An Evaluation of Canada's Implementation and Enforcement of CITES: the Convention on International Trade in Endangered Species of Wild Fauna and Flora

Abstract

Canada has been a signatory to the Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES) since 1975. This thesis evaluates the effectiveness of Canada's implementation and enforcement of the Convention, focusing on five critical areas: the permit issuing system, technical support provided to enforcement officers, controls administered by Customs at ports of entry, enforcement action taken against violators, and public awareness initiatives. Research methods included a review of government files, interviews with officials in Canada and abroad, and analysis of wildlife trade statistics.

Canada has performed poorly in each of the areas examined. A lack of co-operation and co-ordination among federal and provincial agencies hinders effective and uniform implementation of trade controls. The domestic legislation used to apply the Convention's provisions is not well-suited to the regulation of trade in wildlife, and is subject to inconsistent interpretation. Enforcement efforts have concentrated on wildlife products imported by travellers, but with limited success. The efficacy and cost-effectiveness of these controls is dubious. Statistical analyses reveal serious deficiencies in the regulation and monitoring of commercial shipments of live wildlife and manufactured goods. Training and reference materials provided to enforcement officers are inadequate. The numbers of seizures of illegal wildlife and successful prosecutions of offenders are negligible relative to the volume of Canadian trade in CITES-regulated species. The materials used to publicize the Convention are obsolete and their distribution is unreliable.

Recommendations aimed at correcting these deficiencies are presented. It is proposed that wildlife shipments be cleared at a limited number of designated Customs offices, and that specially-trained wildlife inspectors be deployed at these entry points to verify documentation and to examine shipments. Enforcement efforts should be directed toward the commercial sector, where wildlife trade controls are most efficacious. Innovative public awareness initiatives are needed to inform the business community and the public at large of CITES' provisions and its rationale. Legislation specific to the regulation of trade in wildlife should be developed so as to remove the present dependence on statutes which have not served the interests of CITES enforcement. The federal CITES Administration requires a substantial infusion of human and financial resources to enable it to meet present and future commitments.