Ministry of Natural Resources and Environment

of the Russian Federation

STRATEGY
FOR POLAR BEAR CONSERVATION
IN THE RUSSIAN FEDERATION

2010
 The Strategy has been formulated in line with the recommendations given
in the Strategy for Conservation of Rare and Endangered Animal, Plant and
Fungi Species that was approved by the Russian Ministry of Natural Resources,
Order No. 323 of 6th April 2004.
The Strategy was developed by a working group that comprised
S. Belikov, A. Boltunov and N. Ovsyanikov.
During the preparation of the Strategy, a number of recommendations that
were suggested by O. Krever, V. Krever, V. Nikiforov, V. Rozhnov and М. Stishov
were taken into account.
The draft of the Strategy was approved by the Mammal Section of the
Commission on Rare and Endangered Animal, Plant and Fungi Species of the
Ministry of Natural Resources and Environment of the Russian Federation at
a meeting held on 4th December 2009.

Translated by: V. Vinichenko

Editor: Geoff York

ISBN 978-5-9902432-1-7

Photo credit: Raditsa.RU, David Jankins, Staffan Widstrand.

Ministry of Natural Resources All - Russian Scientific Severtsov Institute

and Environment Research Institute of Ecology
of the Russian Federation for Nature Conservation and Evolution
 Ministry of Natural Resources and Environment
of the Russian Federation

STRATEGY
FOR POLAR BEAR CONSERVATION
IN THE RUSSIAN FEDERATION
The Strategy for Polar Bear Conservation in the Russian Federation
is approved by the Ministry of Natural Resources and Environment
of the Russian Federation, Decree No. 26-r of 5th July 2010.

2010
 INTRODUCTION........................................................................3
1. THE GOAL AND OBJECTIVES OF THE STRATEGY...............4
2. TAXONOMY OF THE POLAR BEAR ........................................4
3. POLAR BEAR DISTRIBUTION
IN THE RUSSIAN FEDERATION..............................................5
4. THE NUMBER OF POLAR BEARS
IN THE RUSSIAN FEDERATION..........................................6
5. BIOLOGY OF THE POLAR BEAR
AND PREREQUISITES FOR ITS CONSERVATION................7
6. LIMITING FACTORS................................................................10
7. STATUS OF THE POLAR BEAR CONSERVATION..............18
8. PRIORITY POLAR BEAR
CONSERVATION MEASURES................................................27
9. STRATEGY IMPLEMENTATION PARTNERS.......................35

2
INTRODUCTION
Since the very beginning of human activities in the Arctic, the polar bear has
been the symbol of the region. It is the largest land predator, perfectly adapted
to the extreme climate of the Arctic, long polar nights, and prolonged periods of
forced fasting. The polar bear is the only land mammal species using Arctic pack ice
as its main habitat. Despite inhabiting some of the areas of the Earth that are least
accessible to humans, the polar bear has been highly vulnerable to anthropogenic
impacts. Excessive hunting pressure on the polar bear that continued across most
of its range until the early 1970s led to a dangerous decrease in the population
size.
The Artic states managed to stop this trend by taking a number of effective
polar bear conservation measures in the second half of the 20th century. The most
decisive steps were made by Russia and Norway, which prohibited polar bear
hunting in 1956 and 1973, respectively. In addition, the Arctic states took actions
to protect key habitats of the species or introduced restrictions on the harvesting
of polar bears.
In Greenland (Denmark), a system of quotas for polar bear harvesting
was introduced on January 1, 2006. The taking of cubs of any age and females
accompanied by cubs, as well as export of cubs, is prohibited. Any taking of polar
bears is prohibited between July 1 and August 31 across Greenland, except for
Ittoqqortoormiit and Ammassalik districts where it is prohibited between August 1
and September 30.
In Canada, quotas for the taking of polar bears by indigenous hunters are
established on an annual basis. A license holder is able to transfer the right to
a shot to a non-native hunter, but is required to accompany the hunter in a dog
sledge during the hunt.
In the late 20th century, in addition to the existing anthropogenic pressure on
the Arctic ecosystems, of which the polar bear is a part, climatic changes in the
Arctic became another factor having an adverse impact on polar bear habitats. For
this reason in May, 2008 the polar bear was listed as a threatened species under
the US Endangered Species Act.
According to estimates of the Polar Bear Specialist Group of the IUCN Species
Survival Commission, by 2050 the polar bear population size may decrease by 30%
as a result of adverse changes in its habitats.
At the same time, another scenario cannot be completely ruled out due to the
existing lack of knowledge on climate change. This scenario forecasts that current
warming in the region will stop in 10-15 years and be followed by a subsequent
period of cooling and increase in sea ice area.
Thus, the long-term conservation of the polar bear requires the elaboration of
special measures to ensure the well-being of the populations of this unique species
due to increasing anthropogenic impact on marine and coastal ecosystems and
climatic changes in the Arctic.

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 1. THE GOAL AND OBJECTIVES
OF THE STRATEGY
1.1. The Goal of the Strategy
To define the mechanisms for conservation of the polar bear populations in the
Russian Arctic under the conditions of increasing anthropogenic impact on marine
and coastal ecosystems and climatic changes in the Arctic.

1.2. Objectives of the Strategy

• Conservation of the existing polar bear populations in the Russian Arctic;
• Minimization of the adverse impacts from anthropogenic factors on the polar
bear populations in the Russian Arctic.

2. TAXONOMY OF THE POLAR BEAR

2.1. Common Names in Russian and English,
and Scientific Name
Белый медведь, Polar bear, Ursus maritimus Phipps, 1774

2.2. Taxonomic Hierarchy:

Class Mammalia
Order Carnivora
Family Ursidae
Genus Ursus

Species Ursus maritimus

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3. POLAR BEAR DISTRIBUTION
IN THE RUSSIAN FEDERATION
At present, the polar bear inhabits the Northern Circumpolar Area. A total of 19
populations of the species are identified within its range. In Russia (the Russian
Arctic) there are three polar bear populations, including the Kara-Barents
population, the Laptev population, and the Chukotka-Alaska one (see Fig. 1).

Canada

USA
Atlantic Ocean Greenland

Chukotka- Pacific
Arctic Basin Alaska Ocean
population
Denmark Norway
Kara-Barents
population Laptev
population

Arctic Circle
Russia

Fig. 1. Distribution of the Polar Bear in Russia

5
 The ranges of the three polar bear populations inhabiting the Russian Arctic
cover the Arctic seas and the northern part of the Bering Sea: the Kara-Barents
population inhabits the Barents and Kara Seas; the Laptev population – the Laptev
Sea and the western part of the East Siberian Sea; the Chukotka-Alaska population –
the eastern part of the East Siberian Sea, the Chukchi Sea, and the northern part
of the Bering Sea. Outside the Russian Arctic, the range of the Chukotka-Alaska
population includes the parts of the Chukchi and Bering Seas adjacent to the
western and northwestern coasts of Alaska, while the range of the Kara-Barents
Sea includes the Svalbard area.
The polar bear populations in most of their ranges (including the whole range
of the Laptev population) are restricted in their southward distribution by the
northern coast of Eurasia. The animals rarely leave coastal areas to wander the
mainland tundra, although this takes place from time to time. In March – April
polar bear encounters took place in various locations of the mainland Chukotka
(including the Markovo settlement, the Mayn River mouth, Rarytkin Ridge, the
middle reaches of the Tanyurer River etc.).
The largest number of maternity dens in the Russian Arctic is found on Wrangel
Island (the Chukchi Sea), on the northern coast of Chukotka (the Chukchi
Peninsula), and on the islands of Franz Josef Land and Novaya Zemlya archipelagos
in the Barents Sea.
The southern boundary of the polar bear range in the Bering Sea and the
southwestern boundary of the range in the Barents Sea are defined by the pack ice
edge, the position of which is subject to considerable seasonal and annual variation.
The northern part of the range includes some areas of the Arctic Basin adjacent to
the peripheral seas.
The exact area of the current range of the polar bear is difficult to measure
since it varies between seasons and years. It is also subject to “climatic” variations
associated with changes in the extent of the pack ice in the Bering and Barents Seas.

4. THE NUMBER OF POLAR BEARS

IN THE RUSSIAN FEDERATION
By the early 1960s the number of polar bears in several areas of the Arctic had
dramatically declined as a result of unregulated harvesting. A number of urgent
conservation measures taken by the Arctic states helped stop this trend, giving
rise to the population recovery process. At present, the world’s total number of
polar bears does not exceed 20,000-25,000.
According to expert estimates, in the early 1990s the size of the polarbear
populations inhabiting the Russian Arctic and the adjacent areas amounted to: the
Kara-Barents population – 2500-5000 animals, the Laptev population – 800-1200
animals, the Chukotka-Alaska population – 2000-5000 animals. For the latter
population, the estimate recommended by the Polar Bear Specialist Group of the
IUCN Species Survival Commission is 2000 animals.

6
 Based on the results of the polar bear census conducted in 2004 in the northern
part of the Barents Sea, including the area of Svalbard and Franz Josef Land
archipelagos, the size of the Barents Sea part of the Kara-Barents population was
estimated at approximately 2650 animals.

5. BIOLOGY OF THE POLAR BEAR

AND PREREQUISITES FOR ITS CONSERVATION
5.1. Polar Bear Biology and Reproduction Rate
The polar bear is an evolutionarily young species. It is thought that its modern
phenotype formed between 250,000 and one million years ago. Most scientists
studying the evolution of the species believe that the polar bear originated from a
group of brown bears in the early or mid-Pleistocene. Initially, the ancestors of the
polar bear supposedly fed on organic remains found in the littoral zone, gradually
switching to active hunting of seals resting on the sea ice. Eventually, this process
led to the evolution of an active predator capable of living on the sea ice throughout
the year and well-adapted to extreme environmental conditions of the Arctic.
The polar bear is the largest land carnivore with adult males measuring up to 280
cm in length, and up to 160 cm in height at its shoulders. Males typically weigh
400-600 kg, although the weight of an adult male has reached 800 kg in some
reported cases. Females are smaller and lighter (130-300 kg), however, the weight
of a pregnant female going into a den may reach 500 kg.
The polar bear differs from other bear species by its long neck and flat head.
The bear’s fur coat consists of pigment-free hollow hairs that vary from white to
yellowish in colour. Sometimes the coat of bears living in a hot humid climate
(e.g. kept in a zoo) may turn pale green due to microscopic algae growing in their
hollow hair shafts. A very thick and dense coat of fur protects the animal from the
cold. A thick layer of subcutaneous fat also plays an important role in animal’s
adaptation to environmental conditions. The bear has well-developed senses of
smell, hearing, and sight.
Polar bears generally lead a solitary or solitary family (a female with her cubs)
way of life, but may form large temporary groups associated with major sources of
food. Typically, bears are not aggressive toward each other, although adult males
may attack cubs.
According to zoo reports, the life span of polar bears rarely exceeds 25-30 years
(the record life span in captivity amounted to 45 years). Females usually reach sexual
maturity at 4-5 years, males at 6-7 years. The reproductive ability is retained until
the age of 21. Courtship and mating take place from March to June; a breeding
female may be followed by up to 3-4 males. In September and October, pregnant
females come to denning areas – coastal mountain areas of the mainland and Arctic
islands. The females begin to dig maternity dens when snow banks large enough
are formed on the slopes, usually in October or November. The most significant
denning areas in the Russian Arctic are located on Wrangel Island, Herald Island,

7
 and in such archipelagos as Franz Josef Land and Novaya Zemlya. The maximum
density of maternity dens has been observed on Herald Island, reaching 12 per 1
km2. The latent phase of pregnancy ends when the female goes into the den and
active development of the embryo begins. Pregnancy lasts for a total of 230-250
days; cubs are born in December and January and most maternity dens are broken
open between mid-March and mid-April. After opening of the maternity den, the
family stays in the denning area for 2 4 weeks, with the mother helping the cubs get
used to living outside the den and preparing them for the transition to the sea ice.
During that period, family groups are particularly sensitive to disturbance factors.
Reproductive success of the species is determined, to a considerable
extent, by denning conditions, including availability and quality of snow
banks, theabsence of disturbance factors, and availability of prey and stability
of weather conditions after leaving the den. Polar bears are characterized by a
low reproductive potential: females give birth once in two or three years, with
one to three cubs in the litter. According to the studies conducted in 1970s on
Wrangel Island, the average litter size at the end of the denning period was 1.79
(n=192); with the percentage of two-cub litters being 70.3%, one-cub – 25.5%, and
three-cub – 4.2%.
Thus, a female is able to produce no more than 8-12 cubs during her lifetime.
Cubs are born helpless, as in all bear species, weighing around 600g. Within
three months after giving birth, the female and cubs leave the den, switching to
a nomadic way of life on the drifting sea ice. In normal conditions, cubs stay with
their mother until the third fall of their life. Mortality rate among first-year cubs
amounts to at least 30-40%.
There is no data on the sex and age structure of the polar bear populations in
the Russian Arctic. According to the available data on the bear populations in the
foreign Arctic, the male to female ratio is about 1:1, the ratio of adult to young bears
is also 1:1.
The peculiarities of the polar bear’s biology, including large body size, lowfertility,
the long period during which cubs stay with their mother, low genetic diversity
and high mortality rate in young bears make the species ecologicallyvulnerable to
major changes in the habitat conditions, which, in turn, may lead to a dramatic
decline in the population sizes.
At the same time, polar bears are characterized by a highly adaptive behavior,
well-developed basic intelligence, and a high enough level of ecological plasticity
and social behavior (group use of major food sources), which makes it easier for
the species to survive and improves the viability of the populations.

5.2. Habitat Requirements

The polar bear is the only terrestrial mammal species whose life is, for the most
part, associated with the drifting sea ice of the Arctic Ocean. Bears are able to hunt
seals, their main prey, from the ice only. The preferred summer habitat of the species
is the edge of the polar ice pack, while in the winter they prefer flaw polynyas,
the systems of coastal leads, and loose pack ice in the continental shelf area.
8
Seasonal migrations of bears are associated with the annual movement of the
polar ice pack edge, in the summer the animals recede to the north, while in the
winter they move southward, coming onto the mainland.
Recent climatic changes in the Arctic leading to a reduction in the summer
ice cover in the Arctic seas resulted in a significant decline in the area of suitable
habitats, particularly in the Barents and Chukchi Seas.

5.3. Diet and Foraging Behavior

Like all large predators, polar bears need large amounts of food. The main prey of
the bear is seals (ringed and bearded seals), which can be hunted from the ice only.
Sometimes bears hunt walruses (mainly calves) and harp seals.
At the same time, polar bears are able to switch to alternative types of food
relatively easily. When staying on the land, they may eat carcasses of dead animals,
kelp, fish washed up on shore, and other vertebrate animals they are able to hunt.
In some locations, bears feed on waste of animal harvesting activities carried out by
humans. There were also known cases of polar bears feeding on seabird colonies.
When forced to come onto land in search of food, polar bears often travel large
distances along the shore. During such travels they may encounter humans and
become a victim of illegal harvesting or a forced kill.

5.4. Behaviour toward Humans

The many years of bear-human coexistence in the Arctic show that the polar
bear is non-aggressive toward humans by its nature. Even when injured, the bear
usually does not attack humans. More than five hundred years of human exploration
and development of the Arctic Region saw relatively few cases of bears attacking
humans despite regular bear-human encounters. However, the very fact that the
polar bear is a large and a very powerful predator, which in some cases may attack
humans, poses a potential threat.
A real threat to humans is posed by hungry (starving) animals, particularly
old animals unable to hunt their usual prey anymore, young bears that have
notdeveloped sufficient hunting skills yet, as well as females trying to protect their
cubs. The polar bear may become aggressive when chased, or when it encounters
humans unexpectedly. In natural conditions, defensive and orientation/exploratory
behaviour in bears prevail over aggression.
When encountering man-made structures, standalone buildings or human
settlements on their way, bears may try to enter them searching for food or out of
curiosity. When visiting human settlements, bears sometimes try to enter living
and production premises, but most often they are attracted by food waste dumps,
as well as fish and sea mammals dressing sites. In some cases humans deliberately
feed bears visiting settlements, polar stations, and expedition base camps. In this
way they deliberately or inadvertently create potential for human bear conflict,
which may ultimately lead to the death of bears or humans.

9
 6. LIMITING FACTORS
There exists a broad range of limiting factors for the polar bear and the extent
of their impact is also quite varied. The wide variety of impacts caused by the limiting
factors can be divided into two major classes: direct and indirect impacts.
Direct impacts include poaching, forced kills resulting from human-bear
encounters, harvesting by indigenous peoples of the Chukchi Peninsula for their
traditional needs, removal from the wild for research and cultural and educational
needs, and disturbance factors caused by human activities.
The most significant indirect impacts in terms of their influence on the polar
bear abundance include reduction of habitats resulting from industrial development
in northern areas, environmental pollution and climate change.

6.1. Direct Impact Factors

6.1.1. Retrospective review of polar bear harvesting
in the Russian Artic
The harvesting of polar bears in the northern part of the Bering Sea and in
the Chukchi Sea (the eastern sector of the Russian Arctic) started in the late 18th
century and considerably expanded in the 19th century, when tens and in some years
even hundreds of ships, mainly American, were involved in sea mammal hunting
in the region. Polar bears were harvested as a secondary species, with annual take
not exceeding several dozens. Many more polar bears were harvested by coastal
indigenous communities of the Chukchi Peninsula.
In the late 19th century, annual take of polar bears amounted to 100-150, in
the 20th century (prior to the Second World War) this figure swelled to 250, with
an even larger number of harvested animals in certain years. In the years that
followed, the number of harvested bears gradually decreased, apparently reaching
one hundred or less in the early 1950s.
In the decades preceding the Second World War, a substantial number of bears
were harvested on Wrangel Island by commercial hunters. Between 1926 and 1934,
more than 1000 bears, mainly breeding females and cubs of the year, were hunted
on the island.
In the central sector of the Russian Arctic (the Laptev Sea, the western part of
the East Siberia Sea, and at the northern coast of Yakutia) the number of annually
hunted polar bears apparently did not exceed several tens.
In the western sector of the Russian Arctic, polar bear harvesting had been
developing since the 18th century. Vessels of walrus hunters also harvested bears
as a secondary species. The annual take apparently amounted to at least 100
bears, with the peak value – 200 animals or more – reached in the 1920-1930s.
It is likely that between the end of the Second World War and the imposition of
the hunting ban, the annual polar bear take in the region amounted to 50-60.
On the islands and continental coast of the Barents and Kara Seas, between
several tens and more than a hundred polar bears were harvested annually
10
since the second half of the 19th century. On the Franz Josef Land, the annual
take of bears varied from several tens to 200-250 since its discovery in 1872.
Thus, the hunting pressure on the polar bear populations in the Russian
Arctic considerably decreased after the end of the Second World War. Prior to
the imposition of the hunting ban, polar bear hunting was typically practiced
as a secondary activity by personnel of polar stations, participants of various
expeditions, and marine mammal and fur game hunters.
The first limitations on polar bear harvesting were introduced in the Soviet
Union in 1938, when bear hunting from ships and, without extreme necessity, at
polar stations was prohibited.
In 1950, comprehensive hunting limitations were introduced. Later the RSFSR
Council of Ministers adopted the Decree dated November 21, 1956 № 738 “On the
Conservation of Arctic Animals”, which imposed a total ban on polar bear hunting
since 1957.

6.1.2. Removal from the wild for cultural/educational

and research purposes
After the introduction of the ban, removal of polar bears from the wild has been
permitted only for research purposes, or to meet the needs of zoos and circuses. For
these purposes, a small number of bears (peaking at about fifteen animals in some
years of the 1970s) were removed from the wild in certain years on the Wrangel

11
 Island (prior to the establishment of the state strict natural reserve there) and on
the Franz Josef Land (until the mid-1980s). Orphaned cubs were occasionally
captured and sent to zoos and circuses.
At present, procedures for the taking and handling of animals listed in the Red
Book of the Russian Federation, including the polar bear, are defined by two Decrees
of the Russian Government: № 13, dated January 6, 1997, “On Approval of the Rules
for the Taking of Animals Belonging to the Species Included in the Red Book of the
Russian Federation, except for Aquatic Biological Resources”, and № 156, dated
February 19, 1996, “On the Procedure of Issuing Permits (Executive Licenses) for
the Handling of Wild Animals Belonging to the Species Included in the Red Book of
the Russian Federation” (for more details see section 7.1.2.1 of this Strategy).
The Russian Government’s Decree № 156, dated February 19, 1996, sets forth, in
particular, that keeping animals in captivity which are of the species included in the
RF Red Book can be permitted only for the purpose of conservation and reproduction
of animals in an artificial habitat, as well as for research or cultural and educational
purposes. This way the animals can be released to the natural environment for the
purpose of their conservation and/or replenishment of natural populations.
Decisions on removal of polar bears of the Alaska-Chukotka population from
the wild are made based on the recommendations of the U.S.-Russia Polar Bear
Commission.

6.1.3. Poaching
Although prior to the early 1990s the poaching of polar bears took place in the
Russian Arctic, it was limited to individual cases of killing at polar stations, mines,
or coastal communities. A person trying to transport skins from a hunting site and/or sell
them would face serious difficulties at the time.
The year 1992 saw the beginning of a dramatic change in the situation. Since
the mid-1990s illegal hunting of polar bears has become a widespread practice
in certain areas, with the most significant poaching hotspots including Chukotka
and Western Taymyr (around Dikson settlement). This conclusion is based on the
information on the number of polar bear skins processed by taxidermists in large
cities, on the number of skins offered for sale via the Internet, and on the results of
surveys conducted in the indigenous communities of the Chukchi Peninsula.
Although there is no accurate data available on the exact number of polar
bears illegally taken in the Russian Arctic and associated damage to the respective
populations, experts believe that this figure is significant in terms of its impacts on
the conservation of the populations.

6.1.4. Forced kills resulting from human-bear conflicts

The shrinking of the Arctic sea ice caused by the changing climate in the Arctic
forces polar bears to move onto land more frequently. This leads to an increased
probability of human-bear conflicts and forced kills.

12
 In the vast majority of cases, forced kills of bears visiting human settlements
were a result of conflicts initiated by humans, or incorrect behavior of the latter
during bear encounters. This issue is most acute for the indigenous settlements of
Chukotka, where sea mammal hunting is traditionally practiced. Carcasses of sea
mammals and products of their dressing attract bears to the settlements, where
they often get killed by humans.
Conflicts resulting from polar bears visiting human settlements also occur
in Novaya Zemlya, where bear attacks on military servicemen often result in
fatalities.

6.1.5. Disturbance factors

Polar bears particularly sensitive to disturbance factors include pregnant
females during the period of going into the den (September-November), females
with newborn cubs during the period of coming out of the den and getting prepared
for leaving for the ice (March-April), and females with cubs of the year. Disturbance
to females during the period of entering the den may force them to move to another
location or even to another denning area. Disturbance to family groups caused
by movement of land vehicles near dens during the period of den opening or on
the routes to the sea ice may cause unprepared cubs to prematurely leave the den,
reducing the chance of their survival, or lead to the loss of cubs as a result of the
panic flight of their mother.
Additional disturbance to the animals is caused by the industrial development
of the Arctic Region, increased shipping on the Northern Sea Route, further
development of sea cruise tourism, as well as ecological and scientific tourism.
Permanent and intense impact of such factors may lead to the loss of some natural
habitats of the polar bear.

6.2. Indirect Impact Factors

6.2.1. Changes in the natural habitats
One of the most significant threats to the bear population status is the degradation
(loss and transformation) of natural habitats resulting primarily from the industrial
development of land and sea areas, and the environmental pollution.
6.2.1.1. Industrial development of the region
The national economic development programs (including, in particular, “The
Fundamentals of the State Policy of the Russian Federation in the Arctic until 2020
and for the Subsequent Period” approved by the President of the Russian Federation
on September 18, 2008, № Pr-1969, and the “Development and Management of
the Arctic” Subprogram of “The World Ocean” Federal Targeted Program approved
by the Decree of the Government of the Russian Federation dated August 10, 1998,
№ 919) suggest a particularly important role of the Arctic in the economic development
of the country. There are rich hydrocarbon resources on the Arctic continental shelf.
The full-scale development of these resources may start in the near future. The main
areas of oil and gasextraction activities will include the Barents Sea, the Gulf of Ob
and the Taz Estuary in the Kara Sea, the Yamal Peninsula, and, in a longer-term
perspective, other Arctic seas of Russia.
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 The seas of the Russian Arctic have traditionally been used as transportation
routes for supplying northern towns and settlements with fuel, equipment, and
food. The Northern Sea Route has become the main transportation artery for
most arctic and subarctic areas of Russia. The significance of the Northern Sea
Route will particularly increase after the beginning of the planned development
of commercial shipping between Western Europe and Southeast Asia, and large-
scale extraction of oil and gas on and off the coast of the Barents and Kara Seas.
Further development of economic activities in the Arctic Region of Russia,
including oil and gas extraction on the continental shelf of the Arctic seas and
more intense use of the Northern Sea Route, will have a positive impact on the
socio-economic development of the northern areas. New infrastructure will be
built and new jobs will be created in the region. At the same time, the expansion of
industrial development aggravates environmental safety issues and creates threats
to the wildlife of sea and coastal areas, including the polar bear.
There is a potential threat of the loss or disruption of existing polar bear habitats
as a result of impacts caused by mining operations, tourism, land transportation
etc. The extraction of hydrocarbon resources discovered in theBarents, East Siberia,
and Chukchi Seas, possible in the future, will inevitably result in an increase in
sea cargo traffic, including oil transportation, andconstruction of well-developed
infrastructure in certain coastal areas. Some of these areas are typically used by
polar bears for hunting, migration, maternity denning, and spending ice-free
periods on the coast.

6.2.1.2. Pollution of polar bear habitats

In recent decades, the Arctic Ocean has been facing massive environmental
pollution. Some of the pollutants result from mining operations, activities of non-
ferrous metal industries, and operations of fuel and energy complexes in the region,
or are carried to sea ecosystems by the air or rivers emptying into the Arctic seas.
Other pollutants originate from sources outside the Arctic, being transported to high
latitudes by ocean currents and air masses. Mining operations in the coastal areas
and dumps of solid waste near settlements, drilling and mining sites, and polar
stations also contribute to sea water pollution with petroleum products, sand, silt,
and solid waste.
Sea water contamination results in decreased species diversity, as well as in the
emergence and wide spreading of microorganisms having aggressive pathogenic
properties, or of mutant organisms producing increased amounts of carcinogenic
substances. Seawater contamination causes damage to the fish fauna, including
species consumed by the ringed seal, which is the main prey of the polar bear.
Particularly dangerous to the polar bear are Persistent Organic Pollutants
(POPs). Research has found that the highest content of polychlorinated biphenyls
(PCBs) in subcutaneous fat was observed in polar bears taken in the northern
part of the Barents Sea, while bears from the Chukchi and East Siberia Seas were
characterized by a relatively low PCB content in their fat.

14
 The accumulation of pesticides, another POP group, was studied in polar bears
from the Svalbard and Franz Josef Land areas, as well as Kara, East Siberian and
Chukchi Seas. High total levels of individual pesticide components were found in
bears taken from the Svalbard area and in the northern parts of the Barents and
Kara Seas. Pesticides adversely affect the immune and endocrine systems of polar
bears, as well as reproductive function in males.
At all stages of oilfield development (including well drilling, potential damages
to subsea pipelines, and reloading oil from tankers to land storage facilities) oil spills
leading to environmental pollution may occur. When released into the sea water,
oil may lead to the death of under-ice organisms and to a dramatic reduction in
photosynthetic processes and, as a result, in primary production. This destructive
process may then affect higher trophic levels such as invertebrates, fish, birds, and
mammals, including polar bears. In addition, oil hydrocarbons released into the
sea water may cause the following significant damage to polar bears
• oil sticking to a bear’s fur as a result of swimming in polluted water may hamper
thermoregulation functions of the fur;
• ingesting oil when grooming polluted fur or consuming polluted seals may lead
to poisoning of animals.
Oil pollution is particularly dangerous to immature bears, whose relative energy
consumption for maintaining body temperature is significantly higher than in adult
bears.
Major oil spills may affect polar bears even in areas distant from the actual
accident site. For example, in the case of a large spill in the De Long Strait, sea
currents will carry the oil eastward along the northern coast of Chukotka. This will
result in pollution of the protected sea area and coast of Wrangel Island (“Wrangel
Island” State Strict Nature Reserve) – key habitats and breeding areas of the
Chukotka-Alaska population of polar bears. Major oil spills in the East Siberian or
Chukotka Seas (associated with offshore oil extraction or transportation) will also
inevitably lead to massive pollution of large shore sections of Wrangel and Herald
Islands, and the protected sea area.

6.2.2. Impacts of marine mammal hunting

At present, the hunting of several pinniped and cetacean species is practiced
in the Chukotka Autonomous Okrug. The waste produced by hunting is, to certain
extent, used by polar bears as food. Marine mammal hunting has both positive and
negative aspects in terms of polar bear conservation. The main positive aspect is the
expansion of the polar bear trophic base by including in it some parts of large cetacean
hunting (in the form of hunting waste). Normally those species are unavailable
to bears as a food. This is particularly important at the present time, when earlier
seasonal melting of Arctic sea ice and later freezing of the seas reduces opportunities
for successful seal hunting by bears, forcing many of them to look for food ashore in
the summer and fall. On the other hand, since hunting sites, as well as sites used for
dressing and storage of meat and skins (such as hunting bases and villages) attract
polar bears looking for food, this increases potential for human-bear conflicts and
poaching. This is definitely an adverse aspect of marine mammal hunting.
15
 6.2.3. Impact of climate change
There are two diverse views regarding changes in the Arctic climate and area
of the sea ice in the 21st century. Supporters of the first scenario believe that a
unidirectional trend of a warming climate and associated decline in sea ice area in
the region will continue throughout the century. Proponents of the second scenario
believe that this century will see an oscillating (as opposed to unidirectional) trend
of temperature and ice area. According to their projections, the warm period,
which started in the first half of the 1980s, will come to an end around 2015-2020.
The subsequent years will see a decrease in average air temperature and associated
increase in sea ice area. This trend will continue until approximately the mid-2030s
and will be followed by another warming period, which, like the previous one, will
be limited in time.

16
 Of the two scenarios outlined above, it is the one of a warming climate thatposes
a particular threat to polar bears. For the last 20-25 years, particularly intense
warming has been observed in the Greenland, Barents, and Chukchi Seas, and in
the southern part of the Beaufort Sea. The effects of a warming climate include
a considerable decrease in area and thickness of the sea ice in the summer, the
emergence of a growing number of open water areas, changes in the dates of ice
formation and breakup, receding of the summer ice pack edge to areas with larger
sea depth and lower productivity, an increased number of cases of anomalous
winter thaws and rains in the early spring. These and other phenomena associated
with a warming climate lead to changes in the range, migration patterns, and
preferred habitats of the polar bears and pagophilous seal species (i.e. those whose
lifecycle is closely related to the ice) – the main prey of the predator.
The polar bear population in the western part of the Hudson Bay (Canada) can
be used as a model for studying effects of climate warming on polar bears. Studies
conducted for the last two decades revealed a statistically reliable correlation
between global climate change and effects on the population. In particular,
early dates of ice breakup associated with higher air temperatures in the spring
correlated with lower weight of females coming onto land, a lower birth rate and
lower survival rate of cubs, immature bears, and bears aged twenty years or more.
The declining area of sea ice may have adverse effects particularly on pregnant
females returning to specific denning areas on land. The distance between the land
and the southern edge of the sea ice, where most bears spend the summer, increases,
making it difficult or even impossible for females to reach their denning sites.
Immature bears are more vulnerable to the impact of environmental factors
than adult animals. Swimming in cold sea water is particularly dangerous to young
cubs, who do not have enough subcutaneous fat to protect them from hypothermia.
The body temperature of a cub immersed in ice water rapidly declines. If further
decline in the sea ice area forces family groups to swim from denning areas in order
to reach the drift ice, cub mortality rate may increase as a result of hypothermia.
It is expected that climate warming will lead to an increased number of rains in
the winter or early spring. This may result in the disruption of dens or changes in
their temperature regime. Since cubs are born helpless and need to be fed for three
or four months before leaving the den, significant changes in the protective properties
of dens may have an adverse effect on the survival rate of cubs of the year.
Thus the changing climate in the Arctic results in a chain of changes in the
habitat conditions of the polar bear and its prey species. During warming periods,
such changes usually have adverse impacts on the predator, leading to a decline in
population sizes.

17
 7. STATUS OF THE POLAR BEAR
CONSERVATION
7.1. Legal Framework of the Conservation
7.1.1. Key international conservation conventions
and agreements
The polar bear is a threatened species included in the IUCN Red List andclassified
into VU A3c category based on a suspected population reduction of 30% within
three generations (45 years) due to a decline in the area of occupancy, extent of
occurrence and habitat quality.
The polar bear has been included in the Appendix II to CITES (Convention
on International Trade in Endangered Species of Wild Fauna and Flora signed
on March 3, 1973), which implies stringent regulation on commercial export and
import of the species.
The key international instruments aimed at the conservation and recovery of
rare and endangered species and, in particular, the polar bear, include:
• Convention on Biological Diversity (Rio de Janeiro, June 5, 1992);
• Pan-European Biological and Landscape Diversity Strategy, adopted at the
third “Environment for Europe” Ministerial Conference (Sofia, 1995);
• Agreement on the Conservation of Polar Bears (Oslo, November 15, 1973);
• Agreement between the Government of the United States of America and the
Government of the Russian Federation on the Conservation and Management of
the Alaska-Chukotka Polar Bear Population (Washington, October 16, 2000).

7.1.1.1. Agreement on the Conservation of Polar Bears

(November 15, 1973)
The Agreement on the Conservation of Polar Bears, which was signed in 1973 in
Oslo by the five Arctic states – the Soviet Union, Canada, Denmark, Norway, and
the United States – has played a particularly important role in the conservation of
the species. Since entering into force in 1976, the Agreement has been providinga
foundation for both national conservation measures and the coordination of
management and joint research actions between two or more polar bear range states.
According to the Federal Law dated July 15, 1995, № 101-FZ “On International
Treaties of the Russian Federation”, the Russian Federation continues to exercise
its rights and fulfill its obligations arising from international treaties entered by the
Union of Soviet Socialist Republics, being a party to these treaties as the USSR’s
successor state.
The Agreement stipulates that the Contracting Parties shall conduct national
research programmes on polar bears, particularly research relating to the
18
conservation and management of the species. They shall, where appropriate,
coordinate such research with research carried out by other Parties, consult
with other Parties on the management of migrating polar bear populations, and
exchange information on research and management programmes, research results
and data on bears taken.
Each Arctic state shall take appropriate action to protect the ecosystems of
which polar bears are a part, with special attention to habitat components such
as denning and feeding sites and migration patterns, and shall manage polar bear
populations in accordance with sound conservation practices based on the best
available scientific data.
On June 26-28, 2007, a Polar Bear Range States Meeting was held
inShepherdstown (USA); on March 17-19, 2009, a Meeting of the Parties to the
1973 Agreement was arranged in Tromsø, Norway. At the two meetings, the Parties
exchanged information on the conservation and monitoring of polar bearpopulation
in the Arctic states, and on the progress toward their sustainable management;
they also discussed extended cooperation mechanisms. The Parties agreed that
the conservation of polar bears requires adaptive management in response to
climate change, and, given likely climatic and ecological changes affecting bear
habitats, conservation and management strategies should include monitoring of
such changes – in particular loss of sea ice and denning habitats – and associated
responses in polar bear populations and ecosystems that they depend upon.
The Parties reinforced the particular importance of protecting ecosystems of
which polar bears are a part, and welcomed efforts already undertaken on their
habitat protection including creation of protected areas and land and seascape
planning. The Parties also discussed other areas of activity that are significant in
terms of polar bear conservation and particular steps taken in each area. They
also recognized the need for the development of national polar bear conservation
programs, including research programs, and for the coordination of efforts in
implementing these programs and making management decisions.

7.1.1.2. Agreement between the Government

of the United States of America and the Government
of the Russian Federation on the Conservation
and Management of the Alaska-Chukotka Polar Bear
Population (October 16, 2000)
On October 16, 2000, the Agreement on the Conservation and Management
of the Alaska-Chukotka Polar Bear Population was signed by the Government of
the United States of America and the Government of the Russian Federation in
Washington, USA. The Agreement was entered into force on September 23, 2007.
The Agreement views polar bears not only as an endangered species to be
conserved, but also as a potential subsistence harvest species for the native people
of Alaska and Chukotka.

19
 According to the Agreement, the Parties shall cooperate with the goal of
ensuring the conservation of the Chukotka-Alaska polar bear population, the
conservation of its habitat, and the regulation of its use for subsistence purposes by
native people. In doing so, the Parties should pay particular attention to denning
areas and areas of high polar bear concentration during feeding and migration.
The Parties emphasize consistency of the Agreement with the principles of the
1973 Agreement on the Conservation of Polar Bears.
The Agreement authorizes the native people of Alaska and Chukotka,
inaccordance with each Party’s domestic laws, to hunt polar bears to satisfy their
traditional subsistence needs, and to manufacture and sell handicrafts andclothing.
The Agreement allows the taking of polar bears by the native people of Alaska and
Chukotka within the established limits.
At the same time the Agreement bans certain hunting practices. In particular,
the following is prohibited by the document:
• the taking of females with cubs, cubs less than one year of age, and bears in
dens (including bears preparing to enter dens or who have just left dens), the use
of aircraft, large motorized vessels and large motorized vehicles for the purpose of
taking polar bears, as well as the use of poisons, traps or snares for the purpose of
taking polar bears;
• the taking of polar bears for commercial purposes.
However, the Agreement does not limit the ability of native people, consistent
with the domestic law of the Contracting Parties, to create, sell, and use traditional
articles associated with native harvest of polar bears. In order to prevent illegal trade
in polar bears, including their parts and derivatives, the Parties shall undertake
necessary measures in accordance with domestic law.
To coordinate measures for the conservation and study of the Chukotka-Alaska
population of polar bears, the Agreement provides for the establishment of the
U.S.-Russia Polar Bear Commission composed of representatives of the Parties,
including those representing the native people of Chukotka and Alaska. The main
tasks of the Commission include, among others:
• determining, on the basis of reliable scientific data (including traditional
knowledge of the native people), the polar bear population’s annual sustainable
harvest level and the annual taking limits to not exceed the sustainable harvest
level;
• adopting measures to restrict the taking of polar bears for subsistence purposes
by the native people within the framework of the established annual taking limits,
including seasons and restrictions on sex and age;
• working to identify polar bear habitats and developing recommendations for
habitat conservation measures.
Building on the Agreement, representatives of the native people of Alaska
and Chukotka conducted a series of consultations in order to ensure more active
involvement of the indigenous peoples in the management of the polar bear population.
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7.1.2. National legislation
7.1.2.1. Red Books
All the three population of polar bears occurring in Russia have been included in
the Red Book of the Russian Federation with each population assigned a different
conservation status:
• Kara-Barents population – category 4 (indeterminate status),
• Laptev population – category 3 (rare),
• Chukotka-Alaska population – category 5 (recovering).
At the same time, according to a resolution of the Polar Bear Specialist Group
of the IUCN Species Survival Commission (Copenhagen, 2009), the Chukotka-
Alaska polar bear population is currently in an unfavorable condition, which makes
it reasonable to revise its conservational status.
The taking of animals belonging to the species included in the Red Book of
the Russian Federation (including polar bears) is regulated by the Russian
Government’s Decree dated January 6, 1997, №13 “On Approval of the Rules for
the Taking of Animals Belonging to the Species Included in the Red Book of the
Russian Federation, except for Aquatic Biological Resources”.
According to those Rules, the taking of polar bears is permitted in exceptional
cases for such purposes as conservation of the animals, monitoring of the state
of their populations, regulating population sizes, protecting human health,
eliminating a threat to human lives, preventing mass diseases among agricultural
and other domestic animals, and meeting traditional needs of indigenous people.
The Administrative Procedure of the Federal Supervisory Natural Resource
Management Service (Rosprirodnadzor) for Issuing Permits for the Taking of
Animals and Plants Included in the Red Book of the Russian Federation has been
approved by the Order of the RF Ministry for Natural Resources (MNR) dated
April 30, 2009, № 123 (registered by the RF Ministry of Justice on June 22, 2009,
Reg. No. 14115).
The handling of animals belonging to the species included in the Red Book
of the Russian Federation (including polar bears) is regulated by the Russian
Government’s Decree dated February 19, 1996, № 156 “On the Procedure of
Issuing Permits (Executive Licenses) for Handling of Wild Animals Belonging to
the Species Included in the Red Book of the Russian Federation”.
The handling of polar bears is allowed only on the basis of a permit issued
by the Rosprirodnadzor in accordance with the Administrative Procedure of
the Rosprirodnadzor for Issuing Permits (Executive Licenses) for Handling of
Wild Animals Belonging to the Species Included in the Red Book of the Russian
Federation, approved by the Order of the MNR dated January 15, 2008, №4
(registered by the RF Ministry of Justice on February 13, 2008, Reg. No. 11154).

21
 Official guidelines for calculating the size of damages caused to animals included
in the Red Book of the Russian Federation and other animals not categorized as
huntable or fishable, and to their habitats have been approved by the Order of the
MNR dated April 28, № 107 (registered by the RF Ministry of Justice on May 29,
2008, Reg. No. 11775).
Currently some powers of the federal authorities of the Russian Federation in the
field of wildlife conservation or management have been delegated to government
authorities of the Russian regions.
The polar bear is listed in the Red Books of a number of Russian regions,
including Sakha (Yakutia) Republic, Arkhangelsk Region, Nenets Autonomous
Okrug, Yamalo-Nenets Autonomous Okrug, Taymyr (Dolgano-Nenets Autonomous
Orkug), and Chukotka Autonomous Okrug.

7.1.2.2. Laws and regulations of the Russian Federation

In Russia, legal and regulatory requirements with regard to conservation and
management of wildlife and their habitats, including requirements concerning
the polar bear and other rare and endangered species, are defined by a number
of environmental and natural resource management laws, decrees of the Russian
Government, sectoral regulations, and by other types of law (i.e. civil, criminal,
and administrative legislation).
The main legal act in the field is the Federal Law “On Wildlife”, whichregulates
relationships in the area of conservation and management of the wildlife as a
whole, and also in the area of conservation and restoration of their habitats for
the purposes of ensuring biodiversity and sustainable management of components
thereof, creating conditions for sustainable existence of wildlife, conservation
of the gene pool of wild animals, and other forms of wildlifeconservation as an
integral component of the natural environment. The Law established the right
of state ownership of the wildlife within the RussianFederation. The Law also
defines practical measures for the conservation ofwildlife habitats, including the
establishment of specially protected natural areas (SPNAs) and designation of
protective land and sea areas essential for certain stages of animal lifecycle (breeding,
rearing the young, feeding, rest, migration etc.), where certain types of economic
activities are prohibited or restricted in terms of their timing and methods.
The Law “On Wildlife” defines the powers of the state authorities of the Russian
Federation in the field of wildlife conservation and management, the powers
of federal authorities delegated to the state authorities of the Russian regions,
the powers of the regional state authorities’ own, and the powers of local self-
government bodies in the field. The Law establishes the right of citizens and legal
persons to public (non-governmental) oversight in the field, actions aimed at the
conservation of wildlife and their habitats, and contribution to the implementation
of the respective state programs. The Law designates entities responsible for
state administration in the field of wildlife conservation and management, and
conservation and restoration of their habitats, and defines the main principles
of state administration in the field of wildlife conservation and sustainable
management.
22
 In order to ensure wildlife conservation and management, as well as conservation
and protection of their habitats, the Law establishes the need for such instruments
as state inventory of wildlife and its uses, maintenance of a state wildlife registry,
state wildlife monitoring, and implementation of state programs aimed at the
conservation of wildlife and their habitats.
The Law also establishes that a state environmental expert review conducted
prior to making an economic decision potentially affecting wildlife and their
habitats is a compulsory wildlife protection measure.
According to the Law, rare and endangered animal species shall be listed in
the Red Book of the Russian Federation and Red Books of the Russian regions.
Actions that may lead to the death of animals of such species, a decrease in the
population sizes, or damage to their habitats are prohibited; legal persons and
citizens performing economic activities in the land or sea areas where such animals
live bear responsibility for conservation and reproduction thereof. The Law also
established a permit-based approach toward the use and handling of such animals,
keeping them in captivity and releasing them to the natural environment.
Numerous pieces of secondary legislation and sectoral regulations collectively
form a rather well-developed legal framework for activities of state authorities and
law enforcement agencies in the field of conservation of rare and endangered species
and protection of their habitats, while at the same time establishing a regulatory
mechanism with responsibilities of federal and regional authorities which are well
defined and delineated.
23
 However, the effectiveness of this generally well-developed regulatory system
is considerably reduced due to the lack or insufficient effectiveness of respective
enforcement practices, and a number of local legal, regulatory, and methodological
gaps in various areas of the system.
For example, the Code of Administrative Offences of the Russian Federation
establishes administrative liability for the destruction of rare and endangered
animal and plant species, included in the Red Book of the Russian Federation or
protected by international treaties; for actions (inaction) that may lead to the death
of such animals, a decrease in the populations sizes, or damage to their habitats,
or to the death of such plants; or for take, collection, keeping, acquisition, sale, or
shipment of the abovementioned animals or plants, as well as parts and derivatives
thereof without an appropriate permit, or in a manner violating conditions specified
by the permit, or in a manner violating other established procedures.
At the same time there are no legal provisions that would establish the liability
of persons for providing online resources for advertising bear skins for sale, and
the liability for acquisition of products of illegal hunting.
According to article 20 of the Federal Law “On Wildlife”, a state environmental
expert review shall be conducted prior to making an economic decision potentially
affecting wildlife and their habitats as a compulsory wildlife protection measure,
while article 24 prohibits actions that may lead to the death of animals included in
the Red Books, a decrease in the populations sizes, or damage to their habitats.
Given the abovementioned requirements of the Federal Law “On Wildlife”,
it should be established that design documentation of any capital construction
project to be implemented in a polar bear habitat area shall be subject to a state
environmental expert review in order to verify the compliance of its composition
and content with the relevant environmental requirements.
However, the existing legislation on the environmental expert review does not
require a compulsory state environmental expert review of proposed activities
that may have an impact on the environment, unless the proposed development
is located in a specially protected natural area, on the continental shelf, within the
exclusive economic zone, internal sea waters, the territorial sea or the contiguous
zone of the Russian Federation, or is implemented as a targeted program. Therefore
there are no legal grounds for prohibiting such a development, even if it is likely to
have an adverse impact on polar bear habitats.
According to article 5 of the Federal Law “On Wildlife”, the responsibilities of
the state authorities of the Russian Federation in the field of wildlife conservation
and management include, among others:
• implementing a uniform science and technology policy, as well as development
and approval of model legal documents and methodological guidelines in the field
of wildlife conservation, reproduction, and management;
• establishment of a unified system for the state inventory of wildlife populations and
their uses for the Russian Federation, as well as uniform practices of state wildlife
monitoring and maintenance of the state wildlife registry;
24
 • establishment of procedures for state statistical reporting in the field of wildlife
conservation, reproduction, and management.
It is also worth mentioning that specific regulations and methodological
guidelines in the field of inventory and monitoring of polar bear populations have
not yet been developed.

7.2. Territorial Conservation

The key polar bear habitats in the Russian Arctic, including maternity denning
and hunting sites, are protected in the following specially protected natural areas
CSPNA:
state strict nature reserves (zapovedniks):
• “Wrangel Island” (total area 2,225,650 ha, including 1,430,000 ha of sea area;
Chukotka Autonomous Okrug),
• “Great Arctic” (total area 4,169,222 ha, including 980,934 ha of sea area;
Krasnoyarsk Region),
• “Ust-Lensky” (total area 1,433,000 ha; Sakha (Yakutia) Republic,
• “Gydansky” (total area 878,174 ha; Yamalo-Nenets Autonomous Okrug);
national park:
• “Russian Arctic” (total area 1,426,000 ha, including 793,910 ha of sea area;
Archangelsk Region),
state federal nature reserves (zakazniks):
• “Franz Josef Land” (total area 4,200,000 ha, including 2,600,000 ha of sea
area; Archangelsk Region),
• “Severozemelsky” (total area 421,701 ha; Krasnoyarsk Region);
state regional nature reserves (zakazniks):
• “Vaygach” (total area 242,778 ha; Nenets Autonomous Okrug),
• “Chaunskaya Guba” (total area 210,000 ha; Chukotka Autonomous Okrug),
• “Yamalsky” (total area 1,402,000 ha; Yamalo-Nenets Autonomous Okrug);
nature park:
• “Beringia” (total area 3,053,300 ha; Chukotka Autonomous Okrug);
regional natural monument:
“Cape Vankarem” (total area 40 ha; Chukotka Autonomous Okrug);
resource reserves of Sakha (Yakutia) Republic:
• “Buustaakh” (total area 1,464,711 ha),
• “Kurdigino Krestovaya” (total area 1,067,100 ha),
• “Lena Delta” (total area 5,932,000 ha),
25
 • “Bear Islands” (total area 6,000 ha),
• “Terpey-Tumus” (total area 1,112,000 ha),
• “Chaygurino” (total area 2,375,600 ha).
At the same time, no integrated system for the protection of habitats of all polar
bear populations based on the environmental significance of habitats has been
built yet. Projected long-terms effects of climatic changes on the status of sea ice
have not been taken into account in planning specially protected natural areas.

7.3. Breeding in captivity

The earliest mentions of polar bears kept in captivity in Russia date back to
1664; the first cases of successful breeding in captivity were recorded in the 1940s
(the Moscow Zoo). A well-selected group of animals (several males and females)
may breed for about a decade. For example, in the Moscow Zoo a female gave birth
to a total of 11 cubs between 1970 and 1981; another female produced 8 cubs between
1974 and 1982; two females produced a total of 9 cubs between 1998 and 2004.
Polar bears breed on a regular basis in the zoos of such Russian cities as Kazan,
Moscow, Saint Petersburg, Perm, Rostov-on-Don, and Yekaterinburg.

8. PRIORITY POLAR BEAR CONSERVATION

MEASURES
The conservation of polar bear populations can only be achieved through an
integrated system of measures aimed at the conservation of both the predator itself
and its habitats, including animal species within its food chain.
The main objectives in the field of the conservation of polar bear populations include
eliminating causes leading to a decline in the population sizes and minimizing
adverse impacts of factors leading to the loss or disturbance of suitable habitats.
The priority polar bear conservation measures should be aimed at meeteing these
objectives.

8.1. Development of International Cooperation

In the current conditions, the need for expanding international cooperation
on polar bear conservation and research arises from a number of factors, the
most important of which are the the impacts of climate change in the Arctic
and transboundary impacts of human activities on the species and its habitats.
Therefore it is appropriate to expand cooperation within the framework of
activities conducted by the Arctic states in accordance with the 1973 Agreement on
Conservation of Polar Bears.
For the purpose of the practical implementation of the Agreement between the
Government of the United States of America and the Government of the Russian
Federation on the Conservation and Management of the Alaska-Chukotka Polar
26
Bear Population (October 16, 2000), it is advisable to consider the possibility of
preparing a number of legal documents and methodological guidelines in the field
of conservation, reproduction, management, inventory, and monitoring of this
polar bear population, in particular, with a view to ensure appropriate control over
the products of possible indigenous polar bear harvesting so as to prevent adverse
impact of this activity on other polar bear populations in the Russian Arctic.
Of exceptional significance and relevance is the cooperation with international
environmental NGOs, charity foundations and other non-governmental
organizations. This cooperation not only provides certain financial support for
conservation efforts, but also facilitates exchange of ideas, access to international
best practice, and joint activities of Russian and foreign specialists aimed at polar
bear conservation and research across the whole range of the species.

8.2. Improvement of the Legal Framework

In order to improve the effectiveness of the Russian environmental legislation and
enforcement practices in the field of polar bear conservation, it is recommended to:
• introduce norms providing a legal foundation for a labeling system for legally
taken polar bear skins;
• introduce legal norms establishing the liability of persons providing online
resources for advertising bear skins for sale, and the liability for acquisition of
products of illegal hunting;
• introduce changes and amendments to the Federal Law dated November 23,
1995, № 174-FZ “On Environmental Expert Review” requiring a state environmental
expert review of design documentation of any capital construction projects to be
implemented in a polar bear habitat area;
• provide for further improvement of federal and regional legislation and
preparation of sectoral regulations in the field of polar bear conservation,
reproduction, management, inventory, and monitoring.

8.3. Improvement of the SPNA Network

Since the existing system of specially protected natural areas does not
provide for an effective protection of the most significant polar bear habitats, it is
recommended to continue efforts on the further development of the SPNA network.
For this purpose, it is advisable to incorporate proposals for the creation
of SPNAs of various types and levels, providing for the protection of the most
important polar bear habitats, in the process of preparing the draft federal spatial
plan with regard to federal SPNAs (a draft scheme of development and siting of
federal SPNAs) and the processes of preparing draft regional spatial plans with
regard to regional SPNAs (draft schemes of development and siting of regional
SPNAs).
Particular emphasis should be placed on the creation of a network of marine
SPNAs in the areas of increased biological productivity (hydrological fronts,

27
 intense upwelling zones, flaw zones, the pack ice edge etc.). These areas are
cha-racterized by a high density of marine mammals, including the polar bear.
Many such areas dynamically change in space and time; pelagic communities have a
pronounced seasonal development cycle. Therefore it is advisable to establish in
such locations marine SPNAs or protective zones with a permanent or temporary
ban or restrictions on the economic activities that may disrupt the ecosystem
balance or cause damage to marine wildlife, including the polar bear.

8.4. Improvement of the Effectiveness of Polar Bear

Conservation outside SPNAs
Polar bears are characterized by a dispersed distribution within their range and
typically do not form large long-term concentrations. An exception is areas with
a large concentration of food sources. It is advisable to strengthen conservation
efforts in such areas and maternity denning areas located outside SPNAs.
The effectiveness of polar bear conservation outside SPNAs, including the
effectiveness of prevention and suppression of poaching, to a significant extent
depends on the support from the state and executive authorities of the Russian
regions, and on active efforts of the public.
Measures on the improvement of polar bear conservation outside SPNAs can
be effective if they are planned and implemented in a systematic manner, ensure
legal compliance at the local level, and are based on coordinated joint actions
of the RF Ministry for Natural Resources and the Environment, the Federal
Supervisory Natural Resource Management Service and its regional braches, the
Federal Security Service, the Federal Border Guard Service, the transport police,
competent state authorities of the Russian regions, other interested authorities
and local communities.
It is advisable to include the following components in the abovementioned system
of measures:
• development and implementation of an integrated system for the protection of
polar bear habitats based on their ecological significance to polar bear populations,
vulnerability, and traditional uses by indigenous communities;
• restrictions on economic activities in the key polar bear habitat areas;
• education of the local population on the need for polar bear conservation and
liability for illegal harvesting of polar bears;
• measures on the prevention of human-bear conflicts (in particular, by deterring
bears) and associated forced kills, including the development of guidelines on
human-bear conflict prevention;
• measures on the development and implementation of a system for labeling of
legally taken bear skins;
• measures on gathering intelligence on illegal trade in polar bear skins and other
parts and derivatives, in particular, with the involvement of the local population in
information gathering;
28
 • creation of the State Special Polar Bear Inspectorate similar to the existing
State Special Tiger Inspectorate;
• creation and support of the functioning of “bear patrols” – non-governmental
inspectorates aimed at the conservation and management of polar bear populations
and the protection and restoration of their habitats with the involvement of local
residents in the key polar bear habitat areas;
• identification of cases of transporting illegally produced parts and derivativesof
polar bears, monitoring of the respective sales markets, including the sales of polar
bear skins via the Internet;
• suppressing channels of illegal transportation of polar bear skins and other
parts and derivatives, as well as illegal trade in bear skins.
In preparing regional socio-economic development programs, priority
should be given to programs and projects causing minimum possible impacts
on the environment and polar bears. An example of such a program is an eco-
tourism development program, whose success directly depends on the degree of
conservation of Arctic ecosystems and availability of such large animals as polar
bears for observations. It is also necessary to develop other mechanisms for
increasing the interest of local communities in polar bear conservation.

29
 8.5. Scientific Research
Modern scientific data and achievements provide a foundation for the
conservation of biodiversity, including rare and endangered species. At the same
time, many biological features of the polar bears of the Russian Arctic have not
been studied to a sufficient extent yet. In particular:
• there is not enough reliable scientific data on the key parameters of the
populations, including their size and sex and age structure, distribution, movements
and lifecycle of polar bears and their prey species, as well as bear relationships
with humans and other species;
• there is not enough data on the impact on polar bears of environmental
pollution and changes in the state of preferred habitats, mainly changes in the area
and condition of sea ice associated with climate warming.
It is worth mentioning that modern scientific research on polar bears requires
costly activities involving aircraft, satellite tracking and remote sensing methods
etc. Therefore an effective research program should be based on the system of
international cooperation, which will facilitate the exchange of scientific ideas and
international best practices, as well as joint research projects with the involvement
of Russian and foreign specialists, also providing for certain financial support.
The development and staged implementation of the scientific research program
should cover the following areas:
• study of the current range of the species and population size, and mapping
bear distribution with the resulting materials to be used as a primary database;
• more accurate identification of the population structure of the polar bear
using molecular genetic and other state-of-the-art methods;
• study of the sex and age distribution and demographic parameters of bear
population, and of spatial and temporal distribution of the animals depending on
their sex, age and environmental factors;
• study of polar bear relationships with humans and other animal species;
• study of the impact of natural and anthropogenic factors on the population
sizes and changes in the polar bear habitats with particular attention to the impact
of environmental pollutants, pathogenic microorganisms and climate change on
the polar bear populations;
• study of the areas of increased biological productivity and high density of
marine mammals, including polar bears (hydrological fronts, intense upwelling
zones, flaw zones, the pack ice edge etc.), identification of the key polar bear
habitats, their boundaries, and the processes of their redistribution.
Particular attention should be paid to applied research on the development
and implementation of measures to minimize human-bear conflicts. Also of
importance is regular publishing of up-to-date summaries of the state of polar bear
populations, conducted conservation activities and their effectiveness.

30
8.6. Monitoring of Polar Bear Populations
Monitoring of the state of polar bear populations implies a system for long-
term tracking of population sizes, distributions and other population parameters,
and of the state of habitats of all polar bear populations for the purpose of timely
identification, analysis, and forecast of possible changes against the backdrop of
natural processes and under the influence of natural factors.
Monitoring of polar bear populations is particularly relevant at the present
time, when a substantial body of information on the environmental change caused
by pollution and climate change has been accumulated.
According to the existing Russian legislation, state inventory and monitoring of
wildlife populations within a region of the Russian Federation, except for animals
within federal specially protected natural areas, are performed by state authorities
of the respective region in the field of wildlife conservation and management.
However, it should be noted that this kind of work requires considerable financial
resources.
Monitoring of the state of polar bear populations includes the following
parameters:
• population size, its changes and trends between years;
• sex, age, spatial, and social structure of the population and its trend;
• reproduction rate and its trend;
• spatial distribution, population density;
• seasonal and daily movement of polar bears;
• physiological condition of the animals, including physical and reproductive
indictors;
• concentrations of pollutants accumulated in the organs and tissues of polar
bears, and their impact on the organism including, in particular, immune and
endocrine systems (of particular importance is monitoring of organochlorines,
which are characterized by high degrees of lipophilicity, bioaccumulation, and
biomagnification).
The following major methods are used for monitoring of the state of polar bear
populations:

• long-term tagging of animals with subsequent capture;

• periodic aerial counts of polar bears;
• using population condition indices.
Long-term tagging of animals with subsequent capture is the most effective but
at the same time the most costly method of population monitoring. The analysis
of information obtained by means of this method allows to estimate not only the
population size, but also its sex and age structure, and then, based on the results,
estimate the population recovery rate.
31
 Aerial counting of animals can be effectively used only in the areas with high
density of polar bears. In the low-density areas, where animals are sparse and
dif-ficult to notice, the cost of flight can be very high, while statistical errors in
calculating the population size can also be very high. In addition, aerial counts do
not allow researchers to estimate a number of important population parameters,
which can provide valuable insights into changes in the state of the population.
Due to the variability of population condition indices, it is recommended to use
them for monitoring of the population status in case when the resources available
are insufficient for conducting aerial counts or long-term tagging with subsequent
capture. In addition to the number of maternity dens, various morphometric and
physiological parameters, as well as changes in the range, seasonal distribution
and preferred habitats, and other parameters can be used as such indices.
Ideally, monitoring of polar bear populations should be accompanied by
monitoring of the key prey species.
Monitoring of polar bear habitats implies not only observing existing parameters
of environmental factors, but also forecasting possible changes at the ecosystem
level.
Observations in the following areas are essential for forecasting those changes:
• climatic changes affecting polar bear habitats;
• cases of contamination of marine ecosystems with persistent organic
pollutants, hydrocarbons and heavy metals;
• decreases in and/or transformation of habitats as a result of economic
activities.
Valuable information on the state of polar bear populations can be obtained
from traditional knowledge of indigenous peoples, or by analyzing available data
on taken bears.

8.7. Prevention and Resolution of Human-Bear Conflicts

The causes and circumstances of polar bear attacks on humans can be grouped
into several categories:
• Bears visiting settlements, polar stations, mining sites, dumps, marine
mammal and fish dressing sites etc. It is there that a situation that is dangerous
to humans occurs most often – bears driven to extremity by starvation or diseases
become insensitive to the noise and means of deterring.
• Humans deliberately approaching polar bears or their lairs. Recently, the
Far North has been visited by a growing number of people virtually unfamiliar
with the habits of polar bears and the natural environment in which they live. This
contributes to the increase in the number of human-bear conflicts.
• Accidental human-bear encounters outside settlements. The number of such
encounters has been increasing due to widespread use of motorized vehicles.

32
 Each particular case requires a special approach toward preventing a human-
bear conflict.
It is necessary to take all possible measures to prevent bear visits to human
settlements and bear attacks on humans and to strengthen the oversight of the
use of rifled and smooth bore firearms, aircraft and land vehicles in the mainland
tundra and on Arctic islands, and of the validity of grounds for killing polar bears.
It is also necessary to prepare safety rules for avoiding conflicts in case of a human-
bear encounter, to make sure that the local population in the polar bear habitat area
is informed of the rules of avoiding conflicts, and to develop guidelines regarding
the rules of storing marine mammal carcasses and dressing products at hunting
bases and dressing sites.

8.8. Awareness Raising and Education

A critical factor of polar bear conservation is the interest of the local population
in the successful achievement of this objective, their deliberate adherence to the
respective recommendations and restrictions, and the desire to make a personal
contribution to environmental protection activities.
The criteria for the effectiveness of awareness raising activities include a positive
attitude of the local population toward polar bear conservation activities and their
readiness to provide support to such activities, as demonstrated by a decreased
number of environmental offences in the Russian Arctic, an increased number of
participants of voluntary environmental actions, and changes to economic practices
made to comply with the restrictions necessary for polar bear conservation.
In order to ensure the effectiveness of polar bear conservation efforts, it is
necessary to fulfill the following objectives:
• promotion of the public perception of the polar bear as a unique species of
exceptional biological, ecological, and aesthetic value;
• promotion of an attitude of care toward the polar bear, which is a species of
particular importance for the preservation of the spiritual culture and habits of
indigenous peoples;
• the mastering by the local population of scientifically grounded nature
management methods, which guarantee the absence of any damage to polar bears;
• adoption, by rural and regional community gatherings, of internal rules and
restrictions regarding the taking and use of polar bears;
• preservation of the spiritual culture and habits of indigenous peoples,
promotion of traditional knowledge, rituals and habits aimed at polar bear
conservation and fostering an attitude of respect toward the animal.

33
 9. STRATEGY IMPLEMENTATION PARTNERS
The effective implementation of this Strategy of Polar Bear Conservation
requires continuous cooperation between the state authorities, research and
otherbodies related to wildlife conservation and management, non-governmental
organizations and associations, as well as the active engagement of the public.
It is the Russian state that bears the main responsibility for effective conservation
of polar bears at the level of the Russian Federation as a whole.
Indigenous peoples, as bearers of traditional knowledge, are to play a special
role in such cooperation. The engagement of the local population and indigenous
communities should be based on the existing or newly created non-governmental
organizations representing their interests.
In addition, this Strategy can be implemented in cooperation with international
environmental organizations.
Such multilateral cooperation system facilitates the effective implementation
of environmental initiatives in the field of polar bear conservation and study.

34
36
 Internal rules and
8.4. Adoption, by rural and regional restrictions regarding the
community gatherings, of rules taking and use of polar bears
and restrictions regarding the taking of the Chukotka-Alaska
and use of polar bears of the population adopted by rural
Chukotka-Alaska population and regional community
gatherings
Local authorities in
Chukotka Autonomous
Okrug, family communities
2010-2020 in Chukotka
Autonomous Okrug,
NGOs

Competent executive
authorities of Russian
8.5. Preservation of the spiritual regions in the field of
culture and habits of indigenous conservation, oversight,
Mass festivals, “bear days”, and regulation of use of
peoples, promotion of traditional
actions, radio and TV animals and their
knowledge, rituals and habits aimed 2010-2020
programs, printed publica- habitats, local authorities,
at polar bear conservation
tions, online resource family communities,
and fostering an attitude
of respect toward the animal Ministry of Regional
Development
of Russia NGOs

* – Abbreviations used:
MNR – Ministry of Natural Resources and Environment of the Russian Federation
NGO – Non-Governmental Organizations
RAS – Russian Academy of Sciences
Roshydromet – Federal Service for Hydrometeorology and Environmental Monitoring of Russia
Rosprirodnadzor – Federal Supervisory Natural Resource Management Service of Russia
SPNA – Specially protected natural area
VNIIprirody – All-Russian Scientific Research Institute for Nature Conservation
GCAO – Government of Chukotka Autonomous Orkug

19
 8. Awareness raising and education

Competent executive
authorities of Russian
8.1. Improvement of information Report submitted
regions in the field
activities aimed at the dissemination to the MNR, radio
of conservation,
of scientifically grounded nature and TV programs,
2010-2020 oversight, and
management methods, which printed publications,
regulation of use
guarantee the absence of any damage online resource
of animals and their
to polar bears
habitats, local authorities,
NGOs

Competent executive au-

8.2. Promotion of knowledge on the
thorities of Russian regions
uniqueness of the polar bear and its
in the field of conservation,
biological, ecological, and aesthetic value,
Radio and TV programs, oversight, and regulation
promotion of an attitude of care toward the
printed publications, 2010-2020 of use of animals and their
polar bear, which is a species of particular
online resource habitats, local authorities,
importance for the preservation
Ministry of Regional
of the spiritual culture and habits
Development of Russia,
of indigenous minority peoples
NGOs

Competent executive
8.3. Engagement of the local population authorities of Russian
Mass environmental
into supporting measures and actions regions in the field
and PR actions,
aimed at polar bear conservation, of conservation, oversight,
radio and TV programs, 2010-2020
including research programs, and regulation of use
printed publications,
polar bear monitoring, of animals and their
online resource habitats, local authorities,
and activities of “bear patrols”
NGOs

18
 Results and reports
of control inspections
of supervisory bodies on
7.2. Strengthening the oversight of the
holding persons liable for
use of rifled and smooth bore firearms,
illegal use of rifled and According to the
aircraft and land vehicles
smooth bore firearms, schedule of control
in the mainland tundra and on Arctic
aircraft and land vehicles inspections
islands, and of the validity of grounds
in the mainland tundra
for killing polar bears
and on Arctic islands, and
for illegal kills
of polar bears
7.3. Preparation of leaflets, Leaflets, methodological
methodological guidelines guidelines and
and instructions on the rules of human instructions on the rules
behavior in case of a bear encounter, of human behavior in case
aimed at minimizing human-bear of a bear encounter, aimed
conflicts at minimizing human-bear
conflicts
7.4. Development of recommendations Draft legal acts,
on the rules of storing marine methodological guidelines
mammal carcasses and dressing on the rules of storing
products at hunting bases and dressing marine mammal carcasses
sites. Development of additional and dressing products at
standards for storage of marine hunting bases and
mammal carcasses and dressing dressing sites
products at hunting bases
and dressing sites.
17
Rosprirodnadzor,
Federal Border Guard
Service of Russia,
Ministry of Internal
Affairs of Russia,
competent executive
authorities of Russian
regions in the field of
conservation, oversight,
and regulation of use of
animals and their habitats
Competent executive
authorities of Russian
regions in the field of
conservation,
2012
oversight, and
regulation of use of
animals and their
habitats, NGOs
State Committee for
Fisheries of Russia,
competent executive
authorities of Russian
2012 regions in the field of
conservation, oversight,
and regulation of use of
animals and their
habitats, local authorities
 6.4. Organizing and conducting works As defined by plans of
on the monitoring of polar bear habitats, monitoring works of
covering the following parameters: Roshydromet, MNR,
Rosprirodnadzor, MNR, Rosprirodnadzor,
– climatic changes affecting polar bear VNIIprirody, VNIIprirody,
habitats; administrations of state state strict nature reserves
strict nature and national parks,
– cases of contamination of marine Reporting materials and
reserves and national competent executive
ecosystems with persistent organic proposals based on the
parks, competent authorities of Russian
pollutants, hydrocarbons and heavy results of conducted
executive authorities regions in the field of
metals; monitoring works, of Russian regions in the conservation, oversight,
submitted to the MNR field of conservation,
– decreases in and/or transformation of and regulation of use of
oversight, and regulation animals and their habitats,
habitats as a result of economic activities
of use of animals and their RAS etc.
or climatic changes. habitats, research
institutes of RAS etc.

7. Prevention and resolution of human-bear conflicts

7.1. Development and implementation

of means of deterring polar bears at the
sites of human settlement and
economic activities, development of
a system of measures to prevent bears
from visiting human settlements
(as a result of dumps and other
consequences of human activities
attracting animals) and attacking
humans
Draft legal acts,
methodological guidelines
on preventing bear visits
to human settlements and
attacks on humans;
guidelines on deterring
polar bears at the sites
of human settlement and
economic activities
MNR,
Rosprirodnadzor,
competent executive
authorities of Russian
regions in the field of
2012
conservation, oversight,
and regulation of use of
animals and their habi-
tats, local authorities

16
 6.2. Unification and standardization of
the following methods of monitoring
of the state of polar bear populations:
• long-term tagging of animals with
subsequent registration;
• periodic aerial counts of polar
bears;
• using population condition indices.
6.3. Organizing long-term tagging
of animals with subsequent registration
15
Reporting materials and
proposals based on the
results of conducted works,
submitted to the MNR
Reporting materials and
proposals based on the
results of conducted
tagging works, submitted
to the MNR
As defined by plans of the
respective research works
of MNR,
Rosprirodnadzor,
VNIIprirody,
administrations of state
strict nature reserves and
national parks,
competent executive
authorities of Russian
regions in the field of
conservation, oversight,
and regulation of use of
animals and their habitats,
research institutes
of RAS etc.
As defined by plans of
counting works of MNR,
Rosprirodnadzor,
VNIIprirody,
administrations of state
strict nature reserves and
national parks, competent
executive authorities of
Russian regions in the field
of conservation, oversight,
and regulation of use of
animals and their habitats,
research institutes
of RAS etc.
MNR, Rosprirodnadzor,
VNIIprirody,
state strict nature reserves
and national parks,
competent executive
authorities of Russian
regions in the field of
conservation, oversight,
and regulation of use of
animals and their
habitats, RAS etc.
MNR, VNIIprirody,
Rosprirodnadzor,
state strict nature reserves
and national parks,
competent executive
authorities of Russian
regions in the field
of conservation, oversight,
and regulation of use
of animals and their
habitats, RAS etc.
 6. Monitoring of polar bear populations

6.1. Organizing and conducting works

on the monitoring of polar bear
populations, covering the following
parameters:
– population size, its changes and
trends between years;
- sex, age, spatial, and social structure
of the population and its trend; As defined by plans of
MNR,
– reproduction rate and its trend; monitoring works of MNR,
Rosprirodnadzor,
– spatial distribution, population Rosprirodnadzor,
VNIIprirody,
density; VNIIprirody,
state strict nature
– seasonal and daily movement of polar administrations of state
reserves and national
bears; Reporting materials and strict nature reserves
parks, competent
– physiological condition of the animals, proposals based on the and national parks,
executive authorities
including physical and reproductive results of conducted works competent executive
of Russian regions
indictors; on the monitoring of polar authorities of Russian
in the field
– state of the food base of polar bear bear populations, submitted regions in the field
of conservation,
populations (the key prey species) to the MNR of conservation, oversight,
oversight, and regulation
– concentrations of pollutants accumu- and regulation of use
of use of animals
lated in the organs and tissues of polar of animals and their
bears, and their impact on the organism and their habitats,
habitats, research insti-
including, in particular, immune and RAS etc.
tutes of RAS etc.
endocrine systems (of particular
importance is monitoring of
organochlorines, which are characterized
by high degrees of lipophilicity,
bioaccumulation, and biomagnification);
– the number of legally taken bears
of Chukotka-Alaska population

14

5.2. Applied research aimed
at minimizing human-bear conflicts,
and the implementation of proposed
measures
5.3. Compile in a database (DB)
information on the biology and ecology
of the polar bear, based on the results
of research and monitoring
13
Proposals submitted to the
MNR as a part
of reporting materials
on the applied research
1. Database (DB) containing
information on the biology
and ecology of the polar
bear, based on the results
of research and monitoring;
2. Information resources
submitted to the MNR,
Rosprirodnadzor,
competent executive
authorities of Russian
regions in the field of
conservation, oversight,
and regulation of use of
animals and their habitats
As defined by research
plans of MNR,
VNIIprirody, annual
MNR, VNIIprirody,
research plans
state strict nature reserves
of administrations
and national parks,
of state strict nature
competent executive
reserves and national
authorities of Russian
parks, research plans
regions in the field
of competent executive
of conservation, oversight,
authorities of Russian
and regulation of use of
regions in the field of
animals and their habitats,
conservation, oversight,
RAS
and regulation of use of
animals and their
habitats, research plans
of institutes of RAS etc.
MNR, VNIIprirody,
Rosprirodnadzor,
state strict nature re-
serves and national parks,
competent executive
2010 – creating the DB;
authorities of Russian
2011-2020 –
regions in the field
maintaining the DB
of conservation,
oversight, and
regulation of use
of animals and
their habitats, RAS etc.
 5. Scientific research
5.1. Development and staged implementation of Proposals submitted as As defined by
a scientific research program including the following a part of materials for draft research plans
areas: research programs on the of MNR,
– study of the current range of the species and population polar bear biology and Rosprirodnadzor,
size, and mapping bear distribution with the ecology (research programs VNIIprirody,
resulting materials to be used as a primary database; of MNR, Rosprirodnadzor, annual research MNR,
– more accurate identification of the population structure VNIIprirody, plans of Rosprirodnadzor,
of the polar bear using molecular genetic and administrations of state administrations VNIIprirody,
other state-of-the-art methods; strict nature reserves and of state strict state strict nature
– study of the sex and age distribution and demographic national parks, nature reserves reserves and
parameters of bear populations, of spatial and temporal research institutes and national national parks,
distribution of the animals depending on their sex, of RAS etc.) parks, research competent
age, and environmental factors, and of exchange of plans of executive
animals between different geographic populations, competent authorities in the
using, among other methods, satellite telemetry; executive field of
– study of polar bear relationships with humans and authorities environmental
other animal species; of Russian protection
– study of the impact of natural and anthropogenic regions in the field of Russian
factors on the population sizes and changes in the polar of conservation, regions, RAS,
bear habitats with particular attention to the impact of oversight, and Russian
environmental pollutants, pathogenic microorganisms regulation of use Geographic
and climate change on the polar bear populations; of animals and Society
– study of the areas of increased biological productivity their habitats,
and high density of marine mammals, including polar research plans of
bears (hydrological fronts, intense upwelling zones, institutes
flaw zones, the pack ice edge etc.), identification of the of RAS etc.
key polar bear habitats, their boundaries, and the
processes of their redistribution.

12

Proposals submitted
4.8. Preparation of programs for the as a part of materials
development of ecological tourism, for the draft federal
2010-2020
aimed at sustainable management and regional programs
of Arctic ecosystems of the development
of ecological tourism
11
MNR,
Ministry of Sports,
Tourism and Youth
Policy of Russia,
Ministry of Regional
Development of Russia,
state legislative
(representative) and
executive authorities
of Russian regions
 4.6. Suppressing the channels of illegal Reporting materials on the
transportation of polar bear skins, results of activities on
other parts and derivatives, and suppressing the channels
of illegal trade in polar bear skins of illegal transportation
of polar bear skins, other parts
and derivatives, and of illegal
trade in polar bear skins,
submitted to the MNR
4.7. Reduction of adverse impacts Proposals, submitted as
on the environment and polar bears a part of materials for the
associated with the implementation of draft regional
regional socio-economic development socio-economic
programs development programs,
and as a part
of materials justifying
the need for amendments
to existing regional
socio-economic
development programs
10
Federal Customs
Service of Russia,
Federal Border Guard
Service of Russia,
Rosprirodnadzor,
Ministry of Interior
2010-2020, of Russia,
annually competent executive
authorities of Russian
regions in the field of
conservation, oversight,
and regulation of use
of animals and their
habitats
Ministry of Regional
Development of Russia,
MNR,
Ministry of Economic
Development of Russia,
state legislative
2010-2020, (representative)
as appropriate and executive authorities
of Russian regions
 1. Proposals submitted to the
MNR as a part of materials
justifying the creation of
a labeling system for legally GCAO, local authorities,
4.4. Develop and implement a system
taken polar bear skins; MNR,
of measures aimed at labeling of legally 2011
2. Reporting materials on the Rosprirodnadzor,
taken polar bear skins
results of activities on labeling NGOs
legally taken polar bear skins,
submitted to the MNR

4.5. Compile in a database (DB) 1. Database (DB)

intelligence information on illegal trade of intelligence information
in skins of polar bears and other parts on illegal trade in skins
and derivatives thereof, and of polar bears and other
on transportation of illegally acquired parts and derivatives Competent executive
products made from polar bears; thereof, and on authorities of Russian
involvement of the local population transportation of illegally regions in the field
in collecting necessary information acquired products made 2010 – creating the DB; of conservation, oversight,
from polar bears; 2011-2020 – and regulation of use
2. Information resource maintaining the DB of animals and their
submitted to the MNR, habitats,
Rosprirodnadzor, competent local authorities,
executive authorities WWF and other NGOs
of Russian regions in the field
of conservation, oversight,
and regulation of use
of animals and their habitats

9
 4.2. Ensure effective inspections of
the coastal areas and settlements most
frequently visited by polar bears by
environmental inspectorates jointly
with law enforcement agencies for the
purpose of preventing and eliminating
poaching
4.3. Creation and support of the
functioning of “bear patrols” –
non-governmental entities aimed
at the conservation and management
of polar bear populations and the
protection and restoration of their
habitats formed of local residents
and indigenous populations
in the key polar bear habitat areas
8
Reports on the inspection
results submitted to the
MNR
on a regular basis
1. Proposals submitted to
the MNR as a part
of materials justifying the
creation of “bear patrols”;
2. Reports on the activities
of “bear patrols” submitted
to the MNR, Rosprirodnadzor,
competent executive
authorities of Russian
regions in the field
of conservation, oversight,
and regulation of use
of animals and their habitats
Competent executive
authorities of Russian
regions in the field
of conservation,
oversight, and regulation
2010-2020 of use of animals and
their habitats, in coopera-
tion with law enforcement
agencies
Competent executive
authorities of Russian
regions in the field
of conservation, oversight,
and regulation of use
of animals and their
2010-2020, habitats, local authorities,
annually WWF and other NGOs
 3.5. Ensure the creation on the Arctic Proposals submitted
coast of regional natural monuments as a part of materials
Cape Kozhevnikov and Klyuchin Island justifying proposed
(Iultinsky District, Chukotka designation of the
Autonomous Okrug) mentioned sites
as regional natural
monuments
Competent executive
authorities of Russian
regions in the field
2020 of environmental
protection

4. Improvement of the effectiveness of polar bear conservation outside specially protected natural areas

4.1. Development of an integrated Draft legal documents on MNR,

system for the protection of polar the measures to protect Rosprirodnadzor,
bear habitats taking into account polar bear habitats interested federal
their ecological significance to polar outside specially executive authorities
bear populations, vulnerability, and protected natural areas of the Russian
traditional uses by indigenous Federation,
communities, and involving competent executive
restrictions on economic activities authorities of Russian
2011-2012
at the key polar bear habitats regions in the field
of environmental
protection

7
 3.2. Ensure the creation of a marine Proposals, agreed upon MNR,
protected area in the twelve-mile zone according to the Rosprirodnadzor,
along the southern coast of Wrangel established procedure, interested federal
Island from the mouth of the Khishchniki submitted to the Russian executive authorities
River to the Cape Hawaii instead Government as a part of the Russian
of materials justifying 2010
of the former buffer zone Federation
proposed designation
of the mentioned marine
area as a state strict nature
reserve

3.3. Ensure the creation of a 24-mile Proposals, agreed upon MNR,

marine buffer area around the state according to the Rosprirodnadzor,
strict nature reserve “Wrangel Island” established procedure, interested federal
(the marine protected area of Wrangel submitted to the Russian executive authorities
and Herald Islands) Government as a part of of the Russian
materials justifying 2010 Federation
proposed designation
of the mentioned marine
areas as buffer areas of
a state strict nature reserve

3.4. Ensure the creation on the Arctic Proposals submitted
coast of regional natural monuments as a part of materials
Cape Kozhevnikov and Klyuchin Island justifying proposed
(Iultinsky District, Chukotka designation of the
Autonomous Okrug) mentioned sites as regional
natural monuments
Competent executive
authorities of Russian
regions in the field
2010-2012 of environmental
protection

6
 3. Improvement of the network of specially protected natural areas (SPNA)
3.1. Develop a draft scheme of the
network of SPNAs of various types and
levels, providing for protection of the
most important polar bear habitats,
1. Proposals submitted as
including SPNAs in the areas with a
a part of materials for the
high density of maternity dens, and
draft federal spatial plan
adjacent marine areas of landfast ice
with regard to federal 2010 MNR
used for breeding by ringed seals –
SPNAs (a draft scheme
the main prey species for polar bear
of development and
females leaving dens with their cubs in
siting of federal SPNAs);
the spring.

2. Proposals Competent executive

submitted as part authorities of Russian
of materials for the draft regions in the field
schemes of development of environmental
2010 protection
and siting of regional
SPNAs

5
 2.2. Introduce legal provisions
establishing the liability of persons
for providing online resources
for advertising polar bear skins
for sale, and the liability
for acquisition of products
of illegal hunting of the species
Proposals for legal
regulation of the issue
of the liability
of persons for providing
online resources
for advertising polar bear
2011 MNR, Rosprirodnadzor
skins for sale, and
the liability for acquisition
of products of illegal
hunting of the species

Proposals for legal

2.3. Establish a legal basis for the framework of the labeling MNR, Rosprirodnadzor,
introduction of a labeling system for of legally taken polar bear 2011 GCAO
legally taken polar bear skins skins

2.4. Introduce amendments to the Code Proposals submitted as MNR,

of Administrative Offences of the RF
increasing fines for poaching and trade
in illegally taken polar bear skins and
establishing the differentiated fines
depending on the value of the specific
area and its protection regime
a part of materials for
the draft Federal Law
“On amendments to the
Code of Administrative
Offences of the RF”
Rosprirodnadzor,
interested federal executive
authorities of the Russian
2010 Federation,
legislative (representative)
and executive authorities
of Russian regions

3
 Proposals submitted
MNR,
as a part of materials
Rosprirodnadzor,
accompanying draft
2.5. Restore the full-fledged interested federal
Federal Law
institution of the state environmental 2010 executive authorities
“On amendments
expert review of the Russian
to the Federal Law
Federation
On Environmental
Expert Review”

2.6. Provide for further improvement Proposals submitted

of federal and regional legislation and as a part of materials According to the
MNR,
preparation of sectoral regulations in accompanying draft respective authorities’
Rosprirodnadzor,
the field of polar bear conservation legal acts plans of preparing legal
legislative
documents
(representative)
and executive authorities
Draft sectoral regulation of Russian regions
approving methodological
guidelines on organizing
and conducting inventory
and monitoring of polar 2011
bear populations in the MNR,
Russian Federation Rosprirodnadzor

4
 Information and analytical
1.3. Conduct joint scientific studies of materials, proposals, and
the polar bear across the entire range recommendations submitted
of the species with the involvement as a part of reporting
of Russian and foreign specialists materials and the report
to the MNR
Information and analytical
materials, recommendations,
and concluding documents
of workshops, in particular,
1.4. Develop cooperation with the
those conducted with the
interested states bordering Russia
involvement of representatives
(Norway etc.) in the field of conservation,
of indigenous communities
study, and monitoring of polar bear and the local population,
populations submitted as a part
of reporting materials and
the report to the MNR
2. Improvement of the legal framework
2.1. Ensure enforcement of the Russian Results and reports of
inspections by supervisory
legislation in order to hold liable the
persons accepting illegally taken skins authorities, conducted in
order to hold liable the
of rare and endangered animals
for processing persons accepting illegally
taken skins of rare and
endangered animals for
processing, submitted
to the MNR
2
According to the MNR,
established dates Ministry of Education
of joint scientific and Science of Russia,
expeditions RAS
MNR,
Ministry of Foreign
According to the
Affairs of Russia,
established dates
Ministry of Education
of joint scientific
and Science of Russia,
expeditions
RAS
Rosprirodnadzor,
competent executive
authorities of Russian
According to the regions in the field
inspection schedule of conservation, oversight,
and regulation of use of
animals and their habitats
 ACTION PLAN FOR THE PERIOD UNTIL 2020
ON THE IMPLEMENTATION OF PRIORITY POLAR BEAR CONSERVATION MEASURES,
DEFINED BY THE STRATEGY FOR POLAR BEAR CONSERVATION IN THE RUSSIAN FEDERATION

Priority measures Organizations involved

Format of deliverables Implementation dates
on polar bear conservation in the implementation

1. Development of international cooperation

GCAO,
1.1. Prepare legal acts and methodological
MNR,
guidelines aimed at the fulfillment of the 2011
Rosprirodnadzor
obligations of the Russian Federation
according to the Russia – USA Agreement
Draft legal acts,
on the Conservation and Management of
methodological guidelines
the Alaska-Chukotka Polar Bear Population GCAO,
with regard to monitoring, taking, use and MNR,
2011
handling of polar bears of the Chukotka- Rosprirodnadzor
Alaska population

MNR,
1.2. Prepare legal acts and methodological
competent executive
guidelines aimed at the fulfillment of the
authorities of Russian
obligations of the Russian Federation
Draft legal acts, regions in the field
according to the 1973 Agreement on 2012
methodological guidelines of conservation, oversight,
the Conservation of Polar Bears with
and regulation of use of
regard to monitoring of polar bears of the
animals and their habitats
Kara-Barents and Laptev populations

1
20
 The Action Plan up until 2020 on the implementation of priority actions
for the conservation of the Polar Bear, as defined in the Strategy for Polar Bear
Conservation in the Russian Federation.
The Action Plan was based on the Strategy for Polar Bear Conservation in the
Russian Federation that was approved by the Ministry of Natural Resources and
Environment, Decree No. 26-r of 5th July 2010. The Plan is a recommendatory
document and reflects the opinions of experts on how to implement the Strategy.
The Action Plan incorporate proposals received from S. Belikov, A. Boltunov,
O. Krever, V. Krever, V. Nikiforov, N. Ovsyanikov. V. Rozhnov and М. Stishov
The Action Plan was approved (Protocol No. 10) by the Mammal Section of
the Commission on Rare and Endangered Animal, Plant and Fungi Species by the
Ministry of Natural Resources and Environment of the Russian Federation at a
meeting that was held on 4th December 2009.
Translated by: V. Vinichenko
Editor: Geoff York
 Severtsov Institute All - Russian Scientific
of Ecology Research Institute
and Evolution for Nature Conservation
ACTION PLAN
FOR THE PERIOD UNTIL 2020
ON THE IMPLEMENTATION OF PRIORITY
POLAR BEAR CONSERVATION MEASURES
2010