Bern Convention 2024: Critical Sea Turtle Habitats in Greece, Türkiye, and Cyprus Under Continuous Threat

For the 36^th year in succession, MEDASSET participated in the 44^th Standing Committee Meeting of the Bern Convention (2 Dec. – 6 Dec. 2024) at the Council of Europe. We presented the results of our sea turtle nesting beach surveys and reported on the progress of implementation of the Convention’s Recommendations. As a result, the Bern Convention Standing Committee adopted important  decisions to monitor several sea turtle habitats and urge Governments to improve protection. This year, the Commission accepted MEDASSET’s request for an on-site assessment in 2025 by a representative of the Bern Convention, a key step toward evaluating and strengthening conservation efforts for these vital habitats.

GREECE

Laganas Bay, Zakynthos (Caretta caretta)

Find out more about the campaign here or download our report.

With an average of 1.200 nests each season, Laganas bay hosts one of the most important breeding areas for the Caretta caretta in the Mediterranean. The sea turtles and their habitats on Zakynthos island, though, remain under immense stress due to the intense touristic activity on the island, receiving more than 850.000 visitors each summer.

The case was first brought to the Bern Convention by MEDASSET in 1984, and as a result, the Standing Committee issued Recommendation No.9 in 1987, to ensure the site’s protection.

Over 35 years later, sea turtles and their habitats in Laganas Bay are still under immense stress. Despite the site’s designation as a National Marine Park under a Presidential Decree in 1999, the Greek government has failed to provide adequate protection and the “case file” was re-opened in 2020 by the Standing Committee.

In 2024, illegal activities continued, including human presence in restricted areas or at prohibited times, unregulated maritime activity and operation of illegal businesses affecting the nesting beaches. The root cause is the lack of enforcement by competent authorities and insufficient government funding for wardens.

In addition, the restoration of the illegally constructed road between Daphne and Gerakas within the National Marine Park of Zakynthos (NMPZ) and partially within the NATURA 2000 site has not been completed, while the fine of 200.000 euros issued in 2018 by the Regional Authority of Ionian Islands was revoked in January 2024 by a different administrative court in Ilia, which lacked jurisdiction and without the prior notification of MEDASSET and WWF of this legal action! In April 2024, MEDASSET and WWF Greece lodged third-party proceedings against the Ilia administrative court’s decision to revoke the fine due to the interventions that took place in 2018. In July 2024, the criminal court found the owner guilty of environmental degradation due to the interventions that took place in 2018. In September 2024, the case of the environmental NGOs was discussed before the administrative court of Pyrgos (Ilia). The Corfu administrative court’s hearing is scheduled for April 2nd, 2025.

Moreover, the saturated illegal landfill that operated within the ZNMP boundaries and the Natura 2000 site has yet to be restored despite being out of operation since December 2017. On the 16^th of November 2023, the European Commission decided to refer Greece again to the Court of Justice of the European Union for failing to restore the landfill on the island of Zakynthos within the Natura 2000 protected area. The restoration of the landfill is still in its early stages (planning & licencing); it’s currently in the final process of being granted an EIA permit, later to be followed by a public procurement process. MEDASSET called upon the Greek government to urgently increase efforts for the adequate protection of Laganas Bay. In 2024, the situation remains unchanged.

Decision:

•  The convention took note of the reports of both parties and the NGO ARCHELON, and thanked both the authorities and MEDASSET, the complainant, for their presentations.
• Noted some improvements reported by the respondent, the complainant and the NGO. These included increased signage and warden presence, a trend (over two consecutive years) of increased nesting, and the successful limitation of vehicles and horses on the beach, thanks to the placement of wooden poles.
• Acknowledged also the improvements from the Greek government regarding the application of the principles of adapted management and the Bern Convention guidelines, as well as the effectiveness of applied protection measures demonstrated by the rising trend of nesting activities.
• Regretted the persistence of some of the key concerns of the case brought forward by the complainant and the NGO. These included turtle stranding, the increased issuing of boat licenses leading to turtle spotting, the increasing uses of beaches and beach furniture, human presence on the nesting beach at night, delayed and partial application of roping to prevent human trampling of nests, light pollution, inconsistencies in the application of management measures across the whole ZNMP, illegal developments despite court orders for demolition and environmental restoration, and illegal constructions despite fines.
• Regarding the landfill in the ‘Skopos’ area, the Committee noted that it was the subject of a referral from the European Commission in 2023 (C-600/12) to the European Court of Justice for non-compliance. An Environmental Impact Assessment on its restoration is under public consultation, and the local Management Unit of NECCA/OFYPECA is currently formulating its opinion.
• Acknowledged the recent developments regarding the penal follow-up on the road opening case between Gerakas and Daphne. The person concerned was convicted by the court of appeal for misdemeanours, and the subsequent appeal filed was rejected, thus rendering the decision final. Furthermore, that same landowner concerned was condemned in July 2024 by the Court of first instance in Zakynthos, but the decision was appealed and will be examined in the coming months.
• Welcomed the recent progress reported on the file but noted the ongoing issues.
• Decided to mandate an on-the-spot appraisal (together with the OSA in Thines Kiparissias).
• Noted that the file remains open and both parties were invited to report to the Bureau in Spring 2025.

Zakynthos, July 2024: Impact of Tourism and Sunbeds on Nesting Site – © MEDASSET

Southern Kyparissia Bay (Caretta caretta)

Find out more about the campaign here or download our report

Kyparissia Bay hosts the largest reproductive loggerhead turtle population across the Mediterranean.  Although the nesting beaches belong to an EU NATURA 2000 site, the Greek government has failed to introduce and enforce the necessary conservation and management measures, ten years after the Bern Convention Recommendation (Dec. 2014) and eight years after the condemning Judgment of the European Court of Justice (Nov. 2016). Enforcement of the Presidential Decree adopted in October 2018, ensuring legal protection to the site, is non-existent and we strongly reiterated the urgent need for the adoption and implementation of a Management Plan, as the Decree does not address several major issues. We express our great concerns regarding the process of the adoption of the Management Plan, as the Special Environmental Studies including the Thines Kiparissias site has not even reached the public consultation stage yet, meaning that it most certainly will be one of the most delayed studies, negatively affecting the final approval of the much needed management plan as well.

At the 2024 Bern Convention Standing Committee meeting, MEDASSET presented the continued degradation of the site and its inadequate management during the summer of 2024.

Threats recorded included ongoing construction of illegal buildings along the coastline, two brand new constructions of buildings within the Nature Protection zone, continued planting of alien species on the nesting beaches and destruction of the protected dunes, nearshore fishing, vehicular access to the nesting beaches via illegal roads, lack of beach furniture management, light pollution as well as seismic surveys for the exploration and exploitation of hydrocarbons in the area.

Decision

• The Standing Committee:
• Took note of the reports provided by both parties and the NGO ARCHELON, and thanked both the authorities and MEDASSET, the complainant, for their presentation.
• Recognised the Greek Government’s commitment to implementing Recommendation No. 174 (2014), and to finalising the Management Plan for Kyparissia Bay. The Committee also acknowledged the Government’s commitment to making use of the adopted guidance tool on the conservation of sea turtles nesting sites.
• Noted data suggesting the number of reproductive adults now exceeds conservation targets set in national legislation in 2023, and welcomed the progress being made in this area.
• Recognised that other positive steps are being taken including the completion of the study on regulation and limitation of anthropogenic within the protected area, the hiring of personnel to reinforce patrols and surveillance, the placement of informative signs on the nesting beaches, and the removal of a canteen in the ‘Vounaki’ site.
• Noted also the completion and findings of the assessment on potential implications of constructions and roads in the protected area, published in November, following a meeting with the EU Commission in April 2024. The Committee also acknowledged that a Joint Ministerial Decision had been issued in April 2024 aimed at setting terms and restrictions in highly protected beaches and coasts, including the Natura-2000 site.
• Regretted the persistence however, of key concerns brought forward by the complainant and ARCHELON, demonstrating failure to fully implement Recommendation No. 174 (2014). These concerns include vehicle activity on the nesting beaches, the presence of invasive species, sand dune destruction due to agricultural use, light pollution, poor beach equipment management, construction in the protected area, and a lack of action being taken by the authorities to prevent human activity in protected areas. The Committee also noted concerns raised by the complainant on the delay of the Special Environmental Study including the Thines Kiparissias site, due to be completed in October 2021.
• Urged the Greek Government to adhere to a full and meaningful implementation of Recommendation No. 174 (2014), along with enforcing the Presidential Decree regulations. The Committee strongly encouraged the authorities to finalise and implement the Management Plan for the protected area, covering unresolved issues not addressed in the P.D regulations. The Committee also encouraged prompt implementation of proposed measures following the completion of the study on regulation and limitation of anthropogenic within the protected area and awaited deliverables of the Monitoring and Assessment Project on the conservation status of species and habitats in Greece, due in 2025. The Standing Committee requested to be informed about progress in the implementation of the above recommendations and share the study on regulation and limitation of anthropogenic impacts within the protected area after its adoption by the competent authority.
• Decided to mandate an on-the-spot appraisal (together with the OSA in Laganas Bay, Zakynthos). Noted that the file remains open and both parties were invited to report to the Bureau in Spring 2025.

Agiannakis Core Nesting Area. July 2024. New ongoing constructions in Nature Protection Zone where building is not permitted according to the Presidential Decree. © MEDASSET

Türkiye

Fethiye & Patara (Caretta caretta)

Find out more about these campaigns here or download our report.

MEDASSET has been conducting assessments and campaigning to improve the protection of loggerhead nesting beaches in Patara and Fethiye since 1988. Both sites are “Specially Protected Areas” (SPAs). Our 2024 assessments documented that while a few improvements have occurred, the majority of the Recommendations adopted by the Bern Convention in 2015 (No. 182 for Patara and No. 183 for Fethiye) have not been implemented.

In Fethiye, serious problems remain, imposing serious threats to sea turtles and necessitating immediate actions. Fethiye is an example of the authorities’ failure to implement the measures of Recommendation No. 183 and effectively protect this important sea turtle nesting beach and habitat.

The destructive development, which continues unabated over the past years in complete disregard of the Bern Convention’s Recommendation, has severely affected the sea turtles and their habitat. The few improvements for some recommendations cannot reverse the damage. Actions must be taken immediately to fully implement the recommended measures.

In Patara, certain improvements observed during our survey are limited primarily around the Main Beach, while the rest areas are neglected and the conservation problems affecting the nesting beaches remain. On the positive, the new borders of the Patara SPA and all articles of the Master Development Plan for Patara can finally be found online. However based on what we observed during our summer 2024 assessment, Recommendation No. 182 (2015) has not been fully implemented and Turkish laws are not enforced. The nesting beaches do not receive the appropriate protection and management. It is imperative for authorities to take action with no further delay.

Decision:

• … (The Bern Convention Standing Committee) Regretted the persistence of a large number of key concerns brought forward by the complainant including construction in protected areas, failure to remove illegal facilities, poor management of beach furniture, light pollution, marine violations, camping in restricted areas, horse riding and vehicle activity on the beach, beach litter, inadequate enforcement of fines, and inadequate implementation of conservation measures.
• …Urged the Turkish Government to finalise the Management Plan for Fethiye, to report on the findings of the sea turtle monitoring and conservation and management plan studies, to maintain adherence to the Recommendations and continue their implementation without delay.
• …Noted that the file remains open. Both parties were invited to report to the Bureau in Spring 2025.

Fethiye Beach Under Pressure from Touristic Activities – © MEDASSET, 2024

Horses on Patara Beach, a Sea Turtle Nesting Site, © MEDASSET, 2024

Find out more in the NGO report .

Anamur’s 12,5 km beach is the 2nd most important nesting beach in Türkiyeand the 4th most important in the Mediterranean for the loggerhead turtles. The SPA is a nesting site for several other sea turtle species as well, including the Green sea turtles (Chelonia mydas) and the critically endangered Nile soft-shelled turtles (Trionyx triunguis).

Under Turkish legislation, the 12km nesting beach of Anamur is declared as a 1st Degree Conservation Area with coordinates defining the protection zone, and the most stringent protection being applied to the 1st Protection zone, which is from the shoreline up to 65m. Within this area, alteration of the land is prohibited, sand must not be removed or added, the use of lights at night is prohibited AND any plan or project must receive Ministerial permission.

However due to the destructive developments pursued by local authorities, a case file was opened during the 42^nd Standing Committee Meeting (Dec. 2022). Furthermore, following a December 2023 decision taken during the 43^rd  Standing Committee Meeting (Dec. 2023), Dr. Allan Rees conducted an On Site Appraisal in July 2024. His findings corroborated the findings of MEDASSET and the local NGO MERCED who conducted their own surveys as well.

Decision: 

… (The Bern Convention Standing Committee)Regretted that some of the issues discussed at the OSA did not seem to evolve since and that some new negative developments occurred.

… Encouraged cooperation of all relevant stakeholders in restoring and preserving the habitats of the three turtle species concerned: the Loggerhead sea turtle (Caretta caretta), Green sea turtles (Chelonia mydas) and Nile soft-shelled turtles (Trionyx triunguis).

… Unanimously adopted Recommendation No. 226 (2024) (T-PVS(2024)15) on Mersin Anamur Beach (Türkiye), available in Appendix XI:

The SC recommends to the Government of Türkiye, in cooperation with local and regional authorities when relevant, to:

• Remedy Stage 1 and 2 design issues, which mainly relate to poor lighting choices and light control. Consider erecting a fence along the beach edge to deter people from entering the beach at night.
• Review the remaining Stage 2 and Stage 3 development plans to ensure they are necessary and are compatible with preservation of successful, undisturbed turtle nesting.
• Enforce existing legislation by removal of illegal development, structures and impactful lighting from all areas of beach but especially the area of bungalows and restaurant on beach section 2 that may act as a catalyst for similar such developments away from the urban centre.
• Increase number of signs that have information on sea turtles and the dos and don’ts for behaviour on the nesting beach at beach entrances. Create new signs to attach to each protective nest cage so that each nest has key information associated with it.
• Improve turtle monitoring and protection capacity through training and increasing the number of people involved in daily surveys. Collect all relevant data indicated in Guidance Tool, starting as soon as possible by recording the location of each turtle nest using GPS to support scientific analyses and interpretation of the status of turtles and their habitats.
• Design a hatchling management plan to be prepared for occurrences of hatchling disorientation caused by artificial lighting and respond promptly and strongly to adjust, revise or eliminate problematic lighting.
• Undertake surveys for presence of Nile soft shelled turtles at all historically known sites along Anamur beach and commission ecological study for feasibility of restoring sites where presence remains, and nesting was previously reported.
• Create a turtle protection network composed of authorities, NGOs, local stakeholders and concerned individuals that regularly meet to discuss issues and their solutions.
• Create a turtle monitoring group composed of authorities, NGOs, local stakeholders and concerned individuals to better monitor the turtle nesting activity. Investigate the potential for bringing in academic and voluntary teams to contribute to the monitoring. Given that Anamur beach potentially hosts one of the top five loggerhead turtle nesting areas in the Mediterranean accurate assessment of activity is strongly warranted.

… Requested both parties to provide their update reports to the Bureau for its meeting in Spring 2025.

CYPRUS

Akamas peninsula (Caretta caretta & Chelonia mydas)

For more details, see Terra Cypria’s 2023 report

Conservation problems at nesting sites in Akamas and Limni were brought to the attention of the Bern Convention in 1996 by MEDASSET on behalf of NGO Terra Cypria and a case file has remained open since 1997, making it one of the longest-standing cases of the Bern Convention.  Terra Cypria provided evidence that implementation of the Convention’s 2016 Recommendation is still outstanding, no legally binding management plans are yet in place and effective enforcement is needed.  MEDASSET supported Terra Cypria’s calls for urgent action by authorities to ensure enforcement of management measures on all nesting beaches.

 Decision:

The Standing Committee took note of the reports of both parties and thanked the Cypriot authorities and the complainant organization, Terra Cypria for their oral presentations.

• Took note of the report from the Republic of Cyprus and thanked both of the parties for their presentations.
• Noted the progress that represented the adoption of the Memorandum of Understanding (MoU), which involved an active role for the complainant in the protection of marine turtles. However, it regretted that no progress was reported on this initiative.
• Took note of the concerns presented by the complainant, including the insufficient designation of Natura 2000 sites, and insufficient patrolling. Furthermore, the complainant was alarmed by the new Quarry Zone in the area of Androlikou adjacent to the Natura 2000 sites, which is currently pending. 92.Welcomed the prosecution of offenders concerning illegal restaurants around the beaches of Lara and Toxeftra, and that one of the court’s decisions on the dismantlement of a bar was implemented. However, it was informed by the complainant that illegal restaurants were still operating.
• Noted the European Commission’s (EC) intervention regarding its Reasoned Opinion of 13 March 2024 (INFR(2019)2303) against Cyprus for the inadequate management of Natura 2000 Network protected areas as SACs and SPAs are not adequately protected. Additionally, adequate conservation objectives and measures have not been established for the Akamas Peninsula. On the same day, (INFR(2021)2064) the EC referred Cyprus to the Court of Justice of the European Union for failing to designate sites of community importance (SCIs) as special areas of conservation (SACs) for the protected areas of the Natura 2000 Network and to establish the necessary conservation objectives and measures for these sites. It was noted that conservation objectives have been established for the Peninsula, but not conservation measures. The Committee requested to be informed of the follow-up given to this.
• Expressed serious concern that after so many years, the majority of the thirteen points of Recommendation No. 191 (2016) had still not been fully followed-up by the authorities and that, according to interested actors, the main threats remain. The Committee asked the Cypriot authorities to step up efforts in implementing the Recommendation.
• Noted that the file remains open, and both parties were invited to report to the Bureau in Spring 2025. The Committee encourages the government to use the points of the Recommendation as a basis for their reporting.

Akamas Peninsula, Cyprus – 44th Standing Committee Meeting of the Bern Convention