|
Foreword
Executive Summary
Introduction
Guiding Principles on the Management of AIS
Facilitating
coordination and cooperation between relevant agencies
Strengthening legislation
Creating Awareness
Strengthen International Cooperation
Develop Research Capacity
Develop Management Capacity
Develop
IAS risk assessment system
Field Release Trials
Information Sharing
Strengthen Monitoring
Develop an early detection system
Develop quick response system
Develop a system of economic responsibility and appropriate
penalties
Prevention Measures
Eradication programmes
Control programmes
Critical Site protection measures
GMO issue
Appendix 1: Expenses for
control and loss from alien invasive species
Appendix 2: Chinese major
laws and regulations pertaining to IAS management
Appendix 3: International
and regional legal instruments and institutions pertaining to invasive
alien species
Appendix 4: Scoring system
for assessing the level of risk posed by alien species
Appendix 5: Statement of
Risks and Concerns on GMOs
Appendix 6: Definition of
terms
Appendix 7: Activities of
the Eco-security Task Force
Foreword
Since UNCED in Rio de Janeiro
in 1992, biodiversity conservation or bio-security has been concerned
more and more by international societies. One of the focuses is the
issue of invasive alien species (IAS) and bio-security. People become
aware of the ecological damage and economic loss resulted by IAS, either
actual or potential, cannot be underestimated. Internationally, IAS
has been listed the second largest threats of the loss of biodiversity
after habitat deterioration.
Meeting the requirement
of CCICED and the need of biodiversity conservation, the Eco-security
Task Force was established with the approval of CCICED on the basis
of the work of biodiversity working group. In about 2 years, evaluation
and research of IAS and bio-security will be focused on in order to
put forward pertinent recommendations to the government.
Due to the short duration
since the Task Force established with official approval, as well as
our international members being heavily involved in Johannesburg Summit
Conference, it has been unable to hold a formal meeting of ETF dealing
with the ETF mission. This report is therefore formulated on the basis
of the study on IAS issue carried out by the former BWG and especially
a recently held Workshop on China's Eco-security and IAS Control Strategies
and Action. The participants include EFT Chinese members, one ETF international
member and one of ETF member's representative, as well as invited experts
from relative governmental sectors and international organizations.
The Secretary General and members of the CCICED secretariat also presented
part of the workshop. Therefore, the report is the result of collective
efforts by experts in various fields to a certain degree. We appreciate
their contributions to EFT and expect their further support and cooperation
in the following years.
Executive Summary
The following recommendations
emerged from the BWG/ETF's work on IAS as well as the Workshop on Invasive
Alien Species held on 23-24 October, 2002, in Beijing.
Background:
- Problems experienced
by Invasive Alien Species (IAS) affect many production and health
sectors as well as posing threats to native species, habitats and
ecosystem functions.
- Globally, IUCN now rated
IAS as the second greatest threat to global biodiversity after habitat
loss.
- Some sectors in China
are well aware of the problems and are applying good practices for
combating the threats, especially in areas of health and production
agencies whose productivity is directly affected by IAS. Less awareness
and less activity is evident with respect to the invasion of natural
and semi-natural habitats, where production losses are not noticed
and the degradation caused by IAS is gradual and less spectacular.
- China is particularly
vulnerable to Alien Invasive attack because its territory is so large
and habitats so diverse that almost any species can find a home here;
native habitats are damaged and degraded; and China is emerging as
a major global trading nation with large-scale imports of grain seed,
timber, wildlife and human visitors.
- Already several hundred
Invasive Alien Species have been recognized in China and some case
studies highlighted in the booklet produced by the task force indicate
that these are causing great hardships and economic losses.
- In USA the total damage
from these problems is estimated at more than $137 billion per year
and there is no reason to imagine the figure for China would be much
less.
1.2 Recommendations:
- China needs to develop
a national IAS strategy and embark on a comprehensive programme to
combat the threats of Invasive Alien Species.
- It is recommended that
SEPA as the national agency responsible for Convention on Biological
Diversity (CBD) affairs and overall coordinating agency on environment
should form a special IAS committee to develop this strategy, review
relevant legislation and supervise the overall programme.
- Many aspects of the
programme would be undertaken independently by the concerned responsible
sectors, but there are areas of overlap and synergy that warrant a
comprehensive approach. Moreover, solution to IAS problems requires
the cooperation of many sectors such as aviation, tourism, trade,
shipping etc. that are not themselves feeling losses due to IAS.
- The nature of the problem
is essentially international and requires close links to a number
of relevant international programmes (GISP, IPPC, CITES, CBD etc.)
and databases as well as direct collaboration with neighbouring countries
and major trade partners.
- Although GMOs are very
distinct from natural IAS, they pose similar problems with regard
to threats to native species and ecosystems. It is important to apply
similar risk assessments, and field trials before permitting field
releases and IAS should be screened just as vigorously as GMOs in
this aspect.
- Prevention of IAS entering
the country is better than cure and early response is cheaper than
waiting for major problems to develop. The focus of a national IAS
programme should be prevention, early detection and warning system,
rapid response and fast sharing of information and experiences.
- Any introduction of
alien species into China should be subject to strict risk assessment.
The level of risk acceptable should be determined in relation to the
level of benefit expected from the introduction but systems of suitable
risk assessment still need to be developed for some sectors (forestry
and natural environment).
- Tightening up on the
screening of species crossing national borders will have a secondary
benefit of reducing vulnerability to deliberate import of malicious
organisms for bio-terrorism purposes.
- Consideration of IAS
risks should be built into all types of Environment Impact Assessment.
In particular, the problems of unintended introduction of IAS should
be covered.
- Due to the wide biogeographic
variation across China, internal eco-region boundaries may need to
be manned with checkpoints to prevent internal transfers of unwanted
species.
- Considerable research
and capacity development will be required and local IAS units will
need to be established and equipped. This will require new public
expenditure.
- The following guiding
principles are recommended for the national programme :-
User pays; full social cost pricing; precautionary principle; protection
of the public interest and subsidiarity.
- A review of existing
laws and regulations needs to be undertaken. New regulations are needed
to cover gaps and loopholes in existing legislation. A new comprehensive
law covering all aspects of IAS should eventually be drafted. The
law should refer to dynamic lists of prohibited species, species allowed
for introduction and species requiring different levels of risk assessment
and testing. These lists will need constant revision and should not
be embodied within the law itself but maintained by authorized expert
committees.
Strategies
for Controlling Invasive Alien Species
in China
Eco-security
Task Force/CCICED
Introduction
"Alien species" (non-native, non-indigenous, foreign,
exotic) means a species, subspecies, or lower taxon occurring outside
of its natural range (past or present) and dispersal potential (i.e.
outside the range it occupies naturally or could occupy without direct
or indirect introduction or care by humans) and includes any part, gamete
or propagule of such species that might survive and subsequently reproduce.
"Invasive alien species" means an alien species which
becomes established in natural or semi-natural ecosystems or habitat,
is an agent of change, and threatens native biological diversity.
China is the world's third
largest country and one of the richest in terms of biodiversity. Its
vast territory stretches 5,200 km from east to west, spans 50 degrees
of latitude, and covers five climatic zones: cold?temperate, temperate,
warm?temperate, subtropical, and tropical. Consequently, it has many
types of ecosystems. A wide range of habitats and environmental conditions
makes China especially vulnerable to the establishment of invasive species
of foreign origin. Potential invasive alien species from most parts
of the world may find suitable habitat somewhere in China.
China's rapid economic development
in the twentieth century, including explosive growth in trade and transportation
systems, and especially becoming a member of the WTO, is increasing
the pathways for the introduction and spread of invasive species within
China and the introduction of new invasive species to China from other
countries. Since many invasive species have long lag times from initial
establishment until the appearance of a full?blown invasion, the full
effects of recently arrived invasive species in China may not be felt
until well into the 21st century. In the United States, the globalization
of travel and trade has facilitated introductions of invasive species
since the early days of the Industrial Revolution in the nineteenth
century. Many species that were first introduced decades ago have only
recently begun to spread rapidly in ecosystems. There has been an upward
trend in the establishment of non?indigenous species, and large numbers
of invasive species have been documented. In view of the ecogeographic
similarities between the United States and China, the U.S. situation
may be a good indication of future trends in China as China's world
trade and domestic development continues to expand.
For many years, Chinese
government departments responsible for agriculture, forestry, and animal
husbandry, as well as customs authorities, have recognised the potential
threat posed by a small number of alien species, leading to the quarantine
of alien diseases and pests. However, it was only a few years ago that
the concept of invasive species was introduced into China and the potential
threats to China's natural heritage are still not widely recognized.
This contrasts with the situation in a growing number of countries where
invasive species have become an important environmental issue.
There have already been
many studies and publications, mostly from developed countries, on alien
mammals, plants, weeds, fishes, mollusks, crustaceans, herpetofauna
and wildlife diseases, including general discussions of pathways, vectors,
the role of natural and human?caused disturbances (physical, chemical,
climatic, etc.), and the economic and environmental impacts of
invasions. The World Conservation Union (IUCN) has also established
the Invasive Species Specialist Group (ISSG) to address problems of
invasive species. The Convention on Biological Diversity (CBD), to which
China and 177 other countries are Party, calls on governments to "prevent
the introduction of, control or eradicate those alien species which
threaten ecosystems, habitats or species" (Article 8h).
However, in China, except
for the attention given those species that have created great economic
loss and damage to human health, little research on, or management of,
invasive alien species and their impacts on natural ecosystems had been
conducted. In 1999, several projects were initiated to remedy this situation.
Statistics and educational material on the status of alien species in
China and their potential to create harm have been collated and disseminated,
and control measures directed at alien species implemented. Websites,
such as www.chinabiodiversity.com and www.bioinvasion.org
have been developed to improve public awareness. Current research
estimates that there are already 600 naturalized plants species, in
which the number of actual invasives is unknown, and far more than 60
animals species that have become invasive in China. The number of alien
invasive micro-organisms and diseases has not been well enumerated but
is probably high. . Except for a few fish species that are invasive
across regions within China, these figures only count species that have
come from foreign countries,. The situation of invasive species across
regions within China is much more complicated and has been insufficiently
studied.
Alien species occur in each
of China's 34 provinces, municipalities and autonomous regions. They
occur widely in both urban and rural landscapes, and also inside protected
areas. Alien plants have been reported everywhere, except in a few remote
reserves in the Qinghai-Tibet Plateau, Hengduan Mountains, Xinjiang
and Inner Mongolia. Alien species occur in almost every watershed and
ecosystem, including forests, wetlands, grasslands, and croplands. They
are from many taxonomic groups, including mammals, birds, reptiles,
amphibians, fish; arthropods and crustaceans; algae, ferns and seed
plants; fungi, viruses, bacteria, and other micro-organisms. These AIS
have already caused great damage in China. Since China stopped logging
and is restoring vegetation in many places, IAS have become the most
important cause of ecosystem degradation and biodiversity loss. Especially
in freshwater systems and south tropical and sub-tropical regions, IAS
have been considered as the primary threat to biodiversity loss. The
damage caused by these species includes the replacement of local species,
endangerment and extinction of endemic species (It has been recognized
that introduction of alien fish was the first factor to endanger local
fishes in Yunnan), the simplification and degradation of the ecosystem,
interference with the normal functioning of ecosystems, change and destruction
of the local landscape and pollution of the local genetic pool. IAS
have threatened human health and caused economic loss to China's agriculture,
forestry, and fishery industries. A conservative estimate is that IAS
cause many 100 billion RMB worth of damage each year in China (for details
please refer to Appendix 1).
Invasive alien species
in China published by the Eco-security Task Force of CCICED has
introduced the status, and impacts of AIS, and the reasons they pose
such a threat to the economy, environment, biodiversity and human health
in China. It describes the taxonomy, identification, biology, current
distribution, original distribution, reasons for introduction, impacts
and control measures of 128 IAS in China. The book and the website created
by ETF/CCICED at www.chinabiodiversity.com, provide essential
information on the current status of IAS in China. This report is generated
from these studies, and focuses on developing a strategy for dealing
with the IAS issue in China.
China's people and government
are now facing the great challenge of controlling AIS, minimizing the
losses caused by IAS them and restoring a degraded ecosystem. Since
1999 the Eco-security Task Force/CCICED (former Biodiversity Working
Group) has engaged in a comprehensive study and impact evaluation of
invasive alien species invasive alien species . Based on these studies,
ETF/CCICED compiled the booklet Invasive alien species in China, which
is the first publication to comprehensively address the IAS issue. This
work has drawn the attention of the government and public, and has created
the scientific basis for further studies and monitoring of invasive
species. IAS is an issue which relates to many sectors, such as legislation/enforcement,
import/export administration, forestry, agriculture, husbandry, fishery,
oceanography, environmental protection, research and education. Understanding
and cooperation among these sectors on the AIS issue is key to the successful
control of AIS.
Based on these concerns,
ETF/CCICED held a multi-sectoral workshop to pursue a combined control
strategy for IAS from 23~24 Oct. 2002 in Beijing. Management sectors
attended the workshop were the State Environment Protection Agency (SEPA),
State Forestry Administration (SFA), Ministry of Agriculture (MOA),
Fishery Bureau of MOA, General Administration of Quality Supervision
, Inspection and Quarantine of the People's Republic of China (AQSIQ),
Ministry of Health (MOH), State Oceanography Administration (SOA) and
State Endangered Species Import and Export Management Office (SESIEMO).
Research institutions attending were the Insitute of Zoology and Institute
of Botany of the Chinese Academy of Sciences (CAS), College of Life
Sciences of Fudan University, Institute of Biological Control of the
Chinese Academy of Agriculture Sciences (CAAS) and the Institute of
Viral Disease of the Chinese Disease Control Center. ETF/CCICED made
presentations on the overall status of IAS in China and international
control strategies. Representatives from management agencies gave presentations
on the problems and various control strategies existing in relevant
departments. These presentations conveyed a favourable impression of
current IAS control in China. Then participants had an enthusiastic
discussion on how to strengthen management. The following report on
"Strategies on Controlling IAS in China" was generated based
on these studies and the subsequent workshop.
Guiding Principles on
the Management of AIS
User pays: Make those
responsible for the introduction of economically harmful invasive species
liable for the costs they impose. Importers could be required to take
out insurance to cover such liabilities. The government could apply
commodity taxes to cover risks incurred by the importation of alien
species.
Full social cost pricing:
Ensure that the prices of goods and services whose production or
consumption exacerbates the damage of invasive species reflects their
true cost to society.
Precautionary principle:
Precautionary measures should be taken wherever there is a perceived
risk even in the absence of complete proof. A risk should be assumed
to exist until proved otherwise.
Protection of the public
interest: Since the measures to limit damages from invasive alien
species invasive alien species are implemented mainly to protect public
interests, public funds should be used to support such programmes.
Sharing of information:
Agencies holding information about IAS risks liable to be faced
by other agencies are required to allow free access to such information
and are encouraged to maintain relevant information on open web sites.
Right of redress: Persons
or agencies facing threats or damages as a result of IAS have the right
to seek compensation from the responsible importers.
Grassroots management:
Operate policies and management at the lowest level of government
that can effectively deal with the problem.
Holistic approach: Coordinated
programmes should involve all relevant stakeholders including NGOs and
the general public.
Timely action: Prevention
is better than cure and early response is cheaper than delay.
Facilitating coordination
and cooperation between relevant agencies
The IAS issue relates to
many agencies including those responsible for legislation/enforcement,
import/export administration, agriculture, forestry, animal husbandry,
fisheries management, marine resources, environmental protection, customs,
quarantine, health, research and education. Other agencies involved
include the departments of tourism, civil aviation, transport and shipping,
army, trade, zoos, botanic gardens, wildlife breeders, food importers,
universities and normal colleges. Understanding and cooperation among
these sectors on the IAS issue is the key to the successful control
of AIS. The number of different agencies involved has resulted in serious
overlap and duplication of effort, management gaps and a sometimes unscientific
approach to IAS issues. Moreover, there is far from enough communication
and exchange of information among these sectors. Each sector usually
considers the IAS issue soley from its own perspective and fails to
recognise the potential damage to other sectors, especially the environment
and ecosystems. This often results in inadequate or no management measures
being taken.
Actions suggested:
- Establish a "National
Invasive alien species Commission" with sufficient authority.
Like the State Environment Protection Commission which serves as a
comprehensive coordination mechanism for different government agencies
on environment protection programmes, there is a need to establish
a National Invasive alien species Commission. Legislation is required
to empower such a commission. The commission would exert these rights
in the name of the State Council. The rights should include the power
to: 1) draft and revise relevant laws and regulations; 2) coordinate
relevant sectors/make decision on control strategies; 3) determine
permit systems on the importation of AIS, such as revising lists of
species to be controlled; 4) draw up and approve terms/definition
to standardize terms. Staff and tasks of the commission should be
relatively stable.
- Establish an "Invasive
Alien Species Expert Committee".
This will strengthen cooperation and have a supervisory role with
respect to scientific research. Legislation is required to give the
committee the power to evaluate, supervise and guide scientific research.
The committee will manage species lists to be managed. It will also
have the function of coordinating different sectors.
- Hold multiple-sector
workshops. Hosted by the National Invasive Alien Species Commission,
the Invasive Alien Species Expert Committee should hold at least two
workshops each year which national and international experts and relevant
sectors should attend. These workshops will prepare proposals on strategies,
actions and programmes and apply and coordinate national and international
funds. Each sector should be requested to devote a necessary proportion
of its working plan to addressing the issue of AIS.
- Strengthen information
sharing among management sectors. A Biological Diversity Convention
(CBD) Implementation Office has been established under the framework
of the CBD. This has initiated the development of a Biodiversity Information
Clearing House. The Clearing House should be greatly expanded to promote
itself as an important tool of integrating information from different
sectors, promoting information exchange both vertically from the grass-roots
to central government as well as horizontally between agencies. The
Eco-security Task Force of CCICED could be involved in facilitating
coordination and help with development of this Clearing House.
- Strengthen cooperation
with research institutions. Both national and international cooperation
and management of IAS should have a solid scientific base. Cooperation
between management sectors and ecological societies should be achieved
at all levels. In order to deal with the IAS issue more effectively,
before and during management operations, ecological specialists should
be contacted and consulted to develop specific management plans, steps
and approaches. Inappropriate management can exacerbate an invasion
or the ecological damage caused by AIS.
- Strengthen communication
and cooperation with local communities. The IAS issue is closely
related to the life style of every person. Control measures are often
implemented in areas with high levels of human activity. In inhabited
areas, the IAS issue is closely related to the interests of local
communities and the control of IAS will have a direct impact on such
communities. Therefore, effective control of IAS requires broad base
local participation. Local communities should be encouraged to work
cooperatively with IAS government agencies to deal with IAS issues.
Local people should be invited to contribute to management plans and
it should be recognized that their support is the key to the success
of these plans. Use rural spare labor, or, during the fallow season,
promote grass-roots control measures. Regional and small scale IAS
control or eradication programmes should mostly rely on local people
supported by subsidies from the government. Recruit volunteers to
promote management of AIS, establish and improve the IAS investigation
systems, reporting and response IAS at the community level. Local
people should become the front line in dealing with IAS and protecting
ecosystems. Education to combat the blind introduction of IAS and
destruction of ecosystems is another urgent requirement. Strategies
to encourage local people to become involved in this work should be
developed.
Strengthening legislation
Existing laws or regulations already address to some degree the control
of AIS. These laws or regulations are the People's Republic of China
(PRC) Animal and Plant Quarantine Law, PRC Import and Export Goods Inspection
Law , PRC Health Quarantine Law, PRC Plant Quarantine Regulations, PRC
Animal Epidemic Prevention Law, PRC Livestock and Fowls Prevention Regulation,
Agriculture GMO Safety Management Regulation, PRC Wildlife Protection
Law, PRC Oceanic Environment Protection Law, PRC Food Hygeine Law, and
PRC Plant Introduction Law (for details please refer to Appendix 2).
The major agencies resposible for implementing these laws are: the Bureau
of Import and Export Animal and Plant Quarantine, Agricultural Techniques
Popularizing Center and Plant Protection Stations of MOA which distributed
nationwide, the Forest Protection (Quarantine) Stations of SFA, and
branches of SEPA and MOA. However, the legislation and agencies mentioned
mainly focus on plant diseases, insect pests and weed quarantine. No
attention has been paid to invasive organisms that may not cause serious
economic losses in the short term but threaten ecosystems and biodiversity.
China has a vast territory containing many kinds of ecosystems. Not
enough attention has been paid to control of species movements across
ecosystems within China, and there is no regulatory mechansim to manage
regional AIS. At the same time, although China has taken some measures
to control the risk of introductions through national ports, a complete
set of IAS control systems is far from established. Little emphasis
has been placed on early prediction, supervision, control and rapid
response systems to manage invasive species risks. Thus, there is an
urgent need to develop legislation to control IAS in order to protect
ecosystems and biodiversity.
Actions suggested:
- Improve existing legislations
relevant to AIS. There is a need to evaluate and improve existing
legislation, so that it can adapt to the situation after China has
entered the WTO, and to protect both our industries and environment.
Add sections on AIS. Strengthen management of each sector especially
aspects pertaining to ecological and environment impacts from AIS.
For example, the Plant Quarantine Regulation should be upgraded to
a Plant Quarantine Law to strengthen plant quarantine within China.
Development of legislation and control plans should be done in consultation
with scientists and lawyers.
- Develop Invasive Alien
Species Management Regulation. Having reviewed existing legislation,
the Task Force has agreed that the system is not able to wholly minimize
the damage to ecosystems or economic and human health caused by AIS.
Consequently it is necessary to begin drafting Invasive Alien Species
Management Regulations, which can be upgraded into a law when appropriate.
The regulations should address the IAS problem in different regions
within China (such as among provinces) and should improve the species
introduction permit system.
- Increase the scientific
content of legislation. Develop managed species lists and risk assessment
methodology based on plenary scientific studies and information gathering.
These scientific results should be listed as appendices to laws or
regulations and serve as references for the implementation of legislation.
Laws should be stable for a relatively long period, but the appendices
should be updated regularly to keep abreast of advances in scientific
knowledge and changing conditions.
Creating Awareness
In the past 50 years, environmental
education has helped the public realize the impact of human civilization
on the natural environment. There have already been many measures implemented
to protect the environment such as measures for the prevention forest
fires, reducing chemical and waste pollution, recycling, etc. The new
environmental ethic has already effectively changed people's behaviour
and IAS education has become a new field in environmental protection.
As we know, IAS is closely related to human activities. Human transportation
is the key channel for the spread of IAS , therefore peoples' habits
and lifestyles are an integral part of the IAS issue. Today, most people
know that they should not do activities which will cause chemical or
physical pollution. However, most people remain ignorant of the environmental
risk posed by carrying or introducing AIS, and the casual release of
alien animals remains a major problem in some parts of the world. People
should be educated to notice, report and tackle IAS problems. Awareness
of the nature and scale of the problem and the respective responsibilities
of many sectors of society needs to be increased by a widely ranging
programme consisting of the following elements.
Actions suggested:
- Establish a new biosafety
prevention ethic. Widely increase public awareness of the risks
posed by IAS and the importance of maintaining biosafety, so that
everybody will be conscious of the potential of spreading IAS through
their own activities. Each sector and individual should recognise
they have a responsibility to control IAS and establish a new ethic
which will help prevent the unintentional introduction of AIS. Try
to use local species wherever possible. Develop a National Invasive
Alien Species Information System to provide information and technological
assistance through a network or other channels. Mobilize the public
to help the early detection of new alien species and reporting any
such recent invaders to the relevant institutions.
- Make IAS education
part of the school and university curriculum. Build an education
base by promoting relevant education in primary and middle schools.
Knowledge on controlling IAS should be added to courses on the natural
sciences in primary and middle schools throughout China to increase
public awareness. Various activities could be encouraged. For example,
"Biosafety week" or "Biosafety interest groups"
could be established in addition to training workshops, field studies
of typical invasive species, writing short scientific papers, collecting
alien species specimens and so on. There are already ecosystem and
environment relevant specialist courses in universities and colleges.
These institutions should regard the training of specialists to deal
with IAS issues as a long-term task. Normal universities should set
bio-security education as a basic course. Academies should take in
graduate students and Ph.D candidates to major in IAS studies, and
send scholars to overseas institutions study IAS problems and management.
Faculties of environment protection, nature resources, economic trade,
legislation and administration, should also include relevant aspects
of IAS management in their own training courses.
- Fully utilize mass
media: The mass media are the most efficient means of promoting
public awareness. Radio, television, films, newspapers, magazines,
electronic publications, websites etc. can all be used to increase
public awareness. Government agencies and NGOs should organize various
activities and use the media effectively to publicize these. Use public,
easily accessed and attractive approaches, such as education courses
or public display boards. Establish education stations in ecologically
vulnerable sites, provide various education materials, and make sure
that every family is aware about the IAS risk at these sites. Take
advantage of World Environment Day, Earth Day, International Biodiversity
Day and other relevant commemorative days and important conferences
to conduct intensive education programmes. In urban areas, establish
long term education IAS display panels in scenic spots, zoos, wildlife
parks, botanic gardens, and aquariums. Various protected areas including
nature reserves, world heritage sites, and scenic spots should include
IAS public awareness as one of their long-term tasks. Ecologists and
biologists should also be actively involved in disseminating information
and educating the public about AIS.
- Conduct high-profile
media events to stimulate public interest: conduct well publicised,
attention-grabbing projects and action programmes to draw the attention
of the public. Mobilize artists and scientists to work together, and
present the IAS issue in media-friendly ways. Create a strong public
voice in society and increase public pressure on those responsible
for IAS management, especially the relevant officials at various levels
of government. Refer to positive and negative case examples to improving
public awareness of how IAS threats should and should not be managed.
Strengthen media and public scrutiny of IAS management, praise best
practices and expose illegal behavior. The objective of public education
is to make society aware that the IAS issue is a basic component of
bio-safety, and that managing the IAS threat depends on the vigilance
and voluntary cooperation of the entire community.
- Hold various training
courses. Ecological research and education institutions should
be in charge of providing training materials; conservation and management
experts should be engaged in preparing training plans and teaching
materials. Training methods must be enjoyable and flexible to suit
different situations. Course contents should be both specific and
practical. If possible, training should be conducted locally, and
integrated with the local situation. Relevant local people should
be heavily involved. There should be special in-service training courses
for local government planners and officials.
- Public access to
information. Since
the public has the right to obtain relevant information it is necessary
to establish channels to effectively disseminate such information.
These could include an IAS telephone "hot-line", research
institutes, and public web sites. Bulletins should be active and on
time.
- Shared experience:
international exchanges of experience, information and expertise
- Promote NGO's role
on education.
Strengthen International
Cooperation
The IAS issue is a global
issue that transcends national borders. Therefore, controlling IAS inevitably
involves international trade, customs, quarantine, etc., all of which
will have impacts on the economy and international relations. Control
techniques (for example, the introduction of natural enemies of AIS)
will require international cooperation and research. It is necessary
to share information and cooperate with neighboring countries, especially
in Southeastern Asia. Some species (Crofton Weed (Eupatorium adenophorum))
entered China either naturally or through human activity from Southeastern
Asia. Many IAS in southern China are also spreading into Southern Asia.
Therefore, it is necessary to maintain clear lines of communication
with these countries to ensure information sharing and coordinate management
of IAS threats.
Action suggested:
- China should fully participate
in relevant international initiatives. These include: the Convention
of Biological Diversity, Cartagena Protocol on Biosafety, United Nations
Convention on the Law of the Sea, Ramsar Convention (Wetlands of International
Importance), Convention on Migratory Species of Wild Animals (Bonn),
International Plant Protection Convention, Plant Protection Agreement
for the Asia and Pacific Region, Agreement on the Application of Sanitary
and Phytosanitary Measures, International Health Regulations, Agenda
21, Code of Practice on the Introductions and Transfers of Marine
Organisms, Code of Conduct for Responsible Fisheries, Code of Conduct
for the import and release of exotic control agents, Prevention of
the Introduction of Invasive Alien Species resolution of the International
Civil Aviation Organisation, Convention on International Trade in
Endangered Species of Wild Fauna and Flora, Global Invasive Species
Programme, and etc. (for details please refer to Appendix 3)
- China should enter into
special cooperation agreements with its many land neighbours and nearest
marine neighbours. ASEAN countries are currently developing an ASEAN
Regional Strategy on Invasive Alien Species and are keen to include
what they term ASEAN plus 3 (China, Korea, Japan).
- Strengthen cooperation
with trade inter-transfer ports, such as Hong Kong, Macao and Taiwan.
- Invite involvement of
IAS international experts in drafting relevant law.
- International experts
should be invited to assist with training relevant staff and to exchange
information and experiences
Develop Research Capacity
Greater research effort
should be diverted to solve several urgent IAS problems:
Action suggested:
- Improve facilities and
establish technical bases for controlling AIS. Develop national alien
species information and data collecting nodes and an information sharing
mechanism. Gather information and fill gaps where basic information
is lacking. Develop an Invasive alien species Information System and
form the base for management decision-making. Establish an alien species
identification center, setup required equipment and form academic
groups focused on dealing with the IAS threat. Develop research institutes
and mechanisms for cooperating on the IAS issue.
- Strengthen fundamental
studies. Basic
scientific studies form the foundation for controlling AIS. For example,
Flora of China and Fauna of China should be revised, and amended by
inclusion of material on AIS. Promote greater taxonomic skills particularly
parataxonomy at local levels so that people can spot IAS or notice
the appearance of new species in their environment. Conduct systematic
surveys, region by region and sector by sector to get a comprehensive
understanding of the IAS situation IAS in China. Build basic information
interfaces and initiate monitoring. Conduct further studies on the
impacts of IAS on ecosystems and the environment. Conduct studies
on the relationships between human activity, climate, land-use and
the spread of alien invasive species. Identify key habitats and localities
that require special protection from the threat of alien invasives.
Identify key zoogeographic barriers where intra-national controls
on the movement of species should be applied.
- Strengthen studies
on relevant methodologies, criteria and guidelines. Develop standards
of IAS management, incorporate international technical criteria appropriate
to the Chinese situation, and develop national or sector criteria
for investigation, monitoring, evaluation and management. Develop
suitable risk assessment methodologies for respective sectors. Develop
sound field trial methods and criteria for different taxa. Develop
suitable field monitoring and reporting methodologies for different
sectors. Develop and test appropriate technologies for the containment,
eradication and control of different invasive species. Develop specific
safety tests for GMO's. Develop methodologies for habitat restoration.
Develop better screening procedures to exclude alien species from
packing materials, ballast water, ships' hulls, luggage etc.
Develop Management Capacity
Control and management of
IAS requires high quality, efficient and progressive personel. Therefore,
there is an urgent need to improve the quality of managers at all levels,
and establish management teams qualified to deal with AIS.
Action suggested:
- Strengthen institutional
and system development. Form cross-sector working teams and committees
at different levels. Establishing IAS specialist positions in natural
resource management agencies. Develop monitoring and reporting as
part of an early warning system. Develop rapid response mechanisms
appropriate to different sectors.
- Provide Traing.
Training in parataxonomy is needed so that field teams can undertake
monitoring of indicator species and detect alien species in local
environments. This should include: the training of customs and quarantine
staff in recognition of potentially dangerous or banned species, design
and introduction of new materials into education and training programmes,
training of local teams in environmental restoration techniques, inclusion
of IAS aspects in Environmental Impact Assessments, training in risk
assessment and field trials, improved data management and information
access and familiarisation with international programmes, initiatives,
terminology and standards.
- ? Management capacity
requires urgent strengthening in several sectors especially at the
local level.
Develop IAS risk assessment
system
The degree of risk posed
by an alien species needs to be estimated by conducting risk assessment
prior to authorizing release. Consequently, an invasive risk assessment
system is urgently needed. This system should be based on characteristics
of alien species and determine the risk of a given species establishing
itself in the wild. The risk assessment system can be part of the introduction
permit system, but should also be used by local management departments
to manage local alien species, detect potential IAS threats, identify
species that require monitoring, develop control strategies and promote
awareness. Risk Assessment forms the basis for granting or not granting
permission to import, introduce or release alien species or undertake
activities considered to have a risk of accidentally introducing or
inviting alien species invasion.
Risk Assessment has several
components - health risks; threats to productivity; threats to local
wildlife and biodiversity; risks of causing environmental damage or
loss of the ecological services of ecosystems. This may require different
kinds of screening and assessment by different concerned sectors but
two major components will generally be: 'What is the likelihood of this
species becoming invasive in the environment?' and 'What type of damage
or loss could such a species cause?'. Being found to be a low risk to
one sector does not imply that a species has no risk to other sectors,
and being found to be of low risk in one region does not imply that
the species will also be low risk in different regions or ecosystems.
Currently, some relevant
departments have established Risk Assessment Systems. The SQCA has conducted
Pest Risk Analysis (PRA) since 1980, and its plant PRA work is in the
ahead of the global plant quarantine field. It has developed qualitative
and quantitative risk assessment procedures incorporating GIS software,
and has created technical bases for quarantine management agencies.
The MOA has organized an agriculture research institute and academies
and SFA has also organized the Chinese Academy of Forestry and other
research institutes to conduct risk assessment. SEPA has organized the
Nanjing University and other environmental protection research institutes
to establish a risk assessment system. The ETF/CCICED has also draft
a risk assessment system (Appendix 4: Alien Species Invasion Risk Index
System). The participants agree that the system should primarily "assess
the risk of alien species becoming established in the wild" instead
of focusing on the potential "economic damage" caused by alien
species. This makes the system more ecologically relevant, but at the
same time creates a need for more detailed information.There willl inevitably
be situations where the risk of an alien species becoming established
in the wild will be unknown due to a lack of information. The appropriate
response in such situations requires further consideration.
Action suggested:
- Establish a species
introduction permit system. Based on the precautionary principle,
establish a "Species Introduction Permit System". This would
require any individual or organisation who want to introduce alien
species from foreign countries or different ecosystems within China
to apply for a permit. The permit cannot be issued until it has been
proved that the proposed introduction will not cause damage to national
or regional ecosystems, the environment, human health or economic
development. As China is so huge, this requires regional screening.
A species found to be safe in one part of China cannot be assumed
to be safe in other regions. Each province should issue its own licenses
for importation.
- Revise the organism
list: Some import and export quarantine species lists have been
developed in China but are far from complete. Updated potentially
invasive species lists are needed. Th introduction of species on those
lists should be prohibited or restricted according to the degree of
perceived risk. Dynamic lists are recommended. Lists should have 3
categories: 1. Black List. Species known to be invasive and so destructive
that their introduction should be prohibited; 2. White List. Shows
species that stringent testing has shown to have such a low probability
of invasion that they can be introduced; 3. Grey List. Shows species
of uncertain risk that require further risk assessment. The Grey List
includes all species not listed in the black and white lists.
- Develop an Alien Species
Invasive Risk Assessment System. Organize a cross sector team,
including experts from the State Quality Checking Agency, MOA, SFA,
SEPA, SOA and CAS, to develop an Alien Species Invasive Risk Assessment
System. The team could work as a Task Force. The system should consider
the impacts of IAS on the economy, environment and society, placing
particular emphasis on long term ecological impacts.
Field Release Trials
Action suggested:
In many cases field release
trials under controlled and reversible conditions may be a necessary
component of risk analysis prior to giving permission for more widespread
releases. This is particularly relevant to the release of GMO's.
One particular problem in
this respect is the long lag time invasive alien species invasive alien
species between the time of a species first establishment and the time
when its invasive nature becomes evident. Because of this, it is prudent
to apply the precautionary principle and assume a high risk for any
alien species that shows it is capable of establishing itself in the
natural environment without further human assistance. By simply occupying
space, the species is already competing with some local species.
Information Sharing
The sharing of information
is one of the cornerstones of the national programme for combating alien
invasive species. It is essential that everyone involved in the programme
have access to the best possible information.
Action suggested:
- Compile information
on AIS. This information will include both the identification
of AIS and the risks associated with given species. This information
can be organized into coded lists. For instance a Black List showing
species known to be invasive and so destructive that their introduction
should be prohibited; a White List showing species that stringent
testing has shown to have such a low probability of invasion that
they can be introduced; a Grey List showing species of uncertain risk
that require further risk assessment. Knowledge about species movements
- source, pathway and destination of species - is required including
the movement patterns of migratory species. The main requirement is
information on the natural ecology of species such as: details of
natural enemies, diseases or controlling agencies of species; details
of the documented continuing spread of invasive species, preferably
in point plot map format; case studies of the impact, damage or health
hazards associated with particular species; access to best practice
methods for eradicating or controlling different species. Details
of international protocols, standards and practices are also required,
such as, details of land cover, land-use, major development plans
and scenarios of climate change.
- Manage information
by using databases. Such data need to be maintained in easily
accessible databases, preferably on open web sites. Databases should
be maintained and regularly updated by data custodians familiar with
the nature of the data, i.e. experts in the particular taxa or sector
concerned, but also need to be linked into an efficient network for
wide access. The network will itself need to be networked to regional
and global databases due to the transfrontier nature of the datasets
involved. A network is more efficient than a centralised database
because data can be managed by specialists and can be updated without
downloading or multiple editing of the same files or records. There
is some sense in having a central website at the hub of the network
which can generate news, highlight developments and serve as a search
engine to direct the data seeker to the most appropriate database.
Databases need to be dynamic and responsive. Interactive databases
should be able to receive raw data quickly from the field but such
data requires screening and verifying before being uploaded onto public
sites.
Strengthen Monitoring£º
Field monitoring is the
basis for the early detection and rapid response to the establishment
of new alien species; evaluating the effectiveness or success of control
prescriptions; reporting to database systems and information sharing.
High levels of public participation are required.
Actions suggested:
- Improve IAS surveys.
Conduct surveys at the level of province or county to determine the
status of local IAS and their impacts on local ecosystems. Then conduct
regular surveys each year to monitor changes. Strengthen specific
survey and monitoring of particularly harmful IAS and in critical
areas (such as seriously impacted areas, ecological vulnerable areas
and ecological nature reserves)
- Strengthen information
management system development. Gather
and manage information on AIS, especially data from field surveys
and monitoring. Develop database and GIS records, map impact situation
at county level. Using a website, compile monitoring information from
various sectors and develop it into dynamic database that can be updated
frequently. Develop an identification expert database, so that experts
can be easily located to help identify potential AIS.
- Develop monitoring
procedures and criteria. The details of monitoring will differ
from sector to sector. The agriculture sector would monitor weeds,
pests and other agricultural problems, fisheries would monitor catch
size, species composition, species size and condition; foresters would
monitor weeds and pests in forests and plantations whilst conservationists
would note the appearance of new species in the natural environment;
health agencies would monitor the spread and movement of diseases
and disease vectors, trade agencies monitor patterns of demand, supply,
consumption and customs and quarantine monitor species and their condition
at ports, borders and other checkpoints. Suitable monitoring procedures
still need to be developed by different sectors and staff trained
to implement these procedures.
- Develop reporting
and bulletin system. A regular reporting system will gather information
on time which will assist in making reports to management sectors
and timely management. The government agencies responsible should
publish prevention lists, impacts and relevant control measures.
- Develop monitoring
responsibility system. Organisations or individuals that seek
to introduce new species should be required to contribute to the monitoring
of such species to avoid the risk of invasion. If an introduced species
becomes invasive, the introducer should be responsible for its eradication,
and face legal or economic liabilities.
- Strengthen monitoring
capacity training. In some cases there will need to be an improvement
in the staff's abilities to recognize different species; this could
be assisted by the production of specific keys or identification guides.
Such guides could also be made in easily to use electronic formats
- web, palm computers etc.
Develop an early detection
system
Even the best standards
of quarantine and controlled introduction systems cannot totally prevent
the invasion of alien species; it's inevitable that some alien species
will intentionally or unintentionally be introduced into a new ecosystem
and that some of these will become invasive. For example hundreds of
varieties of grass are currently being introduced into China as part
of the growing turf industry. If a new invasion is not detected and
control measures are not taken in time, serious damage will probably
occur. Early detection and timely control measures are essential since:
A) The cost of control is extremely high and artificial removal is often
impossible. B) Many invasions cannot be controlled. China already has
some early detection systems. SQCA has a report system on port interceptions
that requires making daily reports and developing a database. MOA, SFA,
and SOA have their own epidemic reporting systems. These departments
also have an epidemic monitoring system. However, these systems are
only applied to a very limited number of quarantined species and there
is no monitoring and early detection system for species that may impact
on the environment and ecosystems.
Action suggested:
- Establish a National
Early Detection System. As a matter of fact, to establish a national
prediction system of invasive alien species is to develop a coordination
mechanism between local and central governments. Governments should
establish multimedia networks (websites, publications, CD, etc.) to
provide information on invasive alien species, help evaluate the risks
posed by them, predict potential influence and offer recommendations
on management measures. At the same time, all sections should report
new records and current status of invasive alien species to the responsible
authorities through the appropriate channels. This early prediction
system supplements introduction control measures. The two measures
can work together to better combat the economic and environmental
losses resulting from invasive species.
- Develop an early warning
system at the provincial level. As important as the monitoring itself
is the swift transfer of data to databases that can collate and analyze
it at different levels. This forms the basis for an early warning
system. Data should be reviewed by specialists, probably at provincial
level so that early alarm can be given whenever new invaders are noticed
or established alien species show signs of becoming invasive. These
provincial agencies should have the capacity to make spot checks to
verify incoming reports, verify species identification or propose
revision or intensification of monitoring procedures. It is recommended
that such agencies are based in provincial offices of SEPA but have
the ability to call on provincial experts in other agencies or academic
institutes. In consultation with national and other provincial agencies,
provincial units should decide on the most appropriate response to
new threats and launch appropriate actions within the appropriate
time-frame.
Develop quick response
system
Strict monitoring is needed
for established IAS alien species that have high invasive risk. Once
there is any sign of invasion or reinvasion, control measures should
be put in place as quickly as possible. To avoid outbreaks of AIS, an
efficient quick response system should developed. Currently SFA has
some quick response systems, such as aerial control. MOA has a quick
response system to deal with a serious epidemic situation, and SQCA
has a relevant emergency action plan. However, these existing quick
response systems do not consider the problems facing the environment
and ecosystems. There is an urgent need to develop quick response systems
to deal with full-scale, especially environment and ecosystem, invasions.
When the actions to be applied in response to new threats are determined,
these should be transmitted to grassroots agencies at the county, or
even village, level for action. The effectiveness of the rapid response
mechanism will depend on the efficiency of the entire communication
network and the preparedness of the local agencies to undertake the
prescribed actions. This in turn will depend on manpower, budgets, availability
of suitable tools or equipment, training and skills. Creating such capacity
will be the role of the management capacity development programme.
Actions suggested:
- Train staff in bio-emergency
response techniques and prepare equipment and resources. Very
different types of training and readiness will be required in different
sectors, but actions could include: manual weeding of invasive plants,
applications of herbicides and pesticides; erection of animal fences;
capture and destruction of dangerous animals; taking of samples or
specimens for further analysis; inoculation programmes; erection of
checkpoints; destruction of poultry or animal herds; restriction of
access to critical areas; halting of ongoing construction projects
etc.
- Establish emergency
fund for controlling AIS. Ensure that there are enough funds for
quick response. This fund should be able to cover costs for hiring
experts to conduct identification and research, field surveys, eradication
operations and subsequent monitoring.
- Develop vulnerable
area system. Classify
vulnerable areas according to their degree of risk. Set up buffer
zones to strengthen quarantine and control introduction channels to
stop bioinvasion to vulnerable areas.
- Improve quick response
capacity. Strengthen education and training on known high risk
species, so that problems can be identified as quickly as possible
and timely action taken. The species listed in Invasive alien species
in China can be a good reference.
Develop a system of economic
responsibility and appropriate penalties
At present, most people
are ignorant of scale of economic losses resulting from AIS. Invasion
is usually is a slow process with limited initial impact and unclear
economic loss. At this stage, it is difficult to prove that a given
species is invasive, therefore such species receive little attention
until an irruption causes great economic loss. When people intentionally
or unintentionally introduce some species to new habitats, they are
usually not aware of the risks. Moreover, in most cases, these risks
do not threaten their own interests. Before an IAS causes great damage,
people can hardly monitor them, take early control measures or accept
economic responsibility for the subsequent impacts of such species.
When damage finally occurs, all economic costs are carried by others
or future generations, rather than those who permitted or imported these
pests. This is neither fair nor reasonable.
It is a ridiculous situation that China, which has probably has more
native species of grass than any other country, has never developed
any of these species commercially. 95% of all grass planted in China
is alien seed. The risk introduced by such practices could easily be
avoided by using native plant resources in preference to exotic plants.
Action suggested:
- Include IAS control
as one of the ecological conservation measures in the national financial
budget. Ecological conservation is a basic task for all levels
of government. Government responsibilities should include the quarantine
and control of AIS, which should also be included in the ecological
conservation plans of different levels of government, including the
national basic plans and budget. Central and local governments should
arrange funds accordingly. Within the national budget, basic construction
investment, agriculture support funds, ecological restoration and
environment integrated renovation funds, unemployment benefit funds,
poverty alieviation funds, environment conservation funds, integrated
agricultural development funds, plus all industry and enterprise fees,
should regard IAS management as an important component of their annual
plans and increase the amount allocated for this yearly.
- Develop a risk fund.
Since the impacts of IAS may only become apparent after several decades
it is possible that the agency responsible for the importation of
a species that subsequently becomes and invasive pest may no longer
exist. Therefore, all importers should be required to pay into a risk
fund according to the estimated degree of the risk posed by the organism
they import, or establish a risk sharing system to transfer some of
the economic risk of IAS to the private sector or commercial insurance
companies.
- Develop measures
to compensate for losses caused by AIS. In addition to legal punishment
for people or agencies who who illegally import AIS, these parties
should also be required to pay compensation to those who suffer economic
or other harm as a result of their actions. Victims of economic or
other damage caused by IAS should also be able to apply for compensation
from the National Government. There is also a need to scientifically
evaluate the risk posed by species currently listed in introduction
duty fee policies.
- Develop economic
penalties. Appropriate government agencies should develop and
implement regulations for applying economic penalties to agencies
or individuals responsible for ecological damage and economic loss.
If an imported alien species is no longer required due to changes
in market prices, the agencies or individuals who introduced it should
either properly dispose of it, or pay for its proper disposal.
- Improve cost-benefit
budget methodology. Effective control of invasive alien species
requires clearly defined responsibilities. Especially in international
or national trade, the cost of potential risks by introducing IAS
should be factored into trade costs. A fair and reasonable mechanism
to define the economic responsibilities of introducers of potential
IAS should be developed. The introducers should evaluate the risk
of given introduced organism, undertake field trials, monitoring and
control measures, and accept responsibility for compensation if the
IAS organism causes damage. If introducing an alien organism carries
an economic cost proportional to the risk it poses to the environment
introducers will consider such introductions more carefully.
- Promote the use of
local species. Encourage local governments to promote the use
of local species. Develop policies to promote public use of local
species. Strengthen scientific studies on local species to build a
scientific basis for their utilization. A proposed introduction of
an alien organism should only be considered if it has been proven
safe to human health and the environment and if there isn't a suitable
local equivalent.
Prevention Measures
The best way to reduce the
risk of invasive alien species invasive alien species is to prevent
their entry into the country or area of interest.
Prevention has several components:
Legal: regulations to prohibit or control the import or movement of
high risk species
Permits: to control import, export and movement of potentially risky
species
Quarantine: to reduce the risk of accidental entry of species
Customs: to check for illegal movement of species and verify
details of permitted movements of species
Actions suggested:
- All these mechanisms
are already in place in the health sector and as part of the CITES
agreement to which China is a signatory. All that is required is an
expansion of the lists of species requiring different types of permits.
- Under CITES an exporter
from another country must acquire both an export permit from the country
of origin and an import permit into the destination country before
shipment is possible. In this way unwanted shipments are prevented
at point of origin, not halted at the gates of the destination country.
Such a system should be extended to all species imports.
- Customs officers would
require training to identify high risk species.
Eradication programmes
Where border control measures
have been breached and a new alien species has become established and
detected through the 'early warning system', a quick decision should
be taken as to whether eradication should be attempted. Similarly, a
permitted introduction may result in an unexpected invasive situation
in which case there must be the capacity to quickly withdraw the permit.
Another possibility is that a species which has not been permitted for
release, but has been permitted for captive confinement, escapes from
its cage. In this case an eradication programme needs to be initiated
as soon as possible. Such a programme should be supervised by specialists.
Techniques will vary from case to case. A disease may be controlled
through inoculation. Escaped vertebrates may be trapped, hunted, or
poisoned. Weeds can be physically removed or killed with herbicides.
Biological control agents can be introduced to prey on or parasitize
the pest species. In the case of insect pests, sterile animals can be
introduced into the feral population to reduce its fecundity.
Action suggested:
- Develop effective
eradication capacity before taking action. Eradication and control
have very different objectives. Control operations attempt to limit
the impact of an IAS by restricting its population size or range IAS
, while eradication attempts to entirely exterminate an invasive species
from a given region. Obviously eradication is preferable since it
eliminates the pest and obviates the cost of long-term control. However,
eradication is usually more difficult than control and may not always
be feasible. Effective eradication operations require careful evaluation
and planning and adequate resources. These include: 1) A sound scientific
base that must be carefully reviewed by authorising agencies before
the operation is launched; 2) Effective monitoring methods to ensure
that the pest is, in fact, eradicated; 3) The support of the local
community and all relevant stakeholders; 4) The support of relevant
legislation and institutions; 5) Adequate funding; 6) Effective, cost-effective
techniques; 7) Measures to prevent any further introduction or invasion.
It is important to ensure that eradication techniques and approaches
are environmentally sound, ethical and socially acceptable. Methods
should only affect the target species and do minimal damage to local
biodiversity and the environment. There should be provision to undertake
any necessary ecosystem restoration measures after eradication.
- Developing suitable
methods of response forms part of the research capacity programme,
learning successful techniques through the information sharing system
will be very important and training in the application of such techniques
will form a major part of the management capacity programme.
Control programmes
Total elimination of pest species is usually difficult and is virtually
impossible unless the pathway of invasion can be terminated. An interim
stage that is easier to achieve is, control ; the containment of an
IAS within a prescribed geographical area. It is usually only possible
to apply control programmes to prevent the further spread of IAS and
minimise their ecological impact.
Actions suggested:
- In managing control
programmes it is necessary to carefully monitor expenditure against
perceived damage mitigation. Sometimes the costs of control are too
high relative to the benefits achieved. But there are many cases where
the savings from control programmes are hundreds or thousands of times
greater than the cost.
- Again, the same caveats
apply to control programmes as elimination programmes.
Critical Site protection
measures
Where invasive alien species
invasive alien species are already well established inside the country
and eradication is deemed impossible, it becomes important to reduce
their impact on local biodiversity by ensuring security for precious
and endemic species at key sites. Such sites include the national system
of protected areas and other geographically critical areas such as areas
of local endemism, isolated lakes, mountains, mangroves, islands etc.
Actions suggested:
- Special management or
protection measures should be considered for such sites. These should
include: Strict prohibition of any alien introductions within the
site or a surrounding buffer zone; Careful planning of surrounding
land-use adjacent to the critical site; Vigorous monitoring of the
site and surrounding areas; Aggressive control and eradication programmes
for alien species found in site or surrounding areas; Protection of
key species on isolated islands that can be more effectively protected
from alien invasion.
- Protected areas should
not be used as release sights for confiscated wildlife that have not
been screened for diseases and are of unknown origin. Only healthy
local species should be released into protected areas.
GMO issue
China is gradually becoming
a big producer and importer of transgenic organisms and products. The
impacts of these organisms on ecosystems and the environment should
be evaluated. GMOs are a kind of alien species. The GMO issue in China
has the following features: 1) The geographical scale is large. A main
GMO crop is transgenic cotton which has been planted over 1.5 m hectares.
There are also another 4 kinds of crops including corn, soya, tomato,
and Petunias that have been commercialized. In addition, each year there
are 15 m tons of soya beans imported from the USA most of which are
transgenic. 2) The public lacks awareness of the issue. There may be
advantages in having some GMO foods on Chinese markets, however without
labeling consumers' rights have been violated. 3) Legislation is not
complete. Although the Ministry of Science and Technology, MOA and MOH
have issued some regulations, inconsistency among these complicates
management.
Actions suggested:
- Strictly limit the
scope of GMO technology. One
of the transgenic crops developed is a Petunia which has been genetically
modified to have a different colour. It is surely not worth risking
environmental damage simply to improve a plant's beauty. Traditional
selection & hybridization are quite adequate technology for developing
such novel ornamental varieties. The only justification for GMO's
is to improve the production, quality and safety of food, to reduce
environmental damage (e.g. herbicides) or to benefit human health
through the development of new therapies or reducing the cost of medicines..
- Improve coordination
among government sectors.
Improve management cooperation among different government agencies,
and establish a GMO bio-safety expert group. Improve legislation through
cooperation and sharing information. GMO crops are closely related
to commercial interests and patent issues, legal experts should be
involved in dealing with these issues.
- Use precautionary
principles in GMO management. As with other AIS, GMOs should be
presumed to be a bio-security risk and be required to be proven safe
before introduction. Since most introductions of GMOs are intentional,
there is a need to strengthen the permit system for their introduction
and environment release. Management of GMO should also consider the
particular local uses of such crops in and across China. For example,
although trials of commercialized GMO cotton in the USA focused on
detecting adverse skin reactions from wearing cloth made from this
material,,in China oil made from cotton seed is a widely consumed
food. Therefore, blind acceptance of safety certification from other
countries is inappropriate and could well be disastrous. At the same
time, the health and environment responsibilities pertaining to introduced
GMOs should be shifted to the introducers.
- Strengthen ecological
risk evaluation and environment release trials and monitoring. China
is rich in biodiversity and is the place of origin of many commercially
important crops. Since there are wild or related varieties of these
crops which can easily become genetically polluted by closely related
GMOs there is considerable risk in the incautious release of such
organisms. It is necessary to conduct ecological risk evaluation and
environment release trials and monitoring, and research the impact
of GMOs on native biodiversity. Particular attention should be paid
to high risk species such as transgenic fishes. Hybridization and
gene movement in such organisms will be difficult to manage and monitor.
Once damage occurs it may be irreversible.
- Improve public access
to information. There is need to increase public awareness. Since
GMO foods are now on the market, there should be improved labeling
to facilitate tracking, monitoring and management.
- Separate management
and industry, and ensure the neutrality of departments responsible
for evaluating and management. Neutral departments that have no
vested interest in the importation of alien species or organisms will
have more objective judgment and management concerning IAS issues.
Regulations must consider not only the environment, biodiversity,
human health and animal welfare, but also national security and social
equity. As a developing country with rich resources, China has to
ensure the safety of the ecosystem, environment and genetic resources,
and avoid becoming a testing ground for the GMOs of other countries.
There are considerable social implications in the widespread use of
GMOs (see Appendix 5).
- Develop a strategy
for the management of GMOs. GMOs are a special group of IAS that
pose a clear potential threat to the environment. Since their assessment
and management is similar to that of other AIS the strategies that
have been developed in the report for IAS can be also used to manage
GMOs. However, the GMO issue is more complicated, and there are additional
risks due to the inherent genetic instability of these organisms that
have additional health, food safety, political and economic implications.
Further evaluation should be conducted and a separate strategy for
managing GMOs should be developed.
Appendix
1: Expenses for control and loss from alien invasive species
Appendix 2: Chinese major
laws and regulations pertaining to IAS management
Appendix 3: International
and regional legal instruments and institutions pertaining to invasive
alien species
Appendix 4: Scoring system
for assessing the level of risk posed by alien species
Appendix
5: Statement of Risks and Concerns on GMOs
Appendix 6: Definition of
terms
Appendix 7: Activities of
the Eco-security Task Force
|