigenous peoples’ needs; (v) promote greater coordination among different levels of
government to address indigenous issues and demands; and (vi) maintain an open channel
of communication between Government and Indigenous peoples.
Considering the recommendations of the consultative committee, indicators about the
performance and the impacts of the project on Indigenous peoples will be incorporated in
an in-depth baseline on demographic, social and economic conditions including access to
14
15
See Annex A for a list of groups consulted.
See Annex B for a schematic of an organizational arrangement under consideration.
20
basic services16. At the outset of implementation, the Project will contract an
anthropologist to staff the Regional Management Office to provide assistance to sectoral
staff in making sector-specific interventions culturally relevant.
Other results of this Component (see Annex 4) that would benefit Indigenous peoples are:
• Inclusion of Indigenous peoples health in the development of a sectoral policy review
with specific recommendations to FUNASA;
• Inclusion of Indigenous peoples in the map of ongoing public sector activities in the
Region, provided by FUNASA and civil society organizations;
• In coordination with FUNASA, inclusion of a section about Indigenous peoples
health in the preparation of a regional development plan;
• In coordination with FUNASA, water quality sample collection and sanitary
education will be provided by indigenous community health agents in at least three
aldeais.
• Joint base line survey complete and results published;
• Inclusion of data about Indigenous peoples health in the updating of SUS databases
every six months by all municipalities;
Component B: Promotion of Competitive Sustainable Development Production:
The objective of this component is to promote the development of the Alto Solimões
Region based on the organization of competitive economic clusters fostering the
sustainable use of regional renewable natural resources. The component would support:
(a) financial and technical assistance to define under what conditions the four key
existing clusters of economic activities in the region (timber and non-timber forest
products, fishing and fish farming) are competitive (e.g., able to access local and regional
markets with competitive prices). Market proximity, human capital availability, transport
infrastructure and availability of running water, electricity, land, labor accessibility, and
local ecological characteristics (vegetation, soil quality, rivers, and rain fall) are some of
the factors taken into account to establish which activities, within each cluster, show
potential competitiveness; (b) financial and technical assistance to support competitive
productive activities subprojects; (c) promotion of the technical efficiency, managerial
skills and organizational conditions to expand the productivity of the local economy by
supporting technical and management training, including marketing and product quality
improvement17; (d) technical and managerial training provided by private providers
complementing state agencies’ technical assistance and (e) consolidation of lessons
learned to define the methodology to be expanded throughout other regions of the state
during the second phase of the project.
16
Despite the provision of basic services to Indigenous peoples consisting of a federal mandate carried out
by FUNASA, it is expected that the project would create, through the consultative committee, an enabling
environment for the implementation of more sustainable solutions for the delivery of basic services.
17
See Danilo Camargo Igliori (2005) Determinants of Technical Efficiency in Agriculture and Cattle
Ranching: A Spatial Analysis for the Brazilian Amazon. Discussion Paper Series Number: 09.
Environmental Economy and Policy Research. Cambridge University.
21
Benefits will be both direct and indirect under this component. The project will finance
five mechanisms to facilitate Indigenous participation in fishery and fish farming
subprojects and business incubators. 18 The following mechanisms would prevail during
the selection of Indigenous peoples subprojects:
(i)
Qualifying criteria that awards additional “points” for proposals originating from
Indigenous populations. When needed, these proposals would benefit from
technical assistance provided in accordance with Indigenous organizations.
(ii)
Differentiated training activities tailored to the needs of Indigenous peoples:
Experience in government and Bank programs involving grants for productive
activities to Indigenous populations show that implementation often lags due to
their lack of planning, management and monitoring capacity. Further, Indigenous
groups participating in stakeholder consultations also requested support for
managerial capacity building. As such, the component will include a
differentiated training module that will focus on the following areas: project
planning, design, management and monitoring; project conceptualization; work
organization; accounting, bookkeeping and contracting. An NGO with ample but
practical experience with project development for Indigenous peoples will
develop and implement the training program.
(iii)
Culturally appropriate documentation, guidelines and processes will be developed
to facilitate conceptualization, planning, application, execution and monitoring of
subprojects. Specific items include simplified manuals in Indigenous languages
when necessary, that: (i) define objectives activities, eligibility and selection
criteria, application and review processes, responsibilities and accountabilities,
and institutional arrangements for the implementation of the productive microsubprojects; and (ii) provide practical guidance on financial and procurement
procedures, including flow of resources, control and reporting for the
implementation of productive micro-subprojects.
(iv)
Special and culturally-appropriate technical assistance will be provided to
Indigenous populations to prepare and execute productive subprojects: one of the
main reasons for failure of previous attempts to increase the volume and quality
of productive activities among vulnerable groups was the lack of technical
assistance in nearly all areas of management both before and after the “business”
is started. The Project will make available the resources and institutional
arrangements for technical assistance targeted at the region’s Indigenous people.
This technical assistance will also involve environment education activities,
raising their awareness about the richness and importance of the sustainable
management of the natural resources.
(v)
Indigenous representation in subproject selection process: Proposals will be
assessed by a technical committee consisting of specialists in the various
productive activities. These specialists will be seconded from technical
18
See Annex F for institutional arrangements to facilitate indigenous participation in micro-subprojects.
22
secretariats within the State Government. An Indigenous specialist from FPI will
also be placed in Technical Coordination for this Component. This specialist will
also serve on the assessment committee to provide input into the evaluation
process related to proposals from indigenous communities.
(vi)
Indigenous representation in Municipal Advisory Councils: In municipalities with
significant Indigenous populations and from which subproject proposals are
expected to be received from Indigenous groups, representatives of Indigenous
organizations and/or Indigenous specialists will be placed on these Councils.
It has been planned that Indigenous peoples will benefit from the following:
Subcomponent(B2): Support for Productive Activities.
Total US$ 2.17 million, with
expected Indigenous peoples financing of US$ 0.43 million (20%).. This component’s goal is to
contribute to the economic efficiency of producers in Alto Solimões. This goal will be
pursued by: (a) analyzing and establishing the pre-conditions for the competitiveness of
existing productive clusters in the area (in accordance with the Brazilian legislation that
forbids commercial logging; and (b) supporting the implementation of the most needed
activities within each cluster to achieve the desirable efficiency and productivity to
compete in prices and quality in local, regional and, in some cases, national markets.
Although Indigenous peoples businesses are eligible to participate in this component, it is
foreseen that these benefits will not be immediate, as previous technical assistance to
business incubators, training and extension will be needed. These will be provided
through the financing the subcomponents below;
Subcomponent (B3): Micro-business Management Incubators. Total US$ 1.21 million,
with targeted participation of Indigenous peoples accounting for US$ 0.48 million (40%) This
subcomponent’s goal is the creation of favorable surroundings that yield an increase of
the productivity of small-scale economic activities, implemented by local residents and
communities, particularly but not only, those integrated by indigenous peoples. A wide
range of services will be offered to Indigenous peoples, including management
assistance, assistance with access to financing, organizational and technical support
services, and the organization of shared inputs, as access to equipment and space. It is
expected that the subcomponent would offer optimal results through a replication effort
during the second phase of the proposed project, when lessons will have been learned
about the right incentives to make local production efforts economically viable. It is also
expected that, during the duration of the first phase, this subcomponent will create the
conditions for Indigenous peoples to more readily qualify and benefit from the Support
for Productive Activities Subcomponent. The activities benefiting indigenous should
begin during the first year of the project with, at least 26 incubators in place at its
completion.
Subcomponent (B4): Training and Extension Program to Support Productive Activities
and Business Incubators. Total US$ 1.89 million, with expected Indigenous participation
of US$0.38 million (20%). A training and extension program will be developed and
implemented to provide support to the beneficiaries of the productive subprojects and the
23
micro-business incubators. The training program will focus on technical and managerial
issues and will provide on-site teaching and training on marketing, processing, and
management. A differentiated training program will be established that focuses on the
special needs of Indigenous peoples (e.g., project conceptualization, planning
management, monitoring and accounting). Training should begin during the first year of
the project and at least 32 indigenous organizations would benefit at its completion.
Component C (Water and Sanitation) and Component D (Health): The Brazilian
Constitution together with federal law mandate that all activities related to health, water
and sanitation with regard to Indigenous peoples are the responsibility of the Federal
Government, through FUNASA.19Indigenous peoples residing in urban areas will be
direct beneficiaries of the extension and quality improvement of basic WSS and health
activities.
As a result of agreed institutional arrangements, Indigenous peoples will benefit from the
provision of training to FUNASA-financed teams responsible for WSS, basic health care,
and disease and environmental surveillance in aldeias. These teams will be invited to
participate in training programs offered in the Regional Management office. Finally, as a
result of a pilot Institutional and Technological Solutions to Rural Water Supply in nonindigenous areas, lessons would be shared with FUNASA and indigenous organizations,
to improve WSS services in Indigenous areas, adapting the pilot as culturally needed, to
be used in FUNASA investments. All Indigenous would directly benefit from: (i) the
organization of a referral system to improve access to specialty and secondary care in
Alto Solimões and Manaus, reducing the health risks associated with travel delays; and
(ii) upgraded services and improved quality at the Tabatinga Regional Hospital.20
6.3 Performance Indicators
Outcome Indicators
•
•
•
1500 families trained to improve productive quality as business management skills.
An estimated 20% will be Indigenous.
At least 26 business incubators functioning at the end of the project.
Indigenous peoples participation in fishery and fish-farming activities are at least one
fifth of the number of business supported.
19
The Bank-financed Second Disease Surveillance and Control Project (VIGISUS II; 2005-2008) contains
a US$48 million component dedicated to extending and improving basic care, disease and environmental
surveillance, nutrition, and WSS services for indigenous populations nationwide. Through VIGISUS I and
II, the Government work together with over 50 NGOs that deliver services to Indigenous peoples, resulting
in a full coverage with an integrated package of preventive and curative services and performance-based
contracting, carried out in a culturally appropriate basis. with one-third of new Community Health Agents
hires being indigenous women.
20
Indigenous patients referred by FUNASA.
24
Intermediate Outcome Indicators
•
•
•
•
•
•
•
•
100 Staff from state agencies trained and equipped to provide technical assistance to
productive and micro projects, including to Indigenous populations.
Family Health Coverage increased from 20 to 50 percent of urban populations,
including Indigenous populations residing therein.
Referral center (CRM) manages at least 70 percent of referrals of Indigenous patients.
Consultative commission under implementation.
FUNASA teams receive training on WSS, family health care and health surveillance.
Alternative organizational arrangement for improving the delivery of WSS and health
care in the reserves proposed based on studies. A proposal under discussion with
Indigenous peoples.
Differentiated training and technical assistance program for productive activities
under implementation for Indigenous peoples.
Culturally appropriate documentation prepared for Indigenous peoples.
6.4 Baseline and Monitoring and Evaluation
There is no official census or surveys in Brazil that are specifically designed to gather
information about Indigenous peoples. However, partial numbers and indicators have
been produced - by Governmental agencies (IBGE, FUNAI or FUNASA), by the
Catholic Church, and NGOs, such as Instituto Socio Ambiental (ISA), or by IBGE.21
The estimate of the Indigenous population diverges for at least two key reasons. First,
there are isolated Indigenous peoples about whom there is no information; and second,
because some individuals start to claim Indigenous identity, even when living outside
traditional Indigenous environments. In the Project area, a Baseline Survey will be
conducted during the first year of the Project, and repeated at completion, to allow the
measure of expected impacts. It will include data collection on Indigenous groups
residing in aldeias, as well as others residing in urban areas and rural agglomerations.
The monitoring and evaluation system will include performance and impact indicators
drawn from the baseline. Performance indicators will assess the effectiveness of the
inclusive management strategy of the Project, its capacity to include Indigenous peoples
in the decision- making processes, and its capacity to mobilize the local society to
achieve the Project’s development objectives. Impact indicators will assess the changes in
the lives of the project’s beneficiaries, including the environmental, human development
and social infrastructure benefits generated.
21
The IBGE 2000 Census shows that in urban areas, the average age of the indigenous population (30,1) is
substantially higher than in rural areas and indigenous parks (16.8). Literacy continued low, although increasing
between 1991 and 2000 (from less than 50 percent to 74 percent. In 1991, indigenous children aged less than ten had an
average schooling of 2.o years, while in 2001 the average boosted to 5.9 years. Obviously the fact that more and more
urban individuals consider themselves as indigenous influenced the numbers of this progress.
25
Annex A
Stakeholder Consultations
First round of consultations: Feb. 14, 2006 in Tabatinga. The following groups were in
attendance:
Indigenous Peoples:
• 200 indigenous peoples in attendance including many representatives of
indigenous organizations representing the following ethnic groups: Tikuna
(majority groups in Region), Kokama, Kambeba, Marubo, Awaé e Kaixana.
Government representatives
• Fundação de Política Indigenista do Amazonas
• Fundação Nacional do Índio – Administrações Regionais de Tabatinga e Atalaia
doNorte
• SEPLAN/UGD
• FUNASA -- Chefes dos DSEI Benjamin Constant e Vale do Javari
Indigenous organizations
• Conselho Geral das Tribos Ticuna - CGTT
• Conselho Indígena do Vale do Javari - CIVAJA
• Organizacao de Saúde do Povo Ticuna do Alto Solimões - OSPTAS
• Coordenação das Organizações Indígenas da Amazonia Brasileira - COIAB.
Non-governmental organizations
• Conselho Indigenista Missionário - CIMI
• Prelazia de Benjamin Constant (Catholic church)
• Grupo de Trabalho Amazônico – GTA (representation of Alto Solimões)
Second round of consultations: Sept 12, 2006 in Tabatinga, and include the following
groups:
Indigenous People:
Approximately 150 people from 89 “lideranças” (community groups) representing the
following ethnic groups: Tikuna (majority groups in Region), Kokama, Kambeba,
Mayoruna, Marubo, Matis, Awaé e Kaixana.; 40 indigenous women were in attendance.
Government representatives
• SEPLAN/CIAMA
• GovAm: Fundação de Política Indigenista do Amazonas FEPI
• Fundação Nacional do Índio: Administração Regional de Tabatinga;
• Fundação Nacional do Índio: Administração Regional de Atalaia do Norte.
• FUNASA – Coordenação de Tabatinga;
26
•
•
•
Prefeitura Municipal de Benjamim Constant;
Prefeitura Municipal de Atalaia do Norte.
Federal Ministry of Labor
Indigenous organizations
• Conselho Geral das Tribos Ticuna - CGTT;
• Conselho Indígena do Vale do Javari - CIVAJA;
• Organizacão de Saúde do Povo Ticuna do Alto Solimões - OSPTAS;
• Organização Geral das Mulheres Indígenas do Alto Solimões;
• Associação das Mulheres Ticuna;
• Associação dos Cocamas do Município de Amaturá;
• Organização Geral dos Professores Ticuna Bilíngüe;
• Organização Geral dos Caciques e Comunidades Indígenas do Povo Cocama;
• Comunidade Indígena Ticuna Filadélfia;
• Organização Cambeba do Alto Solimões.
• Coordenação das Organizações Indígenas da Amazonia Brasileira - COIAB.
Non-governmental organizations
• Prelazia de Benjamin Constant (Catholic Church)
27
Annex B
Consultation Report
First Round
Reunião ampliada com representantes das etnias indígenas da região.
Data: 24 de fevereiro de 2006.
Horário: 10 as 17:30 hs.
Localidade: Aldeia Filadélfia (Salão do Centro Comunitário) - Município de
Benjamim Constant.
Público: Lideranças indígenas das etnias Tikuna (público majoritário), Kokama,
kambeba, Marubo, Kanamari, Awaé e Kaixana. Aproximadamente 200 pessoas, entre
os permanentes e os circulantes no ambiente da reunião e representantes das diversas
associações indígenas do Alto Solimões.
Representantes governamentais (GovAm):
FEPI:
Sr. João Barreto
Sr. Osman Bastos
SUSAM:
UGD:
Consultor:
COIAB
Sra. Ozenete Mozzi (assessora técnica).
(liderança indígena e membro da direção da FEPI).
(liderança indígena e membro da direção da FEPI);
Sra. Roseane Couto Batista (técnica);
Sra. Ana Paula Q. de Paiva (técnica da SDS).
Villi Seilert (Marco Indígena – UGD/BIRD).
Sra. Maria Miquelina Machado (liderança indígena e membro da
direção geral).
Prefeito do Município de Tabatinga.
A reunião foi precedida de outras reuniões preparatórias entre membros da UGD e este
consultor com a equipe da FEPI. A ocorrência de pane da aeronave atrasou em cerca
de 14 horas a chegada da equipe no local do encontro, prejudicando o fluxo dos
trabalhos nos termos programados previamente.
Metodologia:
Considerando a quantidade de pessoas presentes (salão comunitário com cerca de 200
pessoas), a disposição dos presentes no recinto, bem como, do tempo exíguo
decorrente do grande atraso na viagem dos técnicos governamentais, a equipe se
adequou ao andamento dos trabalhos já em curso.
O desenvolvimento dos trabalhos seguiu um roteiro de exposição prévia, pelos
técnicos governamentais, sobre os marcos temáticos do projeto, sob interlocução de
tradutores indígenas.
Interposição de locuções com questionamentos por parte das lideranças indígenas.
Desenvolvimento dos trabalhos:
Durante o período de 04 horas, os técnicos presentes apresentaram informações
preliminares a respeito dos seguintes aspectos do projeto:
28
1. Informações gerais referentes à concepção do projeto, seus componentes e
indicativos da inserção das populações indígenas na sua elaboração e execução.
2. Destaques para as questões relacionadas ao quadro das populações indígenas no
Alto Solimões.
3. Informes sobre os indicativos da concepção dos subprojetos produtivos, formação
de quadros técnicos indígenas suprimentos da assistência técnica aos projetos nas
aldeias; As possibilidades de acesso aos subprojetos do Projeto , através das
associações e organizações não formais indígenas, seja por demanda espontânea
ou através de projetos demonstrativos.
4. Debate sobre indicativos sobre os mecanismos da participação indígena nas ações
e nos processos de gestão do Projeto .
Reiteradamente os representantes indígenas reivindicaram a necessidade de promoção
de maior debate sobre o projeto, uma vez que o encontro e a sua metodologia se
tornaram prejudicados pelo atraso e significativo número de presentes, o baixo nível de
domínio de informações sobre o projeto, como também a dificuldade lingüística uma
vez que a maioria não tinha o domínio da língua portuguesa.
Ao final do encontro, foi promovida uma reunião de público mais restrito, com
representação da assembléia geral, com o objetivo de pactuar e planejar uma nova
reunião para prevista para o mês de abril ( vindo a ocorrer no dia 12 de setembro).
Também ficou pactuado que para a nova reunião haveria de se dispor de maiores
informações a respeito das linhas e áreas de concentração do projeto, de modo a
permitir melhor visualização e maior precisão a respeito das áreas de interesse e as
questões que afetam as populações indígenas da região do Alto Solimões.
Second Round:
Reunião ampliada com representantes indígenas das etnias do Alto Solimões,
representantes governamentais e sociedade civil
Data: 12 de setembro de 2006.
Horário: 09 às 17:30 hs
Localidade: Aldeia Filadélfia (Salão Comunitário) – Município de Benjamim
Constant.
Público presente:
Indígenas:
Cerca de 150 pessoas, sendo 89 lideranças das etnias Tikuna
(majoritária), Kokama, Kambeba, Mayoruna, Marubo, Matis,
Awaé e Kaixana. (40 mulheres). (vide lista de presença)
Representantes do GovAm:
Gerência da UGD:
Sr. Laércio Cavalcante (coordenador da UGD);
Sr. Deolindo Dantas (Técnico da SEPLAN);
Sr. Geraldo Couto Araújo (Técnico SEPLAN);
29
Sr. Osman A. F. Bastos (Liderança indígena Tikuna e técnico
da FEPI/SDS);
Sra. Ana Paula Q. Paiva (Técnica SDS);
Sra. Maria Tereza S. Pereira (Técnica SEPROR);
Sra. Roseane Couto Batista (Técnica SUSAM);
Sra. Francisca Claudia de O. Andrade (Técnica SEPLAN).
COIAB:
Sr. Edilson Martins Melgueiro Baniwa (Coordenador do
departamento de Projetos da Coiab – Manaus);
Outros:
Representante da Prelazia de Benjamim Constant;
Prefeito do Município de Atalaia do Norte;
Representante do escritório da FUNASA em Tabatinga;
Representante da FUNAI de Atalaia do Norte;
Técnicos do Ministério do Trabalho (Projeto Economia
Solidária);
Metodologia e processo:
Às 09:00 h os trabalhos foram conduzidos sob a ciceronia do cacique da comunidade
de Filadélfia, Sr. Hamilton Horácio Vasquez, que abriu os trabalhos e procedeu a
apresentação dos presentes indígenas. Um a um os 89 líderes indígenas se
apresentaram em língua mãe.
Em discussão prévia foi definida e pactuada a programação e a metodologia dos
trabalhos: exposição, trabalhos grupais, comentários e debates.
10:05 h: O Sr. Laércio Cavalcante, coordenador da UGD, passou a proceder a
apresentação do escopo geral do Projeto, interagindo com os seus técnicos assistentes,
com a tradução para a língua Tikuna pelo Sr. Osman Bastos. (tempo duração: 01:20
hora).
11:30 h: Villi F. Seilert, consultor para o Marco Indígena, fez a exposição do seu
trabalho, com destaque para o marco conceitual, legal e os parâmetros da participação
indígena no Projeto. Apresentação intercalada com tradução para a língua Tikuna pelo
Sr. Osman Bastos. (tempo duração: 01:20 hora).
12:40 hs Intervalo para almoço.
(grupo fez apresentação de ritual de dança Tikuna).
13:30 h: Retomada dos trabalhos com debate prévio e apresentação de destaques para
os trabalhos de grupos.
14:00h: Trabalhos grupais: O público se distribuiu por 07 grupos de trabalhos
mantidos no mesmo ambiente de trabalho, os quais em regime de disciplina circular
promoveram debates e sugestões orientadas sob as seguintes questões:
30
i.
ii.
iii.
Quais as questões que considera destacáveis no projeto pela sua importância
para os indígenas?
Quais as questões que considera desnecessárias ao projeto?
Quais as sugestões que faria ao Projeto para melhorá-lo?
Os grupos passaram a trabalhar sob a assistência dos técnicos presentes, disposto em
grupos circulares.
16:00 h: Apresentação dos resultados dos grupos:
Apresentação por relatores de cada Grupo: (vide recomendações abaixo)
17:30 h: encerramento dos trabalhos.
Grupo 01 – Atalaia do Norte
Relator: Sr. Manoel Barbosa
Grupo 02 – Santo Antônio do Içá
Relator: Sr. Darci Ferreira
Grupo 03 – Amaturá
Relator: Sr. José Evilázio
Grupo 04 – Tabatinga
Relator: Sr. Alfredo
Grupo 05: São Paulo de Olivença.
Relatora; Sra. Lenita
Grupo 06 - Benjamim Constant
Relatora: Sra. Maria Alcenira
Grupo 07 – Benjamim Constant
Relator: Sr. Sansão fernandes Bastos
31
Annex C:
Painel fotográfico:
Encontros prévios com entidades governamentais e não-governamentais em
Manaus.
Janeiro e fevereiro de 2006.
32
Pré-consulta na Aldeia Filadélfia, Benjamim Constant.
24 de março de 2006
33
Consulta Indígena na Aldeia Filadélfia, Benjamim Constant.
12 de setembro de 2006.
34
35
36
37
Annex D
Institutional Arrangements For Permanent Consultative Committee In Alto Solimões
SDS/FEPI
Aldeias
A
SEPLAN
CTrip
Aldeias
A
A
A
COIAB
A
ONGs
A
A
A
A
A
CTec
FUNAI
MPF
FUNASA
38
Annex E
Indigenous Peoples, Health, Water and Sanitation
Disease Surveillance and Control Project (three-phase APL)
For Indigenous peoples in Federal reserves, the Federal mandate is implemented through the
VIGISUS program. VIGISUS II objectives are two-fold to: (a) reduce mortality and morbidity
from communicable and non-communicable diseases and exposure to risk factors associated with
ill health, and (b) improve the health outcomes of especially vulnerable groups including
Indigenous populations and Quilombo (descendents of slaves) communities. This is being
currently achieved by: (a) continuing to strengthen the national public health surveillance and
disease control system for communicable diseases and environmental health, particularly in states
and municipalities; (b) improving and broadening the scope of public health surveillance and
disease control, to include non-communicable diseases, injuries and maternal health, and the
surveillance and prevention of risk factors; (c) expanding access to and utilization of health
services to indigenous populations; (d) improving the effectiveness of indigenous health care
through institutional development, quality enhancement and cultural appropriateness; and (e)
extending water and sanitation services to rural, Quilombo communities.
VIGISUS II finances a slice of two large government programs: Epidemiology and Disease
Control and Indigenous Health. The Bank’s value added relates more to contributions of technical
know-how and experience related to health surveillance and disease control practices,
institutional capacity building for health surveillance at sub-national levels, organizational
arrangements and financial instruments to improve quality and effectiveness of Indigenous health
services, establishment of a community-driven development initiatives and the introduction of a
performance-based financing scheme for supporting disease surveillance and control activities in
states and municipalities.
Through VIGISUS I, the first phase APL, the Bank and the Governmen acquired considerable
technical expertise in strengthening disease surveillance and control systems at both regional and
central levels, working together with over 50 NGOs that delivery of services to Indigenous
peoples communities. Key results of VIGISUS II include (a) full coverage of Indigenous
populations with an integrated package of preventive and curative services; (b) all providers
under contract with FUNASA operating under performance-based contracting arrangements; (c)
protocols for mother-infant care implemented in all Special Indigenous Indigenous peoples
Sanitary Districts (DSEI). Among others, measurable results expected for Indigenous peoples
include (a) 50 percent of Indigenous pregnant women in targeted districts receive at least three
prenatal consultations according to FUNASA protocols (the proportion has reached 67 percent in
2005); (b)100 percent of Indigenous mothers with children less than two years of age identified
with inadequate weight gain receive nutrition education and counseling on feeding practices that
are also culturally appropriate; (c) all modules of Indigenous information system are functioning
in all DSEIs; (d) 70 percent of health teams in targeted DSEIs providing integrated, benchmark
service plan; (e) one-third of new Community Health Agents hires are ndigenous women; and (f)
Indigenous nutritional surveillance system fully operational in 10 DSEIs. Therefore, through
financial support to FUNASA to carry out its constitutional mandate on Indigenous health care,
support for these populations as well as to quilombolas, is covered by another Bank financed
operation with the same Ministry of Health.
Although there is still room for improvement due to delays in approving budget, as December
2005, VIGISUS has made some substantial progresses with regard to the Indigenous population,
among others: (a) compared to baseline (40 percent), in December 2005 50 percent of Indigenous
peoples were covered with a complete vaccination regime; (b) the proportion of Indigenous
39
women receiving at least three pre-natal consultation had already reached, in 2005, 67 percent; (c)
50 percent of NGOs were performing under performance-based contracts.
The eleven DSEIS with more malaria incidence are receiving laboratories apt to process more
complex tasks, including serology of leishmaniose, dengue and other endemic diseases. At the
same time, the carrying out of the first nutrition survey in Indigenous areas will make possible to
diagnose the incidence of anemia, which is the most recurrent disease among Indigenous peoples
in Brazil. VIGISUS is financing this survey. Finally, five DSEIs (Interior South, Mato Grosso do
Sul, East Roraima Coastal South and Yanomani) were defined as priorities for cervical cancer
preventive campaigns for Indigenous women.
In urban areas, FUNASA is addressing issues of Indigenous health FUNASA under the Federal
Family Health Program (PSF). Since its creation in 1994, the PSF brought primary health closer
to households, shifting from the traditional static health center model (a primary health facility
typically staffed with a pediatrician, an obstetrician and an adult clinician plus nurses and
secretarial personnel) to family health teams responsible for outreach as well as passive services.
The program’s beneficiaries are all residents of the unit catchment areas (referred to as residents).
The rationale is to offer a type of health care that assigns priority to preventing disease and
promoting health, in addition to providing curative care, delivered either at health facilities or,
whenever necessary, through home visits. Indigenous peoples living in municipal areas are
covered through this program. In the Project’s area which is made up of small municipalities, this
Federal program is particularly appropriate,.as Indigenous peoples tend to live in close
neighborhoods.
40
Annex F
Summary of Institutional Arrangements to Implement the Sustainable Component for Indigenous Peoples
Estágio
Ações & Atores
1. Subprojetos produtivos demonstrativos (oferta e gestão governamental): Projetos de processamento e comercialização de pescado.
Beneficiários
1.1. Preparação dos
meios
institucionais/
técnicos
e
Disseminação
1.2. preparação dos
subprojetos produtivos
demonstrativos
1.3. Aprovação dos
subprojetos
demonstrativos (versão
final)
1.4. Contratação dos
subprojetos produtivos
demonstrativos
1.5. Execução
1.6. Monitoramento
Câmaras de deliberação e gestão
Instituições cooperantes ações
Instituição Executora
– ações
SDS/FEPI
Organizações jurídicas
(associações indígenas)
+ Orgs. não- jurídicas (conselhos
aldeias, pessoas de notável saber,
grupos de mulheres, artesãos,
educadores, agentes de saúde,
entre outros)
Reuniões comunitárias pela CT
(01 em cada pólo – B. Constant e
Atalaia Norte)
Indicação de 01 membro titular e
01 suplente para o CD
Conselho Deliberativo - (CD)
(bipartite
–
GovAm
e
organizações indígenas)
Câmara Técnica – (CT) =
(técnicos governamentais +
consultor/es não
governamentais).
SDS/FEPI, FUNAI, FUNASA,
COIAB, MDA/DFAM,
Prefeituras, MPF.
Parâmetros e regras para os
subprojetos
produtivos
demonstrativos
Aprovação
de
manuais
informativos e operativos
Ato normativo de instituição
Elaboração
dos
materiais
informativos e operativos dos
subprojetos
produtivos
demonstrativos
Indicação de 01 representante
para o CD.
Termo de Cooperação técnica
interinstitucional
Definição das áreas de aplicação
dos projetos
-
-
Análise,
aprovação
e
autorização da contratação dos
subprojetos
-
-
Formação de Conselhos Gestores
(CD) para acompanhamento da
execução dos subprojetos
demonstrativos (01 por projeto)
Reuniões dos CD (01 por
trimestre)
consultor/es
Elaboração
Revisão dos subprojetos produtivos
demonstrativos
-
-
-
-
-
-
-
Participação nos CD
Assistência técnica contínua
aos subprojetos
Implementação dos os
(04) subprojetos com
apoio técnico da CT.
Visitas técnicas de monitoramento
Apoio técnico na elaboração dos
relatórios intermediários
Acompanhamento das reuniões
dos CD
Elaboração de relatórios
executivos
intermediários
dos
subprojetos
Produção de documentação
administrativa de contratação
Análise e recomendações aos
relatórios intermediários dos
subprojetos (semestrais).
Contrata
para CT
41
1.7. Avaliação
Seminário final de avaliação dos subprojetos demonstrativos
-
Estágio
Relatórios finais de
avaliação
dos
subprojetos
demonstrativos,
com
indicadores qualitativos
e quantitativos.
Ações & Atores
2. Subprojetos produtivos (demanda comunitária espontânea, conforme tipologias elegíveis).
Beneficiários
Câmaras de deliberação e gestão
Instituições cooperantes - ações
Organizações jurídicas (associações
SDS/FEPI, FUNAI, FUNASA,
Conselho Deliberativo - (CD) Câmara Técnica – (CT) = (03
(tripartite)
técnicos governamentais + 02
indígenas)
COIAB, MDA/DFAM, Prefeituras,
consultores não governamentais.
+ Orgs. não- jurídicas (conselhos
MPF.
aldeias, pessoas de notável saber,
grupos de mulheres, artesãos,
educadores, agentes de saúde, entre
outros)
2.1. Preparação dos meios Visitas técnicas CT
Definição de regras para
Regras de funcionamento
Indicação de 01 representante para
jurídico-institucionais,
Indicação de 01 membro titular e 01
apresentação dos subprojetos Apoio técnico para instalação de
CD.
técnicos e disseminação.
suplente para o CD
produtivos comunitários
escritório-oficina de gestão e
Coordenação FEPI
Definição de linhas de pré-propostas de espontâneos
administração de subprojetos
Parceria e interveniência nos
subprojetos produtivos comunitários. Aprovação de manuais
(“aprender-fazendo”).
subprojetos produtivos espontâneos
Reuniões comunitárias
operativos
Elaboração dos manuais informativos Termo de Cooperação Técnica
(01 por etnia)
e operacionais
Oficina para capacitação para projetos
comunitários
2.2. Definição dos
Reuniões comunitárias
Análise dos subprojetos
Assistência técnica aos
Acompanhamento e apoio técnico
subprojetos produtivos
(01 por município – pólo)
produtivos espontâneos (pré- proponente/executores na concepção e
espontâneos (pré-propostas) Base para pré-propostas de subprojetos proposta)
na elaboração dos subprojetos
produtivos espontâneos.
produtivos espontâneos
Aprovação dos subprojetos
2.3. Aprovação subprojetos
Autorização da contratação
produtivos
espontâneos
(versão final)
2.4. Contratação
Oficinas preparatórias dos atos
Assistência
técnica
aos
proponentes/executores nos processos
administrativos (Planos de
administrativos da contratação
trabalhos/contratos/convênios)
2.5. Execução
Execução dos subprojetos produtivos
Assistência técnica e extensão
espontâneos.
contínua durante o período de
execução dos projetos
2.6. Monitoramento
Constituição dos Conselhos Gestores
Analisa relatórios intermediários dos
(CG) dos subprojetos produtivos (01
subprojetos (semestrais).
por projeto)
Instituição
Executora – ações
Organizações,
associações indígenas e
Ongs parceiras
Contratação + 2
consultores para CT
Instalação de escritório
de apoio no Alto
Solimões para
assistência e
acompanhamento dos
subprojetos produtivos
Elaboração das prépropostas dos
subprojetos produtivos
espontâneos
-
-
Acompanhamento das
reuniões dos CG
Relatórios de avaliação
42
Reuniões dos CG
2.7. Avaliação
Oficinas de avaliação dos subprojetos
Estágio
Relatórios finais de
demonstrativos,
com
quantitativos.
avaliação dos subprojetos
indicadores
qualitativos
e
Ações & Atores
3. Subprojeto de capacitação técnica para extensionistas indígenas em etnodesenvolvimento e gestão de projetos produtivos.
Beneficiários
Câmaras de deliberação e gestão
Instituições cooperantes - ações
Unidade
Executora
FEPI + UEA
Organizações jurídicas (associações
Conselho Gestor (CG)
Equipe técnico-pedagógica:
SDS/FEPI, FUNAI, FUNASA,
COIAB, MMA/PDPI, MDA/DFAM,
indígenas)
Técnicos governamentais + consultor
Prefeituras, MPF.
+ Orgs. não- jurídicas (conselhos aldeias,
especialista em educação indígena
pessoas de notável saber, grupos de
mulheres, artesãos, educadores, agentes de
saúde, entre outros)
Técnicos de ONG
Técnicos Governamentais
3.1. Preparação dos meios Indicação de 01 representante indígena por Ato governamental
Indicam 01 representante para o
Indicam técnicos para participar dos Contratação de
institucionais e técnicos etnia para o Conselho Gestor
Formulação da base da
Conselho Gestor
cursos (capacitandos)
consultores para Equipe
proposta técnico-pedagógica Coordenado por GovAM/SDS/FEPI
Acompanhamento do CG e da
Técnico-pedagógica.
Aprovação do Termo de
Elaboração de minuta do
Equipe Técnico- pedagógica
Cooperação Técnica
Termo de Cooperação
Técnica entre as instituições
do GovAM (SDS/FEPI e
UEA) e órgãos federais.
(Funai e FUNASA).
3.2. Disseminação
Reuniões comunitárias
Discussão e aprovação da
Elaboração de proposta técnica e
(01 por pólo – B. Constant e Atalaia Norte) proposta técnico-pedagógica material pedagógico;
do programa de formação de Elaboração do Plano Executivo
extensionistas
3.3. Preparação Executiva Seleção dos líderes
Aprovação do plano
Participação no Conselho Gestor
executivo do programa de
formação
3.4. Execução
Supervisão da implantação do Assistência técnica na execução da grade
Implementação do curso
curso
curricular
de capacitação
3.5. Monitoramento
Aplicação dos instrumentos de avaliação, inclusive reuniões do CG e as comunidades.
Relatórios intermediários
3.6. Avaliação
Oficinas de avaliação participativa
Relatório final
43
44