In 1992 Carter, working closely with Zambia’s Minister of Tourism, took the lead in organizing Africa’s first wildlife law enforcement officer’s conference. Meeting in Lusaka, Zambia, the group of eight nations unanimously recommended forming an African inter-governmental task force to fight wildlife crime. Carter then overcame political inertia, antagonism and meager resources to continue working on the agreement with legal advisors from United Nations Environment Program (UNEP) and the Convention on International Trade in Endangered Species (CITES).
In September 1994 leaders of six African governments—Kenya, South Africa, Swaziland, Tanzania, Uganda and Zambia—met at a ceremony opened by the president of Zambia to sign the “Lusaka Agreement.” Four nations have since taken the next step and ratified the agreement. Congo, Ethiopia and Lesotho have also agreed to sign, and each participating country has established a national enforcement bureau.
Carter’s efforts came to fruition on December 10, 1996 when under the Lusaka Agreement, the world’s first multinational wildlife enforcement body to fight wildlife crime, came into force. Since then training programs for national law enforcement officers have been held in Tanzania, Uganda, Zambia, and Ethiopia.