(from "Chairman's Report of the Forty-Third Meeting")
Japan made general introductory remarks expressing its views concerning the effects of the moratorium particularly on the isolated small coastal whaling communities. It has been presenting the case for its small-type coastal whaling (STCW) based on the findings by a number of international social scientists that STCW has distinct characteristics of its own, some of which are similar to the characteristics found in aboriginal/subsistence whaling. STCW serves to maintain the centuries old Japanese coastal whaling traditions which are deeply ingrained in the local culture and provide the basis for the very existence of such coastal communities.
Japan presented several documents which were considered by the Working Group.
A paper on the 'Socio-Economic Implication of Zero Catch Limit - Some Examples of Small-Type Whaling' provided current information on the socio-economic implications of the zero catch limit in the two STCW communities of Ayukawa and Abashiri. It included the difficulties faced by crew members who lost their jobs, the outmigration of people from Ayukawa, the reduced attraction of the town as a tourist destination, the impact of the cessation of whaling on the local fishery activity. In the case of Ayukawa in particular, all these factors serve to undermine local people's confidence in the future of their community.
The 'Cultural Significance of Everyday Food Use' was a follow-up to a report tabled last year entitled 'Quantification of Local Need for Minke Whale Meat for the Ayukawa-based Minke Whale Fishery' which set out to quantify the local human need for minke whale meat consumed for culturally-significant end uses. The Working Group had asked for further clarification of this area of consumption. Six criteria are considered when choosing food items, the food preparation method, and when considering the types of food eating event; these criteria are: availability, sensory preference, symbolic value, health value, historical value and social value.
'Age Difference in Food Preference with Regard to Whales Meat: Report of a Questionnaire Survey in Oshika Township' concluded that the adverse effects of the whaling ban are not limited only to the older age groups, but rather, extend to all generations in the population.
Summaries of documents on Socio-Economic Implications and Small-type Coastal Whaling were presented by Japan as synopses of previous documents, calling the attention of Working Group members to the depth and scope of the research that has been conducted.
The USA requested that new information on the proportion of certain grades of meat not consumed locally, but sold in more distant markets be provided as requested in last year's Working Group. Japan responded that this information would be provided by the next meeting.
Social and economic implications of implementing a zero catch limit
The Chairman of the Icelandic Minke Whalers' Association spoke of the
hardships caused by the cessation of minke whaling in the isolated coastal
communities.
He recalled that research had shown that the minke whale stocks were abundant
and that those whose livelihood depended on minke whaling could be trusted to
abide by strict conservation measures.
The Working Group agreed to add to its report the following statement agreed to in the report of its 1989 and 1990 meetings:
'The Working Group agreed that it was clear that the zero catch limits have several levels of socio-economic impacts and that it is important for the Commission to have these facts and opinions as they proceed with their deliberation. The group identified several elements. Some of the socio-economic effects are serious, but governments at times have to take painful actions that affect their citizens. While these decisions are painful several delegations stressed it is the responsibility of the government to take mitigating measures. Though governments can successfully take actions to mitigate change, some are permanent and cannot be remedied. Under such conditions no consequences of government action can prevent or reverse changes to certain cultural, traditional and religious lifestyles. The impacts of zero catch limits are greater in sociological terms in rural areas, where local economies and traditions are linked to the natural resources, than in larger and more industrialised communities.'
Consideration of the situation of various kinds of small-type
whaling
Japan noted that over the past six years it had submitted many documents,
including one that provided the basis of the distinction between small-type
coastal whaling and large-type coastal whaling.
Some characteristics of small-type coastal whaling are similar to those found
in aboriginal/subsistence whaling.
This provides the justification for requesting special consideration.
Several delegations stated that they saw the hunt as essentially commercial and that they would not support the establishment of a new category.
On the definition of commercial whaling, Denmark noted that even in aboriginal subsistence whaling, a limited part is sold from one settlement to another. They would hope that the IWC, after further negotiations, would reach an agreement on an ad hoc solution allowing limited whaling activities for small populations which have a tradition for whaling dating back from before the Second World War.
The Chair asked if Japan was seeking a special Schedule amendment to cover small-type coastal whaling. Japan responded affirmatively.
Other business
The group concluded its deliberations with the recommendations that:
Technical Committee discussion
Japan reminded the Technical Committee that it had accepted the moratorium in
1986 on commercial whaling from factory ships in the Antarctic and large- and
small- type coastal whaling.
This had caused considerable hardship.
It questioned the correctness of the decision in the light of the Southern
Hemisphere minke whale stock estimate of 760,000 and the three main objectives
of the Convention.
Small-type coastal whaling is conducted to satisfy local needs and it
requested the recognition of a third category of whaling between commercial
and aboriginal subsistence.
It had made substantial submissions in recent years demonstrating the local
needs and the severe impact experienced.
Local management committees will regulate any future distribution of whale
products.
Concerning the Okhotsk Sea - West Pacific stock of minke whales the Scientific
Committee had estimated a population size of 21,000, and indicated that 209
whales could be taken without harm.
This was a critical time for the Commission and it believed a modest take was
possible, but asked for serious consideration to alleviate the social and
cultural deprivation.
It will undertake further research and make a request for a third category of
whaling at another time.
12.2 Action arising
Mexico supported the recommendations of the Working Group which were seconded
by Iceland and Denmark.
The UK was prepared to agree, but it was not yet satisfied there is a case for
a third category.
St Vincent & The Grenadines expressed its support for Japan, the latter
indicating that after waiting four years already and in the light of the
suffering caused, it will ask for an emergency quota at the plenary.
Plenary discussion
In the plenary, India stated that it is against any kind of relaxation for
coastal whaling except as subsistence for aboriginal communities.
It raised the question of whether this might be a subject for the Human Rights
Commission.
St Vincent & The Grenadines supported the Danish view expressed in the Technical Committee that the IWC should reach an ad hoc solution allowing limited whaling activity to small populations with a tradition of whaling dating back before the Second World War. Despite the many documents and presentations received by the Working Group it has not been able to reach consensus on the need to establish a special category of whaling. The socio-economic impact on the small coastal communities has been documented for Iceland, northern Norway and the northwest coast of Japan but the people in these areas can look for no relief under the management procedures being developed by the IWC for many years to come. Requests for interim humanitarian relief have been denied. The stocks involved have all been assessed by the Scientific Committee and appear to be at levels where some catches can be permitted, and the Commission should consider the practical aspects for providing interim humanitarian relief as requested.
Iceland fully associated itself with these views.
Japan believed that the minke whaling by Norway and Iceland should be considered in the same context as the case it is presenting for the small-type coastal whaling off Japan. The effect of the moratorium over the past four years since its implementation in Japan becomes more severe each year. Under the circumstances of a population estimate of more than 20,000 minke whales with a replacement yield of 209, it considered the importance of the socio-cultural and economic significance on the local coastal communities and asked for an emergency relief quota of 50 minke whales.
St Lucia supported this request on the grounds of the documented need, the status of the whale stock and the delay of at least six years before implementation of the Revised Management Procedure for this stock. It did not believe the argument that creeping commercialism has infected the small-type whaling communities is a sound one, in that it might be a reason for reducing the requested allocation but not for denying it altogether.
While expressing sympathy, the People's Republic of China hoped for completion of the Comprehensive Assessment of the whale stocks and specific management advice from the Scientific Committee in the near future.
The USA maintained and subsequently reiterated its view that small-type coastal whaling is in reality a type of commercial whaling. The proposal should not be addressed without changing the provisions that are in paragraph 10(e) of the Schedule, and no category currently exists formally for small-type coastal whaling.
The UK supported the view of the USA that the only way to treat the emergency request is as an exception to the Schedule. But despite all the information on the four villages supplied by the Government of Japan to the Working Group, it still considers the small-type coastal whaling to be of a commercial nature and the moratorium is still operative.
While recognising that there are dietary and to some extent economic needs involved, New Zealand thought that the same sort of subsistence need that applies in the case of aboriginal requirements had not been established. As there is still a moratorium on commercial whaling it believed the proposal can only be considered in the light of a revised management procedure.
The Netherlands stated its understanding of the problems caused, and appreciated the efforts expended, but the operation is essentially commercial in nature and before the Commission could approve such a quota it would have to decide to make an exemption to the commercial moratorium. Germany voiced similar views, and added the uncertainty about the stock which still exists.
Norway supported the emergency quota request, since it was restrained and modest. It found it difficult to understand why it should be so hard to accept a request of this kind for people's livelihoods, and to hear the interventions by those more concerned about whales' rights than human rights.
Iceland commented that the organisation is completely stultified through what it identified as the lack of debate in plenary between the majority in the organisation and the others who have legitimate interests, because the discussions take place in antechambers. It also saw constraints by certain words which cannot easily be changed even when a clear need can be demonstrated. The organisation had gone through three periods, the first when whaling was not sufficiently regulated, the second when concern led to trying to establish some kind of control over that unrestricted whaling, and the third beginning in 1982 with the implementation from 1986 to deal successfully with the problems of the first period, which will not return. We should not act as if the first period was continuing, and it looked for a fourth period of cooperation to take account of the interests identified before.
Japan questioned especially the USA and the UK on how long its people must continue to wait, and then asked for a vote on its request for an interim quota. This received 6 votes in favour, 14 against with 9 abstentions, and so was defeated.
Denmark explained its abstention because it recognised that an ad hoc solution to the problem of small-type whaling is not possible. Japan expressed its regret at the result despite all its submissions and having waited for the Comprehensive Assessment of the stock.
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