1(38)
2011-02-11
Draft 1
Working Group 1 Prevention, Task Group 1. Priority Species and habitats including intentional introduction, spread and holding of invasive alien species
GENERAL COMMENTS (M. Kenis; ):
-Because of a lack of time before the deadline, I made comments rather than proposing new text. However, I am willing to help for the writing up as well if my expertise in terrestrial invertebrate invasion is needed (but see the next point below)
-So far, the report deals nearly exclusively with intentional introductions or escapes (mainly vertebrates and plants), while these now represent a minority of the introductions (the main issue re. IAS in the future will definitely be how to deal with unintentional introductions). I was not at the first meeting and it seems that it was suggested that the focus of task 1 was mainly on intentional introductions while unintentional introductions are rather covered in task 2 (indeed, unintentionally introduced organisms such as most invertebrates and micro-organisms are better approached through pathways rather than through lists of priority species). However, all black lists and priority lists are also largely composed of species that are typically introduced accidentally (e.g. most invertebrates and pathogens). So, I feel that this aspect should be better covered here.
-I found the list definitions rather confusing and several apparent contradictions in the text (see specific comments). The confusion also comes from the fact that they do not really match the definitions used in national black lists. Regarding these lists, I wonder whether it will be ever possible to agree on definitions via this working system on draft reports and e-mails. Maybe a meeting among those involved in national and regional black lists would be useful. To avoid extra costs, what about a meeting in Brussels the day before the second meeting? (although it would be easier to have such discussions as soon as possible). Such meeting could also cover risk and impact assessment methods to build these lists (clear overlap with task 3 in this case).
Summary
Regulation of Import of Invasive Alien Species
1.Introduction
2.Definitions
2.1.Proposed definitions
3.General Principles for list systems
3.1.Organization of the work with the listing system
3.2.Criteria for listing an invasive alien species on a black list
3.3.Priority Invasive Alien Species (Invasive Alien Species of EU concern)
Alternative 1. Mandatory measures for prevention, monitoring and/or management measures for priority IAS
Alternative 2. Voluntary measures for prevention, monitoring and/or management measures for priority IAS
3.4.Alert lists
4.Regulation of Import of Invasive Alien Species
4.1.Alternative 1. Based on Option C. Dedicated EU regulations on invasive alien species
4.2.Alternative 2. Based on Option B Maximising use of existing approaches and voluntary measures
5.Regulation of intra-EU movement (movement within the EU)
Alternative 1. Option C. Establishment of protected areas from IAS, requires a dedicated EU regulation
Alternative 2. Option B+ Based on Option B Maximising use of existing approaches and voluntary measures
6.Regulation of release to the natural environment
7.Regulation of holding or keeping of invasive alien species
Alternative 1. Option C Requires a dedicated EU regulation
Alternative 2. Option B+ Based on Option B Maximising use of existing approaches and voluntary measures
8.Priority habitats – Ecologically vulnerable ecosystems
9.Horizon scanning
10.EU Outermost regions and Overseas Countries and Territories
11.References
Annex 1. SEBI200 List of the Worst Invasive Alien Species threatening biodiversity in Europe
Annex 2. DAISIE List of 100 of the Worst Invasive Alien Species in Europe
Summary[K1]
The purpose of this report is to suggest ways to develop a structured framework to manage pathways into, within and from the EU, focused on prevention and rapid response at the appropriate biogeographic scale. Priorities when designing regulatory systems should be given to those alien species that cause harm or have the potential to harm biological diversity and/or ecosystem services within the EU countries. Priority should also be given to those species in which there is a real possibility of measures halting the introduction and spread of invasive alien species. Science-based, transparent, and replicable risk assessments that use the best available information should be the basis for determining what measures should be taken to ensure the prevention of harm by invasive alien species, which invasive alien species entail risks and what habitats have the greatest need for protection from IAS.
Definitions
We propose to use the definitions developed within the IUCN and Convention on Biological Diversity within this context of a EU Strategy to combat invasive alien species. These definitions, although not perfect in many ways, are nonetheless agreed upon by more than 180 countries and many international organisations. Work is in progress within the IUCN to revise and refine the definitions pertaining to alien species, but until this work is completed, we offer the solution of using the definitions as they are and provide explanations to clarify them.
We propose, in keeping with the overall objective of the EU Strategy for combating invasive alien species, that the definition of invasive alien species includes those alien species that threaten biological diversity and/or ecosystem services. Ecosystem services are ecosystem functions that provide supporting, provisioning, regulation and cultural services. Ecosystem services the basis for human, animal and plant health, as well as socioeconomic and economic values.
General Principles for list systems
Any measures that have implications for trade, that is could be interpreted as establishing a barrier or prejudice to trade or hinder the free movement of goods, must be clearly motivated by scientifically based evidence that there is a risk for plant or animal health, A scientifically based, open and transparent risk assessment of the potential harm that an invasive alien species may have is a crucial foundation to any proposed measure. It is extremely important that capacity to perform risk assessments is improved within the EU and member states, human health and/or biological diversity and/or ecosystem services.Regard must be taken to international standards where developed and when relevant. However the precautionary approach, as used within the CBD, should be a key feature of the regulations for import, possession and release to the wild due to gaps in knowledge and difficulties in predicting which alien species can become invasive and what the consequences will be for biodiversity, ecosystem services, human health or socioeconomic vales.
In the context of the EU Strategy for combating invasive alien species, we propose that the black/grey and white lists are developed and used to for regulatory measures prevent the introduction, establishment, spread and negative effects of invasive alien species. To achieve this, it will be necessary to use the lists in control of the import, intra-EU movement, holding and release of invasive alien species. This requires an en extremely robust system based on solid science, risk assessments and a clear legal basis.
A list system includes:
- Black list –Species whose introduction is strictly regulated, following a risk assessment prior to species listing.
- White list –Species assessed as low risk go biodiversity and/or ecosystem services following a risk assessment and that can be managed without moderate or serious harm to biodiversity
- Grey list – any species not listed on a black or white list or which is data deficient. Species in which scientific knowledge is limited or lacking on which to do a risk assessment, species to be tried on a case-by-case basis.
- Alarm list (Observation list) – Invasive alien species that have a potentially serious effect on biological diversity and/or ecosystem services that are not yet present in the wild within the EU or a region of the EU.
- Priority Invasive Alien Speciesof EU concern – invasive alien species that threaten biodiversity and/or ecosystems that are prioritized for prevention, eradication, control or containment measures.
Criteria for listing an invasive alien species on a black list
Criteria for placing an invasive alien species on a black list should be that the species has or may have a serious impact on biodiversity and/or ecosystem services in the EU. The species should be either not be present within the EU or is possible to eradicate.
There are a several lists of “worst invasive alien species in Europe” that could be used as a starting point for designating species to be placed on black lists or not to be placed on white lists:
-the European Plant Protection Organisation lists for plant pests and invasive alien plants
-the EU Animal Health services have lists for animal pathogens and parasites,
-the SEBI2010 list of 166 worst invasive alien species threatening biodiversity in Europe.
-The DAISIE list of 100 worst invasive alien species in Europe
The experience and expertise of these and other relevant organisations should be brought into the work.
Priority Invasive Alien Species
The purpose for identifying priority invasive alien species is to identify those species that are a priority to prevent the introduction of, spread and establishment of, and to prevent its negative effects on biodiversity and/or ecosystem services. The selection process for priority invasive alien species should be based on risk scoping procedures. If legal measures are to follow the designation of a priority IAS species, a risk assessment will be required.
Priority invasive alien species have or potentially have serious effects on biodiversity, ecosystem services, human health or socioeconomic values (high or moderate level of consequences for biological diversity and ecosystem services). These species may occur within the EU. This category could include invasive alien species that limits in import or intra-EU movement will probably not lead to a halt in their further introduction and spread. Invasive alien species that are widespread and not possible to eradicate from the EU or even regions of the EU, but have serious effects that motivate coordinated monitoring, control or containment measure could also be a priority species.
The true value of a system with designating priority invasive alien species would be to have listing on biogeographic, national and/or local levels to ensure that vulnerable habitats and species are protected from invasive alien species. The biogeographic approach, although difficult to implement, is crucial in many cases to ensure transboundary cooperation in preventing the secondary introduction and spread of invasive alien species.
Alternative 1. Mandatory measures for prevention, monitoring and/or management measures for priority invasive alien species
This alternative will require the development of a dedicated EU invasive alien species regulation if it is to be applied to species other than are already covered by the Plant Health Regime, Animal Health and Welfare Regimes, the Wildlife Trade Regulation or the Wildlife Trade Regulation.
Regulation of Import of Invasive Alien Species
The preferred option that would provide the maximum level of protection of biosecurity is the white list approach for all organism groups. This would mean that import to the EU (including the outermost regions)would be limited to specifically identified species. Alien species that are not yet listed would be subject to a risk assessment and based on the finding be either assigned to the black list, (species that pose a serious threat to biodiversity and ecosystem services), to the grey list in which case-by-case decisions would be made or to the white list. The white list approach may initially be the most resource demanding alternative for member states and the EU as a whole, as the black list approach has until now been the basis for the EU regimes on plant and animal health. Making institutional adjustments in approach would be challenging both in administrative and legal contexts.
However, we propose a more pragmatic approach to dealing with import of invasive alien species by adopting a mixed listing scheme – a combination of the black list and white list approach. For animals and aquatic living organisms, a white list approach would provide the most acceptable means of dealing with the risks of invasive alien species and ensuring a good level of protection for biodiversity and ecosystem services. Only alien animal and aquatic species specifically listed on a white list would be permitted to be imported to the EU and the EU’s overseas regions. For terrestrial alien plant species, the adoption of a black list approach would be an acceptable compromise between the need to protect biological diversity and ecosystem services and adjusting the necessary work load to deal with the lists and permits for import to an acceptable level.
For overseas territories, adopting a white list approach is motivated in order to provide a reasonable protection of biological diversity and/or ecosystem services.
Alternative 2. Based on Option B Maximising use of existing approaches and voluntary measures
Under existing regulations within the EU acquis, it would only be possible to adopt the black list approach for invasive alien species that fall into categories covered by the Plant Health, Animal Health and Welfare Regimes and the Wildlife Trade Regulation. A white list approach is used for species used in Aquaculture Regulation. Mandatory measures for prevention, eradication, control or monitoring are based solely on criteria within these regimes.
Regulation of intra-EU movement
The need to regulate the intra-EU movement could be in cases in which a region of the EU is more threatened by a certain invasive alien species and requires a greater level of protection.In order to control the intra-EU movement of invasive alien species, a biogeographic approach would need to be adopted.
A model that could be considered in the development of areas to be protected from the introduction and spread of invasive alien species is the system with “protected zone” approach used in the Plant Health Regime. Regulations in trade would need to be accompanied by stringent management provisions. A problem with using a biogeographic approach is that legal mechanisms exist only at the EU and MemberState levels. One could adopt a regional approach similar to that used in HELCOM cooperation, in which the member countries develop mutual agreements that are then implemented in national strategies, objectives and regulations. Within a country, local conditions and values that have especially high need for protection (i.e. islands, vulnerable habitats, endangered speciesand pristine river basins) should also be considered for consideration as “protected zones”.
Black lists will need to be developed for the regions and countries within the EU that require protection from the intra-EU movement of indicated invasive alien species. The criteria for selecting the species should be that the invasive alien species has or may have a serious impact on biological diversity and/or ecosystem services, human health or socioeconomic values”. The species may be present in the EU and even in the region that wishes protection from intra-EU movement. But if the species is present, measures must be taken to eradicate the species. However, we propose to extend the time period allowed to prove that the eradication measures are effective to 5 years (instead of 2) because of the difficulties of eradicating invasive alien species.
Alternative 2. Option B+ Based on Option B Maximising use of existing approaches and voluntary measures
The current practice of designating “protected zones” that is used for plant health and animal health would continue to be used for relevant invasive alien species.
Regulation of release to the natural environment
A white list approach for release to the natural environment will provide the necessary protection to biological diversity and/or ecosystem services. This means that all release to the natural environment is prohibited unless permission is granted. Even for alien species white listed species, permission will be required for release in order to ensure that the risks to the specific receiving environment are able to be managed in an acceptable manner. A dedicated EU regulation on IAS is not required to adopt a white list approach for release to the environment, but would strengthen the possibilities for countries to increase their protection against invasive alien species. The prohibition of general release to the semi-natural and natural environment is possible to maintain under present regulations. It is already a common practice in a number of EU countries to require permission for release. It would be of great value to biodiversity, a more efficient use of resources and cost-effective if all EU countries had a similar policy for release, as invasive alien species do not respect borders.
Regulation of holding or keeping of invasive alien species
Alternative 1. Option C Requires a dedicated EU regulation
The possibility to hold an invasive alien species would depend upon the status of a species in the black/grey or white lists, the Alert List and/or the list of priority species according to this option. Black listed species, that is species that are not allowed to be imported to the EU and/or for intra-EU movement would be prohibited from holding. For species listed as priority species, holding could be subject to a permit, with the possibility to impose conditions for holding. This would be regulated at the biogeographic, national and regional levels. The purpose of the permit system is to ensure that the species in question does not escape from holding or is not unintentionally or intentionally released to the natural environment. Grandfathering schemes will be necessary in order to gain acceptance for new limitations on sale and holding of invasive alien species.
Alternative 2. Option B+ Based on Option B Maximising use of existing approaches and voluntary measures
Holding can be subject to national and local regulations.
Priority habitats –Ecologically vulnerable ecosystems
There is a need to identify especially vulnerable ecosystems, habitats and species that should be a priority to protect from the introduction, establishment and negative impacts of invasive alien species.
Vulnerable ecosystems have been identified as:
-Isolated ecosystems with many endemic species have been identified as especially sensitive and vulnerable to invasions.
-Islands
-Aquatic environments including freshwater, marine environments, estuaries and brackish water areas.