The Federal Constitution of 1988 was the first in the Brazilian system to truly engage in the protection of the environment. According to its article 225, all individuals have the right to enjoy an ecologically balanced environment, while both the government and society are responsible for the achievement of such purpose. The environmental protection also relies on other instruments constitutionally established such as the Environmental Impact Assessment, the creation of protected areas, the environmental permitting procedure and environmental liability.
The primary environmental statutes are the following:
In regard to the main environmental agencies, bear in mind, at the federal level:
As to the state level, state environmental agencies are nowadays the most active agencies with regard to environmental permitting, and its competence for such procedure is due to environmental impacts reaching more than one municipality. Local agencies have also increased their participation in enforcement of environmental policies.
Furthermore, all environmental agencies at federal, state and local levels have powers to inspect and apply sanctions to polluters whenever the environmental damage or violation of a statute occurs within their jurisdiction.
Brazil has ratified several international treaties regarding environmental law that have been internally consecrated through the enactment of Federal Decrees. The main treaties are:
Pursuant to CONAMA Resolution 237/97, there are three consecutive environmental permits, which shall be properly requested:
With respect to the average timeline, bear in mind that it may differ according to the complexity of the venture under permitting.
In the Brazilian system, the social license to operate is related to the idea of transparency and proactivity of a company towards the society and the local stakeholders in general, with the aim of increasing the participation of stakeholders in the decisions made by the company. The participation of stakeholders in the permitting procedures has become usual, especially at the time of the public hearing prior to the granting of an environmental permit by the authority.
In this context, it is necessary to identify the local stakeholders and also the negative impacts that the companys operations may generate in the community, in order to promote measures with an aim to mitigate such negative impacts and foster the engagement of the community.
According to article 20 of the Brazilian Constitution, all mineral resources, including underground resources, are owned by the federal government, meaning there is no private ownership of such reserves prior to their exploitation. Concessions are granted after a procedure of public selection of companies that demonstrate the higher capacity for the exploitation of such resources combined with better paybacks to the government. Selected companies may face the same environmental constraints as any other company.
Bearing in mind that Brazil has a large potential for renewable energy generation that is increased by government incentives, clean energy has become one of nations main key developments for international investors.
First of all, considering that renewable energies generate lower environmental impact, the monetary environmental compensation due to Federal Law 9985/2000 shall equally be lower.
Second, all renewable energy projects installed in isolated areas within the north region of the country may receive subsidies in order to stimulate clean energy development of areas lacking infrastructure. In addition, the PROINFA programme represented the main initiative of the Brazilian government in promoting renewable energy so far, especially wind power, biomass and hydro power generated by independent producers.
Furthermore, as established by Federal Law 9991/2000, all public energy distributors shall annually apply at least 0.75 per cent of its revenue in research for the development of electric system and 0.25 per cent in electrical efficiency programmes. Finally, note that renewable energy has also been subject of many tax incentives.
In Brazil, breaching of environmental law may unfold in criminal, administrative and civil liabilities.
Environmental civil liability is subject to the strict liability regime, which imposes liability in spite of fault or negligence. As such, liability requires environmental damage and chain of causality, most decisions regarding breaches of environmental law are appealed upon the non-existence of such elements.
As to administrative liability, it is important to highlight that there are 10 different penalties applicable to those who violate administrative law, while proof of fault or negligence may or may not be necessary, depending upon the case.
Finally, criminal liability is based upon negligence or fault, and these features are essential for such liability. Hence, most appeals regarding criminal liability are usually based upon the absence of these elements.
With respect to authorities responsible for enforcement, the Public Prosecutor at the federal or state levels may judicially file a suit claiming environmental civil and criminal liabilities, as well as any other entity legally entitled to file the respective suit. As to administrative liability, environmental agencies may make use of legally established penalties, which include administrative fines and restraints, as it will be seen in question 9.
For environmental law purposes, administrative infractions are considered as any action or omission that violates rules of use, enjoyment, protection and recovery of the environment. Pursuant to Federal Decree 6514/2008, administrative penalties may consist of:
As to criminal penalties, Federal Law 9605/1998 lists over 60 different environmental crimes, with penalties that may consist of fines, restraints, community services, or even prison, while legal persons are subject to suspension of activities, embargo of works and activities and temporary closure, regardless of restriction of tax and financial incentives.
First, CONAMA Resolution 05/1989 established the National Program of Air Quality Control (PRONAR) as one of the main instruments of environmental management aiming to protect of public health and increase human development. Afterwards, CONAMA Resolution 08/1990 was approved with the purpose of setting the maximum limits of emissions for external combustion processes.
As to point sources, the main regulation currently applicable is
CONAMA Resolution 382/2006. With respect to non-point sources, pursuant to CONAMA Resolution 03/1990, states are in charge of inspecting air quality, which is why most of them have their own air quality control system and regulations.
In addition, most of Brazils metropolises rely on specific air pollution standards, which may indicate areas of atmospheric saturation where the installation of new point-sources may depend on mechanisms for lowering emissions.
In our legal system, a strict liability regime is applicable to any environmental damage, meaning the simple ownership of polluted land and natural resources is subject to environmental civil liability, as it represents a propter rem obligation. In other words, the liability is based on status of the contaminated resource, but not on fault of the landowner. Therefore, the current landowner may be deemed liable for repairing environmental damages that already existed at the time of acquisition.
At the federal level, CONAMA Resolution 420/09 has established a standard procedure and with an aim to ensure the identification, public disclosure and remediation of contaminated sites. The CONAMA regulation sets out the criteria and guiding principles for checking soil quality for the presence of chemicals and establishes guidelines for environmental management of areas contaminated by such substances as a result of human activities.
At the state level, it should be highlighted that São Paulo State Law 13577/09 was passed in order to ensure that contaminated sites are subject to adequate identification, public disclosure and remediation.
As stated in question 11, the strict liability regime is applicable to any environmental damages, meaning ownership of polluted land and natural resources is subject to environmental civil liability, as it represents a propter rem obligation. Therefore the new landowner can be deemed liable for repairing environmental damages that already existed at the time of acquisition.
The enforcement for recovery of such damages can be performed by either the Public Prosecutor or the environmental agency, at the judicial or administrative levels.
Regardless of such liability, new landowners may still have the right to recover from expenses for such environmental recovery, by filing a private lawsuit against the previous landowners who caused such contamination.
Given the strict liability regime consecrated in Brazils legal system, mergers and acquisitions demand special care while evaluating environmental liabilities.
Most cases of environmental liability from such operations involve environmental permits held by the old companies, as well as previously contaminated areas. For this reason, due diligence prior to the merger or acquisition is highly recommended, as it is extremely important to undertake analysis of all permit procedures at the environmental agency with the purpose of addressing any violations or liabilities that may have been found.
Moreover, the analysis of previous environmental records of the company is highly recommended in order to fully understand the history of the companys environmental issues. Finally, an environmental clearance certificate from the environmental bodies and public attorneys is very important for the knowledge of any remaining environmental issues.
In the Brazilian system, there are no specific laws applicable to the shutdown or sale of a facility. However, note that, depending on the activity being shutdown, it may be necessary to obtain authorisation from the environmental agency responsible for the permitting procedure, in order to ensure that the shutdown is being properly executed, and there is no contamination or environmental liabilities whatsoever left behind.
As for the sale of a facility, the same measures mentioned in item 14 above are recommended in order to separate environmental obligations between the previous owner and the new owner.
At the federal level, there are technical norms that set the guidelines for the carrying out of environmental audits (International Organization for Standardization NBR ISO 14010, NBR ISO 14011 and NBR ISO 14012). However, at the state level, several states have passed laws with the aim of making the environmental audits mandatory on a recurrent basis for certain ventures, especially those with a higher complexity level and most significant environmental impacts.
As for environmental assessments, most of them are requested by the environmental bodies at the permitting procedure, or whenever necessary for the remediation of contaminated natural resources, meaning they are mostly performed at the request of the environmental body.
At the federal level, CONAMA Resolution 01/86 foresees the minimum content of environmental impact assessments, while most state agencies have also set their own requirements for the approval of environmental impact assessments that may vary according to the complexity of the activity assessed. Furthermore, the process for conducting and receiving approval of environmental assessments is set forth in CONAMA Resolution 237/97.
Once an environmental permit is requested, the applicant shall provide the environmental agency with sufficient information as to allow a previous understanding of the activity and environmental impacts it could generate. Therefore, once such information is gathered, the Environmental Agency might request more specific assessments from the applicant, in accordance with the complexity of the activity and its effects. For instance, oil exploration activities are legally bound to demand specific studies, given their potential for causing environmental damage.
The environmental agency thereafter issues a document to be used as a reference for the applicant upon the preparation of environmental assessments. Such document brings the necessary content for providing the agency with the information considered relevant for the approval of the project under analysis, based on CONAMA Resolution 01/86. In case the environmental assessment is considered insufficient, the agency may demand complementary information or even deny the permit requested.
With respect to the timetable, kindly note that article 14 of CONAMA Resolution 237/97 sets forth that the environmental agency may establish different deadlines for analysis for each category of license (LP, LI and LO), because of the peculiarities of the activity and project involved, as well as for the formulation of additional requirements, provided the maximum period is of 6 months from the act of filing the application up to its acceptance or rejection, except in cases where there are complex environmental assessments or public hearing, when the period shall be of 12 months. Nevertheless, it is important to highlight that such terms are only used for reference purposes, and most environmental bodies in Brazil do not apply them strictly.
Federal Law 9433/97 establishes the National Policy on Water Resources, according to which the granting of use of water resources aims to ensure the quantitative and qualitative control of water use and the effective exercise of rights concerning access to water.
With respect to water rights, article 12 establishes that the following activities are subject to the obtaining of a grant:
Moreover, note that all grants shall be conditioned to the use priorities established in the Water Resources Plan and shall comply with the class in which the watercourse is framed. Also, the granting of use of water resources should preserve the multiple uses of the watercourse.
Finally, it is important to highlight that the transfer of water rights to a third party shall retain the same characteristics and conditions of the original grant when approved by the licensing authority and shall be subject to new administrative act appointing the new holder, according to article 2 of Resolution 16/2001 of the National Water Resources Council CNRH.
As seen in question 19, the discharge of any waste substances in the watercourse, whether liquid or gaseous, with the purpose of dilution, transport or disposal, is subject to a grant, following the established in Federal Law 9433/97.
CNRH Resolution 16/2001 sets forth that the granting of the right to use water for industrial discharge will be given in amount of water needed to dilute the pollutant load, which can vary over the timetable of the grant, and shall be based on the standards of water quality corresponding to the class of the receiving watercourse and specific criteria defined in the relevant water resources plan or by relevant agencies. Still at the federal level, CONAMA Resolution 357/2005 sets forth the conditions and standards for discharge of wastewater, which must be complied with.
At the state level, there may be different requirements for the discharge of industrial wastewater. For instance, in the state of Rio de Janeiro, it is mandatory that the discharge of industrial wastewater is performed upstream of the point of collection, with the aim to ensure that all the precautions are taken into account by the industry, since it will be recapturing its own diluted wastewater.
Federal Law 12187/2009 represents Brazils commitment to addressing greenhouse gas emissions. This law sets forth the National Program of Climate Change, through which the country undertakes to reduce greenhouse gas emissions by up to 38.9 per cent by the year of 2020.
Furthermore, with respect to the Clean Development Mechanism foreseen in article 12 of Kyoto Protocol, it is worth mentioning that Brazil also relies on such instrument for the achievement of GHG emission reduction goals. Pursuant to Federal Decree 7390/2010, along with CDM, the government also promotes renewable energy generation and decrease of deforestation. CDM is also enforced by Federal Decree 7404/2010, which regulates the National Policy on Solid Waste.
Finally, it is important to note that industries shall have its emissions duly assessed and restrained by the environmental agency, as the case may suggest, upon the application for an environmental permit.
Following the international trends, several Brazilian states have prohibited the use of any material containing asbestos. Furthermore, at the federal level,
CONAMA Resolution 307/2002 sets forth that civil construction waste contaminated with asbestos is classified as hazardous waste, and must be properly handled and sent for adequate disposal.
With respect to PCBs, note that Brazilian legislation has prohibited the production of PCBs since 1981. Moreover, as mentioned in question 3, Brazil has ratified the Stockholm Convention on Persistent Organic Pollutants (POPs), which has been enforced through Federal Decree 5472/2005. Therefore,
the production of PCB has been prohibited with no exceptions, while its use was restrained to a few allowances foreseen in the convention. Also, state environmental bodies may equally set higher restraints for the use of PCBs and other POPs.
Pursuant to Federal Law 9985/2000, there are 12 different kinds of environmentally protected areas divided into two groups: areas of sustainable use and areas of full protection. In areas of sutainable use, the exploitation of natural resources shall be performed harmoniously with the purpose of safeguarding renewability of such resources and ecological features of the environment, in order to maintain biodiversity and promote development in a sustainable manner. On the other hand, areas of full protection are those in which ecosystems shall be free from human interference, as their natural resources shall only be of indirect use.
With respect to fauna, Federal Law 5197/1967, also known as the Fauna Protection Law, sets forth that animals of any species and in any stage of development living out of captivity shall constitute wildlife fauna and are considered property of the government. Flora protection is mainly enforced by Federal Law 4771/1965, also known as the Brazilian Forestry Code, which establishes the most important rules on the subject, as well as special rules for removal of protected vegetation. Also, as one of Brazils most important ecosystems with incredible biodiversity, Mata Atlântica gained its own protection Law (Federal Law 11428/2006), which is the main legal instrument for regulating use and enjoyment of such ecosystems in harmony with its protection. Moreover, bear in mind that Brazil has a ratified Washington Convention, which is enforced through IBAMA Resolutions, setting forth the main regulations on the protection of endangered fauna and fauna.
Finally, the Federal Constitution of 1988 sets forth in article 216 that Brazilian cultural heritage consists of assets that bear reference to the identity, action and memory of the various groups that form the Brazilian society. Therefore, the government, in cooperation with communities, shall promote and protect the Brazilian cultural heritage, by means of inventories, registers, vigilance, monument protection decrees, expropriation and other forms of precaution and preservation. Accordingly, IPHAN is the main federal agency in charge of such protection and its competence includes the authorisation for projects in areas surrounding relics, as well as applying sanctions to those who anyhow damage cultural heritage.
Availability of landfills for disposal of waste has become one of the major environmental concerns for the Brazilian government, considering that the country does not rely on sufficient authorised landfills for the adequate treatment and disposal of all waste generated in the country.
Nevertheless, bear in mind that the Brazilian system consecrates the strict liability regime as far as environmental damages go. As an effect, it is highly recommended that all companies hired for the transportation and disposal of solid waste have their environmental permits up to date and valid.
Furthermore, considering the hazards that irregular disposal of waste may give rise to, the State of Rio de Janeiro has launched an ambitious programme aiming to replace all irregular landfills with duly permitted ones over the next decade, through partnerships between the state government, municipalities and private entities. Still, presently most Brazilian states do not have enough landfills for adequate disposal of waste.
Federal Law 12305/2009 sets forth the reversed logistics system, meaning all manufacturers, retailers and distributors of pesticides, batteries, tires, lubricating oil, fluorescent lamps and electronic devices and their components, shall take these products back after consumption, regardless of the public garbage collection service.
Federal Law 10650/2003 grants to all individuals access to any document or administrative procedure regarding environmental matters under safeguard of all agencies part of the National Environmental System (SISNAMA). Such data may include information regarding environmental quality, policies, inspections, audits, accidents, emissions, toxic and dangerous substances, biological diversity and genetically modified organisms.
Federal Law 10650/2003 also ensures the confidentiality of any commercial, industrial, financial or any other secrecy protected by law, as well as those related to internal communications of governmental organizations and entities. Any individual with access to such information shall assume the obligation of not using them for commercial purposes, under the penalties of civil, criminal and copyright laws, as well as industrial property.
Once the environmental impact assessment required for environmental permitting is accepted by the environmental agency, it is subject to a public hearing for the presentation of the project. On such an occasion, the applicant must explain to society all potential environmental impacts that may be caused by the project and the proposed remedies for these impacts, as well as the compensating measures for those unable to be eliminated or mitigated; all of the communitys questions, doubts and concerns must be answered. NGOs, environmental groups and, most importantly, citizens frequently take part in such hearings.
At the judicial level, pursuant to Federal Law 7347/1985, environmental damages are subject to public class actions for demanding an affirmative covenant or indemnifying environmental damages caused. Furthermore, Federal Law 4717/1965 regulates popular action, which can be employed for the protection of the environment and recovery of any environmental damage.
This lawsuit can be filed by any citizen.
Recently, the Ministry of Environment has passed regulations relating to the permitting procedure of key developments in Brazil, such as offshore oil & gas exploitation, electric power transmission, federal roads and seaports. These new regulations provide straightforward procedures for classification of each new project among different categories, which may require more or less complex environmental assessments. Likewise, new regulations established terms to be complied with by both the applicant and the environmental agency, considering the need for increasing the efficiency of permitting procedures.
Finally, bear in mind that such regulations have also reinforced the obligation of obtaining environmental permits for old developments that are still operating without environmental authorisation, which opens a significant possibility for reassessing projects that were implemented decades ago, with lower environmental concerns.
Among the several noteworthy decisions reached by Brazilian courts relating to environmental liability, the following should be highlighted:
The main features of the Brazilian environmental laws not covered by the previous questions are:
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