One foggy afternoon in the early days of April, Guadalupe Vada was tending to her flock amidst the Picos de Europa mountain range in northern Spain. Typically, during this annual period, the sheep graze near the village at the foot of the mountains, before they are moved deeper into the mountainous terrain for the summer months. As evening approached, Vada decided to leave her flock of 800 sheep under the protection of eight Mastiff dogs and headed back to her dwelling.
The next morning brought clear skies, but also the ominous sight of three circling vultures above the area where she knew her sheep had stayed. Alarm bells started to ring for Vada as she went to the last known location of her flock, only to discover that approximately seven of them had fallen victim to a premeditated attack.
Mists that had rolled in overnight had caused a handful of about 20 sheep to stray from the main herd, an unfortunate situation that left them exposed. “The wolves were quick to seize this opportunity when they saw it,” she explains. The presence of wolves is nothing new in this northwest corner of Spain. They have steadily migrated eastward into Asturias and further south since the 1980s. But, recent years have seen a worrying increase in wolf populations even in parts of the country where previously they had been eradicated, with sightings reaching as far as the city of Madrid.
Part of the resurgence can be attributed to protection measures implemented by the EU. These measures have helped once endangered wolf populations to bounce back significantly. Over the last decade, the wolf population within the EU has swelled from approximately 11,216 to a worrying 20,300 – a robust increase of 81% since 2012, spreading their territories by 25%. Almost every EU country now has a wolf presence, with Spain housing over 2,100, making it home to one of the largest populations within the EU.
Wolves are essential players in the region’s ecosystem. They help keep populations of harmful wild ungulates such as boars and deer in check, preventing damage to forestry and agriculture. Ursula von der Leyen, president of the European Commission, is a keen advocate for environmental measures and has proposed plans to rewild vast tracts of Europe, facilitating the come-back of large carnivores.
However, this ecological success story presents fresh challenges for rural communities such as Cantabria. These areas, in which there is a scarcity of wild prey, now need to contend with the increasingly menacing threat to their livestock, many of which roam freely across mountainous terrains throughout most of the year.
Hanna Pettersson, a social scientist from the University of York’s Leverhulme Centre for Anthropocene Biodiversity, has criticised the lack of preparation by regional and national governments for living with wolves. She highlights the challenges presented by rewilding programmes in Europe’s highly populated areas and the need for better community engagement. Pettersson suggests the top-down approach to policies regarding the management of wolf populations is failing to address the concerns of those affected, leading to increased frustration and anger.
This sense of discontent is widely shared among Europe’s rural inhabitants and farmers. In response to the European Commission’s 2020 initiative for a “long-term vision” for rural areas, 40% of individuals residing in rural areas reported feeling neglected. Furthermore, there were widespread protests by farmers across the EU due to the increase in costs and climate-related legislation, along with the influx of low-cost imports. It’s feared this resentment may sneak its way into politics, bolstering right-wing and Eurosceptic parties in the upcoming European elections.
Coming to a consensus about how to handle the wolf issue remains elusive. Environmentalists championing rewilding policies have been unable to find middle ground with centrist right-wing politicians and lobby groups, who push for fewer hunting constraints to better manage wolf populations. According to biologist and wolf specialist Juan Carlos Blanco, the problem doesn’t just pertain to the financial impact on farmers due to livestock attacks. It has evolved into a contentious urban versus rural issue, driving a wedge between the left and right, with the wolf caught in the middle.
The wolf has officially been “strictly protected” under the EU’s Bern Convention since 1979. Based on the EU’s habitats directive, flexibility in managing wolf populations is given to member countries depending on the classification of wolf protection – “strictly protected” (under Annex IV of the directive) or simply “protected” (under Annex V).
Previously, in northern Spain, wolves were categorised under Annex V, a classification that permitted hunting and culling as long as a ‘good conservation status’ was sustained. However, there was a change in policy in 2021 when the Madrid government declared wolves to be stringently safeguarded nationwide, based on details and a recommendation from Ascel, a pro-wolf conservation association.
Ascel campaigned for wolves to be reclassified as ‘vulnerable’ and to be enlisted in the nation’s list of protected species (LESRPE). This was based on the belief in the critical scientific, ecological, and cultural importance of wolves. The government dismissed the reclassification element of the proposal, but did endorse the inclusion of the wolf as a protected species.
Next, the recommendation was submitted to a voting process with the country’s autonomous regions. Securing just a slim majority in favour, the vote proved to be contentious; regions with larger wolf populations opposed heightened protection, whereas the ones with a smaller wolf population supported it. This has further impacted rural communities, who claim they’ve been left to deal with the repercussions.
Vada, a local, recalled a time when one could report an attack to local authorities who would coordinate a hunt in response. This offered the potential for the offending wolf to be either frightened off or killed. However, recent policies mean this is no longer possible and wolf sighting are becoming increasingly frequent. Vada emphasized that wolf attacks are no longer restricted to flocks in mountainous regions; wolves are now attacking herds grazing closer to homes and the rate of incidents is increasing year by year.
Ignacio Martínez Fernández, the head of Ascel, defends an adaptable coexistence between humans and wolves. He insists that there will not be an overpopulation of wolves, stating that killing them is unnecessary.
Wolves primarily feed on wild ungulates, however, they have shown adaptable feeding habits. Annually, around 65,000 livestock are preyed upon by wolves throughout the EU, particularly in Spain, France, and Italy. Although this represents only a fractional percentage of the region’s 60 million sheep, and therefore might appear insignificantly small, pressure on rural communities remains substantial.
But, a counteraction is emerging at the EU level even as Spain reinforces the wolf’s protection. Although conservation efforts are applauded by green parties, right-wing politicians tend to utilise wolves and other wild animals as representative symbols of deeper divides within the EU.
Bas Eickhout, a main contender for the European Greens in the forthcoming elections, insists that understanding between city elites and rural communities, symbolised through the wolf, is at the core of this honest political struggle. Ursula von der Leyen, known for representing the views of farmers through the European People’s Party, supported a proposal to reduce the protection levels of wolves under the Bern Convention last December. If greenlighted, this shift could alter the habitats directive and grant EU countries further freedom to manage wolf populations.
This shift in stance is not only based on a study evaluating the status of wolves within the EU, authored by Blanco, but possibly also reflects von der Leyen’s personal experiences. Her pony, Dolly, was fatally attacked by a wolf in 2022. A memory of Dolly still resides with the President through a photograph in her office in Brussels.
Existing policies should evolve as wolf populations recover, argues Blanco, but he is not in favour of the oversimplification of moving the species from Annex IV to V, particularly when proposed just before EU elections, potentially aiming at gaining the support of the right-wing voters. He envisions that such a significant change might deter financial aid and other incentives previously provided to “strictly protected” species. Moreover, von der Leyen’s antagonism towards wolves and her suggestion that they pose a human threat has not been conducive to the matter, he says, pointing out that numerous studies have debunked this claim.
The decision on this issue awaits the Bern Convention’s standing committee meeting in December, participated in by representatives from the 46 countries of the Council of Europe. Prior to this, EU states must come to a common agreement to push forward this proposal. Deliberations are ongoing about how this process should be executed. Evidently, Spain is one of the countries that do not back it, as per diplomatic sources involved in these discussions.
According to Pettersson, this proposal to downlist wolves reflects that conservation measures have been effective. She asserts that a shift from stringent protection to fostering peaceful cohabitation at a local level is needed.
While downlisting might be used by some as a reason to reduce and roll back progress made on wolf population recovery, many hold legitimate concerns about this. Joan Alibés, a sheep farmer based in Spain’s northwest region, Galicia, advocates for more research and further support to aid farmers in safeguarding their livestock.
Alibés acknowledges that total protection is an unrealistic expectation, but insists that any precautionary measures taken will help minimise the frequency of attacks on livestock. He personally utilises mobile electric fencing to safeguard his flock of 100 sheep, regularly shifting their location every week or so. This method, combined with the use of two guard dogs, allows him to rest easy at night, knowing his animals are secure.
Understanding what works best across varying contexts necessitates extensive testing, according to Alibés. Every shepherd has their unique livestock-moving system, therefore, some might need a completely different strategy. In his view, the issue lies with conservationists providing blanket advice without considering the diverse farming landscapes and their complexities.
For instance, they suggest using Mastiff dogs in areas with wolves, but this does not work for all. A farmer living close to the Camino de Santiago hiking trail cannot keep one without causing issues with hikers. Similarly, it’s impossible for a farmer with large land of 3,000 hectares to erect electric fences across the entire area.
While guard dogs can be costly to keep and potentially daunting due to their size and protective instinct, they are often seen as abandoned and taken away, notes another farmer in Cantabria.
There are EU funding options available for livestock farmers in large carnivore zones, with the decision on how to utilise these funds left to each member state. Spain, amongst many others, prioritises funds for compensation, with €18.7 million allocated annually across the EU for the damage incurred by wolves.
Xuan Valladares, an ex-biologist now farmer in Asturias, contends that he loses some livestock to predators every year without ever reporting the incidents. He argues that the compensation eventually provided for such losses fails to account for the sentimental value attached to the animals. According to Valladares, the insistence is not on monetary compensation, but on keeping any damage to a minimum and bearable extent.
Farmers argue that the current procedure for claiming compensation for predator attacks or petitioning for a wolf to be culled by the officials is excessively bureaucratic. “You come across an animal’s corpse and you’re expected to prove it was killed by a wolf,” explains Pettersson. The process to prove this, he implies, is laborious and bureaucratic.
Valladares argues that there’s no indication that wolves would cease expanding if their food sources remain plentiful, highlighting the importance of population control to maintain feasible farming practices. He believes that farmers should be enabled to respond immediately when damage occurs, giving the predator a warning from which it can learn.
His appeal is for people to show more empathy and recognise the necessity of having the wolf population in Europe under control. Despite suffering attacks on his livestock, Alibés does not advocate for hunting or culling as the solution.
Regarding lethal culling, the majority of researchers and policymakers concede that it might be necessary across Europe. However, its effectiveness remains uncertain amongst different groups. Following a report from the EC, studies on focused wolf culling in Europe have offered inconclusive results. The example of France is cited, where lethal control was implemented but did not curb the increasing wolf population nor conclusively reduce the number of attacks.
To better understand how coexistence could effectively function, several European countries have seen the emergence of stakeholder groups, comprised of farmers, conservationists, and locals.
Established in Spain in 2016, Grupo Campo Grande is focused on resolving disputes through means of mediation. Yolanda Sampedro, a member of the group’s mediation panel explains, “Instead of discussing farmers as a broad group, we personalise it. For instance, we focus on ‘this farmer or that farmer.’ Statistics often come across as impersonal. People may downplay the issue, saying, ‘attacks on animals aren’t that frequent.’ However, to a shepherd who has just lost 20 animals, this issue becomes significant as a considerable portion of their livestock is wiped out.”
For many shepherd communities that are just about managing to survive, challenges like wolves add to their hardships. Sampedro states, “An issue such as wolves could be the tipping point that drives them to abandon their farming occupation.”
On the topic of harmoniously co-existing with wolves within varying circumstances, Alibés has concerns that this responsibility will continuously be left to farmers to figure out. Alibés stresses, “We can’t expect directives from Brussels on how to manage this, it’s up to us to sort it. But to succeed in this conflict, we require additional support.” – All rights reserved to The Financial Times Limited 2024.