Two thirds of the Parties (signatories to CITES) will need to agree to the proposal, and some areas, such as the EU, vote as a bloc, making it essential to have their support.
Consultation with other range States of the species is a requirement – refer to Resolution Conf. 8.21
Any such application will need to be accompanied by reliable and valid population information as well as information pertaining to the proposed trading system and the monitoring and enforcement of this, the identification and approval of the trading partner, and a system for the application of funds raised in horn trade to conservation;
No proposal will be considered unless a) there is a national integrated permitting and data base system in place (to confirm legal origin) and b) a full list of stockpiles with DNA referencing complete;
The supporting statement from South Africa must include species and populations characteristics, status and trends, threats, utilisation and trade, review of legal and management systems and species management plans.
If a process similar to the African elephant is followed, a CITES Panel of Experts (PoE) could then be convened to verify the information provided in the proposal with reference to the viability and sustainability of the population and threats; South Africa’s ability to monitor the population; the effectiveness of current anti-poaching measures; South Africa’s ability to control the trade and; whether law enforcement is sufficient and effective, inter alia. Subsequent to information gathering, the PoE will report to the COP and a two thirds majority vote will be needed to approve the request.
The Parties meet every three years and the next meeting is in Thailand in March 2013. At this point, South Africa is unprepared to make any submission to amend its annotation to include trade in rhino horn. However, there is provision in the CITES agreement for representations to be made by a Party for changes to the listings outside of/in the time in between, the Conferences of the Parties (COP) meetings.
from here: under 8.1.1
RIM report