A group of scientists has published a report on Canada’s invasive species programs (see reference at the end of this blog). It compares the structures and procedures of Canada’s federal government to those in the U.S., Australia, and New Zealand.
The report focuses on proactive measures aimed at preventing introductions, including cross-border introductions from the U.S. It does not describe efforts to prevent spread between provinces. Nor does it address efforts by provincial or territorial governments, Tribes, or non-governmental organizations (NGOs).
The authors seek to understand how federal infrastructure, strategies, and decisions have contributed to outcomes. Their principal recommendation is that Canada should accord protecting biodiversity as much importance as preventing direct economic impacts from invasive species – unlike now and in the past. Those economic impacts are substantial, estimated at $34.5 billion (Canadian) each year.
The authors think that such a focus is appropriate because Canadians depend on the stability and function of a wide range of ecosystems and express strong interest in protecting their environment. Canada has also accepted obligations to protect biological diversity by joining the Convention on Biological Diversity (CBD). One of those obligations was that, by 2020, the country would have put in place plans targetting high risk species and pathways of introduction..
The report notes that Canada faces some unique challenges: three coastlines, the intimate relationship with the U.S. (i.e., a long border and diverse shared water bodies), vast area, and very low human population density. The last might result in fewer incidents of human-mediated dispersal. However, it is likely to present logistical challenges in detecting and managing any invaders. In addition, common, popular Canadian recreational activities — camping, boating, and fishing — can contribute to invasive species’ introduction and spread.
Canada’s Biosecurity Efforts
Canada adopted its Invasive Alien Species Strategy in 2002. The plan addresses four stages of invasion: 1) prevention of new introductions; 2) early detection of newly introduced species; 3) rapid response to new invaders; and 4) management of species that are established and spreading.
The report laments that Canada lacks centralized oversight of it biosecurity efforts in preventing new introductions across all pathways. That is, responsibilities are divided among several agencies, depending on the associated commodity or resource. One result is that similar pathways are regulated differently. One example is ship-mediated vectors. Ballast water is strictly regulated by both Canadian regulations and the 2004 Convention for Control and Management of Ship’s Ballast Water and Sediments (which took effect in 2017). However, commercial fishing and recreational boats are not federally regulated.
In accordance with the CBD, the Canadian government submitted a report in 2018, claiming to be on track to achieve its 2020 targets. The government had identified priority pathways: shipping, horticulture, aquarium/pet trade, transport containers, road construction, and recreation (e.g., boating). Several had been regulated at least partially, including wood packaging, forestry products, and plant products. Legislative and regulatory tools had been strengthened, including risk assessments and management plans for ballast water, recreational boating, and wood packaging. (I cannot explain the conflicting assessments of the regulation of recreational boating.) Also, national plans had been developed for several priority species, including the Asian subspecies of Lymantria dispar and emerald ash borer. The country acknowledged gaps with regard to emerging animal diseases, the pet trade, and dispersal across the U.S. border.
Comparing Canada to Other Countries (see Table 2)
The United States: I am disappointed by the report’s comparison of Canadian and U.S. invasive species programs because it considers formal structures rather than how the programs work in reality. The Canadian report allots much greater authority to the U.S.’ interagency National Invasive Species Council (NISC) than I think it actually enjoys.
The report notes the abundance of U.S. data on invasive species’ distribution and hosts. It cites specifically the USDA Forest Service Forest Inventory Analysis. It also notes the importance of several transborder non-governmental organizations, including North American Invasive Species Management Association (NAISMA) and EDDmaps and binational entities such as the Great Lakes Fishery Commission.
Australia: The Canadian report praises the existence of an Inspector-General of Biosecurity who conducts independent reviews of biosecurity issues. It also applauds the coordinating role of the Intergovernmental Agreement on Biosecurity, which sets roles, responsibilities and governance agreements for biosecurity responses at all levels of government. Finally, it notes that the Department of Agriculture, Water and Environment (DAWE) created a National Priority List of Environmental Pests, Weeds and Diseases.
I have no independent understanding of how successful Australia has been in addressing invasive species. However, several forest health experts appear to have been dissatisfied with the country’s response to the introduction of Eucalyptus rust; see my blog.
New Zealand: Again, the report praises centralization of policy and government efforts in the Ministry for Primary Industries (MPI) under the provisions of the Biosecurity Act of 1993. The MPI advises the Minster for Biosecurity – which has no counterpart in the government of Canada. The report also notes that while New Zealand expects landowners and individuals to manage their own biosecurity risks, they can claim compensation if they suffer loss due to a biosecurity action, e.g., destruction of nursery stock. The Canadians think this provision might encourage people to report invasive species. New Zealanders are trying to create an all-citizen “team” to address invasive species. One way they promote this idea is to issue awards recognizing individuals’ efforts.
I wish the Canadian report had also looked at South Africa, which has done such a good job in its invasive species reports.
Four Case Studies
The report includes four case studies: a “historical failure”, a “historical success”, and two substantial current threats.
Preventing introductions of zebra and quagga mussels is described as a “historical failure”. There was no relevant preventive measure in place at the time they were introduced. Since preventive measures were made compulsory, no invasive species have been documented as becoming established in the Great Lakes via the ballast water pathway. Such introductions have occurred in less well-regulated marine systems.
Eradication of the Asian longhorned beetle (ALB) is described as a “historical success”. The initial Toronto outbreak was not completely eradicated; a small residual population was detected about a decade later and eradicated then. The report notes that the Toronto outbreaks were noticed by citizens rather than the relevant government agency. So “success” is attributable to chance and astute citizens rather than rigorous enforcement. I note that most U.S. detections of wood borer infestations are also detected by citizens. It is probably unrealistic to expect all detections to result from official programs.
The threat to Canada from the spotted lanternfly (SLF) is high since it could cross the land border from the U.S. Its principal host, Ailanthus, is widespread in southern Canada – not just in the East but also in Saskatchewan and Alberta. The insect’s egg masses are easily transported on a wide variety of vehicles. The report does not enumerate how many trucks or trains cross the border each year. The report laments that Canada has not adopted a clear monitoring plan aimed at detecting early SLF introduction.
Finally, four species of carp native to Asia threaten to invade the Great Lakes, for example through the Chicago canal or Sandusky River. Canada has asked citizens to be on the alert, and is exploring use of eDNA monitoring systems.
Lessons and Recommendations
The report highlights lessons learned in its four-country review and makes a series of recommendations:
1) Value biodiversity as well as economic and industrial interests.
The Canadian Species at Risk Act (its endangered species legislation) does not mention invasive species as a cause of endangerment. The Natural Sciences and Engineering Research Council now provides a centralized repository of biodiversity monitoring data which will help overcome data limitations associated with invasive species surveillance and risk modelling.
2) Consolidate regulatory frameworks
Canada should follow Australia and New Zealand in assigning a single body to be responsible for biosecurity. It should set biosecurity priorities, coordinate research and management at various government levels, and lay the groundwork for consistent actions.
3) Strengthen partnerships with the public and Indigenous communities
The report’s authors praise New Zealand’s efforts to engage all citizens in biosecurity. Canada would benefit from enhanced educational efforts – which are stronger now thanks to the growing availability of phone apps. Canada should ensure that Indigenous communities’ perspectives and knowledge are integrated into the program.
4) Strengthen partnerships with other countries
Canada should prioritize discussion of biosecurity with its trading partners, particularly in developing multinational trade agreements. This is a key improvement that the U.S. could make, too.) It is particularly important to strengthen collaboration with the U.S.
4) Adapt to future conditions
Canada will need to anticipate changes due to population increase and climate change. Research needs to recognize and overcome current taxonomic and geographic biases. Also, research should focus on developing new technologies and treatment techniques proactively, before they are needed. One area of concern will be migration corridors (or “assisted migration”) undertaken to protect biodiversity as the climate changes.
5) Anticipate conflict
The government must expect different perspectives among stakeholders. Greater transparency in education campaigns might help prevent disagreements from becoming serious barriers to action.
SOURCE
Reid CH, Hudgins EJ, Guay JD, Patterson S, Medd AM, Cooke SJ, and Bennett JR. 2021. The state of Canada’s biosecurity efforts to protect BD from species invasions. FACETS 6: 1922– 1954. doi:10.1139/facets-2021-0012 Published by: Canadian Science Publishing
Posted by Faith Campbell
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For a detailed discussion of the policies and practices that have allowed these pests to enter and spread – and that do not promote effective restoration strategies – review the Fading Forests report at http://treeimprovement.utk.edu/FadingForests.htm