ENFORCEMENT FOR THE PROTECTION OF WHALES, CONCERNING THE INTERNATIONAL CONVENTION FOR THE REGULATION OF WHALING. BY - MONISH CHERIYADTH PURUSHOTHAM
ENFORCEMENT FOR THE PROTECTION OF WHALES,
CONCERNING THE INTERNATIONAL CONVENTION FOR THE REGULATION OF WHALING.
AUTHORED BY - MONISH CHERIYADTH PURUSHOTHAM
QUEEN MARY UNIVERSITY OF LONDON
Abstract
Whales have been seen as
spiritual creatures and a food source since colonial times. Due to hunting for
scientific research, the number of mammal species has been falling in modern
times. So, in order to protect these delicate species, international
governments developed the "ICRW" treaty in 1946. This treaty was the
first international pact to protect marine life to be based on solid science.
However, the organization is now perilously near to dissolving due to conflicts
amongst the member nations. In this post, I try to look at the political,
biological, legal, and cultural aspects of whaling.
In order to better comprehend
how the IWC can implement the rules and regulations for the management and
conservation of the whale species as well as the sustainable growth of the
whaling business. In the beginning, I briefly discuss contemporary whaling, how
pre-colonial battles paved the path for whaling, and how the ICRW was
established by global governments to preserve whales. The commission that was
established in compliance with ICRW regulations for the control of whaling in
accordance with the ICRW articles is briefly discussed in the part that
follows. We briefly examine the introduction of a moratorium in 1972 to forbid
commercial whaling in order to safeguard the whale species population. The IWC
also acknowledges the right of tribes whose cultural and dietary requirements
necessitate whale hunting; as a result, the IWC outlines aboriginal whaling and
the procedures that must be followed by whale hunters. The ICJ rejected Japan's
research and supported the protection of whales in a case study where the
country had instituted a scientific study program that called for the slaughter
of whales in order to better understand their ecology. I wrap off the
conversation by briefly outlining how, in my opinion, the IWC can use more
advanced methods for the preservation of whales.
Keywords:
Whaling, Anti-Whaling Regulations,
Introduction and The Genesis of
Contemporary Whaling and the International Convention for the
Regulation of Whaling-1946
In this part, I try to bring a brief introduction about whaling from
pre-historic times till the commencement of the IWC International Whaling
Commission in 1986. Hunting of whales dates back to the Neolithic age when
researchers in Bangudae of Korea unearthed by the Kyungpook National University
dating back to 6000 BCE [[1]]
and the oldest known method of catching the whales was by using Dolphin Drive
Hunting. During the colonial period, the Americans had an upper hand in whaling
around the world, and the British Navy primarily targeted these American
whaling ships as a war prize. During the 19th century whale oil was
used for lighting up homes and businesses, and lubricating machines during the
Industrial Revolution. While on the other side of the world in the Pacific
region, whaling was practiced both as aboriginal and also for commercial
purposes, though the former was more prominent with the indigenous people[[2]].
Japan, where whaling is still prominent has a very long history of whaling. The
Kojiki which is the oldest history book from the 7th century CE
gives a brief history that whale meat was popular among the Japanese and also
was consumed by the Japanese Emperor Jimmu. Due to its close proximity to the
Arctic waters, Britain was actively hunting whales for whale oil starting from
the 16th century all the way till the 21st century and
was more active in the Davis Strait, and London became a major exporter of
whale products in the 1730s exporting up to 71% of British export. The
invention and development of the harpoons brought about a huge development in
commercial whaling. During the First World War, the whaling industry played a
vital role. It is estimated that about 58,000 whales were killed to provide the
British and its allies with the oil required to continue the fighting. Norway
even though stated neutral during the war it was the dominant nation that
supplied oil to Britain since the Norwegian fleet primarily operated in
British-controlled waters denying Germany the raw material which helped the
Allies gained a significant upper hand during the war but the Second World War
the whaling industry took a huge hit due to the development in petrol and
diesel-fueled engine which was more efficient and also the whalers and the was
taken into the military. Hence the whale number significantly increased after
the war. In 1931 the League of Nations held a conference in Geneva to bring
about regulation of whaling, the convention even was duly signed in 1930 in
London. Those nations who were committed met once again in 1938 and brought an
amendment to the act and agreed on certain factors like the whaling season, set
the maximum catch rate, and said that each whale ship should have at least one
government inspector on board it for inspection[[3]].
Though it was an informal agreement between the nations under the title “International Conference for the Regulation
of Whaling” it was never enforceable since a majority of them did not agree
with the regulation because it only imposed a few restrictions on the member
nations and some of the major whale hunting nations like Russia and Japan did
not agree on its regulation terms. As a result of the failure of the
enforcement of the convention, 43,000 whales were caught. After the war ended
in 1945 the nations realized the depleting number of whales all around the
world and so bring about the conservation of these endangered species 15
nations came together in 1945 to form the International Whaling Commission.[[4]].
The convention preamble serves as an example of how the drafters of the
convention reconciled the demands of industry with those of whale stock
protection by relying on the scientific expertise of the Americans. The
drafters acknowledged that one of the main goals of the convention would be to
prevent economic and nutritional hardship for those who depend on whaling while
also achieving an optimal level of whale stocks for regulated sustainable
hunting of the mammals and increasing their populations.
The delegates concurred
that in order to govern whaling, the talks needed to be divided into two
sections. In order to control whaling until a far more complicated convention,
the ICRW of 1946, could be agreed upon by the members, the 1945 protocol was
adopted. However, during all of The convention itself includes the articles of
the convention as well as a schedule that lists the amendments made to the
convention by the IWC during its 61st annual conference, which was held in
Maderia in June 2009. The treaty specifies a commission and its role in the
execution of the whaling law. According to Article III, it is the duty of the
governments of the member countries to establish and commission it, and its
organization must follow the guidelines set forth in Article III. According to
Article III(7), Britain was assigned the particular responsibility of setting
up the commission's first meeting, which it did in 1969 in London. The core objectives
of the commission, which are to preserve the whale species, eliminate illegal
whaling, and promote scientific study on the animal for better management, are
described in Article IV(1), and it is authorized to publish its annual results.
In accordance with Article V, the commission may occasionally specify the
season, the catch cap, and the degree of protection for each species of whale.
Most significantly, however, Article V(1)(c) gives the commission the authority
to designate a water region as a sanctuary area. And under Article (1)(f), it
can specify the kinds of tools, equipment, and weapons that can be used when
hunting, allowing it to limit the use of deadly weapons while hunting. Since it
specifies who might be granted a special license to kill whales for scientific
research, Article VIII can be regarded as one of the most significant.
According to Article VIII(11) and Article IV, it is the responsibility of the
individual government to control the special permit and publicize the findings.
The convention was
officially ratified on December 2nd, 1946 in Washington, D.C., and the
instruments for it were placed with the American government pursuant to Article
X(1). Additionally, the American government is tasked with informing all
ratifications lodged and adherences received under Article X(3). According to
Article XI, any member may withdraw their application from the convention on
June 30 after giving notice on January 1 of the same year, and the other
members will be informed of their decision.
Though they have been
granted a special permit it’s up to the government to oversee and take measures
that the permit is not violated and if any infractions occur against the permit
provisions its up to the government to curb it as per Article IX(1). As per
Article IX(3), the government should prosecute such infractions and report the
same with full details to IWC under Article IX(4) detailing the infractions,
measures taken in dealing with the infractions, and the penalties imposed.
As mentioned earlier the
convention doesn’t generically define what a whale is but under its paragraph 1
Schedule I it lists the species of
whales with individual protection to the whales and under paragraph 9(a)
Schedule III is ‘Capture’ it mentions the individual whale species, the
limitation of the geographical area of capture and Hunting. The whaling regime
under the Convention allows for three different forms of whaling: commercial
(at the moment there are no "quotas"), indigenous (or
"indigenous"), and scientific. The convention classifies all the
whale stocks into three basic categories based on the recommendation of the
scientific committee and mentions them in paragraph 10 of Schedule III and
mentions two important terms namely SMS ISustainableManagementStock which is 10
percent more than the MaximumSustainableYield (MSY) and ProtectionStock (PS)which is 10 percent less
than MSY. The convention allows commercial whaling when the numbers are in SMS
and not in PS as per paragraph 10(c) of the schedule but still the moratorium
would still continue to exist notwithstanding the other provisions of paragraph
10 and all these catch limits would be reviewed by the scientific committee.
Some people believe that it requires some reconsideration because it is
more than 70 years old and no resolutions have been brought about to majorly
change consideration taking into account the 21st-century parameters like
environmental conditions, climate change, technological development of weapons,
non-lethal methods of hunting, change in ecological parameters and also the
change is cultural aspects. Some argue that the IWC considered the moratorium
without consulting the scientific committee, but records show that before
adopting the moratorium, the IWC held yearly virtual meetings with the
scientific committee after every ten years of the ban on whaling, which was
recommended by the 1972 UN conference on the environment. In 1982, the present
moratorium was enacted. Although the suggestions for a moratorium did not
address solely scientific issues, the IWC's judgment, in this case, was
definitely influenced by the absence of scientific agreement on practically all
management advice. Some argue that certain members of the scientific were
scientists who were involved in the whaling industry. Another disadvantage was that the
IWC's member nations might easily reverse their decisions because the
moratorium took effect in 1988, two years after it was finalized and by
that point, several countries had given themselves special permits to kill
whales[[5]].
The
International Whaling Commission
In 1946, the International Whaling Commission (IWC) was set up under the
term of the International Convention for the Regulation of Whaling (ICRW) with
the aim of conserving the whale stocks around the whole hence making a
sustainable development of the whaling industry.[6]
The IWC is the decision-making body of the ICRW which from time to time reviews
the regulations laid down by the convention for the protection of certain
species of whales depending upon the prevailing conditions. Hence on December 2nd,
1946 as per the terms of the ICRW Article III the IWC was set up with its
headquarters at Impington a town near Cambridge United Kingdom with the role of
periodically reviewing the schedules of the convention and providing proper
conservation of the whale stocks all based upon scientific research and
findings. Since 1946 the member nations are committed to protecting the species
and also formulating regulations for sustainable commercial whaling. From 15
member nations in 1946 to 88 member nations as reported in 2020 the commission
is tasked with major responsibilities detailed in Articles IV and V of the
convention. The commission along with its member nations or with organizations
and agencies that are committed to conserving the species can collaborate with
the commission to collect statistical information, trends, and data sets about
whales and whaling and formulate modules and methods of increasing the whale
stocks around the world. The commission frequently publishes these findings in
its scientific journal “The Journal of Cetacean Research and Management”. The
committee is mainly raked with protecting the whale species, designations areas
as sanctuaries, setting up the method, time, and intensity of whaling of each
species, releasing the open and closed calendar seasons, the specifications of
the apparatus and gear which can be used and its application and the
sustainable development of the species for the commercial usage of whales.
The
“Moratorium”
During the 1970’s there was the excessive killing of whale species for
commercial hunting and as more and more joined the IWC there was a difference
in the being grated between two groups within the IWC members. So in June of
1972 backed up by the American government 110 nations adopted a resolution for
a 10-year moratorium at the United Nations Conference on the Human Environment
held in Stockholm which was finalized in 1973 and came to the conclusion that
governments all around the world must make an effort to support and strengthen
the IWC’s agenda, research into methods for sustainable development of the
whaling industry, but a major of the whaling nations rejected the 1973 proposal
including Japan and Russia[[7]].
Hence in 1975, an alternative proposal was put up by Australia that detailed a
plan for the IWC to set the parameters for sustained commercial whaling. But
this proposal was also shot down by the international community. So, in order
to investigate the issue of indigenous whaling, the IWC established a working
technical committee in 1978 which issued its report in 1982, approved a
resolution for the management of the whale hunt, and decided to form an ad hoc
working group to draught management policies and procedures for indigenous
people who consume whales for food. The IWC eventually defined and agreed upon
terms like "aboriginal subsistence whaling," "local aboriginal
consumption," and "subsistence catch limit" in 1981 as a result
of the ad hoc committee's conclusions[[8]].
According to Article V(1)(c) the
convention bans commercial whaling in the Indian Ocean region whether it is by
pelagic or land station operations.It was also agreed that the scientific
committee's role would be to make recommendations regarding the whale stock
used for indigenous whaling based on biological data patterns and would not
take into account cultural, social-economical, or nutritional considerations.
The Friends of Earth an American environmental organization brought out a
report in 1975 stating that the IWC failed to do its job and that the working
regulation of the IWC cannot be able to reverse the trends in the killing of
the whales. It also pointed out that the IWC must be completely abolished and
it should be the United Nations to come up with a solution to protect and
conserve the whales.[[9]]
As a result, the working committee's contributions and the report it
produced in 1979 marked a significant improvement over the subsistence whaling
exemption convention of 1931. Another significant result of the conference was
the recognition and inclusion of indigenous people in decision-making, which
can assist IWC in taking the issue of the people into consideration at the
grassroots level. The real issue would be how to implement the aforementioned
standards and recommendation.
The
2018 Florianopolis Declaration
Japan, the Soviet Union, and Iceland were some of the major countries
who opposed the working terms and regulations of the IWC because for these
three countries whaling and whale products played a vital role in their economy
and certain times their cultural beliefs also. Hence when the member gather for
the IWC 67th annual meeting in Florianopolis, Brazil the member
rejected the proposal put forward by Japan to renew the commercial whaling. The
member nations concluded and adopted that the work of the IWC is to conserve
and protect the whale species and another marine animals in perpetuity, develop
methods of conservation that will help the whale population return to its
pre-industrial level, avoid unnecessary usage of lethal weapons, encourage the
studies using non-lethal research methods to study the mammals, continue the
moratorium against commercial whaling, an important amendment was to the
aboriginal subsistence whaling that could benefit the indigenous communities Hence
despite the fact that the IWC was established nearly 76 years ago with the
primary goal of protecting whales, the IWC and the IRCW are constantly
developing new strategies in tandem with technological advancements that can
aid the IWC in enforcing whale protection laws and promoting sustainable whale
hunting[[10]].
Aboriginal
Whaling and the International Whaling Commission.
In 1981 the IWC defined aboriginal whaling as “for local aboriginal consumption carried out by or on behalf of
aboriginal, indigenous, or native people who share close links to their
families, communities, and cultures due to their long-standing reliance on
whaling and whale products”[[11]]
and defined the rules for Aboriginal Subsistence Whaling (AWS) in paragraph 13
of the schedule in order to both protect the whale species and also respect the
tradition of some tribes when it comes to hunting whales. The IWC allocates the
quotas for whale-catching on the basis of the recommendations of the scientific
committee every six years and the current catch numbers are as per the 2018 AWC
catch limit. The tribes or "aboriginals" whose culture or/and
nutrition require whale hunting are primarily concentrated in nations like
Denmark, the USA, Russia, and the Caribbean islands[[12]].
The fact that whale hunting is done purely to meet cultural and customary
necessities, not for financial gain or to maximize the catch, is one of the key
reasons the IWC recognizes the AWS since its establishment in 1946. It differs
greatly from commercial whaling and is allowed only for members of native
tribes or those working on their behalf, hence it is exempt from the 1986
moratorium's restrictions. Though the IWC has granted permission to indigenous
people to kill whales to meet their requirements, the IWC nonetheless ensures
that there is a healthy population of whales[[13]].
One such instance is the Makah group of Native Americans with whom the US
government has a treaty allowing them to kill whales[[14]].
Paragraph 11(b) of Schedule III would
define the catch limit for aboriginal subsistence whaling and all the
provisions would be reviewed by the commission annually with the advice from
the scientific committee.
The Whale and Dolphin Conservation is a wildlife conservation society
based out of England that is solely dedicated its efforts to the conservation
of whales, dolphins, and other cetaceans that has heavily criticized the
working of the IWC when it comes to the AWS whaling. It claims that governments
and subsistence whaling committees have abused the privileges granted to them
over the past few years that allow them to hunt whales. The communities are
accused of selling whale meat to tourists and non-native people, a practice
that can be referred to as assisted commercial whaling, especially in Greenland
where the Aboriginals have been accused of selling the whale meat to
restaurants and supermarkets. Although the IWC acknowledges the right of Aboriginal
people to hunt whales, it does not establish clear standards for who would be
considered an Aboriginal and the AWS quota itself, leaving it up to the
individual governments to identify, nominate, and submit them to the IWC and
perhaps the biggest concern. Every six years, the IWC would determine the catch
limit in accordance with recommendations based on the cultural and
anthropological parameters specified by the scientific committee. However,
there is no unconditional requirement that these catch limit specifications
must be followed, particularly in large water areas. Second, because of the
increased aboriginal population and the reduced quota, the people generally
rely on other marine animals or import non-local food to meet their nutritional
needs. In these situations, the IWC should make note of these substitutions and
adjust the quota by either increasing or decreasing based on the current data
set, but the IWC failed to do so and still continues to allocate the previous
catch limit[[15]].The
aboriginal has a long history of whaling and especially subsistence whaling,
hence to respect the rights of the aboriginals and also to protect the rights
of the tribe to hunt whales beings affected by commercial whaling the IWC
defined the rights of the tribe to hunt whales and also enforced the protection
of whales to have subsistence whaling.
Case
Study: Whaling in the Antarctic: Australia vs Japan
In May 2010, Australia
alleged to the International Court of Justice that Japan had violated the
International Convention for the Regulation of Whaling (ICRW). It alleged that
Japan had violated Article 36, paragraph 2 of the convention stating that Japan
has been conducting large-scale killing of the whales and masking it under the
JAPRA II scheme. Australia alleged that Japan had been violating the ICRW and
other international agreements including the Convention on International Trade
in Endangered Species (CITES) for protecting and preserving marine animals and
the surrounding environment. It requested the ICJ to put an end to Japan’s
research program, revoke the special permit and license which permitted the
alleged activities and stop any further research under the JARPA II program or
any such related research program until the program could be scrutinized and
make sure the program is brought under the obligations of all the international
law. In 2013, New Zealand also intervened with a registry filing stating that
as a signatory party of the ICRW under Article 63 paragraph 2, it had a direct
interest and obligation in the proceedings, which might affect the ICRW rules
and regulations. Japan pushed back the allegations stating that it had always
conducted scientific research in line with the obligations of the treaty and
Article VIII of the convention. It also argued the species of whale it was
hunting for scientific research was not included in the endangered species of
conservation. Japan put forward 541 publications that were in terms of the
scientific goals management defined by IWC and another 297 publications which
were not related to IWC but related to whale ecology and conservation. But when
in analysis the court found that the scientific output presented was no more
superior to those data sets presented by whaling nations which don’t use lethal
methods to capture the mammal like Canada, USA Sweden etc. The convention in
order to treat these mammals who have been hurt due to hunting using lethal weapons
according to paragraph 19(a) Schedule IV
forbids the factoryships or landstations to treat whales, clearly marked
to identify the order of catch, the contracting government would define the
stations to treat these whales and no whale should remain in the sea for a time
period of thirty-three hours from the time of kill. The amount of whale corpus
papers produced by whaling and non-whaling nations did not differ much, they
also noted. The non-whaling nations published 82 papers on average, with one-third
of those related to the IWC's gold standard scientific research—peer-reviewed
publications—while the whaling nations published 59 on average while citation
rates of whaling nations’ publications were four times higher than those of
non-whaling nations. The researchers argued that there may be some bias against
the research publications of whaling nations[[16]].
The ICJ delivered its
decision on March 31st, 2014, rejecting Japan's claims and revoking its
licenses and permits to kill or take whales pertaining to the JARPA II
program, which was in breach of some provisions of the convention, specifically
the bans on factory ships and commercial whaling in the Southern Ocean
Sanctuary. With respect to Article VIII, the court ruled that even though the
JARPA II could be coined as a “scientific research” program but the research
team and japan government failed to produce convincing evidence before the
court. After this incident, the IWC advised that the IWC scientific committee
can evaluate any upcoming petitions under Article VIII.
Even though Japan
ultimately lost the case and had its special license to hunt and kill whales
revoked, the ICJ was unable to resolve the fundamental cultural dispute between
those who support hunting whales and those who oppose hunting restrictions as
an element of a wildlife management strategy. Insofar as there is no other
international law that forbids the killing of whales, the Court reiterated that
the aims and framework of the ICRW are oriented towards the protection of whale
stocks as well as oversight of the whaling industry, and it is up to both
parties to the ICRW, acting in conjunction, to figure out when and how whales
can be killed.
Conclusion
The responsible
management and conservation of whale species as well as the expansion of the
whaling business on a sustainable basis are the ICRW's main objectives, which
are mentioned expressly in the preamble. The convention, like any other
international pact for the conservation of animals, never really achieved its
initial objectives, but it always had the twin objective of simultaneously
protecting the whale species and expanding the company. The opposing ideologies
among the participating countries are one of the reasons the convention on the
properly regulated restart of whale stocks has so far failed. This may still be the case
notwithstanding the interim moratorium's adoption and the IWC's subsequent ban
on commercial whaling in 1982, but there is still a sizable amount of whaling
occurring that is not under its direct control.
Even though there is conflict among the member countries over things
like what constitutes aboriginal whaling, how the scientific committee
operates, and the restart of commercial whaling for scientific research, the
IWC is still divided and is still home to some members who support the
convention's goals However,
there will always be conflict between whaling and non-whaling countries because
whaling countries support whaling through the sustainable exploitation of
marine resources, while non-whaling countries enjoy strong support from NGOs
and the general public because they believe that whaling is an immoral activity
that should eventually be outlawed. The
most crucial point that has to be addressed is whether the ICRW should be
regarded as an international agreement, whether it should be redesigned to
better address concerns of the present 21st century, or if it should be
completely abandoned given that it was formed some 70 years ago following World
War II. I believe that the ICRW, which was negotiated about 70 years ago, needs
to be restructured in light of various contemporary factors, including
technological advancement, climate change, depletion of natural resources,
sustainable resource management, and enacting significant changes to the
convention to ensure the protection of this vulnerable sea life.
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[7] U.N. Doc. A/CONF.48/14 and Corr.
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[9] Id.
[10] The 67th Meeting of the
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[12] ‘Aboriginal Subsistence
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[13] Id.
[14] John Eligon,’A Native Tribe Wants
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[15] ‘ Aboriginal Subsistence Whaling’
<https://uk.whales.org/our-4-goals/stop-whaling/aboriginal-subsistence-whaling/ >accessed 11 March 2023
[16] Larry Pynn, ‘What’s the True
Scientific Value of Scientific Whaling?’ < https://hakaimagazine.com/news/whats-true-scientific-value-scientific
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