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Áreas protegidas resilientes e a importância do sistema de governança em Portugal
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Orientador(es)
Resumo(s)
As áreas protegidas constituem sistemas socio-ecológicos, complexos e dinâmicos, sujeitos a perturbações que podem alterar as condições ecológicas e socioeconómicas de forma significativa. A capacidade de um sistema se adaptar a novas circunstâncias, mantendo a integridade da sua função e identidade, é designada resiliência, frequentemente associada aos modelos de gestão adaptativa que enfatizam a necessidade de aprendizagem e flexibilidade na tomada de decisão.
Esta investigação teve como objetivo perceber como podem as áreas protegidas ser (mais) resilientes, focando-se no contributo do sistema de governança, determinante do modo como os utilizadores interagem com os recursos. O estudo foi centrado na tipologia ‘parque natural’, onde a presença humana existente implica mais interações e potenciais conflitos, tomando como casos de estudo o Parque Natural da Serra da Estrela e o Parque Natural de Sintra-Cascais. Metodologicamente foi privilegiada uma abordagem participativa, com consulta e envolvimento de peritos e stakeholders em diferentes momentos, através de questionários, entrevistas e um workshop.
Numa primeira fase, procurou-se clarificar a identidade das áreas protegidas (a manter através da resiliência) e identificar os principais fatores de pressão e respetivas forças motrizes, com base numa adaptação do modelo DPSIR (Driver-Pressure-State-Impact-Response). Foi possível estabelecer que, embora coexistam múltiplos objetivos, a função identitária das áreas protegidas (incluindo parques naturais) é a conservação da
natureza. As principais pressões estão sobretudo relacionadas com usos e atividades humanas e são originadas por uma complexa teia de forças motrizes, na qual a ineficácia/desadequação do sistema de governança assume destaque.
Estabelecidas essas bases, foram investigados os atributos que conferem resiliência e analisado o sistema de governança em Portugal, incluindo o papel da entidade gestora e o seu modelo organizacional, bem como os instrumentos de gestão disponíveis. A existência de diferentes níveis de governança, de um capital social diverso e participativo, e de processos de inovação e aprendizagem são indicados pela literatura como atributos dos sistemas resilientes. Contudo, a análise documental e as perceções recolhidas demonstram que o atual sistema de governança não cumpre tais requisitos.
O distanciamento da entidade gestora, que já não possui estruturas locais com poder de decisão ao nível da área protegida, constitui a principal fragilidade, estando associado ao desconhecimento do território e à dificuldade de relacionamento com os stakeholders, o que impossibilita a implementação de uma gestão verdadeiramente colaborativa. Para além disso, a ausência de diversidade de instrumentos de gestão e de mecanismos de monitorização e avaliação compromete a inovação e aprendizagem, colocando obstáculos a uma abordagem mais adaptativa para a gestão destes territórios.
Esta investigação valida e estrutura problemas antes percecionados e fornece fundamentação a necessidades já identificadas. Acredita-se que as recomendações apresentadas são relevantes para a maioria das áreas, com eventuais adaptações. Futura investigação sobre o funcionamento destes sistemas socio-ecológicos, pressões e forças motrizes, metodologias de participação e de avaliação de resultados poderá contribuir para uma melhor gestão das áreas protegidas em Portugal. No entanto, é fundamental um maior investimento e compromisso político na área da conservação da natureza, capaz de defender e integrar os interesses nacionais e locais.
Protected areas are complex and dynamic socio-ecological systems, subject to disturbances that can significantly change ecological and socio-economic conditions. The ability of a system to adapt to changing circumstances while maintaining the integrity of its function and identity is called resilience, often associated with adaptive management models which emphasise the need for learning and flexibility in decision making. This research aimed to understand how protected areas can be (more) resilient by focusing on the contribution of the governance system, which determines how users interact with resources. The study was centred on the ‘natural park’ typology, where the existing human presence implies more interactions and potential conflicts, taking as case studies the Serra da Estrela Natural Park and the Sintra-Cascais Natural Park. Methodologically, a participatory approach was privileged, with consultation and involvement of experts and stakeholders at different moments, through questionnaires, interviews and a workshop. On a first stage, the aim was to clarify the identity of protected areas (to be maintained through resilience) and to identify the central pressures and their driving forces, based on an adaptation of the Driver-Pressure-State-Impact-Response (DPSIR) model. It was established that although multiple objectives coexist, the key function of protected areas (including nature parks) is nature conservation. The main pressures x are mainly related to human uses and activities and originated by a complex web of driving forces, in which the ineffectiveness/inadequacy of the governance system is highlighted. Having established this basis, the attributes that confer resilience were investigated, and the governance system in Portugal was analysed, including the role of the management body and its organisational model, as well as the available management instruments. The existence of different levels of governance, a diverse and participatory social capital, and innovation and learning processes are indicated in the literature as attributes of resilient systems. However, the documentary analysis and the stakeholders’ perceptions show that the current governance system does not meet these requirements. The distance of the management body, which no longer has local structures with decision-making power at the protected area level, is the main weakness, associated with the lack of knowledge of the territory and the difficult relationship with stakeholders, which makes the implementation of a true collaborative management impossible. Moreover, the lack of management tools’ diversity and monitoring and evaluation mechanisms does not promote innovation and learning, hindering a more adaptive approach to managing these territories. This research validates known issues and provides rationale for already identified needs. It is believed that the recommendations presented are relevant to most areas, with possible adaptations. Future research on the functioning of these socio-ecological systems, pressures and driving forces, methodologies for participation and outcome assessment could contribute to better management of protected areas in Portugal. However, it is essential a greater investment and political commitment in nature conservation, capable of defending and integrating national and local interests.
Protected areas are complex and dynamic socio-ecological systems, subject to disturbances that can significantly change ecological and socio-economic conditions. The ability of a system to adapt to changing circumstances while maintaining the integrity of its function and identity is called resilience, often associated with adaptive management models which emphasise the need for learning and flexibility in decision making. This research aimed to understand how protected areas can be (more) resilient by focusing on the contribution of the governance system, which determines how users interact with resources. The study was centred on the ‘natural park’ typology, where the existing human presence implies more interactions and potential conflicts, taking as case studies the Serra da Estrela Natural Park and the Sintra-Cascais Natural Park. Methodologically, a participatory approach was privileged, with consultation and involvement of experts and stakeholders at different moments, through questionnaires, interviews and a workshop. On a first stage, the aim was to clarify the identity of protected areas (to be maintained through resilience) and to identify the central pressures and their driving forces, based on an adaptation of the Driver-Pressure-State-Impact-Response (DPSIR) model. It was established that although multiple objectives coexist, the key function of protected areas (including nature parks) is nature conservation. The main pressures x are mainly related to human uses and activities and originated by a complex web of driving forces, in which the ineffectiveness/inadequacy of the governance system is highlighted. Having established this basis, the attributes that confer resilience were investigated, and the governance system in Portugal was analysed, including the role of the management body and its organisational model, as well as the available management instruments. The existence of different levels of governance, a diverse and participatory social capital, and innovation and learning processes are indicated in the literature as attributes of resilient systems. However, the documentary analysis and the stakeholders’ perceptions show that the current governance system does not meet these requirements. The distance of the management body, which no longer has local structures with decision-making power at the protected area level, is the main weakness, associated with the lack of knowledge of the territory and the difficult relationship with stakeholders, which makes the implementation of a true collaborative management impossible. Moreover, the lack of management tools’ diversity and monitoring and evaluation mechanisms does not promote innovation and learning, hindering a more adaptive approach to managing these territories. This research validates known issues and provides rationale for already identified needs. It is believed that the recommendations presented are relevant to most areas, with possible adaptations. Future research on the functioning of these socio-ecological systems, pressures and driving forces, methodologies for participation and outcome assessment could contribute to better management of protected areas in Portugal. However, it is essential a greater investment and political commitment in nature conservation, capable of defending and integrating national and local interests.
Descrição
Palavras-chave
Conservação da natureza Sistemas socio-ecológicos Pressões Gestão adaptativa Stakeholders Nature conservation Social-ecological systems Pressures Adaptive management