By Nelly Kennedy Burke (2nd Year LL.B. Student)
African Rosewood under CITES: conservation, trade and compliance
The international trade in endangered species presents a significant challenge for environmental law. The Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES)1 aims to ensure that international trade in wild animals and plants is legal, sustainable and traceable, and does not threaten the continued survival of species in the wild.2
Pterocarpus erinaceus, commonly known as West African Rosewood, provides an important case study for examining the effectiveness of this international framework. CITES came into force in March 1973 and the species has been regulated by CITES since 2017. It appears in Appendix II, which regulates logs, sawn wood, veneer sheets, plywood and transformed wood.6 African Rosewood has multiple uses, but demand for traditional Chinese furniture has been the primary driver of trade in recent years.7
Prior to its regulation, African Rosewood was the world’s most traded tropical hardwood by volume, making it a significant test case for CITES.8 Generally, effectiveness has been mixed due to the emergence of sophisticated smuggling networks, which significantly threaten the survival of the species.9 This raises questions about the limitations of CITES and its ability to regulate trade where national enforcement capacity is limited.
This article explores these issues through an evaluation of Articles IV, VIII and XIII of CITES.
Effectiveness of CITES: Articles IV, VIII and XIII
First, Article IV governs the trade of species in Appendix II.10 Under Article IV(2), state scientific authorities must first produce a Non-Detriment Finding (NDF).11 This theoretically enhances the effectiveness of CITES in relation to African Rosewood because states, by producing an NDF, must prove that trade will not negatively affect the species. However, NDFs are rarely scrutinised and may be based on weak data.12 Consequently, harmful trade may continue, which undermines CITES protection for African Rosewood.
The second requirement of Article IV(2) is that State Management Authorities must provide a ‘Legal Acquisition Finding’ (LAF) to ensure that specimens have been obtained in accordance with national laws.13 This could increase CITES’ effectiveness because it aims to address the issue of illegal felling. However, in practice, LAFs are easily bypassed. For example, in 2022 Gambia had a total export ban on African Rosewood, yet trade continued because smugglers merely misdeclared shipments.14
On balance, the Secretariat identified Ghana, Mali and Sierra Leone as having made significant progress at a workshop for West African States, highlighting the feasibility of increased CITES compliance.15 Article IV(4) requires that exit permits must be checked by the receiving state.16 However, data from 2020 indicates a vast discrepancy between reported quantities exported by West African nations and received by China for Hongmu furniture.17
This suggests that Article IV’s traceability mechanism fails in practice because the West African region has limited means to verify exit permits or detect misdeclared shipments, which significantly limits the effectiveness of CITES protection of African Rosewood.
Next, Article VIII covers enforcement, confiscation and reporting by parties.18 This is effective because the threat of confiscation may deter illegal loggers. However, some fines are reportedly less than the value of the wood, highlighting the difficulty in overcoming compliance gaps as a result of regional instability.19 Therefore, Article VIII is weakened because challenges such as inadequate funding and limited technical resources impede states’ ability to closely follow reporting obligations, which reduces African Rosewood protection.
Lastly, Article XIII sets out international enforcement measures for addressing non-compliance.20 Article XIII(1) holds that where the Secretariat deems that the Convention is not being implemented, it will notify the affected parties of implementation shortfalls.21 This enhances the effectiveness of CITES because the approach gives states a chance to independently enhance their compliance. For example, Senegal amended domestic legislation in response to Secretariat concerns under Article XIII(1).22
However, other West African states, such as Gambia, have failed to implement permanent legal protection, suggesting that Article XIII(1) only functions where political will already exists.23 Under Article XIII(3), states that have received notification can present findings at the Conference of the Parties, which may suggest further recommendations.24 This increases the effectiveness of CITES because scrutiny may cause economic and reputational damage, which incentivises compliance.
Article XIII is then complemented by ‘Review of Significant Trade’ (RST), which limits non-complying states.25 In 2024, eight West African states were under RST.26 This appears effective for the protection of the species because other parties to the Convention may not trade with identified RST states. However, Rosewood-exporting states have seen continued large volumes of unlawful trade to China.27
While this demonstrates that CITES can identify problematic trade and exert a degree of pressure, such pressure is limited because it depends entirely on voluntary compliance, which renders Article XIII largely symbolic.28 Therefore, Article XIII exposes the limits of voluntary compliance mechanisms in politically unstable regions.
Overall, Articles IV, VIII and XIII reveal significant structural limitations within CITES because each provision assumes a baseline of administrative capacity and political will, which is absent in many West African states.29 While the Convention provides theoretically robust safeguards, its effectiveness in regulating African Rosewood is fundamentally limited without meaningful enforcement mechanisms.30 Consequently, the CITES framework becomes ineffective where governance issues enable continued exploitation.

Strengthening the CITES framework
First, Article IV should be reinforced through independent verification of NDFs and LAFs in high-risk regions. Many West African states lack reliable forest inventories and face widespread document fraud, meaning national authorities alone cannot guarantee credible assessments.31 External auditing would increase accountability and reduce opportunities for manipulation.
Secondly, Article VIII enforcement should be strengthened by encouraging states to adopt targeted anti-corruption measures to facilitate confiscation and penalise illicit traders. In several states, fines for illegal shipments are lower than the value of the wood, creating incentives for continued exploitation.32 Introducing randomised inspections and transparent reporting requirements would help reduce bribery and improve traceability.
Finally, Article XIII could be made more effective by enabling the Secretariat to conduct a species-wide compliance review because there has been extensive non-compliance despite RSTs.33 For states that repeatedly fail to meet obligations under Articles IV and VIII, parties should consider whether uplisting African Rosewood to Appendix I is necessary to curb ongoing illicit trade, as Appendix I protection of Brazilian Rosewood has been very effective. While not a complete solution, this would raise the evidentiary threshold for legal exports and signal a stronger international commitment to protecting the species.34
Ultimately, without addressing governance failures and enforcement gaps, CITES will remain structurally limited in its ability to protect African Rosewood.
References
1. Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES) (adopted 3 March 1973, entered into force 1 July 1975) 993 UNTS 24.
2. Ibid; What is CITES, https://cites.org/eng/disc/what.php accessed 25 June 2026.
3. CITES (n 1) Appendix I.
4. Ibid, Appendix II.
5. What is CITES (n 2).
6. CITES (n 1), ‘Leguminosae’, Appendix II.
7. UNODC, World Wildlife Crime Report 2020: Trafficking in Protected Species (UNODC, 2020), 38.
8. CITES (n 1).
9. Bandoh WKN, Adjonou K and others, ‘Towards Sustainable Management of African Rosewood in West and Central Africa: A Scoping Review of Current Research’ (2022) 24 International Forestry Review 129, 130.
10. CITES (n 1), Art IV.
11. Ibid Art IV(2)(a).
12. CITES Secretariat, Report on the Conservation and Trade of CITES-Listed Rosewood Tree Species [Leguminosae (Fabaceae)] (PC27 Doc 27, 2024), https://cites.org/sites/default/files/eng/prog/Rosewood_2024/CITES_Rosewood_report_2024_EN.pdf accessed 20 March 2026, 1, s2.3.1.
13. CITES (n 1), Art IV(2)(b). | State Management Authorities are national government bodies, who issue permits, ensure the species was obtained lawfully and record trade.
14. J Skrdlik, ’Gambia Bans All Timber Export’ (Organised Crime and Corruption Reporting Project, 2022) https://www.occrp.org/en/news/gambia-bans-all-timber-export accessed 1st April 2026.
15. CITES, Regional Workshop for Range States of African Rosewood (Pterocarpus Erinaceus), Cameroon, March 2024, <www.cites.org/sites/default/files/eng/prog/Rosewood_2024/2_African_rosewood_Background_document_EN.pdf> accessed 4th March 2026, 6.
16. CITES (n 1), Art IV(3).
17. Environmental Investigation Agency, Red Alert: Regional Rosewood Crisis Hits Malian Forests and People, (EIA, March 2022) <www.eia.org/wp-content/uploads/2022/03/EIA_US_Mali_Rosewood_Briefing_Report_0322_FINAL.pdf> accessed 15 March 2026, Fig 3.
18. CITES (n 1), Art VIII.
19. UNODC (n 7) 43.
20. CITES (n 1), Art XIII.
21. CITES (n 1), Art XIII(1).
22. Loi n°2018-25 du 12 Novembre 2018 Portant Code Forestier [Senegal Forestry Code] (12 November 2018) https://www.archives.sn/docs/lois/loi-n-2018-25-portant-code-forestier-6138 accessed 20 April 2026.
23. Baidoo A, Méral P and Ongolo S, ‘Global China Effects and Domestic Politics of Rosewood in Africa: A Realist Review’ in S Ongolo and M Krott (eds), Power Dynamics in African Forests (1st edn, Routledge 2024) Chapter 4, 98.
24. CITES (n 1), Article XIII(3).
25. CITES Notification to the Parties No. 2024/006.
26. CITES (n 1) SC79 Doc 6.2, November 2025.
27. C Costello, ‘China’s Appetite for Rosewood Is Causing Chaos in Africa’ Foreign Policy Magazine 2025, https://foreignpolicy.com/2025/09/09/rosewood-timber-africa-china-illegal/ accessed 20 April 2026.
28. Abdullahi A and Musa IG, ‘The Legitimacy of International Law: Challenges and the Emerging Issues’ (2023) 4 Journal of Global Social Sciences 14, 15.
29. Van den Bersselaar D and Decker S, ‘“No Longer at Ease”: Corruption as an Institution in West Africa’ (2011) 34 International Journal of Public Administration 74, 10-11.
30. C E Pavel, ‘The Ethics of State Consent to International Law’ (2025) 10 Global Constitutionalism 1, 5.
31. CITES Rosewood Report (n 12).
32. Environmental Investigation Agency, ‘The Rosewood Racket China’s Billion Dollar Illegal Timber Trade and the Devastation of Nigeria’s Forests’ (EIA, October 2017) https://static.us.eia.org/pdfs/Rosewood+Racket+Report+(High+Res).pdf accessed 20 March 2026.
33. Costello (n 27).
34. Biaou S, Gouwakinnou GN and others, ‘Insights from Analyzing Local Ecological Knowledge and Stand Structure for Guiding Conservation Actions for the Endangered Tropical Tree Pterocarpus Erinaceus. Poir’ (2023) 14 Trees, Forests and People.
