	Introduction

The Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES) is an international agreement among national governments. The implementation and enforcement of CITES is of interest to Congress because of the prominence of the United States in the international wildlife trade. CITES entered into force in 1975 after 10 countries ratified the agreement. There are approximately 5,600 species of animals and approximately 30,000 species of plants listed under CITES. In the United States, the implementing legislation for CITES is the Endangered Species Act (ESA; 16 U.S.C. Appendix II

According to Article II, Appendix II species are:
(a) all species which although not necessarily now threatened with extinction may become so unless trade in specimens of such species is subject to strict regulation in order to avoid utilization incompatible with their survival; and (b) other species which must be subject to regulation in order that trade in specimens of certain species referred to in sub-paragraph (a) of this paragraph may be brought under effective control. Among other things, Scientific Authorities are required to determine whether imports or exports of CITES species will have a harmful effect on the conservation status of a species; the intended facility for caring for an imported live specimen of a listed animal is adequately equipped; and import restrictions for a specimen to the country should be proposed because trade may have a negative effect on the status of the species in the wild, or because the introduction of the specimen into the country would present an ecological threat to native species. Species that are not prohibited for trade under CITES, yet are listed as threatened or endangered under the ESA, can be imported to the United States if they meet requirements of Section 10 or Section 4(d) of the ESA. The protection of species listed as endangered under the ESA and listed in Appendix I of CITES is not equivalent. CITES allows for the trade in endangered species, if trade is not detrimental to the survival of the species. For example, cheetahs are Appendix I species under CITES and listed as endangered under the ESA. Arguably, the success of CITES can be summarized with the fact that no species listed under CITES within the last 30 years has gone extinct. Some believe that penalties for CITES violations in party nations are not adequate to prevent illegal wildlife trade. Although most believe that the treaty has been effective in curbing the international trade of endangered and threatened species, some argue that many issues with implementation remain.
The Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES) has been ratified by 183 nations, including the United States. It regulates the international trade in animals and plants that may be threatened by trade. CITES entered into force in 1975 and currently regulates the trade of approximately 30,000 species of plants and 5,600 species of animals. Many believe that CITES has been a success, noting that no species listed under CITES has gone extinct in the last 30 years. Others believe that CITES, although successful, has had implementation difficulties, such as a lack of enforcement and failures to enact laws that relate to the treaty in some nations.
Protected species are organized under CITES into three appendixes. Species in Appendix I are threatened with extinction due primarily to trade, and trade in Appendix I species is prohibited for commercial purposes. Appendix II contains species that are not necessarily threatened with extinction but require controlled trade to prevent population declines. Species under Appendix III are listed because at least one country has requested other countries to assist it in regulating trade of that species.
In the United States, the Endangered Species Act (ESA; P.L. 93-205, 87 Stat. 884. 16 U.S.C. §§1531-1544) implements CITES and contains separate provisions for protecting rare foreign species. Many species listed under the ESA are also listed under CITES. However, listings under the ESA are based on several criteria that may threaten the survival of the species. Species listed under CITES are evaluated solely on the threat of trade to a species' survival. CITES might allow for the trade in a listed species if trade is not detrimental to the survival of the species, whereas the ESA might allow imports of foreign endangered species if trade enhances the survival of the species in its native country.
In the United States, the implementation and enforcement of laws related to CITES is of potential interest for Congress due to constituent interest in the protection of foreign species and as the treaty relates to the global illegal wildlife trade. Further, wildlife protection under the ESA and CITES for the import and export of particular species and their products, such as trophies for sport-hunted animals, has been of interest to Congress.