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Compartes, Estado e Autarquias: Que Futuro para as Terras Comunitárias? O Caso dos Baldios do Parque Nacional da Peneda- Gerês
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Os baldios são terras comunitárias historicamente geridas para pastagem, integradas nos sistemas agrícolas de subsistência. Hoje localizam-se sobretudo nas montanhas do norte do país. A modernização tecnológica da agricultura, a florestação pelo Estado Novo (1938-1968), a emigração nos anos 1950-1960s e o decorrente declínio da actividade agrícola criaram uma nova conjuntura económica e social para os baldios. Em 1986 a adesão à União Europeia (UE) e a submissão à Política Agrícola Comum (PAC) reflectiu-se também nestes espaços e respectivas instituições. Como resultado o meio rural encontra-se num período de transição, verificando-se a gradual perda da função produtiva e o aumento de importância de actividades recreativas. Neste processo, o baldio perdeu o seu contexto “tradicional”, e os compartes veem-se obrigados a adaptar o seu quadro conceptual e as suas instituições à nova realidade.
Entrevistas semiestruturadas, efectuadas nas trinta unidades de baldios existentes no PNPG, permitiram analisar o tipo de uso e as estratégias de gestão implementadas nos baldios desta região. Procurando incluir a diversidade de intervenientes nos baldios do PNPG, foram realizadas entrevistas a outros utilizadores do espaço (e.g., empresas de turismo, ADERE-Peneda-Gerês) e intervenientes na sua gestão (e.g., Instituto para a Conservação da Natureza e das Florestas – ICNF -, associações que trabalham com os baldios, autarquias). Numa segunda fase, procurando aprofundar a análise dos factores que actuam sobre a gestão dos baldios, estabeleceu-se o foco numa das aldeias do Parque. Ao longo de dois meses e meio de vivência e imersão na dinâmica da aldeia, realizaram-se entrevistas semiestruturadas aos habitantes, estabeleceram-se conversas informais, recorrendo-se continuamente à observação e registo diário em caderno de campo.
No PNPG os baldios estão sujeitos a restrições de uso e gestão inexistentes noutros baldios do país. Esta situação constringe o leque de alternativas possíveis para estes espaços, que se reduz ao turismo. Assim, hoje a actividade nos baldios divide-se essencialmente entre a gestão da floresta plantada pelo Estado e a produção animal extensiva. Ao mesmo tempo, regista-se uma afluência importante de visitantes que encontram nos baldios vários pontos de atracção (e.g., cascatas, trilhos pedestres, etc.). Contudo, embora o turismo tenha presença e os subsídios auxiliem a manutenção dos espaços naturais e culturais, verifica-se que o baldio não acede às contrapartidas geradas por essa procura, ainda que as comunidades beneficiem dela indirectamente. Em contrapartida, o número de agentes externos cuja actividade se desenvolve com base na paisagem do baldio, tem vindo a aumentar. Como reacção, ultimamente regista-se em algumas aldeias iniciativas que pretendem reforçar e defender os direitos de propriedade dos compartes e ao mesmo tempo beneficiar do usufruto do baldio por actores externos. Contudo verifica-se que na prática as iniciativas locais de controlo e gestão de
utilizadores são facilmente invalidadas pelas instituições públicas introduzidas no território (e.g., ICNF). Na intrincada estrutura institucional que compõe o território do PNPG, as comunidades e as suas instituições ocupam um dos lugares com menor influencia. Neste contexto a forma como se posicionam as restantes instituições que operam sobre aquele território perante a propriedade e gestão comunitária torna-se determinante para o sucesso das iniciativas dos compartes. Assim, até que ponto o turismo constitui uma alternativa eficaz à produção agrícola, irá depender em grande parte da vontade dos compartes e da capacidade negocial dos órgãos gestores dos baldios no universo institucional do Parque.
Baldios are lands generally integrated in subsistence farming systems and historically managed by the local communities for pasture. Today these lands are located mainly in the country’s northern mountains. Events such as agriculture’s technological modernization, the afforestation by the dictatorial Estado Novo (1938-1968), the massive emigration in the 1950-1960´s and the consequent decline of the agriculture sector, created a new economic and social conjuncture with consequences over the use of the baldios. In 1986 the adherence to the European Union (EU) and submission to the Common Agricultural Policy (CAP), also influenced the use of the common lands and the functioning of its institutions. In the process the baldio lost its “traditional” context and the commoners are now obliged to adapt their conceptual frameworks and institutions to the new reality. We performed semi-structured interviews on the thirty baldio units located in the Peneda-Gerês National Park (PGNP) in order to analyze the type of use and users, and the management strategies implemented on these baldios. In order to include the diversity of people/institutions that intervene in those baldios located in the PGNP we interviewed other users of that space (e.g., tourism companies, ADERE Peneda-Gerês) and others that intervene on their management (e.g., National Institute for the Conservation of Nature and Forests – ICNF -, associations that work with the baldios, municipalities, etc.). In a second stage aimed at deepening the analysis of the factors that influence the management of the baldios, we focused in one of the villages of the Park. Over the course of two months and a half of experience and immersion in the village, we conducted semi-structured interviews with the villagers, alongside with informal conversations and continuous observation with daily registers on the field notebook. Baldios in the PGNP are subject to restrictions regarding their use and management that are inexistent in other baldios in the country. This situation limits the variety of usages allowed in these areas, which are reduced to touristic activities. Thus, activity in the baldios is now divided between the management of forests planted by the State and extensive livestock. At the same time, an important affluence of visitors attracted by several features of the baldios (e.g., such as waterfalls, walking tracks, etc.) is registered. However, in the baldios of the PGNP, although tourism is present and EU’s subsidies help to maintain the natural and cultural spaces, it is found that the baldios do not access the counterparties generated by touristic activities, even if the members of the communities benefit indirectly from them. On the other hand, the number of external agents whose activity is linked to the landscape in the baldio is increasing. As a reaction we registered several initiatives at the village level that are meant to strengthen and defend the commoners’ property rights and at the same time benefit from the external use of the common property. However we found that local initiatives meant to control and manage users are easily invalidated by the public institutions introduced into the territory (e.g., ICNF). Local communities and institutions occupy one of the least influential positions in the PGNP intricate institutional structure. In this context, the way that other institutions acting on the territory position themselves towards common property and common management, becomes determinant for the success of the commoners’ initiatives. Therefore, the extent to which tourism is an effective alternative to agriculture production is largely dependent on the commoners’ will and on the negotiating skills of the baldios’ managing bodies.
Baldios are lands generally integrated in subsistence farming systems and historically managed by the local communities for pasture. Today these lands are located mainly in the country’s northern mountains. Events such as agriculture’s technological modernization, the afforestation by the dictatorial Estado Novo (1938-1968), the massive emigration in the 1950-1960´s and the consequent decline of the agriculture sector, created a new economic and social conjuncture with consequences over the use of the baldios. In 1986 the adherence to the European Union (EU) and submission to the Common Agricultural Policy (CAP), also influenced the use of the common lands and the functioning of its institutions. In the process the baldio lost its “traditional” context and the commoners are now obliged to adapt their conceptual frameworks and institutions to the new reality. We performed semi-structured interviews on the thirty baldio units located in the Peneda-Gerês National Park (PGNP) in order to analyze the type of use and users, and the management strategies implemented on these baldios. In order to include the diversity of people/institutions that intervene in those baldios located in the PGNP we interviewed other users of that space (e.g., tourism companies, ADERE Peneda-Gerês) and others that intervene on their management (e.g., National Institute for the Conservation of Nature and Forests – ICNF -, associations that work with the baldios, municipalities, etc.). In a second stage aimed at deepening the analysis of the factors that influence the management of the baldios, we focused in one of the villages of the Park. Over the course of two months and a half of experience and immersion in the village, we conducted semi-structured interviews with the villagers, alongside with informal conversations and continuous observation with daily registers on the field notebook. Baldios in the PGNP are subject to restrictions regarding their use and management that are inexistent in other baldios in the country. This situation limits the variety of usages allowed in these areas, which are reduced to touristic activities. Thus, activity in the baldios is now divided between the management of forests planted by the State and extensive livestock. At the same time, an important affluence of visitors attracted by several features of the baldios (e.g., such as waterfalls, walking tracks, etc.) is registered. However, in the baldios of the PGNP, although tourism is present and EU’s subsidies help to maintain the natural and cultural spaces, it is found that the baldios do not access the counterparties generated by touristic activities, even if the members of the communities benefit indirectly from them. On the other hand, the number of external agents whose activity is linked to the landscape in the baldio is increasing. As a reaction we registered several initiatives at the village level that are meant to strengthen and defend the commoners’ property rights and at the same time benefit from the external use of the common property. However we found that local initiatives meant to control and manage users are easily invalidated by the public institutions introduced into the territory (e.g., ICNF). Local communities and institutions occupy one of the least influential positions in the PGNP intricate institutional structure. In this context, the way that other institutions acting on the territory position themselves towards common property and common management, becomes determinant for the success of the commoners’ initiatives. Therefore, the extent to which tourism is an effective alternative to agriculture production is largely dependent on the commoners’ will and on the negotiating skills of the baldios’ managing bodies.
Descrição
Palavras-chave
Parque Nacional da Peneda-Gerês Baldios Gerês Common management