Invasive Species: Federal and Selected State Funding to Address Harmful,
Nonnative Species (Letter Report, 08/24/2000, GAO/RCED-00-219).

Eight federal agencies on the Invasive Species Council--Agriculture,
Commerce, Defense, Interior, State, Treasury, Transportation, and the
Environmental Protection Agency--as well as the Smithsonian and the
National Science Foundation spent $513.9 million fiscal year 1999 and
$631.5 million in fiscal year 2000 to combat invasive species. The
Department of Agriculture spent 89 percent of this money. Activities to
prevent the introduction of invasive species received the largest
percentage of funding--about 51 percent and 49 percent in fiscal years
1999 and 2000, respectively. Of the seven states surveyed--California,
Florida, Hawaii, Idaho, Maryland, Michigan, and New York--Florida spent
$94.5 million and $127.6 million in 1999 and 2000 and California spent
$82.6 million and $87.2 million in 1999 and 2000. For both years, most
funding went toward control of invasive species. The Invasive Species
Council is in the final stages of staffing the organizational
infrastructure, has drafted and is receiving comments on its management
plan, has established an advisory committee and six working groups, and
is in the process of developing a Web site. This report includes
appendixes on GAO survey responses of 10 federal departments and seven
states, including expenditures for invasive species activities.

--------------------------- Indexing Terms -----------------------------

 REPORTNUM:  RCED-00-219
     TITLE:  Invasive Species: Federal and Selected State Funding to
	     Address Harmful, Nonnative Species
      DATE:  08/24/2000
   SUBJECT:  Executive orders
	     Pest control
	     Agricultural pests
	     Plants (organisms)
	     Federal/state relations
	     Federal funds
	     State programs
IDENTIFIER:  California
	     Florida
	     Hawaii
	     Idaho
	     Maryland
	     Michigan
	     New York

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GAO/RCED-00-219

Appendix I: Scope and Methodology

30

Appendix II: Federal Invasive Species Activities

33

Appendix III: Seven States' Invasive Species Activities

37

Appendix IV: Federal and State Comments on Changes
Needed in Executive Order 13112

43

Appendix V: Responses to GAO's Survey of 10 Federal
Departments On Budget Obligations for
Invasive Species

44

Appendix VI: Responses to GAO's Survey of Seven States On
Expenditures for Invasive Species Activities

52

Appendix VII: GAO Contacts and Staff Acknowledgments

63

Table 1: Major Invasive Species Activities 10

Table 2: Obligations for Invasive Species Activities, by
Federal Department, Fiscal Years 1999 and 2000 a 13

Table 3: Federal Funding for Categories of Invasive Species,
Fiscal Year 1999 15

Table 4: Federal Departments' Views on Coordination Between
a Variety of Entities 17

Table 5: Invasive Species Activities Receiving the Greatest
Funding from Each State, Fiscal Years 1999 and 2000 20

Table 6: Invasive Species Receiving the Greatest Funding from
Each State, Fiscal Year 1999 21

Table 7: States' Views on Coordination Between Several Entities 23

Table 8: Federal Involvement in Invasive Species Activities 33

Table 9: Seven States' Invasive Species Activities 37

Figure 1: Worker Removing Zebra Mussels From Water Intake
Pipes, Purple Loosestrife, and Destruction of Trees
Caused by Asian Long-Horned Beetles 9

Figure 2: Federal Obligations by Invasive Species Activity,
Fiscal Years 1999 and 2000 14

Figure 3: Seven States' Expenditures for Invasive Species
Activities, Fiscal Years 1999 and 2000 19

Resources, Community, and
Economic Development Division

B-285902

August 24, 2000

Congressional Requesters

Invasive species--harmful nonnative plants, animals, and
microorganisms1--pose a serious threat to U.S. agriculture and the
environment, with estimated damages exceeding billions of dollars annually.
Invasive species are found in all 50 states, with some states, such as
Florida and Hawaii, more seriously affected than others. Examples of
well-known invasive species include the zebra mussel (a mollusk that clogs
water intake pipes and filtration equipment), the Asian long-horned beetle
(an insect that bores into the trunk of a tree, outside the reach of
pesticides), and purple loosestrife (a wetland plant that crowds out native
plants and animals).

In February 1999, President Clinton issued Executive Order 13112 to help
prevent the introduction of invasive species; provide for their control; and
minimize their impact on the economy, the environment, and human health. The
order established the Invasive Species Council, made up of the heads of
eight federal departments with various responsibilities for addressing
invasive species, to provide for national leadership and coordination in
federal invasive species activities. Inadequate coordination between various
departments and other entities was identified by organizations such as the
Office of Technology Assessment and the Congressional Research Service as a
weakness hindering efforts in the past. The order calls for the Council to
carry out a number of duties, including issuing a National Invasive Species
Management Plan by August 3, 2000, that, among other things, recommends
performance-oriented goals, objectives, and specific measures of success for
federal departments' invasive species programs.

To obtain a better understanding of the amount of government resources
directed at the invasive species problem, you asked us to provide
information on federal and selected state funding of invasive species
activities. Specifically, you asked that we identify (1) federal funding, by
department2 and activity (such as prevention and control), for invasive
species activities in fiscal years 1999 and 20003 and obtain the
departments' views on the effectiveness of coordination efforts with states
and other entities; (2) funding by selected states for invasive species
activities in fiscal years 1999 and 2000 and obtain the states' views on the
effectiveness of coordination with federal departments and other entities;
and (3) actions taken by the Invasive Species Council to implement Executive
Order 13112.

To identify federal funding for invasive species activities, we surveyed 10
federal departments--the 8 Council members (the departments of Agriculture,
Commerce, Defense, the Interior, State, the Treasury, and Transportation,
and the Environmental Protection Agency), as well as the Smithsonian
Institution and the National Science Foundation. Combined, these departments
account for the vast majority of federal resources spent on invasive species
activities. Although all 10 federal departments and 7 states responded to
our survey, Treasury was unable to provide information on the amount of
funding it obligated for invasive species activities and Defense provided a
partial response.4

To identify invasive species funding by selected states, we surveyed
California, Florida, Hawaii, Idaho, Maryland, Michigan, and New York--seven
states that have experienced serious problems with invasive species, are
regarded as having strong invasive species programs, and/or provided
geographical representation for our survey. Because the total amount of
funding for all 50 states is unknown, we could not determine the extent to
which the funding reported by these 7 states is representative of all 50
states. To address the actions taken by the Invasive Species Council, we
interviewed Council representatives and reviewed Council documents. Appendix
I details our scope and methodology.

The federal departments responding to our survey reported obligating over
half a billion dollars--$513.9 million and $631.5 million in fiscal years
1999 and 2000, respectively--for activities related to invasive species. The
U.S. Department of Agriculture provided far and away the largest percentage
of these funds, 89 percent ($459 million) in fiscal year 1999 and 88 percent
($556.4 million) in fiscal year 2000. The eight other federal departments
that reported funding information provided between 0.2 percent and about 5
percent of the federal funding directed toward invasive species over the 2
years. Activities to prevent the introduction of invasive species received
the greatest percentage of federal funding--about 51 percent and 49 percent
in fiscal years 1999 and 2000, respectively. Most federal departments rated
coordination with state governments as either "good" or "fair."

The seven states we surveyed reported spending between $1.6 million and
$94.5 million in fiscal year 1999 (for a total of $195.3 million) and
between $1.8 million and $127.6 million in fiscal year 2000 (for a total of
$232.6 million) on invasive species activities. In both years, Florida spent
the greatest amount of funds, $94.5 million and $127.6 million, followed by
California, $82.6 million and $87.2 million. Most of the seven states
directed the largest percentage of their funding in both years toward
activities to control invasive species. Most of the seven states rated
coordination with federal departments as "good."

The Invasive Species Council has been slow in getting off the ground,
although it has initiated several actions to implement Executive Order
13112. As of August 18, 2000, 18 months after the executive order was
issued, the Council had filled two of its four permanent staff positions and
had nearly completed filling the remaining two positions; when it does, it
will have an organizational infrastructure to oversee implementation. The
Council has also drafted and is receiving comments on its National Invasive
Species Management Plan, which is expected to be issued later in the
year--several months after the date stipulated in the executive order. In
addition, it has established an advisory committee and six working groups
that have provided information and advice to the Council. Further, it is in
the process of developing a Web site to provide a broad range of information
on invasive species and is sponsoring workshops to promote information
sharing.

The impact of invasive species in the United States is widespread, and their
consequences for the economy and the environment profound. They affect
peoples' livelihoods, placing sustainable development and industries such as
agriculture, ranching, and fisheries at significant risk: Depending on the
species, they have increased pest control costs, contaminated grain, reduced
the grazing capacity of rangelands, lowered water tables, and displaced
native plants and wildlife habitats. Invasive species are ubiquitous.
Hundreds and perhaps thousands have established populations in the United
States, with almost every area of the country having at least one highly
damaging invasive species.

Most invasive species arrive in conjunction with human activity, transport,
or habitat modification that provides new opportunities for species'
establishment. They may arrive as contaminants of bulk commodities, packing
materials, shipping containers, or ships' ballast. While many invasive
species have been introduced into the United States unintentionally, others
have been brought in by design. For example, kudzu--a rapidly growing
invasive vine that thrives in the southeastern United States--was brought in
from Japan as an ornamental plant and was used by the U.S. Department of
Agriculture in the 1930s to control soil erosion. Other invasive species are
imported as crops, livestock, pets, or aquaculture species and later escape
or are released into the environment. Not all nonnative species are
invasive, however. Many nonnative species, such as cattle, wheat and
soybeans, many fruits, and ornamentals (such as tulips and chrysanthemums),
have been largely beneficial and their propagation controllable.

While invasive species have caused considerable damage, their precise
economic impact has been poorly documented. No single organization
accumulates comprehensive data on all types of invasive species, and
assessing the dollar impacts on habitat--such as forests, wildlands, hay and
pasturelands, and aquatic sites--is very difficult. According to a 1993
study by the Office of Technology Assessment, the number and impact of
invasive species are chronically underestimated, especially for species that
do not damage agriculture, industry, or human health.5 The office estimated
that damage from 79 invasive species totaled about $97 billion from 1906
through 1991. It noted that this figure is likely only a fraction of the
total costs during the period because the figure includes only a small
percentage of invasive species; estimates for the economic effects of most
invasive species--including agricultural weeds, one of the most costly
groups--were unavailable. More recently, in 2000, Cornell University
scientists put total economic losses and associated control costs at
approximately $137 billion a year.6 They noted that this estimate was
greater than the Office of Technology Assessment's because it included over
10 times the number of species and found higher costs reported in the
literature for some of the same species identified by the office.

Although the precise total costs of invasive species are uncertain, there is
little question that some cause serious damage. For example, about 400 of
the 958 species listed as threatened or endangered under the Endangered
Species Act are considered at risk, primarily because of competition with
and/or predation by invasive species inhabiting the same areas, according to
the Cornell scientists. A variety of ecological factors can enable a
nonnative species to become ubiquitous: a lack of natural enemies,
artificial or disturbed habitats that provide favorable conditions for
propagation, and/or the introduction of a highly adaptable species or a
species that is a very effective colonizer in its new ecosystem. The
following are examples of some well-known invasive species:

ï¿½ The zebra mussel most likely entered the United States as mussel larvae in
ballast water that was released into the Great Lakes by ships traveling from
Europe. Zebra mussels invade and clog water intake pipes and water
filtration and electric generating plants. Furthermore, large zebra mussel
populations reduce food and oxygen for native fauna: They have been observed
to completely cover native mussels, clams, and snails, thereby further
threatening these species. The cost of zebra mussel prevention and
remediation for electrical generation, water treatment, and industrial
facilities is estimated at $100 million a year, according to the Cornell
University study.7

ï¿½ The Asian long-horned beetle is a recent arrival. It came to the United
States about 4 years ago, most likely in packing material or pallet wood
from China. According to Agriculture's Forest Service, the spread of this
insect could have a significant economic, social, and ecological impact on
urban, rural, and forest areas in North America. This beetle is particularly
troublesome because it bores deep within a tree, where it cannot by reached
by pesticides. The only known treatment is to destroy the infected tree, as
well as other trees nearby that often show no signs of infestation.
According to the U.S. Department of Agriculture, damages from an infestation
in New York State in 1996 resulted in the removal of many trees and cost the
state and federal government over $5 million.

ï¿½ Purple loosestrife is attractive in appearance (it has showy purple
flowers and is sold as an ornamental in some areas), but can have
devastating consequences. Arriving from Europe in the early 1800s, it has
infested wetlands in at least 42 states. It crowds out native wetland plants
that are an important source of food for waterfowl and has spread through
irrigation and river systems in the West. Once it gains a foothold, it is
almost impossible to eradicate. The Cornell study estimated that this plant
cost the U.S. economy $45 million a year.

Figure 1 shows the impact of these three species on the environment.

Sources: Cluster of zebra mussels, J. Ellen Marsden, Lake Michigan
Biological Station; Worker removing zebra mussels from water intake pipes,
Ron Peplowski, Detroit Edison, Monroe Michigan Power Station; Purple
loosestrife and Asian long-horned beetle and resulting damage, U.S.
Department of Agriculture's Animal and Plant Health Inspection Service.

Species Activities

The federal departments and states we surveyed are involved, to varying
degrees, in eight key activities that address various aspects of the
invasive species problem.8 (See table 1 for a description of these
activities.) The U.S. Department of Agriculture has the largest federal role
in combating invasive species as a result of its (1) authority to quarantine
and conduct port-of-entry inspections, (2) management of over 190 million
acres of public lands, and (3) large control projects related to
agricultural pests.

Because invasive species often cross territorial and governmental
boundaries, federal, state, and local governments and other entities
sometimes cooperate in implementing invasive species programs. For example,
Agriculture's Animal and Plant Health Inspection Service works with state
and local agencies, as well as with private landowners, to eradicate newly
introduced weeds on private lands. Table 1 outlines the major invasive
species activities, and appendixes II and III provide further information on
federal and state invasive species activities.

            Activity                             Definition
                                 Activities to prevent the introduction of
                                 invasive species. Includes monitoring the
                                 international and domestic movement of
 Prevention                      invasive species, evaluating individual
                                 species for invasiveness prior to
                                 introduction, and identifying and
                                 interdicting pathways for introduction.
                                 Surveillance for the existence and
 Detection                       location of an invasive species that may
                                 have been introduced.
                                 Measures to eliminate or reduce the
                                 effects of invasive species, including
 Control (management)            eradicating infestations, reducing
                                 populations of invasive species,
                                 preventing their spread, and/or mitigating
                                 their impact on the economy.
                                 Ongoing research and surveys to track the
                                 presence and status of invasive species
                                 over time and at varying geographic
 Monitoring                      locales to evaluate the impact of such
                                 species on ecosystems and to evaluate the
                                 effectiveness of prevention, control, and
                                 restoration activities.
                                 Activities to reinstate ecosystem
                                 structure and function that have been
 Restoration                     affected by invasive species, using native
                                 species or noninvasive, nonnative species
                                 where possible.
                                 Developing scientific knowledge, methods,
 Research and development        and technologies to prevent, detect,
                                 control, and monitor invasive species or
                                 to restore native species and habitat.
                                 Actions to support public education
 Education, outreach,            programs and cooperative efforts with
 partnerships, and cooperative   stakeholders. Includes actions in support
 activities                      of international agreements with foreign
                                 nations and international organizations.
                                 Activities to facilitate access to and
                                 exchange of information on invasive
                                 species, including information on the
                                 distribution and amount of invasive
                                 species; life histories of such species
                                 and invasive characteristics; economic,
 Information management          environmental, and human health impacts;
                                 management techniques; and laws and
                                 programs for management, research, and
                                 public education. Includes storage of data
                                 and information-sharing activities, such
                                 as providing access to databases or other
                                 forms of information.

Invasive Species Activities

Executive Order 13112--signed by President Clinton on February 3,
1999--highlights invasive species as a serious problem and creates a
structure and process for identifying federal gaps in managing it.9 The
order established an Invasive Species Council, co-chaired by the Secretaries
of Agriculture, Commerce, and the Interior. Major duties of the Council are
to issue, by August 3, 2000, a National Invasive Species Management Plan;
evaluate its progress in achieving the plan's goals; and update the plan
every other year.

Other Council responsibilities include (1) ensuring that federal
departments' invasive species activities are coordinated, complementary,
cost-efficient, and effective, and rely, as appropriate, on existing
invasive species-related organizations (including the Aquatic Nuisance
Species Task Force, Federal Interagency Committee for Management of Noxious
and Exotic Weeds, and Committee on Environment and Natural Resources); (2)
encouraging planning and action to achieve the plan's goals and objectives;
(3) developing recommendations for international cooperation; (4) developing
guidance for federal agencies on preventing and controlling invasive
species; (5) helping to develop a coordinated network among federal agencies
to document, evaluate, and monitor impacts from invasive species; and (6)
helping to establish an up-to-date information-sharing system that uses the
Internet. Appendix IV provides comments by federal and state officials on
changes needed in the executive order were the Congress to enact legislation
incorporating its provisions.

Billion Dollars in Fiscal Years 1999 and 2000

The federal departments we surveyed reported that they obligated a total of
$513.9 million in fiscal year 1999 for invasive species activities; for
fiscal year 2000, reported obligations were $631.5 million. Agriculture was
the greatest source of federal funding for these activities, accounting for
89 and 88 percent of the total, respectively--$459 million in fiscal year
1999 and $556.4 million in fiscal year 2000. The eight other federal
departments reporting funding information provided between 0.2 percent and
about 5 percent of the federal funding directed toward invasive species over
the 2 years. As shown in table 2, Interior and Defense provided the second
and third largest amounts of funding--Interior accounting for 4 percent and
5 percent in fiscal years 1999 and 2000, respectively, and Defense
accounting for 2 percent in both years.10 See appendix V for a summary of
department responses to the survey.

 Dollars in millions
 Federal department              Fiscal year 1999  Fiscal year 2000
 Agriculture                     $459.0            $556.4
 Interior                        18.1              31.1
 Defense                         12.5              14.5
 State                           7.5               9.2
 Commerce                        5.4               5.1
 National Science Foundation     4.7               5.2
 Transportation                  3.5               4.0
 Smithsonian Institution         2.1               1.9
                                 1.1               4.1
 Environmental Protection Agency

a Treasury was unable to provide information on its obligations for invasive
species activities.

Source: GAO's survey of 10 federal departments.

In addition to direct appropriations, Agriculture, the Smithsonian
Institution, and Defense reported receiving user fees11 to support their
fiscal year 1999 invasive species obligations. User fees provided about 14
percent of Agriculture's, 4 percent of the Smithsonian Institution's, and 2
percent of Defense's invasive species obligations for that year.

for Invasive Species Activities

In fiscal years 1999 and 2000, about half (51 percent and 49 percent,
respectively) of the total federal obligations for invasive species were
directed toward prevention activities. Activities to control invasive
species received the next highest percentage of funding--about 19 percent
and 23 percent, respectively, in the 2 fiscal years--followed by research
and development, which received about 18 percent of the total funding in
fiscal year 1999 and about 17 percent in the following year. (See fig. 2 for
the total amount of federal funding obligated for each invasive species
activity for fiscal years 1999 and 2000.)

Source: GAO's survey of 10 federal departments.

Regarding which invasive species activity most needed additional attention
from the respondent's department, half of the departments (four of eight
respondents) chose control activities; two chose prevention; and two chose
research and development.

Received the Most Federal Funding

In fiscal year 1999, about 55 percent ($284.5 million) of the $513.9 million
in reported federal obligations for invasive species were directed toward
specific categories of invasive species, rather than toward activities
addressing multiple categories of species. Over half ($154.5 million) of the
funding for specific categories of invasive species went to terrestrial
arthropods (a category of invertebrates--primarily insects--that includes
fruit flies and Asian long-horned beetles). The plant category, which
includes terrestrial noncrop (such as purple loosestrife), terrestrial crop
(crop weeds such as johnsongrass), and aquatic plants, received the second
greatest amount of funding--$70.7 million, or about 25 percent of the
funding for specific categories of invasive species. As shown in table 3,
microorganisms and diseases was the third highest category, receiving about
12 percent ($33.1 million) of the funding for specific categories.

 Dollars in millions
 Category of invasive species             Total federal funding
 Terrestrial arthropods                   $154.5
 Plants                                   70.7
 Animal and plant microorganisms/diseases 33.1
 Fish and aquatic invertebrates           20.4
 Reptiles and amphibians                  4.8
 Mammals                                  0.8
 Birds                                    0.2

Source: GAO's survey of 10 federal departments.

Regarding which individual invasive species received the greatest amount of
funding in fiscal year 1999, five species were cited by the seven
departments that responded to this question. Agriculture directed its
greatest funding for a single invasive species--$36.2 million--toward fruit
flies. Defense and Commerce cited zebra mussels (funded at $2.7 million and
$1.0 million, respectively); the Interior and the Smithsonian Institution
reported that brown tree snakes12 received the greatest amount of their
funds ($1.9 million and $0.2 million, respectively). State directed the
largest amount of its funding ($7.5 million) toward sea lampreys (an
eel-like ocean fish that fastens onto other fish and eats until sated). See
appendix V for the complete responses to this question.

Federal departments provided invasive species funding to a variety of
entities, including other federal departments; state and local governments;
universities or colleges; private nonprofit organizations; individual
researchers; international organizations (e.g., the Great Lakes Fisheries
Commission--United States and Canada); and private landowners. Four of the
10 departments reported that individual researchers received the greatest
amount of their funds for invasive species activities. The other six
departments spread their responses among five categories: other federal
departments, state governments, universities or colleges, international
organizations, and private landowners.

States as Either Good or Fair

Most federal departments rated coordination with state governments on
invasive species issues as good or fair; at the same time, most respondents
rated coordination within their own department, between departments, and
between their department and universities/colleges as either good or
excellent. As shown in table 4, coordination between departments and local
governments received one of the lowest ratings. One department stated that
improved coordination was needed at local levels. It noted, for example,
that weed eradication projects may need to involve several federal
departments, state and county governments, and private landowners, and that
failure to involve any one of these entities could result in failure.

                              Number of department responsesa

 Coordinating entities        Excellent  Good Fair  Poor Very Not
                                                         poor applicable
 Between governmental
 entities
 Units within own department  3          4    2
 Federal departments          1          6    2
 Federal departments and
 state governments            1          4    4
 Federal departments and
 local governments            1          2    2     2         2
 Between federal departments
 and nongovernmental entities
 Federal departments and
 universities/colleges        2          5          1         1
 Federal departments and the
 private sector               1          3    3     1    1
 Between federal departments
 and other reported entities
 International organizations             1    1
 Interest groups                              1
 Irrigation districts         1
 Tribal governments           1
 Foreign governments          1
 Other governments                       1

aNine federal departments responded to this question.

Source: GAO's survey of 10 federal departments.

States

In fiscal year 1999, the state governments we surveyed reported expenditures
for invasive species activities ranging from $1.6 million to $94.5 million
(for a total of $195.3 million); in fiscal year 2000, the range was $1.8
million to $127.6 million (for a total of $232.6 million). Appendix VI
provides a summary of state responses to the survey.

Florida and California each spent considerably more than the other five
states on invasive species activities. In fiscal years 1999 and 2000,
Florida reported spending $94.5 million13 and $127.6 million, respectively;
California's reported spending for those years was $82.6 million and $87.2
million. The expenditures for Hawaii, Michigan, Idaho, New York, and
Maryland ranged from $1.6 million to $7.6 million for the 2 years, as shown
in figure 3.

Source: GAO's survey of seven states.

In addition to state government expenditures, several other government
entities provided invasive species funding to many of the seven states.
(This funding was not included in the funding reported by the states.) The
largest nonstate funding source was the federal government, which provided
about $0.3 million to $31.5 million to each of the seven states in fiscal
years 1999 and 2000.14 Counties were a source of government funding for
three states--Idaho received $3.8 million and $4.9 million; Florida, $1.3
million and $1.5 million; and Maryland, $0.3 million in each of the 2 years.

Of the eight major activities, those directed toward controlling invasive
species received the most funding from every state except California (and
Michigan in fiscal year 2000), as shown in table 5.

 Dollars in millions
 Fiscal Year 1999                                 Fiscal Year 2000
                      Expenditure Percent of                 Expenditure Percent of
 State     Largest    for         state's total   Largest    for         state's total
           activity                               activity
                      activity    expendituresa              activity    expendituresa
 CaliforniaPrevention $33.8       41              Prevention $33.7       39
 Florida   Control    71.0        75              Control    100.9       79
 Hawaii    Control    2.1         34              Control    2.2         29
 Idaho     Control    1.9         52              Control    1.3         35
 Michigan  Control    3.4         81              Monitoring 0.6         32
 Maryland  Control    0.7         41              Control    0.8         42
 New York  Control    0.7         30              Control    0.8         31

aThis represents the percentage of each state's total expenditures for
invasive species activities.

Source: GAO's survey of seven states.

Four of the states reported that preventing the introduction of new invasive
species was the activity in greatest need of more attention from their
states. Control, detection, and monitoring were each reported by one state
as the primary activity needing more attention.

Species Receiving the Greatest Amounts of State Funding

In fiscal year 1999, plants--terrestrial noncrop, terrestrial crop, and
aquatic--was the category of invasive species that received the most funding
from three states, with Florida providing the single greatest amount--$54.2
million. In three other states, terrestrial arthropods was the
highest-funded category, with California providing the greatest funding
($43.7 million) for this category. Table 6 shows the categories of invasive
species that received the greatest funding from each state in fiscal year
1999.

 Dollars in millions

 State      Category of invasive species with the greatest   State funding
            funding
 Florida    Plants                                           $54.2
 California Terrestrial arthropods                           43.7
 Idaho      Plants                                           3.7
 Michigan   Fish and aquatic invertebrates                   3.1
 Hawaii     Plants                                           1.7
 New York   Terrestrial arthropods                           1.1
 Maryland   Terrestrial arthropods                           0.6

Source: GAO's survey of seven states.

For individual invasive species, no two states reported giving the greatest
amount of their funding to the same species--for example, citrus canker (a
highly contagious bacterial disease that infects citrus crops) received the
greatest amount of funding ($29.1 million) in Florida, and the medfly (the
Mediterranean fruit fly--a serious pest that attacks over 250 types of
fruits, vegetables, and nuts) was the top recipient of funds ($9.4 million)
in California.

Within the plant category, terrestrial noncrop plants (such as purple
loosestrife) were selected by Florida, Hawaii, and Maryland as the primary
category of invasive species needing more attention from their state
governments; aquatic plants (such as hydrilla--an aggressive submerged plant
that can choke lakes and water supplies) were selected by three other states
(California, Idaho, and New York). The seventh state--Michigan--selected
microorganisms and diseases.

States provided invasive species funds to a variety of entities to carry out
invasive species activities within their states: Two states reported that
multi-stakeholder organizations (such as the Chesapeake Bay Program)
received the greatest amount of funding for invasive species activities; two
others reported universities or colleges; and local governments, private
nonprofit organizations, and lake associations were each reported by one
state.

Good

The states rated coordination with the federal government on invasive
species issues most frequently as good. Coordination within states, between
states and universities/colleges, and between states and local governments
was also rated good by most states, as shown in table 7. Some states had
suggestions for improving coordination. For example, one state thought that
the primary federal responsibility and direction for invasive species
programs should reside with one federal department; another noted that
interstate regional planning councils were needed to coordinate responses to
new invasions.

                                            Number of state responses

        Coordinating entities          Excellent  Good  Fair Poor    Very
                                                                     poor
 Between governmental entities
 Between this state's government
 entities (e.g., departments within               4     3
 the state)
 Between this state government and
 other state governments                          3     4
 Between this state government and the
 federal government                               4     3
 Between this state government and
 local governments                                4     1    2
 Between state governments and
 nongovernmental entities
 Between this state government and
 universities and colleges                        5     1    1
 Between this state government and the
 private sector                                   2     4    1
 Between state governments and other
 reported entities
 Nonprofit organizations               1
 Exotic Pest Plant Council             1
 Regional water management districts   1
 Tribes                                                      1
 The Nature Conservancy                           1

Source: GAO's survey of seven states.

Order 13112

Although the Invasive Species Council has been slow in getting off the
ground, it has initiated several actions in its first 18 months.
Specifically, as of August 18, 2000, the Council

ï¿½ was in the final stages of staffing the organizational infrastructure that
will oversee the implementation of the executive order;

ï¿½ had drafted and was receiving comments on its National Invasive Species
Management Plan--which the executive order stipulated was to be issued by
August 3, 2000;

ï¿½ had established an advisory committee, which has held three meetings, and
six working groups, which have provided information and advice to the
Council; and

ï¿½ was in the process of developing a Web site and sponsoring workshops to
promote information sharing.

As of August 18, 2000, the Council had filled two of its four permanent
positions (the executive director and one program assistant) and was close
to filling its two remaining positions (two assistant directors--one for
domestic and one for international policy). Until August, the Council's
activities were conducted primarily by three persons detailed from
Agriculture, Commerce, and the Interior who work part-time on Council
activities and part-time on their other job duties. The Council is also
assisted part-time by a scientist on detail from Agriculture and by a
full-time program assistant who has been on-board since March 2000.15

In addition, each of the eight department heads who serve on the Council
have appointed technical liaisons. These liaisons represent an
interdepartmental group that works directly with the Council to facilitate
the flow and exchange of information between the Council and the federal
departments represented on the Council.

The Council has drafted a National Invasive Species Management Plan--one of
its major responsibilities--and is obtaining comments on the plan from
stakeholders, including representatives from state governments, industry,
academia, and the public. Council staff anticipate that notice of the plan
and a 60-day comment period will be published in the Federal Register in
September 2000. The draft plan provides recommendations on the following
issues: federal coordination; communication, education, and outreach;
prevention; early detection and rapid response; control; restoration;
research, database management, and monitoring; information management; and
international cooperation and capacity building. The Council staff expect
that the final plan will be issued later in the year--several months after
the date stipulated in the executive order.

To meet the order's requirement that the Council encourage planning at
regional, state, local, tribal, and ecosystem-based levels, the Council
involved these and other parties in developing the national plan. For
example, an advisory committee and six working groups made up of federal and
nonfederal members have played key roles in the plan's development. After
drafting its plan, the Council obtained comments from the eight departmental
Council members and held public meetings to discuss the plan in Oakland,
California; Denver, Colorado; West Palm Beach, Florida; Chicago, Illinois;
and Albany, New York.

Groups

Since its inception, the Council has held two meetings. In addition, to
assist it in carrying out its responsibilities, the Council has established
an advisory committee of 32 members from universities, state governments,
associations, and other entities. The advisory committee--selected from
nominations received in response to a Federal Register notice--has met three
times. Also, the Council has established six working groups--a total of more
than 250 members from various levels of government as well as industry--to
address issues such as policy, regulations, and international activities.

Promote Information Sharing

The Council is developing a Web site--www.invasivespecies.gov--and holding
workshops to promote information sharing. The Web site now contains
information about the Council's activities, the draft management plan, and
links to the Web sites of governmental and nongovernmental entities that are
engaged in invasive species activities. In addition, the Web site provides
an e-mail address for comments on the draft plan. The Council plans to add
additional information, such as the invasive species that are regulated by
its department members, on an ongoing basis. The Council is also developing
a capability that will enable Web site visitors to click on a state or
county to learn about the invasive species in that area, efforts to control
those species, and ways they can help with those activities.

In addition, Council members have sponsored workshops and other meetings to
obtain input from a variety of stakeholders on the integration and sharing
of databases.16 The next workshop, scheduled for September 2000, on western
rangeland weed management will examine and provide suggestions regarding (1)
better use of existing databases and (2) future data collection and sharing.

We provided the Invasive Species Council co-chairs with a draft of this
report for their review and comment. The Executive Director and
representatives of the co-chairs, in commenting on the section on Council
actions, agreed with the facts presented in the section and provided
technical comments, which we incorporated as appropriate. In addition, we
provided appendix II to the officials who responded to GAO's survey for the
10 federal departments. These officials agreed with the facts in this
appendix on federal programs and provided clarifying comments, which we
incorporated as appropriate.

We conducted our work from April through July 2000 in accordance with
generally accepted auditing standards.

We are sending copies of this report to interested congressional committees
and members; the Honorable Dan Glickman, Secretary of Agriculture; the
Honorable Norman Y. Minetta, Secretary of Commerce; the Honorable William S.
Cohen, Secretary of Defense; the Honorable Bruce Babbitt, Secretary of the
Interior; the Honorable Madeleine K. Albright, Secretary of State; the
Honorable Lawrence H. Summers, Secretary of the Treasury; the Honorable
Rodney E. Slater, Secretary of Transportation; the Honorable Carol M.
Browner, Administrator, the Environmental Protection Agency; the Honorable
Rita R. Colwell, Director, National Science Foundation; and the Honorable
Lawrence M. Small, Secretary of the Smithsonian Institution. Copies are also
being sent to the Governors of California, Florida, Hawaii, Idaho, Maryland,
Michigan, and New York. We will also make copies available to others upon
request.

If you or your staff have any questions about this report, please contact me
on (202) 512-5138. The key contributors to this report are listed in
appendix VII.

Lawrence J. Dyckman
Director, Food and
Agriculture Issues

List of Congressional Requesters

The Honorable Sherwood Boehlert
Chairman, Subcommittee on Water Resources
and Environment
Committee on Transportation and Infrastructure
House of Representatives

The Honorable Wayne T. Gilchrest
Chairman, Subcommittee on Coast Guard
and Maritime Transportation
Committee on Transportation and Infrastructure
House of Representatives

The Honorable Richard Pombo
Chairman, Subcommittee on Livestock and Horticulture
Committee on Agriculture
House of Representatives

The Honorable Jim Saxton
Chairman, Subcommittee on Fisheries Conservation,
Wildlife and Oceans
Committee on Resources
House of Representatives

Scope and Methodology

To address the first and second objectives of our review--federal and
selected state funding information for fiscal years 1999 and 2000 for
invasive species activities and information on coordination efforts--we
mailed surveys to federal departments and selected states.

The survey to 10 federal departments requested information on federal
obligations for fiscal years 1999 (actual) and 2000 (estimated) and their
views on the effectiveness of coordination efforts with states and other
entities. The term "departments" refers to the following entities: the
departments of Agriculture, Commerce, Defense, the Interior, State,
Transportation, the Treasury, and the Environmental Protection Agency (all
of which are members of the Invasive Species Council); and the National
Science Foundation and the Smithsonian Institution. The latter two entities
were identified by officials of Agriculture, the Interior, and Commerce as
providing significant funding for various invasive species activities.

The survey to seven states requested information on state expenditures for
fiscal years 1999 (actual) and 2000 (estimated) and the states' views on the
effectiveness of coordination efforts with federal departments and other
entities. The seven states surveyed--California, Florida, Hawaii, Idaho,
Maryland, Michigan, and New York--were selected on the basis of
recommendations from Agriculture, the Interior, and Commerce officials with
expertise on invasive species. They recommended these states for one or more
of the following reasons: the state has significant problems with invasive
species, has implemented strong and/or innovative programs, and/or provides
geographical representation.

We did not independently verify the accuracy of the federal department or
state government officials' responses to our surveys. However, we pretested
drafts of our surveys to obtain comments from federal and state government
officials and incorporated their comments where appropriate. We also
reviewed each survey response to identify internal data inconsistencies and
other issues needing clarification, followed up with survey respondents to
resolve questions, and made agreed-upon changes to their responses as
appropriate.

The federal and state surveys requested information on
obligations/expenditures for eight invasive species activities: prevention,
detection, control (management), monitoring, restoration, research and
development, information management, and
education/outreach/partnerships/cooperative activities. We coordinated with
staff from the Invasive Species Council in developing the survey instruments
and used definitions for invasive species-related terms that the Council
developed. In addition, to put the magnitude of the invasive species problem
into perspective, we reviewed several studies that addressed environmental
and economic costs as well as other harmful effects associated with invasive
species. We did not, however, analyze or verify the information contained in
these studies.

In completing the survey, we asked federal departments to obtain information
from appropriate staff (that is, their staff with responsibilities or
knowledge of their department's invasive species programs). Similarly, we
asked state officials to obtain information from all their
departments/agencies that conducted invasive species activities and to
incorporate the information into one state response. Federal obligations
were based on the federal fiscal year, which runs between October 1 and
September 30. However, the state expenditures were based on the states'
fiscal years, which generally run from July 1 through June 30.

We recognize that the total funding amount reported for invasive species
could be under- or over-estimated because of differences in both federal and
state departments' and agencies' reporting, budgeting, and accounting
practices. Also, in some cases, funding for invasive species activities
could not be separated from other activities. Some federal and state
officials sent in several individual responses from their various
departmental or state entities, which we consolidated into a single
department or state response. In these instances, we returned the
consolidated survey to the respondent for review and approval.

We received survey responses from all respondents--10 federal departments
and 7 states. However, two responses were missing significant information.
While Treasury's Customs Service engages in some invasive species-related
activities, it does not track obligations for these activities separately
from its other enforcement activities. The Department of Defense submitted
only a partial response, which included the Navy, Army Corps of Engineers,
and the Marine Corps. The Army and the Air Force did not provide
information.

To address our third objective--the actions taken by the Invasive Species
Council to implement Executive Order 13112--we met with representatives from
(1) Agriculture, Commerce, and Interior and (2) the Invasive Species
Council's three co-chairs and attended several public meetings held by the
Invasive Species Advisory Committee and the Council. In addition, we
reviewed documents, memos, reports, and working draft policy papers
developed by the advisory committee working groups. Finally, we reviewed a
draft of the National Invasive Species Management Plan, which the Council
prepared as directed by Executive Order 13112. We did not, however, evaluate
the extent to which the draft plan meets the requirements of the executive
order.

We performed our work from April through July 2000, in accordance with
generally accepted government auditing standards.

Federal Invasive Species Activities

The federal government sponsors numerous invasive species activities carried
out by many departments with various unique, complex, and integrated
missions. These activities span waterways, wetlands, U.S. ports of entry,
public and private lands, the environment, roadsides, and farmland. The 10
federal departments that we surveyed--Agriculture, Commerce, Defense, the
Interior, State, Transportation, the Treasury; the Environmental Protection
Agency, the National Science Foundation, and the Smithsonian
Institution--work with each other, state agencies, nongovernmental
organizations, and private citizens to prevent, detect, control, and
eradicate a variety of invasive species. Table 8 describes the federal
departments' and their component agencies' involvement in invasive species
programs and activities.

     Department and agency                      Activities
                                 Involved in all invasive species
                                 activities: prevention, detection, control
 Department of Agriculture       (management), monitoring, restoration,
                                 research and development, information
                                 management, and education, outreach,
                                 partnerships, and cooperative activities.
                                 Provides scientific and technical support
                                 for Agriculture and other federal agencies
                                 focusing on detection technology for ports
                                 of entry; systematics (i.e., the study of
                                 natural patterns and processes relating to
                                 the history of a species and the factors
                                 responsible for its origin and evolution)
 Agricultural Research Service   for rapid identification of invading
                                 species; and pesticide application
                                 technology. Also develops biologically
                                 based controls and helps monitor target
                                 pests of integrated pest management
                                 programs (such as ground, aerial, and
                                 satellite monitoring of leafy spurge and
                                 other weed species).
                                 Through its agriculture quarantine
                                 inspection and regulatory enforcement
                                 programs at 172 U.S. ports of entry,
                                 conducts preclearance activities, risk
                                 analysis and permit decisions, treatment
                                 efforts, detection surveys, and
                                 eradication efforts to prevent the
                                 introduction of foreign pests that would
 Animal and Plant Health         threaten U.S. agricultural production and
 Inspection Service              natural ecosystems. Foreign pests include
                                 insects, plant and animal diseases,
                                 mollusks, mites, and invasive plants.
                                 Cooperates with federal and state agencies
                                 and nongovernmental organizations to
                                 detect, contain, and eradicate
                                 infestations of quarantined significant
                                 foreign pests before they become well
                                 established and spread.
                                 Funds integrated projects and
                                 competitively based research relevant to
                                 improving public understanding of invasive
                                 species; funds research on cost-effective
                                 management, environmentally safe control
 Cooperative State Research,     of invasive species using biological,
 Education, and Extension        chemical, cultural, and mechanical
 Service                         practices and supports invasive species
                                 management to maximize effective and
                                 economical pest control and exclusion.
                                 Also provides linkages to address invasive
                                 species problems with local, state, and
                                 regional stakeholders.
                                 Develops decision-making tools for
                                 comparing the consequences of invasive
                                 plant species with possible control costs.
 Economic Research Service       Considers both direct and indirect human
                                 costs of ecosystem disruptions and costs
                                 and potential adverse consequences of
                                 alternative weed treatments.
                                 Requires all of its program participants
 Farm Service Agency             to control weeds (including noxious
                                 weeds), insects, pests, and other
                                 undesirable species on enrolled lands.
                                 Manages 191 million acres of federal lands
                                 for many purposes, including protection
                                 from invasive weeds, and is Agriculture's
                                 lead agency for nuisance weed control.
                                 Conducts research on invasive plant
                                 species, including ecological studies to
                                 support restoration of sites after
                                 treatment of exotic weeds and control of
                                 invasive plants, such as kudzu in the
                                 southern United States and yellow
                                 starthistle, spotted knapweed, and leafy
                                 spurge in Idaho. Seeks to control and
 Forest Service                  mitigate the impact of invasive species,
                                 such as the Asian long-horned beetle,
                                 gypsy moth, hemlock woolly, and browntail
                                 moth. Conducts disease research, such as
                                 the control of butternut canker and
                                 selection of trees that are genetically
                                 resistant to Dutch elm disease, pitch
                                 canker, chestnut blight, and white pine
                                 blister rust. Works closely with state
                                 agencies, private landowners, and tribal
                                 governments through its regulatory and
                                 enforcement programs to prevent and
                                 control invasive species and provides
                                 funding and technical assistance through
                                 its state and private forestry programs.
                                 Provides technical assistance to
                                 cooperating landowners on managing
                                 invasive species that inhabit lands used
                                 for agricultural production--has a
                                 significant program for range management
 Natural Resources Conservation  and restoration, which includes an
 Service                         invasive species control element.
                                 Maintains a database that includes
                                 extensive information on invasive plant
                                 species and operates plant materials
                                 centers that promote the use of native
                                 species for soil erosion control.
                                 Involved in all invasive species
                                 activities: prevention, detection, control
 Department of Commerce          (management), monitoring, restoration,
                                 research and development, information
                                 management, and education, outreach,
                                 partnerships, and cooperative activities.
                                 Funds research, education and outreach,
                                 and control activities primarily through
                                 the National Sea Grant Program, with some
                                 activities funded through the National
                                 Ocean Service and National Marine
                                 Fisheries Service. Efforts focus on marine
                                 systems and the Great Lakes. Research
                                 efforts include monitoring the impacts of
                                 invasive species on coastal and other
                                 ecosystems, developing control and
                                 mitigation options, and preventing new
 National Oceanic and            introductions by, among other things,
 Atmospheric Administration      developing new technologies for ballast
                                 water management. Performs economic
                                 evaluations of the costs of aquatic
                                 invasive species and conducts control
                                 programs to eradicate and prevent their
                                 spread. Has regulatory authority to
                                 prevent the introduction of invasive
                                 species that may affect marine
                                 sanctuaries, such as the Florida Keys
                                 National Marine Sanctuary; endangered or
                                 threatened species; coastal areas; and
                                 essential fish habitats.
                                 Involved in all invasive species
                                 activities: prevention, detection, control
                                 (management), monitoring, restoration,
                                 research and development, information
                                 management, and education, outreach,
                                 partnerships, and cooperative activities.
                                 Engages in management and control of
                                 invasive species: (1) prevents the entry
                                 of invasive species in the United States,
                                 (2) controls invasive species on Defense
 Department of Defense           installations, and (3) restores Defense
                                 lands using native plants. Developed and
                                 implemented the Navy's ballast water
                                 management policy and set discharge
                                 standards for vessel ballast water to
                                 address the environmental impact of
                                 invasive species in ballast water. Other
                                 efforts include partnerships to control
                                 brown tree snakes, prevent the spread of
                                 invasive plants, and maintain a noxious
                                 and nuisance plant management information
                                 system.
                                 Supports aquatic plant control, which
                                 primarily involves invasive species in
                                 non-Corps waters. Spends several million
 Army Corps of Engineers         dollars annually on removal of aquatic
                                 growth, predominantly for invasive
                                 species, and supports zebra mussel
                                 research efforts.
                                 Involved in all invasive species
                                 activities: prevention, detection, control
                                 (management), monitoring, restoration,
                                 research and development, information
                                 management, and education, outreach,
                                 partnerships, and cooperative activities.
 Environmental Protection Agency Deals with invasive species in three
                                 general areas--(1) eliminating ballast
                                 water as a pathway for plants, animals, or
                                 microbial species not native to the United
                                 States, (2) regulating pesticides that may
                                 be used to control invasive species, and
                                 (3) conducting research on the ecological
                                 impacts of invasive species.
                                 Involved in all invasive species
                                 activities: prevention, detection, control
 Department of the Interior      (management), monitoring, restoration,
                                 research and development, information
                                 management, and education, outreach,
                                 partnerships, and cooperative activities.
                                 Helps support the management of invasive
 Bureau of Indian Affairs        species on Indian lands through exotic
                                 weed eradication and other programs.
                                 Focuses primarily on controlling invasive
                                 plants on the 264 million acres it
                                 manages, primarily in western states and
                                 Alaska. Initiated strategy to prevent and
                                 control the spread of noxious weeds on
 Bureau of Land Management       public lands by using biological,
                                 chemical, and physical treatment for
                                 invasive plants. Responsible for
                                 protecting and managing wild horses and
                                 burros that, although not native, have a
                                 legally protected status.
                                 Focuses on invasive species infestation of
                                 water systems, including reservoirs,
                                 rivers, thousands of miles of distribution
                                 canals, rights-of-way, wetlands, and
                                 recreational areas. Invasive species of
                                 concern include zebra mussels, Chinese
 Bureau of Reclamation           mitten crabs, hydrilla, water hyacinth,
                                 purple loosestrife, saltcedar and leafy
                                 spurge. These species can obstruct water
                                 flow, hinder access for maintenance and
                                 recreation, cause structural damage, and
                                 negatively affect water system operations,
                                 water quality, wildlife habitat and public
                                 use.
                                 Protects and conserves fish and wildlife
                                 resources; controls invasive plants and
                                 animals, such as feral pigs, melaleuca,
                                 salt cedar, purple loosestrife, in the
                                 93-million acre National Wildlife Refuge
                                 System; works with private landowners to
                                 implement on-the-ground restoration
                                 projects that eradicate and control and
                                 manage invasive species; regulates imports
 Fish and Wildlife Service       of injurious wildlife; evaluates imported
                                 animals to determine injurious status;
                                 conducts activities to prevent, control
                                 and monitor aquatic nuisance species such
                                 as zebra mussel, Asian swamp eel, Chinese
                                 mitten crab, brown tree snake and others
                                 that threaten native species and the
                                 aquatic ecosystems; and provides
                                 cost-share grants to implement approved
                                 state aquatic nuisance species management
                                 plans.
                                 Focuses on researching factors influencing
                                 the invasion by invasive species and the
                                 effects of invasive species on ecosystem
                                 processes, native species, and landscape
                                 dynamics, especially on Department of the
                                 Interior land; facilitates documentation,
                                 dissemination and integration of invasive
                                 species information; focuses on small
 Geological Survey               number of highly invasive species, with
                                 emphasis on the Great Lakes and eastern
                                 waterways and wetlands, riparian
                                 ecosystems, and Hawaii, as well as
                                 invasive plants on western rangelands.
                                 Also, manages the national Nonindigenous
                                 Aquatic Species Database and several
                                 regional databases (such as Hawaii,
                                 Colorado plateau, and northern prairie).
                                 Routinely conducts ecological monitoring
                                 projects to measure potential or actual
                                 impacts of outer continental shelf oil and
                                 gas development on marine, coastal, and
                                 human lives. Invasive species level
 Minerals Management Service     taxonomic identifications conducted during
                                 these monitoring efforts provide useful
                                 information for documenting occurrences
                                 and geographic extensions of marine
                                 invasive species in near-shore and
                                 offshore waters.
                                 About 190 of the 300 National Park Service
                                 units have identified exotic species as a
                                 significant resource management concern in
                                 their management plans. When managing
                                 invasive species, relies on an integrated
                                 pest management approach that permits the
                                 use of biological and other types of
 National Park Service           controls. Some parks, such as Hawaii
                                 Volcanoes, Everglades, and Big Cypress,
                                 have programs to address specific invasive
                                 species such as melaleuca, goats, pigs or
                                 invasive plants. In addition, a number of
                                 parks work collaboratively with neighbors
                                 or other groups to manage invasive
                                 species.
                                 Created a brown tree snake program
                                 supporting a number of operational,
 Office of Insular Affairs       research, and education activities in
                                 accordance with a long-term brown tree
                                 snake control plan.
                                 Involved in the following invasive species
                                 activities: research and development; and
                                 education, outreach, partnerships, and
                                 cooperative activities. Funds basic and
 National Science Foundation     applied research on invasive species,
                                 including their roles in population and
                                 ecological processes, their relationship
                                 to biological conservation activities, and
                                 their role as a disturbance agent in the
                                 ecosystem.
                                 Involved in the following invasive species
                                 activities: prevention, detection, control
                                 (management), monitoring, research and
                                 development, information management, and
                                 education, outreach, partnerships, and
                                 cooperative activities. Research addresses
                                 the pattern, impact, and management of
                                 invasive species. Smithsonian
                                 Environmental Research Center programs
                                 measure the pattern of transfer, invasion,
                                 and impact of invasive species on coastal
 Smithsonian Institution         marine and estuarine systems. Conducts
                                 specific projects to test methods to
                                 reduce the risk of species transfer in
                                 ship ballast water; documents the history
                                 of invasive species invasions in the
                                 Chesapeake Bay. In cooperation with Coast
                                 Guard, established the National Ballast
                                 Water Information Clearinghouse to measure
                                 the changing patterns of ballast water
                                 delivery, manages vessels arriving in U.S.
                                 ports, and synthesizes national data on
                                 patterns and impacts of alien species in
                                 coastal ecosystems.
                                 Involved in the following invasive species
                                 activities: information management; and
                                 education, outreach, partnerships, and
                                 cooperative activities. Engages in
                                 negotiations, international treaty
                                 activities, and cooperative
                                 intergovernmental efforts to address
                                 invasive species issues--e.g., catalyzes
                                 formation of a voluntary intergovernmental
                                 initiative to address the problem,
                                 negotiates in the International Maritime
 Department of State             Organization to develop a treaty to
                                 address the introduction of invasive
                                 species in ballast water, and works with
                                 South Pacific countries to raise awareness
                                 of the need to control brown tree snakes.
                                 These international efforts focus on
                                 safeguarding biodiversity, reducing
                                 negative ecological and economic impacts
                                 from invasive species, and reconciling the
                                 need to identify and manage invasive
                                 species pathways with the need to continue
                                 globalization and increase trade and
                                 travel.
                                 Involved in the following invasive species
                                 activities: prevention, research and
 Department of Transportation    development, information management, and
                                 education, outreach, partnerships, and
                                 cooperative activities.
                                 Responsible for developing and
                                 implementing a ballast water management
 U.S. Coast Guard                program to minimize the likelihood that
                                 invasive species can be transported to the
                                 United States in the ballast water of
                                 long-distance ocean vessels.
                                 Focuses primarily on vegetation
 Federal Highway Administration  management, including developing
                                 guidelines for combating roadside invasive
                                 species.
                                 Involved in the following invasive species
                                 activities: prevention, detection,
                                 information management, and education,
                                 outreach, partnerships, and cooperative
                                 activities. The U.S. Customs Service has a
                                 major operational role in preventing or
                                 restricting the entry of imported
                                 merchandise and its containers that could
 Department of the Treasury      potentially be or are infested with
                                 invasive species. Customs personnel
                                 inspect passengers, baggage, and cargo at
                                 U.S. ports of entry to enforce or
                                 cooperate, as appropriate, in enforcing
                                 regulations/procedures of other federal
                                 agencies. Customs selectively inspects
                                 incoming passengers, baggage, and cargo
                                 based on risk management criteria, such as
                                 country-of-origin and other factors.

Source: GAO's survey of 10 federal departments; Harmful Non-Native Species:
Issues for Congress, Congressional Research Service, Sept. 1999; and Harmful
Non-Indigenous Species in the United States, Office of Technology
Assessment, OTA-F-656, Sept. 1993.

Seven States' Invasive Species Activities

The seven states we surveyed conduct a variety of invasive species
activities through many of their departments and entities. Table 9 presents
the edited responses from the seven states. The table is followed by
descriptions of three states' innovative invasive species programs.

      State and responsible
   department or other entity      Reported invasive species activities

                                Involved in prevention, detection, control
                                (management), monitoring, research and
 California                     development, information management,
                                environmental compliance, planning, program
                                supervision, and education, outreach,
                                partnerships, and cooperative activities.
                                Maintains open waterways in some areas
                                through control of water hyacinths and
 Department of Boating and      Egeria densa (a plant used in home
 Waterways                      aquariums--it forms dense mats that choke
                                out native plants when introduced into
                                lakes).

 Department of Food and         Conducts pest prevention programs that
 Agriculture                    focus on species problematic to
                                agriculture.
                                Manages a variety of wildlife and game
 Department of Fish and Game    preserves (and vegetation in preserves),
                                and controls nondesirable vertebrates.
 Department of Forestry and     Assists landowners with forest pest
 Fire Protection                problems.

 Department of Transportation   Conducts vegetation management of roadways,
                                although this is not a discrete mission.
                                Focuses on water supply issues and controls
 Department of Water Resources  Spartina (an aggressive, deep-rooted
                                cordgrass that has invaded open mud-flat
                                estuaries and displaced native vegetation).
 Department of Parks and        Focuses on vegetation management of parks,
 Recreation                     although this is not a discrete mission.
 State Lands Commission         Manages ballast water management programs.
                                Involved in prevention, detection, control
                                (management), monitoring, restoration,
                                research and development, information
 Florida                        management, field testing of new chemicals
                                and treatments from companies, and
                                education, outreach, partnerships, and
                                cooperative activities.
                                Maintains the largest invasive plant
 Department of Environmental    management program in the United States;
 Protection                     manages invasive plants throughout the
                                state park system; and controls invasive
                                plants on its managed lands.
                                Monitors invasive species, including Perna
                                viridis (i.e., a green mussel that can
                                restrict water flow in pipes and increase
 Fish and Wildlife Conservation drag on structures such as boat hulls).
 Commission                     Monitors such invasive species by (1)
                                examining known or potential areas of
                                infestation and (2) providing posters to
                                power plants, marinas, and tackle shops in
                                known or potentially infested areas.
                                Detects, controls, and monitors invasive
                                species on district-owned lands; conducts
                                restoration projects to improve water
                                quality and wildlife habitat; provides a
                                potential source of matching funds for
                                local governments to complete water
 Water management districts     management projects; provides clearinghouse
                                for documents and information; maintains an
                                Aquatic Wetland and Invasive Plant
                                Information Retrieval System database
                                online; and retains an invasive plant
                                control section that conducts the largest
                                field application studies using both
                                biological and chemical methods.
                                Involved in prevention, detection, control
                                (management), monitoring, restoration,
 Hawaii                         research and development, information
                                management, and education, outreach,
                                partnerships, and cooperative activities.
                                Protects Hawaii's agricultural industries,
                                natural resources, and the public from the
                                entry and establishment of detrimental
                                insects, weeds, and other pests; protects
 Department of Agriculture      livestock and poultry industries through
                                the control and prevention of pests and
                                diseases; and conducts animal disease
                                surveillance and epidemiology, laboratory
                                diagnosis, rabies quarantine, and animal
                                and bird importation inspection.
                                Implements and enforces vector-control
                                activities to minimize the dangers and
                                annoyances caused by mosquitoes, rats, and
 Department of Health           other vectors; supports investigations to
                                suppress vector-borne diseases; and
                                develops control techniques to prevent the
                                establishment of new vector and
                                vector-borne diseases from abroad.
                                Manages approximately 800,000 acres of
                                state lands for mixed uses, including
                                hunting, forestry, recreation, and native
                                species preservation. Ensures enforcement
 Department of Land and         of relevant laws on department-managed
 Natural Resources              lands and on marine waters. Provides
                                important participation in state- and
                                community-based efforts to control alien
                                species through early detection, rapid
                                response, and public education.
                                Complies with all applicable state and
 Department of Transportation   federal regulations to ensure the
                                protection of Hawaii's environmental and
                                natural resources.
                                Involved in prevention, detection, control
                                (management), monitoring, restoration,
 Idaho                          research and development, information
                                management, mapping/remote sensing, and
                                education, outreach, partnerships, and
                                cooperative activities.
                                Designates a state noxious weed coordinator
                                and determines what weeds are to be
                                declared "noxious;" establishes and
                                supports cooperative weed management areas;
                                establishes minimum requirements and
                                proficiency training for county weed
                                superintendents; enters into agreements
 Department of Agriculture      with and coordinates and cooperates with
                                federal agencies in planning and applying
                                weed management and control; ensures that
                                county commissioners carry out the duties
                                and powers ascribed to counties in the
                                Idaho Weed Law; and administers cost-share
                                funds provided by the legislature for
                                counties, cooperative weed management
                                areas, and other cooperators.
                                Owns and manages about 118,000 acres,
 Department of Fish and Game    located primarily in several wildlife
                                management areas.

 Department of Lands            Manages about 2,474,000 acres of state
                                endowment lands.
 Department of Parks and        Manages over 38,000 acres of mostly scenic
 Recreation                     and high-quality recreation areas.
                                Allocates around $3.5 million annually to
 Department of Transportation   vegetation management. Treats weeds along
                                roads and highways with herbicides.
                                Performs research and technology transfer
                                directed at weeds and diseases of important
 University of Idaho            Idaho crops; provides diagnostic and weed
                                identification services and research on
                                remote sensing to locate and map invasive
                                species.
                                Involved in prevention, detection, control
                                (management), monitoring, restoration,
 Maryland                       research and development, information
                                management, and education, outreach,
                                partnerships, and cooperative activities.
                                Carries out noxious weed control program;
                                plant pest/disease survey; nursery
                                inspection; and integrated pest management
                                programs for crop pests, including the
                                Mexican bean beetle, corn earworm, and
 Department of Agriculture      Colorado potato beetle. Also conducts
                                survey program for pests of quarantine
                                significance; maintains integrated pest
                                management of the gypsy moth; and detects
                                and monitors several other invasive forest
                                pests, insects, and diseases.
                                Monitors and controls aquatic plants, such
                                as hydrilla and water chestnut; nutria (a
                                beaver-like rodent that forages the root
 Department of Natural          stalks of native wetland vegetation);
 Resources                      phragmites (a perennial reed that grows in
                                and along wetlands and displaces species
                                that provide food for wildlife); and mute
                                swans.
                                Involved in prevention, detection, control
                                (management), monitoring, restoration,
 Michigan                       research and development, information
                                management, and education, outreach,
                                partnerships, and cooperative activities.
                                Conducts research and policy analysis, with
                                an emphasis on prevention activities, and
 Department of Environmental    coordinates statewide program relating to
 Quality                        the unintentional introduction of
                                nonnative, aquatic species. Works to
                                control zebra mussels, Eurasian
                                watermilfoil, and curlyleaf pondweed.
                                Works to manage sea lampreys in the Great
                                Lakes. Performs control and education
 Department of Natural          activities on gypsy moths; monitors pine
 Resources                      shoot beetles; monitors and provides
                                education on beech scale (an insect that
                                contributes to beech bark disease), and
                                Asian long-horned beetles.
                                Provides education on gypsy moths, pine
 Michigan State University      shoot beetles, Japanese beetles, beech
                                scale, and Asian long-horned beetles.
                                Involved in detection, control
                                (management), monitoring, restoration,
 New York                       research and development, information
                                management, technology transfer, and
                                education, outreach, partnerships, and
                                cooperative activities.
 Department of Agriculture and  Manages and controls all nonnative plants
 Markets                        and insects.

 Department of Environmental    Surveys and monitors for aquatic species;
 Conservation                   controls sea lampreys; and manages purple
                                loosestrife programs.

 Great Lakes Research           In addition to research, conducts
 Consortium                     education/outreach programs and some
                                detection and prevention work.
 Nature Conservancy/ Invasive   Monitors terrestrial invasive plant
 Plants Council                 education, research, and control programs.

 Sea Grant                      Performs education and outreach and funds
                                research on aquatic nuisance species.

 State museum                   Conducts education and outreach and
                                original zebra mussel research.

Source: GAO's survey of seven states.

California, Florida, and Idaho described programs within their states that
used what they considered to be innovative approaches to invasive species
problems.

ï¿½ The Regional Yellow Starthistle17 Control Project is a weed control
program that began as a community's battle to preserve its quality of life
and property values. A program task force--made up of local government
representatives and volunteers?was established in 1996. The program's goals
include (1) mapping infested areas throughout the Tehachapi region, (2)
exploring available integrated control options, and (3) soliciting community
support through an educational outreach campaign. Since the program's
inception, volunteers have mapped the yellow starthistle and implemented
mechanical control of the weed in selected areas, and the task force has
implemented a landowner assistance program that has provided low-cost,
subsidized weed treatments for over 200 sites.

ï¿½ The Golden Gate National Recreation Area is the focus of restoration and
weed control programs that rely heavily on short- and long-term volunteer
efforts. The programs have different teams that carry out different
functions. For example, volunteers in the Invasive Plant Patrol detect, map,
and control new infestations of invasive plant species. The Golden Gate
National Recreation Area and Point Reyes National Seashore recently received
$601,000 from the National Park Service for a joint 3-year Cape ivy
(Delairea odoranta)18 control project. The project's objectives include
containing and reducing the size of all infestations in the parks, sharing
knowledge with other resource management agencies, and increasing public
awareness and involvement in controlling Cape ivy.

ï¿½ The Ballast Water Management for Control of Non-Indigenous Species Act,
which took effect on January 1, 2000, specified responsibilities and tasks
to address nonindigenous aquatic species in California's waters. Under the
act, the State Lands Commission was given responsibility for ballast water
inspection and monitoring. In the first 3 months after establishing its
program, the Commission succeeded in getting 67 percent of regulated ships
to report to them using the U.S. Coast Guard Ballast Report form, and
program staff directly inspected the ballast water of 25 percent of the
ships. Educating the regulated vessel community is also a large part of the
Commission's effort. In addition to ballast water inspection, the act
requires California's Department of Fish and Game to determine the location
and extent of aquatic nuisance species in California, the State Water
Resources Control Board to evaluate alternatives for managing ballast water,
and the Board of Equalization to collect inspection fees.

ï¿½ California's Department of Agriculture has run a Weed Detection and
Eradication Program for over 40 years in cooperation with county agriculture
departments. Through their efforts, 14 weed species have been eradicated
statewide and several others are close to being eradicated. The program
employs 8 to 10 biologists, located in districts across the state, who
maintain contact with county and other biologists knowledgeable about the
lands, weeds, and botany of the district. The program biologists travel
throughout their districts looking for target weed species--their goal is to
find an infestation when it is small and easily controlled. These early
finds often result in the complete destruction of weed populations with a
single visit. Biologists generally visit other, more established
infestations at least twice each year, applying treatments whenever
possible.

ï¿½ Since 1997, the state's upland plant program has completed or initiated
over 150 invasive plant removal projects on federal, state, and local
conservation lands. To provide an infrastructure for planning and
implementing plant-related invasive species activities, Florida established
11 regional invasive upland plant working groups?made up of local, city,
county, state, and federal land managers?covering all of Florida. These
groups identify and set priorities for invasive plant management needs
within their areas and can choose from several control operation methods,
including regional contractors, independent subcontractors, or in-house
staff. In addition, the groups can obtain funding from Florida's Department
of Environmental Protection's Bureau of Invasive Plant Management Upland
Program.

ï¿½ The state implemented a statewide, systematic, coordinated planning
process for managing noxious weeds. It convened a Governor's Idaho Weed
Summit, which set the framework for its strategic plan. The plan proposed
several actions to be carried out at all levels and by all agencies and
organizations that have a stake in managing invasive species. In August
1999, Idaho established a Statewide Weed Coordinating Committee to implement
the plan. As an indication of the importance placed on the plan, Idaho's
governor recently participated in a ceremony at which
participants--including representatives from state and federal agencies, a
university, an Indian tribe, and others?signed a Memorandum of Understanding
regarding the plan.

ï¿½ The state has created 21 geographically oriented or watershed-based
cooperative weed management areas, which are locally led and include all
partners in the designated area. The areas cover about 75 percent of the
state and include private, state, and federal lands. Each area will have a
steering committee to oversee the development of an integrated weed
management plan for its area. To encourage this effort, Idaho's Department
of Agriculture offers cost-share grants to supplement local resources in
implementing the local plans. To qualify for cost-share grants, area
steering committees are required to develop an annual operating plan and an
annual accomplishment report.

Federal and State Comments on Changes Needed in Executive Order 13112

In response to GAO's survey, officials in four federal departments and four
states provided their views on changes they believed were needed in
Executive Order 13112 should the Congress enact legislation incorporating
the order's language. Many comments on the executive order focused on
concerns regarding definitions and the roles of various entities.

Officials from two departments and one state raised concerns over
definitions in the executive order. They indicated that the definitions
should be (1) expanded to facilitate consistent identification of invasive
species and (2) clarified to exclude domesticated animals--such as cattle,
sheep, and horses--and domesticated grasses. In addition, one official
indicated that the terms "control" and "management" should be defined
differently.

Officials from three departments and two states reported concerns regarding
the roles of various entities with regard to invasive species. For example,
several officials stated that the respective roles of federal, state, and
local government need to be more clearly defined. One official said that a
national center is needed to (1) help bridge environmental and agricultural
interests and (2) enhance information exchange among affected federal,
state, and local governments and the private sector. Another official stated
that a network of expert centers should be established and authorized to
provide information, research, and technical assistance. This official added
that the Invasive Species Council and the Federal Interagency Committee for
the Management of Noxious and Exotic Weeds should be established through
legislation.

Responses to GAO's Survey of 10 Federal Departments On Budget Obligations
for Invasive Species

Responses to GAO's Survey of Seven States On Expenditures for Invasive
Species Activities

GAO Contacts and Staff Acknowledgments

Lawrence J. Dyckman, (202) 512-5138
Jerilynn B. Hoy, (202) 512-5138

In addition to those named above, Beverly Peterson, Diana Cheng, Jacqueline
A. Cook, Judith Kordahl, and Luann Moy made key contributions to this
report.

(150179)

Table 1: Major Invasive Species Activities 10

Table 2: Obligations for Invasive Species Activities, by
Federal Department, Fiscal Years 1999 and 2000 a 13

Table 3: Federal Funding for Categories of Invasive Species,
Fiscal Year 1999 15

Table 4: Federal Departments' Views on Coordination Between
a Variety of Entities 17

Table 5: Invasive Species Activities Receiving the Greatest
Funding from Each State, Fiscal Years 1999 and 2000 20

Table 6: Invasive Species Receiving the Greatest Funding from
Each State, Fiscal Year 1999 21

Table 7: States' Views on Coordination Between Several Entities 23

Table 8: Federal Involvement in Invasive Species Activities 33

Table 9: Seven States' Invasive Species Activities 37

Figure 1: Worker Removing Zebra Mussels From Water Intake
Pipes, Purple Loosestrife, and Destruction of Trees
Caused by Asian Long-Horned Beetles 9

Figure 2: Federal Obligations by Invasive Species Activity,
Fiscal Years 1999 and 2000 14

Figure 3: Seven States' Expenditures for Invasive Species
Activities, Fiscal Years 1999 and 2000 19
  

1. More specifically, invasive species are plant, animal, or microbial
species that are not native to the United States or to the affected area
(i.e., an ecosystem--a community of organisms and their environment) and
whose introduction causes harm to the economy, the environment, or human
health. This definition is largely based on the definition in Executive
Order 13112.

2. In this report and in our survey of federal departments, we use the term
"department" to refer to the departments of Agriculture, Commerce, Defense,
the Interior, State, Transportation, and the Treasury; the Environmental
Protection Agency; the National Science Foundation; and the Smithsonian
Institution.

3. Funding data for fiscal year 1999 are actual obligations (federal) and
actual expenditures (states); data for fiscal year 2000 are estimated
obligations (federal) and estimated expenditures (states). Also, although
the fiscal year of the federal government and many states covers different
periods (beginning in October for the federal government and July for many
states), in this report we use the term "fiscal year" for each entity's
fiscal year--whatever that period may be.

4. While Treasury's Customs Service engages in some invasive species-related
activities, it does not track obligations for these activities separately
from its other enforcement activities. Also, Defense provided only a partial
response because two of its components (the Air Force and the Army) did not
provide information. According to a Defense official, these components are
responsible for the largest amount of lands under Defense stewardship.

5. Harmful Non-Indigenous Species in the United States, Office of Technology
Assessment, OTA-F-565, Sept. 1993.

6. David Pimentel, et al., "Environmental and Economic Costs of
Nonindigenous Species in the United States," BioScience, Jan. 2000, pp.
53-65.

7. David Pimentel, et al., "Environmental and Economic Costs of
Nonindigenous Species in the United States," pp. 53-65.

8. A ninth activity was a miscellaneous category: "other invasive species
activities."

9. Executive Order 13112 replaces Executive Order 11987 (1977).

10. Defense provided only a partial response to this question because two of
its components (the Air Force and the Army) did not provide information.

11. For example, Agriculture's Animal and Plant Health Inspection Service
collects user fees for agricultural quarantine inspection and enforcement
activities--activities that are key in preventing the introduction of new
invasive species into the United States.

12. A snake that has caused major disruptions to power transmission,
telephone service, computers, tourism, and military operations in Guam.
Hawaii and the Commonwealth of the Northern Mariana Islands are also
believed to be at particular risk of introduction of this invasive species.

13. Florida's fiscal year 1999 expenditures were overstated by up to $3.7
million because the precise amount of invasive species funding by activity
could not be separated out for several programs that covered areas other
than invasive species.

14. This refers to funding that federal departments provided to states to
carry out state invasive species programs.

15. In addition, the Council has generally had a summer intern.

16. These meetings are part of a project conducted by the Charles Valentine
Riley Memorial Foundation and sponsored by Agriculture, the Interior, the
David and Lucile Packard Foundation, and industry.

17. The yellow starthistle is an annual herb that grows up to 3 feet--it
infests over 9 million acres of rangeland in the western United States.

18. Cape ivy, native to South Africa, is a twining, succulent climber and
scrambler. It has the ability to root at every leaf node and along the stem.
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