LegiStorm

Summary:

For the first few centuries after the arrival of Europeans in North America, plants and animals of many species were sent between the two continents. The transfer of non-natives consisted not only of intentional westbound species ranging from pigs to dandelions but also of intentional eastbound species, such as gray squirrels and tomatoes. And for those centuries, the remaining non-native species crossing the Atlantic, uninvited and often unwelcome, were ignored if they were noticed at all. They were joined by various species arriving deliberately or accidentally from Asia and Africa. The national focus on invasive species arose in the 19th century, primarily owing to losses in agriculture (due to weeds or plant diseases), the leading industry of the time. A few recently arrived invasive species, and estimates of adverse economic impacts exceeding $100 billion annually, have sharpened that focus. Very broadly, the unanswered question regarding invasive species concerns whose responsibility it is to ensure economic integrity and ecological stability in response to the actual or potential impacts of invasive species. As this report shows, the current answer is not simple. It may depend on answers to many other questions: Is the introduction deliberate or accidental? Does it affect agriculture? By what pathway does the new species arrive? Is the potential harm from the species already known? Is the species already established in one area of the country? Finally, if the answers to any of these questions are unsatisfactory, what changes should be made? The specific issue before Congress is whether new legislative authorities and funding are needed to address issues related to invasive species and their increasing economic and ecological impacts on such disparate matters as power plant operations, grazing lands, and coral reef fishes. Such legislation could affect domestic and international trade, tourism, industries dependent on importing non-native species and those dependent on keeping them out, and, finally, the variety of natural resources that have little direct economic value and yet affect the lives of a broad segment of the public. In the century or so of congressional responses to invasive species, the usual approach has been an ad hoc attack on the particular problem, from impure seed stocks to Asian carp in the Chicago Sanitary and Ship Canal. A few notable attempts have begun to address specific pathways by which invasives arrive (e.g., ship ballast water), but no current law addresses the broad general concern over non-native species and the variety of paths by which they enter this country. A 1999 executive order took a step in bringing together some of the current authorities and resources to address a problem that has expanded with both increasing world trade and travel and decreasing transit time for humans and cargo. Multiple bills have been introduced on this subject in recent Congresses as well as in the 114th Congress. There are two basic approaches to addressing invasive species: a species-by-species assessment of the risks or benefits of admitting or excluding species, and a policy based on controlling pathways of entry in which vigilance is maintained on incoming ballast tanks, cargo holds, packing materials, and similar vehicles for unwanted organisms. These two approaches may complement each other. Policymakers also have the choice of an emphasis on preventing the arrival or establishment of more invasive species versus post hoc control of species that have already arrived and become established.