Wildlife Poaching in Africa: An Overview
link to page 1 
Updated December 23, 2015
Wildlife Poaching in Africa: An Overview
Overview
Increasingly, however, East Africa has become a key source
and transit point for ivory. Three countries in East Africa—
Wildlife poaching occurs in many countries in Sub-Saharan
Kenya, Uganda, and Tanzania—accounted for
Africa, a region rich in biodiversity. Many African wildlife
approximately 80% of all large-scale (i.e., 500 kg or larger)
species are poached for their body parts or bushmeat. While
African seizures of ivory in 2013, indicating that these
poaching operations vary in complexity, scope, and scale,
countries are major transit points for ivory. In June 2015,
those that involve the illegal killing of elephants and rhinos
the Tanzanian government reported that its elephant
are reportedly often carried out by sophisticated, highly
population dropped by more than 60% in just five years—
organized, and well-armed criminal groups. In recent years,
from 109,051 in 2009 to 43,330 at the end of 2014. These
an increase in demand in Asia has driven a surge in
trends threaten the sustainability of regional and continent-
poaching and trafficking of African elephant ivory and
wide elephant populations as well as conservation gains
rhino horn, threatening the long-term sustainability of these
since the 1980s, when poachers killed as many as 100,000
species. These trends have contributed to growing
elephants per year, according to conservationists.
international concern about the problem and a desire by
some in Congress to reexamine existing approaches to
Black and White Rhinoceros. According to the
combating wildlife crime.
International Union for Conservation of Nature (IUCN), a
public-private partnership, as of 2012 the black rhino
African Elephants. African elephant populations range
population stood at 5,055 and the white rhino population
across 35 to 38 countries in Sub-Saharan Africa, with most
totaled 20,405. Rhinoceros populations in Africa are largely
known populations located in Southern and East Africa
(home to 55% and 28% of the continent’s elephants,
concentrated in Botswana, Kenya, Namibia, South Africa,
and Zimbabwe. The highest level of rhino poaching is in
respectively). Global levels of poaching and illegal trade in
South Africa, which is home to roughly 80% of the African
ivory increased in the mid-2000s and peaked in 2010-2012,
rhino population. An estimated 1,215 rhinos were poached
when an estimated 100,000 elephants were reportedly killed
in 2014, following a trend for South Africa that reflects a
over a three year period. This trend followed a reduction in
dramatic increase in poaching since 2007 (see Figure 1).
poaching in the 1990s, which was largely attributed to a
The uptick in rhino poaching represents a major reversal of
global ban on the international trade in ivory. Since 2012,
trends in the 1990s; observers assert that poaching had
overall trends in elephant poaching levels have plateaued at
effectively been brought to a halt during that period, largely
an unsustainably high level. In 2013, poaching claimed at
as a result of anti-poaching initiatives led by South Africa.
least 20,000 elephants, or two-thirds of total African
In recent years, South Africa has intensified anti-poaching
elephant deaths. The current African elephant population is
efforts, potentially contributing to the anticipated decline in
estimated to be between 400,000 and 600,000 elephants,
rhinos poached in 2015.
down from 1.2 million in 1980.
Figure 1. Rhinos Poached in South Africa
Selected Elephant Poaching Incidents
Minkébé National Park (Gabon): The Gabonese government
reported in early 2013 that more than 11,000 elephants (about
two-thirds of the park’s population) had been killed since 2004.
Hwange National Park (Zimbabwe): Poachers poisoned
water wells with cyanide in mid-2013, killing potentially more
than 300 elephants. 48 more have been poisoned in 2015 in
Hwange and other parks in Zimbabwe.
Garamba National Park (Democratic Republic of
Congo): 68 elephants were killed over two months in early
2014. Many were reportedly killed from a helicopter.
Source: CRS compilation of UN, CITES, and South African
Gourma (Mali): 57 desert elephants, representing 20% of the
Department of Environmental Affairs data.
remaining desert elephant population in Mali, were killed
*Note: 749 rhinos poached in 2015 as of August 27, 2015.
between January–October 2015, according to U.N.
peacekeepers in Mali.
Recent significant declines in elephant population levels
have occurred in Central Africa, a region that suffers from
ongoing security challenges and limited law enforcement.
https://crsreports.congress.gov
Wildlife Poaching in Africa: An Overview
prioritized domestic and international responses to wildlife
trafficking related to law enforcement, demand reduction,
Common Questions
and cooperation. The Administration also released a plan
Why does the poaching persist? Wildlife trafficking is largely
to implement the Strategy with 24 core objectives, several
driven by the prospect of economic profit and a sense that the
involving steps specific to Africa. In July 2015, the U.S.
risk of detection is likely low. A wide range of security,
Fish and Wildlife Service (FWS) proposed changes to
governance, and environmental management challenges are
regulations in the Endangered Species Act (ESA)
associated with protecting wildlife. Additionally, inconsistent
national and local laws relating to wildlife prohibitions can be
concerning African elephants that would limit imports of
exploited by traffickers. Structural conditions of conflict,
sport-hunted trophies and restrict the forms and amounts
corruption, poverty, demand, lack of public awareness, as well as
of ivory that can be legally imported, exported, and traded
other environmental pressures can contribute to wildlife losses.
domestically. Several U.S. airlines have stopped
Who are the poachers? Profits from wildlife trafficking can
transporting selected African big game hunting trophies.
sustain non-state armed groups and criminal organizations that
In December 2015, FWS announced the listing of two
undermine the rule of law and regional security. Poachers
subspecies of lion under the ESA: Panthera leo leo
reportedly include militias operating in Democratic Republic of
Congo (DRC) and the Central African Republic (CAR);
(located in India and western and central Africa) and
Congolese, Ugandan, Sudanese, and Tanzanian militaries; and the
Panthera leo melanochaita (located in eastern and
Sudanese Janjaweed and related gangs operating between Sudan,
southern Africa). Concurrent with the final listing rule,
Chad, CAR, and Niger. In September 2015, National Geographic
published in the Federal Register, FWS also issued a
reported that the Lord’s Resistance Army (LRA), an armed
Director’s Order to strengthen enforcement of wildlife
group active in Central Africa, is resupplying its forces, in part,
permitting requirements.
through elephant ivory sales. Observers have also debated the
possible role of the Somali terrorist organization Al Shabaab.
U.S. support for anti-wildlife trafficking efforts abroad
How much is the illegal wildlife trade worth? According to
focuses on species range countries, including in Africa;
estimates by conservation groups, a kilogram of raw ivory can be
trafficking transit hubs; and countries with high demand.
worth as much as $2,100, while a kilogram of rhino horn can be
U.S. agencies involved in such programs include the
worth $65,000.
Departments of State, Interior, Justice, and Defense, as
well as FWS and the U.S. Agency for International
International Responses
Development (USAID). Efforts support international
conservation and biodiversity goals, including law
The primary international treaty that regulates wildlife trade
enforcement and prosecutorial activities. For FY2016,
is the 1975 Convention on International Trade in
Congress appropriated $80 million to combat wildlife
Endangered Species of Wild Fauna and Flora (CITES). 181
trafficking in State, Foreign Operations, and Related
states, including the United States, are parties to CITES.
Programs appropriations (Div. K, P.L. 114-113).
Roughly 5,000 animal species and 29,000 plant species are
subject to permitting requirements under CITES, depending
Congress has held hearings addressing wildlife trafficking
on the extent to which they are at risk of extinction.
in Africa, and several poaching-related bills have been
introduced. Such bills in the 114th Congress include the
African elephants are generally prohibited from
Wildlife Trafficking Enforcement Act of 2015 (S. 27); the
international trade under CITES, with some exceptions. For
Targeted Use of Sanctions for Killing Elephants and
example, a limited number of elephants may be hunted for
Rhinoceros Act of 2015 (H.R. 1945); the Eliminate,
the purposes of noncommercial export of personal sport
Neutralize, and Disrupt Wildlife Trafficking Act (S. 2385);
trophies in Botswana, Namibia, South Africa, and
and the Global Anti-Poaching Act (H.R. 2494), which
Zimbabwe. Rhino species are subject to the strictest bans on
passed the House in November 2015.
international trade, with the exception of white rhinos from
South Africa and Swaziland, for which limited trade in live
For more information, see CRS Report RL34395,
animals and the export of hunting trophies are permitted.
International Illegal Trade in Wildlife: Threats and U.S.
During Chinese President Xi Jinping’s visit to Washington,
Policy, by Liana W. Rosen and Pervaze A. Sheikh; CRS In
D.C. in September 2015, China and the United States
Focus IF10274, Status of the African Lion and Sport
jointly committed to “enact nearly complete bans on ivory
Hunting, by Pervaze A. Sheikh and Liana W. Rosen; and
import and export” and to take “significant and timely steps
CRS Report RL32751, The Convention on International
to halt the domestic commercial trade of ivory,” according
Trade in Endangered Species of Wild Fauna and Flora
to a White House Fact Sheet about the visit. In October
(CITES): Background and Issues, by Pervaze A. Sheikh and
2015, U.S. officials announced that the Chinese ban on
M. Lynne Corn.
commercially traded ivory could be in place within a year.
Liana W. Rosen, Specialist in International Crime and
Selected U.S. Responses
Narcotics
Pervaze A. Sheikh, Specialist in Natural Resources Policy
In July 2013, President Barack Obama issued Executive
Alexis Arieff, Specialist in African Affairs
Order (E.O.) 13648 on combating wildlife trafficking. It
Lauren Ploch Blanchard, Specialist in African Affairs
directed federal agencies to enhance efforts to address the
Tomas F. Husted, Research Assistant
problem, established an interagency Task Force on Wildlife
Trafficking to address wildlife trafficking. In February
IF10330
2014, the Obama Administration released a National
Strategy for Combating Wildlife Trafficking, which
https://crsreports.congress.gov
Wildlife Poaching in Africa: An Overview
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF10330 · VERSION 3 · UPDATED
Updated December 23, 2015
Wildlife Poaching in Africa: An Overview
Overview
Increasingly, however, East Africa has become a key source
and transit point for ivory. Three countries in East Africa—
Wildlife poaching occurs in many countries in Sub-Saharan
Kenya, Uganda, and Tanzania—accounted for
Africa, a region rich in biodiversity. Many African wildlife
approximately 80% of all large-scale (i.e., 500 kg or larger)
species are poached for their body parts or bushmeat. While
African seizures of ivory in 2013, indicating that these
poaching operations vary in complexity, scope, and scale,
countries are major transit points for ivory. In June 2015,
those that involve the illegal killing of elephants and rhinos
the Tanzanian government reported that its elephant
are reportedly often carried out by sophisticated, highly
population dropped by more than 60% in just five years—
organized, and well-armed criminal groups. In recent years,
from 109,051 in 2009 to 43,330 at the end of 2014. These
an increase in demand in Asia has driven a surge in
trends threaten the sustainability of regional and continent-
poaching and trafficking of African elephant ivory and
wide elephant populations as well as conservation gains
rhino horn, threatening the long-term sustainability of these
since the 1980s, when poachers killed as many as 100,000
species. These trends have contributed to growing
elephants per year, according to conservationists.
international concern about the problem and a desire by
some in Congress to reexamine existing approaches to
Black and White Rhinoceros. According to the
combating wildlife crime.
International Union for Conservation of Nature (IUCN), a
public-private partnership, as of 2012 the black rhino
African Elephants. African elephant populations range
population stood at 5,055 and the white rhino population
across 35 to 38 countries in Sub-Saharan Africa, with most
totaled 20,405. Rhinoceros populations in Africa are largely
known populations located in Southern and East Africa
(home to 55% and 28% of the continent’s elephants,
concentrated in Botswana, Kenya, Namibia, South Africa,
and Zimbabwe. The highest level of rhino poaching is in
respectively). Global levels of poaching and illegal trade in
South Africa, which is home to roughly 80% of the African
ivory increased in the mid-2000s and peaked in 2010-2012,
rhino population. An estimated 1,215 rhinos were poached
when an estimated 100,000 elephants were reportedly killed
in 2014, following a trend for South Africa that reflects a
over a three year period. This trend followed a reduction in
dramatic increase in poaching since 2007 (see Figure 1).
poaching in the 1990s, which was largely attributed to a
The uptick in rhino poaching represents a major reversal of
global ban on the international trade in ivory. Since 2012,
trends in the 1990s; observers assert that poaching had
overall trends in elephant poaching levels have plateaued at
effectively been brought to a halt during that period, largely
an unsustainably high level. In 2013, poaching claimed at
as a result of anti-poaching initiatives led by South Africa.
least 20,000 elephants, or two-thirds of total African
In recent years, South Africa has intensified anti-poaching
elephant deaths. The current African elephant population is
efforts, potentially contributing to the anticipated decline in
estimated to be between 400,000 and 600,000 elephants,
rhinos poached in 2015.
down from 1.2 million in 1980.
Figure 1. Rhinos Poached in South Africa
Selected Elephant Poaching Incidents
Minkébé National Park (Gabon): The Gabonese government
reported in early 2013 that more than 11,000 elephants (about
two-thirds of the park’s population) had been killed since 2004.
Hwange National Park (Zimbabwe): Poachers poisoned
water wells with cyanide in mid-2013, killing potentially more
than 300 elephants. 48 more have been poisoned in 2015 in
Hwange and other parks in Zimbabwe.
Garamba National Park (Democratic Republic of
Congo): 68 elephants were killed over two months in early
2014. Many were reportedly killed from a helicopter.
Source: CRS compilation of UN, CITES, and South African
Gourma (Mali): 57 desert elephants, representing 20% of the
Department of Environmental Affairs data.
remaining desert elephant population in Mali, were killed
*Note: 749 rhinos poached in 2015 as of August 27, 2015.
between January–October 2015, according to U.N.
peacekeepers in Mali.
Recent significant declines in elephant population levels
have occurred in Central Africa, a region that suffers from
ongoing security challenges and limited law enforcement.
https://crsreports.congress.gov
Wildlife Poaching in Africa: An Overview
prioritized domestic and international responses to wildlife
trafficking related to law enforcement, demand reduction,
Common Questions
and cooperation. The Administration also released a plan
Why does the poaching persist? Wildlife trafficking is largely
to implement the Strategy with 24 core objectives, several
driven by the prospect of economic profit and a sense that the
involving steps specific to Africa. In July 2015, the U.S.
risk of detection is likely low. A wide range of security,
Fish and Wildlife Service (FWS) proposed changes to
governance, and environmental management challenges are
regulations in the Endangered Species Act (ESA)
associated with protecting wildlife. Additionally, inconsistent
national and local laws relating to wildlife prohibitions can be
concerning African elephants that would limit imports of
exploited by traffickers. Structural conditions of conflict,
sport-hunted trophies and restrict the forms and amounts
corruption, poverty, demand, lack of public awareness, as well as
of ivory that can be legally imported, exported, and traded
other environmental pressures can contribute to wildlife losses.
domestically. Several U.S. airlines have stopped
Who are the poachers? Profits from wildlife trafficking can
transporting selected African big game hunting trophies.
sustain non-state armed groups and criminal organizations that
In December 2015, FWS announced the listing of two
undermine the rule of law and regional security. Poachers
subspecies of lion under the ESA: Panthera leo leo
reportedly include militias operating in Democratic Republic of
Congo (DRC) and the Central African Republic (CAR);
(located in India and western and central Africa) and
Congolese, Ugandan, Sudanese, and Tanzanian militaries; and the
Panthera leo melanochaita (located in eastern and
Sudanese Janjaweed and related gangs operating between Sudan,
southern Africa). Concurrent with the final listing rule,
Chad, CAR, and Niger. In September 2015, National Geographic
published in the Federal Register, FWS also issued a
reported that the Lord’s Resistance Army (LRA), an armed
Director’s Order to strengthen enforcement of wildlife
group active in Central Africa, is resupplying its forces, in part,
permitting requirements.
through elephant ivory sales. Observers have also debated the
possible role of the Somali terrorist organization Al Shabaab.
U.S. support for anti-wildlife trafficking efforts abroad
How much is the illegal wildlife trade worth? According to
focuses on species range countries, including in Africa;
estimates by conservation groups, a kilogram of raw ivory can be
trafficking transit hubs; and countries with high demand.
worth as much as $2,100, while a kilogram of rhino horn can be
U.S. agencies involved in such programs include the
worth $65,000.
Departments of State, Interior, Justice, and Defense, as
well as FWS and the U.S. Agency for International
International Responses
Development (USAID). Efforts support international
conservation and biodiversity goals, including law
The primary international treaty that regulates wildlife trade
enforcement and prosecutorial activities. For FY2016,
is the 1975 Convention on International Trade in
Congress appropriated $80 million to combat wildlife
Endangered Species of Wild Fauna and Flora (CITES). 181
trafficking in State, Foreign Operations, and Related
states, including the United States, are parties to CITES.
Programs appropriations (Div. K, P.L. 114-113).
Roughly 5,000 animal species and 29,000 plant species are
subject to permitting requirements under CITES, depending
Congress has held hearings addressing wildlife trafficking
on the extent to which they are at risk of extinction.
in Africa, and several poaching-related bills have been
introduced. Such bills in the 114th Congress include the
African elephants are generally prohibited from
Wildlife Trafficking Enforcement Act of 2015 (S. 27); the
international trade under CITES, with some exceptions. For
Targeted Use of Sanctions for Killing Elephants and
example, a limited number of elephants may be hunted for
Rhinoceros Act of 2015 (H.R. 1945); the Eliminate,
the purposes of noncommercial export of personal sport
Neutralize, and Disrupt Wildlife Trafficking Act (S. 2385);
trophies in Botswana, Namibia, South Africa, and
and the Global Anti-Poaching Act (H.R. 2494), which
Zimbabwe. Rhino species are subject to the strictest bans on
passed the House in November 2015.
international trade, with the exception of white rhinos from
South Africa and Swaziland, for which limited trade in live
For more information, see CRS Report RL34395,
animals and the export of hunting trophies are permitted.
International Illegal Trade in Wildlife: Threats and U.S.
During Chinese President Xi Jinping’s visit to Washington,
Policy, by Liana W. Rosen and Pervaze A. Sheikh; CRS In
D.C. in September 2015, China and the United States
Focus IF10274, Status of the African Lion and Sport
jointly committed to “enact nearly complete bans on ivory
Hunting, by Pervaze A. Sheikh and Liana W. Rosen; and
import and export” and to take “significant and timely steps
CRS Report RL32751, The Convention on International
to halt the domestic commercial trade of ivory,” according
Trade in Endangered Species of Wild Fauna and Flora
to a White House Fact Sheet about the visit. In October
(CITES): Background and Issues, by Pervaze A. Sheikh and
2015, U.S. officials announced that the Chinese ban on
M. Lynne Corn.
commercially traded ivory could be in place within a year.
Liana W. Rosen, Specialist in International Crime and
Selected U.S. Responses
Narcotics
Pervaze A. Sheikh, Specialist in Natural Resources Policy
In July 2013, President Barack Obama issued Executive
Alexis Arieff, Specialist in African Affairs
Order (E.O.) 13648 on combating wildlife trafficking. It
Lauren Ploch Blanchard, Specialist in African Affairs
directed federal agencies to enhance efforts to address the
Tomas F. Husted, Research Assistant
problem, established an interagency Task Force on Wildlife
Trafficking to address wildlife trafficking. In February
IF10330
2014, the Obama Administration released a National
Strategy for Combating Wildlife Trafficking, which
https://crsreports.congress.gov
Wildlife Poaching in Africa: An Overview
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF10330 · VERSION 3 · UPDATED