Noxious Weeds Program |
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Policy
- Introduction
- APHIS Weed Program Mission
- APHIS Weed Policy (revised 2007)
- Appendix A: Goals, Strategies and Action Items
- Appendix B: Definitions
- Weed-Related Legal Authorities
Prepared by APHIS, Plant Protection and Quarantine (PPQ) 2007
APHIS Strategic Priorities
To protect the health and value of U.S. agriculture, natural and other resources
APHIS Mission Priorities 2007-2012 (condensed)
- Strengthen our safeguarding system domestically and in other countries
- Improve domestic surveillance and detection systems
- Expand partnerships
- Set and follow priorities for international technical and regulatory capacity building projects to enhance protection of U.S. resources
- Update regulations and regulatory framework to address advances and risks associated with biotechnology
- Strengthen emergency response preparedness
- Increase involvement in all-hazards emergencies
- Strengthen network of responders
- Improve internal coordination
- Improve capability to quickly trace origins of outbreaks
- Facilitate safe agricultural trade through international standard setting and effective management of sanitary and phytosanitary (SPS) issues
- Encourage the development and use of international standards
- Use international technical and capacity building projects to help countries build the infrastructure and expertise to work with the standards
- Address SPS issues according to priorities set
- Address everyday SPS issues:
- Set priorities for addressing SPS issues
- Streamline processes to expedite decisions relating to import requests particularly by innovating the rule making process and improving risk assessment
- Help facilitate exports by certifying commodities and help industry and states with export programs to support safe export
- Enhance the well-being of animals covered by the Animal Welfare Act (AWA) and the Horse Protection Act (HPA)
The APHIS Weed Program Mission Statement
APHIS will use science-based methods to prevent the introduction of parasitic-plant pests and Federal noxious weeds (including those already regulated and candidates for regulation) into the United States. APHIS will exclude, detect and eradicate newly introduced weeds that pose the highest risk to US agriculture or the environment. APHIS may cooperate with other agencies to achieve environmentally sound and desirable forms of integrated pest management against introduced invasive plants.
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APHIS Weed Policy (revised 2007)
The following APHIS Federal Noxious Weed Policy is organized into sections that encompass the primary issues originally identified and discussed by APHIS and non-APHIS interviewees and organized into an implementation plan by the weed policy project's steering committee (1991-93), periodically revised and updated (most recently in 2007) by the APHIS Noxious Weed Team to reflect the most recently revised APHIS Strategic Plan (2006-2009).
The value of annual crop losses from weeds is estimated at about $20 billion (in 1991 dollars). ("The Costs of Invading Pests to U.S. Agriculture," APHIS PPD, March 1993). A major portion of the losses due to weeds are attributable to non-indigenous (foreign-origin) species. Faster, more frequent, and wider-ranging transport of both people and products in recent decades has greatly expanded opportunities for introductions of foreign species into the United States. Foreign species, brought unintentionally or intentionally by vessel, air, and overland from places formerly isolated, may become established in this country with little or no competition from native species, and eventually displace some of those native species.
Goal 1: Exclude Noxious Weeds of quarantine pest significance not yet present in the United States
Goal 2: Detect and evaluate incipient infestations of weeds not known to occur in the U.S.; and detect and delimit introduced Federal Noxious Weeds.
Goal 3: Control (i.e. suppress, contain, or eradicate) populations of high risk weeds; minimizing impacts on agricultural production, natural resources, the environment, and human health.
Goal 4: Develop and Communicate information (such as policies, guidelines, tools & methods) both internally and externally to promote noxious weed awareness and action.
Goal 5. Provide Administrative guidance for the APHIS weed program
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Appendix A: GOALS, STRATEGIES AND ACTION ITEMS FOR 2007-2009
Goal 1. Exclude Noxious Weeds of quarantine pest significance not yet present in the United States
Proposed Strategies to Achieve the Goal:
- Cooperation. Collaborate with key stakeholders in noxious weed identification, risk assessment, permitting, enforcement and offshore activities.
- Risk Assessment. Use risk assessment processes that are consistent with the Plant Protection Act and international standards to support the identification of weed species to be regulated, identify potential pathways, and determine appropriate regulatory action.
- Permits. Evaluate permit requests for importation and interstate movement of Federal noxious weeds and issue permits only when the risk of escape into uninfested areas can be adequately mitigated.
- Enforcement. Provide support to APHIS enforcement personnel to reduce introduction and spread of Federal noxious weeds.
- International awareness. Collect information about problem weeds in countries that trade with the United States.
- Detection, interception and treatment. Use modern technology to develop new methods and procedures to detect noxious weeds at the ports of entry, to identify intercepted weed seeds, and to apply devitalization treatments that minimize impacts on trade.
New, revised or continuing action priorities for 2007-2009:
- Add to regulated status list six weeds for which risk assessments are complete. Finish the pest risk assessment of Caulerpa to identify species that are quarantine pests (Center for Plant Health Science & Technology - CPHST). Develop new risk assessments (CPHST) for candidate weeds for possible regulation.
- Develop strategies for getting enhanced priority for weed program regulatory workplans.
- Cooperate with the Commodity Imports Analysis & Operations Staff to support the development and implementation of a rule that will establish a new category of nursery stock, plants that are "Not Authorized for Import Pending Risk Analysis (NAPPRA)", many of which will be pest plants.
- Support the development of methods to screen imported plants for invasiveness
- Request and support investigation of possible violations, providing liaison between program and enforcement staffs.
- Provide liaison and program integration between APHIS program and Department of Homeland Security (DHS) staffs.
- Consult Professional Development Center for ideas and needed materials for weed related training programs. Encourage incorporation of weed training into the orientation of various staffs.
- Support implementation of internet surveillance to detect illegal importation and interstate movement of Federal noxious weeds. Provide technical support for any expansion of the program.
- Support development of devitalization treatments for noxious weeds (CPHST).
Goal 2. Detect and evaluate incipient infestations of weeds not known to occur in the U.S.; and detect and delimit introduced Federal Noxious Weeds.
Proposed Strategies to Achieve the Goal:
- Cooperation: In cooperation with State, Tribal, local, and other Federal agencies identify pests of concern. Through the use of the New Pest Advisory Group (NPAG) process, provide a forum for discussion of regulatory options for taxa newly introduced, or of limited distribution.
- Early Detection (Cooperative Agricultural Pest Survey – CAPS – pest detection program): Encourage reporting to APHIS of newly introduced or newly detected populations of plants that are of concern through the use of State, Tribal, Federal and County agencies by encouraging the use of the National Agricultural Pest Information System (NAPIS) database. Support the reporting of newly introduced or newly detected populations of plants of possible regulatory concern into the Early Detection and Rapid Response System (National Early Warning System), by Federal, Tribal, State and other plant professionals.
- Survey: Provide support for State, Tribal, and Federal survey efforts to characterize populations of plants of regulatory concern, through the use of modern survey technology and use of data management systems, such as the NAPIS database.
- Evaluation: Evaluate new weeds for the addition or removal from the Federal Noxious Weed list (CPHST). Provide support for the decision-making regarding the removal from regulated status of FNW’s determined to be beyond the scope of APHIS’s regulatory policy.
New, revised or continuing action priorities for 2007-2009:
- Canvass the States for incipient populations of newly introduced species known at the local level. Encourage adding weed targets to the Cooperative Agricultural Pest Survey (CAPS) priority list.
- Complete timely risk assessments for newly introduced species and pests of concern.
- Coordinate through APHIS State Plant Health Directors detection and delimiting surveys for Federal Noxious Weeds (FNW) and new introductions discovered through the pest detection surveys of the CAPs program or other survey efforts. Report new finds into the NAPIS database.
- Develop a priority list for targeting A2 list (priority Federal noxious weeds of limited distribution) for delimiting surveys.
- Provide coordination amongst regional, field and headquarters staff for APHIS FNW activities. Look for and examine opportunities for cooperative FNW endeavors, at all levels.
- Support the Early Detection and Rapid Response system (EDRR), and integrate efforts with the federal Incident Command System.
- Work with stakeholder groups, such as Invasive Plants of New England Project (IPANE), USDA, NRCS PLANTS Database, and Nature Conservancy, for early detection and reporting of FNWs and new introductions of other plants into the U.S.
- Network with State and Federal laboratories (and PPQ National Identification Services) to identify weeds detected through domestic survey programs.
- Develop plans to update the herbarium survey and other outreach efforts
- Explore non-traditional survey/detection strategies. Encourage regional organization for EDRR, for example supporting adding botanists to the National Plant Diagnostic Network. Support PPQ CHPST Weed Methods Lab in development of new electronic keys.
Goal 3. Control (i.e. suppress, contain, or eradicate) populations of high risk weeds; minimizing impacts on agricultural production, natural resources, the environment, and human health.
Proposed Strategies to Achieve the Goal:
- Cooperation. Cooperate with other agencies to manage invasive plants with integrated pest management tools, minimizing the risk to agricultural production, natural resources, the environment, and human health.
- Integrated Vegetation Management: Coordinate development and implementation of program options and plans for eradication, biological control, or other appropriate control or management measures for targeted taxa, including revegetation. Cooperate with State, local, and other Federal agencies to eradicate designated invasive plants. Plans should include program accountability, phase-out, and transfer to States. Additionally, ensure participation in Agency weed activities being supported by others (e.g. biological control working groups), including program policy, planning, and facilitation.
- Environmental Compliance and Monitoring. Support compliance with environmental statutes (NEPA, ESA, FIFRA) in the planning process. These processes will require liaison with appropriate APHIS staff (e.g. Environmental Services—PPD and Environmental Assessment and Monitoring—EDP) and staffs of other agencies, such as the U.S. Fish and Wildlife Service.
New, revised or continuing action priorities for 2007-2009:
- Work with State Departments of Agriculture to develop official control programs for priority Federal noxious weeds of limited distribution (A2 list).
- Use Integrated Vegetation Management principles in development of field plans.
- Work with the Plant Board and other cooperators to define focus of the “A2” list weeds (priority Federal noxious weeds of limited distribution). Explore with PPQ Exec Team resources for goal setting, program development and operational implementation.
- Develop cooperative action plans and memorandums of understanding with external partners for targeted weeds.
- Provide program support and funding through use of the Pulling Together Initiative matching grant program.
- Cooperate with the Biocontrol program. Explore joint projects such as canvassing for integrated program target lists.
Goal 4. Develop and Communicate information (such as policies, guidelines, tools & methods) both internally and externally to promote noxious weed awareness and action.
Proposed Strategies to Achieve the Goal:
- Leadership: Use the APHIS National Weed Team to provide internal communication for coordination of the Federal Noxious Weed program.
- Communications Plan: Provide national leadership for noxious weeds communications through use of a PPQ Communications Plan for Noxious Weeds.
- Awareness: Develop public awareness of noxious weeds by developing education tools and other materials.
- Cooperation: Provide liaison for weed program cooperation and communication with internal and external stakeholders.
New, revised or continuing action priorities for 2007-2009:
- Review PPQ Communications Plan for Noxious Weeds and update as needed. http://www.aphis.usda.gov/plant_health/plant_pest_info/weeds/downloads/communicationsplan2006.pdf
- Develop one or more weed program poster/publicity pieces each year.
- Communicate with the public regarding roles and relationships with the Invasive Species Council, Federal Interagency Committee for Management of Noxious and Exotic Weeds (FICMNEW) and other interagency efforts. Participate in planning National Invasive Weed Awareness Week (NIWAW) and attend or provide presentations at various weed or invasive species organizations e.g. Maryland Invasive Species Council (MISC), Mid-Atlantic Exotic Pest Plant Council (EPPC), Southeastern EPPC, various other state EPPCs or ISCs; North American Weed Management Association, Weeds across Borders, and professional societies and meetings
- Canvass stakeholders for noxious weed information needs and priorities and coordinate development of products based on needs.
- Encourage the public not to import or move interstate weeds that are the targets of Federal or State control programs. Respond to inquiries re: weed issues, or refer to proper information sources.
- Update and maintain APHIS PPQ Weeds website. Cooperate with EDP Detection group in development of a web based EDRR resource.
Goal 5. Provide Administrative guidance for the APHIS weed program
Proposed Strategies to Achieve the Goal:
- Program Guidance: Provide guidance for setting national noxious weed program priorities, budget, and program design.
- Cooperation: Coordinate noxious weed program liaison with internal and external stakeholders.
- Reporting: Coordinate development of annual and other reports, performance measures, and program review.
- Develop Policy & Guidelines: Continually update APHIS weed program policy and regulations.
- Interagency Liaison. Support Federal initiatives to minimize introduction and spread of invasive plants through participation in interagency initiatives such as FICMNEW and the Invasive Species Council.
New, revised or continuing action priorities for 2007-2009:
- Develop and implement rule and policy changes for noxious weed program changes. Update and finalize APHIS Noxious Weed Program Action Plan to support the regulatory workplan for 7 CFR 360 revision.
- In cooperation with APHIS National Weed Team members and external stakeholders develop consensus-based guidance for noxious weed regulatory and program priorities and budget, including funding levels and priorities.
- Finalize weeds emergency response plan. Revise to reflect interaction w/ Incident Command System.
- Continue to refine the measures for program success and procedures for determining program end-points, including development of standardized annual and other reports to track weed program achievements.
- Provide liaison and where appropriate clear guidelines, policy, and instructions for weed program cooperation and communication with internal and external stakeholders (e.g. Department of Homeland Security, FICMNEW, National Invasive Species Council (NISC), Safeguarding Review, APHIS Biological control program).
- Provide liaison for development of Early Detection & Rapid Response state, tribal, and regional organization efforts
- Provide coordination for development of data collection and storage related to public/professional identification of new or previously undetected taxa (e.g. USDA NRCS PLANTS database coordination with NAPIS database)
- Encourage development of voluntary compliance programs for non-regulated problem weeds with internal and external cooperators (e.g. American Nursery and Landscape Association, and American Seed Trade Association).
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Key to development of an APHIS weed policy is how the term "weed" is defined. The broader the definition, the larger the (potential) scope of APHIS weed programs. This policy defines "weed" broadly, not limited to species identified in current regulations.
Weed: Any plant that poses a major threat to agriculture and/or natural ecosystems within the United States.
Current Federal laws/regulations may contain several related definitions as follows:
Noxious Weed: "any plant or plant product that can directly or indirectly injure or cause damage to crops (including nursery stock or plant products), livestock, poultry or other interests of agriculture, irrigation, navigation, the natural resources of the United States, the public health, or the environment." (Plant Protection Act).
APHIS regulations in 7 CFR 360 currently list approximately 94 taxa that are defined as noxious weeds.
Undesirable Plant Species: "Plant species that are classified as undesirable, noxious, harmful, exotic, injurious, or poisonous, pursuant to State or Federal law. "Species listed as endangered by the Endangered Species Act of 1973 shall not be designated as undesirable plants under this section and shall not include plants indigenous to an area where control measures are to be taken under this section." §2814 of 7 U.S.C. 360; the Federal Noxious Weed Act (FNWA), the only part of FNWA remaining in effect. This section is now incorporated into the Plant Protection Act.
Plant pest: "The term 'plant pest' means any living stage of any of the following that can directly or indirectly injure, cause damage to, or cause disease in any plant or plant product:
- A protozoan.
- A nonhuman animal.
- A parasitic plant.
- A bacterium.
- A fungus.
- A virus or viroid.
- An infectious agent or other pathogen.
- Any article similar to or allied with any of the articles specified in the preceding subparagraphs." (Plant Protection Act).
Quarantine Pest: A pest of potential economic importance to the area endangered thereby and not yet present there, or present but not widely distributed and being officially controlled (FAO, 1997)
Official: Established, authorized or performed by a national plant protection organization (FAO, 1997)
Regulated non-quarantine: A non-quarantine pest whose presence in plants for planting affects the intended use of those plants with an economically unacceptable impact and which is therefore regulated within the territory of the importing contracting party (FAO, 2002)
Invasive Species: An invasive species is one that is non-native (or alien) to the ecosystem under consideration and whose introduction causes or is likely to cause economic or environmental harm or harm to human health. (Executive Order 13112, February 3, 1999)
Noxious Weed Seeds: Two different definitions occur in the Federal Seed Act:
- Defined as the seeds of 11 specified species. (Lepidium draba L., Lepidium repens (Schrenk) Boiss; Hymenophysa pubescens C. A. Mey, whitetop; Cirsium arvense (L.) pers., Johnsongrass; Convolvulus arvensis L., bindweed; Centaurea picris Pall., Russian knapweed; Sonchus arvensis L., perennial sow-thistle; and Euphorbia esula L., leafy spurge.) Any other kinds of seeds or bulblets that the Secretary finds should be included may also be classified as noxious. (Foreign Commerce provisions of the Federal Seed Act)
- Defined as the "seeds or bulblets of plants recognized as noxious--
- by the law or rules and regulations of the State into which the seed is offered for transportation, or transported;
- by the law or rules and regulations of Puerto Rico, Guam, or the District of Columbia in which sold; or
- by the rules and regulations of the Secretary of Agriculture under this Act, when after investigation he shall determine that a weed is noxious in the United States or in any specifically designated area thereof. (Interstate Commerce provisions of the Federal Seed Act)
Integrated Management System: "A system for the planning and implementation of a program, using an interdisciplinary approach, to select a method for containing or controlling an undesirable plant species or group of species using all available methods, including—
(A) education;
(B) preventive measures;
(C) physical or mechanical methods;
(D) biological agents;
(E) herbicide methods;
(F) cultural methods; and
(G) general land management practices such as manipulation of livestock or wildlife grazing strategies or improving wildlife or livestock habitat."
Interdisciplinary Approach: "An approach to making decisions regarding the containment or control of an undesirable plant species or group of species, which--
(A) includes participation by personnel of Federal or State agencies with experience in areas including weed science, range science, wildlife biology, land management, and forestry; and
(B) includes consideration of--(i) the most efficient and effective method of containing or controlling the undesirable plant species;
(ii) scientific evidence and current technology;
(iii) physiology and habit of a plant species; and
(iv) economic, social, ecological consequences of implementing the program.
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