EPA Staff Assessment Report
To: HSNO Decision-Making Committee
From: Advisor, New Organisms
Date: 16 July 2019
Subject: Information to support the consideration of application APP203874
Executive Summary and Recommendation Application APP203874 submitted by Manaaki Whenua Landcare Research seeks a determination on the new organism status of two wasp species, Vespula germanica and Vespula vulgaris, in New Zealand.
The applicant provided evidence that V. germanica and V. vulgaris have been found and collected continuously from many different locations in New Zealand since 1944 and 1978 respectively. Both species have been established since before 29 July 1998.
After reviewing the information provided by the applicant and information found in scientific literature, EPA staff recommend that V. germanica and V. vulgaris are not new organisms for the purpose of the HSNO Act.
July 2019
EPA advice Application APP203874
Introduction
1. On 9 July 2019, Manaaki Whenua Landcare Research (MWLR) applied to the EPA under section 26 of the HSNO Act seeking a determination on the new organism status of Vespula vulgaris and Vespula germanica.
2. Section 2A(1) of the HSNO Act prescribes that a new organism is, in part, an organism belonging to a species that was not present in New Zealand immediately before 29 July 1998. It is against that criterion that we evaluated the evidence available for the organisms in the application.
3. The application was formally received for consideration on 22 July 2019.
Organisms’ description
Vespula vulgaris and Vespula germanica
4. Vespula vulgaris and V. germanica are commonly known as the common and German wasps. They are very similar in appearance, with characteristic black and yellow colouration. Vespula vulgaris can be distinguished by a black mark behind the eye and almost parallel black rings on the abdomen, whereas V. germanica usually has V-shaped rings with distinct black dots (Fig 1).
Figure 1: Difference between Vespula vulgaris (left) and V. germanica (right) (Source: https://www.gopest.co.nz/wasp-control)
5. Vespula germanica and V. vulgaris are medium-sized wasps (12-17 mm). The German wasp is slightly heavier than the common wasp (Kovac & Stabentheiner 2012). These two species were accidentally introduced to New Zealand in the 20th century and became established in 1944 (Thomas 1960) and 1978 (Donovan 1984) respectively.
6. Taxonomic description of V. vulgaris and V. germanica:
Taxonomic Unit Classification
Order Hymenoptera
Family Vespidae
Genus Vespula
Species V. germanica (Fabricius, 1793) and V. vulgaris (Linnaeus, 1758)
Common names German wasp and Common wasp
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7. Both species have an annual life-cycle. In early spring, mated queen wasps emerge from hibernation and start building a small nest to lay eggs. They choose a dry and undisturbed place to build their nests such as sheds, abandoned animal burrows, chimneys, rockeries in gardens, cavity walls or roof spaces in buildings (Spradbery & Dvorak 2013; TERRAIN 2017).
8. Once the first adult wasps emerge, they take over the foraging, brood care and nest building, whereas the queen remains in the nest to lay eggs and produce an army of sterile female workers. The colony continues to grow until the end of summer or the beginning of autumn (Harris 1992; Manaaki Whenua Landcare Research 2014; Lester et al. 2017).
9. Toward the end of summer, the queen stops laying asexual workers to lay sexual brood. This last batch of eggs contains virgin queens and male drone wasps which leave the nest to mate when they develop into adults. The males die shortly after, whereas newly mated queens find a place to hibernate and start a new cycle the following spring (Wasp removal UK 2011).
10. The rest of the colonie dies in autumn or early winter but sometimes overwinter in New Zealand. Vespula germanica appears to more frequently overwinter (Harris 1996), and manages to produce queens and drones after overwintering (Plunkett et al. 1989).
11. These social wasps are considered as major pests in New Zealand due to their broad diet. They eat a wide range of invertebrates including spiders, caterpillars, ants, bees, flies and even small chicks (Manaaki Whenua Landcare Research 2014). They also collect a large quantity of honeydew, leaving little to no resource for other organisms. In addition to their devastating effects on biodiversity, they also have an adverse impact on human activities from recreational to the economic sector (Department of Conservation 2017).
12. Queen wasps are strong fliers but rarely fly more than 1,000 yards1 from their nest of origin. The quick spread of the species in New Zealand is attributed to rail and vehicular traffic, with wasp nests found in the proximity of communication routes and absent from localised areas with poor communicational routes (Thomas 1960).
13. New Zealand has one of the highest densities of V. vulgaris and V. germanica in the world and this is attributed to the lack of predators and the availability of plentiful resources. Wasps are especially common in honeydew beech forests in the South Island where about 10,000 wasps can be found per hectare (Thomas et al. 1990; Manaaki Whenua Landcare Research 2014).
1 1,000 yards = 914.4 metres 3
EPA advice Application APP203874
Review of information
Vespula germanica
14. Vespula germanica was first found established in 1945, near Hamilton (Godfrey 1995).
15. Between 1945 and 1951, the number of wasps increased extremely quickly with the number of nests recorded by the Department of Agriculture jumping from 7 to 6,048 nests (Thomas 1960).
16. As shown on the MWLR map (Figure 2), V. germanica was already widespread across the South Island and the North Island in 1990.
17. Since 1945, evidence of the continuous presence of V. germanica throughout New Zealand can be found Figure 2: Distribution of Vespula in literature (Table 2). germanica in 1990.
Where When Reference
Hamilton 1944-45 (Fordham 1961; Manaaki Whenua Landcare Research 2014)
Nelson province, North of the North 1961 (Thomas 1960) Island
Manawatu 1993 (Godfrey 1995)
As far north as Whangarei and as 1951 far south as Palmerston North
South Island and some offshore 1961 islands
Bulls 1994
Reserve Road, Mt Thomas Forest, 1986 to (Spurr 1995) Canterbury 1994
Ruakura (Hamilton) 1991 to (Harris 1996) 1994
Widely dispersed in New Zealand Multiple (Thomas et al. 1990; Clapperton et al. dates 1994; Harris et al. 1994; Spurr 1995; Gibbs 2007; New Zealand Plant Conservation Network 2008a; Ward 2013; Department of Conservation 2017; Edwards et al. 2018; Lester & Beggs 2019)
Table 2: Example of evidence of the wide distribution of Vespula germanica.
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Vespula vulgaris
18. Since 1921, V. vulgaris occurred sporadically in New Zealand. In 1978, the species was considered established with queens collected in Wellington. Shortly after, nests were found in Dunedin (1982), Christchurch, Auckland, and Nelson (1984) (Donovan 1984). Vespula vulgaris spread rapidly through the country, displacing German wasps from beech forests (Harris 1991).
19. The map of V. vulgaris distribution in 1990 shows how widespread the species was only 12 years after its establishment in New Zealand (Figure 3). It is now considered more abundant than V. germanica (Edwards et al. 2018).
20. A sizeable amount of research effort has been focused on V. vulgaris showing their global distribution in New Figure 3: Distribution of Vespula Zealand (Table 3) from the 1980s through to the present. vulgaris in 1990.
Where When Reference
Wellington 1978 (Donovan 1984; Greater Wellington Regional Council 2012; Manaaki Whenua Landcare Research 2014)
Dunedin 1983 (Clapperton et al. 1994)
Christchurch, Nelson, Wellington, 1984 Auckland
Well established in North Island 1987 (Godfrey 1995) and Nelson-Marlborough, Canterbury and Otago regions, Invercargill
South Island (Matakitaki Valley, 1988 to 2010 (Lester et al. 2017) Mt Misery, Pelorus Bridge, Rotoiti, Spooners Range, and Tiraumea Saddle)
Northern South Island 1998 (Toft & Rees 1998)
South Island 1990 (Thomas et al. 1990)
Widely dispersed in New Zealand Multiple (Thomas et al. 1990; Harris et al. 1994; dates Chapman & Bourke 2001; Gibbs 2007; New Zealand Plant Conservation Network 2008b; Ward 2013; Manaaki Whenua Landcare Research 2014; Department of Conservation 2017; Edwards et al. 2018)
Table 3: evidence of the wide distribution of Vespula vulgaris.
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Comments from Agencies
21. In accordance with section 58(1)(c) of the Act, and clauses 2(2)(e) and 5 of the Methodology, the Department of Conservation (DOC) and the Ministry for Primary Industries (MPI) were notified and provided with the opportunity to provide further information on the application.
22. DOC noted that the Manaaki Whenua Landcare Research website states that the German wasp (V. germanica) was first found near Hamilton in 1945; the common wasp (V. vulgaris) has been in New Zealand since 1978.
23. MPI did not made any comments on the application.
Recommendation
24. After completing our assessment of the information that was submitted by the applicant, as well as our own findings, we consider that V. germanica and V. vulgaris were present in New Zealand immediately before 29 July 1998 and have had an ongoing presence in New Zealand since their establishement in 1945 and 1978 respectively.
25. A new organism is defined in section 2A of the Act, and includes: (a) An organism belonging to a species that was not present in New Zealand immediately before 29 July 1998:
26. The following Act criteria were not applicable to these determinations as the species under consideration in this application;
have not been prescribed as a risk species (section 2A(1)(b)); have not been approved to be held in containment or released with controls (sections 2A(1)(c), (ca) and (cb)); are not genetically modified organisms (section 2A(1)(d)); and have not been eradicated from New Zealand (section 2A(1)(e)).
27. Therefore, we recommend that Vespula vulgaris and Vespula germanica should be determined to be not new organisms for the purpose of the Act.
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References Chapman RE, Bourke AFG 2001. The influence of sociality on the conservation biology of social insects. Ecology Letters, 4: 650-662. Clapperton BK, Tilley JAV, Beggs JR, Moller H 1994. Changes in the distribution and proportions of Vespula vulgaris (L.) and Vespula germanica (Fab.)(Hymenoptera: Vespidae) between 1987 and 1990 in New Zealand. New Zealand Journal of Zoology 21(3): 295-303. Department of Conservation, 2017. Animal pests: Wasps. Retrieved 10 July. Page last https://www.doc.govt.nz/nature/pests-and-threats/animal-pests/wasps/ Donovan BJ 1984. Occurrence of the common wasp, Vespula vulgaris (L.)(Hymenoptera: Vespidae) in New Zealand. New Zealand Journal of Zoology 11(4): 417-427. Edwards ED, Woolly EF, McLellan RM, Keyzers RA 2018. Non-detection of honeybee hive contamination following Vespula wasp baiting with protein containing fipronil. PloS one 13(10): e0206385. Fordham RA 1961. Notes on the German Wasp - Vespula germanica. Tuatara: Volume 9, Issue 1. University of Victoria. Gibbs G, 2007. Insects - overview. Te Ara - the Encyclopedia of New Zealand. Retrieved 12 July. Page last https://teara.govt.nz/en/insects-overview/print Godfrey PL 1995. Thesis: Comparative seasonality and diets of German (Vespula germanica) and common (V. vulgaris) wasp colonies in Manawatu, New Zealand. Massey University. Greater Wellington Regional Council 2012. Pest animals. Everyone's responsibility. Wasps - Vespula species. Brochure. Harris RJ 1991. Diet of the wasps Vespula vulgaris and V. germanica in honeydew beech forest of the South Island, New Zealand. New Zealand journal of zoology 18(2): 159-169. Harris RJ 1992. Competition between the introduced wasps Vespula germanica and V. vulgaris in honeydew beech forest, north-western South Island, New Zealand. Harris RJ 1996. Frequency of overwintered Vespula germanica (Hymenoptera: Vespidae) colonies in scrubland‐pasture habitat and their impact on prey. New Zealand Journal of Zoology 23(1): 11-17. Harris RJ, Moller H, Winterbourn MJ 1994. Competition for honeydew between two social wasps in South Island beech forests, New Zealand. Insectes Sociaux 41(4): 379-394. Kovac H, Stabentheiner A 2012. Does size matter? – Thermoregulation of ‘heavyweight’ and ‘lightweight’ wasps Biology Open 1(9): 848-856. Lester PJ, Beggs JR 2019. Invasion success and management strategies for social Vespula wasps. Annual Review of Entomology 64: 51-71. Lester PJ, Haywood J, Archer M, Shortall C 2017. The long-term population dynamics of common wasps in their native and invaded range. Journal of Animal Ecology 86. Manaaki Whenua Landcare Research, 2014. Wasps Web. Retrieved 10 July. Page last https://www.landcareresearch.co.nz/science/plants-animals- fungi/animals/invertebrates/invasive-invertebrates/wasps New Zealand Plant Conservation Network, 2008a. Vespula germanica. Retrieved 12 July. Page last http://www.nzpcn.org.nz/threats_details.aspx?ID=18 New Zealand Plant Conservation Network, 2008b. Vespula vulgaris. Retrieved 12 July. Page last http://www.nzpcn.org.nz/threats_details.aspx?ID=17 Plunkett GM, Moller H, Hamilton C, Clapperton BK, Thomas CD 1989. Overwintering colonies of German (Vespula germanica) and common wasps (Vespula vulgaris)(Hymenoptera: Vespidae) in New Zealand. New Zealand journal of zoology 16(3): 345-353. Spradbery P, Dvorak L 2013. Invasive species compendium. CABI 4066.
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Spurr EB 1995. Protein bait preferences of wasps (Vespula vulgaris and V. germanica) at Mt Thomas, Canterbury, New Zealand. New Zealand Journal of Zoology 22(3): 281-289. TERRAIN, 2017. Wasp nests. Retrieved 08 July. Page last http://www.terrain.net.nz/friends-of-te- henui-group/bees-and-wasps/wasp-nests-photos-and-text.html Thomas CD, Moller H, Plunkett GM, Harris RJ 1990. The prevalence of introduced Vespula vulgaris wasps in a New Zealand beech forest community. New Zealand Journal of Ecology 13(1): 63- 72. Thomas CR 1960. The European wasp (Vespula germanica Fab.) in New Zealand. Department of Scientific and Industrial Research, New Zealand. Toft RJ, Rees JS 1998. Reducing predation of orb‐web spiders by controlling common wasps (Vespula vulgaris) in a New Zealand beech forest. Ecological Entomology 23(1): 90-95. Ward D 2013. Status of control options for Vespula wasps in New Zealand. Manaaki Whenua Landcare Research Wasp removal UK, 2011. Life cycle of the Wasp (Vespula vulgaris, Vespula Germanica). Retrieved 1 July. Page last https://www.wasp-removal.com/wasp-lifecycle.php#waspfood
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Appendix 1: Decision path for section 26 determination
Context This decision pathway describes the decision-making process for applications under Section 26 for determination as to whether an organism is a new organism.
Introduction The purpose of this decision pathway is to provide the HSNO decision maker2 with guidance so that all relevant matters in the Hazardous Substances and New Organisms Act (1996) (the Act) and the Hazardous Substances and New Organisms (Organisms Not Genetically Modified) Regulations (1998) (the Regulations) have been addressed. It does not attempt to direct the weighting that the HSNO decision maker may decide to make on individual aspects of an application.
The decision pathway has two parts – Flowchart (a logic diagram showing the process prescribed in the HSNO Act and the Methodology to be followed in making a decision), and Explanatory notes (a discussion of each step of the process). Of necessity the words in the boxes in the flowchart are brief, and key words are used to summarise the activity required. The explanatory notes provide a description of each of the numbered items in the flowchart, and describe the processes that should be followed.
For proper interpretation of the decision pathway it is important to work through the flowchart in conjunction with the explanatory notes.
2 The HSNO decision maker refers to either the EPA Board or any committee or persons with delegated authority from the Board. 9
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Explanatory Notes
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Explanatory Notes Item 1 Review the content of the application and all relevant information
Review the application, staff advice and any relevant information held by other Agencies, and advice from experts.
Item 2 Is further information required?
Review the information and determine whether or not there is sufficient information available to make a decision.
Item 3 Seek additional information (Section 52 and Section 58)
If the HSNO decision maker considers that further information is required, then this may be sought either from the applicant (if there is an external applicant) or from other sources. If the HSNO decision maker considers that the information may not be complete but that no additional information is currently available, then the HSNO decision maker may proceed to make a determination. If the application is not approved on the basis of lack of information (or if the organism is considered new) and further information becomes available at a later time, then the HSNO decision maker may choose to revisit this determination.
Item 4 Is it an organism (i.e. fits the “organism” definition in Section 2)?
An organism
(a) does not include a human being:
(ab) includes a human cell:
(b) includes a micro-organism: (c) includes a genetic structure, other than a human cell, that is capable of replicating itself, whether that structure comprises all or only part of an entity, and whether it comprises all or only part of the total genetic structure of an entity: (d) includes an entity (other than a human being) declared to be an organism for the purposes of the Biosecurity Act 1993:
(e) includes a reproductive cell or developmental stage of an organism If yes, go to item 5.
If no, as this is not an organism, it is not regulated under the new organism provisions of the HSNO Act.
Item 5 Is the determination about a potential GMO (Section 2A(1)(d))? If the determination relates to whether an organism is a potential GMO, go to pathway B.
If the organism is not a GMO, go to item 6.
Item 6 Does the organism belong to a species that was known to be present in NZ immediately before 29 July 1998 (Section 2A(1)(a))?
Determine on the basis of the available information whether on balance of probabilities the organism is known to belong to a species that was present in New Zealand immediately prior to 29 July 1998.
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For the purposes of making a Section 26 determination an organism is considered to be present in New Zealand if it can be established that the organism was in New Zealand:
(a) immediately before 29 July 1998; and
(b) not in contravention of the Animals Act 1967 or the Plants Act 1970 (excluding rabbit haemorrhagic disease virus, or rabbit calicivirus).
If yes, go to item 7 to test the organism against the next criterion.
If no, go to item 12.
Item 7 Is the organism prescribed as a risk species and was not present in New Zealand at the time of promulgation of the relevant regulation (Section 2A(1)(b))?
Determine whether the organism belongs to a species, subspecies, infrasubspecies, variety, strain, or cultivar that has been prescribed as a risk species by regulation established under Section 140(1)(h) of the Act. If the organism is prescribed as a risk species, determine whether it was present in New Zealand when it was prescribed. The organism is a new organism if it was not present in New Zealand at the time of the promulgation of the relevant regulation. Note: at this point it may become apparent that the organism is an unwanted organism under the Biosecurity Act. If this is the case, then MPI and DOC may be advised (they may already have been consulted under items 1, 2 and 3). If yes, go 12.
If no, go to item 8 to test the organism against the next criterion.
Item 8 Has a containment approval been given for the organism under the Act (Section 2A(1)(c))?
For the purposes of making a Section 26 determination, this will also include the following organisms which are “deemed” to be new organisms with containment approvals under the HSNO Act:
(a) animals lawfully imported under the Animals Act 1967 before 29 July 1998 pursuant to Section 254 of the HSNO Act;
(b) animals lawfully present in New Zealand in a place that was registered as a zoo or circus under the Zoological Garden Regulations 1977 pursuant to Section 255 of the HSNO Act (except where other organisms of the same taxonomic classification were lawfully present outside of a zoo or circus –see section 2A(2)(c));
(c) hamsters lawfully imported under the Hamster Importation and Control Regulations 1972 pursuant to Section 256 of the HSNO Act; or
(d) plants lawfully imported under the Plants Act 1970 before 29 July 1998 pursuant to Section 258 of the HSNO Act.
If yes, go to item 12.
If no, go to item 9 to test the organism against the next criterion.
Item 9 Has a conditional release approval been given for the organism (Section 2A(1)(ca))?
If yes, go to item 12. If no, go to item 10 to test the organism against the next criterion.
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Item 10 Has a qualifying organism with controls approval been given for the organism (Section 2A(1)(cb))?
A “qualifying organism” is an organism that is or is contained in a “qualifying medicine” or “qualifying veterinary medicine”. These terms are defined in Section 2 of the HSNO Act. If yes, go to item 12.
If no, go to item 11 to test the organism against the next criterion.
Item 11 Is the organism known to have been previously eradicated (Section 2A(1)(e))?
Determine whether the organism belongs to a species, subspecies, infrasubspecies, variety, strain, or cultivar that is known to have been previously eradicated.
Eradication does not include extinction by natural means but is considered to be the result of a deliberate act.
If yes, go to item 12.
If no, then the organism is not a new organism.
Item 12 Has HSNO release approval without controls been given for an organism of the same taxonomic classification under Sections 35, 38 or 38I of the Act or has an organism of the same taxonomic classification been prescribed as a not new organism (Section 2A(2)(a))?
If a release approval has been given for an organism of the same taxonomic classification under Section 35 or 38 of the Act then the organism is not a new organism. If a release approval has been given for an organism of the same taxonomic classification under Section 38I of the Act without controls then the organism is not a new organism, however, if this approval has been given with controls then it is a new organism. If an organism of the same taxonomic classification has been prescribed by regulations as not a new organism3 then it is not a new organism.
If yes, the organism is not a new organism. If no, the organism is a new organism.
3 http://www.legislation.govt.nz/regulation/public/2009/0143/latest/whole.html#DLM2011201 13