Climate change and spatial justice in coastal planning in Cuba and Brazil

Milanés, Celene B.; Montero, Ofelia Pérez; Szlafsztein, Claudio Fabian; Pimentel, Márcia Aparecida da Silva

doi:10.1590/1809-4422asoc20190184r1vu2020L6TD

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Feature Topics: Urbanization, Planning and Climate Change • Ambient. soc. 23 • 2020 • https://doi.org/10.1590/1809-4422asoc20190184r1vu2020L6TD linkcopy

Climate change and spatial justice in coastal planning in Cuba and Brazil

Mudança climática e justiça espacial no planejamento da zona costeira de Cuba e Brasil

Authorship SCIMAGO INSTITUTIONS RANKINGS

Abstract

This article uses the category of spatial justice as an analytical variable to explore the coastal planning of Cuba and Brazil, in the face of the challenge of climate change. The research was conducted using a qualitative methodology, applying the technique of content analysis to instruments of physical planning, based on spatial justice indicators provided in the study. These included territorial boundaries, uses of coastal space, environmental conflicts, public participation, urban insecurity, climate migration, and social exclusion, which enabled integration of coastal planning elements in the dimensions of space, policies, and tensions in different socio-economic contexts. New variables are added to the concept of spatial justice and it is shown that this constitutes an analytical category, which, expressed through coastal planning, puts both countries in better conditions to face the impacts of climate change.

Keywords:
Coastal spatial justice; territorial planning instruments; impacts of climate change; Brazil; Cuba

Aspects	Cuba	Brazil
Land mass (km²)	110,860	535,000
Coastline (km)	5,980	8,698
Coastal index¹	1.3	1.9
Population 1990 (million inhabitants)	10.6	149.4
Population 2010 (million inhabitants)	11.2	196.8
Estimated population 2030 (million inhabitants)	11	206.8
Ecological footprint (hectare per capita)	1.95	2.9

Indicators		Cuba	Brazil
Territorial boundaries	Spatial planning instruments	Administrative political boundaries of the territory are used (GORC, 1976) and the territorial boundaries of the provinces and municipalities are defined by legal regulations (GORC, 2010; PLANAS et al., 2016). The coastal zone and its protection zone are delimited according to the types of coast, with distances on land ranging from 20 to 300 meters, and depths of 100 to 200 meters at sea (GORC, 2000).	The coastal territorial boundaries are defined by the National Coastal Management Plan - PNGC II (established by law number 7.661/1988 and regulated by decree number 5.300/2004) The maritime zone extends offshore for 12 nautical miles established in accordance with the United Nations Convention on the Law of the Sea, comprising the entire territorial sea and a land belt, formed by municipalities with direct influence on the phenomena occurring on the coast (MMA, 2008).
Territorial boundaries	Coastal management instruments	Decree law number 212 (GORC, 2000). The integrated approach is used to demarcate and delimit coastal areas (MILANÉS 2014; MILANÉS et al., 2017; BATISTA, 2018a; b; c.). Physical geographical criteria for demarcating watersheds (BATISTA, 2018a).	Law number 7.661/88 establishes guidelines for coastal management of the country. Project Orla (MMA, 2005; MORAES, 2007). Coastal ecological-economic zoning. Areas of temporary oil and gas exclusion. Sensitivity mapping of the oil coast.
Uses of coastal space		Tourism and recreation, fishing, mineral extraction, human settlements, trade, and transport, protected natural space, scientific research.	Urbanization, tourism, fishing, mariculture, industrial activity and mineral extraction, ports, oil industry.
Environmental conflicts		Average sea level rise due to climate change, Land degradation (EAN, 2017). Inadequate occupation of the coastal zone and gradual increase in urbanization (MILANES, 2012; CABRERA, et al., 2011). Coastal erosion (CENTELLA et al., 2001). Overfishing and biodiversity loss.	Accidents in risk areas occupied by the poor. Loss of biodiversity due to decreased critical habitat area and fragmentation of ecosystems. Decrease in primary productivity. Deterioration and loss of coastal space and cultural-historical heritage. Reduction in diversity of natural landscapes, and coastal erosion (SZLAFSZTEIN, 2009; SCHERER et al., 2010).
Public participation		Planning tools envisage public participation, but this is not achieved in its entirety, conditioned by organizational factors and institutional management that limit participatory processes in decision-making. Added to this is the predominance of verticalist planning policies (MILANES et al., 2020; 2014). There are favorable conditions for increasing effective citizen participation, promoted by marked social equity and the achievement of positive social development indicators (health and education), among others (MONTERO y MILANES 2020; MILANES 2011; CABRERA et al., 2011)	In Brazil, the practice of public participation in decision-making is not yet fully widespread among all sectors of society. However, there are examples of community-based management, such as the Ceará fishermen’s initiative. In this case, the local community created the Coastal Forum, where various issues related to coastal uses and activities are discussed by representatives of the local community, the tourism sector, industrial fishing, and government representatives from the federal, state, and municipal levels (SZLAFSZTEIN, 2009; SCHERER et al., 2010).
Urban insecurity vs Global Peace Index (2017)		88 (lower insecurity)	108 (higher insecurity)
Climate migration		1,738,000 (IDCM, 2018)	71,000 (IDCM, 2018)
Social exclusion²		0.775	0.754

Types of violations in the coastal zone of Cuba	Types of violations in the coastal zone of Brazil
Coastal socio-economic subsystem
Location of industrial areas on the immediate coastline (GORC, 2000) Disposal of industrial and domestic waste at sea (GORC, 2001). Location of urbanized human settlements on the coast (MILANES, 2012; GORC, 2000). Exploitation of natural resources to obtain raw materials for the industrial sector (GORC, 1997).	Invasion of public areas, areas of permanent preservation, and areas subject to geological hazards. Increasing infrastructure deficit, mainly for basic sanitation and living Unemployment and underemployment caused by the seasonality of tourism Informality, ignorance, illegality and/or conflicts of understanding regarding compliance with environmental legislation (e.g. permanent preservation areas, fishing regulations, and port activities) Uncertainty of investors and entrepreneurs regarding the stability and clarity of environmental rules for land use and occupation (FILET et al., 2001; GOUVEIA, 2009)
Coastal physical-natural subsystem
Indiscriminate logging of mangroves and coastal forests (GORC, 1997). Increased coastal erosion, salt intrusion, droughts, and hurricane impact	Water pollution due to lack of basic sanitation (Federal Law N^o 11445/2007). Chemical pollution of ecosystems due to the oil industry and port activity (Federal Law N^o 12305/2010)
Coastal area regulatory legal subsystem
New social conflicts in coastal communities faced with the impacts of coastal flooding Deterioration of sanitary and environmental conditions in human settlements Pollution of land-based water bodies and the sea	Absence of monitoring bodies and fragility of government logistics for the execution of works in conservation areas (PIMENTEL 2019) Increasing decline in access to public areas such as beaches (Law 7661/1988 PNGC)

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