A
NATIONAL STRATEGY FOR MANAGEMENT OF
INVASIVE
SPECIES
(Part
I)
NATIONAL WILDLIFE REFUGE SYSTEM
Fulfilling the Promise
National Invasive Species Management Strategy Team
August 31, 2001
Executive
Summary
Invasive alien species have
become the single greatest threat to the Refuge System and Service’s wildlife
conservation mission; causing widespread habitat degradation, competition with
native species, and contribute significantly to the decline of trust species.
Millions of acres of refuge lands are already impacted by invasive
species. Sensitive habitats,
wilderness areas, and other special designation areas are particularly
vulnerable to invasive species. Currently
the fastest growing component of the Refuge Operations Needs System (RONS)
database, invasive species management projects total nearly $150 million (almost
15%) of the nearly over $1 billion backlog for refuge operations.
Consequently, through Fulfilling the Promise, the Chief of the
National Wildlife Refuge System established a cross programmatic team to develop
a National Strategy for invasive species management across the System.
This National Strategy
consists of two interrelated parts. Part I reviews the current status of
invasive species management in the Refuge System, identifies deficiencies,
provides key program enhancement recommendations, and outlines management goals
and objectives. Part II provides a variety of tools, processes and strategies
needed to achieve those goals and objectives. Guidance is provided on
assessment, monitoring, and standard operating procedures to address Refuge
System invasive species concerns. The
National Strategy has been developed within the context of the National
Invasive Species Management Plan as called for by Presidential Executive
Order 13112 and will function as the internal guidance document for invasive
species management throughout the Refuge System.
The National Strategy Team
has developed objectives, strategies, and procedures to achieve the following
four goals of the Refuge System invasive species program:
• Increase
the awareness of the invasive species issue internally and externally,
•
Reduce impacts of invasive species to allow the Refuge System to more
effectively meet its fish and wildlife conservation mission and purpose,
• Reduce
invasive species impacts to the Refuge System neighbors and communities, and
•
Promote and support the development and use of safe and effective
integrated management techniques against invasive species
In most cases, refuges
consider invasive species management critical to meeting their wildlife
management needs and legal mandates but they tend to overlook invasive species
until they become established. The most cost effective way to manage invasive
species is through prevention. Prevention activities range from increasing
awareness through education to responding rapidly to new infestation before they
gain a foothold. Refuges typically
focus their invasive species management on control of established infestations.
Unfortunately, control and eradication of invasive species are usually
the most expensive approach, economically and ecologically.
Although research and monitoring can maximize effectiveness of an
invasive species management program, these efforts are limited.
Mechanisms for
prioritization of invasive species management actions and funding are variable
throughout the System and projects undertaken are in direct competition for
resources with other Service priorities. There
is no consistent mechanism to provide detailed invasive species project
accountability or project efficacy for funded projects in a given fiscal year
and no effective mechanism to track expenditures of other funds.
Another significant deficiency in the Refuge System Invasive Species
Program is the lack of personnel with specialization in the invasive species
management discipline. Regional invasive species specialist are needed to
coordinate the implementation of the National Strategy.
There also are situations where refuges or groups of refuges need
full-time invasive species specialists to help meet the four goals of the Refuge
System Invasive Species Program.
After
carefully examining the issues, the team concluded that only a full commitment
by the Service to address invasive species can stop the spread of invasive
species and continued degradation of wildlife refuges.
Based upon their analysis, the team makes the following primary
recommendations:
I.
Establish full-time refuge program invasive species specialists at the
regional and national levels, and at critical locations on refuges.
Currently the Service’s invasive species management program for refuges
is inconsistent, unfocused, and inefficient, with highly variable commitment at
all levels. To provide effective
coordination, each region should establish at least one full-time, dedicated
position in the Refuge program to coordinate field and regional invasive species
issues and implement the National Strategy respectively.
At the national level, at least one full-time dedicated position and one
collateral duty position for invasive species management should be established
in the National Wildlife Refuge System Headquarters, Branch of Wildlife
Resources.
II.
Increase funding to address all invasive species projects identified in
the Refuge Operations Needs System (RONS).
Experts have estimated that for every year’s delay the costs of
controlling an invasive species may increase two- to three-fold.
Although current annual Service expenditures for managing invasive
species have been estimated in the $10's of millions, at least $150 million
worth of critical invasive species-related projects have been identified in RONS.
Priority should be given to critical mission and essential staffing RONS
projects.
III.
Increase accountability by developing clear and consistent mechanisms to
track all invasive species management operations and expenditures.
Currently many refuges are spending time and funding on invasive species
control which is not being accounted for or adequately tracked.
Without accountability, funding needs do not adequately reflect impacts
or threats and allocations cannot be properly focused.
The Service needs to add a specific invasive species management component
to both the Refuge Comprehensive Accomplishment Report (RCAR--for detailed
accountability) and RONS (for more accurate identification of problems) to more
effectively track invasive species activities, including those activities
refuges are conducting with other funding sources, such as grants.
Only by doing this can true control costs can be quantified and stations
and regions held accountable and congressional appropriations can be justified.
IV.
Emphasize prevention, early detection and rapid response at all
management levels.
Currently field staff on many refuges tend to overlook invasive species
until the infestations are large enough to be considered a “problem”, by
which time control costs may be excessive and time needed for eradication can
increase by years. Prevention,
early detection, and rapid control will be much more cost effective, but will
take vigilance, initiative and commitment at all levels.
V.
Complete and implement the Service’s Invasive Species and Pest
Management Chapter/Policy incorporating the guidance of the National Strategy.
Managers need on sound policy to guide their actions.
Refuge policies related to integrated pest management, exotic species
management, and nuisance species are currently out-of-date, incomplete, or new
invasive species legislation and new compliance procedures have not been
incorporated. The Division of
Conservation Planning and Policy will lead a cooperative effort with the
Division of Natural Resources and other Service programs to complete a new
comprehensive Refuge Management policy on Invasive Species and Pest Management.
This revised policy will consolidate related existing or out-dated
policies and incorporate language consistent with new policy on habitat
management, biological integrity, wilderness stewardship, refuge planning, and
compatibility. This National
Strategy will provide the information needed for the portion of the new policy
dealing with invasive species management.
PART I
The Invasive Species
Problem in the National Wildlife Refuge System
Invasive species are the
single greatest threat to native plants, fish and wildlife with the potential to
degrade entire ecosystems. Among
the most insidious plant invaders on national wildlife refuges are salt cedar,
leafy spurge, perennial pepperweed, exotic thistles, Brazilian pepper, purple
loosestrife, Australian pine, Chinese tallow trees, old world climbing fern, and
melaleuca. Many approaches and
techniques are used to control plants, including application of herbicides,
mechanical removal, prescribed burning, and biological control.
In addition, a variety of exotic/nonindigenous animals such as the brown
tree snake, Tilapia, Norway rats, Asian carp, nutria, Asian swamp eels, feral
goats and wild pigs are also a problem throughout the Refuge System.
In 1998, combined invasive plant and animal control cost the Refuge
System 94 full-time employees (FTE’s) and an estimated $12.7 million, and
these efforts addressed only a small fraction of the invasive species problem.
Based on national interagency estimates, over 6 million acres of the
National Wildlife Refuge System are infested with exotic plants that interfere
with wildlife management objectives on nearly 50% of all refuges.
Refuges are significantly impacted by these aggressively spreading
populations of invasive species. Since
most refuges have significant wetland components, aquatic invasive species are
particularly damaging to refuge habitat management efforts.
The cost of fighting
invasive species increases each year, as if we are battling a wildfire
out-of-control. Refuge staff have
limited ability to conduct preventative measures because their attention is
focused on controlling established and expanding infestations.
A recent “test run” of the new Refuge System Threats and Conflicts
Database indicated that invasive species problems ranked as the highest ranked
threat or conflict affecting the Refuge System, scoring almost double that of
the next highest threat ranked by refuge managers.
Refuge staff find that much
of their biological and habitat management efforts are spent on battling exotic
species, not enhancing the quality of native wildlife habitats.
A review of Refuge Operations Needs System (RONS) projects shows the
rapidly increasing challenge presented by invasive species.
In February 2000, refuges identified approximately $44 million in
invasive species management projects. By
July 2000 those problems grew to almost $120 million.
One year later the database identified nearly $150 million in invasive
species projects, the fastest growing component of RONS.
Current Status of
Invasive Species Management Activities and Their Effects
Current management actions
to combat invasive species throughout the Refuge System are primarily focused on
control and eradication, with lesser degrees of effort on prevention, education,
research and monitoring. Project
accountability and follow-up reporting/monitoring is limited for Refuge System
invasive species management activities. Field stations and regional offices use a variety of
mechanisms to determine priorities for action and justification for funding
their management needs. Projects
have usually been prioritized and funded based on the severity of the invasive
species impacts to human or natural resources, legal or political
considerations, and internal and external economic factors.
Invasive Species
Prevention and Education Activities
Although prevention is the
key to a successful invasive species program, there is far less emphasis placed
on prevention activities in the Refuge System and they are variable.
Refuges tend to overlook invasive species until they become a
“problem”. There are
relatively few examples of proactive preventative measures that refuges have
employed. Some of these include
regularly sanitizing maintenance equipment, requiring certified seed for farming
programs, requiring the use of certified weed-free hay, developing and
distributing educational materials about invasive species, holding various
public awareness meetings, and training staff and volunteers to identify
invasive species. Refuges
which have increased their efforts to conduct preventative measures have
experienced greater success battling invasive species and are exercising the
most cost effective means by which to minimize ecological and economic impacts.
Invasive Species Control
and Eradication
The Refuge System is replete
with established invasive species populations.
Therefore, control and eradication efforts tend to be the focus of the
invasive species initiatives. These
types of activities consumed over 95% of funds specifically appropriated by
Congress in FY2001 for refuge invasive species management.
Control efforts include mechanical removal of plants and animals (e.g.,
trapping, pulling, cutting, mowing), cultural methods (e.g., revegetation with
native species, prescribed burning, water management), biological controls
(e.g., introducing phytophagous insects and pathogenic micro- organisms,
grazing), and chemical treatments (e.g., herbicides, insecticides, rodenticides,
avicides, piscicides). Refuges
attempt to use a combination of these methods that are most effective in
controlling invasive species while minimizing impacts to native species or their
ecosystems, an approach known as integrated pest management.
The selection of control
options is dependent on individual refuge perspectives, staff biases, and
perceived “red-tape” associated with approval processes.
Control options are further limited by target species, legal and
scientific criteria, the availability of control techniques information,
budget constraints and economic considerations.
However, once refuges choose to take action against an invasive species,
the chemical control option is most often chosen over other techniques available
for various reasons. In some cases,
political pressures to control or eradicate certain invasive species may
complicate or circumvent agency processes used to determine priority actions and
control methodology.
Invasive Species Research
and Monitoring
Research and monitoring are
critical in guiding and facilitating management activities and in determining
the magnitude of invasive species problems, planning future programs and
directing intervention efforts to reduce risks to the National Wildlife Refuge
System. Reliable information about
the distribution, rate and direction of dispersal, and reproductive status of an
invasive species is crucial in developing management strategies and in
estimating likely impacts. Such
information is also useful in preventing the establishment or spread of
potential invasive species and in identifying research needs and priorities.
Research and monitoring can help maximize the likelihood of early
detection, monitor the spread of invasive species and their effect on native
species and ecosystems, and provide justifications for management actions.
Throughout the Refuge System
invasive species research and monitoring efforts are limited, particularly with
respect to long-term studies. Furthermore, many of the invasive species inventory and
monitoring efforts are primarily site- or species-specific and lack coordination
with other refuges, between regions, and with outside partners.
Since adequate surveys and reliable monitoring data for invasive species
are not always available from other sources, refuges must rely on their own
limited funding, skills and technical abilities to acquire information about
invasive species problems impacting their habitats.
Consequently, unless a refuge or region has the resources to conduct
adequate invasive species inventory and monitoring efforts, management decisions
are often being made without adequate scientific justification.
Mechanisms to Prioritize
Invasive Species Management Actions and Funding
Invasive species management
and funding are prioritized in the context of other refuge operations needs and
legal mandates. In most
cases, refuges consider invasive species management critical to meeting their
wildlife conservation goals and objectives.
Once an infestation is considered “important” enough to be listed
along with all other refuge operations needs, the ranking and funding of
invasive species projects varies with staff biases, and varies between refuges,
ecosystems, and regions, and may change over time.
This situation is further complicated by the external factors which
pressure decision makers to change priority rankings or modify project lists.
Prioritization of activities
to battle invasive species within the Refuge System is variable and based
primarily on qualitative information. Qualitative
information may include field observations, perceived impacts to natural or
human resources, or ease of control and restoration.
In some cases projects are prioritized based on quantitative information
such as magnitude of the infestation (e.g., population density, number of acres)
or rate of spread (e.g., infestation doubled its size over a short period of
time). However, quantitative
information is limited especially regarding ecological impacts (e.g., documented
losses of ecosystem function, quantitative changes in survival of native fish or
wildlife resources) because most refuges do not have the resources to conduct
the necessary research and monitoring activities.
Furthermore, invasive species research and monitoring activities are
rarely ranked as priorities over control or eradication projects.
Invasive Species Project
Accountability and Follow-up Reporting/Monitoring
The fastest growing
component of the RONS database is invasive species related projects.
However, these projects are found in numerous activity categories and
invasive species management accomplishments are not reported in the Refuge
Comprehensive Accomplishment Report (RCAR).
Mechanisms are in place to track expenditure of invasive species
appropriations, except there is currently no mechanism to track expenditures of
other funds (1261, etc.), such as a specific sub-activity code for invasive
species. RONS database modules allow refuges to list and rank projects for
refuge invasive species operations in various activity categories, but there is
no specific invasive species activity category component within either RONS
or the RCAR system. Thus,
there is no consistent mechanism to provide detailed invasive species project
accountability for funded projects in a given fiscal year.
Regions are required to
provide accountability for invasive species management activities and
expenditures through annual business plans provided to the Service budget
offices and Congress. However,
these business plans do not provide detailed examinations of individual project
successes or failures and rarely provide recommendations for follow-up
activities to improve or adapt management strategies. Typically, funding for invasive species management activities
are supplemented with other base funding sources at the regional and field
levels, this funding cannot be adequately tracked or reported.
To the limited extent that
the refuge system prepares reports on invasive species projects,
accountability and follow-up reporting/monitoring is associated primarily
with research, control and eradication efforts.
Although technical reports are sometimes available for research,
reporting and accountability for control and eradication efforts are limited and
variable (e.g., refuge staff monitoring of treatment efficacy in association
with invasive species control efforts). In
most cases there is no standardized reporting process for control and
eradication projects and regions collect information about invasive species
impacts inconsistently. However,
quarterly or annual reports are required for some invasive species control grant
programs currently providing funding support to the Refuge System.
Invasive Species
Management Roles and Responsibilities of the Refuge System
Each region has organized
positions and duties related to invasive species management in different ways.
Personnel working on invasive species related issues are found in at
least four different Service programs, but the Refuge System lacks positions
dedicated exclusively to invasive species management.
Collateral duty invasive species work tends to be the norm across all
levels; field, regional, and national.
Improving National,
Regional, and Field Infrastructure
The lack of national
consistency and focus on invasive species issues in the Refuge System has
resulted in an inefficient and cumbersome program. Full-time regional invasive species specialists in the refuge
program are needed to support the field; be the direct contact for regional
invasive species issues; guide regional decision makers in prioritizing invasive
species problems; direct the implementation of the National Strategy in each
region; and network with partners to accomplish invasive species work on refuges
throughout their respective region.
At the National level,
refuge program invasive species coordination involves budget formulation and
legislative efforts, national coordination of invasive species work among
regions; tracking funding allocations; linking agency invasive species efforts
with external partners and other state and local agencies, and monitoring
implementation of the National Strategy and other policy.
To be most effective, at least one national position should be dedicated
exclusively to invasive species and will require additional supporting staff,
such as outreach and education specialists, and data management specialists.
Some field stations will
need full-time field level invasive species specialists to address serious
invasive species infestation. Seasonal
or part-time invasive species personnel should be considered as appropriate.
Managers should consider incorporating or expanding invasive species
management activities into their volunteer program, Youth Conservation Corps,
Americorps, or other labor programs.
Improving coordination
internally and externally
Improved coordination
involves improved communication. Refuges
should strive to share ideas, information, and become involved in invasive
species organizations at the local, regional, and national levels.
Information exists in a variety of locations and can be accessed by field
stations, and regional staff. This
information should be compiled and distributed as needed. Refuges with internet
access can tap into invasive species management information through the hundreds
of internet web sites. Improving
internal and external coordination can be achieved through:
•
Establishment of a cross-programmatic invasive species team in each
region. This team would extend
coordination and support to refuges and to ecosystem teams.
This team should be involved in all aspects of invasive species
management and budgeting in the refuge program.
•
Regular communication between regional invasive species specialists, the
field, and with external partners in the invasive species arena.
•
Increased intra-agency coordination through regular meetings of regional,
field, ecosystem, and national personnel.
•
Increased refuge and regional participation in invasive species
management areas and groups, such as county weed boards, exotic pest plant
councils, and cooperative weed management areas.
Promoting Existing and
Potential Partnerships
One of the most important
functions of the regional and national invasive species coordinators will be to
provide access to the numerous partner organizations, grant programs, and new
opportunities to gain support for refuge invasive species management needs.
Some examples of existing partner organizations and invasive species
grant programs are provided in Part II of the National Strategy.
Other partnership opportunities exist in local or regional areas and
refuge managers should seek these opportunities and take advantage of them.
Managers should be encouraged to be creative in establishing partnerships
to fight invasive species. A team
approach has been proven to increase the effectiveness of invasive species
management operations. Building
local support for refuge invasive species management is essential and will vary
depending on the location and public awareness of the issue.
Mission, Goals and
Objectives of the National Wildlife Refuge System Invasive Species Program
The Mission of the National
Wildlife Refuge System Invasive Species Program is:
“Through partnerships, prevent, eliminate or significantly reduce
populations
of
aquatic and terrestrial invasive species throughout the Refuge System in
order
to protect, restore and enhance native fish and wildlife species and
associated
healthy ecosystems.”
The National Invasive
Species Program has established four goals. These goals have been adopted for
the development of the National Strategy and are given here.
Goal 1: Increase the
awareness of the invasive species issue internally and externally
Objectives:
·
Initiate or expand invasive species
training for Service personnel.
·
Develop and distribute public
outreach and education materials.
·
Conduct and/or participate in
invasive species public education programs.
·
Increase networking and information
exchange throughout the Refuge System and with external partners.
·
Increase Congressional outreach
activities and programs.
Goal
2: Reduce impacts of invasive species to allow the Refuge System to more
effectively meet its fish
and wildlife conservation mission and purpose
Objectives:
·
Emphasize and increase invasive
species prevention efforts throughout the Refuge System.
·
Initiate an early detection and
rapid response program in the Refuge System.
·
Implement more effective control
and eradication measures for all invasive species.
·
Integrate restoration and
rehabilitation efforts into control programs.
·
Incorporate invasive species
management recommendations into planning efforts at all levels.
Goal
3: Reduce invasive species impacts to Refuge System neighbors and communities
Objectives:
·
Work closely with external
stakeholders to accomplish landscape- or ecosystem-based invasive species
management efforts.
·
Increase cooperation with
neighboring landowners and coordinate with local and state agencies on invasive
species management efforts.
·
Promote and expand invasive species
assistance program efforts to combat invasive species.
Goal
4: Promote and support the development and use of safe and effective
integrated management techniques
against invasive species
Objectives:
·
Complete the Refuge System Invasive
Species and Pest Management Policy.
·
Provide training and guidance on
implementation of the integrated pest management approach.
·
Increase and focus invasive species
research and monitoring efforts to identify and fill information gaps.
·
Promote and implement adaptive
management philosophies throughout the Refuge System.
·
Expand and encourage internal
cross-program biological review team participation.
·
Develop and implement Standard
Operating Procedures for combating invasive species.
·
Adopt and implement standard
inventory, data recording and analysis, and mapping protocols and reporting
procedures.
USGS, Biological Resources Division
Denver Federal Center, P.O. Box 25046, Bldg 20, Mail Stop 300
Central Regional Office, Denver, CO 80225-0046