ATC140313: Report of the Portfolio Committee on Water and Environmental Affairs on Rhino Poaching Stakeholder Workshop, Held at the Kruger National Park (Nombolo Mdhluli Conference Centre, Skukuza), from 2nd — 4th December 2013, dated 5 March 2014.
Water and Sanitation
REPORT OF
THE PORTFOLIO COMMITTEE ON WATER AND ENVIRONMENTAL AFFAIRS ON RHINO POACHING
STAKEHOLDER WORKSHOP,
held at the Kruger
National Park (Nombolo Mdhluli Conference Centre, Skukuza), from 2
nd
4
TH
DECEMBER 2013, DATED 5 march 2014.
BACKGROUND
Africas rhinos have faced
two catastrophic crises over the past 50 years. The first crisis extended from
the late 1970s through the mid-1990s and saw most rhino populations decimated
through relentless waves of poaching to support traditional rhino horn trades
for traditional medicine in Asia and the production of dagger handles in Yemen.
Many rhino range States saw their Black Rhinoceros populations completely
disappear or plummet to levels that were a mere shadow of the tens of thousands
of rhinos roaming our continent. From an estimated 100 000 animals throughout
Africa, in 1960, Black Rhino numbers collapsed to an historic low of only some
2 410 animals by 1995,
[1]
including the near extinction of the western subspecies of Black Rhino. The
northern subspecies of the White Rhinoceros fared even worse and was completely
obliterated throughout its range, save for a small remnant population,
numbering about 30 animals, in the Democratic Republic of Congos
Garamba
National Park, on the border with Sudan. Comparatively
speaking, the southern subspecies of the White Rhinoceros suffered far less
attrition during this period, as most populations were found in either South
Africa or Namibia. These two nations stood as the exception to the rule and
averted most of the negative impacts of the first rhino crisis due to an
unwavering government commitment to rhino conservation, diligent investment in
protection and biological monitoring, and a strong alliance between
non-governmental organisations (NGOs), local communities, and private and
public sector stakeholders, to promote common objectives.
South
Africa unquestionably has the
worlds most successful conservation record for
rhinos. In 2011, this country alone conserved 83 per cent
of Africas rhinos and 73 per cent
of all wild rhino worldwide.
[2]
As one of the most biologically
diverse nations globally, South Africa has long
promoted biodiversity conservation through
the sustainable use of natural resources. In fact,
the countrys Constitution enshrines the principle of sustainable management of
natural resources that explicitly
calls for, among others,
a prosperous,
environmentally-conscious nation, whose people are in harmonious coexistence
with
the
natural environment, and which derives lasting benefits from the conservation
and sustainable use of its
rich biological diversity
.
Within such an enabling environment, it is not surprising that, since the
1960s,
there
has been a marked shift to wildlife-based land-use amongst private landowners,
and today game
ranches
in South Africa cover an area nearly three times the collective size of all
national and provincial
protected areas on State land. Wildlife in general, but rhinos in
particular, have benefitted tremendously
from these visionary natural resource policies. However,
the countrys superlative conservation record
of more than a century is under threat, the fate of
South Africas rhinos is now inextricably
linked with market forces in South East Asia, in
countries like Viet Nam, Laos and China. (Vietnam recently saw its own rhino
population slip into
ignominious extinction).
Thus, South Africas enterprising conservation success also brought with
it a huge challenge, as it makes the country a prime hunting ground for those
seeking rhino horns illegally. It is obvious that the burgeoning black-market
demand for rhino horn in the past few years is largely attributed to the
economic boom in east and south-east Asia, where the horn is used primarily for
medicinal and recreational purposes.
[3]
The statistics of rhino poaching, since 2007 to date, attest to this reality.
In 2007, South Africa lost 13 rhino to poaching, by 2009 the number had reached
124, in 2010 it rocketed to 335 and numbers of poached animals continue to rise
in subsequent years.
[4]
Poaching
in 2013 remains at historically high levels, despite the successful clamp down
on pseudo-hunting by South Africa, which has constricted the illicit rhino horn
supply.
[5]
Poaching trends and the levels of sophistication in
the killing of rhino, backed by enormous resources, are very alarming and
require urgent intervention.
[6]
Rhino
poaching appears to behave like a runaway train. It is the worst environmental
crime that the country has witnessed, with serious cultural and socio-economic
implications for the nation. Government and relevant stakeholders understand
the difficulty in stopping rhino poaching, and it is in this context that
concerned institutions and individuals proposed various strategies to stop or
even derail the poaching activities. Strategies proposed include actions and
programmes to
either burn
the horns, poison the horns,
legalise trade in horns and, finally, increase security measures and step up
anti-poaching operations. However, the biggest stumbling block to all kinds of
anti-poaching strategies are the immense and ever increasing rates at which the
animals are poached; and the vastness of rhino distribution, which combined
with the guerrilla tactics of the poachers, make counter-insurgent measures
very difficult to establish.
[7]
STAKEHOLDER
ENGAGEMENT WORKSHOP
Parliament,
through the Portfolio Committee on Water and Environmental Affairs (hereinafter
the Committee), had been engaging officials of the Department of Environmental
Affairs (Department) since the upsurge in rhino poaching that started in 2008,
with the aim of stemming these illicit practices from South Africas protected
areas network, mainly by organised crime syndicates. The Committee became
increasingly concerned as poachers appeared to be more organised and
sophisticated, outwitting the conventional anti-poaching measures, considering
the growing number of poached animals. The growing and relentless killing of
rhinos by poachers threatened to reverse the hard-won population increases
achieved by conservation authorities during the 20
th
century. The
illegal killing of rhino and the smuggling of their horns in recent years
clearly indicates the increasing involvement of highly organised and
well-structured crime syndicates that are operating in a lucrative
international enterprise. In addition to the loss of horns through increased
poaching, concerns have also been raised regarding leakage of South African
horns onto the illegal international markets from rhino horn stockpiles in the
public and private sector. The concern for the Committee is that should
poaching continue to escalate at the current rates, unabated, we could reach
the situation where rhino numbers start declining, to a point when more animals
are being poached than are born into the rhino population, as has been
experienced in other rhino range States in the recent past. To stem this tide
requires a properly structured and concerted effort by Government and other
relevant role-players, as ongoing poaching of animals poses a significant
threat to the rhino population and also to the reputation, eco-tourism industry
and the public image of South Africa.
It was against
this background that the Committee called for a Anti-Rhino Poaching stakeholder
engagement workshop, (workshop) in the Kruger National Park, building on two
significant parliamentary processes ( public hearings on rhino poaching in
2012, and a closed-door meeting, thereafter with all law enforcement agencies
relevant to the protection of South Africas wild rhino populations) and
regular Committee engagements with the Department,
aimed at finding optimal solutions to the
ongoing challenge of rhino poaching. In addition to the local stakeholders, the
Committee invited members of Parliament from rhino range States on the
Continent with the aim of sharing experiences on the challenges of rhino
conservation and also learning from the many discussions at the workshop.
Unfortunately, it was only the Zimbabwean Parliament that was represented at
the workshop by the Chairperson of the Committee on Environment, Water, Tourism
and Hospitality Industry. The attendance by local stakeholders was impressive,
with about
80 delegates, including
members of the Portfolio Committee, Minister of Water and Environmental Affairs
(Minister) and officials from the Department, provincial Government
departments, SANParks,
iSiMangaliso
, private game
reserve owners, other non-governmental organisations (NGOs), researchers and
academics. The workshop was organised at the
Nombolo
Mdhluli
Conference Centre, in
Skukuza
,
within the Kruger National Park and ran over a two-day period, from 2
nd
to 4
th
December 2013.
PARLIAMENTARY
delegation
The
following Committee members and staff attended the Rhino Poaching Workshop
,
as
follows:
1.
Hon Adv. JH de Lange, MP, from the African National
Congress (ANC) and Committee Chairperson;
2.
Hon JJ Skosana MP
,(
ANC);
3.
Dr SB Huang,
MP (ANC);
4.
Hon N
Tsotetsi
MP,
(ANC);
5.
Hon J
Manganye
,
MP (ANC);
6.
Hon B
Dlomo
,
MP (ANC);
7.
Hon AZ
Ndlazi
,
MP
(ANC);
8.
Hon P Bhengu, MP (ANC);
9.
Hon M
Wenger,
MP (DA);
10.
Hon
F Rodgers, MP (DA)
11.
Hon
B Ferguson, MP (COPE);
12.
Hon
CN Zikalala, MP (IFP);
13.
Ms
Tyhileka Madubela, Committee Secretary;
14.
Mr
D
Arendse
, Committee Assistant;
15
.Mr
Thomani
Manungufala
,
Researcher; and
16. Dr
Scotney
Watts, Researcher;
WORKSHOP proceedings
The Chairperson of the Committee, Hon
Adv. JH de Lange, MP, chaired the Workshop. He opened the workshop, by
welcoming the delegates and thanked them for their interest in rhino
conservation. He also outlined the purpose of the workshop, which was to get a
better understanding of the current situation relating to the illegal killing
and conservation of rhinoceros in South Africa and to debate and seek possible
solutions to the rhino poaching challenges that the country faces in a
participatory and inclusive manner. The Minister, Hon
Edna
Molewa
,
MP, delivered the keynote speech, which emphasised the need for cooperation by
various stakeholders and also highlighted the Governments plans for moving
forward in tackling the ruthless poaching of South African rhinos. The Minister
reiterated that continuing to do more of the same is no longer working, as the
poaching crisis requires complex and innovative solutions to match the
challenge posed by sophisticated poachers.
This was
followed by a series of presentations, covering rhino conservation issues;
management of rhino populations; rhino safety and security; trends in poaching;
structure and nature of black markets in wildlife products; consumer behaviour;
and rhino economics. Discussions also focused on possible solutions to destroy
or at least seriously debilitate the existing, underground black market in
rhino horn. Some of the proposed solutions included, amongst others:
·
Increased
involvement of communities, including community ownership of rhino and
benefit-sharing by communities;
·
Emphasis
on cross-border collaboration, including cross-border law enforcement
operations to disrupt local criminal networks;
·
Enhancing
actionable intelligence to enable South Africa to disrupt transnational
criminal networks involved in the illegal trade in rhino horn;
·
Implementing
mechanisms to increase the conviction rate in rhino-related cases;
·
Converting
the present ranger corps into the best anti-poaching force in Africa;
·
Implementing
mechanisms to improve communication and cooperation between private landowners,
security forces and the officials of the Department;
·
Support
the
building and continued use of a central DNA profile database
for rhinos (known as
RhODIS
or rhino DNA index
system), at the University of Pretoria's Faculty of Veterinary Science's,
Onderstepoort
facility,
to enhance law enforcement, and prosecution
of rhino poachers;
·
Incentivise
the continued conservation of rhinos by private game reserves and local
communities by allowing a strictly, limited, regulated trade of live rhinos and
specific rhino horns; and
·
Implementing
innovative, strategic, targeted culturally-sensitive demand reduction
initiatives.
The discussions relating to
a strictly limited and regulated trade in rhino horn included the need to:
·
Ensure
that all opportunities, implications and risks are assessed;
·
Urgently
finalise the verification of all rhino horn stockpiles, especially
privately-owned stockpiles;
·
Engage
rhino range States and the region on these trade matters, including range
expansion;
·
Ensure
sharing of best practices and information; and
·
Ensure
that all other measures and initiatives continue to be implemented and
strengthened.
Finally, the Committee expressed
concerned with the sudden RENAMO resurgence in neighbouring Mozambique,
particularly the uncertainty created by this on rhino conservation efforts in
South Africa.
In
conclusion,
the Committee reaffirmed that all
interventions should support protection, conservation and sustainable use,
which are the cornerstones of the environmental rights afforded to the people
of South Africa, as contained in the Bill of Rights in the South African
Constitution. Section 24 of the Constitution provides everyone with the right
to an environment that secures ecologically sustainable development and use of
natural resources while promoting justifiable economic and social development.
T
he Committee also noted that all parties
present at the workshop shared a common concern and interest, and recommended
that similar engagements need to be held as the Government prepares to table
its proposal regarding the limited and regulated
trade in rhino horn at COP17 to the CITES in
2016.
RECOMMENDATIONS
The
Committee expressed its commitment to continue working closely with all
Government and civil society stakeholders in ensuring that decisions regarding
the management and conservation of South Africas rhino populations are not
detrimental to their future.
In
this regard, the Committee recommends that:
Towards limited, regulated trade in rhino horn
·
While
well-intentioned, the current CITES trade ban on legally selling rhino horn
seems not to have saved any species or sub species of rhino, whilst succeeding
to drive the illegal selling of rhino horn underground, creating a lucrative,
well-functioning, illegal, underground black market, which is a haven for
organised crime, diverting vast sums of possible conservation funds into the
hands of criminals.
In fact, during
these three decades of the CITES ban being in place, many species of rhinos have
become extinct or are close to extinction.
The current CITES ban on rhino horn trade
constrains rhino conservation efforts and hence impinges on the long-term
sustainability of the species. The increasing cost to keep rhinos safe and the
decreasing prospect of earning income from animals by legal means
are providing powerful disincentives for owners of game reserves
to expand the number of rhinos on their land. The poachers therefore face a
favourable economic climate of a ready supply of illegal horn at increasingly
inflated prices due to the ban on legal trade of rhino horn, while the
conservation agencies and rhino farmers experience tough economic times. The
Committee is of the view that priority number
one for the international
wildlife
conservation community must be to destroy, or at the very least, to seriously
debilitate the existence of a lucrative, rapidly-growing, well-functioning
underground black market, illegally trading in rhino horn; and to replace
this black market with a strictly, regulated, legal market mechanism, possibly
amongst States. Accordingly, the Committee recommends that a limited, regulated
trade in specific rhino horns be supported as our countrys position at COP17
of CITES;
·
The
Committee, through the Chairperson, should approach the Minister and the Director-General
of the Department to have the
Deputy
Director-General of Biodiversity and Conservation, Mr
Fundisile
Mketeni
and other relevant staff, solely focus on the
rhino issue with regard to the COP17 of CITES, to ensure effective lobbying of
strong blocks, like the European Union (EU) and other African rhino range
States;
·
The
status and audit of all rhino horn stockpiles in the country, whether privately
or state owned, should be finalised before the tenure of the current Minister
expires and the Fourth Parliament rises;
·
The
Department should consider granting a limited amnesty to the owners of private
game reserves to enable them to declare rhino horn stockpiles in private hands
to facilitate accurate estimation of rhino horn stockpiles nationally;
·
The Department
should develop and report on the status of a Plan B, in a manner consistent
with, the sensitivity of this matter, in case the Parties to the COP17 of CITES
do not support South Africas proposal for a limited regulated trade in
specific rhino horns that derive from natural mortality, current stockpiles of
rhino horn or legal hunting;
·
The
Department should liaise with provincial conservation agencies to determine the
accurate number of South African rhinos in the wild in the face of mounting poaching
pressures on the species. There is a need for credible statistics on the
species for setting conservation targets and also for promoting the species for
various purposes, including trade; and
·
The
White Rhino Management Plan should urgently be completed and made available to
brief the incoming Committee after the elections in May 2014.
Protection of rhinos
·
The
Chairperson of the Committee, should engage the Department of Justice and
Constitutional Development to determine the feasibility of legislation
prescribing minimum sentences for rhino poaching;
·
The
Department should continue to make available to the Committee copies of all
Memoranda of Understanding between South Africa and rhino range States, as well
as consumer States, notably China and Viet Nam, and to regularly engage the
Committee on these matters;
·
The Committee recommends that Major General (retired) Johan
Jooste
should interact with his counterparts from other
African rhino range States to benefit from each others strategic wildlife law
enforcement and rhino protection plans; and
·
The
NatJoints
should meet with rhino stakeholders, including provincial
nature reserve authorities and private game reserve owners, to facilitate
interaction in order to report rhino poaching activities timeously to
effect
rapid response measures and support effective law
enforcement to enhance rhino protection.
Funding
·
The Department should urgently
start the process of setting up a national fund for rhino conservation to
augment, broaden and innovate current rhino protection initiatives;
·
The
Committee recommends that revenues generated from the disposal of stockpiles
and any future revenues generated because of the future lifting of the CITES
trade ban, be used exclusively to further rhino conservation efforts; and
·
The
Committee strongly supports the use of these sources of money or money from the
fiscus to equip law enforcement officers with appropriate technology and
capacity to respond appropriately to rhino poaching threats that South Africa
faces.
Technology
·
The
Department should determine, in consultation with relevant law enforcement
agencies, the kind of technology that should be used to constrain or stifle
poaching activities in national parks, such as deployment of drones and
advanced eavesdropping technology, to neutralise poaching activities in
protected areas.
Community engagement
·
The
Department should facilitate meaningful community involvement in rhino
conservation around protected areas to serve as firewalls against poaching.
Such proactive community involvement should be linked to the ongoing land
reform programme and hence requires the Department to interact with relevant
partners in Government. This should fit well with the
National Protected Area Expansion
Strategy
for South Africa that the Department has been implementing
since its inception in 2008.
General
·
The
Department
should brief the incoming
Portfolio Committee as soon as possible, after May 2014, on the progress made
in respect of issues raised at the Rhino Poaching Stakeholder Engagement
Workshop and recommendations made in this report.
Report to
beconsidered
.
[1]
Emslie
, R. H.,
Milledge
,
S., Brooks, M., Van
Strien
, N. and
[2]
Emslie
, R.H.
(2013)
African Rhinoceroses Latest
trends in rhino numbers and poaching.
Sixteenth
meeting of the Conference of the Parties Bangkok, Thailand, 3-14 March 2013.
[3]
Wilderness
Foundation (2011)
The
History of Rhinos in
[4]
Schack
, W. (2012)
Towards
a
strategic plan to halt rhino poaching. Presented to Parliament of the
[5] Emslie , R.H. (2013) African Rhinoceroses Latest trends in rhino numbers and poaching. Sixteenth meeting of the Conference of the Parties Bangkok, Thailand, 3-14 March 2013.
[6] Ibid
[7]
Schack
, W. (2012)
Towards
a
strategic plan to halt rhino poaching. Presented to Parliament of the
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