rapport - Council of Europe

Strasbourg, le 25 avril 2007
T-PVS (2007) 8
[tpvs08f_2007]
CONVENTION RELATIVE A LA CONSERVATION DE LA VIE SAUVAGE ET DU MILIEU
NATUREL DE L’EUROPE
Groupe de travail sur
l’élaboration d’une Charte européenne de la chasse et de la biodiversité
Strasbourg, le 20 avril 2007
---ooOoo---
RAPPORT
Document
élaboré par
la Direction de la Culture et du Patrimoine Culturel et Naturel
This document will not be distributed at the meeting. Please bring this copy.
Ce document ne sera plus distribué en réunion. Prière de vous munir de cet exemplaire.
T-PVS (2007) 8
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1. Ouverture de la réunion
M. Øystein Størkersen (Norvège), Président du groupe de travail, ouvre la réunion et souhaite la
bienvenue aux participants (dont la liste figure à l’annexe 1). Il remercie les membres qui ont envoyé
leurs observations sur le schéma révisé du projet de charte après la dernière réunion du groupe de
travail qui s’est tenue le 11 septembre 2006. Il souligne l’importance de l’élaboration d’une charte
européenne et le progrès qu’elle représente à la fois pour les questions de chasse et de diversité
biologique. Il prend également note de la qualité du document élaboré par le consultant et présenté
pour examen au groupe de travail.
2. Adoption de l’ordre du jour
L’ordre du jour est adopté, tel qu’il figure à l’annexe 2.
3. Introduction par le Secrétariat
Après un tour de table de présentation, le Chef de l’Unité de la diversité biologique expose les
raisons des récents changements au sein du Secrétariat du Conseil de l’Europe et explique pourquoi il
importe d’inclure des principes essentiels dans le projet de charte. Il fait observer que la Convention
relative à la conservation de la vie sauvage et du milieu naturel de l’Europe (Convention de Berne,
1979) couvre les questions d’utilisation durable de la diversité biologique et informe le groupe des
nouveaux domaines d’activité qui s’inscrivent dans le cadre de cette Convention, tel que la création du
nouveau groupe d’experts sur la biodiversité et le changement climatique qui tiendra sa première
réunion à Strasbourg les 14 et 15 juin 2007.
Un représentant du Secrétariat résume le contexte dans lequel a été prise l’initiative de la charte –
qui s’inscrit dans le cadre de la Convention de Berne – et cite, par exemple, la Recommandation 1689
de l’Assemblée parlementaire du Conseil de l’Europe sur la chasse et l’équilibre environnemental en
Europe, adoptée en novembre 2004. L’élaboration de la charte européenne sur la chasse et la
biodiversité se fonde sur cette recommandation. En novembre 2005, le Comité permanent de la
Convention de Berne a décidé de créer un groupe d’experts chargé d’élaborer la charte en question, en
tenant compte de ce qui existe déjà au niveau communautaire et en matière d’instruments juridiques
internationaux.
Lors de la 1ère réunion du groupe de travail, le 10 mars 2006, le mandat de ce dernier a été
examiné et adopté, et plusieurs initiatives intéressantes aux niveaux international et régional ont été
présentées. Lors de sa deuxième réunion, le 11 septembre 2006, le groupe de travail a décidé d’aller de
l’avant et a, pour ce faire, examiné un schéma révisé.
Lors de sa 26e réunion, en novembre 2006, le Comité permanent a fait part de son soutien à cette
démarche. Il importe, selon lui, que la terminologie utilisée dans la charte soit correcte et fixée d’un
commun accord. Il faut également prêter une attention particulière à la valeur ajoutée que la
Convention de Berne et le Conseil de l’Europe peuvent apporter en développant les trois domaines
dont il est question dans le schéma révisé : la chasse durable, le tourisme cynégétique et les normes sur
la chasse en Europe.
4. Présentation du projet de charte européenne sur la chasse et la
biodiversité par le consultant
Le consultant, M. Brainerd, remercie les membres du groupe de travail des contributions et des
documents qu’ils lui ont adressés dans le cadre de l’élaboration du projet de charte, notamment
MM. Robert Kenward (IUCN), Yves Lecocq (FACE) et Kai Wollscheid (CIC). Il attire l’attention sur
ce qu’est par essence une charte, son champ d’application et sa finalité. Il présente ensuite la structure
et les principales sections du projet de charte (voir annexe 3 du présent rapport), notamment les buts et
les objectifs relatifs à chacun des trois domaines couverts : chasse durable, tourisme cynégétique et
normes sur la chasse en Europe.
Le projet de charte inclut les trois piliers de la durabilité et s’apparente aux Principes et
Directives d’Addis-Abeba pour l’utilisation durable de la diversité biologique, ainsi qu’aux Principes
du Malawi concernant l’approche par écosystème, élaborés dans le cadre de la Convention de l’ONU
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T-PVS (2007) 8
sur la diversité biologique (CDB). Le projet tient compte des politiques pertinentes aux niveaux
international et communautaire en matière de chasse, de biodiversité et d’écotourisme ; il énonce
également 12 principes et 47 lignes directrices destinées aux organismes de contrôle et de gestion de la
biodiversité ainsi que 59 lignes directrices à l’intention des chasseurs et des voyagistes spécialisés
dans la chasse.
Le consultant explique que le projet de charte est une reconnaissance formelle par la Convention
de Berne de l’importance de la chasse comme instrument de conservation de la diversité biologique, et
qu’il inscrit la chasse dans le cadre des principes de durabilité de la Convention sur la diversité
biologique. Il fait observer qu’il a essayé de répartir équitablement les responsabilités entre
gouvernants et gouvernés et de répondre aux aspirations de chacun en apportant un éclairage qui met
en valeur les côtés positifs de la chasse et la responsabilité des chasseurs en matière de conservation
des espèces sauvages et de leurs habitats.
M. Brainerd souligne que le projet de charte insiste sur l’exigence de suivi systématique et sur la
nécessité que les chasseurs s’engagent dans la conservation et la gestion durable de la diversité
biologique. En outre, le projet aborde la question complexe du tourisme cynégétique du point de vue
de la durabilité économique, socioculturelle et écologique. Il traite aussi des questions de
comportement et de compétences au regard de la durabilité, en particulier du bien-être animal et des
capacités des chasseurs.
5. Discussion
Les membres du groupe de travail accueillent favorablement le projet de charte élaboré par le
consultant. Après une série de commentaires généraux sur le document, ils affinent leurs observations
et font des suggestions sur chacune des sections du texte.
6. Finalisation du projet de charte et prochaines étapes
Le groupe de travail convient que les commentaires et les contributions au projet de charte
devront être envoyés par écrit avant fin avril. Le consultant rédigera alors une version complète et
révisée du projet de charte avant le 1er juin 2007. Ce dernier sera communiqué à tous les membres du
groupe de travail accompagné du texte du projet de recommandation à soumettre au Comité
permanent. Les membres du groupe de travail auront environ deux semaines pour commenter la
version finale révisée du projet et la recommandation et dont priés de ne soulever que des eventuels
« problèmes majeurs » posés par le texte final. Le projet complet de charte européenne sur la chasse et
la biodiversité sera communiqué à toutes les parties à la Convention de Berne avant la pause estivale,
puis elle sera présentée lors de la prochaine réunion du Comité permanent de la Convention qui se
tiendra à Strasbourg du 26 au 29 novembre 2007.
7. Questions diverses
Aucune autre question n’est soulevée.
***
T-PVS (2007) 8
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Annexe 1
LISTE DES PARTICIPANTS
__________
EXPERTS / EXPERTS
BELGIUM / BELGIQUE
Mr Patrick DE WOLF, Ingénieur attaché à la Direction de la Nature, Division de la Nature et des
Forêts, Ministère de la Région wallonne, 15, avenue Prince de Liège, B-5100 JAMBES (NAMUR).
Tel : +32 81 33 58 16. Fax : +32 81 33 58 22. E-mail : [email protected]
(F)
BULGARIA / BULGARIE
Mr Kostadin VALCHEV, 67 Tsanko Tserkovski St./3, 2nd floor, apt.3, SOFIA 1421
Tel: /Fax +359 2 989 5377. E-mail: [email protected]
CZECH REPUBLIC / REPUBLIQUE TCHEQUE
Mr Jaroslav KOSTECKA, Secreteray General, The Czech Hunting and Wildlife Conservation
Association, Jangmaunera CZ-25, 115 25 PRAGUE 01
Tel: +420 608 178 581. Fax: +420 267 12 6871. E-mail: [email protected]
Mr. Jan SIMA, Head of Unit for Species Protection, Department of Specially Protected Areas,
Ministry of the Environment of the Czech Republic, Vrsovicka 65, 100 10 PRAGUE 10,
Tel: +420 267 122 587. Fax: +420 267 126 587. Email: [email protected]
Mr Martin ZIZKA, Department of Fisheries, Game Management and Beekeeping, Ministry of
Agriculture, Tesnov 17, CZ-117 05 PRAGUE 1.
Tel: +420 221 812 826. Fax : +420 221 812 980. E-mail: [email protected] or [email protected]
FRANCE / FRANCE
Mr Paul HAVET, Conseiller technique auprès du Directeur général, Office national de la chasse et de
la faune sauvage, 5, rue Saint-Thibault, Saint-Benoist, BP 20, F-78610 AUFFARGIS.
Tel : +33 130 46 60 41. Fax : +33 130 46 60 60. E-mail:: [email protected]
GERMANY / ALLEMAGNE
Herr Dr. Frank TOTTEWITZ, Bundesforschungsanstalt für Forst- und Holzwirtschaft, Institut für
Waldökologie und Waldinventuren, Alfred-Möller-Straße 1, D-16225 EBERSWALDE
Tel. +49 3334-65314 . Fax : +49 3334 65354. E-mail: [email protected]
ICELAND / ISLANDE
Mr Áki ÁRMANN JONSSON, Director of Wildlife Management Division, Environment and Food
Agency, Borgir v. Norðurslóð, 600 AKUREYRI.
Tel: +354 460 7900. Fax: +354 460 7901. E –mail: [email protected]. Web : www.ust.is
[Apologised for absence / Excusé]
LIECHTENSTEIN / LIESHTENSTEIN
M. Michael FASEL, Amt für Wald, Natur und Landschaft, Abteilungsleiter Natur und Landschaft,
Leiter Naturkundliche Sammlung, Dr. Grass Strasse 10, FL-9490 VADUZ,
Tel. +423 - 236 64 05. Fax: +423 236 64 11. E-mail: [email protected]
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T-PVS (2007) 8
NORWAY / NORVÈGE
Mr Øystein STØRKERSEN, Seniorrådgiver/Senior Advisor, Direktoratet for naturforvaltning,
Directorate for Nature Management , N-7485 TRONDHEIM
Tel. +47-7358 0500. Fax: +47-7358 0501 or 7358 0505. E-mail: [email protected].
Web: www.dirnat.no
ROMANIA / ROUMANIE
Dr. Ovidiu IONESCU, Head of Wildlife Unit, Forest Research and Management Planning Institute,
Sos. Stefanesti 128, Voluntari, Jud. Ilfov, Romania
Tel. +40 744 362458. Fax +40 268 330567. E-mail: [email protected] or [email protected]
SLOVAKIA / SLOVAQUIE
Mr Leopold DUGOVIČ, Ministry of Land Use of the Slovak Republic, Division of Forestry,
Dobrovičova 12, 812 66 BRATISLAVA
Tel: … Fax: … e-mail: [email protected]
SPAIN / ESPAGNE
Mr Antonio PEREZ ALONSO-GETA, Direccion General para la Biodiversidad, Ministerio de Medio
Ambiente, Gran vía de San Francisco, 4, E-28005 MADRID
Tel: … Fax: … E-mail: [email protected]
Mr Jorge BERNAD DANZBERGER, experto en temas cinegéticos, Paseo de la Habana, 18 – 7, E20036 MADRID
Tel: + 34 91 5624465 (portable: +34 659 316314). E-mail: [email protected]
SWITZERLAND / SUISSE
Mr Reinhard SCHNIDRIG, Section Chasse et Faune sauvage, Division Gestion des espèces, Office
fédéral de l’environnement, des forêts et du paysage (DETEC), Worbentalstrasse 68, CH-3003 BERN
Tel : +41 31 323 03 07. Fax : +41 31 323 89 74. E-mail : [email protected]
UNITED KINGDOM / ROYAUME-UNI
OBSERVERS / OBSERVATEURS
CIC - INTERNATIONAL COUNCIL FOR GAME AND WILDLIFE CONSERVATION
Mr Kai WOLLSCHEID, Director General, CIC - International Council for Game and Wildlife
Conservation, Administrative Office, P.O. Box 82, H-2092 BUDAKESZI, Hungary
Tel.: +36 23 453 830, Fax: +36 23 453 832. E-Mail: [email protected]
Web: www.cic-wildlife.org
FEDERATION OF ASSOCIATIONS FOR HUNTING AND CONSERVATION OF THE EU (FACE)
Dr. Yves LECOCQ, Secretary-General FACE, "Federation of Associations for Hunting &
Conservation of the E.U.", Rue F. Pelletier 82, B-1030 BRUSSELS, Belgium
Tel: +32.2.732 69 00 .
Fax: +32.2.732 70 72. E-mail: NEW: [email protected] (office).
[email protected] (home). FACE website: NEW www.face.eu
Mrs. Abigail DAY, Safari Club International Foundation, FACE, "Federation of Associations for
Hunting & Conservation of the E.U.", Rue F. Pelletier 82, B-1030 BRUSSELS, Belgium
Tel: +32.2.732 69 00 . Fax: +32.2.732 70 72 E-mail: [email protected]
INTERNATIONAL ASSOCIATION FOR FALCONRY & CONSERVATION OF BIRDS OF PREY /
ASSOCIATION INTERNATIONALE DE LA FAUCONNERIE ET DE LA CONSERVATION DES OISEAUX DE
PROIE
T-PVS (2007) 8
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THE WORLD CONSERVATION UNION / L’UNION MONDIALE POUR LA NATURE (IUCN/UICN)
Mr Robert KENWARD, DPhil, DSc, FLS, Fellow, European Regional Group of the Sustainable Use
Specialist Group of IUCN's Species Survival Commission (ESUSG of IUCN/SSC), Centre for
Ecology & Hydrology, Winfrith Technology Centre, Dorchester DT2 8ZD, United Kingdom
Tel: +44 1929 553759. Fax:+44 (0)1929 553761. Email: [email protected]
MIGRATORY BIRDS OF THE WESTERN PALAEARCTIC / OISEAUS MIGRATEURS DU PALEARCTIQUE
OCCIDENTAL (OMPO)
Mr Guy-Noël OLIVIER, Secrétaire Général, OMPO, 8, avenue des Chasseurs, F-75017 PARIS
(France).
Tél.: +33 144 01 05 10. Fax.: +33 144 01 05 11. E-mail : [email protected]
CONSULTANT / CONSULTANT
Dr Scott BRAINERD, Ph.D., Advisor on Wildlife Management and International Cooperation,
NJFF/Norwegian Association of Hunters & Anglers, Box 94, N-1378 NESBRU
Tel..: +47 66 79 22 39. Fax: +47 66 90 15 87 . E-mail: [email protected]
INTERPRETERS / INTERPRETES
Mr Robert SZYMANSKI
Mr Olivier OBRECHT;
Ms Josette YOESLE
SECRETARIAT / SECRÉTARIAT
Council of Europe / Conseil de l’Europe, Directorate of Culture and Cultural and
Natural Heritage / Direction de la Culture et du Patrimoine culturel et naturel,
F-67075 STRASBOURG CEDEX, France
Tel : +33 3 88 41 20 00. Fax : +33 3 88 41 37 51
Mr Eladio FERNÁNDEZ-GALIANO, Head of the Biological Diversity Unit / Chef de l’Unité de la
Diversité biologique
Tel : +33 3 88 41 22 59. Fax : +33 3 88 41 37 51. E-mail : [email protected]
Ms Carolina LASÉN-DÍAZ, Administrator of the Biological Diversity Unit / Administrateur de
l’Unité de la Diversité biologique
Tel : +33 390 21 56 79. Fax : +33 388 41 37 51. E-mail : [email protected]
Mrs Véronique de CUSSAC, Biological Diversity Unit / Unité de la Diversité biologique
Tel : +33 3 88 41 34 76 Fax : +33 3 88 41 37 51. E-mail : [email protected]
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T-PVS (2007) 8
Annexe 2
__________
Groupe de travail sur
l’élaboration d’une Charte sur la Chasse et la Biodiversité
Strasbourg, Salle 15 (20 avril 2007)
__________
ORDRE DU JOUR
1.
Ouverture de la réunion par le Secrétariat
2.
Adoption de l’ordre du jour
3.
Introduction par le Secrétariat
4.
Présentation du projet de Charte européenne sur la Chasse et la Biodiversité par le
consultant
5.
Discussion
6.
Finalisation du projet de charte et prochaines étapes
7.
Toute autre question
T-PVS (2007) 8
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Annexe 3
Strasbourg, 30 March 2007
[tpvs07e_2007.doc]
T-PVS (2007) 7
CONVENTION ON THE CONSERVATION OF EUROPEAN WILDLIFE
AND NATURAL HABITATS
Standing Committee
27th meeting
Strasbourg, 26-29 November 2007
__________
European Charter on Hunting and Biodiversity
DRAFT
Document prepared by
Mr Scott Brainerd, Viltkonsulent/Wildlife Biologist,
NJFF/Norwegian Assoc. of Hunters & Anglers, Norway
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T-PVS (2007) 8
1. INTRODUCTION
1. Evolution
The Standing Committee of the Parliamentary Assembly adopted Recommendation 1689 (2004)
regarding Hunting and Europe’s environmental balance1 on 23 November 2004 in Warsaw, Poland.
This document recommended inter alia that the Committee of Ministers “draw up a European charter
on hunting, as a guide setting out common principles and good practices for hunting, particularly for
the organisation of hunting tourism on the continent 2”. The Deputies considered it at their
909th meeting, brought it to the attention of their governments, as well as of the Standing Committee
of the Bern Convention for information and possible comments, and invited the GR-C to prepare a
draft reply.
The Bureau of the Standing Committee of the Convention on the Conservation of European
Wildlife and Natural Habitats adopted its Opinion at its meeting of 8 April 20053. In this Opinion, the
Bern Convention Bureau welcomed the Recommendation, stating that “it considers that hunting, if
properly managed, can play a role in maintaining and enhancing many areas of natural interest in
Europe”. The Bureau further welcomed inter alia “the idea of elaborating, in cooperation with
concerned stakeholders, a European Charter of Hunting dealing with all relevant aspects of hunting
and wildlife conservation.” To this end, the Bureau recommended that “the Deputies invite the
Standing Committee to the Bern Convention to consider the elaboration, in collaboration with
concerned stakeholders, of a European Charter on Hunting dealing with all relevant aspects of
hunting and wildlife conservation“.
The Committee of Ministers then informed the Assembly that the Bern Convention Bureau was
in favour of elaborating such a Charter, in cooperation with the stakeholders concerned, which would
deal with all relevant aspects of hunting and wildlife conservation. The Bureau decided to include this
project in the agenda of the next meeting of the Standing Committee of the Bern Convention of the
Council of Europe and, subject to its agreement, in the work programme for 2006. Pursuant to this
recommendation, the Standing Committee appointed a Working Group of relevant experts and
representatives from non-governmental organisations (NGOs) to undertake the formulation of the
European Charter on Hunting and Biodiversity in November 2005. The Charter is the result of a
process which has involved the active participation by the Working Group on the basis of draft input
by contracted consultants.
2.
Scope
This Charter addresses hunting by resident and non-resident hunters as a consumptive,
recreational, and sustainable form of utilisation and management of game species of birds and
terrestrial mammals in Europe, in accordance with the provisions of the Convention on the
Conservation of European Wildlife and Natural Habitats (Bern, 1979).
3.
Purpose
The main aim of the Bern Convention is the conservation of wildlife and its natural habitats. In
this context, the Charter provides a set of guidelines for both governments and stakeholders regarding
common principles and good practices for the consumptive, sustainable use of wildlife in Europe. The
guidelines set forth in this Charter will also help to fulfil the commitments of European States on
conservation through use of components of biodiversity as laid down in the Convention on Biological
Diversity (CBD) and as advised in the Addis Ababa Principles and Guidelines for the Sustainable Use
of Biodiversity and the Malawi Principles for the Ecosystem Approach.
The purpose of contributing to the conservation of biodiversity through hunting will best be met
through guidelines for supportive governance at all levels of society. Within this broad framework,
more detailed sections on specific consumptive uses of wildlife may later be accommodated. As a first
case of a detailed inclusion, the Charter will recommend guidelines for the organisation of hunting
1
https://wcd.coe.int/ViewDoc.jsp?Ref=CM/AS(2005)Rec1689&Sector=secCM&Language=lanEnglish&Ver=final
Paragraph 6.i.
3
https://wcd.coe.int/ViewDoc.jsp?Ref=CM/AS(2005)Rec1689&Sector=secCM&Language=lanEnglish&Ver=final
2
T-PVS (2007) 8
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tourism in Europe. In addition, the Charter also recommends standards regarding the conduct and
proficiency of hunters.
4. Definitions
Game:
Game species include all avian and terrestrial mammal species that are legally hunted in states
ascribing to the Charter, in accordance with the provisions of the Convention on the Conservation of
European Wildlife and Natural Habitats (Bern, 1979).
Hunting4:
This term refers to the pursuit and take of game species by all legal methods. Motivations for this
activity include recreation (pleasure and physical activity), consumption (the take of meat, hides, furs
and/or trophies), and management of game populations.
In this Charter, two types of hunting are considered: Local hunting and hunting tourism.
• Local hunting:
This activity involves hunting by individuals in or near their places of residence, and is generally
an important element of local culture and tradition. Local hunters have knowledge on local conditions,
traditions and species, generally good access to hunting areas for reasonable fees, and do not require
the services of a guide. The majority of hunters fall into this category.
• Hunting tourism:
This can be defined as hunting by non-resident hunters with no direct or indirect socio-cultural
link to their hunting destination. They are often unfamiliar with local species and their habitats,
regulations, culture and traditions. Such hunters may hunt on their own, may be invited as non-paying
guests, or they may employ the services of a guide or outfitter. As with any form of tourism, such
activity can have both positive and negative effects on local communities and ecosystems.
Sustainability5:
CBD Article 2: "... use of components of biological diversity in a way and a rate that does not
lead to the long-term decline of biodiversity, thereby maintaining its potential to meet the needs and
aspirations of present and future generations."
Conservation status6:
A possible definition of “Conservation status” can be found in the European Commission’s
Guidance document on hunting7: The term conservation status of a species is defined in Article 1 i) of
Council Directive 92/43/EEC as “the sum of influences acting on the species concerned that may
affect the long-term distribution and abundance of its populations ….” It is considered to be
favourable when “population dynamics data on the species concerned indicate that it is maintaining
itself on a long-term basis as a viable component of its natural habitat, and the natural range of the
species is neither being reduced nor is likely to be reduced in the foreseeable future, and there is, and
will continue to be, a sufficiently large habitat to maintain its population on a long-term basis.”
Ecosystem approach:
This term, as used in relation to the Convention on Biological Diversity, is a broad concept
implying a holistic, integrated approach to the conservation and sustainable use of biodiversity. It
seeks to achieve a satisfactory balance between conservation and development.
4
See the Report of the IUCN/SSC Sustainable Use Specialist Group (SUSG) Workshop held in London, UK on 14th-15th
October 2006.
5
IUCN Sustainable Use Specialist Group definition.
6
See Article 2 of the EU Habitats Directive.
7
Guidance document on hunting under Council Directive 79/409/EEC on the conservation of wild birds.
- 11 -
5.
T-PVS (2007) 8
Goals
Goal 1: The Charter presents a set of principles and guidelines to ensure the sustainability of wild
resource utilisation in Europe, especially through hunting.
Goal 2: The Charter recommends guidelines for sustainable hunting tourism in Europe to
implement those principles.
Goal 3: The Charter also recommends best practices for European hunters with regard to conduct,
proficiency, safety and ethics.
6. Objectives
Sustainable hunting
The Charter:
•
provides guidelines for sustainable hunting practices within the context of the conservation of
biodiversity;
•
encourages hunter involvement in monitoring and research efforts;
•
promotes cooperation between stakeholders in biodiversity management (landowners,
conservationists, government agencies, hunter’s organisations).
Hunting tourism
The Charter:
•
seeks to ensure the sustainability of hunting tourism;
•
promotes forms of hunting tourism that provide local communities with economic incentives
to conserve wildlife and biodiversity;
•
recommends a code of conduct for tour operators and European hunters that engage their
services.
On standards for European hunters
The Charter:
1.
encourages hunter education and information measures;
2.
promotes safe and sound hunting practices;
3.
promotes measures which increase proficiency in the use of firearms and traps;
4.
emphasises the need for hunters to be knowledgeable about wildlife (including non-game)
species and their requirements, as well as the basic principles regarding biodiversity
conservation.
2. REVIEW OF INTERNATIONAL AND EUROPEAN POLICY AND PRECEDENTS
This section reviews broader principles derived from existing international treaties, European
policies and guidelines upon which the principles and guidelines of this Charter are based.
1. Sustainable Hunting
Hunting is one of the oldest forms for consumptive use of renewable natural resources, and has
always been an integral part of the cultures and traditions of European rural society. Today, there are
over 7 million hunters in Europe8. They are motivated by subsistence, recreational and social aspects,
with emphasis on these elements varying regionally9. In general, this activity has clear benefits for the
conservation of biodiversity, the preservation of rural lifestyles, and local economies. It is estimated
that hunting provides the basis for over 120.000 jobs in Europe10. Since hunting has the potential to
8
http://www.face-europe.org/fs-hunting.htm
http://www.face-europe.org/huntingineurope/Pinet%20Study/Pinet_study_EN.pdf
10
http://assembly.coe.int/Documents/AdoptedText/ta04/EREC1689.htm
9
T-PVS (2007) 8
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negatively impact target species, it must be sustainable. The Parliamentary Assembly, in
Recommendation 1689 (2004) emphasizes the need for sustainable hunting in the enlarged EU11.
The sustainable use of wild living resources – the global context
Developments in Europe regarding sustainable development must be viewed in a global context.
The definition of sustainable development was formulated by the World Commission on Environment
and Development Conference in 1987. It was endorsed under Agenda 21 at the World Summit on
Sustainable Development in Rio in 1992. The Convention on Biological Diversity, signed in 1992 at
the Rio Earth Summit, has been the primary international instrument driving these efforts. The CBD
made sustainable use of the components of biological diversity one of its three main objectives in
Article 1, defined it in Article 2 and considered it in a further 11 of 19 substantive Articles. After
IUCN had pioneered concepts of sustainable use in 1980, its 2nd World Conservation Congress
adopted a Policy Statement in 2000: ‘The use of wild living resources, if sustainable, is an important
conservation tool because the social and economic benefits derived from such use provide incentives
for people to conserve them’.
In a Workshop on the Ecosystem Approach (Lilongwe, Malawi, 26-28 January 1998), whose
report was presented at the Fourth Meeting of the Conference of the Parties to the Convention on
Biological Diversity (Bratislava, Slovakia, 4-15 May 1998, UNEP/CBD/ COP/4/Inf.9), twelve
principles/characteristics of the ecosystem approach to biodiversity management were identified.
These “Malawi principles” advocate an ecosystem approach as a strategy for the integrated
management of land, water and living resources for promoting the conservation and sustainable use in
an equitable way. Application of these principles will help to reach a balance of the three objectives of
the CBD: conservation; sustainable use; and the fair and equitable sharing of the benefits arising out of
the utilisation of genetic resources.
Following regional thematic workshops in Mozambique, Vietnam and Ecuador, and a synthesis
workshop (Addis Ababa, Ethiopia), the 7th CBD Conference of the Parties met in Malaysia during
2004 and adopted the Addis Ababa Principles and Guidelines for the Sustainable Use of Biodiversity
(AAPG). The AAPG are based on the assumption that it is possible to use biodiversity in a manner in
which ecological processes, species and genetic variability remain above the thresholds needed for
long-term viability, and that all resource managers and users have the responsibility to ensure that that
use does not exceed these capacities. The AAPG emphasize the crucial need for the maintenance
and/or recovery of biodiversity in ecosystems to ensure the long-term sustainability of ecological
services upon which both biodiversity and people depend. At the third World Conservation Congress,
in 2004, the AAPG were welcomed by IUCN, which is committed to work with CBD on further
development. CITES had also agreed at its preceding 13th CoP in Bangkok to consider application of
the AAPG to its work. In addition, the Third Meeting of the Parties (MoP-3) to the African-Eurasian
Waterbird Agreement (AEWA) adopted the AAPG based on a Resolution drafted by the CIC with
support of the European Commission, AEWA and FACE.
points:
The AAPG and the Malawi principles can be summarised together in the following main
1.
Supportive & linked governance at all levels with harmonized regulations that promote societal
benefits from conservation and avoid perverse effects.
2.
Avoidance of adverse impacts within or between ecosystems, and of short-termism, especially
when faced with inevitable change.
3.
Transparent and adaptive management along a use-protection continuum, based on
interdisciplinary science, monitoring and timely feedbacks.
4.
Encouragement of economic/cultural incentives with sharing of benefits (and costs) especially at
local level, while avoiding waste.
5.
Decentralisation of management to an appropriate bio-economic scale, especially to empower,
hold accountable and access knowledge of local people.
11
http://assembly.coe.int/Documents/AdoptedText/ta04/EREC1689.htm
- 13 6.
T-PVS (2007) 8
Education, awareness and inclusion of managers, resource users and society at large.
These broad principles include all 12 principles from Malawi (M) and 14 from Addis Ababa (A)
grouped into social, ecological and economic focal areas, as 1) socio-cultural [M1,4,5, A1,3,8], 2)
ecological [M3,5,8,9, A5], 3) socio-ecological [M10-12, A4,6], 4) economic [M1,4, A10-13], 5) biosocio-economic [M2,7,11, A2,7,9] and 6) socio-cultural [M12, A14]. These 6 principles, containing
the essence of the Ecosystem Approach and the Addis Ababa Principles and Guidelines for
Sustainable Use, provide a fundament for conserving biodiversity through hunting and other uses of
wild resources (see Appendix 1).
The European context
As hunting continually evolves in the same way as other human activities, it needs to be treated
as a form of sustainable development, which is an overarching objective of the Treaty of the European
Union. The European Council in Göteborg (2001) adopted the first EU Sustainable Development
Strategy (SDS). This was complemented by an external dimension in 2002 by the European Council in
Barcelona in view of the World Summit on Sustainable Development in Johannesburg (2002). With
this as a basis, the European Council adopted an ambitious and comprehensive renewed SDS for an
enlarged EU in 200612. The overall aim of the renewed EU SDS is “to identify and develop actions to
enable the EU to achieve continuous improvement of quality of life both for current and for future
generations, through the creation of sustainable communities able to manage and use resources
efficiently and to tap the ecological and social innovation potential of the economy, ensuring
prosperity, environmental protection and social cohesion”. There is a need, therefore, to ensure that all
forms of hunting, both by local residents and by tourists, are sustainable relative to ecological,
economic, and socio-cultural considerations.
The Convention on the Conservation of European Wildlife and Natural Habitats, commonly
referred to as the Bern Convention, was signed in Bern, Switzerland in 1979 and came into force on 1
June 1982. It aims to conserve wild flora and fauna species within States, and emphasizes the need for
cooperation in the conservation of species and habitats across national borders, with emphasis on
endangered and vulnerable species (including migrants) and their habitats. Its 45 Contracting Parties
committed themselves to enact appropriate legislation and administrative measures to protect the
endemic species of fauna and flora and their habitats. The Bern Convention is the primary
international treaty governing this sector in Europe, and provides the foundations for this Charter.
In the European Union, there are two bodies of legislation that directly pertain to the conservation
of wild species and their habitats which are of direct relevance with regard to hunting in Europe. These
are the Wild Birds Directive (79/409/EEC) and the Habitats Directive (92/43/EEC). Both of these
directives recognise the role of hunting, while limiting its operation in regard to protected species.
In 2003, the European Commission initiated its Sustainable Hunting Initiative (SHI), under the
auspices of the Birds Directive, with a view to developing cooperation between all organisations
concerned with the conservation and wise and sustainable use of European wild birds. Ten measures
with two main aims were suggested for consideration. These aims were 1) improvement of the legal
and technical interpretation of the Bird Directive’s provisions relating to hunting, and 2) the
development of a programme of scientific, conservation and training/awareness measures as well as a
‘Charter on Sustainable Hunting’ within the framework of the Birds Directive. The success of this
initiative has been dependent upon the commitment of a number of key stakeholders including the
Commission, the Member States, BirdLife International, the Federation of Associations for Hunting
and Conservation of the EU (FACE), and the European Landowners Organisation (ELO). The main
forum for dialogue on implementation of the Birds Directive is the ORNIS Committee and its
Scientific Working Group (both BirdLife and FACE participate as observers in the ORNIS SWG).
A number of initiatives have resulted from SHI. The European Commission published guidelines
on hunting pertaining to the Birds Directive13 in August 2004. The guide focuses on the timing of
recreational hunting, as well as other relevant issues pertaining to hunting. Its legal focus is primarily
on huntable species listed in Annex II of the Directive as well as the relevant provisions of its Articles
12
13
http://register.consilium.europa.eu/pdf/en/06/st10/st10117.en06.pdf
Guidance document on hunting under Council Directive 79/409/EEC on the conservation of wild birds
T-PVS (2007) 8
- 14 -
and the basis for exercising derogations. The guide not only deals with legal provisions but also covers
scientific and technical dimensions given in the Birds Directive which are relevant to the conservation
of wild birds. In October of the same year, a three-way agreement between FACE (the Federation of
Associations for Hunting and Conservation of the EU), BirdLife International and the EC
Environment Commissioner was signed14. This agreement is a pragmatic interpretation and application
of the 1979 Birds Directive relative to hunting. Another SHI initiative, the European Hunting Bag
Data Collection Programme ARTEMIS, was launched in June 2006 in Athens. The first objective of
the ARTEMIS data bank is to centralise and analyse in a coordinated and coherent way the
quantitative and qualitative information on hunting bags already collected in many European
countries. These will be complimented with new data – according to a common methodology – from
other countries wishing to be associated with this programme. FACE has the responsibility for the
technical coordination of the ARTEMIS data bank, in collaboration with national and international
partners, assisted by a steering group where all sectors concerned will be represented.
The Federal Environment Agency of Austria established Guidelines for sustainable hunting in
2001, which were later used as a basis for the draft guidelines for sustainable hunting in Europe. These
were drafted by the Wild Species Resources Working Group (WISPER) of the IUCN-SSC European
Sustainable Use Specialist Group (ESUSG) in September 2006, and aim to apply wider international
principles and guidelines for the sustainable use of wild living resources at the European regional
level. The draft guidelines apply to the recreational hunting of birds and mammals (with guns, bows,
hounds or raptors), but are applicable in other contexts, including subsistence or commercial hunting.
Conservation of habitats is one of the main goals of the Habitats Directive, which provided the
impetus for the Natura 2000 Network when it was created in 1992. It responds to the commitment
made by Europe’s Heads of State and Government at their Spring Summit in Gothenburg in 2001 to
‘halt the loss of biodiversity by 2010’ and is an important part of Europe’s response to conserving
global biodiversity in line with international obligations under the Biodiversity Convention. Natura
2000 is established through Council Directive 92/43/EEC of May 21 1992 on the conservation of
natural habitats and of wild fauna and flora, and Council Directive 79/409/EEC of April 2 1979 on the
conservation of wild birds.
Landowners are an important stakeholder group in the management of hunting and the
conservation of biodiversity.
The ELO is a partner in the SHI, and actively works to promote the proper management of
hunting activities that are compatible with NATURA 2000. The ELO is responsible for the “Pilot
Wildlife Estates” Initiative (PWEI), which aims to establish within the framework of a sustainable
development policy 1) simple principles of good management and conservation of wildlife estates all
over Europe which can be adapted according to the different hunting methods of the various regions of
the European Union, 2) a network of well-managed and exemplary estates. This initiative builds upon
the concept of identifying “exemplary” estates, which will be studied in order to determine criteria and
indicators on the basis of which it will be possible to create a “label”. Once the estates are identified, it
will be possible to bring out exemplary management practices in order to produce guidelines for each
bio-geographic area. ELO advocates that hunters play an important role as wildlife, flora and
landscape producers. The PWEI focuses on the importance of ecological and economic sustainability
of hunting and land management. The notion here is that sustainable hunting and appropriate
management of hunting estates bring added value to the common good, not only in terms of
environmental protection, but also in terms of socioeconomic aspects such as diversification of
revenue sources for the rural world through the creation of an economy around wildlife products
(including hunting and non-consumptive forms of wildlife use and recreation).
Hunting is also recognized as an important and necessary tool for the conservation and
management of large carnivores in Europe. The Core Group of the Large Carnivore Initiative for
Europe (LCIE) presented its position paper on hunting and lethal control of large carnivores to the
Standing Committee of the Bern Convention in 2002 (T-PVS/Inf (2002) 28) 15. LCIE believes that the
14
http://www.birdlife.org/news/news/2004/11/face_agreement.pdf
http://www.lcie.org/Docs/LCIE%20IUCN/COE%20LCIE%20position%20statement%20on%20LC%20hunting%202002.p
df
15
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T-PVS (2007) 8
hunting of large carnivores is acceptable under certain conditions and may benefit and be compatible
with their conservation. Primary among the conditions LCIE sets out, is the need for a comprehensive
management plan for each species. In order for hunting to be sustainable, it should only occur if the
population is regarded as demographically viable and proper consideration is given to the social
organisation of the species to be hunted. Management plans must include goals for minimum
population sizes as well as a plan for monitoring these goals through the active collection of biological
data. LCIE also states that hunting methods must be in accordance with international, national or
regional laws and killing should be carried out humanely. They further emphasise the need for specific
training of hunters that hunt large carnivores. In Norway, an advisory group of stakeholders and
researchers presented a report which has influenced large carnivore policy formation in that country16.
The report reflects many of the principles espoused by the LCIE, and emphasises the need for
involvement of local hunters in the management of large carnivore populations in Norway.
2. Hunting tourism
Hunting tourism can be viewed as a subcategory of both hunting and of tourism. This activity can
provide important economic benefits to rural areas, as well as ecological and socio-cultural values, and
was the benefits derived by rural regions from this activity were formally recognized in 1987 by the
Council of Europe Parliamentary Assembly Resolution 882 on the importance of shooting for Europe's
rural regions. Since it is a form of tourism, this type of hunting is influenced by a number of market
factors. The International Council for Game and Wildlife Conservation (CIC) has pointed out that
there are strong links between hunting tourism and nature tourism, particularly cultural, rural, and
adventure tourism, as well as ecotourism. CIC further points out that although hunting may be the
primary goal of a tourist trip, there are other elements involved, including transportation and local
mobility, food and accommodation, services and goods, and other activities at the destination.
Hunting is not only practiced by local resident hunters in Europe, but also by hunters travelling
from afar. Non-resident hunters seek hunting opportunities away from home, and are generally willing
to pay more for these experiences than resident hunters. Such non-resident hunters may or may not
employ the services of hunting tour operator (guide or outfitter). In any event, such activity can be
regarded as a form of tourism, and is thus a part of the broader tourism market. According to the CIC,
each non-resident hunter – regardless of how many kilometres he or she travels – is a tourist.
Requirements regarding non-resident hunters vary between countries and regions in Europe. In
many cases, non-resident hunters have the opportunity to hunt by either purchasing a permit or
through guest invitation, and as such do not require the services of a hunting tour operator. However,
commercially marketed hunting tour operations are on the increase in Europe. Such operations cater
particularly to trophy hunters that are willing to pay large sums of money for the opportunity to hunt
particular species. With the incorporation of many former eastern block countries into the EU, there is
a concern that liberalized hunting practices, primarily motivated by trophy hunting interests, can have
detrimental impacts if these are not managed professionally and scientifically. Recommendation 1689
(2004) 17 points out that the situation in central and eastern Europe is unique, with abundant
populations of wildlife species, including large carnivores, which have either gone extinct or are
imperilled elsewhere in Europe.
If managed properly, hunting tourism can provide incentives for local communities to conserve
wildlife and their habitats. However, hunting tourism, if practiced improperly, can have negative
impacts on wildlife, both directly and indirectly, particularly if there is little support or direct benefit to
local communities. In some cases, direct conflicts can also arise between local hunters and nonresident hunters. It is therefore important that hunting tourism, as a specialized form of hunting and
tourism, is not only ecological sustainable, but economically and socially sustainable as well.
International policy
In 2000, the Conference of the Parties to the CBD began its participation in the international work
programme on sustainable tourism development under the United Nations Commission on Sustainable
Development. The objective of this work has been to develop a set of international guidelines for
16
17
http://www.nina.no/archive/nina/PppBasePdf/temahefte/2003/25_eng.pdf
http://assembly.coe.int/Documents/AdoptedText/ta04/EREC1689.htm
T-PVS (2007) 8
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activities related to sustainable tourism development in vulnerable ecosystems. The CBD Guidelines
on Biodiversity and Tourism Development18 were initially developed by experts at a Workshop held in
Santo Domingo, Dominican Republic, in June 2001, and subsequently improved and refined by the
Subsidiary Body on Scientific, Technical and Technological Advice of the Convention. Finally, they
were adopted by the seventh meeting of the Conference of the Parties, held in Kuala Lumpur,
Malaysia, in February 2004.
The guidelines are a tool for the practical implementation of the CBD and the target of achieving
a significant reduction in the current rate of biodiversity loss by 2010. These guidelines encourage a
consultative process involving multi-stakeholder participation for the development of sustainable
management systems for tourism. These include the development of an overall vision for the
sustainable development of tourism activities; the setting of short-terms objectives to implement the
vision; the review and building of regulations and tourism standards; the assessment of the potential
impacts of tourism projects; the monitoring of impacts and compliance; and the implementation of
adaptive management in relation to tourism and biodiversity.
In 2005 the World Tourism Organization (UNWTO) and United Nations Environment
Programme (UNEP) identified an agenda for sustainable tourism19. With these as a basis, the EU
Sustainable Development Strategy (SDS) has proposed three key objectives for the sustainability of
European tourism. These are 1) Economic prosperity, 2) Social equity and cohesion, and 3)
Environmental and cultural protection. “Economic prosperity” requires the long-term competitiveness,
viability and prosperity of tourism enterprises and destinations with quality employment opportunities
and conditions. “Social equity and cohesion” aims to enhance the quality of life of local communities
through tourism, and engage them in its planning and management while providing a quality
experiences for all visitors without discrimination. With regards to ” Environmental and cultural
protection”, the SDS aims to minimise pollution and degradation of the global and local environment
and the use of scarce resources by tourism activities while maintaining and strengthening cultural
richness and biodiversity and their appreciation and conservation. The SDS also calls for the active
promotion of sustainable development worldwide.
The CIC has initiated a global programme to develop principles and indicators for sustainable
hunting tourism (SHT) in accordance with existing international sustainability concepts20. The SHT
holds the vision that sustainable hunting tourism “contributes to the conservation of wildlife and its
habitats, benefits local livelihoods and also secures hunting”. In order to pursue this vision, the
mission of the SHT is “to develop and apply a set of principles, criteria and indicators in order to
assess and promote sustainable and responsible hunting tourism”. The SHT programme will be based
on a wide stakeholder approach and aims to combine knowledge and expertise of a number of the
world’s leading organisations in hunting and conservation. The SHT aims to provide a set of practical
principles, guidelines and criteria that translate the AAPG into the needs of the hunting tourism sector
at regional, national and international levels. First project areas for testing the applicability of the
principles and to develop criteria and indicators are SADC region, Central Asia and Scandinavia.
European initiatives
The ministerial conference "Environment for Europe", held in Lucerne in 1993, called upon the
CoE to promote ecologically viable tourism. In September 1994, the Committee of Ministers adopted
Recommendation No. R (94) on a general policy for sustainable and environmentally friendly tourism
development21. This recommendation embraced the principles of sustainability as set out by the Rio
Conference in 1992, and set out principles for management authorities to ensure the sustainability of
tourism in Europe. In 2003, the European Commission reported on basic orientations for the
sustainability of European tourism22., which lead to the formation of the Tourism Sustainability Group
(TSG) in 2004.
18
http://www.biodiv.org/doc/publications/tou-gdl-en.pdf
In UNEP and World Tourism Organization, 2005 Making Tourism More Sustainable: A guide for policy makers.
http://www.cic-wildlife.org/index.php?id=176
21
https://wcd.coe.int/com.instranet.InstraServlet?Command=com.instranet.CmdBlobGet&DocId=513072&SecMode=1&Ad
min=0&Usage=4&InstranetImage=43334
22
COM(2003) 716
19
20
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T-PVS (2007) 8
The TSG has been charged with creating a framework for action by the different stakeholders and
providing guidance for local destination management and the use of indicators and monitoring
systems. It consists of representatives from international bodies, member state governments, regional
and local authorities, the tourism industry, professional bodies, environmental organisations, trade
unions and research and educational bodies with expertise and experience in the sustainability of
tourism. The TSG produced a report in February 2007 that outlines a plan of action for ensuring the
sustainability of tourism in Europe23. The report proposes key aims for making European tourism more
sustainable and the challenges associated with these, as well as a framework for action and a set of
initiatives to be taken at the European level. The report will be used by the European Commission as
the basis for communicating an Agenda for the Sustainability of European Tourism, following a
period of consultation.
3.
Standards for hunters
Hunters are a minority in European society, and since hunting involves the killing of wildlife,
they are often the subject of intense public scrutiny. Cases involving bad practices can receive wide
publicity and can be directly damaging to the image of hunters as stewards of wildlife and their
habitats. Since hunting plays such an important role in the management of biodiversity, it is imperative
that it is acceptable to society at large. In other words, it must be socially and culturally sustainable at
all levels - local, regional, national and international. In order to achieve such socio-cultural
sustainability, hunters must be perceived as being both proficient in terms of skills and knowledge and
conscientious with regard to the respectful treatment of the wildlife they hunt and the expectations and
broader interests of society.
Hunter proficiency can be measured through a number of parameters. Safe and proper handling
of the tools used in hunting is important in terms of public safety and the ethical take of game. Hunters
must also know and respect game laws and regulations and the rights of property owners. A proficient
hunter also understands basic game biology and species identification, and how to efficiently dispatch
game with a minimum of stress and suffering. As stewards of the wildlife resource, hunters should
also possess basic knowledge regarding game and habitat management,
A conscientious hunter is aware of the potential impacts hunting can have on the game resource,
and should strive to limit take to that which is biologically and socially defensible. Likewise, hunters
should recognize the responsibility for caring for the wildlife and their habitats, and seek partnerships
with other conservation interests where possible to further such efforts. Hunters should also work
together to improve methods that ensure that avoidable suffering is minimized. It is also important that
hunters show sensitivity to other public interests and concerns regarding their activities.
European policy regarding standards for hunter proficiency and conduct
The issue regarding hunter proficiency and conduct was first addressed over twenty years ago by
the COE Committee of Ministers in its Recommendation No. R (85) 17 24. This document recognized
the importance of hunting as an important tool in the management of wildlife, “provided that it
respects the ecological needs of species and the requirements of biological equilibria”. It also noted
that certain practices may produce harmful effects, and emphasized the need for the training of hunters
to “make them more aware of their responsibilities towards the natural heritage”. The recommendation
called upon the governments of member states to consider requiring hunters to pass a proficiency
exam before they are allowed to hunt, and suggested a syllabus for such an examination. It further
advised member states to cooperate with relevant organisations in hunter education and training, as
well as devising a code of conduct for hunters based upon a set of recommendations.
Today, many European countries have implemented some form of hunter education and training
programme, often as a cooperative effort between government authorities and national hunter
organisations. Requirements vary from country to country, and can be very stringent. However, some
countries, including founding EU states, do not require any formalized training or exam. A summary
review of the state of such efforts within Europe is, however, needed, in order to gain a better
23
http://ec.europa.eu/enterprise/services/tourism/doc/tsg/TSG_Final_Report.pdf
https://wcd.coe.int/com.instranet.InstraServlet?Command=com.instranet.CmdBlobGet&DocId=687208&SecMode=1&Ad
min=0&Usage=4&InstranetImage=45259
24
T-PVS (2007) 8
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overview regarding the degree to which hunters are required to meet formal standards for proficiency
and conduct in each country.
In addition, many national hunter organisations have adopted codes of conduct with rules similar
to those given in COM Recommendation No. R (85) 17. Examples of these include the codes of
conduct recommended by the French Association of Hunters25 and the Nordic Hunter’s Cooperation26,
among others. These codes of conduct are rules of behaviour that intend to foster hunting ethics as a
form of self-regulation above and beyond codified legislation. These place much emphasis on hunter
responsibility towards wildlife and nature, and encourage active participation in the management and
welfare of populations and their habitats. They also aim to foster awareness regarding the obligations
and responsibilities hunters have to other members of society, and underline the need for high
standards of conduct which can earn the respect of those that do not hunt. Such codes of conduct are,
in reality, guidelines for the sustainability of hunting through its acceptance by general society.
4. Conclusion
Existing global and European policy and rules address many central tenets with relevance to
hunting in Europe. Hunting is internationally recognized as an important tool for wildlife
conservation. It must, however, be sustainable, not only in terms of the ecological environment, but
also from the standpoints of economics and socio-cultural acceptance. In the next chapter, the
principles and guidelines for hunting its role in the conservation of biodiversity are based upon the
internationally accepted standards of sustainability reviewed here.
3. PRINCIPLES AND GUIDELINES
1.
Principle 1.a: Favour multi-level governance that maximises benefit for
conservation.
Rationale:
Human decisions that summate to change land-use and affect species depend on regulatory and
financial incentives at several levels. Governance affecting these incentives needs to be flexible if it is
to remain adapted to local bio-socio-economic conditions. Increasing uniformity of culture and
markets creates special regulatory challenges in guiding local use of land and wild species resources to
retain diverse ecological conditions.
Guidelines:
Conservation will be enhanced if regulators and wildlife managers:
1) Take into consideration the international, national, and regional conservation status of fauna and
flora;
2) For maximum flexibility, create structures to reward best practise (e.g. with subsidies or
privileges) as well as regulate against malpractice;
3) Ensure that the structures accommodate local cultural and ecological conditions as well as higherlevel policy;
4) Audit for regulatory or other incentives that are perverse for conservation of biodiversity and
remove, neutralise or compensate for them.
And if hunters and hunting tour operators:
1) Assist authorities at all levels to develop incentives for conserving biodiversity through use;
2) Strive to attain maximum conservation benefit through hunting at all levels at all levels.
25
26
Charte des Chasseurs de France, La Fédération nationale des chasseurs (2002)
Code of conduct (Adopted by the 1972 Nordic Hunter Congress)
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T-PVS (2007) 8
2. Principle 1.b: Ensure that regulations are understandable and respected.
Rationale:
Regulations can have costs for conservation as well as for users of wild resources. Costs are least
when minimal administration is combined with maximum motivation to comply, through easy
compliance and reliable detection of non-compliance. Inappropriate regulation may induce perverse
effects (e.g. poaching) if non-compliance is simple and rewarding, or if the rationale behind these is
not understood.
Guidelines:
Conservation will be enhanced if regulators and wildlife managers:
1) Structure regulations such that these are simple, logical and address biological principles as well
as (inter)national policy;
2) Impose only those restrictions on methods and means which can be justified from the standpoint
of conservation and that will be easily understood and accepted by local users;
3) Have transparent regulatory processes which allow for the active participation of resource users
and other stakeholders:
4) Favour forensic law enforcement technologies that motivate minimal-effort compliance;
5) Create regulations that can be adapted to local governance and enforcement needs.
And if hunters and hunting tour operators:
1) Assist in development and acceptance of effective regulations;
2) Follow and encourage respect for all rules and regulations pertaining to hunting, conservation
measures and property rights;
3) Embrace self-regulation where possible;
4) Assist in law enforcement and combat poaching.
3. Principle 2.a: Ensure that harvest is ecologically sustainable.
Rationale:
It is important to ensure that any harvest of wild populations remains sustainable. It also benefits
biodiversity if the conservation status of species is maintained at levels which are robust enough to
sustain harvest. Sustainable use requires information garnered from research and monitoring, and must
be regulated through the active use of reliable science and local knowledge.
Guidelines:
Conservation will be enhanced if regulators and wildlife managers:
1)
Implement adaptive management strategies for sustainable harvest and maintaining populations
at optimal levels relative to ecological carrying capacity;
2)
Develop management plans which take into account species behaviour and ecology (including
predation and seasonal effects), their long-term conservation status and possible ecosystem level
impacts;
3)
Ensure that components of resident and non-.resident harvest are addressed in management plans;
4)
Cooperate with resource users to develop and apply methods for simple and effective monitoring;
5)
Cooperate with neighbouring administrative authorities to properly manage transboundary
populations where appropriate;
6)
Develop and implement standardised systems for collecting harvest data for use in adaptive
management of populations at all appropriate scales;
7)
Recognise that natural and human-induced change is inevitable;
T-PVS (2007) 8
8)
- 20 -
Work to mitigate negative impacts on species and/or habitats where possible.
And if hunters and hunting tour operators:
1)
Contribute resources for maintaining biodiversity in association with use;
2)
Assist in population monitoring and research;
3)
Work to integrate their activities into the adaptive management of populations and habitats of
target game species;
4)
Recognize and accept the natural role and impact of endemic predators on target game species;
5)
Avoid activities which can disturb species during critical periods and/or in critical habitats;
6)
Ensure that populations of target game species are kept at optimal levels relative to their habitats
and species communities;
7)
Ensure that harvests are demographically sustainable.
4.
Principle 2.b: Maintain wild populations of endemic species with adaptive gene
pools.
Rationale:
Endemic species and their habitats (and human livelihoods derived from them) can be adversely
impacted by either the 1) introduction of invasive alien species, or 2) human selection for traits in
endemic species which may jeopardize the long-term viability of their populations.
Guidelines:
Conservation will be enhanced if regulators and wildlife managers:
1) Deter the release of alien species that could become invasive;
2) Engage those who use wild resources in programmes to remove invasive alien species;
3) Facilitate the reestablishment of originally endemic species of fauna and flora;
4) Incorporate genetic considerations into management plans;
5) Seek transboundary cooperation to ensure genetic viability of populations;
6) Monitor the genetic health of species populations of special concern.
And if hunters and hunting tour operators:
1)
Accept the return through natural recolonisation of wild species that were once endemic to an
area;
2)
Only (re)introduce species in accordance with IUCN guidelines;
3)
Avoid exclusively selecting for specific phenotypic or behavioural traits of individuals which are
not representative of the wild species population;
4)
Aid scientists and managers in monitoring genetic health of populations.
5.
Principle 2.c: Maintain environments that support healthy and robust populations
of harvestable species.
Rationale:
Wildlife species are vulnerable to pollutants and human impacts on their populations and
habitats. It is therefore in the interest of all who enjoy or benefit from wildlife to work together to
reduce or mitigate the effects of environmental degradation. There is a need for the continued
monitoring of the condition of harvested individuals and their habitats.
Guidelines:
Conservation will be enhanced if regulators and wildlife managers:
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T-PVS (2007) 8
1) Develop mutually agreed systems that motivate users of land and wild resources to conserve
associated habitats and species as well as those harvested;
2) Implement systems which monitor the condition of harvested species and their habitats;
3) Incorporate environmental concerns and habitat aspects into management plans;
4) Develop and implement standardized systems for monitoring the condition of harvested species
and their habitats;
5) Account for possible negative impacts of resource users on other ecosystem services and mitigate
these.
And if hunters and hunting tour operators:
1) Accept and seek responsibility for conserving wildlife species (including game) and their habitats;
2) Understand the need for maintaining healthy ecosystems and habitat quality for game and
wildlife;
3) Assist in monitoring of animal and habitat condition;
4) Actively contribute to the conservation and restoration of habitats at appropriate scales;
5) Work to ensure that their activities do not adversely impact local environments and habitats.
6) Use only native flora for habitat restoration [or afforestation].
6.
Principle 3.a: Encourage use to provide economic incentives for conservation.
Rationale:
Stakeholders can be motivated to conserve wild species and their habitats by recognizing their
inherent economic value.
Guidelines:
Conservation will be enhanced if regulators and wildlife managers:
1)
Understand that suppliers of harvest opportunities should expect reasonable payment for the
services and opportunities they provide;
2)
Encourage harvest models that provide economic benefits to local communities:
3)
Set official fees or taxes at reasonable levels in order that these do not represent barriers to local
participation.
4)
Provide local communities with incentives to uphold or improve the diversity of species and
habitats;
And if hunters:
1) Are willing to pay reasonable fees:
2) Are willing to pay for the conservation and management of game and their habitats;
3) Accept fee structures which favour local access but don not exclude access by non-residents.
And if hunting tour operators:
1) Acknowledge and accept that their activities must give positive economic benefits for local
communities;
2) Are willing to pay for the conservation of target game species and their habitats;
3) Accept that their access can be limited, and/or that they can be subjected to higher fees than local
hunters.
T-PVS (2007) 8
- 22 -
7. Principle 3.b: Ensure that harvest is properly utilised and wastage avoided
Rationale:
Utilising a renewable resource to the fullest possible extent will maximise the economic
incentives for local people as well as indicating respect for the environment and in some cases
minimising bio-pollution.
Guidelines:
Conservation will be enhanced if regulators and wildlife managers:
1) Encourage the proper handling and processing of food from the wild:
2) Ensure that food from the wild is subjected to proper health inspection before commercial sale.
And if hunters and hunting tour operators:
1)
Properly care for meat in order to ensure against wastage and contamination;
2)
Fully utilise fur and hides where possible;
3)
Utilise other animal parts where possible and desireable;
4)
Observe rules of proper hygiene to ensure meat quality and guard against detrimental
effects
health
5) Ensure that those game products they do not utilise are made available to local inhabitants.
8. Principle 4: Empower local stakeholders and hold them accountable.
Rationale:
With good local knowledge and monitoring, management at local level is most rapidly adaptive.
It also both empowers stakeholders and holds them immediately accountable for meeting requirements
of resource beneficiaries and conservation. Local management must be in harmony with higher level
goals.
Guidelines:
Conservation will be enhanced if regulators and wildlife managers:
1)
Promote and facilitate decentralized management of species with robust and healthy populations
(favourable conservation status);
2
Facilitate the empowerment and accountability of stakeholders, especially users of land and wild
resources, in this decentralized process;
3)
Promote models that ensure equitable sharing of benefits among user groups.
And if hunters:
1)
Recognize their role as responsible resource stewards;
2)
Have knowledge regarding wildlife ecology and conservation practices;
3)
Actively participate in practical management and conservation measures;
4)
Interact with other interests and local authorities to find best solutions;
5)
Work for broad access to local resources.
And if hunting tour operators:
1) Recognize the cultures, traditions and needs of local people, including hunters;
2) Work closely with local stakeholders to ensure integration of activities and to avoid conflicts.
- 23 -
9.
T-PVS (2007) 8
Principle 5.a: Competence and responsibility are desirable among users of wild
resources.
Rationale:
For practises to be socially sustainable, those using wild resources are advised to be responsible
and proficient regarding methods, equipment and species they utilise.
Guidelines:
Conservation will be enhanced if regulators and wildlife managers:
1) Encourage and facilitate education and training programs for use of wild resources, especially
hunting;
2) Cooperative with organisations that coordinate users of wild resources to encourage recruitment
from both sexes, all ages and backgrounds.
And if hunters:
1) Have sufficient knowledge on identification, habits and ecology of the species they hunt;
2) Are proficient in the proper and safe handling and use of firearms, traps and other implements;
3) Train regularly to maintain or improve proficiency and skill;
4) Know the laws and regulations governing hunting and the conservation of wildlife where they
hunt;
5) Teach new hunters the skills and knowledge they require to be competent and responsible.
And if hunting tour operators:
1) Provide their clients with the information and knowledge they need for an enjoyable and
responsible hunt.
10. Principle 5.b: The welfare of animals is a primary consideration.
Rationale:
For practises to be socially sustainable, suffering needs to be minimized. Hunters have a moral
responsibility to eliminate avoidable suffering of the game they hunt.
Guidelines:
Conservation will be enhanced if regulators and wildlife managers:
1) Adopt rules and regulations which promote methods and equipment for taking animals which
minimize avoidable suffering;
2) Communicate the need for awareness regarding animal welfare;
3) Recognise best practices.
And if hunters and hunting tour operators:
1) Hold the welfare of game animals in the highest regard and strive to reduce or eliminate suffering
where possible;
2) Learn about animal physiology and the most efficient way to kill game with minimal suffering;
3) Promote measures which ensure proficiency in the use of firearms and traps;
4) Strive to efficiently track down and dispatch wounded game;
5) Avoid methods of non-selective or mass capture:
6) Take care not to disturb species during the breeding season or other critical periods.
T-PVS (2007) 8
- 24 -
11. Principle 5.c: Encourage cooperation between all stakeholders in management of
harvested species, associated species and their habitats.
Rationale:
Those using wild resources can contribute positively to the proper management of biodiversity
through cooperation with other conservation interests, landowners and agencies. Such cooperation
promotes the positive role hunters play in broad conservation efforts.
Guidelines:
Conservation will be enhanced if regulators and wildlife managers:
1)
Create institutional structures that are inclusive of all interests;
2)
Encourage public understanding of conservation and economic as well as cultural benefit from
harvest;
3)
Seek opportunities and provide incentives for cooperation between different interests;
4)
Use all possible measures to avoid and resolve conflicts.
And if hunters and hunting tour operators:
1)
Seek opportunities to benefit human and wildlife populations;
2)
Promote and participate in the conservation and management of wildlife populations (including
non-game species) and their habitats;
3)
Actively seek alliances with other local stakeholders;
12. Principle 5.d: Encourage acceptance of consumptive use as a conservation tool by
the public and other conservation interests.
Rationale:
Harvesters of wildlife are a minority and must understand the needs and concerns of other people
and interests in order to ensure their acceptance by society. This makes it desirable for users of
wildlife to communicate the positive benefits of their use for biodiversity conservation and for all
stakeholders to work together to educate the public regarding important conservation issues.
Guidelines:
Conservation will be enhanced if regulators and wildlife managers:
1) Provide a framework which ensures the long-term acceptance by society for the harvesting of
wildlife;
2) Ensure that populations of game species are kept at levels that are compatible with the interests of
other socio-economic sectors;
3) Facilitate public awareness of conservation interests and the positive benefits from use of wildlife;
4) Preserve cultural, historical and aesthetic values related to wildlife and use of wild resources.
And if hunters and hunting tour operators:
1) Are sensitive and respectful to local interests and cultures;
2) Strive to be ambassadors for hunting through good behaviour and practices;
3) Respect property ownership and local restrictions;
4) Educate and inform other interests regarding the benefits of hunting and conservation;
5) Understand the need for local involvement in all hunting activity, including hunting tourism
operations.
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Appendix 1.
Principles.
#
1
Relationship between Hunting Charter Principles and AAPG/Malawi
Three pillars of
sustainability
Addis Ababa/ Malawi
Focus
#
Hunting Charter Principles
AAPG/MALAWI
MAP
General
1A
Favour multi-level governance
that maximises benefit for
conservation.
(A1,A3,M2,M4)
Socio-cultural
Supportive & linked
governance at all levels with
harmonized regulations that
promote societal benefits
from conservation and avoid
perverse effects.
Regulatory
1B
Ensure that regulations are
understandable and respected.
(A1,A8,A13, M10)
2A
Ensure that harvest is
ecologically sustainable
(A4,A6,A9,M712)
2B
Maintain wild populations of
endemic species with adaptive
gene pools
(A5,A9,M11-12)
Ecosystem
services
2C
Maintain environments that
support healthy and robust
populations of harvestable
species.
(A4,A6,A9,M712)
Economic
incentives
3A
Encourage use to provide
economic incentives for
conservation
Waste
avoidance
3B
Ensure that harvest is properly
utilized and wastage avoided.
Avoidance of adverse
impacts within or between Demographic
ecosystems, and of shorttermism, especially when
faced with inevitable change.
2
3
4
Ecological
Economic
Socio-cultural,
Ecological,
Economic
Transparent and adaptive
management along a useprotection continuum, based
on interdisciplinary science,
monitoring and timely
feedbacks.
Encouragement of
economic/cultural incentives
with sharing of benefits (and
costs) especially at local
level, while avoiding waste.
Genetics
Decentralisation of
management to an
Local
appropriate bio-economic
scale, especially to empower, management
assess and access knowledge
of local users.
Conduct and
proficiency of
harvesters
5
T-PVS (2007) 8
Socio-cultural
sustainability
Education, awareness and
inclusion of managers,
resource users and society at
large.
4
5A
(A11)
(A2,A4,A9-10,A12Empower local stakeholders and
13,
hold them accountable.
M2,M4,M7,M1112)
Competence and responsibility
are desirable among users of
wild resources.
Animal welfare 5B
The welfare of animals is a
primary consideration.
(A14,M1,M12)
Horizontal trust 5C
Encourage cooperation between
all stakeholders in management
of harvested species, associated
species and their habitats.
(A2,A9,A14,
M1,M12)
Encourage acceptance of
consumptive use as a
5D
conservation tool by the public
and other conservation interests.
(A12, M14)
Social
acceptance