Latin America moves ahead
Mexico can’t see the wood for the trees
An indigenous community in Mexico wants to drop protected conservation status for its area because it feels it has lost real control of its land and way of life. Concern about carbon emissions is blinding policy makers to the failures of some of their conservation policies
by Anne Vigna
“That’s the one,” said Arcenio Osorio, pointing at the huge mountain that towers over the village of Santiago Lachiguiri, in Oaxaca state, part of southwestern Mexico’s Isthmus of Tehuantepec. “It provides water to all the towns in the area, and to us, the Zapotec people, it’s sacred. That’s the mountain we wanted official protection for.” Osorio is secretary of the community assembly, a traditional elected body that represents the people of the village. The 8,000 inhabitants of the county have always been involved in the conservation of their mountain, the Cerro de las Flores (“Mountain of the Flowers”). An official from the National Commission for Protected Natural Areas (Conanp) told me it is classed as an area of “exceptionally high biodiversity” due to the “excellent state of preservation of its ecosystem”.
In the valleys at the foot of the mountain, they grow organic coffee. The slopes are covered with little woods and patches of maize, but after several hours of walking and clambering you come to forests of pine trees, under which grow hundreds of species of wild flowers. Because of its altitude (2,200 metres) and the rock it is made of, the mountain acts as a kind of sponge, which stores the greater part of the area’s water supply.
Cerro de las Flores is a textbook case of conservation policy. In August 2003 it became Mexico’s first “voluntary community preserved area”. My source said Conanp defines this as an area protected by a “conservation mechanism put in place at the request of the local community, that protects the area’s natural riches and offers sustainable economic alternatives to its inhabitants”. According to Conanp, 207,887 hectares of land are managed in this way in Mexico. But at the meeting of the community assembly in January 2011, the people of Santiago Lachiguiri voted to drop the area’s “preserved area” status. “The government deceived us,” explained Osorio. “We are still the legitimate owners of the land, but we have lost control of it.”
Osorio was clearly irritated, and with some justification. The village’s land commissioner, Enan Eduardo, explained his choice of words: “We discovered that the certification of the 1,400 hectares of Cerro de las Flores entailed a conservation period of 30 years, rather than the five years we had agreed on when we voted.” Did that imply deception, and loss of control? “The conservation policy means we also have to change our production methods, even if it makes no sense in ecological terms.”
Certifying land involves the establishment of a development plan, preceded by a diagnostic survey; non-governmental organisations (NGOs) and government institutions (Mexico’s ecology ministry and Conanp) handle both tasks. The process is supposed to begin with “participatory workshops”, to inform the local inhabitants and allow them to make their opinions heard and take part in decision-making. But in Santiago Lachiguiri this procedure, seen as essential for the success of any conservation initiative, wasn’t followed correctly. Conanp insists the local inhabitants participated and were properly informed. Osorio said: “We went everywhere with them, and answered all their questions. But we had no idea what they were planning.”
But it was farming that stirred up the most trouble. The local community practised slash-and-burn cultivation (land is cleared, burned and then planted every seven years). The ash serves as a natural fertiliser and the wood is used as cooking fuel. Typical crops are maize, beans, tomatoes and peppers.
Anthropologist Eckart Boege says that, when properly managed, according to strict rules, itinerant cultivation is the best way of farming without destroying the environment; the Mayas were masters of this technique, in both production and reforestation. But Mexican and international institutions have identified this farming method as the latest big threat and they all want a ban on burning, since carbon capture has become the central element of conservation policies. Slash-and-burn has in fact caused environmental damage in Mexico, leading to deforestation, soil impoverishment, water shortages and reduced biodiversity.
But this is not the case with land occupied by indigenous peoples such as the inhabitants of Santiago Lachiguiri, who have established strict community rules (1). “If it’s properly used, the technique can actually increase the biological diversity and mass of the forest. We release CO2 by burning, but we capture more during the regeneration phase,” explained Alvaro Salgado, agronomist and author of a study on slash-and-burn. These facts have been recognised in scientific publications but are denied by Conanp, which is busy imposing another project on the village — agro-forestry, a system that integrates trees into a system of permanent cultivation, in this case apricot trees and maize. The results have failed to convince the locals. In three years, the soil has become impoverished and the trees are scrawny. “Since the maize yields were poor, Conanp advised us very early on to use chemicals to enrich the soil,” said Eduardo. Another result was that most of the 140 smallholders who had lost their land left the village. Some emigrated to the US, some moved to the city, some went to work on a motorway construction site, and the youngest joined the army after a recruitment campaign.
The villagers demanded the removal of the mountain’s protected area status and an end to the payments for environmental services. They also sent two representatives to the Alternative Global Forum that was held at Cancún in December 2010 in parallel with the 16th Conference of the Parties to the United Nations Framework Convention on Climate Change (COP 16). Their aim was to denounce the conservation policies that were being imposed. Their testimony was of the highest importance: it was COP 16 that approved the agreement on forest conservation proposed at COP 13, in Bali in 2007 — the REDD (Reducing Emissions From Deforestation and Degradation) programme.
Unable to agree on reductions in greenhouse gas emissions, the signatories hoped that REDD would kill two birds with one stone, cutting emissions by 15% while preventing deforestation. Diego Rodriguez from the World Bank had no doubts REDD would enable the world to prepare for climate change.
Anne Petermann of the NGO Global Justice Ecology Project says the idea that carbon can be stocked implies a ban on the felling of trees. Indigenous groups are opposed to REDD, she says, because they believe it will inevitably displace communities or have a serious impact on their way of life, without doing anything to reduce pollution or climate change. Representatives of indigenous peoples, who came to Cancún in large numbers, hoped to impose a requirement that free, prior and informed consent be obtained before the implementation of any REDD project. “We want to be able to say no if a company wants to use our territory to compensate for carbon emissions,” said Onel Masardule, representative of the Kuna people of Panama.
But REDD’s final text merely refers to “social and environmental safeguards”, which have yet to be defined. It mentions the UN Declaration on the Rights of Indigenous Peoples (which says that “indigenous peoples have the right to determine and develop priorities and strategies for the development or use of their lands or territories and other resources”), but the declaration isn’t binding. Two recent reports (3) on respect for indigenous peoples in REDD programmes indicate that the land rights of local inhabitants and principles of consultation and information have been systematically flouted.
Over the past six years, a range of projects have been financed by enterprises (Shell and Gazprom in Indonesia, BP in Bolivia, and Rio Tinto in Australia), by countries (Norway in Brazil and Indonesia, France in Mexico) and special funds belonging to international institutions such as the World Bank and UN agencies. The Cancún Agreements did not decide how the REDD programme was to be financed but the idea, still championed by the World Bank, of offering REDD carbon credits on the global emissions market already seems less viable.
It is now accepted that the markets have done nothing to help reduce carbon emissions or to promote the financing of a less polluting economy. Kate Dooley, an expert on forests at the NGO Fern, says carbon trading does not encourage people to use less carbon but gives the illusion that it’s possible to compensate for pollution. She fears that if REDD were to become part of the carbon trading market, there could be a wave of land speculation based on assigning a “carbon value” to forests. But the so-called developed nations, which are historically responsible for climate change, have refused to finance REDD alone. A decision on the issue has therefore been put off until COP 17, to be held in Durban, South Africa, 28 November—9 December 2011.
All the World Bank reports stress that public money will not be enough to finance the establishment of REDD; private funding is also needed — estimates range from $15bn to $50bn per year, but the funds currently available amount to only $2bn. And a question remains: what is to be done about the smallholders who want to continue growing maize while conserving some of their land? At COP 16, Mexico’s president Felipe Calderón declared: “We will pay the smallholders to plant trees instead of maize on the mountain, and live on payments they will receive for environmental services.”
In the valleys at the foot of the mountain, they grow organic coffee. The slopes are covered with little woods and patches of maize, but after several hours of walking and clambering you come to forests of pine trees, under which grow hundreds of species of wild flowers. Because of its altitude (2,200 metres) and the rock it is made of, the mountain acts as a kind of sponge, which stores the greater part of the area’s water supply.
Cerro de las Flores is a textbook case of conservation policy. In August 2003 it became Mexico’s first “voluntary community preserved area”. My source said Conanp defines this as an area protected by a “conservation mechanism put in place at the request of the local community, that protects the area’s natural riches and offers sustainable economic alternatives to its inhabitants”. According to Conanp, 207,887 hectares of land are managed in this way in Mexico. But at the meeting of the community assembly in January 2011, the people of Santiago Lachiguiri voted to drop the area’s “preserved area” status. “The government deceived us,” explained Osorio. “We are still the legitimate owners of the land, but we have lost control of it.”
Osorio was clearly irritated, and with some justification. The village’s land commissioner, Enan Eduardo, explained his choice of words: “We discovered that the certification of the 1,400 hectares of Cerro de las Flores entailed a conservation period of 30 years, rather than the five years we had agreed on when we voted.” Did that imply deception, and loss of control? “The conservation policy means we also have to change our production methods, even if it makes no sense in ecological terms.”
Certifying land involves the establishment of a development plan, preceded by a diagnostic survey; non-governmental organisations (NGOs) and government institutions (Mexico’s ecology ministry and Conanp) handle both tasks. The process is supposed to begin with “participatory workshops”, to inform the local inhabitants and allow them to make their opinions heard and take part in decision-making. But in Santiago Lachiguiri this procedure, seen as essential for the success of any conservation initiative, wasn’t followed correctly. Conanp insists the local inhabitants participated and were properly informed. Osorio said: “We went everywhere with them, and answered all their questions. But we had no idea what they were planning.”
Slash and burn
As a result, the conservation area ended up including the flanks of the mountain, where 140 smallholders had been growing maize. A further 517 hectares were included in the “payment for environmental services” programme, under which agricultural activities are forbidden, but the community receives an annual payment of 400 pesos (US$30) per hectare, that is $15,510 a year. It’s not much — and less than they were making from farming the land. The conservation plan also described a range of activities that would supposedly enhance the area’s resources without damaging the environment. The two flagship projects were an ecotourism initiative and a water-bottling plant. Both were abandoned after four years. Two cabins intended to accommodate tourists were never used — this remote area attracts few visitors — and the cost of transporting the bottled water proved prohibitive.But it was farming that stirred up the most trouble. The local community practised slash-and-burn cultivation (land is cleared, burned and then planted every seven years). The ash serves as a natural fertiliser and the wood is used as cooking fuel. Typical crops are maize, beans, tomatoes and peppers.
Anthropologist Eckart Boege says that, when properly managed, according to strict rules, itinerant cultivation is the best way of farming without destroying the environment; the Mayas were masters of this technique, in both production and reforestation. But Mexican and international institutions have identified this farming method as the latest big threat and they all want a ban on burning, since carbon capture has become the central element of conservation policies. Slash-and-burn has in fact caused environmental damage in Mexico, leading to deforestation, soil impoverishment, water shortages and reduced biodiversity.
But this is not the case with land occupied by indigenous peoples such as the inhabitants of Santiago Lachiguiri, who have established strict community rules (1). “If it’s properly used, the technique can actually increase the biological diversity and mass of the forest. We release CO2 by burning, but we capture more during the regeneration phase,” explained Alvaro Salgado, agronomist and author of a study on slash-and-burn. These facts have been recognised in scientific publications but are denied by Conanp, which is busy imposing another project on the village — agro-forestry, a system that integrates trees into a system of permanent cultivation, in this case apricot trees and maize. The results have failed to convince the locals. In three years, the soil has become impoverished and the trees are scrawny. “Since the maize yields were poor, Conanp advised us very early on to use chemicals to enrich the soil,” said Eduardo. Another result was that most of the 140 smallholders who had lost their land left the village. Some emigrated to the US, some moved to the city, some went to work on a motorway construction site, and the youngest joined the army after a recruitment campaign.
The villagers demanded the removal of the mountain’s protected area status and an end to the payments for environmental services. They also sent two representatives to the Alternative Global Forum that was held at Cancún in December 2010 in parallel with the 16th Conference of the Parties to the United Nations Framework Convention on Climate Change (COP 16). Their aim was to denounce the conservation policies that were being imposed. Their testimony was of the highest importance: it was COP 16 that approved the agreement on forest conservation proposed at COP 13, in Bali in 2007 — the REDD (Reducing Emissions From Deforestation and Degradation) programme.
Unable to agree on reductions in greenhouse gas emissions, the signatories hoped that REDD would kill two birds with one stone, cutting emissions by 15% while preventing deforestation. Diego Rodriguez from the World Bank had no doubts REDD would enable the world to prepare for climate change.
’We want to be able to say no’
Yet REDD shows little concern for the 300 million people across the world who depend on forests for their living. The programme is based on “compensation”: any business enterprise or country that pollutes can compensate for its greenhouse gas emissions (quantified in terms of tons of carbon) by “protecting” a forest. Advocates of REDD claim this approach is scientific but it does not appear to have convinced everyone. Research by Stanford University in California shows that the Intergovernmental Panel on Climate Change overestimated the amount of carbon stocked in a forest in Peru by one-third (2).Anne Petermann of the NGO Global Justice Ecology Project says the idea that carbon can be stocked implies a ban on the felling of trees. Indigenous groups are opposed to REDD, she says, because they believe it will inevitably displace communities or have a serious impact on their way of life, without doing anything to reduce pollution or climate change. Representatives of indigenous peoples, who came to Cancún in large numbers, hoped to impose a requirement that free, prior and informed consent be obtained before the implementation of any REDD project. “We want to be able to say no if a company wants to use our territory to compensate for carbon emissions,” said Onel Masardule, representative of the Kuna people of Panama.
But REDD’s final text merely refers to “social and environmental safeguards”, which have yet to be defined. It mentions the UN Declaration on the Rights of Indigenous Peoples (which says that “indigenous peoples have the right to determine and develop priorities and strategies for the development or use of their lands or territories and other resources”), but the declaration isn’t binding. Two recent reports (3) on respect for indigenous peoples in REDD programmes indicate that the land rights of local inhabitants and principles of consultation and information have been systematically flouted.
Over the past six years, a range of projects have been financed by enterprises (Shell and Gazprom in Indonesia, BP in Bolivia, and Rio Tinto in Australia), by countries (Norway in Brazil and Indonesia, France in Mexico) and special funds belonging to international institutions such as the World Bank and UN agencies. The Cancún Agreements did not decide how the REDD programme was to be financed but the idea, still championed by the World Bank, of offering REDD carbon credits on the global emissions market already seems less viable.
It is now accepted that the markets have done nothing to help reduce carbon emissions or to promote the financing of a less polluting economy. Kate Dooley, an expert on forests at the NGO Fern, says carbon trading does not encourage people to use less carbon but gives the illusion that it’s possible to compensate for pollution. She fears that if REDD were to become part of the carbon trading market, there could be a wave of land speculation based on assigning a “carbon value” to forests. But the so-called developed nations, which are historically responsible for climate change, have refused to finance REDD alone. A decision on the issue has therefore been put off until COP 17, to be held in Durban, South Africa, 28 November—9 December 2011.
All the World Bank reports stress that public money will not be enough to finance the establishment of REDD; private funding is also needed — estimates range from $15bn to $50bn per year, but the funds currently available amount to only $2bn. And a question remains: what is to be done about the smallholders who want to continue growing maize while conserving some of their land? At COP 16, Mexico’s president Felipe Calderón declared: “We will pay the smallholders to plant trees instead of maize on the mountain, and live on payments they will receive for environmental services.”
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