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Assessing the Relationship Between Propagule Pressure and Invasion Risk in Ballast Water

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Assessing the Relationship Between Propagule Pressure and Invasion Risk in Ballast Water ASSESSING THE RELATIONSHIP BETWEEN PROPAGULE PRESSURE AND INVASION RISK IN BALLAST WATER Committee on Assessing Numeric Limits for Living Organisms in Ballast Water Water Science and Technology Board Division on Earth and Life Studies THE NATIONAL ACADEMIES PRESS Washington, D.C. www.nap.edu PREPUBLICATION COPY THE NATIONAL ACADEMIES PRESS 500 Fifth Street, N.W. Washington, DC 20001 NOTICE: The project that is the subject of this report was approved by the Governing Board of the National Research Council, whose members are drawn from the councils of the National Academy of Sciences, the National Academy of Engineering, and the Institute of Medicine. The members of the panel responsible for the report were chosen for their special competences and with regard for appropriate balance. Support for this study was provided by the EPA under contract no. EP-C-09-003, TO#11. Any opinions, findings, conclusions, or recommendations expressed in this publication are those of the author(s) and do not necessarily reflect the views of the organizations or agencies that provided support for the project. International Standard Book Number X-XXX-XXXXX-X Library of Congress Catalog Card Number XX-XXXXX Additional copies of this report are available from the National Academies Press, 500 5th Street, N.W., Lockbox 285, Washington, DC 20055; (800) 624-6242 or (202) 334-3313 (in the Washington metropolitan area); Internet, http://www.nap.edu. Copyright 2011 by the National Academy of Sciences. All rights reserved. Printed in the United States of America. PREPUBLICATION COPY The National Academy of Sciences is a private, nonprofit, self-perpetuating society of distinguished scholars engaged in scientific and engineering research, dedicated to the furtherance of science and technology and to their use for the general welfare. Upon the authority of the charter granted to it by the Congress in 1863, the Academy has a mandate that requires it to advise the federal government on scientific and technical matters. Dr. Ralph J. Cicerone is president of the National Academy of Sciences. The National Academy of Engineering was established in 1964, under the charter of the National Academy of Sciences, as a parallel organization of outstanding engineers. It is autonomous in its administration and in the selection of its members, sharing with the National Academy of Sciences the responsibility for advising the federal government. The National Academy of Engineering also sponsors engineering programs aimed at meeting national needs, encourages education and research, and recognizes the superior achievements of engineers. Dr. Charles M. Vest is president of the National Academy of Engineering. The Institute of Medicine was established in 1970 by the National Academy of Sciences to secure the services of eminent members of appropriate professions in the examination of policy matters pertaining to the health of the public. The Institute acts under the responsibility given to the National Academy of Sciences by its congressional charter to be an adviser to the federal government and, upon its own initiative, to identify issues of medical care, research, and education. Dr. Harvey V. Fineberg is president of the Institute of Medicine. The National Research Council was organized by the National Academy of Sciences in 1916 to associate the broad community of science and technology with the Academy’s purposes of furthering knowledge and advising the federal government. Functioning in accordance with general policies determined by the Academy, the Council has become the principal operating agency of both the National Academy of Sciences and the National Academy of Engineering in providing services to the government, the public, and the scientific and engineering communities. The Council is administered jointly by both Academies and the Institute of Medicine. Dr. Ralph J. Cicerone and Dr. Charles M. Vest are chair and vice chair, respectively, of the National Research Council. www.national-academies.org PREPUBLICATION COPY Committee on Assessing Numeric Limits for Living Organisms in Ballast Water JAMES T. CARLTON, Chair, Williams College/Mystic Seaport, Mystic, Connecticut GREGORY M. RUIZ, Vice-Chair, Smithsonian Environmental Research Center, Edgewater, Maryland JAMES E. BYERS, University of Georgia, Athens ALLEGRA CANGELOSI, Northeast-Midwest Institute, Washington, D.C. FRED C. DOBBS, Old Dominion University, Norfolk, Virginia EDWIN D. GROSHOLZ, University of California, Davis BRIAN LEUNG, McGill University, Montreal, Quebec HUGH J. MACISAAC, University of Windsor, Ontario MARJORIE J. WONHAM, Quest University, Squamish, British Columbia NRC Staff LAURA J. EHLERS, Study Director ELLEN DE GUZMAN, Research Associate v PREPUBLICATION COPY Water Science and Technology Board DONALD I. SIEGEL, Chair, Syracuse University, New York LISA M. ALVAREZ-COHEN, University of California, Berkeley YU-PING CHIN, Ohio State University, Columbus OTTO C. DOERING III, Purdue University, West Lafayette, Indiana GERALD E. GALLOWAY, University of Maryland, College Park GEORGE R. HALLBERG, The Cadmus Group, Watertown, Massachusetts KENNETH R. HERD, Southwest Florida Water Management District, Brooksville GEORGE M. HORNBERGER, Vanderbilt University, Nashville, Tennessee MICHAEL J. MCGUIRE, Michael J. McGuire, Inc., Santa Monica, California DAVID H. MOREAU, University of North Carolina, Chapel Hill DENNIS D. MURPHY, University of Nevada, Reno MARYLYNN V. YATES, University of California, Riverside Staff STEPHEN D. PARKER, Director JEFFREY JACOBS, Scholar LAURA J. EHLERS, Senior Staff Officer STEPHANIE E. JOHNSON, Senior Staff Officer LAURA J. HELSABECK, Staff Officer M. JEANNE AQUILINO, Financial and Administrative Associate ELLEN A. DE GUZMAN, Senior Program Associate ANITA A. HALL, Senior Program Associate MICHAEL STOEVER, Research Associate SARAH BRENNAN, Senior Project Assistant vi PREPUBLICATION COPY Preface The human-mediated introduction of species to regions of the world they could never reach by natural means has had great impacts on the environment, the economy, and society. In the ocean, these invasions have long been mediated by the uptake and subsequent release of ballast water in ocean-going vessels. Increasing world trade and a concomitantly growing global shipping fleet composed of larger and faster vessels, combined with a series of prominent ballast-mediated invasions over the past two decades, have prompted active national and international interest in ballast water management. Following the invasion of European zebra mussels (Driessena polymorpha) in the Great Lakes, the United States Congress passed the Nonindigenous Aquatic Nuisance Prevention and Control Act of 1990 (NANPCA), requiring the United States Coast Guard (USCG) to regulate ballast operations of ships. NANPCA was reauthorized and expanded in 1996 with the passage of the National Invasive Species Act. In 2008, the U.S. Environmental Protection Agency (EPA) entered the ballast water management arena by issuing its first Vessel General Permit, under the authority of the Clean Water Act of 1972. Both the USCG and EPA ballast management programs are undergoing revisions that focus on setting specific post-treatment discharge standards for ballast water. Forthcoming regulatory deadlines prompted the EPA and the USCG to request the National Research Council’s (NRC) Water Science and Technology Board (WSTB) to undertake a study to provide technical advice on the derivation of numeric limits for living organisms in ballast water for the next EPA Vessel General Permit and for USCG programs. The sponsoring agencies asked the NRC to: 1. Evaluate the state of the science of various approaches that assess the risk of establishment of aquatic nonindigenous species given certain concentrations of living organisms in ballast water discharges. 2. Recommend how these approaches can be used by regulatory agencies to best inform risk management decisions on the allowable concentrations of living organisms in discharged ballast water in order to safeguard against the establishment of new aquatic nonindigenous species and to protect and preserve existing indigenous populations of fish, shellfish, and wildlife and other beneficial uses of the nation’s waters. vii PREPUBLICATION COPY viii Preface 3. Evaluate the risk of successful establishment of new aquatic nonindigenous species associated with a variety of ballast water discharge limits that have been used or suggested by the international community and/or domestic regulatory agencies. Given the nature of this mandate, this report focuses on inoculum density, which is the basis of proposed discharge standards. Nonetheless, it is but one of many variables that determine whether a species will become a successful invader. The Committee recognized at the outset that any method that attempts to predict invasion outcomes based upon only one of many factors that influence the invasion process is likely to be characterized by a high level of uncertainty. At the request of the sponsors and given the limited time period for the study, it was not within the Committee’s charge to propose numeric discharge standards or to evaluate treatment systems that might be used in the future to achieve any such standards. Finally, the report contains a glossary of terms used. In developing this report, the Committee benefited greatly from the presentations and input of several individuals, including Henry Lee of EPA’s Office of Research and Development, Jim Hanlon and Ryan Albert of EPA’s Office of Wastewater
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