14 Invasive species
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16813/08
+ ADDS 1-2
COM(08) 789
| Commission Communication: Towards an EU Strategy on invasive species
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| Legal base | — |
| Document originated | 3 December 2008
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| Deposited in Parliament | 8 December 2008
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| Department | Environment, Food and Rural Affairs
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| Basis of consideration | EM of 30 January 2009
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| Previous Committee Report | None
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| To be discussed in Council | No date set
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| Committee's assessment | Politically important
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| Committee's decision | Cleared
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Background
14.1 According to the Commission, human activity has led to species
arriving, either by accident or design, in localities far away
from their normal habitat. In some cases, these become established
to such an extent as to create a real threat to local eco-systems,
and hence become regarded as invasive species. It points out that
these are one of the main factors directly affecting biodiversity,
but that, in contrast to the others (habitat change, climate change,
over-exploitation, and pollution), there is no comprehensive Community
approach for tackling the problem. It adds that, given the damage
caused by invasive species and the cost of control measures, the
need for such action in order to halt the loss of biodiversity
has been recognised by the Council and European Parliament. It
has therefore sought in this Communication to set out a strategy
for achieving this.
The current document
14.2 The Commission says that over 10,800 non-native species have
been identified in Europe, of which 10-15% are expected to have
a negative economic or ecological impact. It notes that most invasive
plants escape from gardens or aquaria, whilst invasive freshwater
fauna reach the wild through aquaculture escapes or deliberate
stocking by anglers: however, most invasive species in the marine
environment are unintentionally introduced (for example, via ballast
water), and, with increasing movement between more and more locations,
the potential for their introduction is rising. The Commission
goes on to note the various impacts of invasive species, notably
as regards biodiversity (through competition with native organisms
for food and habitat, changing eco-system structures, hybridisation
with native species, direct toxicity, and the introduction of
parasites); economic activities (through reductions in agricultural,
forestry and fisheries yields, and damage to infrastructure by
burrowing or root systems); human health; and eradication and
control costs — the latter being put at between €9.6
billion and €12.7 billion a year, figures which the Commission
says are undoubtedly an under-estimate.
14.3 The Communication suggests that a strategy for
tackling invasive species should be based on an internationally
agreed three-stage hierarchical approach, involving prevention;
early detection and eradication; and control and long-term containment,
and covering both new introductions and the management of established
invasive species. In particular, it says that, because the main
pathways for the introduction of invasive species are associated
with trade and their subsequent rapid dispersal throughout the
Community as a consequence of the single market, it is important
to step up controls and inspections at borders, in conjunction
with a procedure for assessing the acceptability or otherwise
of new introductions.
14.4 It then reviews the existing tools for tackling
invasive species within Europe. These include the Plant Health
Directive (2002/29/EC), which is primarily concerned with preventing
the introduction and spread of harmful organisms; legislation
on animal diseases; the Wildlife Trade Regulation (338/97), which
is primarily intended to regulate the trade in endangered species;
Council Regulation 708/2007 on the use of alien and locally absent
species in aquaculture; the Nature Directives (79/409/EEC and
92/43/EC) which proscribe introductions into the wild which may
threaten native species; the Water Framework Directive (2000/60/EC),
which requires Member States to achieve good ecological status
in relevant waters; the Marine Strategy Framework Directive (2008/56/EC),
which requires Member States to include invasive species in the
description of "good environmental status"; the LIFE
programme, which finances projects dealing with the control and
eradication of invasive species; and the Sixth Research Framework
Programme, which has funded two projects related to invasive species.
More widely, it notes the European Strategy on Invasive Alien
Species adopted in 2003 under the Bern Convention, and the European
and Mediterranean Plant Protection Organisation.
14.5 The Communication identifies four possible policy
options for tackling invasive species — business as usual;
a more proactive use of existing legal instruments, together with
voluntary measures; adapting existing legislation to address certain
existing gaps (again coupled with voluntary measures); and a comprehensive,
dedicated legal instrument, perhaps involving the establishment
of a new specialist agency — concluding that the last of
these would be the most effective way of controlling invasive
species, and would provide greatest legal clarity, whilst recognising
that it would involve administrative costs for Member States and
the Commission, and direct costs for economic operators. It also
suggests that there is a need for better communication and education
on the dangers of unintentional introductions; that further research
can contribute to a better understanding of invasive species and
their introduction pathways; that the Global Monitoring for Environment
and Security initiative could be a valuable tool for monitoring
the impact on invasive species on the environment; and that the
Community should engage with third countries, either through international
conventions or bilaterally, to address the issues which arise.
14.6 The Commission says that it will take into account
reactions to this Communication in finalising a proposal for a
strategy, which it intends to bring forward in 2010. In the meantime,
it will examine the possibility of setting up an early warning
and information system.
The Government's view
14.7 In his Explanatory Memorandum of 30 January
2009, the Minister for the Natural and Marine Environment, Wildlife
and Rural Affairs at the Department for Environment, Food and
Rural Affairs (Mr Huw Irranca-Davies) notes that the Commission's
approach is based on the internationally agreed principle under
the Convention on Biological Diversity, that the key to tackling
invasive species lies in prevention, early detection and rapid
eradication, together with long-term management and containment
measures. He points out that, following the commitment given in
the Government's 2005 rural manifesto to take coordinated action
in this area, the UK administrations are already taking action,
and that an Invasive Non-native Species Framework Strategy for
Great Britain was launched in May 2008. He notes that certain
measures proposed by the Commission (such as voluntary codes of
conduct, and the development of a Community-wide early warning
and information system on the presence of invasive species) would
be consistent with the measures set out in that Strategy, and
that the principal policy implications of the other possible measures
in the Communication will be to manage the interface with existing
legislative regimes, to ensure that any legislative measures proposed
are proportionate, and that any legal obligations are realistic
and well-founded in terms of what is scientifically, technically
and financially feasible.
Conclusion
14.8 As its title suggests, this Communication
is intended to identify the main issues which arise in relation
to invasive species, and to suggest ways in which these might
be tackled. However, it does so in very general terms, and is
to be followed next year by a further Communication,
which will presumably be more focused and specific. Consequently,
whilst we think it right to draw this initiative to the attention
of the House, we are clearing the current document.
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