Wildlife Poaching in Africa: Overview for Congress
October 21, 2013
Wildlife Poaching in Africa: Overview for Congress
Overview
Black and White Rhinos. At the end of 2010, the black
rhino population stood at 4,880 and the white rhino
Wildlife poaching has been a longstanding challenge for
population totaled 20,165. In the mid-1990s, the black rhino
many countries in Sub-Saharan Africa, a poor region rich in
population was roughly half as large and the white rhino
biodiversity. Recent large-scale poaching activity is
population roughly one-third as large.
affecting the sustainability of elephant and rhino
populations. Trafficking is fed by high demand for ivory
Conservation gains were largely the result of initiatives
and rhino horn in Asia, and proceeds may fund armed
from South Africa—home to some 40% of black rhinos and
groups. These trends have contributed to growing
90% of white rhinos. However, 668 rhinos were illegally
international concerns about the problem and a desire by
killed in 2012 in South Africa alone, a record since
some in Congress to reexamine existing approaches to
authorities first began tracking such information in 1990
combating wildlife crime.
(see Figure 1). Rhino poaching trends appear to be driven
primary by surging demand for horns in Asia.
African Elephants. The African elephant population is
estimated to be between 420,000 to 650,000. Most known
Figure 1. Rhinos Poached in South Africa
populations are located in Southern and Eastern Africa,
where some countries report increasing elephant
populations. The most significant recent elephant declines
have occurred in Central Africa, a region that suffers from
ongoing security challenges and limited law enforcement.
In total, some 25,000 African elephants or more may have
been illegally killed in 2011 alone.
Selected Elephant Poaching Incidents
Bouba Njdida National Park (Cameroon): In early 2012,
poachers on horseback traveled from Chad to kill at least
several hundred elephants, devastating the park’s elephant
population.
Tikem (Chad): More than 80 elephants, including 33 pregnant
females and 15 calves were poached in a raid reportedly
conducted by the same group on horseback from early 2012.
Garamba National Park (Democratic Republic of
Congo): At least 22 elephants were killed over a short period
Source: CRS compilation of UN and CITES data.
in 2012. Many were reportedly killed in a manner consistent
*Note: 2013 statistics current as of October 11, 2013.
with aerial head-shots, possibly from a helicopter.
Minkébé National Park (Gabon): The Gabonese
Policy Responses
government issued a report in early 2013 stating that more
than 11,000 elephants (about two-thirds of park’s population)
The international community has established a global
had been killed since 2004.
policy framework to regulate and sometimes ban exports of
Hwange National Park (Zimbabwe): Poachers poisoned
selected species, in order to support sustainable
water wells with cyanide in mid-2013, killing potentially more
conservation, effective resource management, and
than 300 elephants.
enforcement of relevant laws and regulations.
International Responses. The flagship international
These trends could threaten the sustainability of African
mechanism to control wildlife trade is the 1975 Convention
elephant populations, as well as conservation gains since
on International Trade in Endangered Species of Wild
the 1980s, a period when conservationists estimated that
Fauna and Flora (CITES). 178 states, including the United
poachers killed as many as 100,000 elephants per year. At
States, are parties to CITES. Through it, approximately
that time, the international community banned the
5,000 animal species and 29,000 plant species are subject to
international trade in new ivory. Observers widely attribute
trade restrictions, depending on the extent to which they are
this policy response as having curbed the scale of ivory
at risk of extinction.
trafficking and allowing some populations to recover.
www.crs.gov | 7-5700
Wildlife Poaching in Africa: Overview for Congress
African elephants, for example, are generally prohibited
of State, U.S. Agency for International Development
from international trade. A limited number of elephants
(USAID), and Department of Justice.
from Botswana, Namibia, South Africa, and Zimbabwe
may be hunted for the purposes of noncommercial export of
Recent public announcements and actions from the Obama
personal sport trophies. Similarly, all rhino species are
Administration include the:
subject to the strictest bans on international trade, with the
Planned FWS destruction of the U.S. ivory stockpile
exception of white rhinos from South Africa and
(initially anticipated for October 2013);
Swaziland, for which limited trade in live animals and the
export of hunting trophies are permitted.
Establishment of a presidential task force on wildlife
trafficking (September 2013);
Common Questions
Issuance of Executive Order 13648 on combating
Who are the poachers? A mix of illicit actors are involved in
wildlife trafficking (July 2013); and
poaching elephants and rhinos, including local subsistence
Release of a State Department and USAID Strategy on
hunters, professional poachers, and off-duty security forces.
Wildlife Trafficking (November 2012).
Some reports suggest that certain non-state armed groups are
involved in poaching, including the Sudanese janjaweed in
Congressional Role. The U.S. Congress has played a role
Darfur, the Lord's Resistance Army (LRA) in Central Africa,
in evaluating and shaping U.S. policy to combat
and the Al Qaeda-linked Somali insurgent group Al Shabaab.
international wildlife trafficking. In recent years, Congress
Poachers may also include members of some African militaries.
Poachers, however, represent only one link in a complex web
has also held hearings and events that have addressed the
of transnational criminals who are capable of sourcing large-
growing problem of wildlife crimes and raised key
scale volumes of illicit wildlife products to consumer markets
questions for next steps. Continuing questions for
worldwide.
policymakers include whether existing policy responses are
relevant and achieving sufficient progress; whether legal
How much is the illegal wildlife trade worth? The U.S.
government estimates that the illegal trade in endangered
tools and authorities are over- or under-utilized to respond
species is worth at least $7 billion to $10 billion annually. A
to wildlife trafficking; and whether new programs,
pound of raw ivory can be worth as much as $1,000, while a
resources, funding, and authorities are warranted or
pound of rhino horn can be worth as much as $30,000.
feasible.
Why does poaching persist? Wildlife trafficking is largely
For more information, see CRS Report RL34395,
driven by the prospect of economic profit and a sense that the
risk of detection is likely low. A wide range of security,
International Illegal Trade in Wildlife: Threats and U.S.
governance, and environmental management challenges are
Policy, by Liana Rosen and Pervaze A. Sheikh; and CRS
associated with protecting wildlife. Additionally, inconsistent
Report RL32751, The Convention on International Trade in
national and local laws relating to wildlife prohibitions can be
Endangered Species of Wild Fauna and Flora (CITES),
exploited by traffickers. Long-term structural conditions of
Background and Issues, by Pervaze A. Sheikh and M.
conflict, corruption, poverty, demand, lack of public awareness,
Lynne Corn.
as well as other environmental pressures can contribute to
wildlife losses.
Liana Rosen, lrosen@crs.loc.gov, 7-6177
What are the consequences? Large-scale poaching reduces
Pervaze A. Sheikh, psheikh@crs.loc.gov, 7-6070
biodiversity and may eliminate “keystone” megafauna that are
Alexis Arieff, aarieff@crs.loc.gov, 7-2459
crucial for ecosystem health. Poaching can affect the national
Lauren Ploch Blanchard, lploch@crs.loc.gov, 7-7640
economies of some countries, particularly in Africa, that are
reliant on ecotourism as a source of government revenue.
IF00003
Profits from wildlife trafficking can sustain non-state armed
groups and criminal organizations that undermine the rule of
law and regional security. Poachers have also killed park
rangers and game wardens, who may interfere with their
operations.
U.S. Responses. The United States addresses the
international illegal wildlife trade through domestic law
enforcement, as well as through foreign policy. U.S. efforts
to prohibit aspects of the wildlife trade are addressed
through the Lacey Act and its amendments, the Endangered
Species Act of 1973, and several other conservation laws,
collectively referred to as the Multinational Species
Conservation Acts (including the African Elephant
Conservation Act and the Rhinoceros and Tiger
Conservation Act).
U.S. agencies involved in anti-poaching efforts in Africa
include the Fish and Wildlife Service (FWS), Department
www.crs.gov | 7-5700