Sustainable Economic Use of Native Australian Birds and Reptiles Can controlled trade improve conservation of species? Summary of a report of the same name for the Rural Industries Research and Development Corporation by ACIL Economics Pty Ltd (ACN 058 284 521) in conjunction with Agriculture Western Australia February 1997 RIRDC research Paper Series no 97/26 - ii - © 1997 Rural Industries Research and Development Corporation. All rights reserved. ISBN 0 642 24638 6 ISSN 1321 2656 "Sustainable Economic Use of Native Australian Birds and Reptiles" The full report The views expressed and the conclusions reached in this publication are those of the author/s and not necessarily those of persons consulted or the Rural Industries Research and Development Corporation. RIRDC shall not be responsible in any way whatsoever to any person who relies in whole, or in part, on the contents of this report unless authorised in writing by the Managing Director of RIRDC. This publication is copyright. Apart from any fair dealing for the purposes of research, study, criticism or review as permitted under the Copyright Act 1968, no part may be reproduced in any form, stored in a retrieval system or transmitted without the prior written permission from the Rural Industries Research and Development Corporation. Requests and inquiries concerning reproduction should be directed to the Managing Director. Researcher Contact Details ACIL Economics & Policy Pty Ltd ACN 058 284 521 Economics, Policy and Strategy Consultants GPO Box 1322 CANBERRA ACT 2601 Phone: 06 249 8055 Fax: 06 257 4170 RIRDC Contact Details Rural Industries Research and Development Corporation Level 1, AMA House 42 Macquarie Street BARTON ACT 2600 PO Box 4776 KINGSTON ACT 2604 Phone: 06 272 4539 Fax: 06 272 5877 email: [email protected] Internet: http://www.dpie.gov.au/rirdc Published in February 1997 Printed by DPIE Copyshop - iii - PREFACE The Rural Industries Research and Development Corporation's (RIRDC) charter covers goals directed to the management of natural resources and assistance to businesses to capture global market opportunities. The Corporation's vision is for an innovative, efficient and profitable Australian rural sector producing and marketing products from improving production systems into a range of world markets. The raising and breeding of animals is a specific primary industry activity for which RIRDC has a responsibility within its New Animal Products Program. Funding of the project "Sustainable economic use of native Australian Birds and Reptiles" was viewed as a genuine and important role for RIRDC. The overall aim of the study was to identify the potential of, and propose a management regime for, an industry based on exports of native birds and reptiles while also enhancing conservation and biodiversity. Research is continually required on ways of conserving Australian native animals. The fauna has unique biodiversity yet its conservation is continually constrained by biological, social and economical needs, particularly that related to agriculture. The natural biodiversity has to be retained and numbers increased as necessary. To do this effectively essential habitats have to be protected and expanded. This can be achieved by supplementing intrinsic value of the species where appropriate with an economic value through the application of sustainable use. Sustainable use was identified as a major factor in the report prepared on the project findings. This report was prepared by ACIL Economics and Policy Pty Ltd in conjunction with Agriculture Western Australia. Before distributing the report RIRDC invited a range of interested parties to a meeting in September 1996 to discuss the conclusions developed in the project. Suggestions were invited on how to further proceed to implement a conservation strategy with the aim of sustainable economic use of Australian Birds and Reptiles. At the meeting there was common agreement that only so much can be achieved by using national estates for conservation of Australian birds and reptiles. Enhanced conservation has to be stimulated by providing the correct incentives for private investment. This does not mean uncontrolled use of Australian fauna but economic incentives, for instance, whereby landowners contribute to conservation on their farms. Landowners must be given financial encouragement to protect and expand habitats such as bushland rather than replace natural ecosystems in endeavours of other agricultural pursuits that might provide more immediate dividends. Given an economic incentive to conserve, landowners will treat assets such as Australian birds and reptiles as a renewable resource. - iv - There were varying opinions at the meeting on the role of captive breeding and ranching in increasing supply and the relevance of these activities to sustainable use and conservation. Also there were different thoughts on the selection of species that could be initially proposed, although many believed that the choice of species should be based on existing knowledge on the conservation status and biology of species, breeding, habitats and economic considerations. The report outlines the potential value of Australian birds and reptiles on international markets. While it was agreed at the meeting that the opportunity for exporting would deter smuggling there was recognition of the commercial restrictions imposed by the requirements of the Commonwealth Wildlife Protection Act 1982. This Act is administered by Environment Australia and it is the legislation that regulates the export of native wildlife and enables Australia to fulfil international obligations under the Convention on International Trade in Endangered Species of Wild Fauna and Flora. Animal welfare organisations were invited to the meeting, but no representatives attended. The meeting acknowledged the importance of animal welfare needs in captive breeding and ranching. However, most participants agreed that sustainable use issues have to be separately addressed and judged within a framework of sound animal welfare practices. There was agreement that among aims of future research and development there should be testing of the concepts of sustainable use of Australian birds and reptiles by the introduction of experimental management conditions. This activity should be undertaken in partnership with Commonwealth, State and Territory wildlife agencies in whom responsibility for the management of native wildlife is vested. Initially this could be for a selection of species in a focus area. Already both the Northern Territory and South Australian governments, for instance, have made moves to introduce strategies, and trial management plans for the sustainable use of certain native animals. The objectives of the management plans include an emphasis on experimentation based on knowledge so that adaptive approaches and opportunities can be made. Fostering cooperation between landowners and regulatory authorities in sustainable use and conservation is highlighted. The move towards expanding experimental management plans for the sustainable use of live Australian birds and reptiles as proposed represents a significant departure from current government policy on commercial use and export. There is therefore a need for consultation on commercial opportunities with conservation agencies and interested organisations. To this end this report has been circulated to appropriate government departments for assessment and consideration of present and future policy decisions in sustainable use of native birds and reptiles. Dr Peter McInnes Research Manager Sustainable Economic Use of Native Birds & Reptiles CONTENTS Page Synopsis 4 INTRODUCTION 5 Background 5 Aims, methods and structure of the investigation 6 CURRENT BIRD AND REPTILE MANAGEMENT — POLICIES, LAWS AND PROCEDURES 8 History of wildlife legislation and ‘ownership’ of wildlife 8 Aboriginal use of wildlife 9 Separation of responsibilities between the Commonwealth and States 10 Commonwealth controls on wildlife exports 11 State legislation and responsibilities 16 National parks or nature conservation reserves 34 Species preservation programs 35 Wildlife and plant breeding programs 40 Research 41 KEY FACTORS AFFECTING CONSERVATION OF WILDLIFE 42 Impact of modern development on wildlife 42 Habitat change 43 Predators 47 Mechanisms for dealing with introductions 47 Direct human impact 48 Conservation off reserves 49 Pest management 54 5 Sustainable Economic Use of Native Birds & Reptiles CURRENT TRADE SITUATION 58 Australian comparative advantage in the bird and reptile trade 58 Methods used to estimate overseas markets 59 Birds 60 Reptiles 70 Size of Australian domestic trade and markets 75 MANAGEMENT OPTIONS FOR DELIVERING COMMERCIAL OPPORTUNITIES AND ENHANCING CONSERVATION 78 Valuing the wildlife resource 78 Proposed goal 80 The need for wildlife management 80 Altering the environment to favour wildlife 80 CITES ranching guidelines 82 Elements of a proposed management regime for ranching birds and reptiles 85 Trade in captive-bred animals 89 Identification of species in trade 90 CITES and captive breeding 91 CONSIDERATION OF ISSUES 93 Making best use of Australia’s resources 93 Government funding 93 Commercial use of wildlife is an emotive subject 94 Importance of open debate 95 Freedom to develop new ideas for innovation 95 Valuing the wildlife resource 97 Changing the current position is politically difficult 102 Smuggling 102 6 Sustainable Economic Use of Native Birds & Reptiles Wild birds as pests 103 Evaluating