Preliminär sammanfattning av litteraturstudie om socioekonomiska aspekter av utsättning av varg

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1 Department of Urban and Rural Development Environmental Communication Uppsala den 23 augusti, 2010 Naturvårdsverket Stockholm Att. Helene Lindahl Vik Preliminär sammanfattning av litteraturstudie om socioekonomiska aspekter av utsättning av varg Enligt avtal skickar jag härmed en sammanfattning och en disposition på engelska av vår litteraturundersökning om de socioekonomiska aspekterna av en vargintroduktion. Sammanfattningen kommer att fungera som ett underlag för vårt möte på torsdag den 26 augusti där vi också kommer ge en presentation av rapporten. Vid mötet kommer vi att ta med ett utkast av rapporten, på engelska. Slutrapporten kommer att innehålla en litteraturstudie, en diskussion av studiens resultat samt rekommendationer. Rapporten kommer att lämnas i elektronisk form till Naturvårdsverket i mitten av september med svensk översättning. Hälsningar Hans Peter Hansen, Ph.D., Forskarassistent, Avdelningen för miljökommunikation, Institutionen för stad & land, SLU Postal address: Box 7012, SE UPPSALA Delivery Address:Ulls väg 28 B, UPPSALA Phone: Mobil: hans.hansen@sol.slu.se

2 Department of Urban and Rural Development Environmental Communication Ref: Hans Peter Hansen & Tarla Rai Peterson Uppsala 23 August, 2010 SUGGESTED SOCIAL CRITERIA FOR WOLF INTRODUCTION EXECUTIVE SUMMARY Support for recovery of wolf populations is socially contested, and direct introduction is one of the most controversial aspects of any recovery program. Understanding the social factors related to introduction of wolves is especially important in Sweden, where wolves and humans must co-exist in multiple-use landscapes. The primary goal of this report is to identify and explain a set of criteria that may be helpful for determining socially appropriate locations for wolf introduction. We presume that these criteria would be used to complement bio-physical criteria, which we do not include in this report. The report is guided by the following questions: 1. What social factors appear relevant to acceptance and opposition for introducing wolves and other large carnivores into a region? 2. How do these social factors and introduction activities influence each other? 3. Do human responses to introduction activities differ between locations where populations of large carnivores exist prior to introduction, and locations where those populations have been completely extirpated? This summary identifies the main lines of inquiry found in our review, and lists criteria that are indicated by the existing research on social factors related to large carnivore recovery. The full report will be available in September To locate existing research we relied primarily on internationally recognised databases (Web of Knowledge, ScienceDirect and Elsevier). We supplemented our search for peer reviewed literature by making direct contacts to relevant European and U.S. agencies that may have supported research resulting in technical reports that have not been published in peer reviewed outlets. In the review, we summarize results of research on (1) attitudes toward recovery of wolf and other large carnivore populations, (2) economic, (3) cultural, and (4) policy factors that have been studied. Following the review, we offer a brief discussion of management implications and recommendations that emerge from contextualizing the existing research is contextualized within the broader context of social theory. The report concludes with a set of criteria that may be helpful for determining socially appropriate locations for wolf introduction. Social Dimensions of Large Carnivore Recovery Because of the large scales at which wolves and other large carnivores live, their conservation needs exceed the spatial context of protected areas. Their territory will include Postal address: Box 7012, SE UPPSALA Delivery Address:Ulls väg 28 B, UPPSALA Phone: Mobil: hans.hansen@sol.slu.se

3 multiple-use landscapes, which leads to a concern with social dimensions when planning for recovery of wolf populations. Attitudes: A large body of literature has been developed concerning attitudes toward recovery of wolf and other large carnivore populations. It provides insight into how people perceive the associated interactions between themselves and the predator populations that humans have recently attempted to extirpate. In so doing, it highlights important considerations related to attitude change, including demographics and the use of educational campaigns. the general public in Sweden predominately holds neutral/weak attitudes toward wolf conservation. Some demographic variables are effective predictors of attitudes toward wolves and other large carnivores. Women, elderly people and individuals with less education have the most negative attitudes toward efforts to recover these populations. Rural residents also express hostility toward wolves, although there is more variation in their attitudes. Distance between human settlement and wolf territory has at least as strong an influence on attitudes as these traditional demographic variables, with greater distance correlated with more positive attitudes. Although appropriately designed education campaigns generally produce more positive attitudes, this does not mean that those with more knowledge about wolves have more positive attitudes toward them. For example, Swedish hunters, who have more knowledge (if defined as traditional scientific expertise) than the general public, also have more negative attitudes than the general public. Economic factors: The most frequent economic argument levied against recovery of wolf and other large carnivore populations is that they threaten incomes of livestock producers. The costs of livestock depredation have consistently increased with the expansion of carnivore populations and territories. Research has identified several factors that may increase livestock vulnerability to wolves and other large predators. To reduce livestock predation, the literature identifies the use of technology and relatively inexpensive husbandry methods such as guard animals, fences, electrified barriers, sound and visual disturbances. Game hunting produces significant income for rural communities, individual land owners, and management agencies. It also contributes to a broad array of employment opportunities in the outdoor recreation sector. Although there significant uncertainty as to the influence wolf populations have on moose and other free roaming ungulate prey populations, there is widespread belief that the presence of wolves leads to a decrease in ungulate populations. Direct compensation is a widely used instrument to address the conflicts caused by depredation, in the hope of reimbursing at least some part of the economic loss. There is no significant disagreement over whether compensation is appropriate, but rather, disagreements over how to design and implement fair and sustainable programs. Recovery of wolves may also contribute economic benefits. In rare cases, the renewed presence of wolves in a region has contributed to new employment opportunities and increased property values. Cultural factors: Cultural factors also influence public perceptions and preferences, especially regarding wolves. Social researchers ranging from folklorists to linguists have long speculated on the cultural roots for the human fascination with wolves and their dramatic symbolic representations. Although both correction of misinformation and tracing the historical development of the mythology surrounding wolves are important, the most directly relevant concern for those seeking recovery of wolf populations is to understand 2 (4)

4 and validate current symbolic representations of the wolf, and the social realities surrounding these representations. One of the most common symbolic representations of wolves among rural populations focuses on the threat posed by outside intervention. Outside intervention may be personified as distant urbanites who do not understand rural life, scientists who fail to respect local knowledge about natural resources, or nature management agencies that mandate management practices that are insensitive to local practices. In all cases, the critical concern is a perception that local culture is not respected. Rival knowledge systems are important cultural factors in conflicts related to large predators. The term rival knowledge systems refers to contested frames for knowledge that are rooted in scientific/formal expertise versus lay-citizen/local experience. The rivalry over knowledge systems is connected to the ways diverse groups relate to each other and the various forms of knowledge they use to legitimise their policy preferences and actions. Policy factors: Conservation planning is complex and is strongly tied to political rights. When planning processes are based solely on technocratic/scientific knowledge systems, conflicts may arise out of feelings of local disempowerment. A history of negative experiences with central government authorities may lead residents of rural communities to see all agency personnel as complicit in efforts to marginalise rural communities. Potential success of processes intended to encourage public involvement in development of conservation policy may be jeopardised when policies are perceived as marginalising rural communities and threatening traditional land-use activities. The Swedish administrative model affords agencies a relatively high degree of autonomy, which translates into opportunities to shape policy according to local social preferences. At the same time, it increases the responsibility that individual agency personnel must bear. The existence of broad agency discretion reinforces the importance of ensuring that nature managers are sufficiently well trained to facilitate processes that create opportunities for meaningful citizen participation in the development of conservation policy. Strong political alliances that cut across interest groups, social classes and generations have emerged in rural communities, and these apparently united alliances raise questions as to how political alliances are constructed and maintained. Suggested Social Criteria Our review of research on social dimensions of large carnivore recovery suggests a set of criteria for determining socially appropriate locations for wolf introduction. A socially appropriate location would be identified by the following: 1. Social capital. An excellent introduction site will have a history of meaningful participation in decisions about public policy, with an emphasis on demonstrated ability to bridge visible differences (such as demographics or economic interests) between individuals in order to enhance opportunities for the entire community. 2. Communication competence. An excellent introduction site will be served by SEPA personnel with a relatively high level of communication competence and commitment to regularly enhance that competence. 3 (4)

5 3. Infrastructure. An excellent introduction site will include an appropriate mix of social and technical infrastructure, including husbandry practices and technology to protect livestock from potential depredation. 4. Temporal scale. An excellent introduction site will provide strong likelihood that wolf introduction will be integrated into a multi-year public process will be simultaneously incorporated into the social fabric of the community and SEPA. PROPOSED OUTLINE FOR FULL REPORT 1.0 Introduction 2.0 Review of Social Dimensions Research 2.1 Attitudes Demographics Attitude change Education and knowledge 2.2 Economic Factors Livestock depredation Game hunting Compensation schemes Other costs and benefits 2.3 Cultural Factors Place-based Traditions Hunting, Wild Ungulates and Forestry Rival Knowledge Systems 2.4 Policy Factors Agency Discretion Urban/Rural Divide 3.0 Discussion & Recommendations 4.0. Criteria 5.0. References 4 (4)