REGIONAL DEVELOPMENT IN SOUTHERN VENEZUELA: THE PLANNERS HAVE SOME PROBLEMS

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP84-00825R000300200001-8
• Release Decision: RIPPUB
• Original Classification: C
• Document Page Count: 31
• Document Creation Date: November 16, 2016
• Document Release Date: November 9, 1999
• Sequence Number: 1
• Publication Date: May 1, 1974
• Content Type: REPORT

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Confidential
Regional Development in Southern Venezuela:
The Planners Have Some Problems
Confidential
BGI RP 74-16
May 1974
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CONTENTS
Summary .
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1
Introduction
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2
CODESUR Goals .
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3
The Environment
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5
Transportation
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7
Agricultural Potential
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Minerals ? ?
Forest Products
Indian Acculturation
Population Centers
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Outlook .
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APPENDIX .
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Following Text
MAPS:
A - Venezuela
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Facing Summary
B CODESUR
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Following Text
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Rishacha
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Netherlands
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Map A
Puerto
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ay Los T ues
Cuman'a
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Turneremo
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Part of CODESUR development region.
' but not covered by its statistics and f
, development plans.
Guyana
Santa Ele a
Colombia
VENEZUELA
CODESUR
Railroad
Road
502163 4-74
Braz
4 BOUNDARY REPRESENTATION I?
- NOT NECESSARILY AUTHORITATIVE -7
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Central Intelligence Agency
Directorate of Intelligence
May 1974
SUMMARY
CODESUR, one of Venezuela's eight regional
authorities, plans to begin development of southern
Venezuela by improving the waterways, building air-
fields, and constructing a network of roads. Once
penetration routes are established, it can proceed
more rapidly with its modest plans for agricultural
colonization. Although the soils have considerable
agricultural potential, the agricultural development
program will be limited by the large capital expend-
itures required to convert tracts of rain forest to
cropland and to introduce modern farming methods.
Recent mineral discoveries, on the other hand, may
prove valuable enough to warrant the large capital
investments needed for their development. If so,
some of the basic support facilities constructed
for the mining industry could also support other
economic activities, such as agriculture and forestry.
CODESUR hopes to develop methods of economically
exploiting its heterogeneous forest stands and to
increase forest-gathering activities. Establishment
of civilian/military population centers along with
the gradual acculturation of the indigenous population
will contribute to the effort to make the south a
vital part of Venezuelan national territory.
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REGIONAL DEVELOPMENT IN SOUTHERN VENEZUELA
The Planners Have Some Problems
1. Encouraged by the spectacular success of its first
regional development authority, the Government of Venezuela
proceeded to establish seven more authorities, one for each
of the eight development regions. The Commission for
Development of the South (Comision Para el Desarrollo del
Sur -- CODESUR), established in June 1969, was given regional
planning responsibility for 240,000 km2 (93,000 mi2) of
wilderness that includes all of the Federal Territory of
Amazonas and parts of the States of bolivar and Apure.
Comprising more than a quarter of Venezuela's land area,
most of the region is covered by tropical rain forest and
is virtually unpopulated except along the rivers. It
supports less than 1 percent of the Venezuelan people.
2. Although planners hope that CODESUR will parallel
the successful development of the Corporacion Venezolana
de Guayana (CVG), the first development authority, there
are significant differences in the two regions. CVG was
fortunate in having rich deposits of iron ore and bauxite
along the northern periphery of the Guayana Region close to
established transportation lines, sources of energy,
population centers, and land suitable for agricultural
development. As a result of the CVG development program,
the area now boasts steel, aluminum, and cement plants,
two large hydroelectric stations, a rapidly growing urban
center of 150,000, and a flourishing agricultural reclamation
and settlement program. The developed area, however,
represents less than 10 percent of the overall region, and
NOTE -- This memorandum was prepared by the Office of Basic
and Geographic Intelligence and coordinated within the
Directorate of Intelligence. Comments and questions may be
directed to Code 143, Extension 2819.
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few economic or social benefits have yet spread to the
relatively inaccessible interior. In terms of its physical
environment and general inaccessibility, the CODESUR region
is comparable to interior Guayana and not to its developed
fringe.
3. CODESUR (a term now used for the area as well as
for the Commission and the program) was initiated by the
COPEI (Conservative Social Christian Party) administration
as part of its economic development program. Given the new
administration's intention to focus on domestic matters and
find ways to ease social tensions, President Perez will
probably wish to capitalize on this initial effort. When
former President Caldera made his official visit to Washington
in 1970, President Nixon offered to assist in carrying out the
program, and the United States subsequently gave $100,000 in
AID funds and loaned some aircraft.
CODESUR Goals
4. The principle objectives of CODESUR, as laid out in
the Fourth Plan of the Nation (1970-74) are:
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to bring the presence of the Venezuelan
State into the region;
to raise the socio-cultural and economic
standards of the people; and
to incorporate the riches of the region
into the development of the country.
To achieve these goals CODESUR has already initiated several
development projects (see Appendix) and has plans for more.
The recent discovery of important minerals at Cerro Impacto
has given the program economic impetus, and concern over
Brazilian plans to colonize its adjacent Amazonian lands
has spurred rapid movement to make the CODESUR region a
vital part of Venezuelan national territory.
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Piedra de Cocuy a typical
tepui forms a picturesque
backdrop for the newly
founded border town of San
Simon de Cocuy.
Penetration of formidable physical environment is not easy
even with help of modern equipment.
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The Environment
5. CODESUR includes much of the upper part of the
extensive Orinoco River basin. From highlands along the
Brazil-Venezuela border, irregular belts of mesas and hills
project toward the west and north, separating lowlands
along the middle Orinoco, and the Ventuari, Casiquiare,
and Negro Rivers. The high mesas (referred to locally as
tepuyes) have sheer sandstone escarpments, which provide
a spectacular scenic backdrop for the area.
6. Except for areas of open savanna, primarily in the
north, the region remains largely unexplored. Tropical
forests, which thrive under the climatic regime of high
temperatures and abundant rainfall throughout the year,*
cover about two-thirds of the region. The dense vegetation,
together with steep slopes in parts of the highlands and
soggy terrain in the lowlands, has hampered ground explora-
tion. Similarly, a high frequency of cloud cover and heavy
rains have impeded aerial reconnaissance and photo-mapping.
Most exploration, therefore, has been by dugout canoe.
Although the streams of the region are interrupted by
numerous rapids, the dugouts, some with outboard motors,
can negotiate all but the larger rapids and can be portaged
around those.
7. With the development of side-looking airborne radar
(SLAR) as a means of penetrating cloud cover, CODESUR gained
a practical tool for mapping its area and assessing the
resource potential. Coverage of the area by SLAR has now
been completed, reconnaissance-scale maps are being compiled,
and information on which to base developmental planning is at
last becoming available.
Rainfall averages 20 to 38 cm (8 to is inches) monthly.
Washington D.C.'s average for July, its rainiest month, is
12.4 cm (4.9 inches). Temperatures average close to 27?C
(80?F) for every month.
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Makiritares Indians encounter
difficulties with navigation
on a tributary of the upper
Orinoco in the dry season.
Tamatama, where the Brazo Casiquiare joins the upper
Orinoco.
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Transportation
8. Development of CODESUR has been greatly hampered
by its inaccessibility, and the opening of access routes is
the region's most urgent need. Until recently, commercial
transportation has been confined to the waterways except for
the 95-kilometer (60-mile) road constructed to bypass the
Atures and Maipures Rapids (raudales) on the Orinoco. Water,
land, and air networks are now planned to complement one
another to make the entire area accessible for development.
9. There is regular navigation by shallow-draft
river boats on the Orinoco River between Puerto Ayacucho
and ports downstream. The controlling depth is 2 meters
(6 feet) in the dry season. Navigation between Puerto
Ayacucho and Samariapo is interrupted by rapids, but upriver
from Samariapo launches operate year-round on the Orinoco as
far as La Esmeralda and on its tributary, the Rio Ventuari,
to San Juan de Manapiare. Dugouts ply the upper reaches of
the main rivers beyond the operating range of the launches.
A natural waterway navigable by launches, the Brazo Casiquiare,
connects the Orinoco and the Rio Negro, a tributary of the
Amazon. This unusual stream, extending across the water
divide between two river basins, is an example of the partial
capture by one stream, the Rio Negro, of the headwaters of
another, the Rio Orinoco. Although the Brazo Casiquiare is
sluggish, shallow, and meandering, at present it and the Rio
Nenro provide the only practical means of surface communication
between the CODESUR region and Brazil.
10. Although a navigable link between the lower Orinoco
and the Amazon is a long cherished dream of many Venezuelans,
efforts to interest Brazil in such a project have failed.
Brazilian authorities maintain that the waterway is a futur-
istic project without economic foundation. Nevertheless, on
31 March 1973, the Venezuelan Ministry of Public Works
announced that the CVG, the National Institute of Waterways,
and the National Hydraulic Laboratory will prepare proposals
for a canal to connect the Orinoco and Negro Rivers within
southern Venezuela -- presumably, connecting the Rio Atabapo,
an Orinoco tributary, and the Rio Guainia, a Negro tributary,
in order to bypass the roundabout Brazo Casiquiare. Details
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are lacking, but the project will probably also include
elimination of the Atures and Maipures Rapids, either by
blasting a deeper channel or by damming the river at Puerto
Ayacucho and constructing a system of locks. The announcement
did not specify the types and volume of commodities to be
transported on the improved waterway.
11. CODESUR's highway construction plans call for a
1,211-kilometer (752-mile) network of roads. Work has been
completed on a road system within the San Juan de Manapiare
basin, and the penetration road from Caicara is under
construction. It is planned to continue this road southward
to the southern border with Brazil. Shortages of construction
materials, heavy rains and seasonal flooding, and the task
of forest removal make road construction difficult and costly.
CODESUR considers the forest barrier so formidable that it is
considering the possibility of using defoliants as a tool in
the clearing process.
12. Some 20 landing strips have been built throughout
the region, and several existing airports have been improved.
The Puerto Ayacucho and San Juan de Manapiare airports now
have control towers, beacon systems, and runways capable of
handling C-130's and DC-3's.
Agricultural Potential
13. Optimists see the rain forest of the CODESUR region
as the expression of a rich environment capable of supporting
a large agricultural population. Paradoxically, rain forests
grow on some of the world's least fertile soils, generally
unsuited to permanent cultivation without the introduction
of costly modern farming practices. The lush vegetation
derives from a fragile ecological balance -- a continuous
recycling of nutrients between the soil and plants. At any
given time the bulk of the nutrients is held within the
plants rather than the soil, and if the forest is cut,
breaking the nutrient cycle, only a minimal nutrient reserve
remains in the soil.
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14. The shifting cultivation practiced by the Indians
is one way of adapting to the low natural fertility of the
soil. This is a primitive system of land rotation whereby
a patch of forest is cleared and cultivated for 2 or 3 years
and then is abandoned as the soil nutrients are depleted and
yields decline. Natural regrowth of vegetation and regener-
ation of the soil occur gradually, and after a period of 5
to 15 years the plot may again be cleared and cultivated.
The system works well in sparsely populated areas; but, as
population increases, the competition for land ususally
results in a shortening of the fallow period, and progressive
exhaustion of the soil follows.
15. The soils that occur in the highland areas of
CODESUR are better suited than most tropical soils to
traditional (low capital input) farming practices --
particularly for deep-rooted perennial crops such as
sugarcane. Although research on tropical soils is still
in its infancy, there are indications that these soils could
reach high to very high productivity levels with the proper
application of fertilizers and with the introduction of
mechanized farming techniques where slopes are not excessively
steep. Erosion and leaching become problems when ground is
bared for mechanized cultivation in the rainy tropics; but
the favorable physical properties and high structural
stability of the soils in this area reduce the risk of
erosion to a minimum.
16. The lowland soils of the region vary considerably
in their agricultural potential. Those not subject to
flooding have considerable development potential for
mechanized farming and for cattle ranching, but they are
not well suited to traditional farming methods. On the
other hand, the natural fertility of the soils on seasonally
flooded land is maintained at a relatively high level
through the deposition of silt by flood waters, and
traditional cultivation and cattle grazing can be practiced
on the better drained lands during the low water season.
With the construction of drainage and flood control works,
these heavy clay soils could be cultivated much more
intensively.
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17. Although the soils of the region have considerable
potential for producing high crop yields under modern farming
methods, large capital expenditures will be required to
convert any sizable tracts of rain forest to modern mechanized
farms. In addition to the basic need for clearing and pre-
paring the land for cultivation, chemical fertilizers and a
whole array of facilities -- access roads, telecommunication
nets, sources of energy, storage and marketing, credit
establishments, agricultural extension and educational and
medical services -- would have to be provided for a successful
agricultural program.
18. The CODESUR plans for agricultural colonization
are quite modest and appear realistic. The planners believe
that colonization of the San Juan de Manapiare basin will be
economically feasible when the road under construction from
Caicara has been completed. Plans call for moving some
families with agricultural experience into the area even
before then, with a market for their products guaranteed
through the Corporacion de Mercadero. Credit will be
granted by the Agricultural Bank and the Agronomy Institute,
and the army and navy will help with the transportation of
products to market. In addition, CODESUR is encouraging
cattle raising on available grasslands along the northern
periphery of the region on the Orinoco.
Minerals
19. The discovery by radar survey of the Cerro Impacto
"mineral mountain" gave a considerable boost to the CODESUR
program. This find, "100 kilometers from San Juan de
Manapiare," has the appearance of a meteoric tepui, or mesa,
500 meters high, 1 kilometer wide, and 6 kilometers long.
Geologists have determined that it contains thorium, uranium,
niobium, manganese, and iron. The site can be reached only
by helicopter, and Venezuela has released very little
information regarding its exact location or the size of its
reserves.
20. A discovery of "great quantities" of manganese in
the center of Amazonas Territory, near the headwaters of
Rio Paru, was announced in May 1973. The vague terms used
to describe minerals and their location may be due to the
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desire of CODESUR and Ministry of Public Works officials to
keep mining strictly a Venezuelan venture; however, surveys
and investigations have not been completed, and sufficient
data may not yet be available.
21. Presently, mining in the region is limited to
small ventures such as the helicopter-supported diamond
operations south of Cuchivero. Helicopters fly food,
mining supplies, fuel, and passengers into the rain forest,
where alluvial diamonds are washed from stream beds. It
is doubtful that operations producing minerals of less unit
value than diamonds could bear the cost of air transport.
Individual prospectors stake out small claims and start
digging for their fortunes, but no large mining companies
yet operate in the area. A Franco-Venezuelan exploration
party discovered bauxite, gold, and other minerals in Amazonas
Territory in 1951, but the lack of transportation facilities
blocked exploitation.
Forest Products
22. There is much valuable timber in the tropical
forests. So many different species of trees occur, however,
that uneconomically large areas would have to be exploited
to find enough trees of any given species. A comprehensive
experimental project is planned, with assistance from the
French, to develop an industry that will use all the various
species in a given area.
23. With the decline of rubber operations after World
War II, the gathering of chiquichique, a long-fiber palm
that grows in the rain forest, became a means of ready cash
for the natives. Originally used as roofing material for
Indian dwellings, this fiber is now used to make brooms,
mats, and bags. Other minor forest products are chicle
and seje, an oil-producing palm.
Indian Acculturation
24. There are some 20 Indian tribes in the region.
These primitive, seminomadic people, living in relatively
peaceful coexistence, subsist on shifting cultivation
supplemented by hunting and fishing. Except around the
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A military/civilian center,Solano,in the throes of construction.
The presence of the national government in CODESUR: The Rio Negro Hydrology
Office of the Ministry of Public Works.
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established missions their numbers can only be estimated.
A 1973 CODESUR publication gives the censused population
for the region, including acculturated Indians, as 29,444.
The estimate for nonenumerated forest Indians ("indigena
selvatica") is 21,520.
25. Indian missions have been in the area for many
years. Under a 1937 agreement, the Salesian Society (Roman
Catholic) established a mission with jurisdiction over the
entire Federal Territory of Amazonas and has built schools,
medical facilities, and a museum of Indian lore and wildlife.
The New Tribes Mission (Protestant) has been active in the
Territory since 1948. Although it has not been given official
status, this mission has been commended by the Government for
its efforts to bring civilization to the Indians by divisinq
an alphabet for the Indian languages and by creating a basis
for economic exchange. Having taught the Indians to read
and write their own languages, the missionaries can now teach
them Spanish -- one of the prerequisites for becoming part of
the Venezuelan nation.
26. Although foreigners, including missionaries, are
legally forbidden to live in border areas, the Frontiers
Commission has softened its enforcement policy with respect
to the missionaries because of the great strides they have
made toward Indian acculturation. The officials have "looked
the other way" in order to allow the missionaries to continue
their work with the Indians and their maintenance of airstrips
for CODESUR in border areas.
27. The missionaries and other groups interested in
protecting the Indians have opposed a CODESUR plan to include
safaris into Indian territory as part of a program to develop
tourism. CODESUR officials now concede that the safaris
would not be desirable.
Population Centers
28. CODESUR has planned civilian/military population
centers at Solano, Santa Lucia, and other frontier locations
to show the flag and protect the borderlands from encroachment
by Brazil or Colombia. A larger town, with a civic center as
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well as residential and commercial buildings, is under con-
struction at San Simon de Cocuy -- at the southern tip of
Amazonas Territory where the borders of Colombia, Brazil, and
Venezuela meet.
29. A program for constructing schools and public health
buildings is underway in San Fernando de Atabapo, Puerto
Ayacucho, San Juan de Manapiare, Maroa, and San Carlos de Rio
Negro. Dispensaries are to be established throughout the
region. The proliferation of disease vectors under conditions
of high temperature and excessive moisture accentuates the
problem of health care in the tropics. Common illnesses
occurring in the CODESUR region include malaria, diarrhea,
blindness, measles, and skin lesions. Available statistics
indicate that respiratory and intestinal diseases are the
principal causes of death.
30. Other projects include a School for the Advancement
of Indians in Santa Barbara, a cultural center in Maroa, and
an auditorium in San Carlos de Rio Negro. An educational
radio station at San Juan de Manapiare, "Voice of CODESUR,"
broadcasts in several Indian languages as well as in Spanish.
Outlook
31. CODESUR is a long-range program planned to give
impetus to the slow process of integrating the region into
the national life of the country. Tangible results have
been few, and CODESUR is unlikely to present a highly
visible profile, comparable to that of CVG, for many years.
Completion of the SLAR survey was only the first important
step in providing a solid data base from which preliminary
economic feasibility studies can be made.
32. Insufficient data have been released to indicate
the significance of the mineral finds. It is possible that
the development of rich mineral reserves, together with
forest and agricultural products, will eventually generate
sufficient need for low-cost bulk transportation to justify
canalizing the lower and middle reaches of the Orinoco.
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There seems to be little justification, however, for
constructing a waterway between the Orinoco and the Amazon.
There is little basis for exchange of agricultural and
forestry products between the Amazonian regions of Brazil
and Venezuela, and Brazil is already developing its own
wealth of mineral reserves.
33. The modest program of agricultural colonization
in the san Juan de Manapiare basin appears realistic, but
dreams of settling large numbers of people from overpopulated
parts of the country in the empty rain forests do not seem
feasible. The costs for economic and social infrastructure
would be high, and modern mechanized farming tends to be
capital intensive rather than labor intensive. For the
most part, the plans to establish small settlements in the
border areas represent token efforts to show the flag,
rather than serious efforts to establish viable agricultural
nuclei.
34. CODESUR undoubtedly has various resources that can
and should be developed, and practical steps toward diversifying
the national economy -- now overly dependent upon oil -- should
be encouraged. The region cannot, however, be fully integrated
into the national economy within a short time.
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APPENDIX
Development Projects
From statements made by Minister of Public Works in June
1973 after an inspection tour of the projects underway in
CODESUR.
Roads
Completed:
San Juan de Manapiare internal road
system
Minicia - San Fernando de Atabapo
Santa Barbara - San Antonio
Puerto Ayacucho - Puerto Paez
Under
Construction: Caicara - San Juan de Manapiare
Samariapo - San Pedro
La Urbana - North South Main Road
Santa Lucia - San Simon de Cocuy
Maroa - Yavita - Pimichin
Air Strips
Completed:
Buildings
Completed:
Tamatama
San Simon de Cocuy
Platanal
San Juan de Manapiare
San Carlos de Rio Negro
Maroa
Puerto Ayacucho
Tencua
Ocamo
Cabruta
La Urbana
Parima
San Antonio
Sipapo
Yutaje
School for the Advancement of Indians
in Santa Barbara
Educational Radio Station at San Juan
de Manapiare
19 schools for 1,750 students
Dispensary in Ocamo
Public Health Stations in Tencua and
Solano
Under
Construction: Civic Center in San Simon de Cocuy
Auditorium in San Carlos de Rio Negro
Cultural Center in Marao
Health Stations in Santa Rosa de Amanadona,
Tencua, Ocamo, Platanal, and Boca Mavaca
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Anzoa e
Guarico
Map B
?
g u i
Barinas
Bolivar
La Urbana
liuudalea
11, ,14