Bridges Trade BioRes • Volume 4 • Number 19 • 21st October 2004

CITES FURTHER UPS CONSERVATION EFFORTS BUT TENSIONS REMAIN

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CITES FURTHER UPS CONSERVATION EFFORTS BUT TENSIONS REMAIN

As the 13th Conference of the Parties (COP) to the Convention on International Trade in Endangered Species of Wild Flora and Fauna (CITES) came to an end on 14 October in Bangkok, Thailand, many conservation groups claimed success. Disagreements remained, however, on the best way to attain conservation goals and balance them with trade rules and poverty alleviation. The meeting added a number of controversial and commercially valuable species to CITES’ Appendices, including several timber and marine species.

Animal and plant species listed under CITES Appendix I are considered highly threatened by extinction and are excluded from trade, with the exception of very special circumstances. Appendix II species are subject to strictly regulated trade on the basis of quotas and permits to ensure that trade does not compromise their survival. Appendix III lists species that are subject to domestic regulation, and for which a Party requests the cooperation of other Parties to control international trade.

Hoodia, ramin, agarwood, Irrawaddy dolphin upgraded

South Africa, Namibia, and Botswana were successful in their proposal to list Hoodia, a medicinal plant long used by Africa’s San people for its appetite-suppressing qualities, in Appendix II (see BRIDGES Trade BioRes, 23 September 2004). In addition, the COP passed Indonesia’s proposal to uplist the Ramin tree from Appendix III to II. The ramin tree has long been one of Southeast Asia’s major export timbers and Indonesia emphasised that the Appendix II listing would ensure better enforcement of conservation measures and benefit orangutan populations. In addition, the Irrawaddy dolphin was transferred from Appendix II to I despite opposition from Japan, Norway and Gabon. The great white shark, agarwood tree and humphead wrasse were added to Appendix II. Although CITES has traditionally avoided listing highly valued marine and timber species, COP-13 continued the recent trend away from this practice, which had already become apparent at COP-12 in Santiago, Chile. At the Santiago meeting, Parties voted to put bigleaf mahogany in Appendix II (see BRIDGES Trade BioRes, 21 November 2002).

"West" accused of whale "imperialism"

Japanese delegates accused the "West" of "cultural imperialism" and vowed to continue efforts to expand whaling after CITES voted against downgrading three stocks of minke whale from Appendix I to Appendix II (which was also the case at the last COP). Such a downgrade would have enabled wider trade in the species, thereby feeding the tastes of the Japanese for whale meat, but faced opposition from conservationists who view the killing of whales as cruel (see BRIDGES Trade BioRes, 19 March 2004, http://www.ictsd.org/biores/04-03-19/story3.htm). The downgrading would also have put pressure on the International Whaling Commission (IWC) moratorium on whaling. "The West is trying to impose its unilateral standards on us. I regard this as cultural imperialism," Japanese delegate Masayuki Komatsu told Reuters.

Ivory trading again in the spotlight

Delegates also clashed on the best way to conserve key species in cases where CITES decisions provide signals that impact on illegal poaching and trading. The draft action plan for the control of trade in African elephant ivory was eventually approved. However, Kenya’s proposal that Parties refrain for six years from submitting down-listing proposals and engaging in trade of raw and worked ivory, spurred controversy, and was eventually rejected. Discussion centred upon whether such a moratorium on elephant trade would cause illegal trade to thrive and require financial resources for enforcement. Namibia’s suggestion to include trade in elephant leather and hair goods for commercial purposes was adopted by consensus, but its proposals to allow an annual export quota of 2,000 kilogrammes of accumulated raw ivory and to allow trade in worked ivory products were rejected.

Participants also considered alternatives to complete trade bans, such as economic incentives and sustainable use programs, along with ex situ breeding projects that cooperate with in situ conservation to ensure the survival of species. The CITES Secretariat introduced a document on economic incentives which was adopted. With regard to the document, New Zealand stressed that economic incentives must be targeted and compatible with the WTO. Indonesia suggested that such incentives require adequate regulation and law enforcement and India stressed the need to provide incentives for local stakeholders in conservation efforts.

Overlap with other agreements and organisations

A key theme to these decisions, and the meeting in general, was the increasing overlap between CITES, multilateral environmental agreements (MEAs), environmental organisations and international trade rules. The need to retain consistency with the ongoing IWC moratorium on whaling, for example, contributed to the decision to maintain the highest level of protection for minke whales. Increased cooperation between CITES and the UN Food and Agricultural Organisation (FAO) was notable, especially during discussions on marine species and promoting capacity building in developing countries.

As well, delegates agreed to incorporate the Sustainable Use Principles and Guidelines of the Convention on Biological Diversity (CBD), though Israel, Australia, India and the EU were concerned that the term "sustainable use" may pollute the more scientific approach of CITES. However, some delegates pointed out that the concept of sustainable use was already being used by national authorities in managing CITES species. CBD-related topics such as alien invasive species and access and benefit-sharing for the use of genetic resources also permeated discussions throughout the meeting.

Additional Resources

For daily updates and a summary report, see IISD Linkages.

ICTSD Reporting; ENB, Vol. 21 No. 35-45, 14 October 2004; "Japan loses bid to loosen trade in whale products," REUTERS, 12 October 2004.