PRODUCCIÓN Y CONSOMO SOSTENIBLE: UN ESTUDIO A PARTIR DE LA TEORÍA DE CAMPOS DE ACCIÓN

Pagotto, Érico Luciano; Gonçalves-Dias, Sylmara Lopes Francelino

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Sumário

Original Article • Ambient. soc. 23 • 2020 • https://doi.org/10.1590/1809-4422asoc20190027r1vu2020L4AO copiar

PRODUCCIÓN Y CONSOMO SOSTENIBLE: UN ESTUDIO A PARTIR DE LA TEORÍA DE CAMPOS DE ACCIÓN

Autoría SCIMAGO INSTITUTIONS RANKINGS

Resumen

Este artículo analiza el proceso de construcción de políticas públicas de producción y consumo sostenible en Brasil tras el ingreso del país en el Proceso de Marrakech, en 2003. A partir de la teoría de campos de acción estratégica, se buscó analizar la emergencia de este campo, sus características y su estado por medio de la acción colectiva de sus principales actores sociales con sus acciones, intereses y disputas. Como material empírico para análisis se utilizaron los planes desarrollados en el período, las actas de reunión, los documentos lanzados a la consulta pública, las respuestas proporcionadas por la sociedad civil tras la consulta, además de entrevistas en profundidad. Fue posible constatar que una serie de obstáculos vienen ocasionando retrasos a los avances de la política de producción y consumo sostenible en función de disputas entre actores incumbentes y desafiantesbejassinaguijón y los valores sociales y culturalesatribuidos a esaactividad.

Palabras-clave:
sostenibilidad; políticas públicas; consumo; campos de acción estratégica

Sector	SCP Actions	Government body responsible
Education for Sustainable Consumption	Provision of distance learning courses on SCP	MoE
	Creation of the Environmental Education and Family Agriculture Program	MoE
	Creation of the EducaRES Platform addressing waste	MoE
	Creation of the Sustainable Schools PPDE	MEC
	4th National Environment Conference	MoE/MEC
Sustainable Public Procurement	Inclusion of regulation of sustainability criteria for sustainable procurement	MP
	Creation of the Interministerial Commission for Sustainability in Public Administration	Federal Government
	Publication of normative instruments sustainable logistics, efficient energy use, and green TI	MP
	Creation of a catalogue of sustainable products for public procurement	MP
Environmental Agenda in Public Administration	Incentives for the A3P Network	MoE/intersectoral
Increase in Recycling	Cites the National Waste Policy and ramifications	Various
Sustainable Retail	Describes programs adopted by retailers to promote eco-efficiency, traceability, waste management, emission inventories, certifications, sustainability reports, awards, sectoral agreements, voluntary agreements and actions	Retail sector and respective professional associations
Sustainable Retail	Publication of studies and guides	Retailers, FGV
Sustainable Construction	SCPAP mentions the following federal government actions: Brazilian Habitat Quality and Productivity Program, My House My Life Program (2009), Procel Edifica (1985), Blue House Seal promoted by the national bank Caixa Economic (2010) and voluntary private sector initiatives	Ministry of Cities, Caixa Economic, private sector
Sustainable Finance	Central Bank Resolution 4327/2014 on financial entity socioenvironmental responsibility policies	Central Bank of Brazil
Sectoral Dialogue	List of voluntary initiatives for the production of technical and scientific studies, guides, and other informative material, raising awareness in public bodies regarding sustainable procurement, labeling, and distance learning courses on SCP	MoE, ABIPLA, ABIQUIM, CNI. Other professional associations
Sustainability Reports	No specific policies; however, the SCPAP encourages voluntary initiatives and mentions the BM&F Bovespa Corporate Sustainability Index and integrated sustainability reports as examples	BM&F
Sustainability Reports	Creation Sustainability Report Working Group to promote the in-depth study of the theoretical and practical aspects of sustainability reports	MoE
Inova Sustentabilidade	Federal program created by the MoE in partnership with the Brazilian Development Bank and the government research foundation FINEP within the Plano Inova Empresa created by the MCTI. Most of the resources from these programs were allocated to environmental sanitation projects	MoE, MCTI, BNDES, FINEP

State actors

Non-state actors

- Ministries (acronyms in Portuguese):
- of the Environment (MMAE)
- of Agriculture (MAPA)*
- of Science, Technology, and Innovation (MCTI)
- of Development, Industry, and Foreign Trade (MDIC)
- of Mines and Energy (MME)
- of Cities (Mcidades)
- of Finance (MF)
- of Planning (MP)*
- of Agrarian Development (MDA)*
- of Transport (MT)*
- Finance Sector:
Central Bank of Brazil (BACEN)*
National Development Bank (BNDES)
- Research Institutions:
The National Institute of Metrology, Standardization and Industrial Quality (INMETRO)*
Brazilian Institute of Geography and Statistics (IBGE)*

Private sector organizations (acronyms in Portuguese):
- Brazilian Business Council for Sustainable Development (CEBDS)
- National Confederation of Industry (CNI)
- National Service for Industrial Learning (SENAI)
- Micro and Small Business Support Service (SEBRAE)
- Business Recycling Commitment (CEMPRE)
- National Confederation of Commerce (CNC)
- Brazilian Life Cycle Association (ABCV)*
Universities:
- Getúlio Vargas Foundation (FGV)
- Civil society organizations:
Instituto Akatu
Instituto Ethos
Brazilian Institute for Consumer Protection (IDEC)
- Professional associations:
Unified Workers' Central (CUT)
Brazilian Institute of Independent Auditors (IBRACON)*
Brazilian Association of Technological Research Institutions (ABIPTI)
- ONU:
Office of the United Nations Environment Program (UNEP) in Brazil

No	Actor	Type	Contribution	Dimension	Aspects	Source
1	MoE consultant for the preparation of 2nd Cycle of the SCPAP	Consultant hired by the MoE	The Plan can help strengthen the implementation of sustainability initiatives in the country, particularly compliance with the commitments undertaken by the Brazilian government related to international agreements. (...) We need to gradually progress towards a sustainable economy avoiding disruption of the private sector, … the joint construction process with the government is very important, because sometimes you work on a super-modern law and Brazil is champion in having a really good legislation, but is unable to implement it because it wasn’t agreed across all the sectors involved. (...) The truth is the opposite happens: the private sector advances faster than the government but doesn’t receive recognition in the form of incentives that the government could provide for these advances.	Economic	Reformism, economic incentives	Minutes of the meeting of the SCPSC on 02/Apr/18 (MMA, 2018, p. 47)
2	MoE consultant for the preparation of 2nd Cycle of the SCPAP	Consultant hired by the MoE	[presenting the results of a study of private sector expectations of engagement in the SCPAP] The definition and use of measurement methodologies and verification of sustainability criteria for products and services, encompassing various methods, including self-declaration, which would be an important step, instead of a broader certification process.	Economic	Economic freedom	Minutes of the meeting of the SCPSC on 02/Apr/18 (MMA, 2018, p. 48)
3	Brazilian Packaging Association - ABRE	Private sector	[referring to the guidelines of the SCPAP] Incentives and simpler licensing procedures for companies that have implemented an environmental management system/certification (ISO 14001), as a way of encouraging business to invest in environmental management systems, seek certification, and maintain the system with the aim of reducing the environmental impacts they cause.	Economic/Legal	Deregulation/economic incentives	Appendix III of the SCPAP. MMA, 2011-b, p. 105
4	Representative of the National Confederation of Commerce - CNC and Brazilian Supermarket Association - ABRAS	Private sector	(...) we often wait for formalization or legislation and we have the competence to do it. Some might call it self-declaration or even self-regulation. Because we have a lot of initiatives that end up becoming lost along the way and we sometimes lose the opportunity to do that.	Legal	Deregulation	Minutes of the meeting of the SCPSC de 02/Apr/18 (MMA, 2018, p. 52)
5	Representative of the National Confederation of Industry CNI	Private sector	The representative of the CNI (...) reaffirmed that the SCPAP can count on the support of the Confederation. With regard to life-cycle analysis, he observed that the idea of LCA is one thing and the application of the tool is another. While the former should be adopted, the latter should not appear as a demand because it is a complex and costly process for the industry. The representative of the CNI requested that the topic “increased product durability” be excluded, since the notion cannot or should not necessarily employed for all products. In some cases it could hinder innovation.	Economic/Legal	Cost reduction/Deregulation	Minutes of the meeting of the SCPSC on 30/Mar/16 (MMA, 2016, p.3)
6	Representatives of Walmart, Pão de Açúcar and Carrefour	Private sector	They describe various voluntary SCP initiatives that they implement and highlight that how to communicate actions for sustainability developed by industry and business to society is a challenge.	Legal	Communication	Minutes of a discussion table on sustainable retail related to the 2nd cycle of the SCPAP on 11/Aug/2015 (MMA, 2015, p. 2-3)
7	Instituto Akatu	Civil society	[with regard to the SCPAP guidelines] Work on an economic, political and institutional regulation plan, with a view to building or reshaping/adjusting these institutions to create a fiscal and economic/financial regulatory framework that encourages a shift to SCP.	Economic	Regulation	Appendix III of the SCPAP. MMA, 2011, p. 117
8	Individual	Civil society	With regard to the implementation of the SCPAP, I suggest the involvement of institutional actors that have greater capacity for political articulation and influencing the economy, taking this issue to the heart of the government, like the Executive Office of the President and economic ministries.	Political	Regulation	Appendix III of the SCPAP. MMA, 2011, p. 97
9	Brazilian Society for Ecological Economics	Civil society	A SCPAP monitoring plan and respective performance indicators should be presented. (...) The Plan is vague and/or omissive in relation to goals and concepts.	Technical and scientific	Transparency	Appendix III of the SCPAP. MMA, 2011-b, p. 114
10	Representative of the Instituto Alana	Civil society	Private sector regulation is vital. Advertising aimed at children is easier to deal with because it has more appeal, but advertising aimed adults is also overwhelming. You can’t place all the responsibility on the consumer.	Legal	Regulation	Minutes of a discussion on sustainable consumption for the 2nd cycle of the SCPAP on 12/Aug/2015 (MMA, 2015, p. 4)
11	Representative of the Brazilian Institute for Consumer Protection - IDEC	Civil society	(...) There won’t be sustainable consumption without sustainable production (...). We have a plan [the SCPAP] which is almost entirely based on voluntary initiatives. The state is neglecting its role as formulator of regulatory and enforcement policy. I have my reservations about a plan that looks like a showcase for good practices. (...) The role of the state is not to adhere to a commitment, the role of the state is to regulate and enforce and define policies that encourage new patterns of consumption and production. I’m talking about a new consumption and production logic (...). It is a little kind to see them as opposite sides from a same coin.	Legal	Regulation	Minutes of the first meeting of the SCPSC de 22/Nov/2011
12	Representative of the United Nations Environment Program - UNEP	Representative of the UN	The preliminary draft [of the 2nd Cycle of the SCPAP] talks little about public policy or how to implement the proposals.	Political/Technical and scientific	Regulation/Transparency	Minutes of a discussion tables on sustainable consumption for the 2nd cycle of the SCPAP on 12/Aug/2015 (MMA, 2015, p. 3)

No.	Actor	Social role	Contribution	Dimension	Aspects	Source
13	Director of SIAEC/MoE	Federal government	[answering a question about the risk of the SCPSC being extinct] We are not talking about the political will of a government here. The truth is it’s an agreement between countries of which we are part. So the idea is that each country had their own plan, so this here will perpetuate with a change of government.	Political	Governance	Minutes of the meeting of the SCPSC on 02/Apr/18 (MMA, 2018, p. 52)
14	Director of SIAEC/MoE	Federal government	(...) we understood that if you work, work, work and don’t influence public policy, you don’t influence bills, you end up missing the “train of history” because a bunch of politicians go and made a law completely contrary to everything we have been working so hard to realize. So I think it's an important issue to work in parallel or jointly on. The CNI is always working on this. The CBIC as well. So I think it's something that can’t be overlooked. (...) We have a key ally in the Congress, the Environmental Parliamentary Front, which is the caucus with the highest number of deputies and senators; and it works (...). We have to remember that after we create a national policy we have to regulate it and you have to create the same piece of legislation at state level. That’s why the state environmental parliamentary fronts were created. They already exist and are working together with the national front.	Political	Regulation	Minutes of the meeting of the SCPSC on 02/Apr/18 (MMA, 2018, p. 88)
15	Coordinator of DSCP/MoE	Federal government	[regarding the creation of SCP policies] Algumas institucionalizações may constrain [policies] (...). What will we gain by creating a [SCP] policy? It provides a certain degree of visibility, a certain degree of institutional security, but I don’t know what the content of this policy will be. When we try to institute this policy within a context of correlation of forces and political and economic powermongering, compared to other bigger policies, we could end up with a mediocre outcome. (...) I reckon if we manage to get the necessary resources from the multiannual plan we can do alright.	Economic/Legal	Financial resources/Communication	Interview given on 18/Oct/18

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[1] Érico Luciano Pagotto ✉ erico.pagotto@fatec.sp.gov.br