Brazilian State Forest Institutions: Implementation of forestry goals evaluated by the 3L model

Abstract

More than half of Brazilian territory (54%), or approx. 463 million ha, is covered by forests. Public forest ownership dominates with up to 80%, private forests cover cca. 20% and cca. 8% is unclaimed. In public forests the practice of concessions is growing, with the expectation of reducing the problem of Amazonian illegal loggings. Private forests are mainly under plantation management, which generates 5.5% of the country’s industrial gross domestic product. Relevance of both is accordingly high, although not dominant in forest share. A key question for forest policy is how successfully the state regulates both issues in practice. Our paper accordingly focuses on the Brazilian Forest Service and the Ministry of Agriculture, which are state forest institutions in charge of forest concessions and planted forests. We look at their performance against legally based forestry goals and rely on primary (participatory observation, semi-structured personal interviews and questionnaire) and secondary sources (documents) for empirical evidence. The 3 L Model serves as a theoretical basis. It was selected while applying criteria and indicators for evaluation of public institutions´ comprehensive performance with respect to sustainable forest management. The results show that Brazilian forest policy strives toward sustainable forest management, as an overall goal. In more particular, the performance of both examined state forest institutions is more market (than public demand) oriented and moves towards strengthening market competences. At the same time, there are constrains in sustaining forest stands. Due to permanent and strong conflicts related to land use changes in Brazil, the relevance of a mediator, aiming to harmonize all different interests related to forest protection and use, is high, but this role is still not taken, at least not by the evaluated state forest institutions. This represents new task for the forestry practice, while facilitating diverse interests in Brazilian forests could not only be a contribution toward conflict management between environmental, forestry and agribusiness actors but could also grant stronger political role to respective state forest institution(s). For attending this role, the performance evaluation of the whole and rather complex forest-related institutional setting in Brazil could provide relevant science-based policy arguments. This paper shows that the 3 L Model could be applied for such evaluation, as it was possible to adapt it to a non-European country and get a comprehensive overview of Brazilian plantation and concession forestry in practice.