(from "Chairman's Report of the Forty-Fourth Annual Meeting")
Submission of Japan
Japan gave a general introduction to the Working Group on the case it has been
making for its small-type coastal whaling.
Over the years, it has provided the Working Group with 24 reports based on
social, scientific and anthropological research supporting the conclusion that
Japanese small-type whaling has a character distinct from other forms of
whaling, such as large-type or pelagic whaling.
Reports have also been tabled regarding the distress caused by the moratorium
for the small-type whaling communities in remote coastal areas.
Japan has repeatedly asked the Commission for an emergency quota to alleviate distress in these communities, which was reiterated again by its spokesman at this meeting. This request has been rejected by the majority of the Commission members as they regard small-type whaling as commercial, although there are signs of growing sympathy and understanding. The need perceived by Japan for modification of the definition of small-type whaling, taking full account of the socio-economic aspects, has been noted in the report of the Working Group on Revision of the Schedule.
Documents presented to the Working Group this year demonstrated that small-type whaling in Japan is a small-scale limited access fishery, involving four coastal communities and seven to nine boats. The harvest level between 1951 and 1986 has been stable, at approximately 350 whales a year. Most minke whales are taken within 30 miles from the shore, averaging 20 miles. The majority of hunts result in a single whale being landed.
A quantified assessment of cultural need was carried out in 1990 in part of the Ayukawa food culture area. The data indicate the continued importance of everyday use of whale meat, and the importance of eating a meal as an intensely social event suffused with social, cultural and emotional meaning peculiar to each different human group. The importance of meals in ordering the most basic human social units, namely the family or household, is reflected in the stability of everyday whalemeat use.
Based upon current social science understanding of subsistence systems, it is concluded that it is unhelpful and unwise to attempt to distinguish between 'subsistence' and 'commercial' activities in regard to these mixed-economy coastal whaling societies. A very extensive distribution of whale meat occurs, linking food producers with a large variety of consumers and community institutions. When minke whaling resumes, there will be local control giving high priority to local consumption, designed to ensure negligible non-local distribution of minke whalemeat.
An international study group which met in Taiji, Japan, in January 1992 to discuss the subsistence use of marine mammals concluded that a clear distinction exists between small-type whaling and large-type industrial, or commercial whaling. The study group concluded that small-type whaling is an important and stable component of these diversified local economies and fulfils the objectives of the Brundtland Commission by sustaining the quality of life of these communities whilst remaining within the carrying capacity of supporting ecosystems. It was also concluded that whaling accords with local people's reasonable demands that are consistent with various UN covenants and the principles discussed in the UN Conference on Environment and Development preparatory process.
In a discussion of the Japanese submission, some delegations agreed that the document contains a useful description of distinctive attributes of a certain type of whaling. Other delegations believed that the description did not adequately distinguish these whaling operations from other types of whaling.
Submission of Norway
The Norwegian representative presented the results of an international study
on the importance of minke whaling to the coastal culture in Norway.
A number of issues were discussed, such as the technology of minke whaling,
the required knowledge involved and the transmission thereof in time and
space, the whalers' perception of the whaling issue, and their present efforts
to mobilise in order to defend their way of life.
The presentation emphasised four major points. First, although modern minke whaling was invented in the 1920s, small cetaceans have been hunted in Norway for millennia. When new and more efficient technologies were made available, the new technologies to catch minke whales spread throughout coastal Norway within a few years.
Second, this rapid diffusion of technology can only be understood when minke whaling is seen in an ecological context. Norwegian minke whalers are also fishermen, and their whaling boats are also fishing boats.
Third, the management units in minke whaling are built around households. The boats, which average about 65ft, carry crews of between 4 and 7 persons. The boat is invariably owner-operated and the crew is built on a core of close kin, supplemented by friends and neighbours. Rather than maximising profit, the household seeks to maximise household viability and a way of life.
Finally, it was emphasised in the presentation that whalers are, due to repeated harassment, losing confidence in their own culture and future. There is a growing international trend toward co-management with greater local participation in the management of renewable natural resources.
Loss of income and loss of confidence in the future are both contributing to the present depopulation of remote communities in Norway. To the whalers it is ironic that they, for political reasons, are forced to give up a well-regulated sustainable fishery for a life in a congested city. They ask themselves whether this is the enlightened environmental policy the world so desperately needs.
Norway stated that it believes its report convincingly makes the case for the need to resume small-type whaling to satisfy the needs of coastal communities, and that the Working Group and Commission should take action on this matter. Several delegations expressed support for these conclusions and the observations made in the report.
The Commissioner for Norway stated that if the IWC continues to humiliate these small Norwegian communities by denying them their traditional rights through obstructionist and delaying tactics on the part of some members of the IWC in adopting the RMP, the Government of Norway can no longer acquiesce to such a course by the Commission. Norway no longer accepts what she perceives as cultural imperialism imposed by the majority of the members of the IWC on the local communities of the nations and peoples who want to exercise their sovereign cultural right to be different.
Other matters
Japan presented two working papers to the Working Group for its consideration.
The first was a proposal for a definition of Small-Type Whaling in the following terms:
'Small-type whaling operations are small-scale, locally managed and operated, with the distribution of whale products being locally centralised. The small-type whale fishery sustains customs and institutions which are socially, culturally, economically and nutritionally important to the local whaling communities.'
It was noted by the Working Group that this term is already defined in paragraph 1 of the Schedule, but the problems relating to the possible interference between the two descriptions were left for later solution. Japan explained that the proposal at this stage was being offered as an interim working definition. At a later stage, Japan intends to propose inclusion of this provision in the Schedule.
Some delegations expressed concerns regarding the proposed definition, for example, that it did not refer to generally recognised commercial aspects of small-type whaling. But it was noted that small-type whaling contained non-commercial as well as commercial aspects. Other delegations noted their support for the proposed definition. One delegation wondered whether the purpose of proposing a definition for small-type coastal whaling was to differentiate it from aboriginal subsistence whaling and commercial whaling. If so, it asked whether a management procedure separate and apart from procedures governing aboriginal subsistence and commercial whaling were being proposed for determination of catch quotas. Japan responded that the purpose of the proposed definition was not to prevent application of the RMP to small-type whaling when the RMP is implemented, but to provide support for granting of an interim quota until catch limits are established under the RMP.
The Working Group did not agree on the appropriateness of adopting the proposed working definition at this time. There was agreement, however, to discuss this matter further at any future meeting of the Working Group.
The second working paper submitted by Japan was suggested language for recommendations from the Working Group to selectively end the pause in commercial whaling. Japan indicated that it would be seeking an interim quota this year to cover a 1993 minke whale harvest. Norway also expects a quota for the 1993 season to be set at this Annual Meeting. Some delegations expressed the view that no changes to the moratorium should be considered until the RMP is implemented. Other delegations expressed general support for the recommendations proposed by Japan, considering that the NMP remained in effect until replaced by the RMP, and therefore provided sufficient basis for the proposal.
Thus, there was no general agreement on the proposal as a whole.
Recommendations
The group concluded its deliberations with the recommendations that:
8.2 Action arising
In the plenary, Japan repeated its view that it had presented many research
papers to illustrate the distinctive characteristics of its small-type coastal
whaling.
It had given all the information requested over the past six years and was
disappointed that there had been no understanding of the problem.
It believed the time had come for the IWC to alleviate the distress and human
need it was inflicting on the coastal communities.
Japan therefore requested a symbolic emergency relief quota of 50 minke
whales, which would not cause any adverse effect on the estimated population
of 25,000 minke whales.
Iceland, Norway, St Vincent and The Grenadines and the Russian Federation supported this proposal. St Lucia also spoke in favour of the Japanese request, mentioning the myriad of reports from many sources illustrating the varied characteristics of the enterprise. There was an element of commercial whaling, but bearing in mind the human cultural needs and the terms of the Convention, and since there was no suggestion the proposed catch would adversely affect the stock, it gave its support.
The Netherlands appreciated that the present situation is causing problems in certain communities in Japan but thought that all the efforts by Japan did not solve the difficulty that the operations cannot really be distinguished in any valid way from commercial operations. It was not prepared to make an exception to the commercial moratorium.
The USA, New Zealand, UK, Germany and France all associated themselves with the Netherlands' statement.
At a later session, the Commission endorsed the recommendations from the Working Group. Japan indicated that it would bring forward its request for an ad hoc solution to its problem after discussion at a Commissioners' meeting.
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