Trade Talk: CoP13 to Affect the Lives of Millions of Plants and Animals

By Teresa Telecky

How important is the 13th meeting of the Conference of the Parties to the United Nation's Convention on the International Trade in Endangered Species of Wild Fauna and Flora? Literally, the lives of millions of plants and animals, not to mention the human beings who make a living off them, will be affected by this vital, volatile meeting in Bangkok, Thailand.

From October 2–14, delegates from 166 nations will meet in Bangkok to wrangle over how to regulate the trade in wild plants and animals. From the minke whale to medicinal plants, the survival of species that are the targets of international trade—in ivory, for the exotic pet industry, as hunting trophies, for fur, and even as ingredients in soup—are in the hands of these diplomats and civil servants.

But Bangkok will be overflowing with other interested parties too: Representatives from trade and wildlife-use groups will be lobbying delegates for unfettered access to animals and plants, while animal welfare, conservation and environmental organizations will be there to argue for sustained or increased protections. As observers, The HSUS and Humane Society International will work with the more than 70 other like-minded organizations from around the world that formed the Species Survival Network to increase CITES protections for listed species and to extend protection to more species.

Some CITES watchers predict the hottest issues at CoP13 will be, as in years past, the international trade in whale meat and blubber as well as trade in elephant ivory. While whale and elephant proposals are perpetually on the negotiating table, Kenya will be offering the first proposal in history to give the African lion the highest level of protection—listing on Appendix I. And another surprise: Cuba decided not to submit a proposal to allow the trade in shells from the critically endangered hawksbill sea turtle, a controversial issue in past years.

Just as important as the species proposals, delegates will be intensely negotiating the adoption of new criteria for listing species on CITES Appendices I and II, negotiations that have been ongoing for the past few years. CITES offers three levels of protection for species in international trade, but only proposals for listing species on Appendix I or II are discussed at CoPs, which take place approximately every two to three years. Click here for more background on CITES.

Heading into CoP13, we have singled out proposals that will likely garner the most attention from delegates, observers, trade representatives, and the media.

Mammal Proposals

• Irrawaddy dolphin: Thailand has proposed to transfer this species from Appendix II to Appendix I. The Irrawaddy dolphin lives in the near-shore subtropical and tropical marine waters of the Indo-Pacific. It is critically endangered in some areas; its population is declining and small; and it is threatened by many factors, including capture and trade for public display.
• Minke whale: In the only whale proposal under consideration at this CoP (Japan has habitually been joined by Norway in requesting permission to trade in whale parts and products), Japan has proposed to transfer three stocks of minkes from Appendix I to Appendix II. This would allow international commercial trade in minke whale products, which has been banned by the International Whaling Commission since 1986. Japan has failed to win support for similar proposals at the four previous CoPs.
• Bobcat: The United States has proposed to delete this species from the Appendices entirely. The bobcat, native to North America, is currently listed on Appendix II, and is traded in large numbers; more than 30,000 skins and skin pieces were exported from the United States and Canada in 2002. Removing CITES protection for the species would reduce regulatory oversight of the trade.
• African lion: Kenya has proposed to transfer this species from Appendix II to Appendix I. The African lion population has declined by 45%-70% in the past eight years because of a variety of threats, including direct persecution as livestock predators and trophy hunting. More than 500 lion trophies were traded internationally in 2002, and most of them were imported to the United States—home to most lion trophy hunters.
• African elephant: The elephant populations of Namibia and South Africa (along with those of Botswana and Zimbabwe) are on Appendix II with so-called annotations that allow conditional international trade in certain parts and products of African elephants originating in those countries. Namibia has proposed to amend its annotation to allow an annual export of 2000 kg of raw ivory, unlimited trade in worked ivory products for commercial purposes, and trade in elephant leather and hair goods for commercial purposes. South Africa has proposed to amend its annotation to allow trade in elephant leather goods for commercial purposes.

  At the last CoP, Botswana, Namibia, and South Africa were given permission to export stockpiled ivory if certain conditions, including the creation of an effective global elephant poaching monitoring system, were met. The export never took place because the conditions have not been met.

• Southern white rhino: Swaziland has proposed to transfer its population of southern white rhinos from Appendix I to Appendix II with an annotation to allow international trade in live animals and hunting trophies. There are only 61 southern white rhinos in two populations in Swaziland.

Bird Proposals

• Bald eagle: The United States has proposed to transfer this native North American species from Appendix I to Appendix II. Currently trade in bald eagles (the United States' national bird) is limited to exports of feathers and claws from Canada to the United States for ceremonial purposes. Appendix II listing would allow international commercial trade in bald eagles and their products.
• Yellow-crested cockatoo: Indonesia has proposed to transfer this species from Appendix II to Appendix I. Populations have declined by more than 80% in the last three generations because of trapping to supply the international pet trade.
• Peach-faced lovebird: Namibia and the United States have proposed to delete this species from Appendix II. This southern Africa bird was, in the past, trapped in large quantities for the international pet trade. Now it is commonly bred in captivity.
• Lilac-crowned Amazon parrot: Mexico has proposed the transfer of this species from Appendix II to Appendix I. Native to Mexico, the lilac-crowned Amazon parrot is threatened by illegal capture for the international pet trade.
• Painted bunting: Mexico and the United States have proposed including this currently un-listed species on Appendix II. Native to the United States, Mexico, the West Indies and Central America, the species is threatened by collection for the international pet trade.

Reptile Proposals

• Madagascar reptiles: Madagascar has proposed the transfer of the Malagasy spider tortoise from Appendix II to Appendix I and the addition of leaf-tailed geckos, leaf-nose snakes, and arboreal snakes—all currently unlisted—to Appendix II. Madagascar reptiles generally, and these species in particular, are threatened by trapping for the international pet trade.
• Asian turtles: The United States and Indonesia have proposed the inclusion of several currently unlisted Asian freshwater turtles on Appendix II. These include the Malayan snail-eating turtle, Malayan flat-shelled turtle, Southeast Asian soft-shell turtle, pig-nosed turtle, and Roti snake-necked turtle. These turtle species, and many others that remain unprotected by CITES, are threatened by the international commercial trade for human consumption. Millions of turtles are consumed annually in Asian markets.
• Crocodiles: Cuba has proposed to transfer its population of the American crocodile from Appendix I to Appendix II; Namibia has proposed to transfer its population of the Nile crocodile from Appendix I to Appendix II; and Zambia—whose population of Nile crocodiles is already on Appendix II—has proposed an annual export quota for skins.
• Snakes: Kenya has proposed to include two currently unlisted species of native snakes—the Mt. Kenya bush viper and the Kenya horned viper—on Appendix II. Both species are illegally traded as pets.

Fish Proposals

• Great white shark: Australia and Madagascar have proposed to list this species on Appendix II. Jaws, teeth, and fins are traded internationally. Some populations have experienced declines, in part because of fishing to supply the commercial trade in their parts.
• Humphead wrasse: Fiji, Ireland (on behalf of the European Community), and the United States have proposed to include this currently unlisted species on Appendix II. A coral reef species found throughout the Indo-Pacific region, the humphead wrasse is threatened by trade for human consumption, mainly in Asia. Populations have declined almost everywhere the species has been studied.

Other Issues

In addition to species proposals, the CITES parties will discuss more than 60 other agenda items. Here are some highlights:

• The criteria used by CITES parties when considering listing proposals have been undergoing an extensive review for the past few years. It is expected that final new listing criteria will be adopted at CoP 13. The listing criteria are the heart of CITES; they determine which species receive CITES protection and what level of protection those listed receive.

  At the ninth CoP in 1994, the parties adopted new listing criteria, which were highly detailed, requiring species to meet expansive trade and biological criteria in order to be listed on Appendix I or II. When the new listing criteria were adopted, the parties agreed that the criteria should be reviewed again at CoP13.

  During the process of reviewing and revising, animal-use industry supporters have repeatedly attempted to introduce weakening amendments that would, for example, make it more difficult to list species on Appendix I or more easy to transfer species from Appendix I to II. Most of these attempts have been fought off by conservationists. Although the text to be discussed at CoP13 contains some of these weakening amendments, animal welfare organizations hope to defeat these during discussions while retaining some of the pro-conservation language.

• The parties will continue discussions on international trade in bears, Asian big cats, great apes, rhinoceros, Tibetan antelope, and Saiga antelope. These talks will probably focus on ending illegal trade.
• Cooperation with other bodies such as the Convention on Biological Diversity, Commission for the Conservation of Antarctic Marine Living Resources, the UN's Food and Agriculture Organization, and the IWC.

  The issue of cooperation can be a contentious one. For example, some countries do not want CITES to play a role in the conservation and management of commercially exploited marine fish. They believe this should be left to the FAO. What the memorandum of understanding between CITES and the FAO ends up saying is important, because if CITES defers to FAO on fisheries issues, or stays out of fisheries issues, then what about listing threatened fish like the great white shark that meet the CITES listing criteria and are affected by international trade? The FAO does not regulate international trade in any species. CITES is the international body with that responsibility, and it is very important the two bodies cooperate on an equal basis.

• CITES's role in the conservation and management of sharks.
• Regulation of international trade in animals from commercial operations that breed species listed on Appendix I.
• CITES's role in the international trade in bushmeat (wild animals trapped and traded for human consumption).

Teresa Telecky, The HSUS's former Director of the Wildlife Trade Program, is now a CITES consultant for the organization.