Benefits of Urban Greening
Harnessing the Power of Plants
PMSA and PES have as their scientific principle the benefit of ecosystems to society, with a focus on ecosystem services that contribute to human wellbeing, covering environmental maintenance and improvement in categories such as support, regulation, provision and culture. Actions that promote the preservation of these services are considered ecosystem services.
This approach is based on solid scientific findings that recognise the vital importance of natural services for the survival of humanity. With PES, the city values landowners who play a crucial role in delivering these services and rewards them financially as a form of gratitude for their benefits to the community.
This innovation, adopted as a national policy only in 2022, stands out in the country’s legal context. São Paulo, a pioneer in cutting-edge policies, had already been exploring this idea since 2009, through the PMMC. However, implementation required the creation of specific instruments, such as inclusion in the PDE and preparation of the PMSA, leading to the institutionalisation of the PES Programme in the city and the publication of its first public notice.
The essential connection to the city’s sustainability lies in the fact that, in the future, more landowners, both urban and rural, will be rewarded for conservation practices and responsible land use, resulting in clean water, healthy food and climate change mitigation. In addition, this fair approach values citizens for their environmental contributions, promoting sustainability and fostering an innovative vision where harmony between the natural environment and society is recognised and rewarded.
Delivering Multiple Benefits
All environmental services that favour the maintenance, recovery or improvement of ecosystem services are eligible for PES, according to the PMSA. The first call for proposals covered services related to biodiversity conservation, water production and the adoption of organic or agroecological agricultural practices, including agroforestry systems, as well as other actions such as reforestation; soil conservation and erosion control; the implementation and maintenance of septic tanks, biodigesters and filter gardens; the separation of recyclable waste; composting organic waste; the implementation of efficient irrigation systems; incentives for meliponiculture and beekeeping etc.
PES is incorporated into local policy and planning mechanisms by means of the following pieces of legislation: Federal Law 14.119/22, Municipal Laws 14.933/09 (PMMC); 16.050/14 (PDE); 16.402/16 (zoning), Municipal Decrees 61.143/22 (Mananciais PES Program), 60.289/21 (PlanClima); CADES Resolutions 202/19 (PMSA), 186/17 (PMMA), 228/22 (PLANPAVEL).
In addition, the PES is supported by international bodies such as the United Nations Environment Programme (UNEP – http://bit.ly/3RgKAsk), international organisations such as WWF (https://bit.ly/44TjnPz), government ministries such as Science, Technology and Innovation (MCTI – https://bit.ly/463TopM) and the Environment (MMA – https://bit.ly/48aL8WH), and the State Secretariat for the Environment, Infrastructure and Logistics (SEMIL – https://bit.ly/44QqQPz).
The PES is coordinated by the Municipal Green and Environment Department (SVMA), in collaboration with the Municipal Economic Development and Labour Department (SMDET) – through the Sampa Mais Rural Programme – and the Urban Planning and Licensing Department (SMUL), according to an article published on the City Hall website: https://bit.ly/44Og5wY.
The City’s Bold and Innovative Vision
São Paulo’s PES stands out for its bold and innovative approach, driven by several reasons, with an emphasis on the methodology for selecting and evaluating properties and efficiency in the use of financial and human resources.
The PES methodology uses geoprocessing tools to cross-reference applicants’ documentation with environmental information previously registered in the Register of Areas Providing Environmental Services (CADPSA), such as maps of vegetation, water resources, the Rural Environmental Register and preservation areas. The properties are classified based on environmental criteria pre-defined in the public notice.
Field inspections are carried out with the aid of GPS to delimit the perimeters of the properties and verify the environmental services in situ, recorded by photos. This approach makes it possible to assess the quality of land use, conservation practices and the applicants’ action plans in the event of approval. In addition, the use of geotechnologies makes it possible to correct information in the Rural Environmental Registry (CAR), contributing to the accuracy of environmental data at the federal and state levels, optimising the financial and human resources of the entities.
The value of the PES is calculated based on these inspections and can reach up to R$45,000 per year per property, which is one of the highest values in similar programmes in Brazil.
This innovative approach to PES not only recognises the environmental services provided by landowners, but also promotes efficiency in the allocation of resources and improves the accuracy of environmental data, contributing significantly to sustainable environmental management at multiple levels.
Partnerships and Collaboration
The São Paulo PES has received support from various municipal, state and federal bodies and institutions since the PMSA was drawn up in 2019.
The Municipal Department of Urban Planning and Licensing (SMUL), through the Connect the Dots Project, provided SVMA with technical assistance to produce the PESP and is currently supplying geologists and managers with the selection and assessment of PESP candidates.
The Municipal Secretariat for Economic Development and Labour (SMDET) contributes through the Sampa Mais Rural Programme, providing agronomists and managers in the selection, inspection and evaluation of properties. In addition, SMDET offers the Ecological Agriculture House (CAE) for use by applicants, including computers, printers and the internet, as well as a meeting room for the teams involved.
The University of São Paulo (USP) is an active partner, with the Institute of Energy and Environment (IEE) collaborating in the preparation of the PMSA and the Faculty of Architecture and Urbanism conducting research to monitor and solve problems identified in the PES.
The Atlantic Forest Connection Project, carried out by the Ministry of Science, Technology and Innovation (MCTI) in conjunction with the State Secretariat for the Environment, Infrastructure and Logistics (SEMIL), was an important partner during the drafting of the PESP, providing valuable insights into PES methodologies and results at the federal level, which inspired the design of the PESP in São Paulo and its notices.
Addressing Urban Challenges
The Issue
The increase in the urban population has had a negative impact on local government, especially in rural and water-producing areas. It has resulted in deforestation, the degradation of springs, the silting up of watercourses and the illegal conversion of rural properties into urban areas.
This has accentuated the challenge of dealing with climate change and protecting natural resources and biodiversity. It has therefore become crucial to incorporate innovative concepts and instruments into urban and environmental planning, such as an understanding of ecosystem services and the idea of financially rewarding those who provide these services.
Deforestation is influenced by several complex factors, including poor housing policies, failures in environmental enforcement and economic interests. PES has emerged as an additional strategy to combat these problems, but it faces competition from activities that are more lucrative than conservation.
In addition to its financial benefit, PES plays an educational role in rural areas, promoting a change in the population’s values and behaviour. However, this process takes time to have a significant impact.
Although PES is not the only solution for conserving ecosystem services, failure to implement it can exacerbate the problem. The illegal sale of plots in rural areas has become an economic alternative for many rural properties. Tackling this issue through enforcement and expropriation alone has proved insufficient. If the PES is unsuccessful, more rural properties may join this clandestine market, often driven by those involved in the illegal sales themselves, who profit from the degradation of the rural landscape.
The Impact of the Issue
The severity of the problem of population growth can be assessed from the point of view of service provision and environmental impacts.
If the population increases at a faster rate than the available financial resources increase, and if the public institutions in charge of providing and supporting these services are not re-equipped, the deficit in this provision, which is already high, increases even more.
The most dramatic effect of this increase is the housing shortage, which leads populations to seek solutions such as slums, tenements and clandestine allotments.
This causes significant environmental impacts, especially those resulting from clandestine allotments near water sources.
Other environmental impacts can be listed: occupation of risk areas, reduction of green areas, reduction of riparian vegetation and occupation of springs and waterholes.
On the urban-rural border, landowners and squatters, faced with the low yields of agricultural production on smallholdings, choose to sell their land to illegal allotment developers. In this way, the urban sprawl in the direction of the water sources increases and thickens.
A Nature Orientated Future
The Payment for Environmental Services (PES) aims to guarantee rural producers or conservationists an income that does not compensate them for selling their land.
In addition, small farmers benefit from the provision of technical assistance and rural extension. Conservationists are provided with income and technical assistance.
Among the requirements for participation in PES programmes is the adoption of ecological agriculture, which benefits consumers and conservation practices, which benefit nature and the environmental services it provides.
Nature Positive Solutions
Implementation
The implementation of the initiative included the drafting of legislative support: the Strategic Master Plan, the zoning law, the Municipal Climate Change Policy law and various CADES resolutions; and at the federal level, the Native Vegetation Protection Law and the Atlantic Forest Biome Protection Law.
Several competing plans for implementing the initiative provided theoretical frameworks, guidelines, targets and deadlines: Municipal Plan for the Conservation and Recovery of Areas Providing Environmental Services (PMSA), Municipal Plan for the Conservation and Recovery of the Atlantic Forest in the Municipality of São Paulo (PMMA), São Paulo City Action Plan for Mitigation and Adaptation to Climate Change (Planclima), Municipal Plan for Green Areas, Protected Areas and Open Spaces (Planpavel) and the Municipal Plan for Urban Afforestation (PMAU). It is also important to include the land use control parameter called Environmental Quota, developed internally.
The PMSA has defined the following priority strategic lines of action:
– strengthening sustainable agriculture;
– economic, financial and tax instruments and incentives;
– reviewing and adapting legislation;
– strengthening the management of protected areas.
Based on these lines of action, targets and deadlines were set.
Among the goals, we would highlight conducting a pilot project, with the following activities:
- definition of objectives and location;
- preparation and publication of a public notice;
- definition of areas benefiting from payments;
- monitoring and payments.
This pilot programme has provided valuable input that will improve future calls for proposals.
Feasibility
Several factors contribute to the viability of PES:
- adequate legal support, including, at municipal level, the Strategic Master Plan, the Zoning Law, the Municipal Climate Change Policy Law and various CADES resolutions; and at federal level, the Native Vegetation Protection Law and the Atlantic Forest Biome Protection Law;
- preparation of the so-called green plans, namely Municipal Plan for the Conservation and Recovery of Areas Providing Environmental Services (PMSA), Municipal Plan for the Conservation and Recovery of the Atlantic Forest in the Municipality of São Paulo (PMMA), São Paulo City Action Plan for Mitigation and Adaptation to Climate Change (Planclima), Municipal Plan for Green Areas, Protected Areas and Open Spaces (Planpavel) and the Municipal Plan for Urban Afforestation (PMAU). It is also important to include the land use control parameter called Environmental Quota, developed internally;
- a vast technical and scientific collection at SVMA, including flora and fauna surveys, technical manuals and information platforms, including GeoSampa;
- a qualified workforce;
- the availability of evaluations of various payment plans for environmental services in different parts of the world;
- a compulsory reserve of 10% of the resources of the Municipal Environment and Sustainable Development Fund (FEMA).
Any initiative produces feedback that will at some point influence the design of legislation, plans and, above all, the content of calls for tender for payment for environmental services.
Multi-Stakeholder Support
Payment for environmental services is widely agreed upon in the technical and scientific communities.
Before the plan was drawn up, various workshops were held at the Academy and with representatives of the state administration. Drawing up the plan involved the efforts of professionals from various bodies and different backgrounds.
Approval of the plan, in the form of a CADES resolution, implied acceptance by civil society, since CADES brings together various representatives from academia, professional bodies and associations, NGOs and representatives of the Public Prosecutor’s Office. In addition, draft plans are given wide publicity and space and time for collaboration by any member of the public.
The drafting of the public notice involved the collaboration of officials from various departments and civil society organisations.
The public participation structures that already existed in the places where the public notice was to be issued helped to publicise and raise awareness of the importance and advantages of the plan.
All these stakeholders collaborated on a multi- and interdisciplinary basis, with professionals from different backgrounds and areas of professional activity and representatives from various organisations.
The debates involved discussing the details of the plan and the public notice, but at no time was there any frontal objection to the concept of payment for environmental services.
Management and Maintenance
Payment for environmental services has long been considered by the body in charge of environmental planning.
This has allowed an accumulation of knowledge over the years based on reflections, internal debates and experiences in other cities.
Much of what the Strategic Master Plan (PDE) dealt with regarding payment for environmental services was the result of these processes. It is important to clarify that the PDE underwent intense public discussion.
The working group in charge of drawing up the PMSA relied on the expertise of the technicians involved until then and professionals from other bodies, above all and especially the state government, as well as civil society. The plan was discussed in a CADES committee and approved by the plenary in the form of a resolution. It’s important to remember that much of CADES’ membership is made up of civil society and prestigious technical and scientific bodies.
This gave it democratic legitimacy and technical and scientific consensus.
Rural landowners had the opportunity to discuss the programme in the existing public participation bodies (regional CADES councils, participatory councils of the sub-prefectures and councils of environmental protection areas).
Nothing was left to chance. All the steps were intensively discussed and planned, resulting in a broad technical and scientific consensus and strong democratic legitimacy. It is important to note that the whole process was built up over a period of years.
Measuring and Reporting Impact
Monitoring Results
No plan or programme under the responsibility of the Municipality of São Paulo can be approved unless: a) it is the result of a public participation process; b) targets, deadlines and result indicators are defined.
The PMSA was conceived with the definition of five priority strategies for implementation and four complementary lines of action. This resulted in clearly defined targets, indicators and deadlines, as well as a source of funding.
The results of the indicators are routinely monitored by the public administration’s control bodies, including the legislature, the Court of Auditors, the Comptroller General’s Office, the Attorney General’s Office and the Public Prosecutor’s Office. All these controls are reinforced by ample transparency, guaranteed by law, in terms of access to data, either on request or by active transfer.
It is important to note that civil servants can be held personally responsible for poor performance through Public Civil Actions, Class Actions and Administrative Improbity Actions, as well as rulings issued by the Court of Auditors and the usual disciplinary procedures.
In addition, the PMSA is continuously monitored by the PDE Implementation Monitoring and Evaluation System.
The PMSA targets, in turn, can be incorporated into the Targets Programme, which is drawn up within six months of the mayor taking office for a four-year term.
Finally, PES targets and indicators can be included for planning purposes and to obtain budget allocations in the multi-annual plan, the budget guidelines law and annual budgets.
Demonstrating Progress
The plan and its programmes are the subject of action by the municipality’s media, either directed at the public or in the form of press releases aimed at media outlets outside the sphere of activity of the municipal executive.
Media communication in the press, discussions about the PMSA in the municipality’s participatory councils, the attention provided by academia and deliberations in civil society organisations produce a virtuous circle of discussion, monitoring and awareness-raising.
From this virtuous circle and the successes of the plan, society’s expectations increase, demanding more and better performance and greater allocation of resources for PES-related activities.
Since São Paulo is the largest and, in some ways, the most important municipality in the country, its policies, plans and programs have a strong impact on Brazil. The fact that São Paulo is an alpha city, according to the classification of the Globalization and World Cities Research Network, with the highest level of classification in the cities of the Global South, in addition to its particularly active role in the C40, means that its initiatives often involve international projection, which attracts resources to improve and expand the programme.
The importance of the city of São Paulo and its attractiveness for studies, discussions, integration of projects and resources can be gauged by the fact that DWIH São Paulo (German Centre for Science and Innovation in São Paulo), an entity sponsored by the Federal Republic of Germany, has only five other counterparts in the world.
Measuring Impact
In view of the above, the PMSA has achieved a high level of consensus, technical quality and democratic legitimacy.
Nineteen targets, indicators, deadlines and the people responsible for monitoring them were defined.
Due to the formal nature of this system, some indicators are presented quantitatively and others qualitatively.
The results are presented through the usual means of disseminating the results of public data (active or passive transfer), which has already been considered here.
In addition, the state of the plan now is the subject of ongoing internal discussions in order to improve future calls for proposals. Meetings, special collegiate sessions and workshops to share and improve these discussions are not ruled out.
Learning and Transferability
Adaption and Enhancement
The PMSA is the result of continuous and intense discussions, interactions and activities.
It is permanent. It follows that the processes of discussion, verification and consolidation of feedback are also permanent.
The contribution of external stakeholders has already been the subject of extensive consideration.
Potential for Replication
The scope of the initiative, both directly and indirectly, is broad enough for it to be safe to say that its mere application has a cascading effect.
Definitely, the current state and future initiatives of the PMSA, along with the set of green plans, will change, for the better, the way in which the public administration and the city’s inhabitants, especially those directly covered by the payment for environmental services, will treat and work with plants.
It is part of the scope of the plan to transfer knowledge to the rural producers themselves, in the form of technical assistance, rural extension, organic production and sustainable agriculture. To the administration, which formally or informally adapts to these plans, promoting institutional strengthening. And, to all those interested in the application of payment for environmental services, who will benefit from the knowledge that is continually collected, processed, consolidated and made available.
Inspiring Other Cities
Cities are constantly exchanging knowledge about Payment for Environmental Services. The availability of knowledge is never denied, and discussion forums are encouraged.
Thus, the interest in São Paulo’s initiative in relation to PES is part of this process, from which the city of São Paulo has benefited.
It is clear that the size of the city of São Paulo attracts the scrutiny of a large number of municipalities, either because of the attention that the city of São Paulo attracts or because of the greater availability of resources, including human resources, which is capitalised on by the effect of scale.
Of course, each municipality will know how to adapt or improve the plans of other cities, such as São Paulo, to its local peculiarities, since a PMSA is the result of political commitments made in discussions held in forums where civil society participates.
Resilience
Reducing Negative Impacts and Ensuring Sustainability
Reducing the carbon footprint:
- protection and promotion of biodiversity;
- promoting carbon sequestration, either through planting or by preventing the removal of vegetation;
- protection of springs and riparian vegetation;
- containment of urban sprawl;
- protecting places of exceptional scenic beauty;
- disseminating sustainable agricultural practices;
- strengthening small farmers, promoting the move from conventional family farming to organic farming;
- adapting properties to environmental legislation;
- increased sense of belonging;
- providing technical assistance and rural extension;
- encouraging agro-ecological planning in the city;
- encouraging the legal normalisation of squatters and legal assistance to beneficiaries;
- maintenance and/or formation of biodiversity corridors;
- protection of indigenous areas;
- creation of ecological stepping stones;
- reducing erosion;
- encouraging the maintenance of Legal Reserves;
- encouraging the creation of RPPNs;
- protection of APPs;
- raising ecological awareness.
The reduction of unintentional negative impacts results from the monitoring intrinsic to payment for environmental services programmes and the continuous improvement provided by the discussion and evaluation of feedback.
Long-term sustainability and resilience cannot be guaranteed due to the very nature of payment for environmental services programmes.
Environmental Considerations
The impacts on the environment are considered through the continuous monitoring of the requirements set out in the public notice by the beneficiaries and their compliance with the technical assistance guidelines regarding sustainable agriculture and compliance with environmental legislation.
Use of Natural Resources
The most appropriate use of natural resources is achieved through continuous monitoring of the requirements contained in the public notice and the technical assistance guidelines regarding sustainable agriculture and compliance with environmental legislation.
