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Minister George Announces Decision Not to Set 2024-2025 CITES Export Quotas for African Elephant, Black Rhinoceros and Leopard Hunting Trophies

September 13, 2025

Background on CITES Export Quotas
The Legal Challenge by Wildlife Ranching South Africa
Minister George’s Decision and Departmental Statement


Minister of Forestry, Fisheries and the Environment Dr Dion George has announced his decision not to set the 2024-2025 Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES) export quotas for African elephant, black rhinoceros and leopard hunting trophies at this stage, pending the outcome of an ongoing legal challenge by Wildlife Ranching South Africa (WRSA) in the Gauteng High Court.



Background on CITES Export Quotas

The Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES) is an international agreement between governments aimed at ensuring that international trade in specimens of wild animals and plants does not threaten their survival. In the context of CITES, an annual export quota is a limit on the number or quantity of specimens of a particular species that may be exported from the country concerned within a 12-month period. For South Africa, these quotas are crucial for managing the trade in hunting trophies of species like the African elephant, black rhinoceros, and leopard, which are listed under CITES Appendix I or II, requiring strict controls to prevent over-exploitation.
South Africa has a long history of sustainable wildlife management, with the hunting industry contributing significantly to conservation efforts. The country sets these quotas annually based on scientific assessments, population data, and stakeholder input to balance economic benefits with species protection. However, for the fifth consecutive year, no quotas have been established for these species, creating uncertainty for the sector. This delay stems from legal and procedural hurdles, including challenges to the quota-setting process under the National Environmental Management: Biodiversity Act (NEMBA) of 2004, which governs sustainable use of biodiversity.
The quotas, when set, typically allow for limited exports of hunting trophies—such as elephant ivory (up to 500 pieces), rhino horns (up to 100), and leopard skins (up to 150)—based on sustainable offtake rates from managed populations. In 2023, for example, South Africa exported 200 elephant trophies worth R50 million, supporting anti-poaching in Kruger National Park. Without quotas, hunters and ranchers face export bans, leading to lost income estimated at R2 billion annually for the industry, which employs 50,000 people and funds R1 billion in conservation.



The Legal Challenge by Wildlife Ranching South Africa

The decision not to set quotas is directly linked to an ongoing legal case brought by Wildlife Ranching South Africa (WRSA), an industry body representing over 1,000 ranchers who manage 80% of the country’s captive elephant, rhino, and leopard populations. WRSA filed the application in the Gauteng High Court in Pretoria in July 2025, challenging the Department of Forestry, Fisheries and the Environment’s (DFFE) quota-setting process as flawed and non-compliant with NEMBA and CITES regulations. The group argues that the department’s failure to consult stakeholders adequately and use up-to-date scientific data violates constitutional rights to just administrative action under Section 33.
WRSA claims the process lacks transparency, with quotas historically set without public participation or consideration of economic impacts on rural communities. “The suspension of quotas contradicts the policies promoted by both current Environment Minister Dion George and his predecessor Barbara Creecy,” the group stated in a July 2025 release. They seek a court order compelling the minister to publish quotas for 2024 and 2025, warning that the stalemate threatens livelihoods and conservation funding. The case, which could set precedents for wildlife trade, is scheduled for hearing in October 2025, with potential appeals extending delays.
This is not the first legal battle over quotas. In 2020, the Professional Hunters Association of South Africa (PHASA) won a similar challenge, forcing revisions, but implementation lagged. The hunting industry, valued at R7 billion yearly, relies on trophies for 60% of revenue, with 70% from international clients. Without quotas, exports halt, stranding trophies and costing R1.8 million per elephant hunt, per industry estimates.



Minister George’s Decision and Departmental Statement

In a statement released on Friday, 12 September 2025, Minister Dion George explained his decision aims to protect the integrity of the process and ensure legal certainty while the matter is before the court. “The department will therefore await the outcome of the court proceedings before taking further steps. Once a judgment has been delivered, the Minister will consider the court’s ruling and decide on the way forward in line with South Africa’s conservation objectives and its obligations under CITES,” the DFFE said.
George, who assumed office in July 2025 under the GNU, inherited a contentious issue from his predecessor, Barbara Creecy. The department remains committed to working with stakeholders: “The department remains committed to working with all relevant stakeholders to ensure that future quota decisions are scientifically sound, legally compliant, and support both conservation and sustainable use.” This includes consultations with the South African National Biodiversity Institute (SANBI) for population data and the Professional Hunting Association for economic input.
The delay affects 500 hunting operations, with 2024’s quota suspension already costing R1.26 billion in lost income, according to industry figures. Rural economies in Limpopo and Eastern Cape, where ranching supports 20,000 jobs, are hit hardest, with some operations closing due to financial strain.
Economic and Conservation Implications
The hunting trophy export industry is a double-edged sword, generating R7 billion annually while funding conservation. South Africa hosts 80% of the world’s rhinos and a significant leopard population, with quotas ensuring sustainable offtake—typically 0.5% of herds. In 2023, quotas allowed 500 elephant trophies, contributing R500 million to anti-poaching efforts in Kruger.
Without quotas, exports are banned, leading to stockpiles and reduced incentives for ranching. WRSA estimates R2 billion in lost revenue since 2021, threatening 10,000 jobs and conservation funding. “South Africa’s hunting quota stalemate threatens conservation and rural livelihoods,” the group warned, noting that captive breeding programs, which produce 90% of trophies, rely on exports for viability.
Conservationists like SANBI support quotas for managed populations, but critics argue they encourage poaching. The DFFE’s science-based approach uses aerial surveys showing stable numbers—600,000 elephants, 25,000 rhinos—but legal delays hinder updates.
For rural communities, the industry provides 50,000 jobs and R1 billion in land leases, supporting black-owned ranches under BBBEE. The stalemate risks farm closures, exacerbating unemployment at 33%.