Environmental sanitation in São Paulo Macrometropolis: perspectives for a multi-level governance

Ramos, Ruth Ferreira; Frey, Klaus; Correia, Aldenísio Moraes; Anjos, Lidiane Alonso Paixão dos; Leonel, Ana Lia

doi:10.1590/1809-4422asoc20200104r1vu2020L6AO

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Original Article • Ambient. soc. 23 • 2020 • https://doi.org/10.1590/1809-4422asoc20200104r1vu2020L6AO copy

Environmental sanitation in São Paulo Macrometropolis: perspectives for a multi-level governance

Saneamiento Ambiental en la Macrometrópolis Paulista: perspectivas para la Gobernanza Multinivel

Authorship SCIMAGO INSTITUTIONS RANKINGS

Abstract

The present article analyzes the likelihood of multi-level environmental sanitation governance in São Paulo Macrometropolis. After introducing the theoretical and methodological approaches, the article critically addresses the current situation faced by the water and sewage services, the trajectory of sanitation policy, the repartition of competences among federative entities and the normative structure. Next, it analyzes aspects related to horizontal and vertical integration, citizen participation and territory, as the basic variables taken into consideration to better understand the functioning of institutional arrangements of Córrego Limpo Program and the renewal of water granting of the Cantareira System. Given the historical inequality condition concerning access to sanitation services, it is urgent reasoning about the necessary institutional changes focusing on contributions to the accomplishment of more resilient, fair and democratic political practices.

Keywords:
Environmental Sanitation; Multi-level Governance; São Paulo Macrometropolis

Environmental sanitation governance in SPMM
Dimension/variable	Inquiries/analysis	Main references
Sanitation situation (water and sewage)	Collecting the main data to characterize sanitation-related problems	SNIS (2018); TRATA BRASIL (2020)
Institutional legacy	Reconstructing the institutional trajectory of the sanitation sector	ARRETCHE (1999ARRETCHE, M. T. S. Política Nacional de Saneamento: a reestruturação das companhias estaduais. In: IPEA (Org.). Infraestrutura: perspectivas de reorganização. Saneamento. Brasília: IPEA, p. 75-106, 1999. Available at <http://repositorio.ipea.gov.br/handle/11058/7894>. Consulted on Feb. 16, 2020. http://repositorio.ipea.gov.br/handle/11... ); SABESP (2008, 2014); BRITTO et al. (2012BRITTO, A. L. N. P.; LIMA, S. C. R. B. L.; HELLER, L.; CORDEIRO, B. S. Da fragmentação à articulação. A Política Nacional de Saneamento e o seu legado histórico. Revista Brasileira de Estudos Urbanos e Regionais, v. 14, n.1, p. 65-83, 2012.); HELLER (2018HELLER, L. Saneamento no Brasil: outro mundo é possível e desejável. In: HELLER, L. (Org.). Saneamento como política pública: um olhar a partir dos desafios do SUS. Rio de Janeiro: Fiocruz, 2018.); SILVA et al. (2018SILVA, P. N., et al. Saneamento: entre os direitos humanos, a justiça ambiental e a promoção da saúde. Coleção Saúde, Ambiente e Sustentabilidade. Rio de Janeiro, FIOCRUZ. 2018. Available at <https://portal.fiocruz.br/sites/portal.fiocruz.br/files/documentos/06_saneamento.pdf>. Consulted on May 07, 2020. https://portal.fiocruz.br/sites/portal.f... )
Competences/ accountability	Assessing the repartition of competences and responsibilities among federative entities	BRASIL (2007, 2010); BRITTO et al. (2012BRITTO, A. L. N. P.; LIMA, S. C. R. B. L.; HELLER, L.; CORDEIRO, B. S. Da fragmentação à articulação. A Política Nacional de Saneamento e o seu legado histórico. Revista Brasileira de Estudos Urbanos e Regionais, v. 14, n.1, p. 65-83, 2012.); SNIS (2018)
Regulatory/normative structure	Characterizing the instruments and normative guidelines	BRASIL (2007); GALVÃO JUNIOR et al. (2009); IBGE/MUNIC (2017); SÃO PAULO (2019a)
Institutional arrangements of the Córrego Limpo Program and the Renewal of Water Granting of the Cantareira System
Dimension/variable	Inquiries/analysis	Main references
Horizontal integration/ Intersectorality	Identifying articulation processes among actors from different policies	Córrego Limpo RODRIGUES (2016RODRIGUES, M. Implementando a participação: interações estatais e socioestatais no Programa Córrego Limpo da Sabesp. Tese (Doutorado em Ciência Política). Universidade de São Paulo, 2016.); BUSTOS (2018); SÃO PAULO (2019b) Sistema Cantareira FRACALANZA e FREIRE (2015FRACALANZA, A. P.; FREIRE, T. M. Crise da água na Região Metropolitana de São Paulo: injustiça ambiental, privatização e mercantilização de um bem comum. Geousp - Espaço e Tempo (Online), v. 19, n. 3, p. 464-478, 2015.); LEÃO e STEFANO (2019LEÃO, R. S.; STEFANO, L. Making concrete flexible: Adapting the operating rules of the Cantareira water system (São Paulo, Brazil). Water Security, v. 7, p. 100032, 2019.)
Vertical integration/ federative subsidiarity	Assessing the degree of integration in the federative arrangement based on the division of competences and on federal relationships among federative entities
Social participation/control	Describing the participatory arrangements and the monitoring of policies/programs by non-state actors
Territory/ territoriality	Assessing territorial particularities and properness of policies/programs to the heterogeneity and diversity of different territories

Variable	SPMM	São Paulo
Total population (number of inhabitants / estimated by IBGE 2018) [A]	34,013,020	45,270,936
Total population with access to water supply [B]	32,946,044	43,547,974
Total population without access to water supply [A-B]	1,066,976	1,722,962
% of the total population that does not have access to water supply [(A-B)/A*100]	3.1%	3.8%
Total population assisted by sanitary sewage collection [C]	30,315,830	40,660,922
Total population that is not assisted by sanitary sewage collection [A-C]	3,697,190	4,610,014
% of the total population that is not assisted by sanitary sewage collection [(A-C)/A*100]	10.9%	10.2%
Sewage collection index	77.0%	80.34%
Sewage treatment index	77.5%	64.5%
Water loss at distribution index	36.2%	34.13%
Index of total access to water supply	96.9%	96.19%

Horizontal integration	Vertical integration	Citizen participation	Territory
Córrego Limpo
There is no direct participation of other state government sectors in the program implementation; SABESP was the only institution in charge of conducting the program in the state government. At municipal level, the program depends on the articulation among the secretariats of housing, the environment, infrastructure and public works, as well as on the boroughs [sub prefectures], which should coordinate the actions in the locations. However, studies have shown difficulties in effectively implementing an intersectoral approach.	While the responsibility for sanitation is shared between the state and the municipality, the role played by the Federal government is limited to defining the basic principles to be followed by the policy, based on the National Basic Sanitation Law. The division of competences between state and municipality regarding program implementation is clear and SABESP has the major role in the project management. There is municipal and state resource input. Unbalance between state and municipal agendas are often reported.	Citizen participation is seen as necessary to the maintenance of the quality of the rivers. SABESP business units and the local borrows are accountable for mobilizing the local community. The great variation in recorded results is related to the effectiveness of citizen participation and mobilization, as well as to the main role played by local community leaders.	Although there is orientation about the depollution process, there is also the need of elaborating specific projects to each urban stream. As the social condition of settlements changes, the community mobilization and participation strategies also change, depending on the territory and on the socio-environmental conditions of each location; it encompasses the demands and expectations of the local population, based on the direct cooperation of local leaderships.
Renewal of the Water Granting of the Cantareira System
Intersectoral action happens through PCJ’s watershed committees and through cooperation with the Alto Tietê Committee, since 2004. Both count on the participation of different state government sectors. However, the 2004 water granting showed the ultimate roles performed by SABESP and by civil society itself, whereas state agents were in charge of making mediations.	Since there is water capture from one inter-state river in play, such a process involves the participation of the federal entity, as well as the state and municipalities in the PCJ and Alto Tietê committees. It is also important highlighting the role played by DAEE and ANA as organs that conclude the water granting process, based on the recommendations issued by the committees and on the watershed plans.	There is the participation of non-state actors, which takes place through the watershed committee. It is worth mentioning that the civil society also acted outside the institutions, trying to influence the decision-making processes in the committees, based on mobilization, debates and on making available information and data to the decision-makers.	Water granting is based on the Watershed Plan and on the Water Resource Situation Report, taking into consideration the water resources’ conditions and their different uses observed in each watershed. However, the growing interconnection between supply systems and the water transposition between watersheds - accelerated by the water crisis - tends to weaken the watershed committees and favour SABESP’s dominating position, which points towards the need of broadening the cooperation between different committees, as happens in the Cantareira System.

ANPPAS - Revista Ambiente e Sociedade Anppas / Revista Ambiente e Sociedade - São Paulo - SP - Brazil
E-mail: revistaambienteesociedade@gmail.com

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[1] Ruth Ferreira Ramos ✉ ruth.ramos@ufabc.edu.br