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O papel dos Instrumentos de Gestão Territorial na prevenção e mitigação dos incêndios florestais: o caso do incêndio de Pedrogão Grande (2017)
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Os incêndios constituem um fenómeno complexo originado pela gestão dos solos, cultura, atividades humanas e condições climáticas da região que ocorrem todos os anos em vários países, afetando áreas de floresta, matos e campos agrícolas. De uma forma geral, os incêndios rurais são eventos que ocorrem de forma espontânea na natureza, mas também são um resultado direto das políticas adotadas e das transformações sociais ocorridas durante os últimos séculos.
Atualmente, Portugal encontra-se num contexto favorável à existência de elevado risco de incêndios devido a diferentes fatores, nomeadamente, o clima mediterrânico, a grande área de território coberto por vegetação, aliado a políticas públicas pouco eficazes, ciclos económicos negativos, recursos humanos e materiais deficitários, e o despovoamento rural, entre outros fatores.
Deste modo, pretende-se com esta dissertação avaliar em que medida os Instrumentos de Gestão Territorial (IGT) e as respetivas Avaliações Ambientais Estratégicas (AAEs) - preveem ou integram medidas de prevenção e atuação para fazer face aos incêndios florestais e compreender de que forma essas mesmas medidas, caso existam, se encontram articuladas entre si.
Para tal, recorreu-se à metodologia de análise de conteúdo, quantitativa e qualitativa, dos IGT - PROT- Centro (PROT-C), PROF Centro Litoral (PROF-CL), PROF Pinhal Interior Norte (PROF-PIN) e PDM de Pedrógão Grande (PDM PG) - e respetivos relatórios ambientais das AAEs, utilizando-se, como caso de estudo, o município de Pedrógão Grande.
A partir da análise de conteúdo efetuada foi possível notar que os documentos abordavam temáticas comuns, as quais foram classificadas em nove categorias: (i) Importância da proteção e gestão dos espaços florestais; (ii) Gestão dos combustíveis; (iii) Sensibilização e educação ambiental da população; (iv) Aproveitamento da biomassa como fonte de energia renovável para produção de eletricidade (v) Atualização do cadastro da propriedade florestal (vi); Controlo de espécies exóticas ou invasoras/ recurso a espécies menos inflamáveis; (vii) Aplicação de critérios de edificação em zonas de elevado risco de incêndio; (viii) Integração de Zonas de Intervenção Florestal; e (ix) Supressão de incêndios e/ou riscos associados. Apesar do objetivo principal dos IGT ser a definição de regras de planeamento e ordenamento do território, verificou-se a existência de um número reduzido de medidas efetivas de prevenção e/ou combate de incêndios, embora nos documentos estejam definidas objetivos estratégicos, várias normas e preocupações relacionadas com a gestão da floresta e, pontualmente, com a prevenção de incêndios florestais. A maioria destas medidas e preocupações estão relacionadas com a proteção da floresta, e não exclusivamente direcionadas para prevenir, mitigar ou gerir incêndios rurais. Não obstante, essas orientações para o planeamento florestal podem ter implicações diretas e indiretas na prevenção da ocorrência incêndios rurais. Nos IGT analisados é focada, essencialmente, a componente preventiva, sendo a supressão de incêndio uma temática pouco abordada. Este padrão é positivo na medida em que dado o panorama nacional em matéria de incêndios rurais, é crucial o aumento do investimento em medidas e ações preventivas. Por outro lado, esta inferência contrasta com um cenário de fogos rurais globalmente negativo que se tem verificado recorrentemente, com significativas implicações financeiras, materiais e sociais associados ao combate a incêndios. Esta conclusão remete para um problema que não decorre isoladamente dos instrumentos legislais de planeamento e da correspondente implementação de medidas e diretrizes, mas sim da articulação entre os vários IGT e respetivas avaliações ambientais, e do modelo de governança associado.
Wildfires are a complex and integrated phenomenon originated by the management of soils, culture, human activities and climatic conditions in the region that devastate several countries around the world every year, decimating large areas of forest, brushwood and agricultural fields. In general, wildfires are events that occur spontaneously in nature, but they are also a direct result of the policies adopted and the social transformations that have occurred in recent years. Currently, Portugal is at its peak of having catastrophic wildfires due to different factors, namely, the Mediterranean climate, a large area of territory covered by vegetation combined with the policies adopted, the economic cycles with a negative trend, the budgeted deficit and the rural depopulation that contributed to not prioritize the problem of wildfires. This thesis intends to evaluate what extent Territorial Management Instruments (TMI) and the respective Strategic Environmental Assessment reports (SEA) - they provide or integrate prevention and action measures to make in the face of forest fires and understand how these same measures, if any, are linked to each other. For this, we used the content analysis methodology, quantitative and qualitative, of the TMI - Regional Spatial Planning Program – Center (RSPP-C), Regional Forest Management Program – Coastal Center (RFMP-CC), Regional Forest Management Program – North Pine Forest (RFMP -NPF) and the Municipal Master Plan of Pedrógão Grande (MMP) and respective SEA, using, as a case study , the municipality of Pedrógão Grande. From the content analysis carried out it was possible to notice that all or mostly all documents addressed common themes, which were possible to classify into nine categories: (i) Importance of protection and management of forest spaces; (ii) Fuel management; (iii) Environmental education and awareness; (iv) Use of biomass as a renewable energy source for electricity production (v) Updating the forest property register (vi); Control of invasive species / use of less flammable species; (vii) Application of building criteria in areas of high risk of fire ; (viii) Integration of Forest Intervention Zones; and (ix) Suppression of fires and/or associated risks. Nonetheless, the purpose of TMIs is to define some of the main rules on land predicament and planning, there was a small number of effective measures for preventing and/or fighting fires, although in the documents there are strategic objectives, several rules and concerns related to the management of the forest, and occasionally with the prevention of forest fires. Most of these measures and concerns involve the protection of the forest as a whole and are not exclusively aimed at preventing or suppressing in the face of rural fires. However, these concerns indirectly impact prevention against rural fires. In the TMI analyzed, the preventive component is mainly focused, instead of suppression measures. Such conclusions are positive, considering the national panorama in the field of wildfires, it is crucial to increase investment in preventive measures and actions. On the other hand, this inference contrasts with the scourge that is seen year after year with the huge financial, material and social costs associated with fighting fires. This conclusion refers to a problem arising not from the legislation, planning and implementation of measures and guidelines, but from the articulation between the various Plans and Programs (PP) and competent authorities.
Wildfires are a complex and integrated phenomenon originated by the management of soils, culture, human activities and climatic conditions in the region that devastate several countries around the world every year, decimating large areas of forest, brushwood and agricultural fields. In general, wildfires are events that occur spontaneously in nature, but they are also a direct result of the policies adopted and the social transformations that have occurred in recent years. Currently, Portugal is at its peak of having catastrophic wildfires due to different factors, namely, the Mediterranean climate, a large area of territory covered by vegetation combined with the policies adopted, the economic cycles with a negative trend, the budgeted deficit and the rural depopulation that contributed to not prioritize the problem of wildfires. This thesis intends to evaluate what extent Territorial Management Instruments (TMI) and the respective Strategic Environmental Assessment reports (SEA) - they provide or integrate prevention and action measures to make in the face of forest fires and understand how these same measures, if any, are linked to each other. For this, we used the content analysis methodology, quantitative and qualitative, of the TMI - Regional Spatial Planning Program – Center (RSPP-C), Regional Forest Management Program – Coastal Center (RFMP-CC), Regional Forest Management Program – North Pine Forest (RFMP -NPF) and the Municipal Master Plan of Pedrógão Grande (MMP) and respective SEA, using, as a case study , the municipality of Pedrógão Grande. From the content analysis carried out it was possible to notice that all or mostly all documents addressed common themes, which were possible to classify into nine categories: (i) Importance of protection and management of forest spaces; (ii) Fuel management; (iii) Environmental education and awareness; (iv) Use of biomass as a renewable energy source for electricity production (v) Updating the forest property register (vi); Control of invasive species / use of less flammable species; (vii) Application of building criteria in areas of high risk of fire ; (viii) Integration of Forest Intervention Zones; and (ix) Suppression of fires and/or associated risks. Nonetheless, the purpose of TMIs is to define some of the main rules on land predicament and planning, there was a small number of effective measures for preventing and/or fighting fires, although in the documents there are strategic objectives, several rules and concerns related to the management of the forest, and occasionally with the prevention of forest fires. Most of these measures and concerns involve the protection of the forest as a whole and are not exclusively aimed at preventing or suppressing in the face of rural fires. However, these concerns indirectly impact prevention against rural fires. In the TMI analyzed, the preventive component is mainly focused, instead of suppression measures. Such conclusions are positive, considering the national panorama in the field of wildfires, it is crucial to increase investment in preventive measures and actions. On the other hand, this inference contrasts with the scourge that is seen year after year with the huge financial, material and social costs associated with fighting fires. This conclusion refers to a problem arising not from the legislation, planning and implementation of measures and guidelines, but from the articulation between the various Plans and Programs (PP) and competent authorities.
Descrição
Palavras-chave
Avaliação Ambiental Estratégica (AAE) gestão incêndio Instrumento de Gestão Territorial (IGT) medidas planeamento