One of the important outcomes of the recent World Summit on Sustainable Development was a renewed awareness of and commitment towards partnerships in achieving the goals of Rio, Agenda 21 and, now, the Johannesburg Plan of Implementation.

The message from Johannesburg is clear: no one individual, community, organisation, government or State can effectively "go it alone" on environment and development issues. In the biodiversity conservation arena nothing epitomises this simple truth better than the objective to conserve and sustainably use migratory species, which represent a shared resource of all humankind.

Many of the species already listed, or proposed for listing, under CITES also appear in the Appendices to the Convention on Migratory Species. The ultimate goals of the two conventions are mutually reinforcing, and their modus operandi – while markedly different – are perfectly complementary. For its part, CMS (1) underpins efforts to provide domestic protection for endangered migratory species; (2) provides, through its system of regional Agreements, comprehensive frameworks for international cooperation among Range States; and (3) stimulates essential research and monitoring of migratory species around the globe.

A growing number of species are the subject of specific activities under both CITES and CMS – so many, in fact, that it was considered useful for the two convention secretariats to conclude, in September 2002, a memorandum of understanding that commits them to strengthen their collaboration in a number of areas, such as policy development, institutional cooperation, exchange of information and experience, and coordination of work programmes. When supplemented, in early 2003, by a more detailed joint work programme, the Memorandum of Understanding will serve as a basis for further enhancing the complementarity of these two conventions.

Already, though, the potential for increased synergy between CMS and CITES exists with respect to a number of taxonomic groups. In a few cases this cooperation has begun to materialise, whereas in others, opportunities for closer ties have not yet been actively pursued.

TERRESTRIAL MAMMALS

Elephants

The Central and West African Range States of the African elephant have expressed their desire to develop instruments under CMS to conserve and manage some identified populations that regularly migrate across political boundaries in the region. At its Seventh Meeting (Bonn, September 2002), the Conference of the Parties to CMS (CMS COP7) adopted Resolution 7.7, which invites the CMS Secretariat and the CMS Scientific Council to assist the CMS Party in the region that has volunteered to take the lead to organise the work.

Saiga Antelope (Saiga tatarica tatarica)

At the beginning of October 2002, IUCN released its update to the IUCN Red List indicating that the Saiga antelope, a nomadic herding antelope of Central Asia, was critically endangered.

By late 2001, the CMS Secretariat had already entered into a relationship with the Russian Man and Biosphere Programme to begin work on a draft CMS Memorandum of Understanding and Action Plan for the Saiga to provide the basis to coordinate activities for its conservation, restoration and, where appropriate, sustainable use. In April 2002, CMS co-sponsored along with CITES and others the Elista International Workshop on the Saiga, where the draft CMS MoU and Action Plan were the main agenda item discussed by the meeting's international group of experts.

The workshop provided the opportunity to not only compile and update the state of knowledge on Saiga, but also provided an ideal opportunity for the CMS Secretariat to initiate the idea of tangible collaboration with CITES on a species of common concern. Discussions included a proposal that the CITES Secretariat join the CMS Secretariat as a "collaborating organization" under the MoU and that the MoU be viewed as a joint undertaking. The CITES Secretariat provided important substantive inputs into the revisions of the MoU and Action Plan. However in the end it was not able to commit to becoming a collaborating organization because of its tradition of past practice.

CMS has now distributed the draft MoU and Action Plan for official comment to the governments of the Range States. In the interim period, Saiga tatarica tatarica was listed on CMS Appendix II by CMS COP7 (Bonn, September 2002). The CMS Conference of the Parties invited the CITES COP to acknowledge and endorse further cooperation between the CMS and CITES Secretariats regarding the finalisation and conclusion of the MoU and Action Plan.

Snow Leopard (Uncia uncia)

The Snow Leopard is another animal that CMS and CITES have in common, and whose conservation will ultimately require close cooperation. The Snow leopard was listed in CMS Appendix I in 1985 requiring CMS Range State Parties to ensure its strict protection. However, it was not until this year that coordinated action across the migratory range began to take shape.

The CMS Secretariat was invited to participate in the Snow Leopard Survival Summit in Seattle, June 2002. It provided information on possible approaches under CMS for coordinated conservation action through a CMS Agreement and Action Plan that the 12 Range States could subscribe to, whether or not individual States were a CMS Party. One of the meeting's key outcomes was an agreement by the governmental and non-governmental experts in attendance that CMS provided the means for a comprehensive migratory range approach to conserve the species and, that as a first step, the Snow leopard should be elevated to a "concerted action" species at the upcoming CMS COP.

The Snow leopard attained concerted action status at CMS COP7. This was upon the earlier recommendation of the CMS Scientific Council that CMS could be instrumental in the cat's regional management and conservation, working in collaboration with local authorities, non-governmental organizations and research groups. A lead country was identified to assist in the process. Tajikistan will act as the focal point for the concerted action, which may include cooperative activities such as the development of an Agreement. The Secretariat will contact the Range States in early 2003 to assess the desirability of a CMS Agreement and Action Plan.

MARINE MAMMALS

Cetaceans

The Convention on Migratory Species has a long history of involvement in cetacean conservation, as evidenced by the conclusion of Agreements on cetacean conservation in European waters (in the form of ASCOBANS and ACCOBAMS), as well as a long-running research and conservation programme in West Africa and various initiatives in South-east Asia, to give just some examples.

Most recently, the CMS COP7 agreed the inclusion in Appendix II of the Convention of six species of large whales – the Antarctic Minke Whale, Bryde's Whale, Pygmy Right Whale, Fin Whale, Sei Whale and Sperm Whale. The latter three species were also approved for listing in Appendix I, which affords them strict protection by member States. In relation to these listings, the proponent (Government of Australia) noted that "CMS has an important and complementary role to play in creating an integrated approach to ensuring the ongoing survival of great whales. CMS uniquely targets action related to the migrations of great whales. And CMS provides an opportunity to increase the participation of smaller or developing nations in actions to protect migratory species, such as the great whales, through the development of article IV arrangements." At the same time, Australia announced that it would commence discussions with its South Pacific neighbours as a matter of priority, with the intention to develop a memorandum of understanding on the conservation and management of all CMS-listed marine mammals to be found at various times during their migrations in the South Pacific region.

Black Sea Bottlenose Dolphin (Tursiops truncatus ponticus)

A proposal to list the Black Sea Bottlenose dolphin had already been submitted to the previous CITES COP. The CMS Secretariat provided its comments to the CITES Secretariat prior CITES COP 11. Since this time, ACCOBAMS has entered into force (in June 2001) and is fully operational. The Black Sea Bottlenose dolphin is among the cetaceans protected by ACCOBAMS.

However, taking into account the different aims and instruments of CMS and CITES, it is clear that issues of international trade are neither met by ACCOBAMS nor CMS, its parent convention. Therefore, the CMS Secretariat believes that a listing on CITES Appendix I would complement and support ACCOBAMS' implementation.

MARINE TURTLES

Since the last meeting of the Conference of the Parties to CITES, in April 2000, the international framework for marine turtle conservation has evolved considerably. Ongoing deliberations within CITES regarding the conservation of hawksbill turtles in the wider Caribbean may wish to take account of, and benefit from, the experience gained through these initiatives. For its part, CMS has finalized two regional agreements, in the form of Memoranda of Understanding, that provide for comprehensive conservation and management measures for marine turtles. In cooperation with the World Conservation Monitoring Centre, it is also developing an innovative web-based resource that will provide useful information on marine turtle distribution in the Indian Ocean - Southeast Asia - Australasia region.

Indian Ocean - Southeast Asia

The Memorandum of Understanding on the Conservation and Management of Marine Turtles and their Habitats of the Indian Ocean and South-East Asia was finalized in June 2001, with the adoption of an associated Conservation and Management Plan. The MoU came into effect on 1 September 2001, and has a potential membership of at least 40 countries covering the entire Indian Ocean and South-East Asia.

The MoU puts in place a framework through which States of the region -- as well as other concerned States -- can work together to conserve and replenish depleted marine turtle populations for which they share responsibility. The Conservation and Management Plan, containing 24 programmes and 105 specific activities, aims to reverse the decline of marine turtle populations throughout the region. The measures focus on reducing threats (such as direct harvesting and trade, fisheries by-catch and pollution), conserving critical habitat, exchanging scientific data, increasing public awareness and participation, promoting regional cooperation and seeking resources for implementation.

A small secretariat to help co-ordinate activities under the MoU is to be co-located with the UNEP Regional Office for Asia and Pacific, based in Bangkok, and will be operational by the beginning of 2003. The MoU Signatory States, currently numbering twelve, are expected to hold their first formal meeting in January 2003.

Atlantic Coast of Africa

The Memorandum of Understanding concerning Conservation Measures for Marine Turtles of the Atlantic Coast of Africa was concluded under CMS auspices in Abidjan, C๔te d'Ivoire, in May 1999. Nineteen States have now signed the MoU, leaving only a small number of Range States to formalise their participation.

A comprehensive Conservation Plan linked to the Memorandum was completed in Nairobi in May 2002. That meeting also agreed the content and format of a template for national reports, mirroring the content of the Conservation Plan, and progress was made towards the development of strategy for identifying potential funding sources for marine turtle conservation activities, from a wide Range of local, national and international donors.

The "Nairobi Declaration", adopted at the conclusion of the conference, sets the stage for further concerted implementation of the MoU. Among other things, the Declaration draws attention to the problem of marine turtle by-catch in industrial fishing operations and emphasizes the importance of involving resident communities in the development and implementation of conservation activities. The Declaration also encourages links with other conventions, intergovernmental bodies and NGOs, and seeks the integration of marine turtle conservation measures within the emerging African Process for the Development and Protection of the Marine and Coastal Environment in Sub-Saharan Africa.

Pacific Ocean

There is growing concern about the conservation status of marine turtles of the Pacific Ocean, particularly Leatherback and Loggerhead turtles. To that end, the CMS COP7 (Bonn, September 2002), through its Resolution 7.7, endorsed the Secretariat's proposal to explore, by the most appropriate means, the possible development of an instrument for marine turtles in the Pacific Ocean, within the context of the CMS Strategic Plan and the existing CMS Indian Ocean-South-East Asian Marine Turtle MoU, and to allocate sufficient resources for this purpose. Concerned about the plight of the Leatherback turtle, in particular, of which the Pacific nesting population has declined alarmingly over the past two decades, the Conference of the Parties adopted Recommendation 7.6 which identifies specific initiatives to be undertaken by Parties as a matter of urgency.

Measures to address fisheries by-catch

Through its Resolution 6.2 on By-catch (Cape Town, 1999), the CMS COP drew attention to the problem of fisheries by-catch, particularly in relation to marine turtles, seabirds and cetaceans, and called on Parties to strengthen measures to minimize such incidental mortality.

A complementary Recommendation 6.2, adopted by CMS COP7 (Bonn, September 2002) provides more specific guidance to Parties on measures that need to be taken to reduce this serious threat to marine life. CMS funding has been allocated and is available to support the convening of a workshop bringing together international experts to examine mitigation measures in relation to longline fisheries.

FISH

Whale shark (Rhincodon typus)

The Whale shark (Rhincodon typus) was listed in Appendix II of CMS in 1999, in recognition of the threat posed to the species by overexploitation. The Conference of the Parties considered that its adverse conservation status would benefit from international cooperation in conservation action and research.

The Ministry of Environment of India and the CMS Secretariat have corresponded about the modalities of organizing a regional workshop, for which CMS funding is available, that would aim among other things to compile and exchange information about the whale shark fishery and to begin a dialogue on remedial conservation measures. The Government of India has agreed, in principle, to host the meeting and arrangements are currently underway to bring this initiative to fruition in early 2003.

The proposed listing of the species in Appendix II of CITES was rejected at COP 11, evidently on account of insufficient information on fishery takes and movement in international trade. The proposed workshop would begin to address these concerns and, given the obvious interest of CITES in trade-related issues, further consultation with the CITES Secretariat is foreseen in relation to this species.

Great white shark (Carcharodon carcharias)

The CMS COP7 (Bonn, September 2002) endorsed the listing of the Great white shark in both Appendix I and II of the Convention, thus according the species strict protection and encouraging the development of a regional cooperation mechanism. In make the case for the listing, the proponent (Government of Australia) highlighted the threats to the species, which include direct and indirect fishing pressure, as well as destruction and degradation of habitat. It further emphasised the need for effective coordination of conservation measures throughout the species' range, including important feeding, mating and pupping sites, as well as migration routes between them.

As this work progresses, there will be clear linkages to CITES and other bodies, in view of the growing concern about the trade in shark fins, as manifested in the adoption of an International Plan of Action for the Conservation and Management of Sharks under the auspices of the FAO.

Sturgeons

CMS's involvement with sturgeons goes back to COP6 (Cape Town, 1999), when more than a dozen sturgeons were listed in CMS Appendix II. The CMS COP7 reaffirmed the appropriateness of CMS Party Range States to take the lead to develop an appropriate CMS instrument on sturgeons that would address conservation and sustainable use comprehensively. Furthermore, the Conference of the Parties urged the resumption of cooperative activities among the lead country, IUCN, the CMS Secretariat and the CITES Secretariat, while inviting the CITES Conference of the Parties to encourage closer collaboration between the CMS and CITES Secretariats in this common endeavour.

Conclusion

The examples given above demonstrate the importance and necessity for close collaboration between CITES and CMS for the conservation of species of mutual concern. The recently concluded memorandum of understanding between the respective convention secretariats, together with a more detailed joint work programme to be elaborated in 2003, will provide a solid foundation for enhanced cooperation. This can only help to improve the coordination and consistency of internationally agreed conservation measures.