problem-solving in conservation biology and wildlife management (gibbs/problem-solving in...

CHAPTER 30

An InternationalDebate: CommercialFishing in GalapagosNational Park

Malcolm L. Hunter, Jr., andKrishnan Sudharsan

Dusty cones of lava and scrub are not the most photogenic of landscapes, but theGalapagos Islands draw thousands of tourists every year. Some come because thisis the archipelago where island-to-island variation in the forms of mockingbirds,tortoises, and finches catalyzed Darwin’s formulation of the theory of evolution.More come because the extraordinary inhabitants of these islands – the gianttortoises, marine iguanas, penguins, and more – are as captivating for visitorstoday as they were for Darwin. Unfortunately, the Galapagos are far from beingan untouched paradise. Early mariners ransacked the tortoise populations and leftrats, goats, and other species that still plague many of the islands. More recently,the world’s conservationists have turned their attention to the islands because ofanother threat: large numbers of people coming to the islands. Some come astourists with the best of intentions but they inevitably bring issues such as solidwaste disposal, sewage, and invasive stowaways. Others come planning to stay,attracted by economic opportunities in fisheries and the tourism business. Reso-lution of these problems has not been easy and has lead to considerable conflictamong long-term residents of the islands, newcomers, the national governmentof Ecuador, and other countries that wish to see the Galapagos remain the globaltreasure that it is. All in all, we seem to be at a critical juncture in the history of theseremarkable islands.

Objectives

. To learn about the problems facing the Galapagos islands

. To experience, through role-playing, how these issues are likely to be debatedin an international forum.

Gibbs / Problem-Solving in Conservation Biology 9781405152877_4_030 Final Proof page 289 11.10.2007 2:42pm Compositor Name: PAnanthi

Problem-Solving in Conservation Biology and Wildlife Management: Exercises for Class, Field, and LaboratoryJames P. Gibbs, Malcolm L. Hunter, and Eleanor J. Sterling© 2008 James P. Gibbs, Malcolm L. Hunter, Jr., and Eleanor J. Sterling ISBN: 978-1-405-15287-7

Procedures

The basic format for this exercise will be a debate of the World Heritage Committee(WHC), which is a part of Unesco (the United Nations Educational, Scientific,and Cultural Organization) that fosters protection of the world’s most importantcultural and natural features (e.g. the Taj Mahal and Yellowstone National Park).Galapagos National Park is an official World Heritage Site and this gives the WHCsome oversight on activities there. The specific issue to be debated is whetheror not overfishing and associated problems are so severe that the WHC shouldput the Galapagos National Park on its official List of World Heritage in Danger.For this debate you will assume the role of a delegate to the committee representingone of several countries, or a representative of a nongovernmental organization(NGO).

To prepare for this exercise you need to do four things before class:

1 Read some background material about the issues. You can find a short summaryat: www.galapagos.org/conservation.html, a book-length treatment in D’Orso(2002), and various specific articles such as Camhi (1995), Cruz et al. (2005),and Gottdenker et al. (2005). To understand how the World Heritage Committeeworks, refer to whc.unesco.org where you will some background material onWorld Heritage in Danger under the tab named ‘‘LIST.’’

2 Read some background information about the country that you represent.Your library will probably have some good material; if not, you can find the basicson-line through www.wikipedia.org. Also find something to wear that is emblem-atic of the country you are representing (e.g., a baseball cap for the US or a beretfor France). This will greatly facilitate keeping track of who is from where.

3 Familiarize yourself with the list of participants and their agendas. Note whichpeople are likely to vote with you, which will probably be against you, and whichmay be open to being influenced. (People will be wearing name tags so do notworry about not knowing everyone.)

4 Turn your agenda into about 60 seconds of succinct, persuasive, and eloquentoratory because the session will begin with each delegate giving a very briefsummation of their country’s position. Try to think of a unique argument thatwill make your presentation stand out in the crowd. Your instructor will also giveyou a hidden agenda that only you will know. For example, your secret instructionmay remind you that while you have an official position to clearly articulate onthis issue you also might need to tread carefully because you need politicalassistance on an important, seemingly unrelated matter, e.g. a trade issue, fromanother country that is taking a different position. This hidden agenda mayshape your approach to this undertaking in many different ways. In some cases,it will affect the specific points you wish to raise in your formal presentation;in some cases, it will only affect your informal negotiations; in some cases, it haslittle to do with the issue but will still affect the way you operate.

On the day of the debate the session will be divided into three parts. Initiallyeach delegate will give a brief speech. After they are finished, representatives ofother organizations will be allowed to speak briefly as well.

After the opening speeches, you will adjourn and engage in an informal socialhour during which your objective will be to convince other delegates to adopt your

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position. It would be wise to have thought out your strategy ahead of time, andremember, people are not always what they seem to be.

Finally, the group will reconvene and take a roll call vote to support or opposethe proposal. Only delegates to the WHC, not other interested parties, may vote.

A final, important note The agendas and hidden agendas used here are totallyfictitious. In particular, many delegates have been given hidden agendas that areless than honorable because this will make the exercise more interesting and fun.The real members of the WHC, as well as citizens in general of the nations youwill represent, act far more honorably than many of you will during this exercise.

Agendas

Algeria’s agenda

As a Mediterranean nation Algeria has seen what can happen to marine resourceswhen they are not properly managed and thus is inclined to send a message toEcuador that it needs to do a better job of conserving the resources of the Galapagos.

Australia’s agenda

Australia feels rather torn on this issue. Your management of the Great Barrier Reef(another World Heritage Site) is exemplary and you feel a need to be at the forefrontof marine conservation. On the other hand, you are trying to loosen your links tothe British Commonwealth and become more tightly connected with other PacificRim nations, especially the Asian countries that provide the main market for theGalapagos fisheries.

Bolivia’s agenda

As a landlocked nation, Bolivia has only limited interest in protecting access tofisheries and maintaining maritime sovereignty. It is also actively developing somemajor, new national parks with substantial assistance from the World Wide Fundfor Nature. Both of these factors tilt you toward voting for listing the GalapagosNational Park as in danger. On the other hand, you are reluctant to vote against theinterests of another Latin American country.

Canada’s agenda

Since signing the Biodiversity Treaty from UNCED (the Earth Summit) in Rio deJaneiro, Canada sees itself as a leader among nations in international conservationefforts and feels compelled to protect the integrity of the WHC process by votingin favor of listing.

Colombia’s agenda

Colombia wishes to play the part of a true neighbor by supporting the Governmentof Ecuador. It is also widely known that you are a close friend of the delegate fromEcuador, having been college roommates.

Democratic Republic of Congo’s agenda

The DRC (formerly Zaire) believes that the standards for listing a World HeritageSite as in danger need to be revised. There are too many sites being listed or

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considered for listing because delegates from rich nations are unsympathetic to theproblems faced by the governments of developing nations.

Ecuador’s agenda

Ecuador is very embarrassed by the prospect of having one of it most famousfeatures listed as being in danger. You are also offended that outsiders would takethis opportunity to meddle in your affairs when you are doing your best to resolvean extremely difficult problem.

France’s agenda

France supports the view that the people of Ecuador must be given other viableoptions before the Galapagos is placed on the List of World Heritage in Danger.You feel that the economy of Ecuador should be protected and since many Ecua-dorians depend on fishing and on tourism for their livelihoods any unreal sanctionscould have adverse effects. France does not want to impose any sanctions onEcuador but instead, would like to see a plan to protect biodiversity as well theeconomy.

Germany’s agenda

As President of the WHC you will not vote except to break a tie. Your agenda issimply to assure a fair and open debate on this issue.

Ghana’s agenda

Ghana, being a small country similar in size to Ecuador, would like to maintain thelongstanding friendship the two countries have had. With all the First Worldnations putting pressure on developing nations you reason that there is strengthin numbers. By supporting Ecuador now, you hope to have an ally if problems of aninternational nature develop in your own country.

Japan’s agenda

Japan has long been dependent on fisheries products gathered from throughoutthe world’s vast oceans to feed the people of a crowded island, and thus is absolu-tely opposed to any effort that might curtail the Galapagos fisheries and haveramifications for fisheries management in many other nations.

Mexico’s agenda

Mexico will support the WHC proposed listing because you strongly feel that itis critical that the world’s heritage be protected. Your nation has been a highlyresponsible guardian of many WHC cultural sites, principally Aztec and Mayanruins, and you feel that Ecuador should emulate your fine example.

North Korea’s agenda

North Korea has a major role in the marketing of shark fins and other fisheryproducts in Asia. Purchasing the commodities in Ecuador and then transportingthem to key distribution centers in Taiwan and China has become a major sourceof hard currency for your faltering economy. Your people need food imports but willnot be able to pay for rice without more hard currency.

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Peru’s agenda

You have spent a few summer vacations on the Galapagos islands and find itsfauna and flora to be fascinating. To protect this island’s treasures you supportthe move to place it on the World Heritage in Danger list. Of course, it is no secretthat Peru and Ecuador have engaged in many border disputes and thus no one wouldexpect you to support Ecuador.

Russia’s agenda

Russia opposes the decision to place the Galapagos Islands on the List of WorldHeritage in Danger. Russia claims to understand the plight of developing countriestrying to compete in the world market and feels that conservation should not bein the way of economic development. You are of the opinion that Ecuador hastaken necessary steps to prevent the overexploitation of its resources and the realproblem lies with international fishing vessels breaking the law. Besides, as a retiredgeneral you are still more interested in military issues than conservation. It ismore than obvious that trips to the WHC meetings are just a nice excuse for youto travel around the world at government expense.

South Africa’s agenda

South Africa is open to suggestions from Ecuador for protective measures, butunless concrete steps are taken to ensure the safety of the island, you will be forcedto support placing the Galapagos Islands on the List of World Heritage in Danger.

Sweden’s agenda

The Swedish Aid agency has a major project to work in the Galapagos fishingcommunities improving the welfare of the people and making their harvests moresustainable in the long run. You feel that a vote to place the park on the list of sitesin danger may jeopardize all of your hard work to foster a local solution.

United Kingdom’s agenda

As an island, seafaring nation you are extremely sensitive to the need to protectmarine resources and the difficulties of doing so while providing for the needs of alarge human population. However, while you are sympathetic to Ecuador’s dilemmayou must think first of the interests of all the world’s people and protect our globalheritage.

United States of America’s agenda

The US actively supports the view that the Galapagos Islands should be placed onthe List of World Heritage in Danger. The US would also like to provide any navalassistance required in keeping international fishing vessels out of Galapagos watersto protect marine ecosystems.

Agencia Turismo Ecuatoriana’s agenda

Your organization is adamant that something be done to curb the abuses of thenatural wonders of the Galapagos through overfishing, but you would not want tosee the park listed as in danger because this is likely to discourage tourists fromvisiting.

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Pronatura Ecuatoriana

Your organization has been working behind the scenes with the governmentof Ecuador, trying very hard to find a reasonable solution to this problem.Unfortunately, after years of things getting worse you reluctantly have to call uponconservationists throughout the world to send a clear message to the Government ofEcuador by listing the park as in danger.

World Wide Fund for Nature’s agenda

You were working with fellow conservationists in Ecuador before there even wasa Galapagos National Park and are extremely worried about your investmentbeing ruined by recent developments. You feel that listing is the only prudentcourse and that doing so will send a message to countries throughout the worldthat they must protect their natural heritage.

Expected Products

. Demonstrated familiarity with Galapagos conservation issues based on theresources provided as well as those you unearth

. Demonstrated familiarity with the country that you represent

. Understanding of the political landscape of the debate, that is, familiarity withthe participants and their agendas

. Presentation of succinct, persuasive, and eloquent oratory summarizing yourcountry’s position

. Response in a format indicated by your instructor to the Discussion questionsposed below.

Discussion

1 What happened? Why did it happen? This is the time to reconstruct what wenton: who persuaded whom and by what means; who had hidden agendas at oddswith their open agenda; and so on.

2 Which parts of this exercise seemed relatively realistic? Which parts felt more likea role-playing exercise? What lessons did you learn that you could apply toanalogous debates closer to home?

Making It Happen

Unless the next annual meeting of the World Heritage Committee is in a city nearyou it is unlikely that you would be able to attend and participate in one of theirsessions. However, similar debates on a more local level happen all the time amongstate legislators, county commissioners, and various councils and boards. Thesemeetings are almost always open to the public and very often there is an opportunity

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for the public to submit testimony. It is really eye-opening to attend one of thesesessions and is especially good preparation for your professional career if youtestify. The most important thing is that you project knowledge and sincerity. It isnot all that hard to appear knowledgeable if you keep your presentation shortand simple. Indeed, there is often a strict time limit that will compel you to stickto one or two key points.

Further Resources

Links to the websites mentioned above can be found at the website for this book.For the most relevant background reading on conservation in the Galapagos Islands,see D’Orso 2002.

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