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Brazil's twenty-six states and the Federal District (Distrito Federal) are divided conventionally into five regions--North (Norte), Northeast, Southeast (Sudeste), South, and Center-West (see fig. 4). In 1996 there were 5,581 municipalities (municípios ), which have municipal governments. Many municipalities, which are comparable to United States counties, are in turn divided into districts (distritos ), which do not have political or administrative autonomy. In 1995 there were 9,274 districts. All municipal and district seats, regardless of size, are considered officially to be urban. For purely statistical purposes, the municipalities were grouped in 1990 into 559 micro-regions, which in turn constituted 136 meso-regions. This grouping modified the previous micro-regional division established in 1968, a division that was used to present census data for 1970, 1975, 1980, and 1985.
Each of the five major regions has a distinct ecosystem. Administrative boundaries do not necessarily coincide with ecological boundaries, however. In addition to differences in physical environment, patterns of economic activity and population settlement vary widely among the regions. The principal ecological characteristics of each of the five major regions, as well as their principal socioeconomic and demographic features, are summarized below.
The equatorial North, also known as the Amazon or Amazônia, includes, from west to east, the states of Rondônia, Acre, Amazonas, Roraima, Pará, Amapá, and, as of 1988, Tocantins (created from the northern part of Goiás State, which is situated in the Center-West). Rondônia, previously a federal territory, became a state in 1986. The former federal territories of Roraima and Amapá were raised to statehood in 1988.
With 3,869,638 square kilometers, the North is the country's largest region, covering 45.3 percent of the national territory (see table 3, Appendix). The region's principal biome is the humid tropical forest, also known as the rain forest, home to some of the planet's richest biological diversity. The North has served as a source of forest products ranging from "backlands drugs" (such as sarsaparilla, cocoa, cinnamon, and turtle butter) in the colonial period to rubber and Brazil nuts in more recent times. In the mid-twentieth century, nonforest products from mining, farming, and livestock-raising became more important, and in the 1980s the lumber industry boomed. In 1990, 6.6 percent of the region's territory was considered altered by anthropic (man-made) action, with state levels varying from 0.9 percent in Amapá to 14.0 percent in Rondônia.
In 1996 the North had 11.1 million inhabitants, only 7 percent of the national total. However, its share of Brazil's total had grown rapidly in the 1970s and early 1980s as a result of interregional migration, as well as high rates of natural increase. The largest population concentrations are in eastern Pará State and in Rondônia. The major cities are Belém and Santarém in Pará, and Manaus in Amazonas. Living standards are below the national average. The highest per capita income, US$2,888, in the region in 1994, was in Amazonas, while the lowest, US$901, was in Tocantins.
The nine states that make up the Northeast are Alagoas, Bahia, Ceará, Maranhão, Paraíba, Pernambuco, Piauí, Rio Grande do Norte, and Sergipe. The former federal territory of Fernando de Noronha was incorporated into Pernambuco State in 1988. For planning or ecological purposes, Maranhão west of 44° W longitude, most of which until recently was covered with "pre-Amazon" forest (that is, transition from the cerrado or caatinga to tropical forest), is often included in the Amazon region.
The Northeast, with 1,561,178 square kilometers, covers 18.3 percent of the national territory. Its principal biome is the semiarid caatinga region, which is subject to prolonged periodic droughts. By the 1990s, this region utilized extensive irrigation. In an area known as the forest zone (zona da mata ), the Atlantic Forest, now almost entirely gone, once stretched along the coastline as far north as Rio Grande do Norte. Sugar plantations established there in colonial times persisted for centuries. Between the mata and the sertão lies a transition zone called the agreste , an area of mixed farming. In 1988-89, 46.3 percent of the region had been subjected to anthropic activity, ranging from a low of 10.8 percent in Maranhão to a high of 77.2 percent in Alagoas.
Because its high rates of natural increase offset heavy out-migration, the Northeast's large share of the country's total population declined only slightly during the twentieth century. In 1996 the region had 45 million inhabitants, 28 percent of Brazil's total population. The population is densest along the coast, where eight of the nine state capitals are located, but is also spread throughout the interior. The major cities are Salvador, in Bahia; Recife, in Pernambuco; and Fortaleza, in Ceará. The region has the country's largest concentration of rural population, and its living standards are the lowest in Brazil. In 1994 Piauí had the lowest per capita income in the region and the country, only US$835, while Sergipe had the highest average income in the region, with US$1,958.
The Southeast consists of the four states of Espírito Santo, Minas Gerais, Rio de Janeiro, and São Paulo. Its total area of 927,286 square kilometers corresponds to 10.9 percent of the national territory. The region has the largest share of the country's population, 63 million in 1991, or 39 percent of the national total, primarily as a result of internal migration since the mid-nineteenth century until the 1980s. In addition to a dense urban network, it contains the megacities of São Paulo and Rio de Janeiro, which in 1991 had 18.7 million and 11.7 million inhabitants in their metropolitan areas, respectively. The region combines the highest living standards in Brazil with pockets of urban poverty. In 1994 São Paulo boasted an average income of US$4,666, while Minas Gerais reported only US$2,833.
Originally, the principal biome in the Southeast was the Atlantic Forest, but by 1990 less than 10 percent of the original forest cover remained as a result of clearing for farming, ranching, and charcoal making. Anthropic activity had altered 79.5 percent of the region, ranging from 75 percent in Minas Gerais to 91.1 percent in Espírito Santo. The region has most of Brazil's industrial production. The state of São Paulo alone accounts for half of the country's industries. Agriculture, also very strong, has diversified and now uses modern technology.
The three states in the temperate South--Paraná, Rio Grande do Sul, and Santa Catarina--cover 577,214 square kilometers, or 6.8 percent of the national territory. The population of the South in 1991 was 23.1 million, or 14 percent of the country's total. The region is almost as densely settled as the Southeast, but the population is more concentrated along the coast. The major cities are Curitiba and Porto Alegre. The inhabitants of the South enjoy relatively high living standards. Because of its industry and agriculture, Paraná had the highest average income in 1994, US$3,674, while Santa Catarina, a land of small farmers and small industries, had slightly less, US$3,405.
In addition to the Atlantic Forest and pine woods, much of which were cleared in the post-World War II period, the South contains pampa grasslands, similar to those of Argentina and Uruguay, in the extreme south. In 1982, 83.5 percent of the region had been altered by anthropic activity, with the highest level (89.7 percent) in Rio Grande do Sul, and the lowest (66.7 percent) in Santa Catarina. Agriculture--much of which, such as rice production, is carried out by small farmers--has high levels of productivity. There are also some important industries.
The Center-West consists of the states of Goiás, Mato Grosso, and Mato Grosso do Sul (separated from Mato Grosso in 1979), as well as the Federal District, site of Brasília, the national capital. Until 1988 Goiás State included the area that then became the state of Tocantins in the North.
The Center-West has 1,612,077 square kilometers and covers 18.9 percent of the national territory. Its main biome is the cerrado , the tropical savanna in which natural grassland is partly covered with twisted shrubs and small trees. The cerrado was used for low-density cattle-raising in the past but is now also used for soybean production. There are gallery forests along the rivers and streams and some larger areas of forest, most of which have been cleared for farming and livestock. In the north, the cerrado blends into tropical forest. It also includes the Pantanal wetlands in the west, known for their wildlife, especially aquatic birds and caymans. In the early 1980s, 33.6 percent of the region had been altered by anthropic activities, with a low of 9.3 percent in Mato Grosso and a high of 72.9 percent in Goiás (not including Tocantins). In 1996 the Center-West region had 10.2 million inhabitants, or 6 percent of Brazil's total population. The average density is low, with concentrations in and around the cities of Brasília, Goiânia, Campo Grande, and Cuiabá. Living standards are below the national average. In 1994 they were highest in the Federal District, with per capita income of US$7,089 (the highest in the nation), and lowest in Mato Grosso, with US$2,268.
The environmental problem that attracted most international attention in Brazil in the 1980s was undoubtedly deforestation in the Amazon. Of all Latin American countries, Brazil still has the largest portion (66 percent) of its territory covered by forests, but clearing and burning in the Amazon proceeded at alarming rates in the 1970s and 1980s. Most of the clearing resulted from the activities of ranchers, including large corporate operations, and a smaller portion resulted from slash-and-burn techniques used by small farmers.
Deforestation in the Amazon declined from levels averaging 22,000 square kilometers per year during the 1970-88 period to about 11,000 square kilometers per year between 1988 and 1991. There was controversy about the levels in the mid-1990s. Knowledgeable experts placed the level of accumulated deforestation at about 15 percent in 1996, as opposed to 12 percent in 1991. Although unseasonal rainfall patterns may explain some year-to-year variation, the basic cause for the decline in deforestation after 1987 was economic crisis. There was insufficient capital, credit, or incentive for large-scale clearing, as well as insufficient public investment to stimulate new migration. Migration to the Amazon also fell quickly in the late 1980s. More effective enforcement of government regulations and bad publicity for large offenders, both of which were associated with changes in public opinion about the environment, also played a part. Technical changes involved in the transition from horizontal expansion of agriculture to increasing productivity also accounted for decreasing rates of deforestation.
Desertification, another important environmental problem in Brazil, only received international attention following the United Nations Conference on the Environment and Development, also known as the Earth Summit, held in Rio de Janeiro in June 1992. Desertification means that the soils and vegetation of drylands are severely degraded, not necessarily that land turns into desert. In the early 1990s, it became evident that the semiarid caatinga ecosystem of the Northeast was losing its natural vegetation through clearing and that the zone was therefore running the risk of becoming even more arid, as was occurring also in some other regions.
In areas where agriculture is more intense and developed, there are serious problems of soil erosion, siltation and sedimentation of streams and rivers, and pollution with pesticides. In parts of the savannas, where irrigated soybean production expanded in the 1980s, the water table has been affected. Expansion of pastures for cattle-raising has reduced natural biodiversity in the savannas. Swine effluents constitute a serious environmental problem in Santa Catarina in the South.
In urban areas, at least in the largest cities, levels of air pollution and congestion are typical of, or worse than, those found in cities in developed countries. At the same time, however, basic environmental problems related to the lack of sanitation, which developed countries solved long ago, persist in Brazil. These problems are sometimes worse in middle-sized and small cities than in large cities, which have more resources to deal with them. Environmental problems of cities and towns finally began to receive greater attention by society and the government in the 1990s.
According to many critics, the economic crisis in the 1980s worsened environmental degradation in Brazil because it led to overexploitation of natural resources, stimulated settlement in fragile lands in both rural and urban areas, and weakened environmental protection. At the same time, however, the lower level of economic activity may have reduced pressure on the environment, such as the aforementioned decreased level of investment in large-scale clearing in the Amazon. That pressure could increase if economic growth accelerates, especially if consumption patterns remain unchanged and more sustainable forms of production are not found.
In Brazil public policies regarding the environment are generally advanced, although their implementation and the enforcement of environmental laws have been far from ideal. Laws regarding forests, water, and wildlife have been in effect since the 1930s. Brazil achieved significant institutional advances in environmental policy design and implementation after the Stockholm Conference on the Environment in 1972. Specialized environmental agencies were organized at the federal level and in some states, and many national parks and reserves were established. By 1992 Brazil had established thirty-four national parks and fifty-six biological reserves (see fig. 5). In 1981 the National Environment Policy was defined, and the National System for the Environment (Sistema Nacional do Meio Ambiente--Sisnama) was created, with the National Environmental Council (Conselho Nacional do Meio Ambiente--Conama) at its apex, municipal councils at its base, and state-level councils in between. In addition to government authorities, all of these councils include representatives of civil society.
The 1988 constitution incorporates environmental precepts that are advanced compared with those of most other countries. At that time, the Chamber of Deputies (Câmara dos Deputados) established its permanent Commission for Defense of the Consumer, the Environment, and Minorities. In 1989 the creation of the Brazilian Institute for the Environment and Renewable Natural Resources (Instituto Brasileiro do Meio Ambiente e dos Recursos Naturais Renováveis--Ibama) joined together the federal environment secretariat and the federal agencies specializing in forestry, rubber, and fisheries. In 1990 the administration of Fernando Collor de Mello (president, 1990-92) appointed the well-known environmentalist José Lutzemberger as secretary of the environment and took firm positions on the environment and on Indian lands. In 1992 Brazil played a key role at the Earth Summit, not only as its host but also as negotiator on sustainable development agreements, including the conventions on climate and biodiversity. The Ministry of Environment was created in late 1992, after President Collor had left office. In August 1993, it became the Ministry of Environment and the Legal Amazon and took a more pragmatic approach than had the combative Lutzemberger. However, because of turnover in its leadership, a poorly defined mandate, and lack of funds, its role and impact were limited. In 1995 its mandate and name were expanded to include water resources--the Ministry of Environment, Hydraulic Resources, and the Legal Amazon--it began a process of restructuring to meet its mandate of "shared management of the sustainable use of natural resources." In 1997 the Commission on Policies for Sustainable Development and Agenda 21 began to function under the aegis of the Civil Household. One of its main tasks was to prepare Agenda 21 (a plan for the twenty-first century) for Brazil and to stimulate preparation of state and local agendas.
Institutional development at the official level was accompanied and in part stimulated by the growth, wide diffusion, and growing professional development of nongovernmental organizations (NGOs) dedicated to environmental and socio-environmental causes. The hundreds of NGOs throughout Brazil produce documents containing both useful information and passionate criticisms. Among the Brazilian environmental NGOs, the most visible are SOS Atlantic Forest (SOS Mata Atlântica), the Social-Environmental Institute (Instituto Sócio-Ambiental--ISA), the Pro-Nature Foundation (Fundação Pró-Natureza--Funatura), and the Amazon Working Group (Grupo de Trabalho Amazônico--GTA). The Brazilian Forum of NGOs and Social Movements for the Environment and Development and the Brazilian Association of Nongovernmental Organizations (Associacão Brasileira de Organizações Não-Governamentais--ABONG) are national networks, and there are various regional and thematic networks as well. The main international environmental NGOs that have offices or affiliates in Brazil are the World Wildlife Fund (WWF), Conservation International (CI), and Nature Conservancy.
Especially after the events of the late 1980s, international organizations and developed countries have allocated significant resources for the environmental sector in Brazil. In 1992 environmental projects worth about US$6.8 million were identified, with US$2.6 in counterpart funds (funds provided by the Brazilian government). More than 70 percent of the total value was for sanitation, urban pollution control, and other urban environmental projects. Thus, the allocation of resources did not accord with the common belief that funding was influenced unduly by alarmist views on deforestation in the Amazon.
Among the specific environmental projects with international support, the most important was the National Environmental Plan (Plano Nacional do Meio Ambiente--PNMA), which received a US$117 million loan from the World Bank (see Glossary). The National Environmental Fund (Fundo Nacional do Meio Ambiente--FNMA), in addition to budgetary funds, received US$20 million from the Inter-American Development Bank (see Glossary) to finance the environmental activities of NGOs and small municipal governments. The Pilot Program for the Conservation of the Brazilian Rain Forests (Programa Piloto para a Proteção das Florestas Tropicais do Brasil--PPG-7) was supported by the world's seven richest countries (the so-called G-7) and the European Community (see Glossary), which allocated US$258 million for projects in the Amazon and Atlantic Forest regions. The Global Environment Facility (GEF), created in 1990, set aside US$30 million for Brazil, part of which is managed by a national fund called Funbio. GEF also established a small grants program for NGOs, which focused on the cerrado during its pilot phase. The World Bank also made loans for environmental and natural resource management in Rondônia and Mato Grosso, in part to correct environmental and social problems that had been created by the World Bank-funded development of the northwest corridor in the 1980s.
Despite favorable laws, promising institutional arrangements, and external funding, the government has not, on the whole, been effective in controlling damage to the environment. This failure is only in small measure because of the opposition of anti-environmental groups. In greater part, it can be attributed to the traditional separation between official rhetoric and actual practice in Brazil. It is also related to general problems of governance, fiscal crisis, and lingering doubts about appropriate tradeoffs between the environment and development. Some of the most effective governmental action in the environmental area has occurred at the state and local levels in the most developed states and has involved NGOs. In 1994 the PNMA began to stress decentralization and strengthening of state environmental agencies, a tendency that subsequently gained momentum.
Although 90 percent of the country is within the tropical zone, the climate of Brazil varies considerably from the mostly tropical North (the equator traverses the mouth of the Amazon) to temperate zones below the Tropic of Capricorn (23°27' S latitude), which crosses the country at the latitude of the city of São Paulo. Brazil has five climatic regions--equatorial, tropical, semiarid, highland tropical, and subtropical.
Temperatures along the equator are high, averaging above 25°C, but not reaching the summer extremes of up to 40°C in the temperate zones. There is little seasonal variation near the equator, although at times it can get cool enough for wearing a jacket, especially in the rain. At the country's other extreme, there are frosts south of the Tropic of Capricorn during the winter (June-August), and in some years there is snow in the mountainous areas, such as Rio Grande do Sul and Santa Catarina. Temperatures in the cities of São Paulo, Belo Horizonte, and Brasília are moderate (usually between 15°C and 30°C), despite their relatively low latitude, because of their elevation of approximately 1,000 meters. Rio de Janeiro, Recife, and Salvador on the coast have warm climates, with average temperatures ranging from 23°C to 27°C, but enjoy constant trade winds. The southern cities of Porto Alegre and Curitiba have a subtropical climate similar to that in parts of the United States and Europe, and temperatures can fall below freezing in winter.
Precipitation levels vary widely. Most of Brazil has moderate rainfall of between 1,000 and 1,500 millimeters a year, with most of the rain falling in the summer (between December and April) south of the Equator. The Amazon region is notoriously humid, with rainfall generally more than 2,000 millimeters per year and reaching as high as 3,000 millimeters in parts of the western Amazon and near Belém. It is less widely known that, despite high annual precipitation, the Amazon rain forest has a three- to five-month dry season, the timing of which varies according to location north or south of the equator.
High and relatively regular levels of precipitation in the Amazon contrast sharply with the dryness of the semiarid Northeast, where rainfall is scarce and there are severe droughts in cycles averaging seven years. The Northeast is the driest part of the country. The region also constitutes the hottest part of Brazil, where during the dry season between May and November, temperatures of more than 38°C have been recorded. However, the sertão , a region of semidesert vegetation used primarily for low-density ranching, turns green when there is rain. Most of the Center-West has 1,500 to 2,000 millimeters of rain per year, with a pronounced dry season in the middle of the year, while the South and most of the Atlantic coast as far north as Salvador, Bahia, in the Northeast, have similar amounts of rainfall without a distinct dry season.
SOURCES: Library of Congress Country Studies/Area Handbook