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ERMA New Zealand Evaluation & Review Report

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ERMA New Zealand Evaluation & Review Report ERMA New Zealand Evaluation & Review Report Application for approval to import for release a moth, the boneseed leafroller (Tortrix s.l. sp. “chrysanthemoides”), that is not currently present in New Zealand for the purpose of biological control of the weed pest boneseed Chrysanthemoides monilifera subsp. monilifera (L.) Norlindh (Family: Asteraceae) Application code: NOR03001 Prepared for the Environmental Risk Management Authority Key Issues The project team notes that no New Zealand natives belong to the same tribe as Chrysanthemoides monilifera subsp. monilifera. The project team considers that the applicant has followed internationally accepted host-specificity testing protocols. External experts and submitters questioned the choice of New Zealand natives used in the host-specificity and the project team notes that the selection criteria were not well explained. The source of plant material was not consistent between the Australian and New Zealand tests which may impact on the interpretation of results. The use of results from experiments done in environments unlike those experienced in New Zealand may impact on applicability of conclusions to the current application. Boneseed has been declared an unwanted organism by the Department of Conservation and the project team notes that in the application DoC was identified as a potential participant in the release programme. It is noted however, that DoC have made a submission opposing the approval of the application. The project team considers that there would be value in discussing these matters further at the hearing. Page 2 of 84 Table of Contents ERMA New Zealand Evaluation & Review Report 1 1 Introduction 5 1.1 Application Summary 5 1.2 Project team 7 2 Application Process Review 7 2.1 Timeline 7 2.2 Agencies notified 7 3 Information provided 8 3.1 Application 8 3.2 Submissions 8 3.3 External expertise 9 3.4 Additional information 9 4 The decision-making process 9 4.1 General 9 4.2 Analysis and terminology 11 5 Identification of the Organism (including scope) 13 6 Organism Characteristics 14 7 Efficacy of the biological agent 15 8 International Obligations 20 9 Identification and assessment of potentially significant adverse and beneficial effects (risks, costs and benefits) 21 9.2 The environment 21 9.3 Human health 35 9.4 Māori culture 36 9.5 Society and community 44 9.6 The market economy 46 10 Overall Evaluation 47 10.1 Summary of information 47 10.2 Summary of adverse and beneficial effects 48 10.3 Evaluation against statutory criteria 49 10.4 Previous consideration of similar applications 52 11 References 53 Appendix 1: Summary of submissions received 58 Appendix 2: Dr Barbara Barratt’s Report 63 Appendix 3: Dr Ilse Breitwieser’s Report 69 Appendix 4: Decision Pathway 76 Appendix 5: Qualitative scales for risk assessment 79 Page 3 of 84 Appendix 6: Submissions received by ERMA New Zealand 84 Page 4 of 84 1 Introduction 1.1 Application Summary Purpose of Application 1.1.1 Environment Canterbury seek approval to import for release Tortrix Linnaeus, 1758 s.l. sp. "chrysanthemoides" under section 34(1)(a) of the Hazardous Substances and New Organisms Act 1996 (HSNO). Biological control programme 1.1.2 The project team notes that the boneseed genus Chrysanthemoides is one of six genera in the tribe Calenduleae (Family: Asteraceae) that are native to South Africa (Weiss, 1986). The genus Chrysanthemoides comprises only two species, C. monilifera and C. incana. However, six subspecies of C. monilifera have been described. Chrysanthemoides monilifera has been introduced into a number of countries including Australia, Italy, St Helena, and France (Weiss, 1986; Scott, 1996). Only one subspecies C. monilifera subsp. monilifera is in New Zealand (Winks & Fowler, 2000). 1.1.3 The applicant states that in New Zealand C. monilifera subsp. monilifera (boneseed) has the potential to cause substantial environmental damage (Syrett 1999). It invades plant communities on coastal cliffs and dune- lands, and inland grassland and shrub areas. Dense thickets of boneseed can form which displace native vegetation and shade out native seedlings. The long-term impact of boneseed on native biodiversity may be much more serious than that of a weed such as gorse because there is little native seedling recruitment under a pure stand of boneseed (McAlpine & Timmins 2002). 1.1.4 In 2001 the Department of Conservation (DoC) declared boneseed an unwanted organism under section 164(c) of the Biosecurity Act, 1993. This was on the basis that it was capable of forming self sustaining populations in New Zealand, taking into account the ease of eradication; and displacing or reducing any native species or any introduced species for which the Department of Conservation is responsible; or causing the alteration or deterioration of natural habitats; or causing adverse effects to New Zealand’s indigenous biological diversity. 1.1.5 Boneseed is located mainly in coastal habitats throughout the North Island, and in Nelson/Marlborough, around Banks Peninsula, and Anderson's Bay in Dunedin and an indicative map of boneseed distribution is on page 6 of the application. Several regional councils and DoC implement active control programmes for boneseed in their area. 1.1.6 The boneseed shrub is a South African native, generally 2-3 m high, with thick, leathery leaves and masses of bright yellow daisy-like flowers, followed by clusters of black fruit that contain a single bone coloured Page 5 of 84 seed. This hardy weed can grow in a range of environments and is a prolific seed producer (Weiss, 1986). 1.1.7 One submitter (6330) requested some specific information about the weed including lifespan of individuals and stands, does succession occur, plant form in South Africa, and site of colonisation (eg disturbed soil), followed by succession or stability, seed production (numbers and viability and spread). The project team considers that this issue is adequately addressed in sections 7.1.14-7.1.15 and section 2.2 of the application. 1.1.8 One submitter (6330) specifically questioned what information was available to prove that boneseed was spreading and indicated the potential magnitude of the problem and to what extent was displacement of other species occurring. The project team considers that this issue is addressed in section 1.1.5 and comments by submitters 6321, 6322, 6325, 6326 and 6332. 1.1.9 Biological control using boneseed leafroller (the biological characteristics of which are described in Section 6 of this report) in a number of areas is considered the only option for managing this weed pest. This is because herbicide use is often impractical due to damage to native plants and/or inaccessible terrain. In certain areas, control may be possible by stock grazing on small plants but in other areas of steep terrain this is considered neither feasible nor desirable. 1.1.10 The applicant proposes to establish a rearing colony of the boneseed leafroller in South Africa, based on specimens collected from the same area as those used for host range testing. Larvae (5th and 6th instar) will be imported into New Zealand and held in quarantine until clearance is granted by the MAF (as discussed in section 9.2.33. Mass rearing will then be done at Landcare Research, Lincoln, followed by release at sites to be determined collaboratively by Landcare Research, regional councils, the Department of Conservation, iwi throughout New Zealand, and colleagues in South Africa and Australia. The project team notes that the submission by DoC did not support this application so is unclear about their potential involvement in any release programme. Potential release sites are indicated in a map on page 6 of the application in relation to the distribution of boneseed. The project team notes that the printed version of the map does not show the potential release sites clearly but implies that initial releases are likely to exclude coastal Bay of Plenty, Southern Wellington, Marlborough and Otago. It is also noted that the applicant has proposed to do post-release monitoring to assess the establishment and impact of the release biocontrol agent as detailed in section 4.2 of the application. Page 6 of 84 1.2 Project team 1.2.1 The project team consists of the following ERMA New Zealand staff members: Dr Sonia Whiteman Project Leader Dr Abdul Moeed Senior Scientific Advisor Dr Fleur François Scientific Advisor Linda Robinson Manager Māori Zack Bishara Māori Advisor Janet Gough Senior Analyst 1.2.2 This report was reviewed by Shaun Slattery (Programme Manager), Dr Geoff Ridley (Science Manager) and Dr Bas Walker (Chief Executive) and reviewed and signed-out by Dr Libby Harrison (Manager, New Organisms) on the 24th of November 2004. 2 Application Process Review 2.1 Timeline 2.1.1 The application was formally received on 19 August 2004 and publicly notified on 2 September 2004. Public submissions closed on 14th October 2004. Additional information was sought under section 58(1) of the HSNO Act as described in section 3.3.1. As a result the hearing was postponed by 11 working days under section 58(3) of the HSNO Act. This Evaluation & Review (E&R) report was circulated 13 days prior to the date of the hearing, which was held on the 13th of December 2004. 2.2 Agencies notified 2.2.1 Various government departments and agencies were notified of the receipt of the application (in accordance with section 53(4) of the HSNO Act), and provided with an opportunity to comment or make a public submissions on the application. 2.2.2 Of the government departments and agencies notified, only two made submissions the Department of Conservation (DoC) and the Ministry of Agriculture and Forestry. Page 7 of 84 3 Information provided 3.1 Application 3.1.1 The following documents were supplied by the applicant at the time the application was received: Application NOR03001 to Import for Release or Release from Containment any new organism including a genetically modified organism but excluding conditional release and rapid assessment [Form NOR] Copies of cited literature, as listed in the application.
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