Virunga National Park

• Armed conflict, lack of security and political instability
• Attribution of a petroleum exploration permit inside the property
• Poaching by the army (issue resolved) and armed groups
• Encroachment
• Extension of illegal fishing areas
• Deforestation, charcoal production and cattle grazing

• Increased poaching of wildlife
• Incapability of staff to patrol the 650 km long boundary of the Park
• Massive influx of 1 million refugees occupying adjacent parts of the Park
• Widespread depletion of forests in the lowlands

Adopted, see page https://whc.unesco.org/en/decisions/4338

In progress

Total amount granted: USD 1,802,300 from the United Nations Foundation and the Governments of Italy, Belgium and Spain as well as the Rapid Response Facility (RRF), USD 40,000 from the Rapid Response Facility (RRF)

On 26 March 2020, the State Party submitted a report on the state of conservation and a further report on 1 April 2021, both of which are available at: http://whc.unesco.org/en/list/63/documents, containing the following information:

• The property reopened to tourism in February 2019 after an eight-month closure;
• Cooperation between the Congolese Institute for Nature Conservation (ICCN), the Armed Forces of the Democratic Republic of the Congo (FARDC), and local and provincial authorities continues;
• Guard numbers remain constant (748). Anti-poaching patrols increased by over 30% from 2018, covering 42% of the property and 87% for air patrols. 550 security operations allowed the park to regain control over several areas of the property in the northern sector. The number of militia operating in the property declined from 2,500 to 1,000-1,200;
• The Greater Virunga Transboundary Cooperation (GVTC) transboundary cooperation with Uganda and Rwanda allowed five joint patrols and the implementation of a joint wildlife census of large mammals in 2018 (excluding gorillas/chimpanzees) with the Uganda Wildlife Authority (UWA). Reduced elephant poaching is reported (three carcases in 2019; six in 2018); the hippopotamus population remains low but has remained stable over the last decade (1,496 individuals; 1,542 in 2018);
• No gorillas have been poached since 2016. Despite poaching and threats to the habitat, flagship species (gorillas, elephants, hippopotamus, buffaloes) continue to increase gradually or remain stable. A new count of large mammals is planned for June 2020 using camera traps;
• A fishing brigade created on Lake Edward allowed the increased seizure of illegal catch and fishing gear by eco-guards. Fish catch is reported as stable, which the State Party concludes means illegal fishing is relatively controlled. No catch data are provided;
• Illegal encroachment for agriculture and charcoal covers 18.5% of the property (19.4% in 2018); 912 bags of charcoal were seized and 254 kilns destroyed. Boundary demarcation (16km) through electric fence construction to secure the Ishasha ecological corridor continues;
• No further decision has been taken to re-start oil exploration activities since the installations of the oil company SOCO were abandoned;
• The Virunga Alliance continues development programmes, including the supply of power to the city of Goma. A third hydroelectric power station was constructed as an alternative to charcoal use;
• The biological indicators of the desired state of conservation for the removal of the property from the List of World Heritage in Danger (DSOCR) requested by the 2018 Reactive Monitoring mission are being harmonized with the 2020-25 Development and Management Plan (PAG) for the property, currently being finalized. The DSOCR and PAG will be transmitted to the World Heritage Centre and IUCN once validated;

Since submission of the report, the security situation in the region has again degraded with several attacks in the property and its vicinity. On 24 April 2020, 17 people (13 rangers/staff and four civilians) were killed in a militia attack (https://whc.unesco.org/en/news/2108). On 24 June 2020, five guards were injured in another attack (http://whc.unesco.org/en/news/2128). On 28 July 2020, seven soldiers were killed (https://whc.unesco.org/en/news/2138/). On 10 January 2021, six guards were killed and one seriously injured in the line of duty (http://whc.unesco.org/en/news/2235). UNESCO has officially condemned all these deadly attacks (https://whc.unesco.org/en/news/2235/). In response to this new security crisis, emergency funding was provided through the Rapid Response Facility. Furthermore, gorilla tourism was suspended following the COVID-19 pandemic outbreak. 

It is encouraging that it has been possible to re-establish control over certain areas and achieve a further decrease in the number of militia operating in the property. The continued efforts to increase patrols and aerial surveillance and to strengthen the capacity of anti-poaching units are welcomed.

However, ongoing security issues continue to present challenges for the management of the property and the conservation of its Outstanding Universal Value (OUV), with a continued presence of more than 1,000 armed elements operating in the property and several attacks on guards. It is recommended that the Committee addresses its sincere condolences to the families of the guards and requests the State Party to continue its efforts to ensure full security in the property.

The transboundary cooperation and conservation efforts with Uganda and Rwanda through the GVTC are positive. It is encouraging that no gorilla poaching has occurred since 2016 and that the mountain gorilla population continues to grow in the property and the overall Virunga transboundary landscape. While the reported stabilization of flagship species and the apparent gradual decline in elephant poaching are noted, poaching remains a serious challenge and it will take time for populations to recover. Hippopotamus numbers remain low compared to 1970s levels (approximatively 30,000) and the elephant population remains at a critical level. In spite of the significant increase in gorillas, the endangered species remains fragile and extremely vulnerable to new threats, such as the COVID-19 outbreak. The State Party should be commended for its continued conservation efforts in spite of the challenging security situation, urged to continue strengthening measures to ensure the full recovery of all flagship species, and requested to transmit the results of new inventories, the DSOCR and PAG to the World Heritage Centre.

Apart from poaching, issues of encroachment and deforestation for charcoal production continue to severely impact the integrity of the property, in spite of the efforts to address these threats. While some progress has been made to regain control of encroached areas, it is concerning that 18,5% of the property remains impacted by encroachment. It is clear that this problem cannot be solved through law enforcement alone and decisive actions are needed from the local, provincial and national political authorities to effectively address this issue.

Sustainable development efforts under the Virunga Alliance programme, specifically regarding tourism, hydropower, entrepreneurship and power delivery to local communities, are welcomed. Noting the construction of a third small scale hydroelectric power plant in 2019, it is recommended that the State Party provide an overview of all hydropower projects relating to the property, to ensure that the potential cumulative impacts of developments on the OUV of the property are fully considered, and to inform the World Heritage Centre of any new proposals prior to activities being undertaken.

Recalling previous deep concerns over potential petroleum exploitation and exploration threats to the property, it is encouraging that so far, no oil exploration activities have been undertaken since the removal of SOCO's facilities from the property more than four years ago. However, it is important to note that oil activities remain a potential threat to the property as long as the current licences have not been revoked, and the Committee should reiterate its request to cancel the petroleum concessions granted inside the property.

While efforts to implement the corrective measures are encouraging, the OUV of the property clearly remains under severe threat and it is recommended that the Committee request the State Party to continue implementing these with support from its partners.

It is also recommended that the Committee retain the property on the List of World Heritage in Danger and to continue the application of the Reinforced Monitoring Mechanism.

46. General decision on the World Heritage properties of the Democratic Republic of the Congo

Current conservation issues

On 26 March 2020, the State Party submitted a report on the implementation of Decision 42 COM 7A.52, available at: http://whc.unesco.org/en/list/718/documents and providing the following information:

• Progress accomplished in the implementation of the 2011 Kinshasa Declaration and the corrective measures for each of the five properties of the Democratic Republic of the Congo (DRC) is described (see Document WHC/21/44.COM/7A);
• A special army Corps responsible for security of the National Parks and relevant protected areas (CorPPN), which was created in June 2015, is now operational: a command structure was established in 2018, and in 2019 anti-poaching units were dispatched to six priority sites in the DRC, including all five World Heritage properties. Senior officers, logistics and operations rooms were put in place in the different sites;
• With regard to oil exploitation in Salonga and Virunga National Parks, the report states that oil exploitation, at this stage, does not threaten the Outstanding Universal Value (OUV) of the two properties, as no exploration or exploitation activities are on-going. The report further states that “la volonté traduite à son temps par le gouvernement n’est plus à l’ordre du jour” (sic) (“the will expressed by the government at that time is no longer on the agenda”);
• A list of funding mobilised for the five properties for the period 2016 to 2023, totalling more than 100 million Euros, is provided. Key donors include the European Commission and the Government of Germany through the German Development Bank (KfW). No further information is provided on the status of the Trust Fund “Okapi Fund for Conservation – FOCON” for sustainable funding of the protected areas in the DRC;

The World Heritage Centre also received several letters on alleged human rights abuses by eco-guards in two properties (Salonga and Kahuzi-Biega National Parks). These were forwarded to the protected area authority, the Congolese Institute for the Conservation of Nature (ICCN). An Independent Review was initiated by WWF, and in Salonga National Park, a code of conduct for the eco-guards and a complaint mechanism were established, while guards have received training on human rights issues.

Analysis and Conclusions of the World Heritage Centre and the Advisory Bodies

The operationalization of the CorPPN at the level of each of the World Heritage properties, together with the creation of operational rooms and capacity building of the eco-guards, are important steps to further professionalize law enforcement in the properties and address the continuing threats of poaching, including by professional poaching groups. The reported alleged human rights abuses towards  indigenous peoples and local communities (IPLCs) are highly concerning, and it is crucial that the State Party urgently implement strong measures to ensure that the rights of IPLCs are fully respected in all management decisions. Measures should include the establishment of a code of conduct and provision of training on human rights issues for all patrol units that includes appropriate law enforcement techniques with regard to the use of force and forearms, to ensure law enforcement operations are conducted in a way that fully respects the rights of IPLCs, and avoids excessive use of force and loss of human lives, in full respect  of relevant international norms. Furthermore, management processes should follow a rights-based approach and ensure full involvement of all rightsholders and stakeholders, in particular IPLCs, in line with the Policy on World Heritage and Sustainable Development. It is encouraging that the protected area authority and its partners have already taken measures to address these issues and it is recommended that the Committee request the State Party to further strengthen these efforts including by establishing and implementing a national code of conduct for eco-guards and a grievance mechanism for human rights abuses, and by training all law enforcement staff on human rights issues as part of regular training. It is also recommended that the outcomes of the Independent Review are taken into consideration.

It is noted that the security situation is reported to have improved in most of the properties. It is important that the State Party takes advantage of this situation to address the drivers of fundamental threats impacting the different properties linked to insecurity and lawlessness. These include the closure of illegal mining operations and reclaiming parts of the properties occupied by armed forces since the start of the conflict. Encouraging achievements so far are the evacuation of illegal occupants in the corridor between the highland and lowland sectors in Kahuzi-Biega National Park and the closure of artisanal gold mines in the hunting areas surrounding Garamba National Park. It is crucial that the protected area authority receives the full support of all appropriate ministries and agencies, as well as traditional and political authorities to achieve this, in line with the 2011 Kinshasa Declaration.

It is concerning however, that issues of insecurity persist, noting particularly in Virunga National Park and Okapi Wildlife Reserve, where, since the previous session of the Committee, a further 25 park staff were killed in armed attacks. It is recommended that the Committee again strongly condemn this violence, address its condolences to the families of the victims and ICCN staff, and express its utmost concern regarding the continuing insecurity in and around Virunga National Park.

The confirmation by the State Party that there is currently no oil exploration or exploitation on-going in Virunga and Salonga National Parks and that the government is currently no longer pursuing oil development projects inside the two properties, is noted. However, as long as the concessions that have been attributed by Presidential Decree to companies for oil blocks overlapping with these properties are not revoked, the potential for oil projects to legally proceed in future remains, thereby continuing to impose a potential threat to the OUV of the properties, in line with Paragraph 180 of the Operational Guidelines. This potential for extractive activities to occur has been demonstrated again by the legal action taken by certain companies against the State Party, asserting their legal rights to activate concessions. It is therefore recommended that the Committee express its regret that the State Party has neither cancelled these concessions nor provided the Committee with an unequivocal commitment not to authorize any new oil exploration and exploitation within the boundaries of the DRC properties. The Committee should also reiterate its clear position concerning the incompatibility of oil exploration and exploitation with World Heritage status and urge once again the State Party to cancel all concessions for oil blocks that overlap with World Heritage properties. 

The important efforts to mobilize funding for the management of the properties of the DRC and the implementation of corrective measures, as well as the firm commitment of the various donors to provide substantial financial and technical support, are welcomed. However, it is noted that the funding situation remains precarious, in particular for Salonga and Kahuzi-Biega National Parks and Okapi Wildlife Reserve. The importance of a sustainable financing mechanism also needs to be stressed, as all properties currently fully depend on outside project funding supported by international donors, which can be unpredictable and is not sustainable in the long term. In this respect, it is regrettable that no further information was provided on the status and capitalisation of the FOCON Trust Fund.