Legibility and state capacities

the case of the Popular Consultation for Traditional Peoples and Communities in the socioeconomic reparation of Brumadinho/MG

Abstract

This paper analyzes the participatory stages preceding the implementation of socioeconomic reparation projects for the dam collapse caused by Vale S.A. in Brumadinho and other affected municipalities, focusing on the transition between the General Popular Consultation and the Popular Consultation for Traditional Peoples and Communities (PC-TPCs). The research is conducted through document analysis, semi-structured interviews with key stakeholders, participant observation, and the central application of the concepts of legibility, cognitive state capacities, and symbolic institutionalization. The study identifies that the initial experience was carried out in a uniform and standardized manner, disregarding difficulties in accessing the digital tools provided, as well as the essentially collective forms of social organization and decision-making inherent to traditional communities. Consequently, these traditional collectives voiced their dissatisfaction through socio-state interactions characterized by both conflict and dialogue. The findings indicate that the mobilization of these groups resulted in the symbolic institutionalization of their categories and rights, leading relevant institutional actors to "see like a social movement". This shift resulted in the creation of the PC-TPCs, not initially planned, which involved adapting workflows and stages, leading to significant changes in method, format, and deadlines. Furthermore, additional stages were incorporated to deepen the influence of traditional collectives and allow for the proper integration of community consultation protocols. While progress is evident between the two experiences, limitations persist, such as the restriction of one project per community, budgetary ceilings for each initiative, and delays in execution.