Invasive Alien Species in Japan: the Status Quo and the New Regulation for Prevention of Their Adverse Effects
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171 Invasive Alien Species in Japan: The Status Quo and the New Regulation for Prevention of their Adverse Effects Toshikazu MITO* and Tetsuro UESUGI Taskforce for countermeasures against invasive alien species Japanese Ministry of the Environment; e-mail: [email protected] 1-2-2 Kasumigaseki, Chiyoda-ku, Tokyo 100-8975, Japan *corresponding author Abstract A huge amount of alien species have been introduced into Japan and some have become ‘invasive,’ having adverse effects on ecosystems, human safety, or agriculture, forestry and fisheries. Considering that the Japanese regulatory system has not dealt with the issue comprehensively, taking into account various suggestions from many entities concerned, and aiming to materialize the provisions of Article 8 (h) stipulated by the Convention on Biological Diversity, the Japanese Cabinet finalized a draft of the Invasive Alien Species Act and submitted it to the Japanese Diet (= Parliament) on March 10, 2004. The framework consists of the following three main points: (1) Invasive Alien Species (IAS) shall be designated in the Cabinet Ordinance of the Act as having adverse effects on ecosystems, human safety, or agriculture, forestry and fisheries. Various actions dealing with IAS such as raising, planting, storing, carrying, and importing shall be prohibited in Japan with the exception of specified cases such as by obtaining permission from the competent ministers. (2) National/local governments, Non-Profit Organizations, and other entities concerned shall take appropriate measures to mitigate the impact of IAS that already exist in Japan. (3) Uncategorized Alien Species (UAS), which may possibly be catego- rized as IAS through detailed investigation, shall need detailed investigation by the Japanese govern- ment in order to be allowed to be imported into Japan. The period for determining categorization shall be within six months from requests by importers or exporters of UAS into Japan. The Diet passed the draft and the new Invasive Alien Species Act was promulgated as of June 2, 2004. Following the establishment, the Japanese Cabined made a basic policy on October 15, 2004, for effective implementation of the Act. The Act shall be enforced within one year from its promulgation and IAS and UAS shall be designated before the enforcement based on suggestions by academic experts. Tens of IAS and thousands of UAS are expected to be designated in the first step. All related information is available in English at the following website: http://www.env.go.jp/en/topic/as.html Key words: alien species, biodiversity, IAS, importation, invasive alien species, mitigation, regulation, UAS, uncategorized alien species 1. Introduction sustained by international trade, it is thought that many alien species are unintentionally introduced into 1.1 Invasive Alien Species in Japan: the status quo Japan via seaports and airports along with imported 1.1.1 Introduction of alien species and their path- goods and containers, and by staff members. ways Due to this mass introduction, some of the alien Japan is importing an enormous number of living species have established habitations in Japan. So far, organisms. For example, about 620 million live ani- according to preliminary statistics the Japanese Minis- mals were brought into Japan in 2003 alone (Japanese try of the Environment gathered and announced on Customs, 2003). Although more than 90% of these are October 27, 2004, 111 species of vertebrates (17 mam- classified as worms for fishing bait, a variety of spe- mals, 38 birds, three amphibians, 11 reptiles, and 42 cies ranging from vertebrates to insects are brought in fish), 584 species of invertebrates (including 433 in- every year. Also, as the Japanese economy is strongly sects), and 1,556 species of plants (including 1,552 Global Environmental Research ©2004 AIRIES 8(2)/2004: 171-191 printed in Japan 172 T. MITO and T. UESUGI vascular plants) have been recognized to be estab- 1.2.3 Mitigation lished in Japan or found in the Japanese wild Although there is no national strategy yet, there al- (Japanese Ministry of the Environment, 2004a. See ready exist some mitigation efforts to prevent various Table 1 for the translation). damage from IAS in Japan. The typical case is a pro- 1.1.2 Adverse effects by invasive alien species ject attempting to mitigate problems from Java mon- Among alien species introduced into Japan, some gooses established on Amami Island. are invasive. The invasive alien species (IAS) are Yamada (2002) explains that 30 individuals of the causing three main types of damage. One is destruc- Java mongoose (Herpestes javanicus) were originally tion of ecosystems. A typical example is the Java released on Amami Island, Japan, in 1979 in order to mongoose (Herpestes javanicus). It was intentionally control the venomous lance-head snake (Trimeresurus introduced to southern islands in Japan in order to flavoviridis) and the black rat (Rattus rattus). Rather eradicate yellow-spotted lance-head snakes (Trimere- than controlling the snakes, however, the mongoose surus flavoviridis), but the effort resulted in decreased has had a major negative impact on agriculture and the habitats for endangered native animals such as native animals in mountainous areas. Okinawa rails (Rallus okinawae). The second category According to Ishii (2003), the mitigation project is threat to human safety. Snapping turtles (Chelydra conducted by the Japanese Ministry of the Environ- serpentina) were originally introduced as pets from ment started with a survey of the distribution of the the American continent but some were and still are Java mongoose. The survey was implemented from discarded into the wild due to difficulty of keeping. FY 1996 to FY 1999 and the result led to estimation of The turtles are posing risks of biting and injuring around 5,000 to 10,000 mongooses inhabiting, with an humans. The third category of damage is to agricul- annual growth rate of about 40% in 1999 before en- ture, forestry and fisheries. For instance, the raccoon forcement of actual mitigation. 9,469 mongooses were (Procyon lotor) was intentionally introduced as a pet, eradicated in total by a trapping campaign with a but, like the snapping turtle, some were discarded into bounty for three years from FY 2000, and a subse- the wild due to their fierce temperament. Some agri- quent monitoring survey indicated that the population cultural products have been decimated by the raccoons size and density had decreased to less than half the in the wild. peak seen in 1999. Nevertheless, we face a most diffi- cult situation for success in the project as a decrease in 1.2 Current measures against IAS trapping efficiency has led to a decline in trapping, 1.2.1 Legal framework while the range of the mongoose has continued Unfortunately, the existing legal framework was spreading. rather fragmentary regarding the issue of IAS and insufficient for dealing comprehensively with the 2. Toward Prevention of Damage from IAS damages. For example, the Phytosanitary Act only prevents damage to agricultural plants and the Infec- 2.1 Invasive Alien Species Act (1): background in- tious Diseases Prevention Act only prevents damage formation to human health caused by infectious diseases. Simi- 2.1.1 Convention on Biological Diversity larly, the Living Modified Organisms (LMOs) Act The significance of IAS issues was evoked by the controls importation of all living modified organisms, Convention on Biological Diversity (CBD). Article 8 but the act only targets damage to ecosystems and it (h) of the convention encourages each contracting does not restrict living ‘unmodified’ organisms at all. party to prevent the introduction of alien species, and 1.2.2 Importation control to control or eradicate those alien species which Importation control is conducted mainly by cus- threaten ecosystems, habitats or species as far as toms officers, phytosanitary officers, and quarantine possible and as appropriate. officers. For instance, in fiscal year (FY) 2004, 8,427 Additionally, Decision VI/23 adopted by the Sixth customs officers were working at the headquarters and Meeting of the Conference of Parties under the CBD the branch offices. Plant protection stations consist of created detailed guiding principles for the implemen- five main offices with more than 50 branch offices. tation of Article 8 (h) (CBD, 2002). The primary prin- Quarantine stations for human health have ten main ciple is stated as follows in the annex: offices and ten branch offices. Additionally, there were 312 animal quarantine officers in FY 2004 working at Guiding principle 2: Three-stage hierarchical approach one headquarters and six branch offices. 2. Priority should be given to preventing the intro- It should be pointed out, however, that none of the duction of invasive alien species, between and within above importation control officers have comprehen- States. If an invasive alien species has been introduced, sive authority and assignment to prevent introduction early detection and rapid action are crucial to prevent its of IAS. This is the reason a new regulation to control establishment. The preferred response if often to eradi- all aspects of damage by IAS has been proposed re- cate the organisms as soon as possible… In the event cently. that eradication is not feasible or resources are not available for its eradication, containment…and long- term control measures…should be implemented. Any Status Quo and New Regulation for Prevention of Adverse Effects 173 examination of benefits