Finland's National Strategy on Invasive Alien Species

5.2. Monitoring Intensive monitoring Monitoring focusing on changes Organisation, model development, 6. Risk assessment system initial prioritisations Risk assessment system in use Setting up a research programme and pre- 7. Research paring a plant protection research strategy Research on impacts continues Tools for import, distribution and sales 8. Prepare for preventing entry restrictions and for monitoring of pathways Systems in use 9. Volunteer action Encouraging of actors and support for NGOs 10. Explore and develop funding Alternative sources Leveraging new funding mechanisms mechanisms exploration 11. Ensure that no invasive alien species Measures against designated species spread from Finland 12. International measures Address invasive alien species in international co-operation 12 Implementation of targeted measures against invasive alien species in the Baltic Sea 13.–15. Targeted measures and inland waterways and against invasive alien land vertebrates and plants 16. Eradicate hogweeds Eradication project setup, resourcing, organisation and execution Eradicated More detailed timetables for each measure are given in the text. Finland’s NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES I Government Resolution on Finland´s National Strategy on Invasive Alien Species STRATEGY O n 15 March 2012, the government adopted a Resolution on Finland’s National Strategy on Invasive Alien Species at the proposal of the Min- enhanced on the basis of the national strategy for invasive alien species by improving the monitor- ing and reporting of observations.” istry of Agriculture and Forestry. The Govern- ment Resolution presents approaches and poli- On 3 May 2011, the European Commission is- cies that will be used to minimise the threat from sued a Communication entitled Our life insur- invasive alien species and to eliminate or reduce ance, our natural capital: an EU biodiversity strat- the harmful impacts of these species. The Gov- egy to 2020 (COM(2011)244 final). Known as the ernment Resolution also designates the authori- EU Biodiversity Strategy, this document specifies ties responsible and provides for an impact assess-under Target 5: “By 2020, Invasive Alien Species ment. and their pathways are identified and prioritised, 13 priority species are controlled or eradicated, and The Government Resolution on the National Strat- pathways are managed to prevent the introduc- egy on Invasive Alien Species was prepared by the tion and establishment of new invasive alien spe- Ministry of Agriculture and Forestry on the basis cies.” of the proposal returned by the broad-based inva- sive alien species working group appointed by the In December 2008, the European Commission Ministry. The proposal was submitted to Sirkka- adopted the Communication Towards an EU Liisa Anttila, Minister of Agriculture and Forest- Strategy on Invasive Species. This was the first ry, on 30 March 2011. The preparation of the pro- step on the path to an EU strategy for address- posal involved citizens’ consultation in February ing the problems caused by invasive alien species. 2011 and an extensive circulation for comment The Commission is now preparing a proposal for in May 2011. Some 100 responses were received EU-wide legislation concerning the combating of from ordinary citizens, and 78 statements were invasive alien species; this is scheduled for com- returned on the strategy proposal. The proposal pletion by the end of 2012. Strategy was revised and further specified on the basis of the feedback from the online polling and The Strategic Plan for Biodiversity adopted by the the statements received. The National Strategy on tenth meeting (October 2010) of the Conference Invasive Alien Species touches on several admin- of the Parties of the Convention on Biological Di- istrative sectors. versity states under Target 9: “By 2020, invasive alien species and pathways will be identified and prioritised, priority species will be controlled or eradicated, and measures will be in place to man- INTRODUCTION age pathways to prevent their introduction and establishment.” The Government Programme of Prime Minister Finland is committed to combating invasive al- Jyrki Katainen’s Government notes: “The preven- ien species and their harmful impacts nationally, tion of the spread of invasive alien species will be at the EU level and internationally. Finland’s Na- PART I Strategy tional Strategy on Invasive Alien Species provides services may thus have direct and indirect ad- the potential and the means for combating inva- verse effects on human well-being too. sive alien species and their threats and risks at the national level. It also fulfils international and EU Invasive alien species cause harmful social im- obligations in this field. Moreover, it implements pacts and substantial financial losses to a varie- the Government Resolution adopted in 2012 con- ty of actors. Many invasive alien species are ma- cerning preservation and sustainable use of the jor pests to the agriculture and forestry industries. biodiversity of Finnish nature. Fishing and fish farming may also suffer from the spreading of invasive alien species; alien species may also pose a health hazard or function as dis- Threats and risks caused by invasive ease carriers. Invasive alien species cause prob- alien species lems for recreational activities and tourism too. They also may compromise the functioning of the Alien species are organisms that have spread basic structures of society. from their natural distribution range to a new area through human action, whether intention- Invasive alien species cause significant financial ally or unintentionally. In other words, an alien costs worldwide. In 2001, it was estimated that species has migrated over natural barriers to mi- the annual damage caused by invasive alien spe- gration (such as a continent, a sea or a moun- cies worldwide exceed USD 1,400 billion (EUR tain range) with intentional or unintentional hu- 1,054 billion), equivalent today to 2% to 3% of man assistance. Generally, alien species adapt the combined global GDP. Of the 11,000 or so poorly to their new environment and are quick- alien species found in Europe, probably 10% to ly destroyed. In some cases, however, alien spe- 15% cause some kind of harmful ecological or cies thrive in their new environment, establish- economical impacts. Even at a cautious estimate, ing a permanent and propagating population. A the value of the damage caused by these invasive few of these thrive remarkably well, so much so alien species amounts to at least EUR 12.5 bil- that they cause severe damage to indigenous spe- lion per year. The majority (about 80% to 90%) 14 cies, ecosystems, crops, forestry or other areas of of these costs are incurred through the harm and the economy and thus pose a serious threat. They damage caused by invasive alien species and com- may also cause significant financial damage by af- pensation thereof, including harm to agriculture, fecting human, animal or plant health or by de- forestry and fisheries, infrastructure damage and creasing the value of properties, or by causing harmful impacts on human health. socially or aesthetically harmful impacts. Alien species that cause obvious harmful impacts are No overall study of the costs caused by invasive known as invasive alien species. alien species in Finland has been made, but they are known to cause significant losses in quanti- Worldwide, invasive alien species constitute one ty and quality in production (crops and catches). of the leading threats to biodiversity, second on- Regular costs are being incurred in Finland, for ly to the destruction and fragmentation of entire instance through plant and animal inspections habitats. The spread of invasive alien species de- related to alien species, prevention measures creases biodiversity on average, even if it may lo- against invasive alien species such as hogweeds, cally or regionally increase the number of species Himalayan balsam and Japanese rose, and hunt- present. ing and trapping of small predators spreading to Finland. Even the costs of disease and pest con- Invasive alien species present a multitude of trol, prevention and monitoring amount to sev- harmful impacts on biodiversity, ecosystem func- eral million euros per year in Finland. tioning and the ecosystem services thereby main- tained. Alien species may threaten indigenous The impacts of invasive alien species may be de- species by competing with them for the same re- tected in several different areas of society at once. sources, by predation, by spreading diseases or The potentially most vulnerable areas in Finland parasites, or by cross-breeding with these species are those of substantial importance to the na- in the wild. Alien species are also known to have tional economy, for instance in forestry. A situ- changed the structure of food chains and have af- ation causing devastating economic losses would fected the functioning of entire ecosystems. The emerge if one particular invasive alien species harmful impact of invasive alien species on the disastrous for the forest industry – the pine wood natural environment, biodiversity and ecosystem Finland’s NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Government Resolution nematode (Bursaphelenchus xylophilus) – were to The three-tier approach involves spread rapidly in Finland’s forests. 1) preventing and combating Principle: The risk of new invasive alien spe- cies arriving will be minimised or eliminated. GOAL OF THE NATIONAL STRATEGY ON All pathways and both intentional and unin- INVASIVE ALIEN SPECIES tentional introduction will be taken into ac- count. The further spreading of invasive alien species already found in the country and their The goal of the strategy is to minimise the risk of harmful impacts will be prevented or mini- invasive alien species already established in Fin- mised. land and with a probability of being introduced to Finland, and to ensure that invasive alien spe- 2) early detection and eradication cies occurring in Finland and their harmful im- Principle: Invasive alien species that have ar- pacts are identified and combated with a compre- rived in the country will be identified and hensive range of measures. A system will be es- eradicated before they can establish a perma- tablished in Finland by 2020 whereby the harmful nent population. impacts of invasive alien species can be controlled and the entry into Finland of new such species 3) prevention of spreading and continuous long- can be prevented. term limitation measures Principle: Invasive alien species already estab- To attain this goal, the strategy incorporates lished in the country will be prevented from the following practical measures: spreading more widely and from causing more widespread harmful impacts. 1) to increase awareness among citizens of the combating of invasive alien species and to en- courage them to take action, The three-tier approach covers both established and arriving invasive alien species. 15 2) to determine the responsibilities and ac- tions of officials and other actors in limiting It is known that prevention is generally much the damage caused by invasive alien species, more cost-effective and environmentally friendly than corrective action. However, in a case where 3) to prepare for new invasive alien species an invasive alien species has already entered an threats caused by climate change and other area, early detection and rapid eradication are the changes in the operating environment, and most cost-effective ways of preventing it from es- tablishing itself and spreading further. If an inva- 4) to improve and promote cooperation in the sive alien species proves impossible to eradicate, eradication of damage by invasive alien spe- measures to combat it and prevent its spreading cies nationally, at the EU level and interna- must be undertaken, or else provision must be tionally. made to adapt to the presence of the species. APPROACH AND IMPLEMENTATION Means for preventing and OF THE NATIONAL STRATEGY ON minimising the threats and INVASIVE ALIEN SPECIES harmful impacts of invasive alien species It is considered justified for the implementing of Finland’s National Strategy on Invasive Alien Spe- The following is a discussion of practical means cies that measures be taken to minimise the threat available for preventing and minimising the and harmful impact of invasive alien species in threats and harmful impacts of invasive alien spe- Finland. Measures will be taken applying an in- cies. ternationally approved three-tier approach and relevant actions. PART I Strategy Develop legislation national preparation of legislation in Finland un- til the content and form of the EU legislation on The purpose of developing the Finnish legislation alien species have been established. is to create a legal basis for actions and means for rapid deployment of prevention measures up- on the arrival of a new, suspected invasive alien Improving communications species and for the limiting or preventing of the spreading of an invasive alien species already es- One of the crucial pillars in action to be tak- tablished in the country. Legislation will also clar- en against invasive alien species is communica- ify the responsibilities of and relationships be- tions: the target is to employ publicity, training tween various actors in combating invasive alien and guidelines to raise awareness of invasive al- species. This will make practical efforts more ef- ien species among key actors, including citizens. ficient while enabling further development of ac- Increasing publicity and training on invasive al- tions to minimise the risks of invasive alien spe- ien species will raise awareness of the related risks, cies and to mitigate their harmful impacts. The which will contribute to the prevention of harm- target is to amend and enact legislation concern- ful impacts and support the implementation of ing the management of, and the limitation of risks restrictions. Publicity and training can highlight caused by, invasive alien species so that it will be information on the new invasive alien species comprehensive and up to date. that may spread to Finland due to increased trav- el, the harmful impacts of those species and the Legislation will be harmonised either by amend- increased risks of invasive alien species already ing existing legislation or, if necessary, by enact- established in Finland. Communications will also ing a special Act on invasive alien species. increase public awareness of the means required to combat invasive alien species and understand- Legislative means and solutions concerning inva- ing of the necessity of robust action. sive alien species are being prepared by the EU; it is estimated that these will be completed in late The relevant and up-to-date information needed 16 2012. The EU legislation will have a significant in Finland for publicity, risk assessment, moni- impact on the development of national legislation toring and combating measures related to inva- on alien species. sive alien species must be available in one loca- tion. Known as the alien species portal, this ser- A probable solution concerning invasive alien vice will also be able to receive and distribute in- species to be enacted as binding upon EU Mem- formation on invasive alien species. Information ber States is the introduction of an early warning will also be available on the location and extent of system. Such a system can provide up-to-date in- species populations and of combating measures formation on the alien species situation while en- taken nationwide, so that combating measures abling the early detection of the arrival of new al- can be implemented cost-efficiently in the right ien species. At the same time, it will become pos- place at the right time. The portal must be set up sible to prevent or combat harmful impacts with in connection with systems that already exist and appropriate and timely measures. The system will are under development, insofar as this is possible. include an alert function designed to detect the entry of new invasive alien species as early as pos- sible. A well-functioning early warning system Organisation-specific targeting will notify the authorities of the occurrence of an invasive alien species very quickly. The system Official coordination is required in the implemen- will be introduced as required by the EU. tation of the alien species strategy in Finland. This would facilitate coordinated discussion of issues Legislation concerning alien species is intended related to alien species, such as the drafting of to be developed by a dedicated working group. proposed measures to combat risks and harmful This effort will be based on identified shortcom- impacts; the launching of rapid-response action; ings in the national legislation on invasive alien the commissioning and monitoring of risk assess- species and on legislative solutions to be adopted ments; the maintaining, updating and confirm- by the EU. The legislative development will need ing of alien species lists, including lists of which to be based on what is known as the prudence pets may be imported; development of innovative principle, and also on the polluter-pays principle funding; and coordination and promotion of gen- as far as possible. It will not be feasible to launch eral matters involving alien species. Alien species Finland’s NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Government Resolution coordination is also intended to manage the mon- country of alien species, such as by drawing up itoring and progress of action addressing alien preparedness plans. Local eradication campaigns species. Monitoring is needed to follow changes undertaken by volunteers can be organised more in the distribution and harmfulness of alien spe- cost-effectively and implemented more afford- cies, the effectiveness of combating measures, and ably through NGOs than solely through action the implementation of the National Strategy on taken by the authorities. Species-specific combat- Invasive Alien Species. The purpose of alien spe- ing actions are also possible. These are very differ- cies coordination is to simplify the processing of ent from one another, depending on whether they alien species matters and the formulation of con- concern invasive alien species in the Baltic Sea or sistent policies in EU-level negotiations, for in- in an agricultural and forestry environment, for stance, and also to support the development of instance. actions against alien species. The aim is to create a more organised and stable network for dealing with issues related to invasive alien species. OFFICIAL RESPONSIBILITIES IN Risk assessment and risk assessment development FINLAND are crucial for the control of invasive alien species. This would initially be undertaken on a sector- specific basis and would support preparations for Currently, the Ministry of Agriculture and Forest- the harmful impacts of alien species and the an- ry is responsible for alien species in agriculture ticipation of combating measures. The purpose of and forestry, game management and fisheries, risk assessment is to identify and describe the haz- while the Ministry of the Environment is respon- ards related to the entry into the country of spe- sible for alien species that belong within the pur- cific invasive alien species and to assess the prob- view of the Nature Conservation Act. The Min- abilities of their establishment and spreading. The istry of Transport and Communications coordi- assessment also involves estimating how harmful nates invasive alien species issues related to road these species are and what measures are available management, transport routes and shipping. The to combat them. Risk assessment and the evalu- Ministry for Foreign Affairs is responsible for in- 17 ation of measures to be taken against risks help vasive alien species issues related to development choose the risk management measures that are cooperation projects. the best for society at large. Risk assessment facil- itates the allocation of existing resources to con- The Ministry of Agriculture and Forestry coor- trolling the species which cause the greatest risks dinates national measures against invasive alien or which can be cost-effectively controlled, and species. The Ministry is the contact authority for also to the most efficient management measures EU alien species issues and in other international (including prevention) for each species, helping contexts as necessary. guide the choices of individual actors (e.g. im- porters) and supporting preparedness planning Official responsibilities include legislation devel- related to specific species or functions. opment, implementation and monitoring. The practical implementation of risk assessment Collaboration with municipalities and with envi- will be steered through performance guidance ronmental, health and other authorities in local and, if possible, through cooperation between government concerning the combating of inva- various bodies, for instance. sive alien species will be continued. Other means In addition to the above, it is important to in- crease alien species research in order to minimise the threats and harmful impacts of invasive alien species, to develop funding mechanisms address- ing invasive alien species, including mechanisms taking into account the responsibility of the pri- vate sector in this respect, and to create prepar- edness for preventing the introduction into the PART I Strategy Table 1. Official responsibilities concerning alien species in Finland. Ministry of Agriculture and Forestry Overall coordination Principal responsibility for alien species in agriculture and forestry, and in fisheries and game management Contact authority (Focal Point) for EU-level alien species issues Performance management (MTT Agrifood Research Finland, Metsähallitus, Finnish Forest Research Insti- tute Metla, Forestry Development Centre Tapio, Finnish Forestry Centre, Finnish Game and Fisheries Re- search Institute, Finnish Game Management Centre, Finnish Food Safety Authority Evira, Centres for Eco- nomic Development, Transport and the Environment) Ministry of the Environment Responsibility for alien species pursuant to the Nature Conservation Act Performance management (Finnish Environment Institute, Metsähallitus, Centres for Economic Develop- ment, Transport and the Environment) Ministry of Transport and Communications Alien species issues related to transport route management, traffic and transport (shipping, railways, roads) Performance management (Centres for Economic Development, Transport and the Environment through the Finnish Transport Agency) Ministry for Foreign Affairs Responsibility for invasive alien species issues related to development cooperation projects IMPACTS OF THE STRATEGY harmful environmental impacts of invasive alien 18 species in the future. General The principal objective of the strategy is to pre- vent invasive alien species from being introduced The objective of Finland’s National Strategy on In- to and established in Finland. If enforced appro- vasive Alien Species is to reduce the damages and priately, this objective will reduce though not risks caused by invasive species to the Finnish nat- completely eliminate the likelihood of harmful ural environment and socio-economic well-being. impacts of invasive alien species. Preventing the spreading of invasive alien species is important for the avoidance of major economic Implementing the strategy may also go some way losses and for securing biodiversity and ecosystem towards limiting the harmful impacts of already functionality in the natural environment in or- established species in Finland’s natural environ- der to safeguard the ecosystem services provided. ment. National measures may be taken to pre- vent the spreading of species now known to be Biodiversity is crucial for the functioning of eco- detrimental to biodiversity, such as Canadian wa- systems, and ecosystem services are important terweed and hogweeds, to new areas. The strat- and economically valuable for the well-being of egy involves motivating the game management society at large. The harmful impact of invasive authorities, for instance, through small predator alien species on the natural environment, biodi- campaigns and hunters by distributing informa- versity and ecosystem services may thus have di- tion concerning the hunting and trapping of the rect and indirect adverse effects on human well- widespread American mink and raccoon dog as a being too. method for game bird management, and the de- velopment of more effective trapping equipment and methods for eradicating invasive alien spe- Environmental impacts cies. This will allow a systematic approach to re- ducing the harmful impacts of these invasive al- Finland’s National Strategy on Invasive Alien ien species in areas that are important for biologi- Species, if implemented appropriately and com- cal diversity. Implementing the strategy may even prehensively, will improve the prevention of the have local landscape impacts, since the eradica- Finland’s NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Government Resolution tion of Japanese rose from sandy beaches, for in- The benefits will include: stance, will restore the original landscape. • reduction of costs caused by alien species, • financial benefits from using alien species Some alien species, however, have already estab- (e.g. game species), and lished a permanent population in Finland, and it • financial benefits of operations that also will not be technically or financially possible to unintentionally spread invasive alien species. eradicate them. This is particularly true of the al- ien species in the Baltic Sea. Some alien species No comprehensive estimate of the costs of damage such as the white-tailed deer are regarded as val- caused by invasive alien species has been made in ued game animals, and the population of this spe- Finland. For instance, the costs of research, pre- cies is being managed by the game management vention, eradication and monitoring of diseases authorities. It is not considered feasible to attempt and pests affecting cultivated plants amount to to eradicate such species. Thus, the strategy, even tens of millions of euros per year. Such costs in- if implemented in the broadest possible way, can- clude the prevention of and the damage caused by not result in a return to the status quo before the wild oat (EUR 10 to 30 million per year), combat- introduction of alien species to Finland. By exten- ing hogweeds (EUR 2.5 million), combating wild sion, implementation of the strategy is expected rabbit (EUR 0.5 million annual cost to the City of not so much to change Finland’s current natural Helsinki) and financial losses caused by the col- environment as to prevent further loss of biodi- lapse of the noble crayfish catch because of the versity and weakening of ecosystems in the future. crayfish plague (EUR 10 million per year). The strategy will increase the preparedness to re- It has been noted, for instance in connection with act to changing circumstances and may thus facil- the preparation of the EU Strategy on Invasive Al- itate intervention in situations where an alien spe- ien Species, that the resources required for pre- cies becomes invasive as circumstances change. vention of invasive alien species are considerably This may be relevant as a component of our strat- lower than the costs incurred through the harm- egy of adaptation to climate change. ful impacts of same. A study conducted in the UK indicates that the eradication of invasive alien 19 species that have already established themselves Financial impacts and impacts with a widespread presence is 10 to 100 times on business more expensive than eradication at an early stage. Generally, both costs and benefits will be incurred The implementation of the EU Strategy on Inva- from measures taken under the strategy. sive Alien Species or EU legislation on alien spe- cies is estimated to lead to annual costs amount- The costs will include: ing to EUR 40 to 190 million at the EU level and • costs of prevention (communications, warn- for the Member States, the cost level depending ing systems, monitoring, risk assessment), on the content and coverage of the strategy. These • costs of rapid-response prevention measures costs, however, are only a fraction of the estimat- (planning, maintaining response readiness, ed financial damages caused by invasive alien spe- targeted prevention actions), cies (EUR 12.5 billion per year). • long-term changes in the maintenance of transport routes, The pine wood nematode contingency plan • costs of damage limitation, control and (2011) contains the estimated costs of combat- repairs, ing that pest. If a single occurrence of pine wood • general costs of alien species management nematode were to be discovered in a forest in Fin- (development of alien species policy, admin- land, the forest would be felled in a 3 km radius istration costs, coordination, hearings), around the site. The costs incurred by central gov- • research costs, ernment in surveying and monitoring would be • costs of volunteer action, EUR 4.5 million in the first year and about EUR • costs caused by invasive alien species (actual 115,000 per year for the next 15 years. The costs and potential), including for instance the incurred by local combating measures (felling, costs of adaptation in business operations clearing, transportation, gathering and burning and lost financial gain, and felling waste) would be between EUR 1.6 and 6.4 • costs of monitoring and other information- million, depending on the site. Moreover, central gathering. PART I Strategy government would be obliged to pay forest own- The funding need of the Ministry of Agriculture ers EUR 4 to 13 million in compensation. and Forestry concerns expert consultation re- garding alien species within the spending limits The implementation of Finland’s National Strat- of the Ministry’s administrative sector. The risk egy on Invasive Alien Species may require recom- assessment procedure being developed at the mendations, limitations or even bans being im- Finnish Food Safety Authority Evira is expected posed on the sale of invasive alien species such as to tie up two person-years’ worth of personnel re- ornamental plants. This may lead to a need to find sources. new options to replace these invasive alien plants and to allocate research resources to this. Com- The funding need of the Ministry of the Environ- panies will sustain adjustment costs and direct fi- ment has to do with the setting up and maintain- nancial losses. ing of the ‘alien species portal’. Its implementation costs depend on how well synergy benefits with The objective of the National Strategy on Invasive existing systems can be leveraged in broad-based Alien Species is to minimise the financial loss- cooperation. Upkeep of the portal may require re- es and risks caused by invasive alien species at a allocation of personnel resources through perfor- moderate cost level. The costs caused by invasive mance negotiations. alien species do not substantially affect those ac- tors who benefit from alien species or whose op- The strategy is being implemented by reallocat- erations increase the risk of invasive alien species ing existing resources within administrative sec- being accidentally introduced to Finland. tors. The strategy is being implemented within the spending limits of state government finances, the state budget and the effectiveness and produc- Impacts on central government finances tivity programme. Estimates of the costs caused by alien species have Current estimates indicate that it will be possible been made in the course of the preparation of the to draw on EU funding in the implementation of 20 proposal for Finland’s National Strategy on Inva- the strategy, such as rural development funding sive Alien Species on the basis of a survey circulat- or Life+ funding. Combating invasive alien spe- ed among various authorities and actors in 2010 cies could be incorporated in the Multiannual Fi- and of expert evaluations. It was estimated that in nancial Framework for the Common Agricultur- 2010, invasive alien species cost various authori- al Policy for 2014–2020, for instance as a special ties and certain NGOs, producers and recreation project-based measure. The Life+ funding instru- users somewhere between EUR 28 and 51 million. ment has already been leveraged in culling small Of this amount, about EUR 6 to 10 million per predators, for instance, and similar projects could year was sustained by institutions that come un- continue to be run. Alien species research could der central government finances (including the also be brought under EU research funding. Finnish Food Safety Authority Evira, the Finnish Transport Safety Agency, the Finnish Environ- ment Institute, Metsähallitus, the Finnish Forest Social impacts Research Institute and the University of Helsin- ki). Ongoing costs caused by alien species include Combating invasive alien species and their the costs of preventing, eradicating and monitor- spreading helps safeguard the functioning of eco- ing diseases and pests that affect cultivated plants, systems and the ecosystem services they generate. which today amount to several million euros per Ecosystem services important for the well-being year. Local authorities and Centres for Econom- of society at large include diverse use of the natu- ic Development, Transport and the Environment ral environment for recreation, which affects hu- are estimated to incur EUR 1.2 million and 0.45 man well-being. The spreading of Canadian wa- million, respectively, in annual costs. terweed and Japanese rose, for instance, not only causes environmental changes but also adverse- The impact of the strategy on central government ly affects the use of the sea shore and inland wa- finances will initially be that funds will need to be terways for recreation. A large stand of hogweed allocated within administrative sectors to the im- may prevent recreational use such as fishing and plementation of the strategy. walking along rivers, and in heritage landscapes it may be considered a visual detriment as well. In- vasive alien species may have an indirect impact Finland’s NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Government Resolution on tourism by weakening the recreation potential Limitations to the implementation of of certain areas. Implementing the strategy will the strategy help preserve diverse recreational opportunities in the natural environment. Finland’s National Strategy on Invasive Alien Spe- cies addresses alien species observed in Finland Certain alien species have harmful impacts on that have, with some exceptions, been introduced human or animal health. Alien species cannot in to the country since 1850. The choice of the cut- and of themselves be considered a disease threat; off point was determined by the availability of re- but their indirect harmful impact should be an- liable history data. The issue of alien species that ticipated. might be introduced to Finland or might become invasive for instance because of changes in the operating environment is also addressed in the strategy. The implementation perspective of the MONITORING AND MIDTERM strategy extends to 2030. EVALUATION OF THE GOVERNMENT RESOLUTION Procedures relating to the combating of animal diseases are not addressed in the strategy, because these are provided for in EU and national legis- The implementation of this Government Reso- lation on animal diseases. Agents causing exotic lution will be monitored regularly as part of the animal diseases, including zoonotic diseases and general monitoring of the work of the govern- the harmful impacts thereof are not addressed in ment and the ministries. Attainment of the goals the strategy. presented in the Resolution will be monitored and evaluated for instance in connection with Diseases and pests affecting fish in aquaculture alien species coordination and in the context of are not addressed in the strategy, nor are new spe- the Government Resolution and National Strate- cies to be potentially introduced in fish farming. gy concerning biological diversity. New measures These issues are largely addressed by national and will be proposed as and when necessary. It is pro- international legislation and procedures pertain- 21 posed that the interim evaluation of the strategy ing to fish farming. be carried out during 2016. Genetically modified organisms (GMO) were also The most significant uncertainties with regard excluded from the scope of the strategy, because to the implementation of the strategy have to do there is already a national administration proce- with the nature of the alien species problem itself, dure and national regulations in place for them. issues of resources in implementing the strategy, and putting the measures into practice. IMPLEMENTATION Implementation of the strategy and related meas- ures is the responsibility of several authorities and administrative sectors, and other actors too. The strategy is being implemented in administrative cooperation between various interest groups. The aim is for Finland’s National Strategy on Invasive Alien Species to be adopted and incorporated in the operations, strategies and programmes of the various administrative sectors and of regional ac- tors such as the Centres for Economic Develop- ment, Transport and the Environment, the Re- gional Councils and local authorities. All of the measures will be coordinated by the Ministry of Agriculture and Forestry. PART I Strategy 22 Himalayan balsam (Impatiens glandulifera) PHOTO: terhi ryttäri FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES II FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES BACKGROUND THREAT FROM ALIEN SPECIES sence of effective methods to combat them, both at the EU level and nationally, it is highly likely that the number of invasive alien species and the Threat to biodiversity and ecosystem damage caused by them will grow in the future. services Of the 11,000 alien species found in the EU, 59% are terrestrial plants, 24% are terrestrial inverte- W orldwide, invasive alien species constitute one of the leading threats to biodiversity, second only to the destruction and fragmentation brates, 10% are marine species, 4% are inland wa- terway species and 3% are terrestrial vertebrates. of entire habitats. Studies show that as many as Invasive alien species present a multitude of 480,000 species have been introduced and spread harmful impacts on biodiversity, ecosystem func- 23 into alien environments globally, and invasive al- tioning and the ecosystem services thereby main- ien species are known to be the most significant tained.2 Alien species may threaten indigenous single contributing factor in species extinction species by competing with them for the same re- worldwide. The spread of invasive alien species sources, by predation, by spreading diseases or decreases biodiversity on average, even if it may parasites, or by cross-breeding with these spe- locally or regionally increase the number of spe- cies in the wild. For instance, crayfish plague cies present. (Aphanomyces astaci) of American origin, having­ spread into Finland’s inland waterways, has The first comprehensive list of invasive alien spe- largely­destroyed our original population of cies in Europe was compiled in the DAISIE pro- noble crayfish (Astacus astacus). Similarly,­ ject in 2008.1 This list contains more than 11,000 the [American] mink (Mustela vison)­and raccoon alien species. Most established alien species in ­dog (Nyctereutes procyonoides), small predators Europe still have a relatively limited range, and alien to Finland’s natural environment, cause as a result only a small percentage of these spe- considerable damage to waterfowl broods in the cies have proliferated to such an extent as to be archipelagos and on bird wetlands. An alien spe- considered harmful. However, as the risk of the cies may also share an ecological niche with an spreading of alien species increases and in the ab- indigenous species, constricting the habitat of the latter or supplanting it altogether. This may have already happened in Finland in the case of the 1. http://www.europe-aliens.org/ 2. The natural environment produces important commodi- [American] mink vs. the European mink (Mus- ties such as food, water and wood for firewood and con- tela lutreola). In many cases, alien species simply struction, while also ensuring the functioning of process- lack natural enemies that would limit the growth es beneficial to humans, such as regulation of floods and and spreading of their population. diseases, pollination of crops and prevention of soil deple- tion. The natural environment is also important for tour- ism, recreation and mental wellbeing. All of the above are According to a report on endangered species in collectively known as ecosystem services. The Economics Finland (2010), alien species have affected the en- of Ecosystems and Biodiversity 2008–2010 dangered status of certain species in our country. (www.teebweb.org). An invasive alien species is mentioned as a threat PART II Background for a total of 26 endangered or near threatened plague has had a substantial economic impact in species. For instance, roadside growths of the vul- Finland. nerable bristly bellflower (Campanula cervicaria) are threatened by the robust proliferation of the Alien species may also pose a health hazard or large-leaved lupine (Lupinus polyphyllos). In the function as disease carriers. For instance, the gi- archipelago, the [American] mink and raccoon ant hogweed (Heracleum mantegazzianum), Per- dog are threats particularly to the common eider sian hogweed (H. persicum) and Sosnowsky’s (Somateria mollissima) and velvet scoter (Melan- hogweed (H. sosnowskyi) originating in south- itta fusca). The future success of the endangered eastern Asia may cause serious skin symptoms Scots elm (Ulmus glabra) and European white by contact. Another powerful allergenic plant elm (U. laevis) is compromised by the spreading is the common ragweed (Ambrosia artemisii- of the Dutch elm disease (Phiostoma ulmi) to Fin- folia), which is already widespread in Europe and land. The Japanese rose (Rosa rugosa) is by far the with global warming may come to thrive in Fin- most significant threat to Finland’s endangered land too. Disease-spreading alien species in Fin- species, being noted as a threat to nine butterfly land include the common rabbit (Oryctolagus species inhabiting coastal sands, four fly species, cuniculus) (tularaemia); the Canada goose (Branta two agaric fungi species and six vascular plant canadensis) (influenza A); and the raccoon dog, species. [American] mink and domestic cat when feral (Felis silvestris catus) (rabies). Alien species can- The impact of alien species was considered con- not in and of themselves be considered a disease servatively in the endangered species report and threat, but their indirect harmful impact should only mentioned in cases where the effect was be anticipated. As a new animal species becomes clear. It is therefore probable that the true impact settled and established, this may create a wholly of alien species is greater than that. new ecological niche for a pathogen which pre- viously did not have a suitable indigenous host. There are also known cases where the structure Even then, a health risk to humans or animals and function of entire ecosystems, such as food will of course only be actualised if the pathogen 24 chains, have changed substantially due to the ar- also arrives in the country and finds a home in rival of an alien species. For instance, Canadian the established alien animal species. Alien species waterweed (Elodea canadensis) is rapidly spread- must be monitored, including the tracking of the ing in Finnish waterways, causing ecological size and range of established populations of alien changes in freshwater ecosystems. The Japanese species, and in the long term this will enable as- rose is taking over sandy beaches and islands, sessment of potential disease risks for both ani- causing significant changes in the structure and mal diseases and animal-borne diseases. species inventory of coastal ecosystems. Invasive alien species also cause problems for rec- Biodiversity and ecosystem services are known reational activities and tourism. The spreading of to form the foundation of the wellbeing of soci- the Canadian waterweed and the Japanese rose ety and to have substantial economic value. The not only causes environmental changes but also harmful impact of invasive alien species on the adversely affects the use of shores and inland wa- natural environment, biodiversity and ecosystem terways for recreation. services may thus have direct and indirect ad- verse effects on human wellbeing too. Invasive alien species may also damage infra- structure. For instance, the widespread brown rat (Rattus norvegicus) causes considerable damage Threats to actors in society and the worldwide by chewing through electrical, phone economy and data cables. The common rabbit tunnels un- der parks and roads, and the dark false mus- Invasive alien species cause harmful social effects sel (Mytilopsis leucophaeata) clogs up water in- and substantial financial losses to a variety of ac- take pipes for instance at power plants. The sig- tors. Many invasive alien species are major pests nal crayfish (Pacifastacus leniusculus), like many in agriculture and forestry. Fishing and fish farm- other crayfish, digs burrows to nest in, which may ing may also suffer from the spreading of inva- undermine riverbanks. sive alien species; for instance, the collapse of the noble crayfish catch as a consequence of crayfish FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Economic impacts species. Because these reports differ in scope and in their evaluation methods, it is difficult to com- Invasive alien species cause substantial econom- pare the data from different countries. ic damage worldwide. In 2001, it was estimated3 that the annual damage caused by invasive al- ien species worldwide exceed USD 1,400 bil- Economic damage and prevention costs in lion (EUR 1,054 billion), equivalent today (2010) Finland to about 2% to 3% of the combined GDP of the world. In the USA, the economic damage caused One of the most significant harmful impacts by invasive alien species is estimated at USD 128 caused by an invasive alien species in Finland is billion (EUR 96.4 billion) per year. the collapse of the catch of noble crayfish because of crayfish plague, a disease of American origin. Europe has traditionally been regarded as a re- The losses caused by this were on the order of gion where both the number of alien species and EUR 10 million per year throughout the 20th cen- the problems caused by them have been consid- tury, calculated at present producer prices. A sim- erably lower than on other continents. In recent ilar situation causing devastating economic losses years, considerable contributions have been made would emerge if one particular invasive alien spe- to the knowledge on alien species in Europe, par- cies disastrous for the forest industry – the pine ticularly through the research in two EU-funded wood nematode (Bursaphelenchus xylophilus) – projects, DAISIE and ALARM. At the same time, were to spread rapidly in Finland’s forests. The it has emerged that earlier estimates of the num- costs of preventing pine wood nematode are pre- ber of alien species in Europe were grossly inad- sented in the national contingency plan (2011). equate and that the problems caused by invasive The estimated costs arising from a single finding alien species are much more extensive and much of pine wood nematode are 11–26 million euros. more serious than previously thought. No comprehensive estimate of the costs of dam- Of the 11,000 or so alien species found in Europe, age caused by invasive alien species has been probably 10% to 15% cause some kind of harmful made in Finland. Regular costs are being in- 25 ecological or economical impacts. Even at a cau- curred in Finland for instance through plant and tious estimate, the value of the damage caused by animal inspections related to alien species, pre- these invasive alien species by 2011 amounts to vention measures against invasive alien species at least EUR 12.5 billion per year. This may be re- such as hogweeds, the Himalayan balsam and the garded as a minimum, as the true economical and Japanese rose, and hunting and trapping of small ecological impacts of the majority of alien species predators spreading to Finland. Costs are also in- found in Europe are not known. Also, in the ab- curred through working hours in administration sence of hard information estimates usually only and various official and unofficial bodies, through cover a fraction of potential harmful impacts. research and monitoring, through qualitative and quantitative production losses (crops and catch- In the UK, for instance, invasive alien species es), and damages and their correction. Even the cause damage at a rate of GBP 1.7 billion (EUR 2 costs of disease and pest control, prevention and billion) per year. In Sweden, it has been estimated monitoring amount to several million euros per that the harmful impacts of 13 invasive alien ani- year in Finland. In 2010, the City of Helsinki mal and plant species (including diseases)4 may spent about EUR 0.5 million on limiting the pop- be anything from EUR 181 million to EUR 568 ulation of wild rabbits in the city and on damage million per year. Similar comprehensive estimates prevention. Based on the situation in Europe and or estimates per actor or per species group have in Sweden in particular it has been estimated that been produced in some other European countries the overall economic losses caused by invasive al- concerning the damages caused by invasive alien ien species in Finland are very probably on the order of tens if not hundreds of millions of euros 3. Pimentel et al. 2001: Economic and environmental threats per year. Taking geographical differences between of alien plant, animal, and microbe invasions. Finland and Sweden into account, it has been esti- 4. The bay barnacle, furunculosis (a fish disease), fringed mated that Finland spends at least tens of millions water-lily or yellow floating heart (an aquarium plant, of euros per year on alien species control meas- Nymphoides peltata), signal crayfish and crayfish plague, Spanish slug, Japanese rose, [American] mink, hogweeds, ures alone, since many of the invasive alien spe- mugwort and ragweeds, HIV and AIDS, Dutch elm cies that have spread to Finland cause widespread disease, and rats and mice. economic impacts. PART II Background Future threat: accelerated spreading of FACTORS CONDUCIVE TO THE alien species and increasing risks SPREADING AND ESTABLISHMENT OF ALIEN SPECIES Alien species have highly diverse ecological char- acteristics and means and routes of spreading, and therefore preventing them from spreading The spreading of alien species depends among calls for a wide range of measures. Although the other things on the characteristics of the species, threats of invasive alien species have been identi- the pathways and the circumstances in the des- fied, it is a considerable challenge to prevent their tination area. It is difficult to predict accurately proliferation. how well a species will survive in a new environ- ment. Similarity of climate between the original New findings of alien species are made with in- range and the new distribution range is just about creasing frequency, and the number of estab- the only feature that commonly explains why al- lished alien species is growing. The deregulation ien species thrive in new areas. of world trade, increased travel and private im- ports of plants and animals compound the risk However, there are certain properties that sev- of introducing alien species to increasingly wid- eral successful alien species have been found to er environments. At the EU level, as in Finland, share. Most alien species are more competitive the challenge of preventing the spreading of in- than the indigenous species in terms of propaga- vasive alien species is further complicated by the tion, for instance. Genetic diversity may contrib- free movement of goods within the EU and in- ute to the rate at which an alien species spreads ternal market legislation. The growth of the pet and to the probability of established populations trade and seed trade on the internet provides fur- forming. A competitive advantage may be height- ther opportunities for alien species migration ened if the alien species has no competing species, and makes it more difficult to monitor and con- pathogens or parasites in the new area. Indeed, trol them. The shortage or lack of monitoring and the broader and more diverse the distribution of regulations in internet trade, for instance, makes an alien species is in its natural distribution range, 26 it easy for alien species to spread to new environ- the more likely it is that it will become an invasive ments. alien species. Also, climate change and other man-made envi- Ecosystems shaped by humans, such as gardens ronmental changes or habitats increase the poten- and other green areas, are excellent places for the tial for alien species to spread northward and thus introduction and spreading of alien species. Hu- extend their range. Supporting the use of biofuels man actions (fields, forestry, culling of natural to help curb climate change may in fact also con- predators) and environmental changes caused tribute to the spreading of alien species, as many by humans (eutrophication, acidification) help of the crops used for producing biofuels in Eu- some alien species to adapt to their new environ- rope and elsewhere in the world are alien to Fin- ment. Waterways may also make an area more land’s natural environment and may cause prob- vulnerable to alien species. Streams and river del- lems if imported. tas, whose shores tend to be extensively shaped by human actions, are favourable habitats for alien The impacts of invasive alien species may be de- species. Also, natural disruptions shape the wa- tected in several different areas of society at once. terfront, exposing competition-free growth lo- It is therefore necessary for administrative sec- cations. Low-nutrient soils, for instance in bogs, tors and other actors to work together to evalu- meadows and shrubberies, have a low incidence ate, monitor, prevent and combat invasive alien of alien species, indicating that it is more difficult species and their impacts. By extension, there is for alien species to form an established popula- a need for a uniform set of guidelines regarding tion in such an environment. On the other hand, invasive alien species, Finland’s National Strategy there are species that thrive in low-nutrient Finn- on Invasive Alien Species. Actions to combat the ish soil, for instance the large-leaved lupine in threats and harmful impacts of invasive alien spe- meadows. cies need to be planned and implemented. For an alien species to have a chance of establish- ing a permanent population and proliferate, its origin and destination areas must be similar in terms of their circumstances; for species to move FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES successfully to the Baltic Sea, they must come wood packages. Alien species may also migrate from similar conditions with regard to temper- on means of transport, for instance in the ballast ature and salinity. Extreme weather, eutrophi- water of ships or attached to their hulls. Uninten- cation or acidification may further disrupt local tional imports mostly involve seeds, eggs (of in- habitats and enhance the spreading of alien spe- vertebrates), diseases, parasites or species migrat- cies. Spreading is also helped by free trade, trade ing with other species (epibionts). In recent years, and transport routes, and the role of agriculture, the level of unintentional imports of alien species forestry and tourism in the local economy. has risen compared with intentional releasing in- to the natural environment. ARRIVAL AND PATHWAYS OF ALIEN Canals, tunnels and other built routes as SPECIES pathways Species may also migrate through pathways built The spreading of alien species to new geograph- by humans: roads, railways, canals, bridges, tun- ical areas is intentionally or unintentionally fa- nels or fish passes. Rapid and easy transport be- cilitated by humans (cf. the definition of an al- tween and within continents also contributes to ien species). Globalisation, rapidly increasing in- the spreading of alien species. ternational trade and transport and particularly new transport connections on sea, on land and Example: Canals in the air have led to an increased spreading of al- Several alien species have migrated from the ien species. Black Sea and Caspian Sea through rivers and ca- nals to Finland’s coastal waters and to the almost- freshwater eastern end of the Gulf of Finland, in- Intentional import and distribution cluding the mouth of the Neva River. The zebra mussel (Dreissena polymorpha) is both the best- Alien species have been and continue to be im- known and the most harmful of the invasive alien 27 ported for commercial purposes. These inten- species to have entered Europe via canals. It is es- tional imports involve crops for cultivation and timated to have entered Finland’s waters attached ornamentation, fish for aquaculture, and game for to floated logs. The significant growth of shipping hunting and farming. Fish, reptiles, birds, mam- on Russia’s inland waterways will probably con- mals and invertebrates are imported as pets. Im- tribute to the spreading of alien species in a ma- ports make it possible for alien species to spread jor way. Climate change is estimated to increase further; an alien species may be intentionally or the spreading of animal species from the south to- unintentionally released into the wild or, in the wards the north through rivers and canals. case of an animal, one may escape. The trade in animals and garden plants is consid- Current procedures regarding alien ered the most important individual factor in both organisms at Finland’s borders intentional (about 70%) and unintentional (about 30%) introductions of alien species. Also, inter- Commercial goods transport and its net trade has made it easy to order products such regulation as plant seeds or live food for aquarium fish from anywhere in the world. This too is conducive to In Finland, it is the responsibility of Customs to the uncontrolled spreading of alien species. direct shipments of plants, plant products or tim- ber arriving at the national border to the author- ity responsible for inspections, the Finnish Food Unintentional transportation of alien Safety Authority Evira. On the basis of the inspec- species caused by humans tion, Evira may either accept or reject the import and issue an order about what to do with a reject- The transportation of alien species from one ar- ed shipment (destroy it or return it to the country ea to another on means of transport, with raw of origin). materials and with equipment has become more common in the past decades. Alien species may There are detailed provisions and regulations re- migrate for instance with untreated timber or garding the marketing and import of plants, plant PART II Background products, timber, animals and animal gametes.5 In the case of animal imports, all animals import- ‘Marketing’ refers here to trade on the EU inter- ed for commercial purposes are referred to a vet- nal market, and ‘import’ refers to importing from erinary border inspection by the Finnish Food outside the EU. Safety Authority Evira. Apart from restrictions concerning protected zones6, the marketing of plants that meet legal re- Passenger traffic quirements as regards plant health, quality and la- bels, is free within the EU area. According to plant health legislation7, passengers entering Finland from European non-EU coun- Import requirements and restrictions apply to the tries may import for their private use, without import of plants from non-EU countries, in order a phytosanitary certificate, separately specified to prevent plant diseases and pests from spread- quantities of garden plants (trees, shrubs and per- ing alongside imported shipments. These require- ennials); potted plants and house plants; flower ments vary depending on the plant species, prod- bulbs, tubers and roots; and fresh citrus fruit. A uct and country of origin. The import of certain special import prohibition is in place on seed po- plant species from non-EU countries is prohib- tatoes and eating potatoes; fire blight host plants; ited. soil (field soil); compost; and manure. When marketing planting seeds from EU Mem- Passengers entering Finland from outside Europe ber States to Finland, the material must be certi- may import for their private use cut flowers (max fied and must not contain wild oats. When im- 20) and any seeds and other plant products that porting planting seeds from or exporting it to do not require a phytosanitary certificate. Im- non-EU countries, the provisions of the Seed porting potted plants and garden plants without a Trade Act and the Act on Protecting Plant Health phytosanitary certificate is prohibited. Such a cer- must be complied with. Seeds other than planting tificate is also required for organic soil material seeds must also not contain wild oats. imported with plants from most countries. 28 The marketing or import to Finland of plants is, at In the case of a passenger importing a maximum the moment, not restricted on the basis that the of five pets for which a veterinary border inspec- plant species itself might be an invasive alien spe- tion is not required, compliance with import reg- cies; regulation is concerned with preventing spe- ulations is verified at a Customs office as per the cies from entering the country with plant imports. relevant Decree of the Ministry of Agriculture and Forestry.8 This inspection is carried out by the Customs authorities as part of their control duties. Pets subject to this procedure are defined in the relevant Regulation of the European Parlia- 5. See e.g. the website of the Finnish Food Safety Authority ment and of the Council.9 The requirements for Evira (www.evira.fi). animal health that pets must satisfy in the import 6. It is possible to restrict internal market trading in the EU inspection are specified in the relevant Decree of by applying for protected zone status with regard to a the Ministry of Agriculture and Forestry.10 species of plant pest that occurs in several EU Member States but not in the Member State applying for a pro- tected zone. Host plants of the plant pest species in ques- The aforementioned inspection is carried out by tion may only be imported into a protected zone from the Customs authorities for passengers importing another protected zone, or subject to more stringent im- a maximum of five pets. If a passenger is import- port requirements than usual. Finland has been granted ing more than five pets, the import is considered protected zone status with regard to six plant pest species. to be for commercial purposes, and the animals 7. Decree of the Ministry of Agriculture and Forestry 296/2006. must comply with the requirements for animal 8. Appendix I to Decree 402/2011. health pertaining to commercial imports. Also, 9. Regulation of the European Parliament and of the Coun- these animals must be subjected to a veterinary cil (EC) N:o 998/2003, Article 3 paragraph a: dogs, cats, border inspection performed by Evira. ferrets, invertebrates (except bees and crustaceans), orna- mental tropical fish, amphibia, reptiles, birds (except poultry covered in Directives 90/539/EEC and 92/65/ EEC), rodents and domestic rabbits. 10. Decree of the Ministry of Agriculture and Forestry 866/2008. FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES INTERNATIONAL CONVENTIONS AND are identified as changing habitats, invasive al- COMMITMENTS ien species, overuse of natural resources, climate change and pollution. International and other worldwide In 2004, the International Maritime Organisa- commitments tion (IMO) adopted the International Convention for the Control and Management of Ships’ Ballast The Convention on Biological Diversity (CBD) is Water and Sediments, in which great expectations the most extensive convention outlining key in- were vested.11 This Convention sets global require- ternational biodiversity goals. The Convention ments for the handling of ballast water. According entered into force in December 1993, and by 2010 to the Convention, vessels must between 2010 and it had been ratified by 193 countries. With regard 2016 (in stages, depending on their ballast capac- to alien species, Article 8(h) of the Convention ity and year built) be equipped with a ballast wa- states that each Contracting Party shall “prevent ter treatment system to prevent the spreading of the introduction of, control or eradicate those al- alien species. These requirements will be applied ien species which threaten ecosystems, habitats or stagewise to vessels built before 2009 too, so that species”. The Convention also requires the Con- after 2016 all vessels will be equipped with such a tracting Parties to draw up national alien species system. The Convention will enter into force af- strategies. ter 30 countries representing a minimum of 35% of the world’s combined commercial vessel ton- The fourth Conference of Parties of the CBD nage have ratified it. By spring 2011, 27 countries (1998) decided in its Decision IV/1 to respond to representing 25% of said tonnage had ratified the the threat of invasive alien species and noted that Convention. national complementary and reinforcing meas- ures were required to combat invasive alien spe- The Global Strategy for Plant Conservation was cies. It was decided that alien species constitute drawn up by the CBD secretariat together with a cross-cutting issue for implementation of many the Botanic Gardens Conservation Internation- of the themes in the Convention, as invasive al- al NGO. Its goals include preparing prevention 29 ien species affect all taxonomic groups and eco- programmes for at least the top 100 invasive alien systems. Alien species are named in several of the species threatening plant species, plant commu- thematic working programmes of the CBD and nities, habitats and ecosystems. are involved in several cross-cutting issues. The sixth Conference of Parties (2002) adopted a The World Trade Organisation (WTO) has intro- 15-point Guiding Principles document on inva- duced the Agreement on the Application of Sani- sive alien species. Subsequent decisions at Con- tary and Phytosanitary Measures, also known as ferences of Parties have focused on identifying the SPS Agreement, to specify measures employed knowledge gaps regarding invasive alien species to protect human, animal or plant life or health or and the collecting of related information, such as to prevent damage from risks caused by the entry, information on the migration and spreading of establishment or spread of alien animals, plants, invasive alien species. pests, diseases or pathogens. The basic idea of the SPS Agreement is that such measures may be al- An in-depth review of invasive alien species was lowed to restrict free trade, provided that 1) they conducted at the ninth Conference of Parties of are only employed insofar as they are necessary to the CBD (2008), and decisions taken at the tenth protect human, animal or plant health; 2) they are COP in Nagoya (2010) concerned the study of scientifically justified; 3) they do not place other- “invasive alien species introduced as pets, aquari- wise similar countries in an unequal position; 4) um and terrarium species, and as live bait and live they do not restrict trade any more than is nec- food”. The Nagoya COP also decided on a Strate- essary; 5) imported products are not subject to gic Plan whose target is that “by 2020, invasive al- tighter restrictions than domestic products; and ien species and pathways are identified and prior- 6) the risk requirements on imported products itized, priority species are controlled or eradicat- are consistent. ed, and measures are in place to manage pathways to prevent their introduction and establishment.” Scientific evidence is one of the basic tenets of the The principal pressures threatening biodiversity SPS Agreement. Risk assessment must be based on scientific evidence, and the cost-effectiveness 11. www.imo.org/ of risk limitation measures must be taken into PART II Background account. Essentially, applying the precautionary The Convention on Wetlands of International Im- principle is not allowed under the SPS Agree- portance, or the Ramsar Convention, concerns ar- ment, unless scientific research into the matter is eas of importance as waterfowl habitats. The Stra- launched at the same time. According to a deci- tegic Plan for 2009–2015 of the Ramsar Conven- sion taken in 1998, the texts of the Codex Alimen- tion includes goals concerning invasive alien spe- tarus (food safety), the World Organisation for cies. By 2015, “all Parties [must] have a national Animal Health OIE (animal diseases and zoon- inventory of invasive alien species that currently oses) and the International Plant Protection Con- or potentially impact the ecological characters of vention (IPPC) are binding international stand- wetlands, especially Ramsar sites.” The Parties are ards under the SPS Agreement. The WTO, which required to “develop guidance and promote pro- was founded in 1995, has 153 Member States, in- cedures and actions to prevent, control or erad- cluding nearly all of the major trade nations in the icate [alien] species in wetland systems”. Parties world. must also “[identify] more comprehensively the problems posed by invasive species in wetland The Convention on the Conservation of Migratory ecosystems within their territories”. By 2015, “na- Species of Wild Animals (also known as the Bonn tional invasive species control and management Convention) was adopted in 1979. According to policies or guidelines [must be] in place for wet- the Convention, the Contracting Parties will aim lands”. “to prevent, reduce or control factors that are en- dangering or are likely to further endanger [...] species”. The means to be employed include strict European regional strategies, conventions control of the translocation of alien species and and cooperation strict control or eradication of an already estab- lished alien species. The European Strategy on Invasive Alien Species (2003) is a pioneering step towards a European The purpose of the International Plant Protection framework on invasive alien species; this pan-Eu- Convention (IPPC) adopted by the United Na- ropean strategy was adopted under the Bern Con- 30 tions Food and Agricultural Organisation (FAO) vention (1979). The Convention sets the goal of in 1951 is to ensure global and effective action to every country drafting its own national invasive prevent the migration and spread of plant pests alien species strategies and action plans. and to promote measures to combat them. The definition of plant pests under the IPPC includes The Council of Europe European Strategy for Plant not only pathogenic agents and harmful animals Conservation 2008–2014 was drawn up by the but also harmful alien plant species. This Con- Council of Europe together with the Planta Eu- vention plays an important role in international ropa network. It contains several goals regarding trade, as the WTO SPS Agreement acknowledg- invasive alien species, including: the creation of a es the IPPC and the International Standards for framework for the combating and monitoring of Phytosanitary Measures (ISPM) based thereon. the 15 most harmful invasive alien species in var- ious regions of Europe; the improvement of the The IPPC organisation has included the protec- DAISIE database to cover 80% of European coun- tion of the natural environment and biodiversity tries; and the promoting of the introduction of as related to the spread of invasive alien species the voluntary Code of Conduct on Horticulture in its remit. In this, it collaborates with the CBD and Invasive Alien Plants in European countries. organisation, as formalised in a Memorandum and Joint Work Programme. The IPPC organi- The Baltic Marine Environment Protection Com- sation has amended the ISPM11 standard (Pest mission, usually known as the Helsinki Commis- risk analysis for quarantine pests) to include plant sion (HELCOM), was founded in 1974. The Con- pests (particularly harmful plant species) with a vention on the Protection of the Marine Environ- primary impact on the environment and biodi- ment of the Baltic Sea Area, or the Helsinki Con- versity. In the Decision concerning invasive alien vention, entered into force in 1980. The mem- species adopted at the ninth Conference of Par- bers of HELCOM are the European Union and ties of the CBD, the Contracting Parties are en- all countries bordering the Baltic Sea. The pur- couraged to make use of the risk assessment and pose of the Baltic Sea Action Plan drawn up by other procedures and standards developed under HELCOM is to “restore the good ecological status the IPPC especially with regard to alien species of the Baltic marine environment by 2021”. The with harmful impacts on plant biodiversity. Action Plan covers the most crucial issues in the FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Baltic Sea, including marine biodiversity and pre- formation on their alien species, and a pilot alien serving the natural environment. Pursuant to this, species alert system notifying users of invasive al- HELCOM has agreed on various measures to be ien species observed in the region on which infor- undertaken in the Baltic Sea area to prevent to mation is being provided or requested. Setting up migration of alien species to the Baltic Sea par- and maintaining the network has been dependent ticularly with ballast water and sediments. HEL- on funding from the Nordic Council of Ministers. COM has also taken steps to prepare its members The contribution of the liaison officers from the to ratify the IMO Ballast Water Convention as participating countries is vital for the continued soon as possible so that it can be applied in the functioning of the network. Baltic Sea area. The European and Mediterranean Plant Protec- Voluntary co-operation tion Organisation (EPPO) is a regional plant pro- tection organisation subordinate to the IPPC, re- The Code of Conduct on Horticulture and Inva- sponsible for international plant protection co- sive Alien Plants (2008) is a voluntary code of con- operation in Europe and around the Mediterrane- duct for governments and the horticulture indus- an. The EPPO prepares risk analyses on new plant try and trade, prepared by the Council of Europe pests in Europe, develops international strategies and the EPPO. Its purpose is to encourage horti- for the prevention of the migration and spread of culture professionals to work together to dissemi- plant pests that damage crops and forests, con- nate best practices in order to increase awareness tributes to the harmonisation of plant protec- of the invasive alien species problem, to curb the tion legislation and other official plant protection spread of invasive alien plants already in Europe measures, and promotes the use of new, safe and and to prevent the invasion of new ones. effective plant pest monitoring methods. Invasive alien species matters are discussed by the EPPO’s Voluntary guidelines for ships to exchange their bal- Panel on Invasive Species, which lists plant spe- last water to prevent the spread of alien species cies that risk assessment has shown to be harmful to the Baltic Sea with ballast water were adopt- within the EPPO’s domain, warns member states ed under the OSPAR Convention protecting the 31 of them and drafts control procedures for them. marine environment of the north-eastern Atlan- tic and HELCOM in 2008. These guidelines ap- The European Network on Invasive Alien Species ply to traffic between the Baltic Sea and the North (NOBANIS) is a regional information channel for Sea, but a decision has been made to extend them invasive alien species originally set up at the in- to traffic in the Mediterranean Sea too. itiative of the Nordic Council of Ministers. The communication network currently consists of the Nordic and Baltic countries, Germany, Poland, EU actions to combat invasive Russia, the Netherlands, Slovakia, Ireland and alien species Austria, and other EU Member States are joining. The principal purpose of this network is to con- At the European Council in Gothenburg in 2001, vey information, to co-ordinate action against in- the EU decided to halt the loss of biodiversity by vasive alien species, to highlight problems caused 2010.12 Measures aimed at invasive alien species by them and to find ways of solving those prob- were considered of primary importance at the EU lems. The national liaison officers in the NOBAN- level, because the harmful impacts of invasive al- IS project have participated in research projects ien species are heightened as biodiversity is lost. such as the EU DAISIE project, and NOBANIS is currently participating in the preparation of In March 2010, the EU adopted its most recent bi- the EU risk assessment and early warning sys- odiversity target: Halt the loss of biodiversity and tem. The NOBANIS alien species website collects ecosystem services in the EU by 2020 and restore and updates information from member states and them insofar as possible, and step up the EU’s con- provides background information on alien spe- tribution to averting global biodiversity loss.13 In- cies. The website includes an alien species data- vasive alien species were listed as one of the most base where member states have contributed in- important threats to biodiversity. In May 2011, the European Commission issued 12. COM (2001) 264 a Communication entitled Our life insurance, 13. COM (2010) 4 our natural capital: an EU biodiversity strategy to PART II Background 2020.14 Target 5 in this strategy is: “By 2020, In- eases may be applied to invasive alien animals vasive Alien Species and their pathways are iden- carrying pathogens. Council Regulation (EC) No. tified and prioritised, priority species are con- 338/97 on the protection of species of wild fauna trolled or eradicated, and pathways are managed and flora by regulating trade therein authorises to prevent the introduction and establishment of the Commission to enact Regulations (most re- new invasive alien species.” cently Commission Regulation (EU) 997/2010) restricting for instance the introduction to the EU Under Article 6 of the Sixth Environment Action “of live specimens of species for which it has been Programme of the European Community (2002– established that their introduction into the natu- 2012), objectives and priority areas for action on ral environment of the Community presents an nature and biodiversity include “halting biodiver- ecological threat to wild species of fauna and flo- sity decline with the aim to reach this objective by ra indigenous to the Community”. There are four 2010, including prevention and mitigation of im- such species at this time: the ruddy duck (Oxyu- pacts of invasive alien species and genotypes”. The ra jamaicensis), painted turtle (Chrysemus picta), Action Programme also seeks to develop meas- red-eared slider (Trachemys scripta elegans) and ures for preventing and monitoring the spread of American bullfrog (Rana catesbeiana). alien species, including alien genotypes. Council Regulation (EC) 708/2007 concerning use In the Annex to the European Commission’s of alien15 and locally absent species in aquaculture Communication on biodiversity policy (2006), specifies that a risk assessment must be performed Member States are encouraged to prepare their in connection with the introduction or transloca- national invasive alien species strategies by 2007 tion of aquatic organisms and non-target species and to implement them by 2010. in aquaculture. The Birds Directive (EEC) 409/79 and the Habitats Directive (EEC) 43/92, known The European Commission is currently preparing collectively as the Nature Directives (EEC) 409/79 a new Plant Health Strategy, which will be com- and 43/92, forbid the release into the wild of spe- pleted in 2012. For this purpose, the function- cies that may threaten indigenous species. 32 ing of the EU’s current phytosanitary legislation was assessed in 2009 and 2010. One of the points There are also other provisions addressing inva­ assessed was the incorporation of invasive alien sive alien species. The Birds Directive (EEC) species in EU phytosanitary legislation. The as- 147/2009 and the Habitats Directive (EEC) 43/92 sessment group recommended in its report that constitute the principal nature conservation leg- invasive alien species should be incorporated in islation of the EU. The Birds Directive applies to EU phytosanitary legislation because it would be European wild birds, while the Habitats Directive practical and effective. There are resources and applies to wild animals, plants and habitats. The tools in place in the plant health sector, and the general purpose of the Birds Directive is to main- relevant legislation is completely harmonised at tain all of Europe’s wild bird populations at a level the EU level. This would also mean that EU plant consistent with ecological, scientific and cultural health legislation would be better in tune with requirements. The purpose of the Habitats Direc- IPPC recommendations. tive is to achieve and maintain a favourable level of protection for certain species and certain habi- tats. A species must enjoy long-term survival in Current EU legislation on alien species its natural environment, and its natural distribu- tion must not shrink. Also, there must be enough EU provisions directly addressing invasive alien natural habitats for the species to ensure the long- species are divided among several pieces of leg- term survival of the population. Today, birds too islation. One of these is the Plant Health Direc- are in practice covered by the ‘favourable con- tive (Council Directive 2000/29/EC of 8 May 2000 servation’ target in the Habitats Directive adopt- on protective measures against the introduction in- ed later than the Birds Directive; this principle is to the Community of organisms harmful to plants incorporated into Finland’s Nature Conservation or plant products and against their spread within Act. the Community). EU legislation on animal dis- The Water Framework Directive (EC) 60/2000 re- 14. COM (2011) 244 quires Member States to achieve good ecological 15. The Finnish translation of this Regulation erroneously potential in their bodies of water and harmonis- refers to ‘non-native species’ rather than ‘alien species’. es water protection measures in the EU. The pur- FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES pose of the Water Framework Directive is that it Research into alien species in the EU “prevents further deterioration and protects and enhances the status of aquatic ecosystems [...]; The EU is funding research and development promotes sustainable water use based on a long- projects focusing on alien species. For instance, term protection of available water resources; aims funding for two invasive alien species projects – at enhanced protection and improvement of the ALARM and DAISIE – has been granted out of aquatic environment [...] through specific meas- the Sixth Framework Programme for Research ures for the progressive reduction of discharges, and Technological Development. Projects con- emissions and losses of priority substances and cerning invasive alien species have also been [...] priority hazardous substances; ensures the funded out of the 7th such Programme, includ- progressive reduction of pollution of groundwa- ing the joint Baltic Sea research and development ter and prevents its further pollution; and con- programme (BONUS), where invasive alien spe- tributes to mitigating the effects of floods and cies form one of the key research themes. The droughts”. It is one of the requirements for good LIFE Programme is also funding projects aimed ecological status that no alien species introduced at combating and eradicating invasive alien spe- to a waterway may cause (more than negligible) cies. The EU regional development funds (ERDF harm to indigenous species or the structure or and ESF) and the European Agricultural Fund for functioning of the local ecosystem. Rural Development (EAFRD) may also support projects for combating invasive alien species, and The Directive of the European Parliament and of funding for similar purposes may also be availa- the Council establishing a framework for com- ble from the European Fisheries Fund. munity action in the field of marine environmen- tal policy (EC) 56/2008, also known as the Marine Strategy Framework Directive, aims to promote Elements of EU legislation concerning sustainable use of the seas and conserving marine invasive alien species ecosystems. The Marine Strategy Framework Di- rective acknowledges that non-indigenous spe- Current EU legislation and policy provide a so- cies are a major threat to European biodiversity lution to part of the problem with invasive alien 33 and requires Member States to take these into species. However, so far there has been no mech- account when defining what the ‘good status’ of anism at the EU level for aligning or harmonis- the environment means. Annex I of the Directive ing measures undertaken by neighbouring coun- specifies that in determining good environmental tries or countries in the same region with regard status “non-indigenous species introduced by hu- to invasive alien species. The disparate means and man activities are at levels that do not adversely measures hitherto employed have not been very alter the ecosystems”. Annex III of the Directive effective at reducing the threats and risks caused notes that implementation of the Directive will by invasive alien species in Europe. According- require “an inventory of the temporal occurrence, ly, the European Commission has investigated abundance and spatial distribution of non-indig- knowledge gaps concerning invasive alien species enous, exotic species or, where relevant, genetical- and particularly the existing relevant legislation, ly distinct forms of native species, which are pre- research programmes, action plans and other ini- sent in the marine region or subregion”. Member tiatives to find out what is already being regulat- States are required to develop a marine strategy ed and where there is still scope for improvement. for their marine waters; in Finland, this is known A large such gap in measures and legislation was as a national marine resources management plan. found in the area of online commerce. The national marine resources management plan includes an evaluation of the state of the marine In December 2008, the European Commission environment, targets for it, indicators describing adopted the Communication “Towards an EU it and how it is monitored. An action plan for im­ Strategy on Invasive Species”. This was the first proving the marine environment will be drawn step on the path to an EU strategy for address- up to support the national marine resources man- ing the problems caused by invasive alien species. agement plan by 2016. The Commission is preparing a proposal for ele- ments in EU legislation that would significantly reduce the harmful impacts of invasive alien spe- cies on European biodiversity. The Commission is also setting up an early warning and alert system related to invasive alien species, based on regular- PART II Background ly updated mapping and effective counter-meas- combating them has been published, among oth- ures. The aim is that by the end of 2012 the Com- er things. Finland is also involved in international mission will adopt a proposal for the legislative co-operation in the area of invasive alien species elements required for the combating of invasive through the International Plant Protection Con- alien species, most probably a directive. vention (IPPC), the Convention on the Protection of the Marine Environment of the Baltic Sea Area (HELCOM) and the International Council for the Exploration of the Sea (ICES). As a member state FINNISH LEGISLATION AND ACTIONS of the European Inland Fisheries and Aquacul- ture Advisory Commission (EIFAAC) under the FAO, Finland has on several occasions reported Current legislation on alien species on and drawn attention to alien fish and crayfish species, both in the wild and in fish farming. Legislation concerning invasive alien species has been enacted and enforced in certain sec- The National Strategy and Action Plan for Conser- tors in Finland. The Nature Conservation Act vation and Sustainable Use of Biodiversity in Fin- (1096/1996) states that non-indigenous species land 2006–2016 includes a goal for drawing up a are not to be released into the wild if there is National Strategy on Invasive Alien Species. Ac- cause to suspect that the species may become es- cording to that strategy, co-operation between au- tablished permanently. Alien species are also re- thorities must be improved so as to leverage com- ferred to in the Hunting Act (615/1993, 915/2011), prehensively the expertise in invasive alien spe- the Fishing­ Act (286/1982, 252/1998), the Animal cies management that exists in various sectors. Disease Act (55/1980) and, with regard to plant The Action Plan of that strategy proposes the fol- pest eradication, in the Act on Protecting Plant lowing measures: “1) Finland will participate ac- Health (702/2003), the Plant Propagation Material tively in international co-operation to combat Act (also known as the Seedlings Act, 1205/1994) the spread of alien species through international and the Seed Trade Act (728/2000). The provi- trade; 2) The national strategy and action plan for 34 sions of the Forest Act (1093/1996), the Forest In- alien species required under the CBD will be pre- sect and Fungi Damage Prevention Act (263/1991) pared; 3) Studies and monitoring of alien species and the Act on Trade in Forest Reproductive Mate- will be continued in order to facilitate the recog- rial (241/2002) may also be applied to alien spe- nition of their significance and the planning of the cies. In addition to the above, the following may necessary countermeasures; 4) Publicity materi- be considered indirectly to address alien species: als will be published, for example on well-known the Act on Preventing Wild Oat (185/2002), the alien species known to be harmful, and means to Animal Welfare Act (247/1996), the Decree of the combat their spread; 5) Research and develop- Ministry of Agriculture and Forestry on the ani- ment work on methods of combating alien spe- mal disease requirements relating to imports from cies that spread via the ballast water of ships will countries outside the European Community of cer- continue, with regard to the IMO International tain live animals and their embryos and gametes Convention for the Control and Management of (866/2008), the Water Act (264/1961), the Envi- Ships’ Ballast Water and Sediments. Finland will ronmental Protection Act (86/2000), the Act on also ratify this Convention.” Water Resources Management (1299/2004) and the Public Order Act (612/2003). Finland has also enacted certain other restric- tions governing national strategies and region- The provisions concerning alien species referred al efforts, preventing the spread and use of al- to above are given in detail in Appendix I to this ien species within the country. These include the strategy. fisheries administration crayfish strategy and the ‘High Grade Area’ in Northern Ostrobothnia es- tablished to protect seed potato production. International co-operation and national strategies and programmes Observing the precautionary principle Finland is a member in the Nordic Baltic Network on Invasive Species (NOBANIS), where the sta- The precautionary principle is one of the funda- tus of invasive alien species in various countries mental tenets of international environmental law. has been charted and online material concerning Essentially, it says that an absence of complete sci- FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES entific certainty must not be used as an excuse system and could not have spread there on its not to undertake certain environmental protec- own accord. In other words, an alien species has tion measures. migrated over natural barriers to migration (such as a continent, a sea or a mountain range) with in- The Convention on Biological Diversity (1992) tentional or unintentional human assistance. formulates it thus: “The precautionary principle states that where there is a threat of significant re- duction or loss of biological diversity, lack of full Invasive alien species scientific certainty should not be used as a reason for postponing measures to avoid or minimise For the purposes of this Strategy, an invasive alien such a threat.” species is an alien species which is already estab- lished in Finland and which in a certain area, in The precautionary principle is an important factor a certain place and at a certain time causes direct in alien species management and in the prevention or indirect ecological, economic, health-related of damage by invasive alien species. According to or social adverse impacts, i.e. harm, necessitating the Guiding Principles concerning invasive alien specific measures to combat same. Such meas- species under the CBD, the precautionary princi- ures may include the prevention and combating, ple must be observed in all decisions concerning early detection and eradication of such impacts, invasive alien species, particularly those concern- prevention of spread and limitation of continu- ing introduction or translocation. The precaution- ous long-term impacts, or adaptation to the harm ary principle must also be observed in planning caused by invasive alien species. (For further def- alien species management. Lack of scientific evi- initions of concepts related to the impacts and dence must not be used as a reason for postpon- combating of invasive alien species, see Table 3.) ing or neglecting any prevention or eradication measures. Under the SPS Agreement, application of the precautionary principle is possible if at the same time research is undertaken to find scien- tific evidence for the necessity to restrict trade. 35 The precautionary principle underlies the deter- mination of actual and potential damage caused by invasive alien species as per the National Strat- egy on Invasive Alien Species. The precaution- ary principle is thus one of the cornerstones of the National Strategy on Invasive Alien Species; applying it is much more cost-effective than cor- recting damage caused by invasive alien species after the fact. In fact, minimising adverse im- pacts may be construed as tantamount to ap- Invasive alien species Himalayan balsam plying the precautionary principle in practice. (Impatiens glandulifera) PHOTO: terhi ryttäri DEFINITIONS AND CONCEPTS Finland’s National definitions and concepts were drawn up for this strategy by a group of experts. The aim was to make these definitions and con- cepts internationally compatible and consistent. Alien species An alien species is a species spread into the wild Invasive alien species Japanese rose which was not an indigenous species in that eco- (Rosa rugosa) PHOTO: terhi ryttäri PART II Background Table 2. The terms ‘alien species’ and ‘invasive alien species’ as defined in the Convention on Biological Diversity (CBD), in the EU (European Commission Communication “Towards an EU Strategy on Invasive Species”, 2008), in the International Plant Protection Convention (IPPC) and in the Global Invasive Species Programme (GISP). Finnish Convention on EU International Global Invasive term Biological Plant Protection Species Diversity (CBD) Convention Programme (IPPC) (GISP) Vieraslaji Species, subspe- An alien species An alien species cies or lower taxon, is a species that is an individual introduced out- is deliberately or or population, at side its natural past unintentionally in- any life stage, or Alien species or present distri- troduced outside a viable part of an bution. Includes their natural habi- organism that is any part, gametes, tats where they es- non-indigenous to eggs, or propagules tablish, proliferate an area and that of such species and spread. has entered by hu- that might survive man agency into and subsequently the area. reproduce. Haitallinen An alien species An invasive alien An invasive alien An alien species vieraslaji whose introduction species is a spe- species is an al- whose appearance Invasive Alien Species and/or spread out- cies whose intro- ien species that and spread threat- side its natural past duction and/or by its establish- en ecosystems, or present distribu- spread threaten bi- ment or spread has habitats or species tion threaten bio- ological diversity. become injurious by causing eco- logical diversity. to plants, or that nomic or environ- by risk analysis is mental harm. shown to be poten- 36 tially injurious to plants. FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Invasive alien plant species with health implications: Hogweeds Hogweeds are a group of plants originating in Asia; species found in Finland to date are the giant hogweed (Heracleum mantegazzium) and the Persian hogweed (H. persicum). A third, Sos- nowsky’s hogweed (H. sosnowskyi), is spreading across the eastern border and has already been observed in North Karelia. Hogweeds are a textbook case of all the problems that invasive alien species can cause. Originally cultivated as impressive ornamental plants, hog- weeds gradually escaped control, and today it is estimated that there are thousands of hogweed stands in Finland. The sap of hogweeds is pho- totoxic, meaning that it reacts with sunlight; on human skin, it can cause serious injuries similar to burns which are slow to heal or in some cases permanent. No other plants can grow in dense hogweed stands. A plot taken over by hogweeds declines in value, and in heritage landscapes the plant can be considered harmful to the land- scape. Hogweeds can also obstruct recreational use, such as recreational fishing, due to their tendency to populate riverbanks. photo: terhi ryttäri 37 Invasive alien greenhouse pest: Nesidiocoris tenuis plant bug In autumn 2008, the alien tropical plant bug species Nesidiocoris tenuis managed to penetrate two greenhouse facilities in Ostrobothnia; dam- age caused by it began to show in tomatoes in early 2009. This plant bug closely resembles the Macrolophus bugs used for pest control. N. ten- uis bugs are bred commercially for pest control of whiteflies (Aleyrodoidea) in the Mediterrane- an countries. Indeed, in moderate quantities this species is very effective in destroying whiteflies; but if there are too many N. tenuis bugs com- pared to the number of whiteflies, they will begin to feed on the plants in absence of other food. Despite concerted efforts, it has proved impos- sible to completely eradicate the N. tenuis plant bug. It is a considerable nuisance in Finland, as it damages tomato plants and breeds efficiently especially in conditions with artificial lighting. It also displaces Macrolophus bugs and thus under- mines their efficacy in biological pest control. Re- placing Macrolophus with N. tenuis would require the occasional use of chemicals in tomato culti- vation to keep the number of bugs under control. photo: veikko rinne PART II Background Potentially or locally harmful Finland, or 2) (locally) established alien species alien species that may become harmful through a particular change in circumstances. For the purposes of this strategy, ‘potentially or locally harmful alien species’ are 1) alien species In keeping with the precautionary principle, this not yet established within Finland’s national bor- strategy lists some species as potentially or locally ders but considered harmful at the European or harmful that may later prove to be negligibly or global level, with a high probability to arrive in not at all harmful. Potentially harmful alien plant species with health implications: Common ragweed The common ragweed (Ambrosia artemisiifolia) belongs to the Aster family, like the mugwort. Both are allergenic plants that cause respiratory symptoms and asthma. The common ragweed is commonly found in Finland in harbours, on waste land and near bird feeding areas, as its seeds commonly occur in bird seed mixes. The common ragweed blooms in late summer or late autumn, and in Finland its seeds generally do not have time to mature. In southern Europe, it is already one of the most harmful allergen- ic plants, and with climate change it is possible that it will proliferate here too. In the EU, the costs of combating this species have proved to be 38 formidable. PHOTO: terhi ryttäri Particularly harmful alien animal species in the archipelago: [American] mink Finland’s feral mink population originated with individual animals that escaped from fur farms in the 1930s. The population has probably been augmented from introduced populations in Rus- sia. The [American] mink (Mustela vison) originat- ed in North America. The [American] mink is a particularly harmful alien species. It not only competes with the in- digenous European mink, it is also a very effec- tive predator of birds, among other things. The [American] mink prevents the restoration of the European mink in Finland and already threatens the existence of the latter species in Europe. The impact of the [American] mink is the greatest on birds nesting in the archipelago. It may also have a harmful impact for instance on frogs. Effective eradication measures have been under- taken against the [American] mink in Saaristomeri National Park, using dogs and other means. Popu- lations of many birds, such as the black guillemot and the tufted duck, have revived in the eradica- tion area. PHOTO: Ministry of Agriculture and Forestry FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Particularly harmful alien species Immigrant species For the purposes of this strategy, ‘particularly Non-native species are species that have spread harmful alien species’ requiring immediate action to Finland of their own accord relatively recent- are established or potentially harmful alien spe- ly (i.e. within the past 200 years or so). Some im- cies which 1) when found must immediately be migrant species have entered Finland because of eradicated employing existing measures specified the extension of their natural distribution range in legislation, or 2) when found must immediately in neighbouring areas. This spread may be assist- be addressed with especially effective measures to ed by periods of warm weather and favourable prevent its spread and to mitigate its harmful im- winds. It is difficult to make a distinction between pacts. Particularly harmful alien species should immigrant species and alien species particularly principally be identified through risk assessment. regarding plants, because the ranges of plant spe- cies have varied greatly with changes in the cli- mate, and seeds may remain dormant but viable Potential alien species for anything up to several centuries. Examples of immigrant species include the common wild boar A potential alien species is a species the entry of and the great cormorant; accordingly, these are which into the country by direct or indirect hu- not addressed in this strategy. man action is possible. Such an alien species may or may not be harmful. Immigrant species that entered Finland Returning species: naturally: Common wild boar Great cormorant The first isolated observations of common Archaeological bone findings date the history 39 wild boar (Sus scrofa) were made on the south of the great cormorant (Phalacrocorax carbo) coast of Finland in the 1950s. The species in what is now the Baltic Sea area to just af- properly began to spread into Finland from ter the Ice Age. By the beginning of the 20th the southeast in the 1970s. This was a natu- century, however, the great cormorant had ral process caused by growth and expansion been completely eradicated from the Baltic of the wild boar population on the southern Sea, and it took 50 years for the species to side of the Gulf of Finland, which in turn was return to this part of its distribution range. caused by favourable conditions such as a The species began a rapid natural spread into warmer climate. the Baltic Sea from the North Sea coast in the early 1980s and re-entered Finland in 1996. The common wild boar is not an alien species; Rapid population growth was enabled by an it is a non-native species that has spread to abundance of fish suitable for food, e.g. com- Finland of its own accord, and therefore it is mon roach proliferating due to eutrophication excluded from this Finland’s National Strategy on in the outer archipelago. Invasive Alien Species. The common wild boar is now a natural part of Finland’s fauna, just The great cormorant is not an alien species and like the European hare, which entered Finland is therefore excluded from this Finland’s National similarly from the southeast some 50 years Strategy on Invasive Alien Species. earlier. PART II Background Table 3. Further definitions of concepts related to the impacts and combating of invasive alien species based on the classification given in the Convention on Biological Diversity (CBD). Ecological harm: Adverse impacts such as competition, predation, elimination (direct or indirect) by invasive alien species, changes to important or key habitats, cross-breeding, spread of diseases, or other impacts primarily concerning indigenous species or habitats. Economic harm: Adverse impacts such as production losses (quantitative or qualitative), prevention costs or market impacts (changes in supply, demand or price) caused by invasive alien species. Also infrastructure impacts. Health-related harm: Morbidity, mortality or pain caused by invasive alien species. Invasive alien spe- cies may also spread diseases. Social harm: Adverse impacts caused by invasive alien species for instance on aesthetic values, recre- ational use, culture or employment or as conflict situations. Prevention: Any measures designed to prevent the entry into the country of an alien species. Usually ‘prevention’ is used to refer to means such as legislation to prohibit importing, while ‘combating’ may be used to refer to concrete measures. Early detection and [rapid] eradication: Any measures to find and eliminate as early as possible an alien species that has already entered the country. Eradication: Any measures intended to completely remove a detected alien species (usually an invasive one) from a certain area or a certain location. Containment: Any measures intended to limit the harm caused by an invasive alien species that has already entered the country, i.e. to stop the spread of an invasive alien species in a certain area or a certain location. 40 Control and long-term containment: Any measures aimed at an invasive alien species that has already entered the country and intended to prevent its harmful impacts from extending to a wider area or in- creasing in severity. Control measures may include the use of a pesticide, for instance. Adaptation: Changing human behaviour so as to mitigate or remove the harm caused by the presence of an invasive alien species. Risk assessment For the purposes of this Strategy, ‘risk assessment’ involves the identification and description of haz- Risk assessment is a scientific process that con- ards caused by invasive alien species, an evalua- sists of systematic identification of a hazard, a de- tion of exposure (entry, establishment, spread and scription of the hazard, an estimate of exposure to impacts) and a description of the risks involved. the hazard and a description of the risk involved. Risk assessment may include a consideration of Risk assessment results are used as inputs in risk which control measures would be the most cost- management and decision-making. Risk assess- effective and feasible. ment is in close interaction with risk manage- ment. Risk analysis consists of forming a concep- The concepts and stages of risk assessment are tion of the risk (risk assessment), publicising this described in more detail in Appendix III to this conception (risk communications) and managing strategy. the risk (for instance through legislation, moni- toring, voluntary action or licensing terms). Risk assessment may be quantitative or qualitative. The results of quantitative risk assessment are giv- en as numeric values, while a qualitative risk as- sessment is essentially verbal, though it may in- clude quantitative components (numerical values or mathematical methods). FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES III FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES ALIEN SPECIES IN FINLAND A total of 45,000 to 50,000 species of organism are known to occur in Finland. The majori- ty of these, about 22,500, are invertebrates; about enter Finland unintentionally as the result of hu- man action. Agricultural and forestry-related al- ien species constitute by far the largest percent- 1,300 are vascular plants and about 400 are verte- age of all alien species unintentionally introduced brates. Out of all the species of organism found in to Finland. By contrast, most of the freshwater al- Finland, just under 1,000 are alien species. This ien species, alien land vertebrates and alien plants number is expected to grow as a result of the are intentionally imported, mainly for commer- movement of people and goods and because of cial purposes. Alien species in the Baltic Sea have climate change. Of the alien species established mainly been introduced unintentionally. There in Finland, about 25 are marine species, 25 are are also numerous alien species whose migration freshwater species and 700 to 900 are land spe- to Finland is unknown. 41 cies; most of the latter are plants. The region of origin for the majority of alien spe- According to the national experts, in the begin- cies entering Finland is North America, followed ning of 2011 there were a total of 157 invasive al- by Asia (or more broadly Eurasia). However, da- ien species permanently established in Finland ta on time of entry and country of origin are not which cause clearly identifiable, direct or indirect available for all species. damage. At the moment, the vast majority of in- vasive alien species in Finland, about 108 species, Invasive alien species and potentially or local- are agricultural and forestry-related alien species ly harmful alien species cause adverse ecological, that threaten the practice of agriculture and for- economic, health or social impacts. For most in- estry and, in some cases, the natural environment. vasive alien species, systematic measures to com- Of the remaining species, 5 occur in the territo- bat them or to mitigate the harm they cause are rial waters of Finland in the Baltic Sea, 6 are land already in progress, particularly for those with vertebrates, 24 are plant species and 9 are indoor impacts in agriculture and forestry; by contrast, pests. measures to combat invasive alien species in the wild tend to be project-based. As at the beginning of 2011, about 123 potentially or locally harmful alien species had been identi- This Strategy is based on a study of alien species fied in Finland; these are established alien species in Finland during 2010 and early 2011, and the that may cause direct or indirect harm. The ma- expert opinions quoted regarding the actual and jority of these, more than 45 species, are agricul- potential harm caused by alien species are based tural and forestry-related alien species. About two on information available during that period. The thirds of the potentially or locally harmful alien lists of alien species will be amended as new in- species are already established in Finland. formation is gained, by adding or removing spe- cies or transferring them from one list to another. According to background reports compiled by It should be noted that the lists of species do not sub-groups during the preparation of the Strategy pretend to be comprehensive or exclusive. (Appendix V), the vast majority of alien species PART III Alien species in Finland INVASIVE ALIEN SPECIES IN FINLAND tures, causing problems for instance for power plants using sea water as a coolant. These sessile Invasive alien species in the Baltic Sea species and mobile species in the open water or on the sea bed alter their living environment and It is estimated that 13 alien species have become increase local competition for space and/or nutri- established within Finland’s territorial waters in tion. The potentially or locally harmful alien spe- the Baltic Sea, 5 of them invasive alien species and cies have the same sort of impacts as the above. 8 of them potentially or locally harmful. There are Also, the Prussian carp may pose a threat to indig- a further 8 alien species that have so far not been enous species through cross-breeding. found in Finland’s territorial waters but are con- sidered likely to spread to the Baltic Sea and there- At the moment, there are no national or interna- fore to Finland’s territorial waters in the future. tional provisions in place governing the combat- ing the harm caused by invasive alien species in All of the aforementioned invasive alien species the Baltic Sea. In 2004, the International Mar- have been unintentionally introduced to Finland itime Organisation (IMO) adopted the Inter- by shipping, either with ballast water or attached national Convention for the Control and Man- to the hulls of vessels. Many of the potentially or agement of Ships’ Ballast Water and Sediments, locally harmful species have also entered with which lays down worldwide requirements for the shipping. handling of ballast water and thereby for the pre- vention of the spread of alien species with ballast The harm caused by invasive alien species in the water. This Convention has not yet entered into Baltic Sea may be divided into two main catego- force. Finland initiated the process to ratify the ries. Sessile species such as the bay barnacle, mus- Convention in 2009, and it is generally estimated sels (dark false mussel and zebra mussel) and that it will enter into force internationally in the freshwater hydroid attach themselves firmly to the near future. The EU has no legislation address- bottoms of boats, increasing friction and fuel con- ing the containment of the spread of organisms sumption, and to a variety of underwater struc- attached to ships’ hulls or living in ballast water. 42 Invasive alien species in the Baltic Sea: Bay barnacle The bay barnacle (Balanus improvisus) entered the Baltic Sea back in the 1840s and has spread to the entire sea area except for the Bothnian Sea. It is a cirripede crustacean which must at- tach itself to a substrate to survive and procreate. It is harmful to boating when it attaches itself to the bottoms of boats, which increases friction and hence fuel consumption. Hence boat bot- toms are treated with toxic chemicals to prevent barnacles from attaching to them. The bay barnacle can also attach itself to rock. Having spread to the Baltic Sea, the bay barnacle has considerably altered its living environment along the coasts by displacing plants and other sessile animals. PHOTO: maiju Lehtiniemi FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Invasive and potentially or locally harmful alien species in the Baltic Sea Invasive alien species in the Baltic Sea (5) FAUNA Caspian polyp or freshwater hydroid Cordylophora caspia Fishhook waterflea Cercopagis pengoi Red gilled mud worm (3 species) Marenzelleria spp. Bay barnacle Balanus improvisus Dark false mussel Mytilopsis leucophaeata Invasive alien species in the Baltic Sea: Fishhook waterflea (Cercopagis pengoi) photo: soili saesmaa 43 Potentially or locally harmful alien species in the Baltic Sea (16) *= not found in Finnish territorial waters yet fauna Warty comb jelly* Mnemiopsis leidyi Prussian carp (also freshwater) Carassius auratus m. gibelio Harris mud crab Rhithropanopeus harrisii Round goby (also freshwater) Apollonia (Neogobius) melanostomus Tubenose goby Proterorhinus marmoratus Chinese sleeper* (also freshwater) Perccottus glenii Asian clam* Corbicula fluminea Quagga mussel* Dreissena bugensis [amphipod]* (also freshwater) Gmelinoides fasciatus Tiger sideswimmer Gammarus tigrinus Zebra mussel Dreissena polymorpha Chinese mitten crab (also freshwater) Eriocheir sinensis Killer shrimp* Dikerogammarus villosus [amphipod]* Pontogammarus robustoides FLORA [dinoflagellate species] Prorocentrum minimum Canadian waterweed (also freshwater) Elodea canadensis PART III Alien species in Finland Invasive alien species Potentially or locally harmful alien species in the Baltic Sea: in the Baltic Sea: Red gilled mud worm Harris mud crab (Marenzelleria spp.) (Rhithropanopeus harrisii) photo: jan-erik bruun photo: maiju Lehtiniemi Invasive alien species in inland land species are excluded. Two parasites causing waterways harm in species in the wild are included, crayfish plague (two subtypes) and the eel swim bladder Alien species in Finland’s inland waterways, nematode. Aquarium fish and the legislation gov- whether intentionally introduced, released into erning them were excluded from the preparation the wild or otherwise having entered the coun- of this Strategy because no species of aquarium try, comprise 24 fish, 4 crayfish or other inverte- fish is known to be able to survive in Finland’s brates, 2 reptiles, 5 plants and 4 parasites or epibi- natural environment, as they typically originate 44 onts. Most of these have not become established, in tropical regions. However, risk assessment pro- and only 5 of them are considered invasive alien cedures for the release of aquarium species into species. A total of 17 of these species are classified the wild must be developed, as temperate-zone as potentially or locally harmful, and 11 of these species are also kept in aquariums. have been found in Finland. The import of fish and crayfish species for farming Alien species of fish and two alien species of cray- is governed by an EU Regulation (No. 798/2007), fish have been imported to Finland in past dec- which is a business development regulation. Un- ades, mostly for stocking as part of fisheries man- der the new provisions, roe of the inconnu (Steno- agement or for fish farming for food. Only a few dus leucichthys) was imported to Finland in spring of these species have established themselves in the 2010 for the purpose of raising a breeding stock natural environment; some are farmed for food or for potential fish farming for food in a closed en- used for stocking pursuant to statutory fisheries vironment. obligations. Certain species have become impor- tant in Finland’s fishing economy due to their sta- tus (e.g. the Peled or northern whitefish and the lake trout) and/or high economic value (e.g. the rainbow trout and the signal crayfish). The intro- duction of new species for fish farming is consid- ered possible, albeit the importance of ex-ante risk assessment is stressed. Some of the popula- tions of alien species in Finland’s inland water- ways originated with escapees, while others have spread through canals. Invasive alien species in inland waters: This Strategy addresses all alien species found in inland waterways, even though some of them Reed sweetgrass (Glyceria maxima) more commonly occur in brackish water (such as the Chinese mitten crab). In the area of flora, wet- photo: terhi ryttäri FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Invasive alien species that is also important for recreational fishing: Brook trout The brook trout (Salvelinus fontinalis) originates in the northern USA. It was introduced to Finland from Germany as early as in 1895, with subse- quent introductions directly from the USA. The species has become established, its typical habi- tats being small-scale brooks and rivers from southern Finland up to Lapland. Some popula- tions are quite dense. The brook trout competes with and usually dis- places the brown trout. It is not as demanding as the brown trout and is thus better suited for rec- reational fishing. This may be considered to some extent a social and economic benefit. Introducing the brook trout to a new area is al- ways subject to a license from the fisheries au- If the spread of the brook trout to new water ar- thorities, pursuant to section 121 of the Fish- eas is not brought under control, the indigenous ing Act. However, individual local fishermen may brown trout populations will continue to decline, translocate brook trout from one water area to with the loss of local populations. It is probably another. Research on the brook trout has been not possible to eradicate the brook trout except in conducted in the headwaters of Kemijoki River in very small ponds or similar closed systems. recent years. photo: Lauri urho Invasive and potentially or locally harmful alien species in inland waterways 45 Invasive alien species in inland waterways (5) fauna Brook trout Salvelinus fontinalis Signal crayfish Pacifastacus leniusculus flora Reed sweetgrass Glyceria maxima Canadian waterweed (also brackish water) Elodea canadensis fungal diseases Crayfish plague, type As and type Ps1 Aphanomyces astaci (As, Ps1) PART III Alien species in Finland Invasive alien water plant growing in dense masses: Canadian waterweed Canadian waterweed (Elodea canadensis) is an underwater plant species originating in North America. It spread to Europe in 1836, and a specimen was brought to the University of Hel- sinki botanical gardens in 1884. However, the species has probably entered Finland on multi- ple occasions. At this time, Canadian waterweed is common in southern Finland and the southern parts of central Finland, and it is spreading ag- gressively in the Koillismaa region in the north- east. It thrives in alkaline, high-nutrient shallow lakes form dense masses that displace indigenous flora and inlets and in slowly flowing rivers. Only pistil- and cause considerable fluctuations in acidity. late plants of the species have been observed in Europe, so it is assumed that it only propagates The Canadian waterweed may spread from one through vegetative reproduction: even a tiny bit of waterway to another with boats, fishing equipment a sprout will quickly begin to grow if translocated. and probably also waterfowl. The spread of the Under favourable circumstances, in low-nutrient species can be slowed down through education alkaline lakes, the Canadian waterweed may and public awareness. photo: seppo hellsten Potentially or locally harmful alien species that is also the most valuable fish in the Finnish economy: 46 Rainbow trout The rainbow trout (Onchorhynchus mykiss) origi- nated on the west coast of Canada and the USA, south of 60° N. Rainbow trout roe was first im- ported to Finland from Germany in 1894 and regularly used for stocking in quite large numbers subsequently from several different countries, in- at various put and take fisheries, and the spe- cluding directly from the USA. cies thus has recreational value. Stocking is also undertaken in unharnessed rapids, partly specifi- The rainbow trout has been introduced to a num- cally because the rainbow trout does not readily ber of countries where it has formed permanent breed in the wild in Finland and therefore the in- populations competing with indigenous fish for troduced fish cause as little disruption as possible space and food. In continental Europe and in the and for as short a time as possible to local indig- UK, populations breed regularly in many places, enous fish populations, above all to brown trout and southern Sweden has also had a permanent (Salmo trutta). However, they have been observed population since the 1950s. In Estonia, there to eat roe and have been suspected of interfering is a suspicion that there is a regularly breeding with brown trout spawning, which would have a population in the upper reaches of Pärnu River. direct negative effect on brown trout populations. Because of the above, the rainbow trout has been listed as one of the eight worst invasive alien spe- The rainbow trout is classified as ‘potentially or cies of fish in the world (World Conservation Un- locally harmful’ in Finland. This calls for clos- ion: Invasive Species Specialist Group). er monitoring and research into the potential but poorly known harmful impacts of the species. There have been recent attempts to establish If the rainbow trout begins to breed regularly in rainbow trout populations in Finnish waterways, Finland, or if monitoring and research data show but natural breeding has only occurred in the up- that continuous stockings are seriously jeopardis- per reaches of certain rivers in southern Finland. ing the survival of the brown trout (classified as The rainbow trout is Finland’s foremost fish spe- an endangered species south of the Arctic Circle), cies farmed for food, with a production value of the classification of the species must be reconsid- EUR 37.9 million in 2009. The rainbow trout is ered. photo: lauri urho FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Potentially or locally harmful alien species in Potentially or locally harmful alien species in inland waterways: inland waterways: Lake trout Danube crayfish (Salvelinus namaycush) (Astacus leptodactylus) photo: lauri urho photo: jouni tulonen Potentially or locally harmful alien species in inland waterways (17) * = not found in Finland yet fauna Spinycheek crayfish* Orconectes limosus Lake trout Salvelinus namaycush Prussian carp (also brackish water) Carassius aurelius gibelio Danube crayfish Astacus leptodactylus 47 Common carp Cyprinus carpio Rainbow trout Oncorhynchus mykiss Humpback salmon Oncorhynchus gorbuscha Marbled crayfish* Procambarus sp. Round goby (also brackish water) Neogobius melanostomus Peled whitefish Coregonus peled Chinese sleeper* (also brackish water) Perccottus glenii [amphipod]* (also brackish water) Gmelinoides fasciatus Chinese mitten crab (also brackish water) Eriocheir sinensis flora Soft hornwort Ceratophyllum submersum Western waterweed* Elodea nuttallii Fringed water lily* Nymphoides peltata nematodes Eel swim bladder nematode Anguillicola crassus PART III Alien species in Finland Invasive alien land vertebrate species animals also apply to cats2, although it should be noted that this specifically means feral cats. A cat Some 30 alien land vertebrate species have estab- may be considered feral when it obtains its food lished themselves in Finland. Of these, 6 are con- in the natural environment outside its home gar- sidered invasive alien species and 4 potentially or den, i.e. lives in the wild.3 Domestic cats kept as locally harmful. All of the invasive, potential or pets are not unprotected; they are domestic ani- locally harmful species already occur in Finland mals and pets. Regarding cats kept as pets, the leg- except for the ruddy duck. islation states that they must not be abandoned4 or deserted and that owners must take care of A clear majority of the alien land vertebrate spe- their cats.5 The provisions regarding cats as pets cies have been imported intentionally; about one must be further specified so as to reduce the harm in four have entered Finland as the unintention- caused by cats roaming free and possibly becom- al consequence of human action. Alien land ver- ing feral. The aim is not, however, to restrict the tebrate species have mainly been imported to keeping of cats as pets as such. Finland and translocated within the country for commercial purposes: for game management or There is no single uniform piece of legislation in hunting, for fur farming or as pets. Most of the al- Finland concerning the combating of alien land ien land vertebrate individuals found in the wild vertebrate species clearly identified as invasive. are escapees. The Nature Conservation Act contains general provisions on the limitation of the spreading of Feral cats are classified as an invasive alien land alien species, and the Hunting Act forbids the im- vertebrate species for the purposes of this discus- port and release into the wild of “bird or mammal sion. Although cats entered Finland before 1850, species of foreign origin as well as game strains the cut-off point for evaluation of whether species of foreign origin” without a permit, which “must are indigenous, it is possible that climate change be refused if significant harm will be caused by will contribute to an increase in feral and semi- the measure to the natural environment or fau- feral populations in the wild in Finland. The do- na”. Moreover, hunting is the exclusive right of 48 mestic cat is on the list of 100 worst invasive alien the landowner, and hunting in urban areas is re- species in the world.1 The Finnish Hunting Act stricted. stipulates that provisions applying to unprotected Invasive and potentially or locally harmful alien land vertebrate species Invasive alien land vertebrate species (6) North American beaver Castor canadensis Domestic cat (only when feral6) Felis silvestris catus [American] mink Mustela vison Brown rat Rattus norvegicus Raccoon dog Nyctereutes procyonoides European rabbit Oryctolagus cuniculus 1. http://www.issg.org/worst100_species.html 6. Section 5 of the Hunting Act states that provisions con- 2. Hunting Act, Section 5: Provisions concerning unpro- cerning unprotected animals apply to a cat which has tected animals apply to a cat which has run wild. run wild. Metsästäjän lakikirja [Hunter’s law book] 3. Government Proposal 300/1992 and Metsästäjän laki- 10/2010 states that a cat which has run wild is a cat kirja [Hunter’s law book] 10/2010. which acquires its food in the natural environment out- 4. Decree implementing the European Convention for the side its home household, i.e. is living as a wild animal. Protection of Pet Animals / Treaties 49/1992: By a stray Domestic cats kept as pets are not unprotected; they are animal is meant a pet animal which either has no home domestic animals and pets. or is outside the bounds of its owner’s or keeper’s house- hold and is not under the control or direct supervision of any owner or keeper. 5. Hunting Act, Section 85. FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Invasive alien species: Potentially or locally harmful alien species: Raccoon dog Canada goose (Nyctereutes procyonoides) (Branta canadensis) photo: marcus wikman photo: marcus wikman Potentially or locally harmful alien land vertebrate species (4) * = not found in Finland yet 49 Canada goose Branta canadensis Ruddy duck* Oxyura jamaicensis Muskrat Ondatra zibethicus White-tailed deer Odocoileus virginianus There are certain other species whose farmed reindeer kept in reindeer husbandry and the populations cause problems. Protective translo- wild forest reindeer. cations of lesser white-fronted goose must not be made using farmed populations that have bred with other species of goose. Monitoring is re- Invasive alien land plants quired to observe whether a nesting population of bar-headed goose is emerging in Finland, and if There are an estimated 700 to 800 alien plant spe- so, it must be eradicated. An alien western strain cies occurring in the wild in Finland. Addition- of grey partridge has been introduced to Finland ally, there is a high but unknown number of spe- for hunting purposes. These introductions entail cies of ornamental and useful plants grown in do- a risk of genetic mutation to the indigenous strain mestic gardens. For the purposes of the present of grey partridge. Similarly, translocations of mal- discussion, 24 alien plant species are considered lard duck in Sweden and elsewhere in Europe may invasive alien species and 28 potentially or local- contribute to a genetic mutation in Finnish popu- ly harmful. All of the invasive and potentially or lations of the same species, as migrating individu- locally harmful alien land plant species already als from these translocated populations may enter occur in Finland except for the downy ryegrass Finland. Falcons escaping from falcon breeders in (Leymus innovatus). other countries may breed with threatened pere- grine falcon and gyrfalcon individuals in Finland. Classifying species as invasive or harmless is not There is a similar problem with wolf-dog hybrids unambiguous: some of the species are already and with cross-breeding between the northern widespread and their impacts are obvious, while PART III Alien species in Finland others only occur locally at the moment and are In the long term, climate change will affect how harmful only in specific habitats. It should also alien plants survive and spread. Species that cur- be remembered that even a plant classified as an rently do not weather Finland’s winter well may invasive alien species may be a perfectly usable come to thrive in the future. Plants listed as in- garden plant as long as it is restricted to the loca- vasive alien species in central Europe include tion where it was planted. Wind-spread and bird- many species that grow poorly or not at all in spread species are the most difficult to control in Finland’s current climate. Examples of these are this respect. Finland is a country whose extensive the black locust or false acacia (Robinia pseudoa- length from north to south means that there are cacia), black cherry (Prunus serotina), box elder very different climates and growing conditions in (Acer negundo), tree of heaven (Ailanthus altissi- different parts of the country. ma) and stag horn sumac (Rhus typhina), listed as invasive alien species in several European coun- Most of the problems caused by alien plant spe- tries. On the website of a Finnish garden shop, cies occur in southern Finland, and the marine the stag horn sumac is described as a tall shrub climate of the archipelago in particular is home that propagates by root sprouts, grows on sunny, to many alien plants that cannot at present sur- sandy slopes and has berries that birds eat. This vive on the mainland or in the north. The syca- indicates that the species might well spread for in- more maple (Acer pseudoplatanus) is one of these stance to eskers. demanding alien species. Shores along waterways, sandy beaches and esker forests are particularly Alien plants cause a wide range of problems. Inva- vulnerable habitats. They share a natural dynamic sive alien plants are generally large and grow ag- resulting in plenty of exposed ground where alien gressively, produce a lot of seeds and quickly dis- plants can take root. place indigenous species in the wild. The large- leaved lupine, for instance, is a robust competitor There may be differences between strains of a spe- that fertilises the soil in which it grows through cies regarding how they propagate and how harm- nitrogen fixation. Hogweeds are in a destructive ful they are. A good example of this is the Japa- class of their own: they compete aggressively with 50 nese rose (Rosa rugosa): its basic strain is aggres- indigenous Finnish flora, cause health hazards to sively spreading along shorelines in Finland, but humans and may even lower the value of proper- there are also cultivated strains whose seed pro- ties. Dominating the landscape, they may also be duction and propagation capabilities are weak- considered aesthetically and culturally harmful er. Because of such variation, drawing up the list for instance in heritage landscapes or otherwise of invasive alien plants was not easy, and the dis- valuable locations. Many weeds of arable land do tinction between invasive and potentially harm- not spread into the wild but nevertheless cause ful species is sometimes unclear. Also, the Finnish significant economic harm in the form of herbi- flora is constantly changing, and the list must be cide costs and decreased crop yields. regularly updated. The list of potentially or locally harmful alien plants in particular is indicative at Plants spread through human action in many best, and garden plant escapees require constant ways. Transport is a significant contributor to vigilance. plant migration, and roadside grass planting in- troduces plants to the natural environment as a With plants, as indeed with other organisms, by-product. Plant species have entered Finland identifying the early stages of an invasion is very with hayseeds and cattle feed. Wartime entries difficult. Individual escapees may seem harmless of non-native species and seeds carried in bal- for quite a long time until the population acquires last sand are separate groups. Birds carry seeds sufficient numbers for propagation to pick up of berry-producing plants. A large number of the speed. This is what happened with the Japanese alien plant species now considered invasive were rose. The species existed in the wild in Finland for imported as ornamental plants for gardens and decades before the population acquired critical parks, and many weeds were unintentionally im- mass to trigger exponential growth. Evaluating ported with these. Travellers bring new plant spe- and predicting whether tree species are harmful cies with them from abroad, and the Internet is a is also difficult, as trees are extremely long-lived significant tool in the plant trade and in the ex- and most alien species of trees in Finland have a change of plants between enthusiasts. Earth mov- rather short history. ing and topsoil removal also translocate plants. The inappropriate and careless disposal of garden waste is one of the greatest problems in this area. FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Section 43 of the Nature Conservation Act states that “non-native plant species [...] are not to be planted or sown outside a garden, field or other site designated for special purposes, nor in natu- ral waters, in so far as there is cause to suspect that the species may become established permanently”. This provision is little known and poorly enforced. Finnish legislation does not allow for the combat- ing of invasive alien plants without the landown- er’s permission, even in a nature reserve. The free trade in garden plants within the EU also poses a challenge for control of invasive alien plants. Legislation concerning the seed trade specifies threshold values for percentages of weed seeds and contains provisions regarding seed-spread diseases. However, the seed trade legislation does not provide for percentages of seeds of al- Invasive alien species: ien plants that have been determined invasive al- ien species. Japanese knotweed (Fallopia japonica) photo: terhi ryttäri Invasive and potentially or locally harmful alien land plant species Invasive alien land plant species (24) 51 American willowherb Epilobium adenocaulon Fringed willowherb Epilobium ciliatum Common butterbur Petasites hybridus Running shadbush Amelanchier spicata Japanese knotweed Fallopia japonica Giant knotweed Fallopia sachalinensis Hybrid knotweed Fallopia × bohemica Himalayan balsam Impatiens glandulifera Orange jewelweed Impatiens capensis Small balsam Impatiens parviflora Giant hogweed Heracleum mantegazzianum Persian hogweed Heracleum persicum Sosnowsky’s hogweed Heracleum sosnowskyi Canada goldenrod Solidago canadensis Tall goldenrod Solidago altissima Giant goldenrod Solidago gigantea Hedge bindweed Calystegia sepium Large-leaved lupin Lupinus polyphyllos Japanese rose (basic strain) Rosa rugosa White bedstraw; hybrid bedstraw Galium album; G. × pomeranicum Common Michaelmas daisy Aster × salignus Red elderberry Sambucus racemosa Wild oat Avena fatua Creeping yellow cress Rorippa sylvestris PART III Alien species in Finland Invasive alien plant threatening sandy beaches and dunes: Japanese rose The Japanese rose (Rosa rugosa) originated on the Asian shores of the Pacific Ocean. Being har- dy, it is a popular ornamental plant as individu- al shrubs and as mass plantings on roadsides. It spreads very efficiently: its hips can float on wa- ter for long periods, its seeds are spread by birds even to distant islands, and in sandy soil it forms extensive, dense thickets through rhizomes. The Japanese rose is a threat to ecosystems on sandy beaches and dunes all around the Baltic Sea. In Finland, the Japanese rose is the most abundant on the sandy beaches and esker islands of the Gulf of Finland. In the Gulf of Bothnia, it is only starting to spread. In addition to the ecological harm they cause, extensive Japanese rose thick- ets may impede recreational use and thereby low- er the value of shoreline properties. photo: terhi ryttäri Invasive alien plant that displaces roadside meadows: Large-leaved lupine 52 The impressive-looking large-leaved lupine (Lupinus polyphyllos) was imported to Europe from North America. Within a few decades, it has spread along roadsides and railway lines to the whole of southern Finland, up to Rovaniemi. The large-leaved lupine is an aggressive competi- tor that quickly displaces declining meadow flora that have found a refuge in roadside meadows. Being a legume, the large-leaved lupine has bac- teria in its roots that bind nitrogen and fertilise the soil, which further incapacitates the indige- nous meadow flora. The large-leaved lupine is difficult to eradicate. Recently it has been found to have spread from roadsides to meadows and esker forests. photo: terhi ryttäri Invasive species of wetlands and wooded shores: Himalayan balsam The Himalayan balsam (Impatiens gladulifera) is an alien species which has spread from gardens to nature, where it spreads and occupies more space, smothering all other vegetation. The plant spreads easily in wetlands and wooded shores along riversides and brooks. photo: terhi ryttäri FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Locally harmful alien plant: Cultivated apple The common-or-garden apple tree (Malus do- mestica) is not something that one would im- mediately suspect of being a harmful alien species, and indeed generally speaking it is not. But on Åland and in the south-western archipelago there are populations of the indig- enous European wild apple (Malus sylvestris), on the very northern fringes of its distribution range. Classified as vulnerable, the Europe- an wild apple is threatened by cross-breeding with the cultivated apple. Indeed, most of the remaining European wild apple individuals are already hybrids. Potentially or locally harmful alien land plant species (28) Nootka lupine Lupinus nootkatensis Downy ryegrass Leymus innovatus Aleutian ragwort Senecio cannabifolius White dogwood Cornus alba ssp. alba Red-osier dogwood Cornus alba ssp. stolonifera Giant butterbur Petasites japonicus ssp. giganteus Western red cedar Thuja plicata 53 Yellow skunk cabbage Lysichiton americanus Common ragweed Ambrosia artemisiifolia Siberian fir Abies sibirica Balsam fir Abies balsamea Pin cherry Prunus pensylvanica Broad-leaved meadow grass Poa chaixii Fodder galega Galega orientalis Comfrey Symphytum var. officinale and var. bohemicum Russian comfrey Symphytum × uplandicum Cultivated apple Malus domestica Sycamore maple Acer pseudoplatanus Barren brome Bromus sterilis Cockspur grass Echinochloa crus-galli Canadian horseweed Conyza canadensis Scarlet pimpernel Anagallis arvensis Black-grass Alopecurus myosuroides Red poppy Papaver rhoeas Yellow foxtail Setaria pumila Green foxtail Setaria viridis Red-root amaranth Amaranthus retroflexus False spiraea Sorbaria sorbifolia PART III Alien species in Finland Alien species in agriculture and forestry, Alien plant pest species are addressed in Finnish and indoor pests legislation in the Act on Protecting Plant Health (702/2003), the Plant Propagation Material Act Most of the alien species in agriculture and for- (also known as the Seedlings Act, 1205/1994), the estry are plant pests, meaning harmful organisms Seed Trade Act (728/2000) and the Forest Insect (flora or fauna) – whether fungi, bacteria, phy- and Fungi Damage Prevention Act (263/1991). toplasms or viruses – that infest plants or plant Most of the invasive alien species in agriculture products and that can cause direct or indirect and forestry are covered by legislation, which harm to crops, natural plants or products derived means that existing legislation, enhanced moni- from either of them. However, this category al- toring and risk assessment at the EU level and in so includes a number of organisms beneficial to Finland are key points for development. plant production. Various beneficial organisms are used in plant Some alien species of plant pests are quarantine production for instance for pollination and bio- species (Table 7), the import and spreading of logical pest control. In Finland, biological pest which is prohibited by Directive in all EU Mem- control is mainly used in greenhouses, but also in ber States or for specific protected zones. Quar- outdoor applications such as strawberry farming. antine pests are classified as particularly harm- The beneficial organisms used for biological pest ful alien species requiring immediate action, and control are often alien species not found in Fin- there are internationally agreed robust prevention land’s natural environment. There is no legislation measures already in place for them. whatsoever regarding the production, import or use of such beneficial organisms. Before Finland’s Of the invasive and potentially or locally harm- EU membership, importers had to request state- ful alien species identified in Finland, the major- ments from the authorities concerning their safe- ity occur in agriculture and forestry, 108 of them ty, but these were not legally binding. being considered invasive; 45 are classified as po- tentially or locally harmful, and 13 of these have 54 been found in Finland. Statutory or voluntary Alien insect species outside agriculture and preventive measures may also be aimed at other horticulture, indoor pests plant pests besides quarantine species. Of the alien insect species described as indoor Of the alien species identified in agriculture and pests, 9 are considered invasive and 18 potential- forestry, 68 have already migrated into the wild ly or locally harmful. Alien indoor insect species or would most probably do so if they entered Fin- have generally entered Finland unintentionally land. Experts estimate 20 of these species to be with foods, textiles, wood items, timber or trav- such that they could cause significant destruction ellers. Many of these species originate in warm of flora or fauna. In reality, the extent and nature or moderate climates, and their survival indoors of the impact of these invasive alien species on bi- depends on a steady and sufficiently high indoor odiversity is difficult to assess, because their im- temperature. pacts have only been studied from the perspective of plant production. A plant pest may have any Food pests infest central warehouses and grain number of host plants. A well-known example of mills. They find their way into food cupboards in plant pests are the molds of the genus Phytophtho- households too, usually in a contaminated prod- ra, which spread for instance through the plant uct. They generally prompt disgust when discov- trade and which are known to cause harm to for- ered in a household. Pests ruin the foods they in- ests and vegetation. The incidence and severity of fest with their faeces. Textile pests feed on wool, damage caused by plant pests is always depend- fur and feathers, causing holes to appear in fab- ent on climate conditions and the properties of rics. the host plant, such as its toughness and popula- tion structure. Interaction relationships between organisms are complex; many of the plant pests on the invasive alien species list, such as aphids, are themselves bearers of viruses, phytoplasms or fungi and therefore spreaders of plant diseases. FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Particularly harmful alien species, pest: Spanish slug The first sighting in Finland of the Spanish slug (Arion lusitanicus), a particularly harmful alien species, dates from 1990. In Sweden, the spe- cies had been found as early as in 1975. Today, it is known to have established a very strong pop- ulation in Sweden and on Åland. In Finland, the species has been found at some 300 different locations, and it is known to have spread as far as Kiiminki in the north, Kajaani in the north-east and Juuka in the east. The species has probably entered Finland through The Spanish slug is an omnivorous colony spe- market gardens and soil suppliers in plant prop- cies that has adapted to Finland’s cool climate. agation materials and mulch. It continues to An individual slug may roam as much as 50 m in spread through amateur gardening and plant a night, and it usually eats its own weight in food translocation. Climate change is increasing popu- (10 g) per day. The Spanish slug eats plants in lation size in northern cultivated areas and there- gardens and fields, causing significant economic fore the damage caused by the species, further damage. The Spanish slug may also cross-breed exacerbating the hazard to plant production. Ex- with other slugs, causing ecological damage to perts agree that action to combat the species is at the indigenous species. least 10 years late, perhaps unrecoverably. photo: Ilmari Valovirta Invasive and potentially or locally harmful alien species of agriculture and forestry, and indoor pests Invasive alien species of agriculture and forestry (108) 55 * = may migrate to the natural environment, impact unknown or probably negligible ** = may migrate to the natural environment, impact may be significant INSECTS Greenhouse whitefly** Trialeurodes vaporariorum Potato aphid* Macrosiphum euphorbiae Greenhouse thrips Heliothrips haemorrhoidalis Oleander scale Aspidiotus nerii (syn. hederae) [hawthorn psyllid]* Cacopsylla melanoneura Western flower thrips* Frankliniella occidentalis Crescent-marked lily aphid Aulacorthum circumflexum European pepper moth Duponchelia fovealis Long-tailed mealybug Pseudococcus longispinus Glasshouse potato aphid* Aulacorthum solani Cotton aphid Aphis gossypii Scarlet lily beetle** Lilioceris lilii Chrysanthemum aphid Macrosiphoniella sanborni Banded greenhouse thrips Hercinothrips femoralis [predatory mirid bug]* Nesidiocoris tenuis Brown soft scale Coccus hesperidum Hemispherical scale Saissetia coffeae Green peach aphid** Myzus persicae Pear leaf-curling midge Dasineura pyri Emerald ash borer** Agrilus planipennis Fern scale Pinnaspis aspidistrae Shallot aphid Myzus ascalonicus Palm thrips Parthenothrips dracaenae PART III Alien species in Finland Black vine weevil** Otiorhynchus sulcatus Citrus mealybug Planococcus citri Bacteria and phytoplasma Bacterial blight Pseudomonas syringae Bacterial canker Clavibacter michiganensis, ssp. michiganensis Halo blight of oats Pseudomonas syringae Potato blackleg* Dickeya dianthicola and other new Dickeya species Potato blackleg* Pectobacterium carotovorum mites Broad mite Polyphagotarsonemus latus fungi Blight** Diaporthe vaccinii Rhabdocline needlecast* Rhabdocline pseudotsugae Poplar leaf blight Drepanopeziza populorum, anamorfi Marssonina populi Hypoxylon canker of aspen** Entoleuca mammata Silver scurf Helminthosporium solani Root dieback in conifer seedlings Ceratobasidium bicorne Powdery mildew of gooseberry Podosphaera mors uvae Halo blight of oats Pyrenophora chaetomioides Loose smut of oats Ustilago avenae Bark canker** Neofabraea populi Wilt Verticillium albo-atrum/V. dahliae European larch canker Lachnelulla willkommii 56 Nectria canker* Nectria galligena Alder rust** Melampsoridium hiratsukanum Black spot of strawberry* Colletotrichum acutatum Strawberry leather rot** Phytophthora cactorum Foliar rust* Melampsora larici-populina Black rust* Puccinia graminis Take-all* Gaeumannomyces graminis var. tritici Take-all Gaeumannomyces graminis var. avenae Anthracnose ripe rot Colletotrichum coccoides Spot blotch and common root rot of barley* Cochliobolus sativus Loose smut of barley Ustilago nuda f.sp. hordei Barley leaf scald* Rhynchosporium secalis Net blotch of barley* Pyrenophora teres Barley stripe Pyrenophora graminea Powdery mildew of apples Podosphaera leucotricha Clubroot of crucifers* Plasmodiophora brassicae Apple bark rot Phytophthora cactorum White mold* Sclerotinia sclerotiorum Downy mildew of Impatiens Plasmopara obducens Leaf blotch disease of potato Cercospora concors (Mycovellosiella) Potato blight (sexual reproduction) Phytophthora infestans Potato blight (asexual reproduction) Phytophthora infestans Potato stem canker* Rhizoctonia solani, AG3 Phytophthora disease* Phytophthora plurivora Tan spot* Pyrenophora tritici-repentis Downy mildew Plasmopara halstedii Carrot rot Phytophthora porri Liquorice rot of carrot* Mycocentrospora acerina Pink rot of potato Phytophthora erythroseptica FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Red band needle blight* Mycosphaerella pini Ramularia leaf spot Ramularia collo-cygni Staganospora nodorum blotch* Stagonospora nodorum Ash dieback** Chalara fraxinea Water rot* Pythium ultimum, Pythium debaryanum Seedling blight, sheath blight* Rhizoctonia solani AG2-1, AG 2-2 Ergot* Claviceps purpurea Cedar leaf blight Didymascella thujina Collar rot, fusariosis* Fusarium spp. Eye spot* Oculimacula yallundae Kernel fusariosis Fusarium langsethiae Common bunt of wheat Tilletia caries Common bunt of wheat Tilletia laevis Loose smut of wheat Ustilago tritici molluscs Spanish slug** Arion lusitanicus Orange-banded arion** Arion fasciatus Banded slug or three-band garden slug Lehmannia valentiana Viruses Hosta virus X (HVX) Hosta virus X (HVX) Poinsettia mosaic virus (PnMV) Poinsettia mosaic virus (PnMV) Cherry leaf roll virus (CLRV)* Cherry leaf roll virus (CLRV) Cucumber mosaic virus (CMV) Cucumber mosaic virus (CMV) Cucumber green mottle mosaic virus (CGMMV) Cucumber green mottle mosaic virus (CGMMV) Black currant reversion virus (BRV)* Black currant reversion virus (BRV) Apple chlorotic leaf spot virus (ACLV) Apple chlorotic leaf spot virus (ACLV) 57 Pepino mosaic virus (PepMV) Pepino mosaic virus (PepMV) Apple chlorotic leaf spot virus (ACLV) PVX, PVM, PVS, PVA Potato mop top virus (PMTV)* Potato mop top virus (PMTV) Potato virus Y (PVY) Potato virus Y (PVY) Leek yellow stripe virus (LYSV) Leek yellow stripe virus (LYSV) Shallot latent virus (SLV) Shallot latent virus (SLV) Onion yellow dwarf virus (OYDV) Onion yellow dwarf virus (OYDV) Tobacco mosaic virus (TMV) Tobacco mosaic virus (TMV) Tobacco necrosis virus (TNV) Tobacco necrosis virus (TNV) Raspberry bushy dwarf virus (RBDV)* Raspberry bushy dwarf virus (RBDV) Wheat dwarf virus (WDV)* Wheat dwarf virus (WDV) nematodes Sugarbeet nematode Heterodera schachtii Invasive alien indoor pest species (9) Pharaoh ant Monomorium pharaonis Indian meal moth Plodia interpunctella Mediterranean flour moth Ephestia kuehniella Odd beetle Thylodrias contractus Dermestid beetle Reesa vespulae Sawtoothed grain beetle Oryzaephilus surinamensis Destructive flour beetle Tribolium destructor Clothing moth Tineola bisselliella Fur beetle Attagenus woodroffei PART III Alien species in Finland Potentially or locally harmful alien species in agriculture and forestry (45) * = may migrate to the natural environment, impact unknown or probably negligible ** = may migrate to the natural environment, impact may be significant *** = not found in Finland yet insects Poinsettia thrips Echinothrips americanus Multicoloured Asian lady beetle**/*** Harmonia axyridis Leafhopper* Igutettix oculatus Cotton bollworm*/*** Helicoverpa armigera Ligurian leafhopper*/*** Eupteryx decemnotata Aphid*** Illinoia azaleae Horse-chestnut leaf miner Cameraria ohridella Yellow rose aphid*** Rhodobium porosum [hawthorn psyllid] Psylla buxi Fringed orchid aphid*** Cerataphis orchidearum Tulip bulb aphid*** Dysaphis tulipae Greedy scale*** Hemiberlesia rapax Purple scale*/*** Lepidosaphes beckii Fig scale*/*** Lepidosaphes conchiformis Hellebore aphid*** Macrosiphum hellebori Mangold aphid*** Rhopalosiphoninus staphyleae Apple grass aphid*/*** Rhopalosiphum insertum Rice root aphid*/*** Rhopalosiphum rufiabdominale Buff-tailed bumblebee* Bombus terrestris Greenfly*** Coloradoa rufomaculata Red scale*** Aonidiella aurantii 58 Mirid bug*/*** Dichrooscytus gustavi Corn leaf aphid**/*** Rhopalosiphum maidis Strawberry aphid*** Chaetosiphon fragaefolii Bark beetles** Scolytus spp. South American tomato moth*** Tuta absoluta Black olive scale*** Saissetia oleae Violet aphid*/*** Myzus ornatus Douglas-fir seed chalcid*** Megastigmus spermotrophus Anthurium thrips*** Chaetanaphothrips orchidii Lily thrips*** Liothrips vaneeckei Begonia thrips*** Scirtothrips longipennis Siberian conifer silk moth*/*** Dendrolimus spp. fungi Dutch elm disease**/*** Ophiostoma ulmi, Ophiostoma novo-ulmi Cephalosporium stripe Hymenula cerealis Leaf spot Alternaria alternata Fruit rot*** Fusicoccum putrefaciens Brown spot needle blight of pine**/*** Mycosphaerella dearnessii Covered smut of barley Ustilago hordei Pitch canker**/*** Gibberella circinata Septoria tritici blotch Mycosphaerella graminicola Viruses Apple mosaic virus (ApMV)* Apple mosaic virus (ApMV) Tobacco rattle virus (TRV)* Tobacco rattle virus (TRV) FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES mites Red spider mite*/*** Tetranychus evansi Tomato russet mite Aculops lycopersici Potentially or locally harmful alien indoor pest species (18) *** = not found in Finland yet Red-legged ham beetle Necrobia rufipes American cockroach Periplaneta americana Australian cockroach Periplaneta australasiae Confused flour beetle Tribolium confusum Auger beetles Bostrichidae Khapra beetle*** Trogoderma granarium Merchant grain beetle Oryzaephilus mercator House cricket Acheta domesticus Bread beetle Stegobium paniceum Rusty grain beetle Cryptolestes ferrugineus Bean weevil Acanthoscelides obtectus Powder post beetle Lyctus africanus Long-horned beetle Stromatium unicolor Brown-banded cockroach Supella longipalpa Common cockroach Periplaneta orientalis Brown carpet beetle Attagenus smirnovi Varied carpet beetle Anthrenus verbasci Firebrat Lepismodes inquilinus 59 Table 4: Number of invasive alien species occurring in Finland and potentially or locally harmful alien species in Finland. Invasive alien species Potentially or locally harmful alien species occurring in Finland in Finland Total Not found in Finland yet Alien species in the 5 16 8 Baltic Sea Alien species in inland 5 17 6 waterways Alien land vertebrate 6 4 1 species Alien land plants 24 28 - Alien species in 108 45 32 agriculture and forestry Alien indoor pest 9 18 1 species PART III Alien species in Finland LIST OF INVASIVE ALIEN SPECIES OCCURRING IN FINLAND Table 5: Invasive alien species occurring in Finland. Invasive alien species in Finland (157) * = particularly harmful invasive alien species Bacteria and phytoplasma Bacterial blight Clavibacter michiganensis, ssp. michiganensis Bacterial blight Pseudomonas syringae Halo blight of oats Pseudomonas syringae Potato blackleg Dickeya dianthicola and other new Dickeya species Potato blackleg Pectobacterium carotovorum Viruses Hosta virus X (HVX) Hosta virus X (HVX) Poinsettia mosaic virus (PnMV) Poinsettia mosaic virus (PnMV) Cherry leaf roll virus (CLRV) Cherry leaf roll virus (CLRV) Cucumber mosaic virus (CMV) Cucumber mosaic virus (CMV) Cucumber green mottle mosaic virus (CGMMV) Cucumber green mottle mosaic virus (CGMMV) Black currant reversion virus (BRV) Black currant reversion virus (BRV) Apple chlorotic leaf spot virus (ACLV) Apple chlorotic leaf spot virus (ACLV) Pepino mosaic virus (PepMV) Pepino mosaic virus (PepMV) Potato leaf viruses PVX, PVM, PVS, PVA PVX, PVM, PVS, PVA Potato mop top virus (PMTV) Potato mop top virus (PMTV) Potato virus Y (PVY) Potato virus Y (PVY) 60 Leek yellow stripe virus (LYSV) Leek yellow stripe virus (LYSV) Shallot latent virus (SLV) Shallot latent virus (SLV) Onion yellow dwarf virus (OYDV) Onion yellow dwarf virus (OYDV) Tobacco mosaic virus (TMV) Tobacco mosaic virus (TMV) Tobacco necrosis virus (TNV) Tobacco necrosis virus (TNV) Raspberry bushy dwarf virus (RBDV) Raspberry bushy dwarf virus (RBDV) Wheat dwarf virus (WDV) Wheat dwarf virus (WDV) Fungi Rhabdocline needlecast Rhabdocline pseudotsugae Hypoxylon canker of aspen Entoleuca mammata Silver scurf Helminthosporium solani Root dieback in conifer seedlings Ceratobasidium bicorne Powdery mildew of gooseberry Podosphaera mors uvae Halo blight of oats Pyrenophora chaetomioides Loose smut of oats Ustilago avenae Blight Diaporthe vaccinii Poplar leaf blight Drepanopeziza populorum, anamorfi Marssonina populi Bark canker Neofabraea populi Wilt Verticillium albo-atrum/V. dahliae European larch canker Lachnelulla willkommii Nectria canker Nectria galligena Alder rust Melampsoridium hiratsukanum Black spot of strawberry Colletotrichum acutatum Strawberry leather rot Phytophthora cactorum Downy mildew Plasmopara halstedii Black rust Puccinia graminis FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Take-all Gaeumannomyces graminis var. tritici Take-all Gaeumannomyces graminis var. avenae Anthracnose ripe rot Colletotrichum coccoides Spot blotch and common root rot of barley Cochliobolus sativus Loose smut of barley Ustilago nuda f.sp. hordei Barley leaf scald Rhynchosporium secalis Net blotch of barley Pyrenophora teres Barley stripe Pyrenophora graminea Powdery mildew of apples Podosphaera leucotricha Apple bark rot Phytophthora cactorum White mold Sclerotinia sclerotiorum Downy mildew of Impatiens Plasmopara obducens Leaf blotch disease of potato Cercospora concors (Mycovellosiella) Potato blight (sexual reproduction) Phytophthora infestans Potato blight (asexual reproduction) Phytophthora infestans Potato stem canker Rhizoctonia solani, AG3 Tan spot Pyrenophora tritici-repentis Carrot rot Phytophthora porri Liquorice rot of carrot Mycocentrospora acerina Pink rot of potato Phytophthora erythroseptica Red band needle blight Mycosphaerella pini Ramularia leaf spot Ramularia collo-cygni Crayfish plague, type As and type Ps1* Aphanomyces astaci (As, Ps1) Clubroot of crucifers Plasmodiophora brassicae Foliar rust Melampsora larici-populina Staganospora nodorum blotch Stagonospora nodorum Phytophthora disease Phytophthora plurivora Ash dieback Chalara fraxinea 61 Water rot Pythium ultimum, Pythium debaryanum Seedling blight, sheath blight Rhizoctonia solani AG2-1, AG 2-2 Ergot Claviceps purpurea Cedar leaf blight Didymascella thujina Collar rot, fusariosis Fusarium spp. Eye spot Oculimacula yallundae Kernel fusariosis Fusarium langsethiae Common bunt of wheat Tilletia caries Common bunt of wheat Tilletia laevis Loose smut of wheat Ustilago tritici Tracheobionta Running shadbush Amelanchier spicata Common Michaelmas daisy Aster × salignus Wild oat Avena fatua Hedge bindweed Calystegia sepium Canadian waterweed (also freshwater) Elodea canadensis American willowherb Epilobium adenocaulon Fringed willowherb Epilobium ciliatum Japanese knotweed Fallopia japonica Giant knotweed Fallopia sachalinensis Hybrid knotweed Fallopia × bohemica White bedstraw; hybrid bedstraw Galium album; G. × pomeranicum Reed sweetgrass Glyceria maxima Persian hogweed* Heracleum persicum Giant hogweed* Heracleum mantegazzianum Sosnowsky’s hogweed* Heracleum sosnowskyi PART III Alien species in Finland Orange jewelweed Impatiens capensis Himalayan balsam Impatiens glandulifera Small balsam Impatiens parviflora Large-leaved lupine Lupinus polyphyllos Common butterbur Petasites hybridus Creeping yellow cress Rorippa sylvestris Japanese rose (basic strain)* Rosa rugosa Red elderberry Sambucus racemosa Canada goldenrod Solidago canadensis Tall goldenrod Solidago altissima Giant goldenrod Solidago gigantea Cnidaria Caspian polyp or freshwater hydroid Cordylophora caspia Nematodes Sugarbeet nematode Heterodera schachtii Ringed worms (Annelida) Red gilled mud worm (3 species) Marenzelleria spp. Molluscs Spanish slug* Arion lusitanicus Orange-banded arion Arion fasciatus Dark false mussel Mytilopsis leucophaeata Banded slug or three-band garden slug Lehmannia valentiana 62 Crustaceans (Arthropoda) Signal crayfish Pacifastacus leniusculus Bay barnacle Balanus improvisus Fishhook waterflea Cercopagis pengoi Insects and arachnids (Arthropoda) Greenhouse whitefly Trialeurodes vaporariorum Potato aphid Macrosiphum euphorbiae Greenhouse thrips Heliothrips haemorrhoidalis Broad mite Polyphagotarsonemus latus Pharaoh ant Monomorium pharaonis Indian meal moth Plodia interpunctella Mediterranean flour moth Ephestia kuehniella Western flower thrips Frankliniella occidentalis Crescent-marked lily aphid Aulacorthum circumflexum European pepper moth Duponchelia fovealis Long-tailed mealybug Pseudococcus longispinus [hawthorn psyllid] Cacopsylla melanoneura Oleander scale Aspidiotus nerii (syn. hederae) Chrysanthemum aphid Macrosiphoniella sanborni Glasshouse potato aphid Aulacorthum solani Cotton aphid Aphis gossypii Scarlet lily beetle Lilioceris lilii [predatory mirid bug] Nesidiocoris tenuis Banded greenhouse thrips Hercinothrips femoralis Brown soft scale Coccus hesperidum Odd beetle Thylodrias contractus Hemispherical scale Saissetia coffeae FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Green peach aphid Myzus persicae Pear leaf-curling midge Dasineura pyri Dermestid beetle Reesa vespulae Sawtoothed grain beetle Oryzaephilus surinamensis Destructive flour beetle Tribolium destructor Emerald ash borer Agrilus planipennis Fern scale Pinnaspis aspidistrae Shallot aphid Myzus ascalonicus Palm thrips Parthenothrips dracaenae Black vine weevil Otiorhynchus sulcatus Clothing moth Tineola bisselliella Citrus mealybug Planococcus citri Fur beetle Attagenus woodroffei fish (Pisces) Brook trout Salvelinus fontinalis mammals (Mammalia) North American beaver Castor canadensis Domestic cat (only when feral) Felis silvestris catus [American] mink* Mustela vison Brown rat Rattus norvegicus Raccoon dog Nyctereutes procyonoides European rabbit Oryctolagus cuniculus 63 Bay barnacle (Balanus improvisus) photo: terhi ryttäri PART III Alien species in Finland LIST OF POTENTIALLY OR LOCALLY HARMFUL ALIEN SPECIES IN FINLAND Table 6: Potentially or locally harmful alien species in Finland. Potentially or locally harmful alien species in Finland (123) * = not found in Finland yet Viruses and viroids Apple mosaic virus (ApMV) Apple mosaic virus (ApMV) Tobacco rattle virus (TRV) Tobacco rattle virus (TRV) phytoplankton [dinoflagellate species] Prorocentrum minimum Fungi Dutch elm disease* Ophiostoma ulmi, Ophiostoma novo-ulmi Cephalosporium stripe Hymenula cerealis Leaf spot Alternaria alternata Fruit rot* Fusicoccum putrefaciens Brown spot needle blight of pine* Mycosphaerella dearnessii Covered smut of barley Ustilago hordei Pitch canker* Gibberella circinata Septoria tritici blotch Mycosphaerella graminicola Vascular plants (Tracheobionta) Balsam fir Abies balsamea 64 Siberian fir Abies sibirica Sycamore maple Acer pseudoplatanus Black-grass Alopecurus myosuroides Red-root amaranth Amaranthus retroflexus Common ragweed Ambrosia artemisiifolia Scarlet pimpernel Anagallis arvensis Barren brome Bromus sterilis Soft hornwort Ceratophyllum submersum Canadian horseweed Conyza canadensis White dogwood Cornus alba ssp. alba Red-osier dogwood Cornus alba ssp. stolonifera Cockspur grass Echinochloa crus-galli Canadian waterweed (in the Baltic Sea) Elodea canadensis Western waterweed* Elodea nuttallii Fodder galega Galega orientalis Downy ryegrass Leymus innovatus Nootka lupine Lupinus nootkatensis Yellow skunk cabbage Lysichiton americanus Cultivated apple Malus domestica Fringed water lily, or yellow floating heart* Nymphoides peltata Red poppy Papaver rhoeas Giant butterbur Petasites japonicus ssp. giganteus Broad-leaved meadow grass Poa chaixii Pin cherry Prunus pensylvanica Western red cedar Thuja plicata Aleutian ragwort Senecio cannabifolius Yellow foxtail Setaria pumila Green foxtail Setaria viridis FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES False spiraea Sorbaria sorbifolia Comfrey Symphytum var. officinale and var. bohemicum Russian comfrey Symphytum × uplandicum Comb jellies (Ctenophora) Warty comb jelly* Mnemiopsis leidyi Nematodes Eel swim bladder nematode Anguillicola crassus Molluscs Quagga mussel* Dreissena bugensis Asian clam* Corbicula fluminea Zebra mussel Dreissena polymorpha Crustaceans Spinycheek crayfish* Orconectes limosus Danube crayfish Astacus leptodactylus Harris mud crab Rhithropanopeus harrisii Marbled crayfish* Procambarus sp. [amphipod]* Gmelinoides fasciatus Tiger sideswimmer Gammarus tigrinus Chinese mitten crab Eriocheir sinensis Killer shrimp* Dikerogammarus villosus [amphipod]* Pontogammarus robustoides Insects and arachnids (Arthropoda) Red-legged ham beetle Necrobia rufipes 65 Poinsettia thrips Echinothrips americanus American cockroach Periplaneta americana Australian cockroach Periplaneta australasiae Multicoloured Asian lady beetle* Harmonia axyridis Leafhopper Igutettix oculatus Confused flour beetle Tribolium confusum Cotton bollworm* Helicoverpa armigera Auger beetles Bostrichidae Khapra beetle* Trogoderma granarium Ligurian leafhopper* Eupteryx decemnotata Aphid* Illinoia azaleae Horse-chestnut leaf miner Cameraria ohridella Merchant grain beetle Oryzaephilus mercator Yellow rose aphid* Rhodobium porosum [hawthorn psyllid] Psylla buxi Fringed orchid aphid* Cerataphis orchidearum Tulip bulb aphid* Dysaphis tulipae Greedy scale* Hemiberlesia rapax Purple scale* Lepidosaphes beckii Fig scale* Lepidosaphes conchiformis Hellebore aphid* Macrosiphum hellebori Mangold aphid* Rhopalosiphoninus staphyleae Apple grass aphid* Rhopalosiphum insertum Rice root aphid* Rhopalosiphum rufiabdominale Buff-tailed bumblebee Bombus terrestris House cricket Acheta domesticus Greenfly* Coloradoa rufomaculata PART III Alien species in Finland Bread beetle Stegobium paniceum Rusty grain beetle Cryptolestes ferrugineus Red scale* Aonidiella aurantii [mirid bug]* Dichrooscytus gustavi Corn leaf aphid* Rhopalosiphum maidis Strawberry aphid* Chaetosiphon fragaefolii Bark beetles Scolytus spp. South American tomato moth* Tuta absoluta Black olive scale* Saissetia oleae Violet aphid* Myzus ornatus Bean weevil Acanthoscelides obtectus Powder post beetle Lyctus africanus Long-horned beetle Stromatium unicolor Douglas-fir seed chalcid* Megastigmus spermotrophus Red spider mite* Tetranychus evansi Brown-banded cockroach Supella longipalpa Anthurium thrips* Chaetanaphothrips orchidii Lily thrips* Liothrips vaneeckei Begonia thrips* Scirtothrips longipennis Common cockroach Periplaneta orientalis Brown carpet beetle Attagenus smirnovi Varied carpet beetle Anthrenus verbasci Siberian conifer silk moth* Dendrolimus spp. Tomato russet mite Aculops lycopersici Firebrat Lepismodes inquilinus fish (Pisces) 66 Lake trout Salvelinus namaycush Prussian carp Carassius aurelius gibelio Common carp Cyprinus carpio Rainbow trout Oncorhynchus mykiss Humpback salmon Oncorhynchus gorbuscha Round goby Neogobius melanostomus Peled, or northern whitefish Coregonus peled Chinese sleeper* Percottus glehni Tubenose goby Proterorhinus marmoratus birds (Aves) Canada goose Branta canadensis Ruddy duck* Oxyura jamaicensis mammals (Mammalia) Muskrat Ondatra zibethicus White-tailed deer Odocoileus virginianu FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES PARTICULARLY HARMFUL ALIEN According to expert assessments, Finland’s partic- SPECIES ularly harmful alien species – in addition to dan- gerous plant pests – are: Some invasive alien species have been deemed so Japanese rose (Rosa rugosa) harmful that they require immediate and effective Forms extensive, dense growths that threaten in- action. Measures specifically named in legislation digenous flora on sandy beaches in particular, to- may be required for combating these alien species. gether with the insect species dependent on that flora, and also the natural structure of dune for- Particularly harmful alien species should princi- ests. pally be identified through risk assessment. The experts who prepared the present Strategy iden- Crayfish plague, type As and type Ps1 tified five particularly harmful species. Immedi- (Aphanomyces astaci (As, Ps1)) ate and enhanced effective action must be taken A threat to the survival of populations of noble regarding these species (targeted measures nos. crayfish in Finland. 1, 13.4, 14.1, 14.2, 15.5 and 16 specified herein) to prevent their spread and to combat damage Hogweeds (Heracleum persicum, H. mantegaz- caused by them. zianum, H. sosnowskyi) Rapidly spreading plants that pose a health haz- Dangerous plant pests, known as ‘quarantine spe- ard, causing burn-like and slowly healing skin cies’, were added to the list of particularly harmful symptoms in humans on contact. Hogweed thick- alien species (Table 7). The quarantine species are ets prevent any other plants from growing. all invasive alien species and constitute the ma- jority (37) of the list of particularly harmful al- Spanish slug (Arion lusitanicus) ien species. Existing legislation is already being A rapidly spreading major plant pest among crops applied to quarantine species, and they are being and horticulture, causing significant economic combated using pre-agreed accurately targeted damage. anticipatory measures and eradication measures.7 67 A complete list of quarantine species as defined in [American] mink (Mustela vison) the EU may be found in the relevant Decree of the A small predator that competes with indigenous Ministry of Agriculture and Forestry (17/2008). species and may have contributed to the extinc- tion of the European mink in Finland. Also de- pletes populations of waterfowl and frogs, partic- ularly in the outer archipelago. Japanese rose (Rosa rugosa) photo: terhi ryttäri 7. Plant Health Protection Act (702/2003). PART III Alien species in Finland Particularly harmful alien species, a water mould devastating to the indigenous noble crayfish and damaging to the signal crayfish: Crayfish plague Crayfish plague, caused by a water mould (Aphan- omyces astaci) is a parasitic disease originating in crayfish in North America; it has proved devastat- ing to freshwater crayfish. The disease has spread all over the world with American crayfish species but also migrates internationally carried by indig- enous crayfish species, as in the trade of noble crayfish from Russia to Finland and on to Sweden. Several strains of crayfish plague are known. Two are found in Finland: the old strain affecting no- ble crayfish, which arrived in 1893 (As), and the Signal crayfish and crayfish plague newer strain which arrived with signal crayfish in 1967 (Ps1). The water mould that causes crayfish plague spreads through fungal spores from host to host. Crayfish plague can completely or nearly com- Sexual reproduction has not been identified, and pletely obliterate the indigenous noble crayfish the disease appears to have no other hosts than (Astacus astacus) population of an entire lake freshwater crayfish. The As strain of crayfish or river. The disease rarely causes high mortality plague may remain dormant in an infected popu- among signal crayfish (Pacifastacus leniusculus), lation of noble crayfish, preventing the permanent a species of American origin, but it does reduce recovery of that population. Signal crayfish popu- the yield and the value of the catch. In Finland, lations generally carry the Ps1 strain of crayfish crayfish plague reduces the annual crayfish catch plague and thus almost always prevent the return by an estimated 10 million individuals per year, of noble crayfish to waters which they inhabit. The and to compensate for this signal crayfish have current understanding is that it is impossible to been translocated first to Sweden, then to Finland eradicate crayfish plague unless the entire cray- 68 and later to most European countries. fish population in a particular water system dies out or is otherwise destroyed. photo: Jorma kirjavainen Dangerous plant pest (quarantine species), particu- larly harmful alien species threatening forests: Pine wood nematode Originating in North America, the pine wood nem- atode (Bursaphelenchus xylophilus) first caused widespread damage to pine forests in Japan, hav- ing migrated there with timber in the early 20th century. The species subsequently spread to China and Korea. The species may migrate with timber and packaging material made of wood, but it is unable to travel from tree to tree without an insect vector. The pine wood nematode is carried by bark beetles of the genus Monochamus (pine sawyers); there are three species of this genus in Finland. where in Europe. Finland has a contingency plan Of these, the black pine sawyer (M. galloprovin- in place in case the pine wood nematode enters cialis) has been confirmed as an insect vector in the country, and the European and Mediterranean Portugal, where the pine wood nematode migrated Plant Protection Organisation (EPPO) is updat- with packaging material from China and was first ing its guidelines for pine wood nematode control. sighted in 1999. It is extremely difficult and expensive to eradi- cate the pine wood nematode from a forest once Because the pine wood nematode has caused it has established itself, so anticipatory preven- widespread deaths of pine trees in Portugal and tive measures are the cheapest way of preventing attempts to curb its spread have been unsuccess- damage. ful, precautionary measures have been taken else- photo: tiina lausjärvi FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Table 7. Dangerous plant pests, known as ‘quarantine species’. Dangerous plant pests, known as ‘quarantine species’ (37) insects Cotton whitefly Bemisia tabaci American serpentine leafminer Liriomyza trifolii Colorado beetle Leptinotarsa decemlineata Pea leaf miner Liriomyza huidobrensis African cotton leafworm Spodoptera littoralis Melon thrips Thrips palmi Bakteria Bacterial angular leaf spot of strawberry Xanthomonas fragariae Apple proliferation disease Candidatus phytoplasma Potato ring rot (dark) Ralstonia solanacearum Potato ring rot (light) Clavibacter michiganensis ssp. sepedonicus Fire blight Erwinia amylovora fungi Western gall rust Endocronartium harknessii Oak wilt Ceratocystis fagacearum White rust Puccinia horiana Red stele Phytophthora fragariae var. fragariae Foliar rust Melampsora medusae Brown rot Monilinia fructicola Potato wart disease Synchytrium endobioticum Partial bunt of wheat Tilletia indica 69 Sudden oak death Phytophthora ramorum White pine blister rust Cronartium ribicola Viruses and viroids Beet necrotic yellow vein virus (BNYVV) Beet necrotic yellow vein virus (BNYVV) Cucumber yellow stunting disorder virus Cucurbit yellow stunting disorder virus (CYSDV) (CYSDV) Cucumber vein yellowing virus (CVYV) Cucumber vein yellowing virus (CVYV) Impatiens necrotic spot virus (INSV) Impatiens necrotic spot virus (INSV) Tomato spotted wilt virus (TSWV) Tomato spotted wilt virus (TSWV) Tomato yellow leaf curl virus (TYLCV) Tomato yellow leaf curl virus (TYLCV) Tomato chlorosis virus (TCV) Tomato chlorosis virus (TCV) Potato spindle tuber viroid (viroid) Potato spindle tuber viroid (viroid) Hop stunt viroid (HSVd) (viroid) Chrysanthemum stunt viroid (CSVd) (viroid) Chrysanthemum stunt viroid (CSVd) (viroid) Tomato apical stunt viroid (TASVd) (viroid) Tomato chlorotic dwarf viroid (TCDVd) (viroid) nematodes Root-knot nematodes Meloidogyne spp. Pine wood nematode Bursaphelenchus xylophilus Yellow potato cyst nematode Globodera rostochiensis White potato cyst nematode Globodera pallida PART III Alien species in Finland CHALLENGES BROUGHT BY CHANGES range and vitality depend primarily or only on IN THE OPERATING ENVIRONMENT thermal factors (thermal sum, winter cold) can find regions similar in climate in North Ameri- ca, Eurasia and on other continents. For instance, Climate change many of the species that have proved to be inva- sive alien species in North America are potential- According to the reports of the International Pan- ly harmful species in Europe. el on Climate Change, the changes in the climate will be the greatest in the northern latitudes. Fin- Research indicates that the climate in southern land’s climate may become 2 to 4 degrees warmer Finland between 2021 and 2050 will correspond by the middle of the century. Climate change is to the current climate in Estonia, Latvia, Lithu- anticipated substantially to increase the number ania and parts of Denmark (in terms of thermal of alien species in Finland and the damage they sum and the temperature of the coldest month). cause. Under new climate conditions, the survival Between 2051 and 2080, the climate in southern probabilities of many alien species will improve Finland is expected to correspond to the current to a point where they can colonise a new region. climate in Poland, Denmark and the Netherlands, For instance, a warmer climate may enhance the and even Belgium and central Germany in the ar- breeding potential of a species and reduce natural chipelago and on the south-western coast. The mortality. As the climate becomes warmer, pop- impacts of climate change in Finland will include ulations of already established alien species may the strengthening of populations of already estab- spread further north. Moreover, the impacts of al- lished alien species, the development of new, via- ien species on the natural environment of the des- ble populations, the spread of species to new areas, tination country may change. increased harmful impacts of invasive alien spe- cies, and the entry to Finland of new alien species Aggressively spreading invasive alien species ben- capable of reproducing in the wild. efit more from climate change than the indige- nous species. Successful alien species share char- There are invasive alien species in the Baltic states 70 acteristics such as wide tolerance for conditions and Denmark which have already become estab- in the physical environment, a broad distribution lished in Finland (e.g. the large-leaved lupine, Jap- range, good spreading potential, rapid growth anese rose and [American] mink), or which are and a ‘weed-like’ growing pattern in their origi- currently gaining a foothold in Finland (e.g. gold- nal range. enrods from North America), or which have not yet found their way into the wild in Finland or do Climate change is also affecting the relationships not yet occur in Finland (e.g. the wild cucumber between plants and plant diseases. However, the and multicoloured Asian lady beetle). greatest potential threat from climate change is the arrival of numerous new and unpredictable Several of the invasive alien species whose range diseases, or insects that are disease carriers. Al- is currently limited to central Europe and areas to ien species currently only surviving in greenhous- the south of the Gulf of Finland naturally inhabit es may begin forming populations outside green- areas in North America which are very much like houses that can survive the winter. southern Finland in terms of climate. It is thus to be expected that these species might successfully According to global macroclimate analyses8, atic- migrate north to Finland in the near future. Some ipatory combating of invasive alien species is of 20 of the 100 worst species in the Global Invasive crucial importance. Analyses show that similarity Species database occur in North America or on of climate between the original range and the new other continents in areas similar in climate to Fin- distribution range is just about the only feature land (e.g. the common carp, zebra mussel, Asian that commonly explains why alien species thrive long-horned beetle and grey squirrel). Some of in new areas. Alien species whose distribution the worst invasive alien species listed in the DAI- SIE project (e.g. the tree of heaven, black locust or false acacia, black cherry, pine wood nematode and raccoon) occur in North America in areas 8. Research project: Anticipating the significance of climate similar in climate to Finland. Of the quarantined change in the spreading of species to Finland: Synthesis of research findings and macroclimate comparison (Risto species of plant pest listed by the EPPO, more Heikkinen, Juha Pöyry, Stefan Fronzek, Niko Leikola), than 100 occur in North America in areas simi- 2010. lar in climate to Finland. For many species like FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES this, there are no significant climate limitations to anchor chains of the ship; and so on. Transport their spreading to northern Europe and establish- routes (roads and canals) also enable migration ing themselves as alien species in Finland. of species. It is estimated that in 2020 there will be 1.6 billion Increased international trade and internet international tourists in the world per year, more trade, personal mobility and import of than double the present figure. Tourists are trav- alien species elling increasingly widely, carrying species with them from exotic regions to foreign countries – Increased international trade, transport and trav- Finland not excepted. Tourists and other travel- el increase the responsibilities of the authorities lers may carry many different kinds of organisms responsible for human, animal and plant health. in their shoes, their clothes or their luggage, or on Over the past 15 years, the increase in interna- or in their own bodies (pathogens). Migration- tional passenger numbers in Finland has been related travel is also increasing, as people who more than 100% by air, about 50% by rail and have moved across the world travel to meet their about 20% by sea. The volume of internation- friends and relatives. Species and diseases may al rail goods transports has remained stable, but also be imported for criminal purposes or with the volume of cargo transported by air and by sea the intent of causing harm. Pet smuggling, for in- has increased by about 50%. Online shopping has stance, is a risk of considerable significance. Bio- grown by nearly 200% over the past decade and terrorism is also a possibility attracting increasing continues to grow at an increasing rate. worldwide attention. Trade enables the intentional and unintentional spread of species and diseases. Intentional spread Challenges in the chemical combating of includes imports of alien species for production invasive alien plants and plant pests purposes, for personal use, for sources of bioener- gy, for pharmaceutical purposes, for ornamental Regulation (EC) No 1107/2009 of the European use (garden plants), for biological pest control or Parliament and of the Council concerning the 71 for companionship (pets). Online shopping has placing of plant protection products on the mar- increased greatly in the past years, and it is now ket (also known as the Plant Protection Products relatively easy to purchase live aquarium fish and Regulation) contains stricter criteria for approv- items such as plants and garden plants over the al of active substances of plant production prod- Internet. However, many useful alien species can ucts than the currently valid Directive (EEC) have surprising negative side effects. They may 414/1991. Evaluation of active substances pur- also unintentionally spread other species or dis- suant to the current Directive has already result- eases, either in the imported product, animal or ed in elimination from the market so that of the plant itself or in the packaging used to transport c. 1,000 active substances on the market in 1993 it. In the USA, it is estimated that international only about 250 remain. As a result, many plant trade is the principal entry pathway for invasive protection products that used to be in widespread alien species. In cases between 1980 and 1992 use have been taken off the market, significant- where the pathway for alien species could be de- ly narrowing the range of plant protection prod- termined, 81% had entered the country uninten- ucts available in Finland as elsewhere in the EU. It tionally with imported goods. is to be expected that the range of products will become even narrower, as more active substanc- Means of transport also offer an easy way for alien es will be banned from the market by the Plant species to spread rapidly around the world. Air- Protection Products Regulation. To be sure, the craft are bigger and faster than before. Ships offer chemical industry is introducing new active sub- many different ways for species to migrate. There stances, but at nowhere near the same rate. are plenty of hiding places in the superstructure; there may be rats in the cargo hold; containers The purpose of Directive (EC) 128/2009 of the may contain invertebrates and plant seeds; the European Parliament and of the Council estab- crew and passenger rooms and food may contain lishing a framework for Community action to micro-organisms and plants; the crew and pas- achieve the sustainable use of pesticides (the Sus- senger themselves may be carriers of pathogens; tainable Use of Pesticides Directive) is to reduce the ballast water may contain water animals and the risks and impacts on human health and the plants; still other species may attach to the hull or environment of the use of plant protection prod- PART III Alien species in Finland ucts. The Directive requires Member States to with the Regulation concerning statistics on pes- adopt a National Action Plan to set up objectives, ticides and the amendment to the Machinery Di- measures and timetables for implementing the rective concerning machinery for pesticide appli- provisions of the Directive. Measures to be em- cation, constitute the thematic strategy of the EU ployed include training of pesticide users; test- for the sustainable use of pesticides. ing of distribution equipment; increasing general awareness of plant protection; and rendering inte- Changes in plant production, such as the reloca- grated pest management compulsory, which will tion of horticultural seedling production to oth- increase the use of biological pest control. In Fin- er countries, increase the likelihood that there are land, the Ministry of Agriculture and Forestry has already increasing levels of plant pests resistant to led the preparation of the National Action Plan pesticides present in Finland’s plant production on the sustainable use of pesticides 2010–2020. industry, imported with plant propagation mate- The Plant Protection Product Regulation and the rials. Sustainable Use of Pesticides Directive, together 72 FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES IV FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES ACTION PLAN T he Action Plan implements the Government Resolution on Finland’s National Strategy on Invasive Alien Species (Part I) in line with 5. Set up an early warning and invasive alien species monitoring system. 6. Set up a national risk assessment system for the Strategy proposal1, with certain revisions invasive alien species. made based on the comments received. 7. Increase research into invasive alien species, particularly research that supports risk as- The purpose of the Action Plan is the prevention sessment. and early elimination of the harmful impacts of 8. Establish potential for preventing the entry invasive alien species, which is usually the most of invasive alien species into the country and cost-effective approach. Prevention and early in- for rapid deployment of measures against in- tervention are crucially important for the attain- vasive alien species that have managed to en- 73 ment of the goals of Finland’s National Strategy ter the country. on Invasive Alien Species. 9. Encourage citizens to undertake voluntary measures to combat invasive alien species. 10. Develop funding mechanisms for combating invasive alien species. GENERAL MEASURES CONCERNING 11. Ensure that the transborder migration of in- ALL INVASIVE ALIEN SPECIES vasive alien species through Finland can be prevented. 12. Participate in international action to combat Part III of the Strategy identifies actual and po- invasive alien species. tential direct and indirect harmful impacts of in- vasive alien species in Finland. A variety of meas- Besides the measures concerning all invasive al- ures is required for combating the actual impacts. ien species there is a need measures targeted to General measures affecting several invasive alien specific species, which will be presented further species or groups of same form the foundation of below. These include: the National Strategy, including but not limited to: 13. Address the harmful impacts of invasive 1. Augment the legislation on invasive alien alien­­species in the Baltic Sea and in inland species for comprehensive coverage. waterways. 2. Appoint an expert body to monitor progress 14. Address the harmful impacts of invasive on measures concerning invasive alien spe- alien land vertebrate species. cies. 15. Address the harmful impacts of invasive 3. Introduce publicity and training measures alien land plant species. concerning invasive alien species. 16. Eradicate hogweeds from Finland. 4. Set up an invasive alien species portal online. Actors and a timetable have been assigned for 1. Proposal for a National Strategy on Invasive Alien Species each measure. The timetables for the measures – Working group memorandum MMM 2011:2 (in Finnish) are shown in Figure 1. All these measures are mu- tually supportive (see Figure 2). PART IV Action plan Target timetables for implementing the measures 2012 2013 2014 2015 2016 2017 2018 2019 2020 2030 1. Develop legislation Development preparation 2. Set up an expert and monitoring body Appointment Body in operation (for IAS) preparation 3. Publicity and training Publicity plan Training and campaigns continue 4. Invasive alien species portal Portal setup Portal in use

5.1. Early warning system System development System in use

5.2. Monitoring Intensive monitoring Monitoring focusing on changes Organisation, model development, 6. Risk assessment system initial prioritisations Risk assessment system in use Setting up a research programme and pre- 7. Research paring a plant protection research strategy Research on impacts continues Tools for import, distribution and sales 8. Prepare for preventing entry restrictions and for monitoring of pathways Systems in use 9. Volunteer action Encouraging of actors and support for NGOs 10. Explore and develop funding Alternative sources Leveraging new funding mechanisms mechanisms exploration 11. Ensure that no invasive alien species Measures against designated species spread from Finland 12. International measures Address invasive alien species in international co-operation Implementation of targeted measures against invasive alien species in the Baltic Sea 13.–15. Targeted measures and inland waterways and against invasive alien land vertebrates and plants 74 16. Eradicate hogweeds Eradication project setup, resourcing, organisation and execution Eradicated More detailed timetables for each measure are given in the text. Figure 1: Target timetables for implementing the measures presented in the Action Plan. 1 Augment the legislation on it now stands is incomplete, fragmented and inco- invasive alien species for herent. This complicates the management of risks comprehensive coverage and harmful impacts. Legislative reform will cre- ate a legal basis for action to prevent the spread of an established invasive alien species or to combat Target the harmful impacts of same. Legislation is also The target is that legislation concerning the man- needed to provide for measures that can be rapid- agement of, and the limitation of risks caused by, ly deployed to combat a newly arrived alien spe- invasive alien species is comprehensive and up to cies suspected of being an invasive alien species. date. This development follows and takes into ac- count the preparation work in the EU on invasive Legislation will clarify the responsibilities of and alien species and the related legislative elements. relationships between various actors in combating Legislative development should be based on the invasive alien species, including financial respon- ‘polluter pays’ principle and the precautionary sibilities. This will make practical efforts more ef- principle as defined in the Convention on Biolog- ficient while enabling further development of ac- ical Diversity. tions to minimise the risks of invasive alien spe- cies and to mitigate their harmful impacts. Impacts Although there are provisions concerning alien species in several Acts, the relevant legislation as FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Implementation species whose harmful impacts will proba- A legislation reform will be undertaken to make bly increase as the climate becomes warmer) the provisions concerning invasive alien species should be restricted. There is no list of organ- comprehensive and up to date so that their harm- isms (species) whose import is prohibited (or ful impacts can be prevented and limited. Legisla- allowed). There is no control of the internet tion will be harmonised either by amending exist- trade in alien species. ing legislation or, if necessary, by enacting a spe- cial Act on invasive alien species. The following Under the current system, import licences for issues in particular, emerging in the preliminary animals have to be processed by 3 or 4 dif- work on the Strategy, shall be taken into account ferent authorities, and the process can easi- in the legislative reform: ly take weeks or months. The co-ordination of all import licensing matters provided for Current legislation does not include a com- in the legislation on animal diseases, animal prehensive identification of invasive alien protection, nature conservation and hunting species. For instance, there are no specific should be assigned to a single authority. definitions in law of alien species, invasive al- ien species, particularly harmful alien species Under current legislation, the restriction and or significant harm caused by invasive alien combating of the spread of alien species of an- species requiring particularly strong preven- imal in the wild is complicated by the fact that tive measures. the sustainable use principle currently applies to many invasive alien species. Obviously the Current legislation does not unambiguously principle of sustainable use must be derogat- define the responsibilities and duties of var- ed from in the case of an invasive alien spe- ious authorities nor specify which parties cies. Derogations from statutory hunting sea- are responsible for undertaking measures to sons and from hunting and trapping meth- eradicate invasive alien species. ods allowed by law should also be authorised when combating an invasive alien species. The legislation does not include provisions 75 for all invasive alien species to authorise im- Current legislation does not allow for the mediate action to eradicate a population of a eradication of an animal that has escaped into new invasive alien species as soon as the first the wild and is threatening indigenous popu- sightings of that species in Finland are made. lations. It should be explored in connection Also, legislation does not provide for the suffi- with the legislative reform how such eradica- cient availability of plant protection products tions could be carried out by the authorities in the plant production product register for without reference to land ownership or hunt- immediate deployment in a crisis situation. ing rights. Current legislation does not specify sufficient Current legislation does not address the is- requirements for notification of an invasive sues of feral individuals of alien species, alien species. Current legislation does not cross-breeds or escaped domestic animals. oblige landowners to eradicate an invasive al- The legislative reform should include allow- ien species from their property and does not ing the authorities to eradicate when found in allow the eradication of an invasive alien spe- the wild any feral individual of alien species, cies without permission from the landowner. cross-breed (e.g. a dog-wolf) or feral escaped domestic animal that could breed with a wild Also, current legislation makes no provision species. The provisions regarding cats kept as for a risk assessment and early warning system. pets should be improved to prevent cats from becoming feral (cf. Part III footnotes 2–6) Current legislation does not sufficiently cov- and reducing the harmful impacts thereof. er the sale, offering for sale or distribution of invasive alien species. Importers, sellers and Current legislation does not allow for the pro- users have no liability under law for the in- hibiting of the import, ownership, transfer or tentional spreading of an invasive alien spe- sale as household pets or recreation of cross- cies. The sale and distribution of species bred cats and dogs whose ancestors in the known to be particularly harmful (e.g. hog- previous four generations include wild indi- weeds and similar aggressively propagating viduals. PART IV Action plan Current legislation does not take into account based for instance on EPPO recommenda- that seeds or parts of invasive alien species of tions on the impacts of biological control or- plant may be intentionally or unintentionally ganisms in Europe. The import of alien insect left on the ground or in the soil, causing soil pollinator species shall be monitored. contamination2 or even a hazard to humans or the environment. Seeds of invasive alien Under current legislation, an authority can species of plant may be intentionally or un- require an operator to eradicate plant pests intentionally transferred with earth removals. found in seedling stock, or can take action to Also, land infested by an invasive alien species eradicate them himself, or can impose a mar- may currently be built upon without any ob- keting ban on the seedlings infested by the ligation of eradicating invasive alien species plant pests. However, an authority cannot or- in the soil. der an operator to eradicate plant pests else- where in the environment. Legislation should Current legislation does not require notifi- be amended so as to require businesses mar- cation of fish and crayfish stocking. Conse- keting seedlings to eradicate particular- quently, there is no current information on ly harmful alien species such as the Spanish how alien species are used for stocking or on slug from their properties and to require lo- how these species have spread or are thriv- cal authorities and other landowners to take ing. Legislation should require reporting action to eradicate same at least in those areas on stocking and maintenance of a database on their property that are known to be used (stocking register) regionally and nationally, by said species for concealment and repro- and also stipulate that this information shall duction. be public and how it may be used. Subsidy systems provided for in various Acts Current legislation does not allow for pre- do not contain clear terms and conditions de- venting the spreading of certain alien fish and signed to limit the spread of invasive alien spe- crayfish diseases and parasites to new water- cies. The legislation governing subsidies and 76 ways through fish and crayfish stocking. This funding should be examined and improved is particularly relevant to the transport of fish so as to include provisions conducive to con- and crayfish from the brackish water of the taining the spread of invasive alien species. Baltic Sea to inland waterways and between separate inland waterway systems across bor- Current legislation does not impose sufficient ders to natural migration. Exploring the ex- sanctions. The provisions on sanctions in this tent of this problem would require research area in current legislation are unclear or in- and risk assessment; eradicating the problem complete. Sanctions must be clearly based on would require more advanced methods. If negligence. necessary, the live transfers of fish and crayfish, whether for farming or for stocking, should The legislative reform should take into ac- be provided for in legislation in more detail. count resourcing and the development of new funding sources (see measure no. 10). Legis- There is no EU-level or national legislation lation must enable the use of new, applicable governing the use of alien organisms in bio- sources of funding. logical control or the import and use of alien species of insect pollinators, except for the A proposal on the legislative reform will be pre- animal health and plant health requirements pared ex officio by officials and experts, and cir- on the import of bees. The need for legislation culated for comment. concerning organisms used in biological con- trol must be evaluated, and if necessary legis- Actors: Ministry of Agriculture and Forestry, lation shall be enacted concerning the import Ministry of the Environment, Ministry of Trans- of and internal market trade in these organ- port and Communications and experts. isms. First, however, the availability of biolog- Timetable: 2012–2015. ical control in Finland must be investigated, 2. ‘Soil contamination’ here does not refer to the presence of toxic chemicals in the soil but rather biological infesta- tion caused by plants. FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES 2 Appoint an expert body to monitor The Invasive Alien Species Body will have progress on measures concerning the following duties: invasive alien species • to co-ordinate, harmonise and promote the implementation of the National Strate- Target gy on Invasive Alien Species and related The target is to create an expert body tasked with legislation, handling issues related to invasive alien species • to be the national focal point for the EU and to manage the monitoring and progress of work on invasive alien species together measures addressing same. with the Ministry of Agriculture and Forestry, • to make submissions to the relevant au- Impacts thorities for measures to combat the risks The expert body to be appointed will be a co-op- and harmful impacts of invasive alien spe- erative body streamlining the handling of issues cies, related to invasive alien species and addressing • to deploy rapid response measures against the formulating of consistent policy for instance invasive alien species as necessary, with in EU-level negotiations. The body will support the relevant authorities, development of action to cope with invasive alien • to assist the relevant authorities in han- species. The body will incur certain administra- dling special issues related to invasive al- tive costs but may turn out to conserve resources ien species, for instance when measures to as well in creating a more organised and stable be undertaken would have financial im- network for dealing with issues related to invasive pacts on businesses, alien species. • to commission risk assessments and to use them for drawing up a species list for instance of pets allowed to be imported, Implementation preparing from time to time lists of spe- The body will be attached to the Ministry of Ag- cies of organisms whose import is subject 77 riculture and Forestry. The Government will ap- to a permit, and to manage the monitor- point the Invasive Alien Species Body on submis- ing of invasive alien species risk assess- sion by the Ministry of Agriculture and Forest- ment, ry for a period of five years at a time. The Body • to maintain, update and confirm lists of will have a chairman, a deputy chairman, regu- invasive alien species, lar members and deputy members. These mem- • to co-operate closely with parties respon- bers shall include representatives at least of the sible for maintaining the national invasive Ministry of Agriculture and Forestry, the Minis- alien species portal online, try of the Environment, the Ministry of Transport • to prepare statements and reports to Finn- and Communications, the Finnish Environment ish and international authorities, Institute, the Finnish Game Centre, the Finnish • to develop innovative funding approaches, Food Safety Authority Evira, research institutions and (Finnish Game and Fisheries Research Institute, • to manage the monitoring of invasive al- Finnish Forest Research Institute, MTT Agrifood ien species and the National Strategy: Research Finland), universities, the Finnish Mu- • monitoring of invasive alien species (in- seum of Natural History, Metsähallitus, local and cluding changes in distribution range regional actors (Centres for Economic Develop- and harm caused), ment, Transport and the Environment, region- • monitoring of implementation of the al councils, local authorities), the horticulture National Strategy, sector, operators, and environmental and other • monitoring of the effectiveness of com- NGOs. The Body must also have members with bating measures, and ethics expertise. • identifying needs for research. The Body may appoint sub-committees. The Actors: Ministry of Agriculture and Forestry, Body will have a general secretary assisted by ex- Ministry of the Environment, Ministry of Trans- pert secretaries in various fields requiring expert port and Communications. knowledge, for instance in risk assessment. Timetable: Preparations to appoint the Body are launched in 2012. PART IV Action plan 3 Introduce publicity and training Implementation measures concerning invasive alien species 3.1 Draw up a publicity plan A publicity plan concerning invasive alien species will be drawn up to support the implementation Target of the National Strategy. The target is to employ publicity, training and guidelines to raise awareness of invasive alien Actors: Ministry of Agriculture and Forestry and species among key actors. This will increase their Ministry of the Environment (responsibility for awareness and knowledge of the harm caused by drafting) together with various actors. invasive alien species and improve their skills and Timetable: 2012. their motivation to take action against them.

3.1.1 Draw up guides on invasive alien species Impacts for various actors Publicity and training will be used to major ef- A basic guide on invasive alien species will be fect in the implementation of the National Strat- written. This guide will contain instructions on egy on Invasive Alien Species and its Action Plan. how to identify invasive alien species, with pic- Increasing publicity and training on invasive al- tures, and details on measures to combat them. ien species will raise awareness of the related risks, The guide will be intended both for professionals which will contribute to the prevention of harm- and for ordinary citizens. The basic material will ful impacts, support the implementation of re- also be published online, and the guide will later strictions and increase understanding of the ne- be linked to the invasive alien species portal on- cessity of robust action. Maintaining the impact line. of measures taken requires continuous public- ity and training under changing circumstances. Based on the basic guide, a guide on how to rec- For instance, publicity and training must high- ognise the most harmful alien species will be pre- 78 light information on the new invasive alien spe- pared for professionals such as Customs officials, cies that may spread to Finland because of climate the expertise of Customs personnel in identifying change and globalisation (e.g. increased travel), invasive alien species will be improved to simplify the harmful impacts of those species and the in- border checks and to prevent the entry of invasive creased risks of invasive alien species already es- alien species to Finland. tablished in Finland. Various actors will prepare other special guides The measures require targeted resources, although aimed at specific user groups, based on the basic some of the costs can be absorbed in other pub- guide (e.g. horticulturalists, road building con- licity and training. NGOs and advisory organisa- tractors). tions may also be employed in publicity and train- ing activities. Costs will be incurred by authori- Actors: Ministry of Agriculture and Forestry, ties, research institutions and private actors. The Ministry of the Environment, Finnish Environ- cost liabilities will be allocated in the revised leg- ment Institute (responsibility for drafting the ba- islation, which would also provide for responsi- sic guide) together with various actors. Various bilities for publicity and other duties. The costs of actors will draft the special guides. these measures will be negligible compared with Timetable: 2012–2013. the reduction in risks that can be achieved. This measure may contribute to increased gener- 3.1.2 Launch and run targeted campaigns al environmental awareness as a by-product. Its Targeted campaigns and other publicity for the negative impacts may include the targeting of vol- general public will be organised concerning in- untary action at harmless species resembling in- vasive alien species, their harmful impacts and vasive alien species. measures to combat them. National theme days will be held on current issues related to invasive alien species, and information will be provided at forestry, hunting and fishing, horticulture and pet fairs. FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Publicity concerning pets and good practices in ish Museum of Natural History (museums also in keeping pets will be organised (veterinarians, cit- Turku, Oulu, Eastern Finland, Jyväskylä) and the izens). Pets bought online and imported will be terminology committee of the Finnish Entomo- given special focus. logical Society (operations responsibility), no- menclature commissions of the Biological Society Instructions and bulletins will be used to guide of Finland Vanamo, names sub-committee of the choices of garden plants, aquarium animals and Plant Protection Society. plants, and other organisms closely connected Timetable: 2012–2014. The updating of names is with human activities from problematic alien an ongoing process. species towards less harmful species whose im- pact will probably not increase even with climate change. 3.2 Develop training concerning invasive alien species Actors: Ministry of Agriculture and Forestry, Specific training concerning invasive alien spe- Ministry of the Environment (campaign co-ordi- cies will be developed, and invasive alien species nation); Finnish Environment Institute, national will be included as a theme in other types of train- road administration, NGOs, Finnish Museum of ing. Natural History (museums also in Turku, Oulu, Eastern Finland, Jyväskylä), public gardens, Cen- tres for Economic Development, Transport and 3.2.1 General education the Environment (communications to the gener- Invasive alien species will be included in the na- al public, organising targeted campaigns); Finn- tional core curriculum for biology and sustaina- ish Museum of Natural History (museums also in ble development studies in comprehensive school Turku, Oulu, Eastern Finland, Jyväskylä), animal and upper secondary school. welfare organisations and zoos (Korkeasaari) (in- formation campaigns related to pets and the in- Teaching materials concerning invasive alien spe- ternet pet trade); Finnish Food Safety Authority cies will be prepared for schools. Evira (information campaigns related to pets and 79 the internet pet trade). Actors: National Board of Education (responsibil- Timetable: 2012– (ongoing). ity for co-ordination and preparation). Timetable: 2012– (ongoing).

3.1.3 Draft a publicity strategy for plant production professionals 3.2.2 Vocational education A national publicity co-ordination group for plant The invasive alien species theme will be added to pests and weeds will be set up to prepare a plant the qualification requirements for relevant qual- protection publicity strategy aiming at plant pest ifications (e.g. the Vocational Qualifications in and weed control; its implementation will be Natural and Environmental Protection, Agricul- monitored and the effectiveness of the publicity ture, and Horticulture; and the related further evaluated by the Advisory Board for Plant Pro- vocational qualifications and specialist qualifica- tection. tions) and to the natural resources curriculum (agriculture, forestry, horticulture, fisheries, etc.). Actors: Ministry of Agriculture and Forestry, Training will also be provided for current actors Finnish Food Safety Authority Evira (responsibil- and authorities (Customs, bodies requiring risk ity for drafting) together with various actors. assessment). Timetable: 2012–2013. Teaching materials concerning invasive alien spe- cies will be prepared for schools and vocational

3.1.4 Draw up a list of names in Finnish and education institutions. Swedish for alien species in Finland Official names in Finnish and Swedish will be de- Actors: National Board of Education (responsibil- vised for those alien species that do not yet have ity for steering and drafting). one. Timetable: 2012– (ongoing). Actors: Finnish Museum of Natural History to- gether with the Invasive Alien Species Body, Finn- PART IV Action plan 4 Set up an invasive alien species National Strategy and the implementation of the portal online Action Plan while also contributing to Finland’s fulfilment of international obligations as follows: There are already information-gathering systems 1) The portal will help in the prevention of inva- in place at many organisations and institutions sive alien species and will assist the authorities (e.g. the Finnish Environment Institute, the Finn- in planning and executing combating measures. ish Game and Fisheries Research Institute and The portal will support local efforts by providing the Finnish Natural History Museum) for noti- a practical tool for publicity, discovering popula- fications by citizens, authorities, etc. concerning tion locations and issuing instructions for com- sightings of species and natural phenomena, col- bating measures. lected for their own purposes and for the purpos- es of their respective sectors. However, these sys- 2) The portal will help monitor invasive alien spe- tems neither emphasise alien species nor differ- cies, and the sighting data collected there will help entiate sightings of alien species from findings of study their spread and proliferation. The portal indigenous species, and as such these systems are will help detect the migration of invasive alien inadequate for the immediate needs of the moni- species to new areas and to take measures against toring of invasive alien species. them while it is still possible. The portal will also help in evaluating the impact of combating meas- ures undertaken. Target The target is that the relevant and up-to-date in- 3) The portal will support publicity, training and formation needed in Finland for publicity, risk as- education aimed at the general public. Collecting sessment, monitoring and combating measures information on invasive alien species in a one- related to invasive alien species will be available at stop shop will benefit authorities, researchers, na- one location. Another target is to create a system ture conservation organisations, teachers and or- where information on invasive alien species can dinary interested citizens. 80 easily be received and distributed. Information will also be available on the location and extent 4) The portal will help in risk assessment and in of species populations and of combating meas- the development of an early warning system. ures taken nationwide, so that combating meas- ures can be implemented in the right place at the The portal is expected to be highly effective: cit- right time. izens will have a single source for information and notifications; regional authorities will have a The portal will serve several of the measures out- straightforward reporting channel; scientists will lined in Finland’s National Strategy and their im- have reliable and up-to-date information on pro- plementation. The portal will be a notification jects involving invasive alien species; and those and reporting tool that shall be linked to special popularising scientific findings and the media websites maintained by other organisations so will have a useful, error-free and up-to-date con- that all observations by people and bodies repre- sistent information source for national and inter- senting different interests and areas of activity can national reporting, situation reports and legisla- be gathered together in as user-friendly a manner tion preparation. as possible. Implementation Impacts Because of a lack of up-to-date information and 4.1 Set up an invasive alien species portal online the disparate nature of the information that is An invasive alien species portal will be set up for available, invasive alien species and their harmful the use of authorities, experts, citizens and other impacts are not generally well known, and moni- actors. The portal will serve as a channel for re- toring and combating measures addressing them porting sightings and as an online guide for iden- are sporadic and ineffective. For many invasive al- tifying the most harmful alien species. ien species no action is taken against them at all. Setting up the portal and keeping it up to date re- The invasive alien species portal will substantial- quire targeted resources. It is possible to apply for ly help the attainment of the targets of Finland’s project funding for this development, but it must FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES also be ensured that continuous funding will be The goal is to improve monitoring and thereby available for maintaining and updating the portal. to improve methods for sighting invasive alien species, determine which regions require focus The portal will contain lists of invasive alien spe- in monitoring, and to explore the impacts both cies and potentially or locally harmful alien spe- of invasive alien species and of measures taken cies, an informative description of each, aids for against them. species determination, combating measures, pho- tos, up-to-date distribution range maps and con- tact information for the responsible authorities. Impacts Sightings of invasive alien species can be submit- A well-functioning early warning system will no- ted through the portal, using a simple map inter- tify the authorities of the occurrence of an inva- face. The data in the portal must be based on gen- sive alien species very quickly. The early warning uine scientific research, it must be possible to up- system will enable anticipatory prevention meas- date the data, and the portal must allow for a vari- ures to be taken and, if necessary, rapid response ety of search functions. measures to be deployed to prevent or contain any damage. Monitoring and other collecting of The portal will form part of the online communi- information will increase our understanding of cations concerning invasive alien species and as the actual risks or threats caused by invasive alien such will be closely connected with invasive alien species. At the same time, we will be better able to species communications and the related publicity­ prevent or combat harmful impacts with appro- plan. priate and timely measures. Monitoring will also generate information for evaluating the effective- Appendix II describes how the invasive alien spe- ness of measures and, as necessary, for reorient- cies alert function operates through the invasive ing them. alien species portal, together with recommenda- tions on the information content and functions of The costs of the monitoring will be determined by the portal. how the early warning system is set up and how comprehensive it is. Costs may be limited by add- 81 Actors: Ministry of the Environment, Ministry ing monitoring of invasive alien species as a func- of Agriculture and Forestry and Finnish Envi- tion to other monitoring systems, by focusing ronment Institute (setting up the portal) together monitoring on what risk assessment shows to be with the Invasive Alien Species Body; Finnish En- the most likely pathways for invasive alien species, vironment Institute, Finnish Museum of Natural and making use of volunteers in monitoring. The History (museums also in Turku, Oulu, Eastern proposed invasive alien species portal may help Finland, Jyväskylä) together with research insti- carry out the monitoring in a cost-effective way. tutions (updating). However, setting up and maintaining the system Timetable: 2012–2014. The updating is an ongo- will require continuous resourcing. ing process. Anticipatory prevention measures can stop in- vasive alien species from spreading before they have a chance to establish viable populations over 5 Set up an early warning and a large area. Prevention requires preparedness invasive alien species monitoring and the capacity to allocate resources where and system when required. Preparedness naturally ties down resources, but costs can be kept at a moderate lev- el if this can be integrated with other monitoring Target functions. The target is to set up Finland’s national early warning system for invasive alien species. The na- tional early warning system will provide informa- tion as up to date as possible on the invasive alien species situation in Finland and will allow the de- tection of the entry of new alien species at an ear- ly stage. The system will include an alert function designed to detect the entry of new invasive alien species as early as possible. PART IV Action plan Implementation • Monitoring will be focused on 1) species and 2) pathways. Species monitoring

5.1 Create a national invasive alien species early will involve monitoring of the number of warning and prevention system for Finland and species and their populations, population strengthen the potential for anticipatory preven- development, occurrences and the im- tion pacts of alien species. Special attention A national invasive alien species early warning will be paid to invasive alien species and and prevention system for Finland will be cre- alien species already established in Fin- ated, modelled on systems being designed or al- land, and how their distribution range is ready in use elsewhere in the EU. The early warn- evolving. Species monitoring will be based ing system must contain a variety of components, on the list of invasive alien species incor- including surveillance and monitoring functions, porated in this Strategy. Pathway monitor- identification of arriving alien species, risk assess- ing will focus on new and potentially ment, communications between the relevant au- harmful alien species that may become thorities, selection of measures deployed (based established in Finland and on the identi- on the contingency plan), and procedures and re- fication of new species, and preventing sources for rapid eradication measures. the entry of species into the country. ­ Pathway monitoring will be based on the Actors: Ministry of the Environment, Finnish list of potentially or locally harmful alien Environment Institute (co-ordination) togeth- species incorporated in this Strategy. er with the Invasive Alien Species Body; Finnish • Indicators useful for monitoring will be Environment Institute (setting up the system as developed, e.g. the luonnontila.fi website part of the invasive alien species portal) together in accordance with existing indicators. with national actors such as the Finnish Museum The use of indicator groups in the moni- of Natural History (museums also in Turku, Ou- toring of impacts will be agreed on. lu, Eastern Finland, Jyväskylä) together with the • Research will be undertaken to support Finnish Forest Research Institute, Finnish Forest- monitoring, particularly in the develop- 82 ry Center, forest management associations, and ment of monitoring the impacts of alien with international bodies. species. Timetable: 2013–2015. • Co-operation in reporting will be pursued, and agreements will be made regarding the conveying sighting databases and in-

5.2 Develop the current species monitoring sys- ventory reports concerning alien species tem to incorporate invasive alien species detec- compiled by scientific societies to the rele- tion vant authorities and to the invasive alien General detection, monitoring and reporting in- species portal. structions concerning alien species will be pre- • An expert network will be set up to sup- pared, introduced and distributed to various ac- port early detection, monitoring of distri- tors. Plans will be prepared and executed for the bution and occurrence, and taxonomic detection of invasive alien species and for the expertise. monitoring of their occurrences. Areas not cov- • The continuity of the present species mon- ered by systematic monitoring will be identi- itoring work is secured. In Finland and fied, and the potential for improving alien spe- especially at the universities there are cies detection and reporting will be explored. For several actors who conduct active re - instance, alien species detection and reporting search on systematics and taxonomy and could be added to the obligatory monitoring of follow the changes in the species found surface waters under law. Shortcomings in spe- in Finland. Contacts must be established cies data will be identified. abroad regarding taxonomic groups for which expertise cannot be found in • Monitoring efforts will focus on leverag- Finland. ing existing, established monitoring pro- cedures. The monitoring method(s) best Monitoring must be intensive over the first few suited for monitoring of invasive alien (2–4) years, while the current state of the occur- species will be investigated. rence of alien species is being investigated. There- after, monitoring is meant to be focusing on changes, i.e. monitoring the alien species inven- FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES tory and the impacts of alien species and of pre- involves estimating how harmful these species are vention measures. and what measures are available to combat them. Risk assessment and evaluation of measures to Actors: Invasive Alien Species Body (co-ordina- be taken against risks help choose the risk man- tion), Finnish Environment Institute (species in- agement measures that are the best for society at ventory monitoring, links to invasive alien spe- large. Risk assessment supports preparedness and cies portal), Metsähallitus (nature conservation anticipatory planning of prevention measures. areas), Finnish Game and Fisheries Research In- Risk assessment enables us stitute (game, fish and crayfish species, aquacul- ture), Finnish Food Safety Authority Evira (spe- • to allocate existing resources to control- cies inventory and occurrence monitoring), Cen- ling the species which cause the greatest tres for Economic Development, Transport and risks or which can be cost-effectively con- the Environment (species inventory monitoring, trolled, materials related to combating measures), Finn- • to allocate existing resources to cost-effec- ish Museum of Natural History (museums also in tive control measures (including anticipa- Turku, Oulu, Eastern Finland, Jyväskylä), Finnish tory prevention) for each species, Forest Research Institute, Finnish Forestry Center, • to help guide choices made by individual forest management associations (species inven- actors (e.g. importers), and tory monitoring), local authorities (occurrence • to support species-specific or measure- monitoring) and NGOs (e.g. hunting and fishing specific contingency planning. locations). Timetable: 2013–2015: intensive monitoring of Risk assessment produces more information and species inventory and occurrences; 2015– (ongo- certainty about harmful impacts; at the moment, ing): monitoring of changes. comparative evaluation of how harmful invasive alien species are is based on evaluations made by experts. Risk assessment performed using con- sistent methods is conducive to the efficient use 6 Set up a national risk assessment of existing resources and saves on social costs. 83 system for invasive alien species Risk assessment also raises awareness of the prob- lem with invasive alien species and is thus a con- trol measure in and of itself, helping to reduce the Target overall risk caused by invasive alien species. Risk The target is to improve the capacity for evaluat- assessment helps focus research on particularly ing the risk posed by alien species and risk man- risky species. agement measures urgently if necessary. If a risk assessment procedure were made com- pulsory, this would increase the direct costs of Impacts importing alien species, but the results of the as- Risk assessment is crucial for the control of inva- sessments could help avoid very high costs later. sive alien species. The purpose of risk assessment In accordance with the ‘polluter pays’ principle3, is to identify and describe the hazards related to those profiting from such imports should be li- the entry into the country of specific invasive al- able at least in part for the costs of the risk as- ien species and to assess the probabilities of their sessment. Allocating the costs of risk assessment establishment and spreading. The assessment also for unintentional import of alien species is less straightforward. The fair distribution of liabilities and responsibilities requires a general risk assess- ment of various functions. 3. Under the ‘polluter pays’ principle, anyone who damages the environment is liable for the costs incurred through prevent- ing that damage or through correcting or compensating for it. The Environmental Liability Directive 2004/35/EC was the first piece of EU legislation to incorporate the ‘polluter pays’ principle as a governing legal principle. This Directive creates a common liability system designed to prevent and correct damage caused to animals, plants, habitats, water resources and soil. The environmental liability system is applied on the one hand to specifically defined professional activities and on the other hand to any professional activities where the operator has been negligent or careless. The authorities are also required to monitor that the operators liable for compensation either implement the preventive or corrective measures themselves or pay for others to do so. PART IV Action plan Implementation • a classification of alien species by various criteria (e.g. ecological, economic, health,

6.1 Create a consistent alien species risk assess- social and aesthetic impacts). ment procedure for Finland There is no systematic risk assessment procedure Risk analysis is a continuous process in whose for alien species in Finland. A national procedure development the beginning stages (organising will be created, consisting of a three-stage risk as- the­system, developing a prioritisation model, sessment for alien species, provided for in the leg- screening and prioritisation evaluations at the be- islation on invasive alien species. ginning, etc.) are very important. The system will require sufficient resources to work. It is impor- At the first stage of this procedure, the species to tant to build up methodological competence in be included in the procedure will be selected on risk management as well as species expertise for the basis of the invasive alien species portal, the the long term so that the best expertise will al- early warning system and expert evaluations. At ways be available to risk assessment personnel for the second stage, these species will be classified evaluating any acute hazards. Population moni- according to their risks, using a prioritisation toring and detection of eventual new risks are al- model to be developed separately. At the third so needed. stage, risk assessments will be conducted as nec- essary on the species assigned the highest priority. Appendix IIIa contains a more detailed descrip- Risk assessments may also be conducted separate- tion of the risk assessment procedure. ly for individual species, groups of species, partic- ular sectors or particular pathways. Actors: Ministry of Agriculture and Forestry (per- formance guidance of MTT Agrifood Research To implement the risk assessment procedure, the Finland, Finnish Game and Fisheries Research risk assessment unit at the Finnish Food Safety Institute, Finnish Forest Research Institute, Finn- Authority Evira will be developed by allocating an ish Food Safety Authority Evira) and Ministry of additional resource of two person-years. Also, a the Environment (performance guidance of Finn- 84 list of experts on points to be considered in risk ish Environment Institute); Finnish Food Safety assessment will be compiled for later use. Authority Evira (risk assessment); MTT Agrifood Research Finland, Finnish Game and Fisheries Risk assessment should, if possible, be a standard- Research Institute, Finnish Forest Research Insti- ised process taking into account the relevant in- tute and Finnish Environment Institute (research ternational guidelines in each case (e.g. the OIE needs related to risk assessment). and IPPC standards). Also, EU-level risk assess- Timetable: 2013–2015: organising the system, ment recommendations will be observed for in- developing a prioritisation model, screening and stance in connection with the EU work on inva- prioritisation evaluations at the beginning; 2013– sive alien species. (ongoing): analysis. Implementing the national risk assessment proce- dure requires: • development of expertise related to risk 7 Increase research into invasive assessment on invasive alien species, alien species, particularly • a register of experts, research that supports risk • invasive alien species monitoring, assessment • potential for undertaking urgent risk as- sessments as necessary, • a system for collecting, distributing and Target monitoring information on invasive alien The target is to increase knowledge of invasive al- species (portal) where data needed for risk ien species and their harmful impacts. assessment are readily available and which enables the results of risk assessments and consequent recommendations to be dis- Impacts tributed rapidly to various user groups, By improving our knowledge of invasive alien and species, we will support the development of risk assessment, early detection of alien species and planning of combating measures. Knowledge of FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES the distribution of species is a key competence, Finland, Jyväskylä), NGOs (responsibility for re- because it is on the basis of this that legislation search/operations). will be enacted and approaches determined (erad- Timetable: 2012–2016: research programme; ication, combating, prevention of spread, adapta- 2013– (ongoing): research on impacts. tion). Resources spent on research could thus trans- 7.2 Prepare a plant protection research strategy late into significant savings down the line in in- A national plant protection research strategy will vasive alien species control. Invasive alien species be prepared, taking into account joint research research may also yield new information on the opportunities at the EU level and international- spreading dynamics of species and populations ly. The plant protection research strategy will be and on factors affecting it. This would be of more appended to the national plant protection strat- general interest for instance in evaluating the im- egy, and its implementation will be monitored on pacts of climate change. an annual basis by the Advisory Board on Plant Protection. The following research needs emerg- ing during the preparation of Finland’s National Implementation Strategy on Invasive Alien Species will be taken into account when preparing the research strat-

7.1 Set up an invasive alien species research egy: programme and launch an impact study A proposal will be made to the Academy of Fin- • Benefits of and implementation potential land regarding an invasive alien species research for increasing testing of symptom-free programme either independently or as part of the seed potatoes, and other potential for con- biodiversity research programme. Invasive alien trolling potato diseases. species research could be included in a variety of • Phytosanitary situation in organic cultiva- programmes (e.g. METSO, Life+), and project tion and seeds, and needs for research and proposal rounds could be organised specifically supervision; seed-borne diseases, weeds for invasive alien species research. EU research and plant diseases in organic production; 85 funding has also been allocated to invasive alien and, particularly, invasive species threats species research, and Finnish scientists should concerning organic cultivation and take an active role in European research consor- through this conventional cultivation (im- tiums. ported seeds, ‘TOS’ or certified seeds, ab- sence of plant protection substances). Research on the impacts of invasive alien species • Charting of the prevalence and spread of and the extent of those impacts will be begun for species that are significant vectors for the most common invasive alien species and for plant diseases (e.g. Hemiptera species, those alien species which adversely affect biodi- particularly aphids, scale insects and true versity or which are suspected of causing indirect bugs; Trichodorus and Longidorus bugs; impacts in the natural environment that are not Monochamus longhorn beetles). yet well known. • Development of preparedness and meth- ods for combating new significant plant Research will be begun on the cost-effective tar- pests (including biological control), with geting of combating measures and their effective- a selection based on legislation and pre- ness (e.g. small predators) and for instance on dictions made by MTT Agrifood Research how to find species and variants to replace inva- Finland; this includes points such as keep- sive alien plant species. ing knowledge of combating procedures constantly up to date and engaging the au- Actors: Invasive Alien Species Body (targeted thorities and research bodies in close co- round of research applications), Ministry of Ag- operation. riculture and Forestry, Ministry of the Environ- ment and Ministry of Transport and Communi- Actors: Ministry of Agriculture and Forestry and cations (targeted round of research project appli- Finnish Food Safety Authority Evira together cations), research institutions, universities, Cen- with MTT Agrifood Research Finland, the Finn- tres for Economic Development, Transport and ish Forest Research Institute, universities and oth- the Environment, Finnish Museum of Natural er interest groups (research). History (museums also in Turku, Oulu, Eastern Timetable: 2012–2015. PART IV Action plan 8 Establish potential for preventing weeds for ornamental purposes (see measure the entry of invasive alien species no. 1). Import of species will be restricted and into the country and for rapid supervised by prohibiting entry and by estab- deployment of measures against lishing trade rules based on international inva- invasive alien species that have sive alien species monitoring (DAISIE, NOBAN- managed to enter the country IS) through amendments of regulations and im- proved supervision of imports (import licences, customs inspections), and by improving warning Target markings for species on sale. The target is to prepare for the combating of in- vasive alien species by drawing up contingency Measures will be taken, taking the precaution- plans whereby new measures will be introduced ary principle into account, to ensure that no alien to limit the entry into and spreading in Finland of species that may have an impact for instance on invasive alien species. The contingency plans will biodiversity will be imported to Finland for bio- also specify rapid response measures for combat- fuel production. ing invasive alien species that manage to enter the country. Measures will be developed to control online commerce to restrict unlimited imports of alien Action can be taken immediately against invasive species. Efforts will be made to establish trade alien species to minimise their damage. Measures and import rules within the EU. will be targeted appropriately with regard to both species and the action taken. Anticipatory pre- The setting up of a system to compensate busi- vention against the entry into Finland of invasive nesses for any financial losses incurred for in- alien species and potentially harmful alien spe- stance through investments made in the produc- cies will be undertaken, and potential for prevent- tion of subsequently banned species will be ex- ing the entry into Finland of potentially harmful plored. alien species will be created. 86 Actors: Ministry of Agriculture and Forestry, Ministry of the Environment and Ministry for Impacts Foreign Affairs (legislation, EU trade and import Species known to cause harm will be brought bet- rules), Finnish Food Safety Authority Evira (in- ter under control and the spreading of their harm- spections and import licences), MTT Agrifood ful impacts thus limited. Increasing monitoring Research Finland (research), Agency for Rural and active measures along potential pathways of Affairs (pathways for uninspected seeds, and im- invasive alien species will reduce the risk of entry. port volumes), National Board of Customs (im- port licences, inspections, supervision), Ministry Contingency plans can help target resources to of Employment and the Economy (biofuels). relevant species and pathways while enabling rap- Timetable: 2012–2016. id response measures to be taken to combat an invasive alien species immediately after its entry into the country is detected. Risk assessment sup- 8.2 Enhance measures for limiting the spread of ports contingency planning. invasive alien species with ships The International Convention for the Control and Measures bind resources. By targeting measures Management of Ships’ Ballast Water and Sedi- appropriately, the additional cost can be consid- ments will be ratified, and its provisions com- ered moderate in view of the lowered invasive al- plied with and compliance supervised. Principal ien species risks and the benefits of rapid combat- Finnish ports with international operations will ing measures that will be achieved. be required to monitor species inventories, and the terms and conditions of their environmental permits will include a clause to this effect. This Implementation action will be taken to the international level through HELCOM, the purpose being to prevent

8.1 Restrict the import, sale and distribution of the migration of alien species into the Baltic Sea intentionally imported invasive alien species through canals. Finland will participate in the ef- Legislation will be enacted to prohibit the sale of forts of the International Maritime Organisation specific invasive alien plant species such as hog- (IMO) to prevent the spread of species that attach FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES to the hulls of ships. Voluntary instructions will up for species entering the country and the most be prepared first, possibly followed by interna- harmful species so that measures against them tionally binding legislation at a later date. Sepa-can be deployed rapidly if possible. Particular at- rate instructions will be prepared for boating. tention will be paid to new invasive alien species with a high probability of establishing themselves Actors: Ministry of Transport and Communica- in Finland, such as: tions (coordination), Ministry of the Environ- ment and Finnish Transport Safety Agency [Trafi] • species which are relatively new arriv- (ratification proceedings, instructions, regula- als in Europe but which have already tions for shipping), Regional State Administra- proven to be aggressively spreading prob- tive Agencies (environmental permits), Centres lem species and which have a broad natu- for Economic Development, Transport and the ral range of distribution (e.g. the multicol- Environment (monitoring of ports), boating and oured Asian lady beetle), sailing associations (responsibility in own opera- • alien species spreading to Finland from tions). areas which global climate comparisons Timetable: Ratification of the Ballast Water Con- indicate have a climate similar to that of vention in 2012; other operations and monitoring Finland, there being no climate restric- are ongoing. tions to their establishment and survival in the wild in Finland, and • species whose risk of entry into the coun-

8.3 Investigate pathways and improve pathway try or potential for causing harm is as- surveillance sessed as being high. The pathways, volumes and plant species of un- inspected seeds (online trade, bird seed, meadow Actors: Invasive Alien Species Body (responsible seed mixes, game feeding ground seed mixes) and for co-ordination), MTT Agrifood Research Fin- the need for monitoring will be investigated. At- land (research), Finnish Environment Institute tention will be paid to the surveillance of path- (research and invasive alien species portal), Finn- ways of invasive alien species in connections with ish Forest Research Institute (research), Finnish 87 goods inspections conducted by Customs. For Game and Fisheries Research Institute (research), each pathway, a responsible body will be desig- Finnish Food Safety Authority Evira (risk assess- nated for ensuring that the existence of migration ments). routes (trade, transport, construction, etc.) does Timetable: 2012– (ongoing). not promote the spreading of invasive alien spe- cies. See also special risk assessments (Appendix IIIa). 9 Encourage citizens to undertake Regionally important migration routes and path- voluntary measures to combat ways for invasive alien species within the country invasive alien species will also be studied. Actors: Invasive Alien Species Body (responsi- Target ble for co-ordination), National Board of Cus- The target is to engage citizens in volunteer action toms and import authorities together with Finn- to combat invasive alien species in their imme- ish Food Safety Authority Evira (investigations). diate environment. The potential of NGOs to en- Timetable: 2013–2016. gage large numbers of citizens in implementing Finland’s National Strategy on Invasive Alien Spe- cies will be leveraged.

8.4 Strengthen anticipatory prevention Resources will be allocated to anticipatory pre- vention of invasive alien species. Precautionary Impacts measures will be aimed at functions and mecha- Volunteer action will increase general awareness nisms through which species could migrate from of the problems with invasive alien species, which specific areas to Finland, examples being the hor- in turn will improve early detection of same and ticulture trade, the transport of household ani- may also restrict their spreading. NGOs are an mals and pets, and the wood trade. The probable important potential provider of information in approach is that contingency plans will be drawn the charting and monitoring of invasive alien spe- PART IV Action plan cies. Local eradication campaigns undertaken ing available to NGOs will be compiled, and pro- by volunteers can be organised more cost-effec- ject funding opportunities related to invasive al- tively and implemented more affordably through ien species will be developed for instance in EU NGOs than solely through action taken by the au- single programming documents, regional devel- thorities. opment programmes and municipal environmen- tal programmes. This action requires a well-functioning communi- cations system ensuring information-driven vol- NGOs will be encouraged to participate in the unteer operations. Such action can be made more preparation and implementation of Finland’s Na- long-term and systematic by promoting co-op- tional Strategy on Invasive Alien Species and local eration between NGOs and the authorities. This treatment plans. requires the authorities to invest resources in co- operating with NGOs, and the organisation of Actors: Ministry of Agriculture and Forestry and volunteer work may likewise require active in- Ministry of the Environment (website), local au- put from the authorities and contacts with NGOs. thorities and regional councils (development of The resources required for these measures must funding opportunities), Metsähallitus and Cen- be allowed for. tres for Economic Development, Transport and the Environment (species and local management plans). Implementation Timetable: 2012– (ongoing).

9.1 Encourage associations and farmers to apply for subsidies for the eradication of invasive alien species 10 Develop funding mechanisms for National and EU funding (ERDF, EU Interreg combating invasive alien species funding, and ESF and rural development fund- ing) will be allocated to action against invasive 88 alien species. NGOs will be offered support and Target start-up subsidies for submitting EU applications Funding models and means will be introduced for invasive alien species projects. which will ensure the funding required for con- trol of invasive alien species and which will oper- Associations and farmers will be encouraged to ate on the ‘polluter pays’ principle. apply for agri-environmental aid for the manage- ment of heritage landscapes or for the promotion of biodiversity or landscape diversity, including Impacts the eradication of invasive alien species. Implementing Finland’s National Strategy on Invasive Alien Species requires funding. Some The availability of EU funds for the combating of measures can be implemented as separate de- invasive alien species will be confirmed in the na- velopment projects on project funding, such as tional preparation for the new programme period. the setting up of the invasive alien species portal. However, the majority of the measures proposed Actors: Centres for Economic Development, Tran-­ – monitoring, control and publicity, for instance – sport and the Environment, agricultural econom- require continuous funding, and for the measures ic development officials in municipalities, region- to be effective it is essential to secure sufficient re- al councils, local authorities, and the LEADER sources. and rural area network (counselling). Timetable: 2012– (ongoing). Exploring funding mechanisms where the liabil- ity rests with parties whose actions may result in harmful impacts of invasive alien species in

9.2 Support action against invasive alien species Finland will increase awareness of the problem by NGOs among various actors. Such funding mechanisms Information distribution, monitoring and investi- may function as an incentive to avoid risks; this gation activities concerning invasive alien species assumes, of course, that the liability for any harm- undertaken by NGOs will be supported, as well ful impacts that do occur is actually assigned to as eradication campaigns carried out by volun- the relevant parties. Because it may be practically teers. A website detailing national and EU fund- impossible to identify the liable party in any in- FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES dividual case, employing this principle must pri- Local government funding will be developed to marily be based on shared liability. Examples of allow for the impact of invasive alien species and shared liability are fees charged from all relevant the regional combating of same. actors for maintaining basic measures in this area and deposited in a fund dedicated to special com- Actors: Invasive Alien Species Body (co-ordina- bating measures. tion, innovative funding development), Minis- try of Finance, Ministry of the Environment and These funding means require legislative amend- Ministry of Agriculture and Forestry (strategic ments, as it is vital for their functioning that the policy outlines), Ministry of Employment and the fee obligation applies to all actors equitably. Some Economy and regional councils (ERDF), Centres of the funding must be allocated to control, and for Economic Development, Transport and the any party neglecting their obligations must be Environment (agriculture and fisheries funds). subject to sanctions, which must be provided for Timetable: 2012–2014. by law. If there is no control, there is a danger of precautionary measures concerning invasive al- ien species not being taken, thus increasing the risk of harmful impacts. 11 Ensure that the transborder migration of invasive alien species Different funding models assign the costs to ac- through Finland can be prevented tors in different ways. Development of funding models should address the extent of actors’ oper- ations and how high their associated invasive al- Target ien species risk is. The target is to ensure that no activities under the control of the Finnish government can cause harm in the area of another country and that Fin- Implementation land is not a transit country for invasive alien spe- cies and does not enable the transborder migra-

10.1 Strengthen existing national and EU-level tion of invasive alien species. 89 funding means and sources, and develop new ones Finland’s National funding for the prevention of Impacts the threats and harmful impacts of invasive alien Invasive alien species may spread across national species will be developed. borders if preventive measures are not taken early enough. If Finland takes responsible action with The state budget will be revised so as to allow for regard to the spread of invasive alien species, i.e. action against invasive alien species: it will be en- prevents their spread to neighbouring countries, sured that the explanatory texts in the budget en- the problem can be addressed in time. able the use of state funding for the combating of invasive alien species. Implementation Taking invasive alien species into account in the development of EU funds such as the Life+ Fund 11.1 Ensure that Finland does not allow the will be ensured. New funding sources will be ex- transborder migration or transit of invasive alien plored, developed and introduced (see Table 8 for species alternative funding sources), for instance by ap- Finland must bear its responsibility for preventing plying the ‘polluter pays’ principle. the transborder migration of invasive alien spe- cies. Measures will be prepared and implemented Performance management related to invasive al- to ensure that Finland does not allow transit of in- ien species will be improved and enhanced, and vasive alien species (principally the North Ameri- linked to funding and administrative control. The can beaver, the raccoon dog, the white-tailed deer, concept of examining the combined effectiveness the signal crayfish and the brook trout), i.e. trans- of action against invasive alien species by various border migration of such species from Finland. actors will be introduced. Finland shall take action at the EU level to ensure that the EU is not a transit region for the spread- ing of invasive alien species and that such species PART IV Action plan do not spread across internal borders within the the relevant authorities in target countries that EU. invasive alien species are taken into account in development co-operation projects funded by Actors: Ministry of Agriculture and Forestry, In- the Finnish government and to prevent further vasive Alien Species Body, Finnish Game Centre, spreading of the harmful impacts of invasive al- regional fisheries administration. ien species. Timetable: 2013– (ongoing). The Finnish government will take responsibility in all international co-operation of ensuring that Finland does not contribute to the spreading of 12 Participate in international action invasive alien species out of Finland or beyond to combat invasive alien species the borders of Finland. Actors: Ministry for Foreign Affairs (develop- Target ment co-operation projects), Ministry of the En- The target is to ensure that no activities under vironment and Ministry of Agriculture and For- the control of the Finnish government can cause estry (international co-operation projects). harm from invasive alien species in the area of an- Timetable: 2012– (ongoing). other country. Impacts TARGETED MEASURES Invasive alien species are a complex problem also in developing countries, but these countries have very limited means at their disposal to address the Part III of the Strategy identifies actual and poten- problem. Taking the invasive alien species issue tial direct and indirect harmful impacts of inva- into account in the planning and implementation sive alien species in Finland. In addition to gener- 90 of development co-operation projects will help al measures against all invasive alien species, tar- prevent the entry of new alien species and combat geted measures against specific species are also already established ones that are causing harm. required for combating harmful impacts already In any project in fields such as agriculture, bio- identified. These targeted measures too are based mass production, carbon sequestration or fishing on the internationally agreed three-tier approach: that involves the proposed use of an alien species prevention and combating of invasive alien spe- for any function, an appropriate risk assessment cies; early detection and eradication; and preven- must be conducted. The Finnish authorities, co- tion of spreading and implementation of contin- operating with the authorities of target countries, uous, long-term monitoring. Measures have also will ensure that the principles of the Global In- been calibrated to changes in the operating en- vasive Species Programme of the Convention on vironment, including human adaptation to the Biological Diversity are complied with in any pro- harmful impacts of invasive alien species. jects funded by the Finnish government. This may include providing training for and improving the These targeted measures are closely related to all operating resources of the relevant officials in the of the above general measures. target country. Even if a project funded by the Finnish government does not specifically involve the use of alien species, steps must be taken to- gether with the target country that alien species 13 Address the harmful impacts of are not unintentionally introduced into the tar- invasive alien species in the Baltic get country. Sea and in inland waterways Implementation Target With regard to invasive alien species in the Baltic

12.1 Ensure that no invasive alien species are Sea, the target is to reduce the harmful impacts spread through development co-operation pro- and spreading of animals attaching themselves to jects or other international co-operation underwater surfaces, for instance at power plants Measures will be taken to ensure together with and on the hulls of vessels. Active contributions FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES will be made to international co-operation (FAO, Active contributions will be made to international IMO, IUCN, ICES, EU, HELCOM, OSPAR, the co-operation to prevent new invasive alien spe- scientific community). cies from spreading into the Baltic Sea. With regard to invasive alien species in inland wa- Actors: Finnish Energy Industries (combating terways, the target is for local fisheries actors, i.e. measures), Finnish Environment Institute and fishing regions, to determine the use of and meas- Finnish Transport Safety Agency (international ures taken against alien species in waters under co-operation). their administration in their management and Timetable: 2012– (ongoing). treatment plans. The fisheries administration will address risk assessment of new species becoming There are other, more general measures concern- established through its permit process, and or- ing invasive alien species in the Baltic Sea; these ganised fishing advice services will support the are described above. planning and implementation of same. When the threat of alien species is acknowledged at the plan level, it is possible to eradicate an invasive alien 13.2 Implement special measures: brook trout species in limited water systems and thus to pre- No new stocking permits will be issued, and re- vent its becoming established. stocking in waters where the brook trout is al- ready established will be phased out of the man- Another target is to increase awareness among agement and treatment plans of fishing regions fishermen of how invasive alien species can without any particular justification. The species spread with fishing gear and how invasive alien will be eradicated in those limited (almost closed) plant species, particularly waterweed, can mi- waterways where it is possible to do so. Interac- grate from one waterway to another with boats tion between the brook trout, the freshwater pearl carried on trailers (bilge water) and with fishing mussel and the brown trout will be investigated. nets. Fishing regions play a key role here; they Fisheries advice services must publicise the risks should remind fishermen of this matter when is- involved with brook trout stocking. suing fishing permits. 91 Actors: Ministry of Agriculture and Forestry (leg- islative amendments concerning stocking per- Impacts mits), regional fisheries authorities at Centres for Measures taken against invasive alien species in Economic Development, Transport and the Envi- the Baltic Sea can reduce their direct harmful im- ronment (permits), fishing regions (management pacts. Any side effects of such measures must be and treatment plans), fisheries advice services considered separately before any large-scale de- (publicity), Finnish Game and Fisheries Research ployment. Institute (monitoring and research). Timetable: 2012– (ongoing). Focusing attention on problems with invasive al- ien species in inland waterways can help prevent or slow down their spreading. At the same time, 13.3 Implement special measures: signal crayfish this will help gain more information on these spe- The spreading of the harmful impacts of the signal cies so that combating procedures can be accu- crayfish will be contained. The Fisheries Admin- rately targeted. Increased awareness among local istration Crayfish Strategy 2000 will be updated actors will make control of invasive alien species to redefine areas with a noble crayfish population easier. where it is prohibited to introduce signal crayfish. Even in areas where signal crayfish are already es- tablished, no new stocking permits will be issued Implementation unless it can be demonstrated that such stocking would be risk-free. Biological factors limiting the

13.1 Develop local measures against invasive spreading of the signal crayfish will be investigat- alien species in the Baltic Sea ed. Points addressing the signal crayfish will be Local measures for removing animals attaching required to be included in the management and themselves to underwater surfaces (the dark false treatment plans of fishing regions. mussel and bay barnacle, among others) will be developed and deployed to eradicate these for in- Actors: Ministry of Agriculture and Forestry (leg- stance at power plants. islative amendments concerning stocking permits, PART IV Action plan strategy), regional fisheries authorities at Centres Actors: Ministry of the Environment (monitoring for Economic Development, Transport and the of the EU Water Framework Directive, waterway Environment (permits, control, implementation regulation), Finnish Environment Institute (pub- instructions, strategy), fishing regions (manage- licity, monitoring, research, steering), Centres ment and treatment plans), Finnish Game and for Economic Development, Transport and the Fisheries Research Institute (monitoring and re- Environment (publicity, detection, eradication), search). Metsähallitus (eradication and prevention in na- Timetable: 2012– (ongoing). ture conservation areas). Timetable: 2012– (ongoing).

13.4 Implement special measures: crayfish plague, type As and type Ps1 13.6 Implement special measures: Canadian wa- In case of an outbreak of crayfish plague, public- terweed ity will be arranged concerning the disease and The Canadian waterweed will be monitored in ac- its risks of local transmission. The possibility of cordance with the instructions being prepared for eradicating latent crayfish plague in specific wa- the monitoring of the EU Water Framework Di- terways will be investigated. General instructions rective. Spreading of the species will be limited by will be prepared for various actors in the fisheries increasing public awareness of its harmful impacts. sector, together with an obligation to report out- The species will be eradicated where its (tempo- breaks. Instructions concerning the taking and rary) restriction is possible. Research and devel- submitting of samples related to crayfish plague opment on eradication methods, spreading strat- will be specified. Crayfish catching and how cray- egies and biological control will be undertaken. fish should be kept must be provided for in the overall reform of the Fishing Act to prevent mi- Distribution data will be regularly updated to da- gration of the disease. tabases at natural history museums and, in the fu- ture, to the invasive alien species portal. Processing of crayfish plague­samples, health 92 monitoring of crayfish farming, maintaining the Actors: Ministry of the Environment (monitoring database of outbreaks and reporting on diseases of the EU Water Framework Directive), Finnish as required by international conventions. Environment Institute (research, development), Centres for Economic Development, Transport Actors: Ministry of Agriculture and Forestry (leg- and the Environment (detection, instructions for islative measures) and regional units of Finnish implementation, eradication). Food Safety Authority Evira (research). Timetable: 2012– (ongoing). Timetable: 2012– (ongoing).

13.5 Implement special measures: reed 14 Address the harmful impacts of sweetgrass invasive alien land vertebrate The reed sweetgrass will be monitored in accord- species ance with the instructions being prepared for the monitoring of the EU Water Framework Direc- tive. Spreading of the species will be limited by Target increasing public awareness of its harmful im- The target is to slow down and prevent the spread- pacts. Eradications will be carried out by dredg- ing of established invasive alien land vertebrate ing in limited areas. Regulation of regulated wa- species, to eradicate or reduce populations of in- terways will be developed so as to bring the spring vasive alien species, to reduce the cross-breeding flood forward so that the reed sweetgrass cannot of populations of foreign origin with indigenous acquire a competitive advantage over other water ones, and to enhance the protection of rare indig- plants. Research and development on eradication enous species. A further target is to prevent new methods and commercial use will be undertaken. alien land vertebrate species from escaping into the wild. Distribution data will be regularly updated to da- tabases at natural history museums and, in the fu- No more pets will be allowed to be released into ture, to the invasive alien species portal. the wild so as to avoid introduction of alien spe- cies and to prevent their potential harmful im- FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES pacts. This will also reduce the risk of pets going 14.2 Prepare management plan for population: feral, which complicates the monitoring of diseas- common rabbit, [American] mink, raccoon dog, es and other problems. North American beaver and others Management plan for population will be prepared for current invasive or potentially harmful alien Impacts species, detailing population control, limitation Invasive alien land vertebrate species will not be of propagation, culling and eradication. able to cause harm to indigenous species or the economy. The emergence of new populations of Propagation will be limited by enhanced trapping alien land vertebrate species will be prevented. and by selection of locations for eradications (e.g. Some measures are difficult to implement, be- bird wetlands). cause some of these animals live in urban areas where hunting is tricky to arrange and where peo- Any new populations of invasive alien species will ple may want to ‘help’ these animals by feeding be eradicated immediately. The North American them, for instance. An effective publicity and ed- beaver should be eradicated from western Lap- ucation system is needed to support these meas- land and the raccoon dog from the Quark area to ures. prevent their spread to Norway and Sweden. Actors: Ministry of Agriculture and Forestry and Implementation Ministry of the Environment (population con- trol plans, legislation), Metsähallitus (population

14.1 Ensure culling of small predators: control plans, promotion of measures), Finnish [American] mink and raccoon dog Game and Fisheries Research Institute (research), The game administration will be encouraged to Centres for Economic Development, Transport promote trapping of [American] mink and rac- and the Environment, Finnish Game Centre and coon dog as a form of waterfowl game manage- local authorities (trapping, regulation). ment outside nature conservation areas. Water- Timetable: 2013–2016. fowl populations in national parks in the archipel- 93 ago, in other nature conservation areas managed by Metsähallitus and also in nature conservation 14.3 Regulate farming of game and household areas on private land will be protected by contin- animals and improve pet advisory services uing trapping of [American] mink and raccoon Legislation concerning farming of game and dog as an environmental administration measure, household animals (including ‘semi-tame’ vari- in co-operation with hunters. ants such as farm-bred wild boar and dog-wolves) will be improved for instance with regard to con- Hunters will be encouraged to enhance trap- trol in order to prevent the escape of species into ping of invasive alien species. More efficient trap- the wild; restocking and game stocking will be re- ping equipment and methods will be developed quired to be done with individuals of an approved to eradicate invasive alien species, and the use of provenance (e.g. mallard duck, grey partridge otherwise prohibited equipment and methods in and mallard-domestic duck cross-breeds). eradicating same will be explored. (Cf. measure no. 1.) Dog-wolves and feral dogs will be eradicated from the natural environment. Actors: Ministry of the Environment (safeguard- ing the species inventory in national parks and na- A voluntary ‘code of conduct’ will be established ture conservation areas, permits exempting from for pets and household animals, or a volunteer or- hunting season restrictions), Ministry of Agri- ganisation similar to the Animal Disease Preven- culture and Forestry (legislation), Finnish Game tion Association will be set up to provide adviso- Centre and nature conservation area administra- ry services regarding the import, sale and keeping tion (Metsähallitus, Centres for Economic De- of animals. velopment, Transport and the Environment) and hunters’ associations (trapping campaigns, co-or- Species unsuitable as pets will be defined and dination), hunting associations, parties and indi- their import, sale and marketing will be restrict- vidual hunters (trapping, development of trap- ed, considering the risks of such a pet being re- ping equipment). leased or escaping into the wild; this includes pets Timetable: 2012– (ongoing). imported through online commerce. PART IV Action plan More public education will be provided concern- Implementation ing the ethical termination of pets and responsi- ble animal ownership, preventing the intentional 15.1. Increase awareness of the importance of release of pets into the wild. garden waste as pathways for invasive alien plant species and investigate obstacles to the proper Actors: Ministry of Agriculture and Forestry, disposal of garden waste Finnish Game Centre, game farms, domestic zoos Information about the proper disposal of garden and other zoos (operating model, control, advi- waste will be published regularly. Problem points sory services), pet associations and pet entrepre- in the management of garden waste will be ex- neurs (creation of operating model, practical op- plored and solved. The handling of garden waste erations), definition of species unsuitable as pets, at landfills will be managed so that movement of and regulation proposals (Invasive Alien Species species from the area is not possible. Collection of Body), veterinarians and animal protection asso- garden waste and biowaste will be enhanced and ciations (education concerning the ethical termi- the number of collection points will be increased. nation of pets). Timetable: 2012–2015: operating model; 2012– Actors: Ministry of the Environment, local au- (ongoing): control of game and household animal thorities (waste management), housing compa- farming. nies and companies responsible for waste man- agement. Timetable: 2012–2016. 15 Address the harmful impacts of invasive alien land plant species 15.2 Improve processing methods for infill and dumping areas, with specific reference to growth medium purity Target The processing of infill and extracted soil gener- The target is to increase awareness among the gen- ated in earth moving will be planned so as to pre- 94 eral public and among actors in the horticulture vent the spreading of the seeds and other parts of sector concerning the harmful impacts of certain invasive alien plant species and of invasive alien garden plants on the natural environment in or- mollusc species (e.g. by dumping the topsoil on der to prevent the spreading of invasive alien spe- the bottom). cies at an early stage and to encourage citizens to take action against them themselves. The dump- Particular attention will be paid to the puri- ing of garden waste in the wild will be prohibited. ty of growth media used for plantings. Custom- With good planning and long-term effort, hog- ers must demand from their suppliers that their weeds can be eradicated at least at some locations. growth media comply with the requirements of Citizens will become more active in combating the Decree on Fertiliser Products. invasive alien plant species. Special attention will be paid to the combating of invasive alien species Actors: Ministry of Transport and Communica- in the management of nature conservation areas, tions / Ministry of Employment and the Econo- recreational areas and commercial forests. my, Ministry of the Environment, local authori- ties (plans), the earth moving industry, Finn- ish Transport Agency and Centres for Econom- Impacts ic Development, Transport and the Environment The most significant pathways for invasive alien (roadside plantings and grass sowing), Finnish plant species will weaken or disappear, and the Food Safety Authority Evira, local authorities and spreading of these species in the wild will slow other builders. down. The flora of nature conservation areas and Timetable: 2012–2017. recreational areas will develop in its natural state. Measures against invasive alien plant species in agricultural environments will become more ef- 15.3 Augment management recommendations and ficient, and their spreading will slow down. Meas- forest certification criteria for commercial forests ures taken against hogweeds and other invasive and further specify the management of nature alien plant species will become more systematic, conservation areas and recreational areas and citizens will know better whom to contact lo- A recommendation on the handling of alien shrub cally. species will be added to the management recom- FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES mendations for commercial forests in connection appointed and tasked with preparing regional ac- with forest management measures. tion plans against these species and to implement them. The eradication of invasive alien plant species will be included in the management of nature conser- Commercial services for combating invasive alien vation areas as a mandatory procedure. plant species (hogweeds) will be publicised. Con- tact information for entrepreneurs specialising in Information on the combating of invasive alien this kind of work will be compiled so that local plant species will be included in the management authorities and private customers can easily find practices for recreational areas. them. Actors: Ministry of the Environment (responsi- A national action plan for the coasts and the ar- bility for nature conservation areas, recreational chipelago will be prepared to combat and prevent areas), Forestry Development Centre Tapio and the spread of the Japanese rose. Funding for this forestry centres (private forestry), Metsähalli- action at the most valuable sites will be provided. tus (management recommendations for State- owned commercial forests, nature conservation), In planting and replanting on roadsides, the Japa- PEFC Finland and FSC Finland (forest certifi- nese rose will be replaced with new, harmless spe- cation criteria), Centres for Economic Develop- cies. ment, Transport and the Environment and local authorities (management of nature conservation It will be investigated which varieties of Japanese areas), and owners / controllers / managers of rec- rose (Rosa rugosa) propagate seeds poorly or not reational areas and local authorities (recreational at all, and these will be marketed instead of the areas). basic variety. Timetable: 2013–2016. Sections of road free from lupines will be found and plans made to keep them that way. Measures

15.4 Prepare voluntary code of conduct for the against lupines will be taken at sites with a valua- 95 horticulture sector ble natural environment, for instance along roads A voluntary code of conduct will be prepared for bordering on heritage biotypes. the horticulture sector (cf. the Council of Europe’s Code of conduct on horticulture and invasive al- Actors: Ministry of the Environment (responsi- ien plants). This code of conduct will include a ble for co-ordination), Centres for Economic De- list of garden plants or varieties of same that havevelopment, Transport and the Environment, local been found to be safe for the natural environment, authorities and Metsähallitus (combating meas- as alternatives to species found to be harmful. ures, information collecting), Centres for Eco- nomic Development, Transport and the Environ- The use of indigenous plants in plantings on road- ment, nature and landscape services theme group sides and other green areas will be encouraged. of the Rural Policy Committee, and regional vil- lage consortiums and similar actors (work servic- Actors: Central Organisation for Finnish Hor- es), Finnish Transport Agency (instructions for ticulture, the Finnish nursery stock association roadside plantings), universities, MTT Agrifood [Taimistoviljelijät], Finnish Association of Land- Research Finland and the horticulture sector, and scape Industries, Finnish Transport Agency, local foundations awarding research grants (research). authorities, botanical gardens (Finnish Museum Timetable: 2012– (ongoing). of Natural History [museums also in Turku, Ou- lu, Eastern Finland, Jyväskylä]) (code of conduct). Timetable: 2013. 16 Eradicate hogweeds from Finland

15.5 Implement special measures: Japanese rose, large-leaved lupine and Himalayan balsam Target Authorities with regional responsibility for col- The target is that with good planning and long- lecting information on growths of the most harm- term effort, hogweeds can be completely eradicat- ful invasive alien plant species (Japanese rose, ed from Finland. Another target is that the hog- large-leaved lupine, Himalayan balsam) will be weed eradication project will form a national pilot PART IV Action plan project, setting a benchmark for combating other vation data, the actual combating measures, and species. monitoring. The project will be timetabled for a sufficiently long period (10 to 20 years) so that the desired result will be achieved. The impor- Impacts tance of species identification will be emphasised The most significant pathways for hogweeds will in the advisory services. weaken or disappear, and the spreading of these species in the wild will slow down and eventu- It will still be possible to grow hogweeds subject ally stop. Measures taken against hogweeds will to a permit for educational and research purposes. become more systematic, and citizens will know better whom to contact locally. Actors: Ministry of Agriculture and Forestry, Ministry of the Environment (organising fund- ing), Centres for Economic Development, Trans- Implementation port and the Environment (co-ordinating the ef- fort), local authorities and others (combating

16.1 Implement special measures: set the goal of measures). eradicating hogweeds from Finland Timetable: 2013: planning and launching the A national project against hogweeds will be set project; 2022–2032: hogweeds eradicated (project up, its purpose being to eradicate hogweeds from duration 10 to 20 years). Actions and monitoring Finland. Regional authorities responsible for co- on national borders will be ongoing. ordinating the effort will be appointed. Citizens will be encouraged to report hogweed stands to The resource costs for the project to eradicate the authorities. Sufficient resources will be pro- hogweeds are given in Table 9. vided for the project for the gathering of obser- 96 Invasive alien species giant hogweed. photo: terhi ryttäri FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES SUMMARY OF MEASURES All of the measures presented in Finland’s Nation- and their effects in preventing and combating the al Strategy on Invasive Alien Species are inter- threats and harmful impacts of invasive alien spe- connected. Figure 2 illustrates how the measures cies fit together. M. of the Environment M. of Agriculture and Forestry M. of Transport & Communic. 2 Invasive Alien Species Body 5 6 7 Early warning Risk assessment and system Research prioritisation 4 Invasive alien species portal 12 3 8 10 3 9 11 B 13 16 ESTABLISHMENT O Fees and restrictions imposed on intentional imports 5 Invasive alien species monitoring system AND Publicity and education on the impacts of invasive Eradication, limitation and control of invasive al- R SPREADING Publicity and education on risks of imports D International co-operation and measures Sightings by experts and citizens E R Intentional imports Benefits of (production, pets, horticulture, smuggling, etc.) alien species I 97 and pathways N and on pathways for unintentional imports ien species, and adaptation to their presence S alien species and measures taken against them P E Costs of C Unintentional imports invasive alien T (tourism, transport, packages, etc.) I species O N REDUCING THE RISK OF ENTRY REDUCING IMPACTS 1 Legislation development legend Number of the measure X proposed in the Strategy ‘Benefits of pathways’ = benefits of trans- port, trade and travel. Arrows indicate interaction between measures. Figure 2: Implementation of measures and responsibilities against invasive alien species. All the measures are interconnected. PART IV Action plan As shown in Figure 2, alien species are imported either intentionally (for production use, as pets, as garden plants) or unintentionally with travellers, means of transport or trade packagings. The risk of entry can be reduced by addressing these pathways through publicity and through various control measures (regulations, fees). International co-operation can be leveraged to reduce the risk for Finland and to share worldwide responsibility for preventing the spread of invasive alien species. Efforts will be made in border inspections to detect species entering the country unlawfully. Of the alien species that do manage to enter the country, some will establish themselves and begin spreading. Alien species can be both beneficial (intentionally imported alien species) and harmful. Entry pathways (transport, travel, trade) are also beneficial and cannot feasibly be completely blocked. Prevention and combating may be influenced through publicity and by taking various kinds of action. All of the measures proposed in the Strategy are based on a reform of the legislation concerning alien species (measure no. 1), which is a fundamental requirement for the implementation of all the other measures. The Invasive Alien Species Body (2) to be attached to the Ministry of Agriculture and For- estry will be the national authority responsible for matters related to invasive alien species. The Body will receive updated information through the early warning system (5), the invasive alien species portal (4), prioritisation of alien species (6) and the risk assessments the Body commissions (6). The Body will formulate preventive measures involving imports and pathways for unintentional importing, target- ed at specific species and channels (3, 8, 10). As post-entry measures, the Body will control and co- ordinate measures for the eradication, limitation and control of invasive alien species, and adaptation to same (3, 9–11, 13–16). In co-operation with international actors, the Body will ensure that Finland does not contribute to the spread of invasive alien species beyond Finland’s borders (12). The invasive alien species portal (4) will play a vital role in the measures proposed. The data in the portal are available to the Invasive Alien Species Body, and the Body will use the portal as one of its publicity channels. The portal will also include information on the early warning system (5), the inva- sive alien species monitoring system (5) and observations by experts and citizens. The portal will gen- erate information to support publicity, regarding both the invasive alien species risk prevention and mitigation of their harmful impacts. Invasive alien species research (7) will support risk assessment and measures taken against invasive alien species. 98 On the left Darube crayfish (Astacus leptodactylus), in Finland a potentially or locally PHOtO: jouni tulonen harmful alien species, on the right signal crayfish (Pasifastacus leniusculus), an in- vasive species and in the middle the non-harmful noble crayfish (Astacus astacus). FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES funding alternatives relating to EU-level funding channels may play a part in alien species this. ­Table 8 shows an overview of potential new funding sources proposed in the EU that can be Alongside traditional funding sources there are leveraged to augment current resources or to re- various new ways for obtaining funding for ac- place earlier funding sources. tion against invasive alien species. National and Table 8. Proposals for means of funding to combat invasive alien species made in the context of the prepa- ration work on invasive alien species in the EU. How can action against invasive alien species be funded? • Taxes and fees for importers on intentional imports of alien species – general import taxes and fees (import duties, inspection fees, quarantine fees) – fees based on volume or risk of imports – fees for risk assessment and official actions related to importing (i.e. the importer is liable for costs incurred by the relevant authority in connection with the importing) – permit, registration and testing fees related to temporary keeping of an alien species – compensation for costs incurred through the management and/or destruction of transport materials such as contaminated soil – compensation for costs incurred through monitoring of an imported alien species, including moni- toring planning – compensation for costs incurred through prevention and combating of the spreading of an import- ed alien species, e.g. an insurance premium • Taxes and fees for importers on unintentional imports of alien species – taxes and fees on transport materials or host organisms enabling migration, including risk assess- ment fees – targeted fees on goods and packagings from origins or made of materials involving an extremely high risk – insurance payments related to potential consequences of importing 99 • Sanctions for violating the provisions on intentional and unintentional imports or for neglecting payment of fees • Tax rebates for eradication of invasive alien species: costs incurred through voluntary action to eradi- cate invasive alien species or to control populations of same could be declared tax-deductible, for in- stance in the household deduction or in forest taxation • ‘Rapid response fund’: Rapid response to eradicate an invasive alien species detected in Finland equires resources that are immediately available. For this purpose, a ‘rapid response fund’ could be set up (cf. the Oil Pollution Fund and flood protection funds). In addition to contributions from public funds, some of the revenue from taxes, fees and fines related to the importing of alien species could be paid into the fund. • ‘Easement fund’: Voluntary action to combat invasive alien species could be rewarded with credits that could be set off against fees for unintentional imports, for instance. How can, or could, responsibility concerning invasive alien species be defined? • Directive 2008/56/EC of the European Parliament and of the Council establishing a framework for community action in the field of marine environmental policy (Marine Strategy Framework Directive) allows for application of the ‘polluter pays’ principle, for instance in transport material fees, special cargo fees, insurance premiums and regulation fees. • The strict liability system outlined in Annex III to the Environmental Liability Directive (2004/35/EC) could be extended to other professional areas involving high invasive alien species risks (strict admin- istrative liability in professional activities related to alien species). • A general responsibility of ensuring safety in activities that could result in the release or escape of invasive alien species into the wild (general responsibility in activities related to alien species pro- duction). This could be implemented through a permit system and/or codes of conduct determining threshold values for what is appropriate and what is negligent (provisions for estimating reasonable- ness and degree of negligence). • Development of insurance products covering invasive alien species risks should be encouraged so as to a) improve and ensure access to foundations administering the combating of invasive alien spe- cies and the repair of their harmful impacts, and b) encourage actors to comply with best practices and standards. • Amending provisions on invasive alien species to Annex A of the Directive on the protection of the environment through criminal law (2008/99/EC). PART IV Action plan anticipatory prevention is ever, in a case where an invasive alien species has the most cost-effective already entered an area, early detection and rap- id eradication are the most cost-effective ways of preventing it from establishing itself and spread- It has been noted, for instance in connection with ing further. Conscious risk-taking in the interests the EU work on invasive alien species, that the re- of saving on costs may prove to be disastrously sources required for prevention of invasive alien short-sighted, as available data on the significant species are considerably lower than the costs in- damage caused by invasive alien species indicate curred through the harmful impacts of same. It that correcting harmful impacts after the fact is not is also known that prevention is generally much only very expensive but often nearly impossible. more cost-effective than corrective action. How- An example of correcting harmful impacts after- An example of early detection and eradication (Approach II): Downy ryegrass (Leymus innovatus) In 1999 a plant species that was new in Finland, downy ryegrass (Leymus innovatus), was found on the roadside in the Oulanka National Park. In its area of origin in Canada and northern parts of the United States it grows on sandy soil in meadows, forests and riversides. The conservation biologist of the Oulanka National Park studied the properties of the species in further detail. Downy ryegrass is a tall, up to a metre high grass plant which grows very strongly. It spreads both by seeds and via its strong root system, and it may even survive forest fires. Based on this it was concluded that very likely the downy ryegrass would spread by itself or via tourists from the national park to nature, especially to valuable sandy riversides, which are a habitat for numerous endangered species. The public authorities eradicated downy ryegrass from the place where it was found in one day in 2004. Had the plant spread to the sandy shores of the Oulankajoki river, eradicating it would have been much more difficult and costly, or even impossible. Source: Jäkäläniemi, A. 2005. Albertanvehnän poisto Oulangan kansallispuistosta. Lutukka 21:30-31 (in Finnish). 100 wards in Finland, and the costs incurred, is given OFFICIAL RESPONSIBILITIES FOR in Table 9. Combating and eradicating hogweeds INVASIVE ALIEN SPECIES, AND OTHER is now considerably more expensive than if their entry had been actively prevented for instance by ACTORS INVOLVED WITH INVASIVE prohibiting their import and distribution. ALIEN SPECIES IN FINLAND The planning and targeting of measures against The Ministry of Agriculture and Forestry is re- invasive alien species usually requires a system- sponsible for action concerning alien species in atic risk assessment. As far as hogweeds are con- agriculture, forestry, game management and fish- cerned, we have information on their harmful eries and also assumes overall co-ordination of impacts and expert evaluations of measures tak- all action against invasive alien species. The Min- en against them and their effects. Judging by this istry of the Environment is responsible for alien information, a nationwide project for combat- species listed under the Nature Conservation Act. ing hogweeds is justified. Implementation of the The Ministry of Transport and Communications measures should be monitored and experiences co-ordinates invasive alien species issues related gathered of the costs of individual measures, the to road management, transport routes and ship- distribution of their costs, their effectiveness and ping. The Ministry for Foreign Affairs is responsi- any side effects. Monitoring data will enable the ble for invasive alien species issues related to de- measures to be revised so to be as cost-effective as velopment co-operation projects. These official possible while allowing identification of the most responsibilities are also listed in part I (Table 1). effective action. Co-operation with local government and local environmental and health care authorities is also important and will be continued. FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Table 9. A national project to prevent giant hogweed. Target: Eradicate hogweeds from Finland by 2025 Hogweeds are among the most harmful invasive alien species occurring in Finland. They pose a threat to the natural environment and a health hazard to humans while also lowering property values; moreo- ver, they are expensive and laborious to eradicate. However, over the years a considerable amount of knowledge and expertise has been accumulated in combating hogweeds, and there are ongoing regional projects taking action against them. If desired and so decided, it could be possible to completely eradi- cate hogweeds from Finland. What would a nationwide project to eradicate hogweeds require? • Preparation of instructions on how to identify hogweeds. • Collecting of growth data (locations and extent) for the entire country. • Regional co-ordination (e.g. the environment and natural resources areas of responsibility of the Centres for Economic Development, Transport and the Environment or, under a separate project organisation, another actor with a comprehensive regional network). • Active encouragement of the participation of local authorities and NGOs (e.g. village associations). • Sufficient funding to enable the use of outsourced services in eradication measures as necessary. • Monitoring of stands at least 7 years after the first combating measures. • Publicity and communications campaigns, and instructions for volunteer action (brochure for the general public). What would it cost to eradicate hogweeds? • The eradication cost per stand is EUR 500 on average (depending on the size of the stand). By a rough estimate, there are 10,000 stands of hogweed in Finland. p Eradication costs EUR 5 million (outsourced services, subsidised employment, volunteer work). • Work input of regional co-ordinators (10 to 15 person-years * 5 years for the duration of the eradica- tion action nationwide, after which the input can be less) p Work input EUR 5 million (over 10 years). Potential for allocating posts vacated or resources freed elsewhere in the co-ordinating organisations for this work must be 101 explored, including the potential for networked co-ordination, with part of the work being done by the local authorities. • Funding for sufficiently long monitoring and aftercare. p Monitoring and aftercare EUR 2 million. p Rough cost estimate: Total EUR 12 million over 10 years, i.e. EUR 1.2 million per year for the entire country; the co-ordinators could also oversee actions against other invasive alien species be- sides hogweeds. The cost will depend crucially on how much volunteer work is input and how the co-ordination is managed. The hogweed eradication project will form a national pilot project, setting a benchmark for combating other species. There are many other actors in Finland that par- Current action against invasive alien ticipate in action related to alien species at var- species ious levels. Such action includes prevention of harmful impacts of invasive alien species; iden- Current measures against invasive alien spe- tification and combating of threats and risks; ear- cies in Finland focus on anticipatory prevention, ly detection and eradication of invasive alien spe- early detection and eradication, and prevention cies; and prevention of the spreading of invasive of spreading.4 Anticipatory prevention of the alien species already established and spreading in harmful impacts of invasive alien species, togeth- Finland, and the related ongoing management of er with threat and risk assessments, subsumes a their harmful impacts. wide range of current measures, including public- ity (also online), research, information collecting, teaching, monitoring, management and treat- 4. Survey on measures against invasive alien species con- ducted among bodies participating in the working group ment plans, operations policy development, legis- drafting the Strategy, local authorities and Centres for lation enforcement and development, risk assess- Economic Development, Transport and the Environment ment and control development, permit decisions in September 2010. and inspections for instance at borders. The Finn- PART IV Action plan ish authorities also participate in regional, EU- ing in Finland include eradication, destruction level and international co-operation to combat and other combating measures (e.g. against hog- the harmful impacts of invasive alien species. weeds, the large-leaved lupine, Himalayan bal- sam, wild oat, plant diseases and plant pests) and Early detection and eradication includes individ- culling of small predators ([American] mink, rac- ual measures undertaken to monitor and inspect coon dog, feral cats, North American beaver), in- certain species and their occurrences, eradication volving volunteer work and co-operation with actions and targeted management measures. hunters. Control and prevention of the spreading of inva- sive alien species already established and spread- Table 10. Action against invasive alien species in Finland. Actor Threat and risk Early detection and Prevention of spread- assessment eradication ing of invasive alien and species already anticipatory established prevention in Finland, and Detection Eradication ongoing measures Centres for Economic Development, Transport and • • • • the Environment Finnish Food Safety • • • • Authority Evira NGOs (e.g. Finnish Assosiation for • • • • 102 Nature Conservation) Ports with international traffic • • • Local authorities • • • • Finnish Transport Safety Agency • Finnish Museum of Natural History • • MTT Agrifood Research Finland • (•) (•) Metsähallitus (•) (•) • Finnish Forestry Centre • • • Finnish Forest Research • • Institute (Metla) Central Organisation for Finnish • • Horticulture Finnish Game and Fisheries • • Research Institute Finnish Wildlife Agency • • • Finnish Environment • • Institute Customs • Universities • • (• )= to a minor extent FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Volunteer work and NGO activities cation of invasive alien species. Possible measures include early detection, eradication and control. There are numerous NGOs that can help in imple- Fisheries organisations can, through their mem- menting Finland’s National Strategy on Invasive bership, conduct widespread observations and to Alien Species. Almost all NGOs are capable of some extent contribute to removals, particularly organising prevention and combating action for in inland waterways. Possible measures include instance through their websites, advisory servic- anticipatory prevention, combating and early de- es, seminars, talks, excursions, bulletins and en- tection and, in the future, reporting through the vironmental education. Environmental organisa- invasive alien species portal. tions and scientific societies can help in the early detection and monitoring of species. The most ex- Water protection associations and several con- tensive database of sightings available to NGOs is sultants in the sector mainly monitor water quali- Tiira (BirdLife Suomi), which allows monitoring ty but also the organisms that live in the water and of data almost in real time for instance on the bar- on the shores. Water protection associations and headed goose. Volunteer help may be enlisted for related companies conduct statutory load, water- the eradication or culling of invasive alien species way and fisheries monitoring, studies of algae and that have already spread to Finland. Examples of lakes, and investigations of water plants and bot- include projects to maintain heritage landscapes, tom fauna. Possible measures include early detec- organised by environmental organisations, and tion and monitoring and, in the future, reporting trapping campaigns against alien species, organ- through the invasive alien species portal. ised by hunting organisations. Associations for breeders of exotic pets can reach The majority of alien species in Finland are people who in the future might potentially release plants. Many invasive alien plant species are gar- new alien species such as aquarium fish into the den plants originally planted intentionally. Thus, wild. Possible measures include anticipatory pre- horticultural organisations and associations are vention and combating. among the most important target groups and ac- tors in the field of invasive alien species issues. Key NGOs in this sector are the Finnish Associ- 103 Plenty of training seminars, fairs and talks are or- ation for Nature Conservation (FANC), BirdLife ganised in this field, and through entrepreneurs Finland, Natur och Miljö, the Central Organisa- in this sector information and measures reach tion for Finnish Horticulture, the Finnish Associ- other enterprises, communities and private in- ation of Landscape Industries, the Allotment Gar- dividuals. The Martha Organisation and agricul- dens Association, the Finnish Landrace Associa- tural and household advisors make contact with tion, the Association of Useful Plants, the Finnish a wide range of civic groups. The Finnish House Hunters’ Association, the Federation of Finnish Owners’ Association is an umbrella organisation Fisheries Associations and its member associations, for local house owners’ organisations and there- the Finnish Federation for Recreational Fishing, fore for private gardeners. The Allotment Gar- the Finnish Fish Farmers’ Association, the Cen- dens Association brings together local allotment tral Union of Agricultural Producers and Forest garden associations and the Finnish Local Herit- Owners (MTK), the Federation of Finnish Water age Federation brings together city district asso- Protection Associations, scientific societies, the ciations; both organisations include private gar- Martha Organisation, the Rural Women’s Adviso- deners in their membership. Gardening is an es- ry Organisation and ProAgria Advisory Centres. sential feature in the activities of the Finnish Lan- drace Association and the Association of Useful Plants. All of the above organisations are capable of providing advice and education and organising MONITORING THE IMPLEMENTATION volunteer projects for eradicating invasive alien OF THE STRATEGY species. Possible actions in horticulture include anticipatory prevention, combating, early detec- tion, eradication and control. It is proposed that the monitoring of Finland’s National Strategy on Invasive Alien Species be Hunting organisations can, through their mem- assigned to the Invasive Alien Species Body (see bership, conduct observations over broad tracts measure no. 2). The monitoring will comprise of land and contribute to the restriction or eradi- monitoring of the implementation of the Strategy, PART IV Action plan monitoring of the effectiveness of the measures ventories, including changes in distribution rang- outlined in the Strategy, and identifying of even- es and in harmful impacts. Monitoring must be tual research needs related to monitoring. intensive over the first few (2–4) years, while the current state of the occurrence of alien species The monitoring of the strategy will require the de- is being investigated. Thereafter, monitoring is velopment of appropriate indicators (see e.g. Fig- meant to be focusing on changes, i.e. monitoring ures 3 and 4) and a pre-agreed approval proce- the alien species inventory and the impacts of al- dure for this set of indicators. ien species and of combating measures. There is also a need for conducting a more in- It is proposed that the monitoring of alien species depth impact assessment concerning the success, be improved by leveraging existing, established targeting and effectiveness of the measures. monitoring methods (measure 5.2). Also, to im- prove monitoring, the practice(s) best applicable It is proposed that the interim evaluation of the for the monitoring of alien species will be inves- Strategy be carried out during 2016. tigated. Other monitoring of alien species related to the Strategy includes monitoring of alien species in- Table 11. Example of the current stage of the monitoring of alien species and its development. Detecting alien species in the course of monitoring in the Baltic Sea (preliminary findings from the VISEVARIS research project) One third of the alien species living in our sea areas have never been observed in monitoring, and a rel- atively good notion of the occurrence of only a few alien species can be gained with the current level of 104 monitoring. The alien species least likely to be detected include fish, invertebrates living on the bottom in shallow waters and animals attaching themselves to hard underwater surfaces. Monitoring of phytoplankton and bottom animals is regionally quite comprehensive along Finland’s coast. Monitoring of zooplankton, water plants, macroalgae and fish schools is generally confined to the southern sea areas. The majority of observations of alien species come from projects outside the moni- toring proper and from one-off studies. Better detection of alien species would require improvement of catching methods on the one hand and a denser network of sampling on the other. There is also a need to improve the storing of the results of monitoring conducted by officials and the availability of this material. At the luonnontila.fi website, research-based and monitor alien species trends in Finland using var- up-to-date data on the state of Finland’s natural ious indicators. Monitoring indicators are already environment and trends therein are followed us- in preparation (see Figures 3 and 4), and new in- ing indicators. These indicators depict the state of dicators are being planned. It is recommended the natural environment for instance by reflecting that other indicators useful for the monitoring of changes in populations of a group of species liv- alien species be developed. ing in a specific habitat. The website is also used to FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES A Alien species by decade of entry B Number of alien species in sea areas 25 Other alien species Potentially or locally harmful alien species Source: Finnish Environment Institute 20 Invasive alien species 10 –14 15 –19 15 20 –24 10 5 0 1900 1920 1940 1960 1980 2000 Figure 3. Monitoring indicator on alien species trends in the Baltic Sea. (luonnontila.fi) A Alien species by decade of entry B Number of alien species in inland waterways 30 Other alien species 25 Potentially or locally harmful alien species Source: Finnish Environment Institute Invasive alien species 0–4 20 5 –9 10 –14 15 –19 105 15 20 –24 10 5 0 1900 1920 1940 1960 1980 2000 Figure 4. Monitoring indicator on alien species trends in inland waterways. (luonnontila.fi) PART IV Action plan APPENDICES I National legislation addressing invasive alien species II Invasive alien species portal alert functions and operating responsibilities, with recommendations regarding the information content and functions of the portal (see measure 4 in the Strategy) III Alien species risk assessment: Concepts and stages in risk assessment; terminology IIIa Risk assessment procedure: Description of measure 6.1 IV Working group and experts who prepared the proposal Strategy V Experts heard during the preparation of the Strategy, and experts in sub-groups contributing to the preparation of the Strategy VI Background materials used in the preparation of the Strategy 106 FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES

APPENDIX I: National legislation import and release to the wild are to be carried out addressing invasive alien may be laid down in the permit. species The provisions of subsection 1 also apply to bring- ing an animal from Åland to another part of Finland Nature Conservation Act (1096/1996) and to the release of the animal to the wild there. Section 43: Preventing the spreading of Fishing Act (286/1982, 252/1998) non-native species Non-native species falling outside the purview of Section 94 (252/1998) the Hunting Act or Fishing Act are not to be re- The import of fish or crayfish below the decreed size leased into the wild if there is cause to suspect that for purposes other than planting, scientific research the species may become established permanent- or transportation as transit goods is prohibited. The ly. Non-native plant species without an established same applies to the import during the close season range in the Finnish wild are not to be planted or of fresh fish and crayfish protected by decree. If nec- sown outside a garden, field or other site designated essary, further provisions on the application of these for special purposes, nor in natural waters, insofar prohibitions shall be provided by decree. as there is cause to suspect that the species may be- come established permanently. This shall not apply, The import of a fish or crayfish species not occur- however, to the planting or sowing of trees for the ring naturally in Finland or of their stock or gametes purpose of forestry. is allowed only by permission of the Ministry con- cerned and on the terms and conditions specified by If a non-native plant or animal species is known to it. Permission must be denied if the measure may spread rapidly in the wild, and there is reasonable cause significant harm to nature or wild animals. cause to suspect that it might constitute a health Provisions on fish or crayfish species that can be im- hazard or have a detrimental effect on an indige- ported freely shall be given by decree as necessary. nous Finnish species, the Ministry of the Environ- ment may issue any regulations as prove necessary Section 121 (252/1998) 107 for preventing the spread of such a species. Meas- Introduction of a new fish or crayfish species or its ures for preventing the spread of animal disease are stock into a water area, or a transplantation of fish or set forth in the Animal Diseases Act. crayfish to the area is subject to a permit of the Em- ployment and Economic Development Centre. The Section 15: Derogations subject to special permit permit may contain provisions on the carrying out With permission from the authority or agency in of the measure. charge of the site, the following is permitted in a na- tional park or strict nature reserve, provided that the Forest Act (1093/1996) site’s conservation objectives are not jeopardised: Section 8a(5): Growing new tree stock 2) controlling the population of a plant or animal The measures referred to in this section and the species that has increased detrimentally or other- deadlines for their implementation, the reasonable wise constitutes a nuisance; period of time for growing a seedling stand, and grounds for evaluating seedling stands may be pro- Hunting Act (615/1993, 915/2011) vided for in more detail by decree and regulated by decision of the competent Ministry in forestry mat- Section 42: The import and release to ters based on such a decree. The Ministry may issue the wild of animals of foreign origin more detailed instructions on the use of tree species It is forbidden to import or release to the wild bird not indigenous to Finland for forest regeneration or mammal species of foreign origin as well as game and the use of vegetatively propagated forest regen- strains of foreign origin without the permit of the eration material. Ministry of Agriculture and Forestry. A statement on a permit application must be requested from the Section 8a(3) (entered into force Ministry of the Environment and the Finnish Envi- on 1 January 2011) ronment Institute. The permit must be refused if sig- ... the use of tree species not indigenous to Finland nificant harm will be caused by the measure to the for forest regeneration will be provided for in more natural environment or fauna. Provisions on how detail by a Government Decree as necessary. PART IV Action APPENDIX plan Plant Propagation Material Act (1205/1994) export subsection 1 applies shall be provided by a Decree of the Ministry of Agriculture and Forestry. Section 1: Scope of application This Act shall apply to the production, import and Section 13 (809/1992) marketing of horticultural plant propagation ma- The transfer, transport, export, import and transit terial. This Act shall further apply to the export of of animals, animal products, animal waste and any plant propagation material to the European Eco- other objects or goods that may transmit animal dis- nomic Area insofar as required by international eases may be provided for by decree. treaties binding upon Finland. This Act shall not ap- ply to the marketing, production or import of plant A decree may also authorise the Department of propagation material in small quantities not under- Food and Health of the Ministry of Agriculture and taken professionally. Forestry to issue regulations concerning the matters referred to in subsection 1. (424/1994) Section 6: Suitability for Finland’s growing conditions Notwithstanding the provisions of subsections 1 The Plant Production Inspection Centre shall issue and 2, the provisions of the Act on Veterinary Bor- and publish recommendations on plant propaga- der Inspection (1192/1996) shall be complied with regarding animals imported from outside the Euro- tion material of fruit trees and berry plants for out- door planting and on plant propagation material of pean Community and regarding the terms and con- biennial and perennial ornamental plants. Suppli- ditions of import and border inspection procedures ers of plant propagation materials must post the rec-for the other objects and goods referred to in subsec- ommendations of the Plant Production Inspection tion 1. However, in the case of Norway, Iceland and Centre in view of customers at their points of sale. Liechtenstein, these requirements shall be provided for pursuant to this Act to the extent required in the This Act contains further provisions on the produc- Treaty on the European Economic Area. (804/1999) tion, storage, import and marketing of plant propa- gation material and requirements for the quality and Section 14a (408/2008) 108 health of same. Fish, crayfish living in water and molluscs, and fer- tilised gametes of same, may be grown for human Act on Trade in Forest Reproductive food, for sale or for transfer to further growing or Materials (241/2002) stocking in the sea or in waterways only by oper- ators duly authorised by the Finnish Food Safety Section 1: Scope of application Authority Evira. However, a permit shall not be re- The provisions of this act apply to the production, quired if such operations are intended only: marketing and import of forest reproductive mate- rial. 1) to grow fish, crayfish or molluscs for human food for the grower’s own consumption, or for providing This Act implements Council Directive 1999/105/ in small quantities directly to consumers or to local EC on the marketing of forest reproductive material. retailers for sale to consumers, Animal Disease Act (55/1980) 2) to grow ornamental fish, crayfish or molluscs in aquariums or similar tanks, ponds or pools from Section 12g (303/2006) which water is not conveyed into the sea or water- Animals and animal products that may cause an ani- ways without cleaning, mal disease as referred to in section 3(2), or involv- ing the risk of the spreading of a severe animal dis- 3) to grow fish or crayfish in ponds for recreation- ease not occurring in Finland, may only be import- al fishing purposes so that they are not transferred ed from other EU Member States to Finland or ex- from those ponds for further growing or stocking, ported from Finland to other EU Member States by or an operator duly registered with the Finnish Food Safety Authority Evira. [Terms and conditions relat- 4) to grow molluscs for the purposes of water treat- ed to the register in sections 12g and 12h.] ment. The more detailed provisions required by EU law on animals and animal products to whose import and FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Act on Preventing Wild Oat (185/2002) tion of planting seeds, on the marketing in Finland of planting seeds certified in another country, and Section 2: Scope of application on requirements for the production, handling and This Act governs measures that are used to control storage of certified planting seeds will be issued by a wild oat and prevent its spreading. Decree of the Ministry of Agriculture and Forestry. Section 4: Obligation to undertake By derogation from subsection 1, the following may combating action be marketed without certification: Parties in possessions of a cultivated field or areas immediately adjacent to same shall take any and 1) small quantities of planting seeds for scientific all action required to prevent the occurrence and purposes or breeding, spreading of wild oat. 2) negligible amounts of other planting seeds for ex- More detailed provisions on the combating of wild perimental purposes, provided that they are of a va- oat and of preventing its spreading on cultivated riety for which an application for inclusion in the list fields and areas immediately adjacent to same shall of varieties referred to in section 5 has been submit- be issued by a Decree of the Ministry of Agriculture ted and that the required cultivation value tests have and Forestry. been conducted in two growing seasons, Section 5: Notification obligation 3) non-varietal commercial planting seeds intended Any party who knows or suspects that there is a pre- for production of grasses, fodder crops, or oil or fi- viously unreported growth of wild oat in an area bre plants, which that party controls shall immediately notify thereof the agricultural economic development au- 4) standard seeds of vegetable crops, thority in the municipality in which said growth is located. 5) raw batches of seeds supplied for conditioning and packing, Any official or authorised inspector who notices a 109 growth of wild oat in connection with any other in- 6) varietal cereal seed from supply security stocks spection or measure undertaken in an area shall im- in a situation where not enough certified planting mediately notify thereof the agricultural economic seeds are available on the market to ensure a suffi- development authority in the municipality in which cient supply of seeds, and said growth is located. 7) seeds of landrace plants, in the interests of pre- More detailed provisions on the content of such a serving heritage biodiversity. notification and the notification procedure shall be issued by a Decree of the Ministry of Agriculture More detailed provisions on the marketing of un- and Forestry. certified planting seeds referred to in subsection 2 and on requirements for their varietal purity, quality, Seed Trade Act (728/2000) production, handling and storage will be issued by a Decree of the Ministry of Agriculture and Forestry. Section 2: Scope of application This Act shall apply to the production, marketing, Section 6: Marketing of varieties import and export of planting seeds of arable crops Marketing for a particular variety must indicate and garden plants. More detailed provisions on the whether the suitability of that variety to Finland’s application of this Act to the transfer of planting growing conditions has been established. More de- seeds to farmers on the basis of a cultivation agree- tailed provisions on the content of such a notifica- ment and the terms and conditions of such applica- tion shall be issued by a Decree of the Ministry of tion shall be issued by a Decree of the Ministry of Agriculture and Forestry. Agriculture and Forestry. Section 7: Marketing restrictions on varieties Section 4: Certified planting seeds The Ministry of Agriculture and Forestry may pro- Only certified planting seeds may be marketed. hibit the marketing of planting seeds of a particular More detailed provisions on requirements for the variety of a crop nationwide or in a specific region if: varietal purity and quality of certified planting seeds and other criteria for certification, on the certifica- PART IV Action APPENDIX plan 1) the variety has not been accepted into the list of which plant pests may easily be spread may only be varieties referred to in section 5, or into the EU or imported if they have a plant passport or other phy- EEA common catalogue of varieties of agricultural tosanitary certificate. Every batch imported must plant species, or have a phytosanitary or other certificate. 2) cultivation of the variety might have plant health Before importing goods with a phytosanitary certifi- implications for the cultivation of other species or cate, the operator must notify the Plant Production varieties of crops. Inspection Centre thereof. If a variety is entered in a list of varieties in another The Plant Production Inspection Centre, or the ag- EEA Member State or in the EU or EEA common ricultural department of an Employment and Eco- catalogue of varieties of agricultural plant species, nomic Development Centre, shall issue a phytosani- the imposition of a prohibition pursuant to subsec- tary certificate or other certificate referred to in sub- tion 1 shall comply with the procedure specified in section 1 to any goods to be exported from Finland the Agreement on the European Economic Area. for which the destination country requires such a certificate, provided that the goods comply with the Plant Health Protection Act (702/2003) phytosanitary regulations of the destination country for the import of such goods. Section 2: Scope of application Provisions will be issued by a Decree of the Minis- Section 10: Notification obligation try of Agriculture and Forestry, taking into account Anyone who knows of or suspects the presence of international treaties binding upon Finland, con- plant pests as defined in a Decree issued pursuant cerning which plant pests the measures referred to to section 2(3) in a property or part thereof, a cul- in subsection 1 may be applied to. The Act may also tivated field, a storage facility, a means of transport be applied to the combating and prevention of the or a building which they own or control shall imme- spreading of plant pests or other organisms which diately notify thereof the relevant Employment and are new or unpredictable in their impact and which Economic Development Centre or the Plant Pro- 110 constitute an immediate threat to plant health. duction Inspection Centre. This also applies to any official who in the course of his official activities de- Section 4: Registration obligation tects the presence of such plant pests. The Employ- Plants, plant products and any other goods with ment and Economic Development Centre so noti- which plant pests may easily be spread may only be fied must in turn notify the Plant Production In- marketed, produced for marketing purposes, stored spection Centre of the plant pests. and imported by operators duly registered with the Plant Production Inspection Centre (plant protec- Section 11: Combating of plant pests tion register). However, this registration obligation In order to combat plant pests or to prevent their shall not apply to local marketing or to operators spreading, an official order may be issued: who occasionally import small amounts of such plants, plant products or other goods for their own 1) requiring a landowner, cultivator or owner or use. The plants, plant products and other goods to controller of a property or a part thereof to take im- which this registration obligation applies shall be mediate action necessary for eradicating the plant specified by a Decree of the Ministry of Agricul- pests occurring in the property, ture and Forestry, based on EC regulations on plant health. 2) requiring the necessary cleansing or disinfec- tion of a building, piece of machinery, means of Section 6: Marketing transport or any other item contaminated by plant Certain plants, plant products and other goods with pests, with specifications on the necessary means of which plant pests may easily be spread may only be cleansing and disinfection, marketed if they have a plant passport or other phy- tosanitary certificate, except in the case of local mar- 3) requiring the necessary cleansing, disinfection keting. Every batch of goods being marketed must or destruction of plants or of packages or packag- have a plant passport or other certificate issued in a ing materials of vegetable origin, with specifications Member State of the European Union. on the necessary means of cleansing, disinfection or destruction, or imposing necessary restrictions on Section 7: Import and export the use of plants or of packages or packaging mate- Certain plants, plant products and other goods with rials of vegetable origin, FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES 4) imposing necessary bans, conditions and restric- the animals must comply with the requirements for tions on the cultivation, transport or trade of plants, commercial imports and must be imported through a veterinary border inspection, which is subject to 5) imposing necessary action to be taken in connec- a fee. tion with the cultivation, harvesting and trade of plants, Live animals to be imported must fulfil not only the aforementioned inspection requirements but also 6) imposing necessary bans or conditions on the the animal health requirements specified in Decree marketing, import and export of plants, plant prod- 866/2008 of the Ministry of Agriculture and Forest- ucts, herbicides and other products with which ry (species-specific requirements including coun- plant pests can easily spread, or tries from which imports are allowed, recommend- ed vaccinations and tests, veterinary certificates re- 7) requiring an operator to comply with any restric- quired, etc.). Notwithstanding the above, terms and tions, bans or other action imposed for the purpose conditions for the health of recreational and pet of combating plant pests or preventing their spread- birds are provided for in Decree 867/2008 of the ing. Ministry of Agriculture and Forestry. Section 12: Notification of restrictions of use Water Act (264/1961) Anyone who sells, leases or otherwise transfers to the control of another party a property or part Water areas and waters thereof or a building, the use of which is restricted Section 15 (88/2000) because of the presence of plant pests, shall notify Unless otherwise prescribed in the provisions below the transferee of such a restriction before the trans- or in a permit issued under said provisions, no wa- fer is effected. ter may be led from a water body, and no measures taken in the water body or on land, if such measures The competent authority shall submit information may lead to a change in the position, depth, water on the presence of plant pests on request in connec- level or flow of the water body and thereby tion with a transfer such as referred to in subsec- 111 tion 1. 1) cause damage or harm to someone else’s water ar- ea, fishing, land, buildings or other property, Decree of the Ministry of Agriculture and Forestry (866/2008) on the animal disease 2) cause a flood risk, general shortage of water or requirements relating to imports harmful changes in the aquatic environment and its from countries outside the European functions, Community of certain live animals and their embryos and gametes 3) markedly reduce natural beauty, environmental amenity, cultural values or the usability of the wa- The import of pets from countries outside the EU ter body as a water supply or its use for recreational (no more than 5 individuals at a time) – dogs, cats, purposes, ferrets, invertebrates (except bees and crustaceans), ornamental tropical fish, amphibia, reptiles, birds 4) reduce the self-purification capacity of the water (except poultry covered in Directives 90/539/EEC body or alter the main channel or hinder the use of and 92/65/EEC), rodents and domestic rabbits – is a public channel for transport or floating, only allowed through points of entry approved for such imports. The approved points of entry where 5) cause a health hazard, or the customs authorities perform import inspections on pets are listed in Appendix I to Decree 402/2011 6) infringe the public interest in some other way of the Ministry of Agriculture and Forestry. In order comparable to those mentioned above (prohibition to import animals of the aforementioned kind from on altering a water system). countries outside the EU to Finland under the terms and conditions of importing pets, no more than 5 The prohibition referred to above in subsection 1 individuals may be imported at any one time, and shall also apply, as applicable, to the operation of a the animals imported must travel with their own- structure or a device. er (or the owner’s representative); also, the animals must not be intended for sale or for transfer to a new The prohibition referred to above in subsection 1 owner. Unless all of these conditions are fulfilled, shall also apply to any measure which may lead to a PART IV Action APPENDIX plan change in the water quality or in the bottom of the 2) environmental protection limitations on the water body, causing the consequences referred to in placement of activities, requirements for the place- said subsection, unless the measure is one referred ment of activities in various areas, and minimum to in section 3(1) paragraph 1 of the Nature Conser- distances from sites threatened by exposure, vation Act (86/2000) or in section 19 of this chapter. 3) methods, devices, buildings and structures to be The prohibition referred to above in subsection 1 employed to prevent discharges or their spreading, shall not, however, apply to a measure that can only or to prevent accidents or risk of same, and to secure cause damage or harm to a private individual, if he energy efficiency, has given his consent to said measure. 4) the scope and operating hours of operations, Section 30 Anyone who suffers from sludge, shallows or a simi- 5) the disposal and management of waste, lar hindrance which restricts the use of a water body shall be entitled, without permission and even in 6) monitoring and the operator’s obligation to dis- someone else’s water area, to take the necessary ac- close information to the authorities, tion to remove the hindrance so as to improve the condition and usability of the water body, provided 7) measures to be taken after operations cease, and this does not result in a change or consequence re- ferred to in sections 12 to 15 or section 19 of this 8) any other measures to be taken to comply with chapter, or performance of the work does not cause the requirements of sections 41–43, 45 and 46. substantial harm to the owner of the water area. If the measure taken is not of minor significance, the The Government Decree referred to above in sub- owner of the water area or, if the water area is jointly section 1 may also provide for the period within owned, the joint owners of the water area as speci- which an operator who has a valid environmental fied in section 26 of the Act on Jointly Owned Areas permit for an activity referred to in the Decree at the and, as provided by decree, the Centre for Econom- time when the Decree enters into force must comply 112 ic Development, Transport and the Environment or with the requirements of the new Decree. municipal environmental protection authority shall be notified in advance that work is commencing and Section 25 (1590/2009) of the measures that will be taken. (1391/2009). Monitoring the state of the environment A local authority shall see to the necessary monitor- The provisions on chapter 4 section 6 on dredg­ed ing of the state of the environment within its mu- spoils shall apply as appropriate to material re­­mov­- nicipality. The Centres for Economic Development, ed from the bottom of a water bod. (467/1987) Transport and the Environment shall see to the monitoring of the state of the environment within Any damage caused by a measure referred to above their respective regions. The duties of the Finnish in this section must be compensated. Environment Institute with regard to monitoring the state of the environment shall be provided for Environmental Protection Act (86/2000) separately. Section 12 (253/2010) Monitoring data shall be made public and publi- Certain activities cised as comprehensively as necessary. More detailed provisions to prevent the risk of envi- ronmental contamination may be issued by Govern- Section 27 (253/2010) ment Decree concerning the following sectors and Environmental protection information system activities: The Centres for Economic Development, Transport and the Environment and the Finnish Environment 9) fish farming, Institute shall maintain an environmental protec- tion information system containing the necessary The provisions referred to above in subsection 1 may data on: apply to the following, in addition to what is provid- ed for in section 11: 1) decisions made by environmental permit authori- ties and supervisory authorities under this Act, 1) limitation of discharges into the environment and of their direct and indirect harmful impacts, FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES 2) activities subject to registration pursuant to this Transport and the Environment shall include: Act, 1) drawing up an account of the characteristics of 3) reports and monitoring concerning permits and the waters, notifications, 2) drawing up accounts of the effects of human ac- 4) significant data entered in the waste database re- tivity on the waters, ferred to in the Waste Act, 3) compiling economic analyses of water use, 5) monitoring and reporting on the state of the envi- ronment related to the enforcement of this Act, 4) collecting information on areas to be protected under Community legislation which are prescribed 6) chemicals used in activities posing a threat of en- by Government Decree, vironmental pollution, the emissions and waste gen- erated and the waste received, and 5) collecting the necessary information on areas designated for household water abstraction, 7) any other factors necessary for the enforcement of this Act. 6) preparing a classification of water status, The Centres for Economic Development, Transport 7) organising water monitoring and drawing up a and the Environment and municipal environmental water monitoring programme, protection authorities shall be responsible for ensur- ing that the notifications made to them of activities 8) preparing a water resources management plan referred to in section 65 are entered into the afore- and a programme of measures, and mentioned information system. 9) managing other duties designated by the Minis- Notwithstanding the confidentiality provisions laid try of the Environment and the Ministry of Agricul- down in the Act on the Publicity of Actions Under- ture and Forestry for water resources management 113 taken by Authorities (621/1999), local authorities purposes. shall submit the data referred to in subsection 1 to the environmental protection information system. The Finnish Environment Institute shall provide ex- Notwithstanding confidentiality provisions, munic- pert assistance to the Centres for Economic Devel- ipal environmental protection authorities are enti- opment, Transport and the Environment and main- tled without charge to receive any information from tain a register of the information referred to in sub- the information system that is necessary for super- section 1 paragraph 4. vision and monitoring. The provisions of the Act on the Publicity of Actions Undertaken by Authorities apply to the confidenti- ality and disclosure of personal data entered in the information system, and the provisions of the Per- sonal Data Act (523/1999) apply to other handling of personal data. Personal data entered in the sys- tem shall be retained for five years after the activ- ity ceases. Act on Water Resources Management (1299/2004) Section 5 (1593/2009) Duties of Centres for Economic Development, Trans- port and the Environment In each water resources management region, the duties of the Centres for Economic Development, PART IV Action APPENDIX plan

APPENDIX II Invasive alien species portal alert functions and operating responsibilities, with recommendations regarding the information content and functions of the portal (see measure 4 in the Strategy) Invasive alien species notifications and alerts – Alert function of the invasive alien species portal Notifications and alerts concerning invasive alien species are received from both Finland and the EU through the EU early warning system. Therefore, a system is needed to forward the information re- ceived. This system will enable notification to be made of an alien species that has become invasive. The system can also be set up to issue a notification automatically when an invasive alien species en- ters a new area. In the system, a user can specify an advance request for notifications on particular species and partic- ular pre-defined areas. For example, a person in Uusimaa could enter a request for any subsequent no- tifications of occurrences of hogweeds in Uusimaa. Similarly, parties interested in particular groups of organisms could enter a request for notifications on particular species or species groups. The invasive alien species portal must be linked to the international EU alert function. National con- tact persons will receive the alerts from the EU and transfer the necessary information to the portal to make it publicly available. Species alerts from the EU (concerning species on the alert list) can be au- tomatically forwarded to various target groups by e-mail or text messages once the relevant responsibil- ities (recipient lists) have been sorted out. 114 Invasive alien species alerts Notification from EU to Notification on sighting of contact person in Finland alien species in Finland Info entered in portal Info entered in portal User choices User choices – type of organism – species – impact (e.g. – area forest pest) – type of organism – impact (e.g. forest pest) Information automatically retrieved Information automatically retrieved for the user for the user Figure 5: Invasive alien species alert function through the invasive alien species portal. FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Possible alert-related operating responsibilities The invasive alien species portal supervisor will be placed, for example, in the Finnish Environment Institute. The portal supervisor will forward alerts, which will be processed by the relevant authority. The initiation and implementation of any risk assessment required on the basis of the alert will be co-ordinated and governed by the Invasive Alien Species Body. Experts will be responsible for species identification and situation reports. In case of an alert, the authority designated by law will launch and implement combating measures. The Invasive Alien Species Body may also initiate combating measures on the basis of monitoring data. Publicity will be co-ordinated by the Invasive Alien Species Body. The Body will also govern the appro- priate implementation of action taken. Recommendations for the information content of the invasive alien species portal Fact sheets on individual species Information on prevention and combating of invasive alien species General information on the number of alien species in Finland and their occurrence General information on the impacts of alien species General information on how alien species spread Links to websites on invasive alien species References to literature on invasive alien species Legislation and agreements concerning invasive alien species News on invasive alien species, national and international Alien species events Alien species sightings Invasive alien species alerts Instructions for conducting a local campaign against invasive alien species 115 Information on ongoing invasive alien species projects Identifying marks for individual species Impacts of individual species Combating measures against individual species Contact information of parties responsible for action against invasive alien species Images of invasive alien species Advice on restricting the spreading of invasive alien species for various actors (gardeners, fishermen, etc.) List of invasive alien species Recommendations for portal functions Fact sheets for individual species must be automatically generated from the database Retrieval of fact sheets for individual species Entering observation data into the portal Notification of observation online Functions for mass transfer of observation data Printouts from the portal (tables and maps) Setting search criteria User registration as authorised official or private citizen Information on invasive alien species projects to be entered in the portal Automatic retrieval of information on invasive alien species projects to user submitting notification of observation E-mail alert Volunteers may submit their contact information for combating campaigns The invasive alien species portal will collect observation data on alien species in Finland, which are cur- rently spread out among a variety of sources. Information sources include databases, species inventories and literature. It should be possible to collect all observations of invasive alien species made by various actors (scientists, officials, local authorities, NGOs and private citizens) in one place, in an invasive al- ien species database freely available to all users. The Centres for Economic Development, Transport and the Environment should be required to notify the portal keepers of sightings of invasive alien species and to ensure species identification locally, etc. PART IV Action APPENDIX plan

APPENDIX III Alien species risk National risk assessment terms in invasive assessment: Concepts and alien species risk assessment: stages in risk assessment; terminology client = the risk management authority (i.e. min- istry) responsible for the risk/hazard caused by the invasive alien species or activity in question Concepts and stages in risk assessment hazard = a new alien species, a species not indig- a) Identify the hazard enous in Finland’s natural environment; a species At this stage, it is observed that a hazard (e.g. a that does not belong in Finland and enters Fin- pathogen or an invasive alien species) is associat- land as the result of human action ed with a specific activity. For instance, importing timber from a country where a particular plant risk = the chance of a new alien species entering pest occurs may cause the entry into Finland of Finland and breeding here; or the chance of the that plant pest (a plant pest that may be present in harmful impacts of an invasive alien species al- the timber is a hazard). The hazard may be identi- ready occurring in Finland becoming worse fied for instance by the client commissioning the risk assessment. identifying a hazard = a hazard is identified usu- ally based on an activity or a phenomenon (or b) Describe the hazard new information on a known activity/phenome- This stage involves describing the characteris- non) that could translate a hazard into a risk tics of the hazardous organism, e.g. its life cycle, pathways or target populations where it may end describing a hazard = the characteristics, envi- up. In the aforementioned example, this involves ronmental requirements, breeding rate and habits, finding out where imported timber is brought growth environment and environment conducive and what it is used for, how the wood is treated to spreading of a hazardous organism and whether the hazardous organism could sur- 116 vive certain treatments. It must also be estab- estimating exposure = an estimate of the prob- lished whether there are any plants that the plant ability of the hazardous organism entering the pest in question could destroy. country and means for influencing the risk of en- try; this also involves establishing the potential for c) Estimate the exposure the species for surviving, breeding and spreading This stage involves estimating the probability of in Finland. The spreading rate and extent of the the hazardous organism ending up in the target species must be estimated and means proposed to population (i.e. susceptible species living in Fin- prevent spreading if necessary. land) and of it spreading in the target population. The speed and extent of spreading and the extent The consequential impacts of the entry and prolif- of the damage that would be caused must also be eration of an invasive alien species to Finland’s in- estimated as far as possible. At this point, the in- digenous species, agriculture and forestry, game vestigation may include several options for risk management and fisheries, transport, social infra- management; their effect on the aforementioned structures and recreational activities must also be points must be explored. estimated. d) Describe the risk describing a risk = an overall conception of a The probability of exposure and its effectiveness risk and the factors affecting it, which can then combine to produce an estimate of the risk, and be measured against various risk management this should make the risk easier to manage. In options, is obtained by considering the probabil- the aforementioned example, timber importers ity of the hazard, risk and exposure, the rate of would be issued instructions on how to handle spreading of the invasive alien species and the and treat the wood, or authorities would be asked magnitude of its indirect impacts. to update their inspection instructions with re- gard to the handling of timber from a specific re- gion. The risk management option considered the most sensible based on the risk assessment will be adopted. FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES APPENDIX IIIa Risk assessment procedure: Description of measure 6.1 Risk classification of alien species A three-stage risk classification system for alien species should be developed in Finland. Stage 1: Evaluative screening of species The purpose of evaluative screening is to limit the group of species being considered to those that are the most likely to enter Finland and to focus available resources on those, though without forgetting other potential invasive alien species that could cause great damage. Out of all the species in the world, those most likely to enter Finland will be identified. Purpose of the screening: To find out which species should be considered in the analysis in the first place. Carried out by: Invasive alien species experts and Invasive Alien Species Body. The assessment will be based on various systems (Early Warning, Europhyt, EPPO), taking into account species identified in Fin- land’s National Strategy on Invasive Alien Species, the information in the invasive alien species portal and information in the LYNET* network of experts. Costs of the stage: Costs of the expert contributions. This task belongs to the Invasive Alien Species Body. TASK 1: Assign the evaluative screening of species to the Invasive Alien Species Body. Link the evaluative screening to the early warning system. Targets: To limit the domain of species considered to the most relevant species. Stage 2: Prioritisation of species on the basis of the prioritisation model developed for Finland The prioritisation model developed for Finland enables the identification in the list produced through evaluative screening of those species that constitute the greatest risks for the environment, the economy and public health in Finland. Prioritisation has the following benefits: 1) correct and efficient allocation of resources, 2) transparent grounds for decision-making, 3) analysis of the problem and related issues, 117 and 4) supporting the decision-making process in cases of conflict (e.g. a species which is beneficial for an individual actor or group of actors but ecologically disastrous). Target: To rank invasive alien species based on the risks they cause. Client of this stage: Invasive Alien Species Body, based on the evaluative screening. Carried out by: The application of the point score model will be the responsibility of one member or all members of the risk assessment network (see the next section). It will not be necessary for the Risk As- sessment Research Unit (see the next section) to participate in the ranking, but they must be familiar with the prioritisation model used. TASK 2: Develop a prioritisation model for Finland using which individual species can be ranked according to the magnitude of the risk(s) they cause. Targets: To develop prioritisation models for ranking different types of invasive alien species, suitable for Finland and sufficiently reliable, as compatible as possible with models used internationally, and suffi- ciently simple to be used independently in the LYNET organisation. Parties responsible: Finnish Food Safety Authority Evira, LYNET institutions Resources: 2 person-years. Project funding. TASK 3: Prioritise the species selected in Stage 1 using the prioritisation model. Targets: Establish which species constitute the greatest risk for the environment, the economy and pub- lic health in Finland. The resulting list can be used to allocate existing resources to where they are of the greatest benefit to society. The use of resources will be transparent and based on consistent criteria. A risk assessment can be carried out on the highest-risk species at stage 3. Resources: Project funding for the initial evaluations. After that, about 0.1 to 0.2 person-months per spe- cies, depending on the properties of the prioritisation model, the amount of information available and the professional skills of the evaluators. * Research Consortium for Natural Resources and the Environment PART IV Action APPENDIX plan Stage 3: Risk assessments on the highest-risk species In order to ensure the reliability of the risk assessments conducted and their acceptability in internation- al contexts, a risk assessment organisation must be set up in Finland to develop and maintain risk as- sessment expertise. The best available national experts shall be employed for individual risk assessments, and the participation of members of the LYNET network is thus essential. The risk assessment organisa- tion will operate according to these principles: Risk assessment network: 1. The risk assessment network will be attached to the Invasive Alien Species Body. 2. The risk assessment network will consist of representatives appointed by LYNET research insti- tutions and other experts as required. 3. The risk assessment network contributes to risk assessments commissioned by the Invasive Alien Species Body or other parties as agreed. 4. Members of the risk assessment network will be paid a separate compensation for their contribution on the basis of work done, or their participation will be paid for through project funding. Risk Assessment Research Unit: 5. Responsibility for the management and co-ordination and partly of implementation of invasive alien species risk assessments rests with the Risk Assessment Research Unit of the Finnish Food Safety Authority Evira. 6. The Risk Assessment Research Unit will call on the assistance of a group of experts from the risk assessment network. 7. The Risk Assessment Research Unit will conduct risk assessments by agreement, pursuant to a performance agreement or service agreement, or on separate risk assessment or project funding. The statutory duty of the Finnish Food Safety Authority Evira is to conduct risk assessments and engage in scientific research in the areas of the safety and quality of foods and of agriculture and forestry pro- duction inputs, of animal health and welfare, and of plant health. It is not feasible to transfer these responsibilities to any other body in the context of invasive alien species risk assessments. The Risk Assessment Research Unit at Evira should be provided with two additional person-years in re- 118 sourcing to bring in risk assessment expertise in the areas of invasive alien species and plant health. It must be ensured when commissioning risk assessments that the overall work load per employee at the Unit is not substantially increased. This can be ensured by limiting the number of risk assessments com- missioned per year and by co-ordinating other work commissioned from the Unit in order to limit the overall number of commissions. If, however, the work load of the Unit exceeds the level agreed, further resources must be allocated to assessments. This arrangement will ensure that Finland has a sufficient critical mass of risk assessment expertise at a single unit for further accumulation of high-quality risk assessment expertise. The arrangement will also ensure that the risk assessments conducted are consistent and of high quality. Risk assessments which have or can be assumed to have impacts on trade must be conducted pursu- ant to the risk assessment standards of the IPPC, the OIE and the Codex Alimentarus, as approved in the SPS Agreement of the WTO. Risk assessments on marine species shall comply with the instructions of the IMO, HELCOM and OSPAR as relevant. In all other cases, risk assessments shall be conducted pur- suant to internationally accepted best practices. TASK 4: Develop the Risk Assessment Research Unit at Evira as a risk assessment expert body. Target: To achieve a centre of expertise for risk assessment in various species groups to conduct the com- missioned risk assessments at a high level of quality, consistently and cost-effectively. Resources: 2 person-years per year, allocated to the Risk Assessment Research Unit at Evira. TASK 5: Compile a list of experts on points to be considered in risk assessment for later use. Target: To achieve a network of experts (on species and species groups, impacts, pathways, etc.) to lever- age in risk assessments to ensure the use of the best available expertise. The expert network will also be required for other proposed measures such as the early warning system. Resources: Low. FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES The duties of the risk assessment organisation include conducting risk assessments of the following kind, as commissioned: 1. Risk assessment on species already occurring in Finland Conducting risk assessments on the most harmful invasive alien species already occurring in Finland is essential so that available resources can be efficiently targeted at the appropriate species and the appro- priate control methods. Risk assessment targets: • to find out the size of the population already established in Finland and expected changes thereto, • to find out the environmental, economic and health impacts of the population already established in Finland, and • to find out the most appropriate combating measures for the population (eradication, limitation, control, adaptation). Risk assessment client: Invasive Alien Species Body Risk assessment producer: It is recommended but not necessary for the Risk Assessment Research Unit to participate in conducting these assessments, unless it has specific expertise concerning the species being assessed. Specific expertise on species, impact assessment expertise and combating measures as- sessment expertise will be acquired from LYNET research institutions and other actors. Risk assessment costs: About 1 to 24 person-months per species, depending on the extent of the risk as- sessment and the amount of information available. 2. Risk assessments on species not occurring in Finland but susceptible to unintentional introduction Conducting risk assessments on invasive alien species not occurring in Finland but susceptible to unin- tentional introduction is essential so that available resources can be efficiently targeted at the appropriate species and the appropriate control methods. Risk assessment targets: • to find out points of entry and probabilities of introduction of the species, 119 • to find out the probability and extent of establishment and spreading of the species, • to find out the probable environmental, economic and health impacts of the species being introduced to the country, becoming established and spreading, • to find out which means may be employed to reduce the probability of introduction and their costs and effectiveness, and • to find out the most feasible combating measures and procedures to employ if the species is detected in the country. Risk assessment client: Ministry of Agriculture and Forestry, Ministry of the Environment or Invasive Alien Species Body Risk assessment producer: It is essential for the Risk Assessment Research Unit to participate in these assessments. Specific expertise on species, establishment assessment expertise, impact assessment ex- pertise and combating measures assessment expertise will be acquired from LYNET research institutions and other actors. Risk assessment costs: About 12 to 36 person-months per species, depending on the extent of the risk assessment and the amount of information available. 3. Risk assessments on species not occurring in Finland but subject to intentional translocation Conducting risk assessments on alien species not occurring in Finland but subject to intentional translo- cation is essential to assess whether the benefits to society of the importing of such species are greater than the potential harmful impacts of same. The assessments will also yield information on what would be the most effective control measures in the event that such a species manages to escape into the wild in Finland. Risk assessment targets: • to find out the probability and extent of establishment and spreading of the species, • to find out the probable environmental, economic and health impacts of the species becoming estab- lished and spreading, • to find out the most feasible combating measures and procedures to employ if the species escapes in- to the wild. PART IV Action APPENDIX plan Risk assessment client: Ministry of Agriculture and Forestry, Ministry of the Environment, party proposing the importing of the species (at its own cost). Risk assessment producer: It is essential for the Risk Assessment Research Unit to participate in these assessments. Specific expertise on species, establishment assessment expertise, impact assessment ex- pertise and combating measures assessment expertise will be acquired from LYNET research institutions and other actors. Risk assessment costs: About 6–36 person-months, species, depending on the extent of the risk assess- ment and available information. The duties of the risk assessment organisation include conducting risk assessments of the following kind, as commissioned: 4. Special risk assessments Special risk assessments may be commissioned to find out the risk to society not of an individual species but of an individual function. On the basis of the risk assessment, measures for efficiently reducing such a risk to society can be mandated or recommended for that function. Special risk assessments may address for instance: • comprehensive risk assessment on any individual pathway (e.g. wood chips, planting seeds, ballast water, wood packaging material), • risk assessments on individual companies or types of companies (e.g. seedling orchards, pet shops, shipping lines), • assessment of control measures to explore the costs and benefits of each, or • risk assessments related to the Ballast Water Convention. Risk assessment client: The administrative sector or ministry responsible for risk assessment or likely to suffer from the risk; any other party (at its own cost). Risk assessment producer: In most cases it is essential for the Risk Assessment Research Unit to partici- pate in these assessments. Other expertise will be obtained from LYNET research institutions and other actors. Risk assessment costs: About 0.1 to 36 person-months per species, depending on the extent and pur- pose of the risk assessment and the amount of information available. 120 New and transferred resources for risk assessment measures Measure New Transferred Note resources resources Evaluative screening x x Mainly involves leveraging existing knowledge, but some combining of information is required and hence some new resources. Prioritisation model development x If implemented as a research pro- and initial prioritisation ject on project funding. Application of the prioritisation x Estimated at 0.1 to 0.2 person- model after the initial stage months per species. Strengthening the Risk Assessment x 2 person-years per year. Research Unit at Evira with inva- sive alien species expertise and plant expertise Risk assessments x x New resources if conducted on ded- icated funding. May be transferred resources if e.g. project funding is used. In some cases, a risk assess- ment may be commissioned and paid for by a private party. FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES

APPENDIX IV Working group and experts who prepared the proposal Strategy Working group preparing the proposal Strategy: Chairman: Veikko Marttila, Environment Director, Ministry of Agriculture and Forestry Deputy chairman: Esko Jaakkola, Environment Counsellor, Ministry of the Environment Regular members and personal deputy members of the working group: Sini Wallenius, Senior Advisor (Agriculture), Ministry of Agriculture and Forestry Marjukka Mähönen, Ministerial Adviser, Ministry of Agriculture and Forestry Tuula Mäki-Valkama, Senior Specialist, Ministry of Agriculture and Forestry Jouni Tammi, Senior Officer, Ministry of Agriculture and Forestry Saara Jääskeläinen, Ministerial Adviser, Ministry of Transport and Communications Lolan Eriksson, Ministerial Counsellor, Ministry of Transport and Communications Matti Osara, Senior Officer, Ministry of the Environment Penina Blankett, Senior Officer, Ministry of the Environment Hanna Ranta, Researcher, Finnish Food Safety Authority Evira Sami Markkanen, Senior Officer, Finnish Food Safety Authority Evira Terho Hyvönen, Principal Research Scientist, MTT Agrifood Research Finland Jaakko Heikkilä, Senior Research Scientist, MTT Agrifood Research Finland Antti Pouttu, Researcher, Finnish Forest Research Institute Arja Lilja, Researcher, Finnish Forest Research Institute Vesa Ruusila, Research Director, Finnish Game and Fisheries Research Institute Markku Pursiainen, Programme Director, Finnish Game and Fisheries Research Institute Harry Helmisaari, Senior Officer, Finnish Environment Institute Terhi Ryttäri, Senior Research Scientist, Finnish Environment Institute Maiju Lehtiniemi, Research Specialist, Finnish Environment Institute Juha Flinkman, Research Specialist, Finnish Environment Institute 121 Pirjo Mäkelä, Professor, University of Helsinki (deputy member as of 7 January 2011) Kari Heliövaara, Professor, University of Helsinki (regular member as of 7 January 2011) Markus Helavuori, Maritime Inspector, Finnish Transport Safety Agency Päivi Yrjönen, Head of International Affairs, Finnish Transport Safety Agency Mika Virtanen, Secretary for Cereals, Central Union of Agricultural Producers and Forest Owners (MTK) Lea Jylhä, Forestry Specialist, Central Union of Agricultural Producers and Forest Owners (MTK) Jari Särkkä, Nursery Farmer, Central Organisation for Finnish Horticulture Jyri Uimonen, Special Consultant, Central Organisation for Finnish Horticulture Tapani Veistola, Nature Conservation Expert, Finnish Association for Nature Conservation Hannele Ahponen, Water Expert, Finnish Association for Nature Conservation Pirjo Nykänen, Senior Customs Inspector, Finnish Customs Anssi Kartila, Senior Inspector, Finnish Customs (until 10 September 2009); Heli Lampela, Senior Customs Inspector, Finnish Customs (as of 10 September 2009) Permanent expert members: Marianne Kettunen, Senior Policy Analyst, Institute for European Environmental Policy (IEEP) Petri Nummi, Docent, University of Helsinki Anu Pärnänen-Landtman, Counsellor, Ministry for Foreign Affairs Leif Schulman, Director, Finnish Museum of Natural History (University of Helsinki) Working group secretaries: Johanna Niemivuo-Lahti, Senior Adviser (Environment), Ministry of Agriculture and Forestry Jaana Kaipainen,Senior Adviser (Environment), Ministry of Agriculture and Forestry Other invited experts: Mikael Hildén, Professor, Finnish Environment Institute Seppo Hellsten, Professor, Finnish Environment Institute Pirjo Isotupa, M.A., Finnish Association for Nature Conservation PART IV Action APPENDIX plan

APPENDIX V Experts heard during the preparation of the Strategy, and experts in sub-groups contributing to the preparation of the Strategy Experts heard during the preparation of the Strategy Ari-Pekka Auvinen (Finnish Environment Institute) Visa Eronen (Uusimaa Game Management District) Jaakko Heikkilä (MTT Agrifood Research Finland) Risto Heikkinen (Finnish Environment Institute) Kari Heliövaara (University of Helsinki) Timo Hokkanen (North Karelia Centre for Economic Development, Transport and the Environment) Eija Kirjavainen (Ministry of Agriculture and Forestry) Heikki Korpelainen (Ministry of the Environment) Jussi Laanikari (Ministry of Agriculture and Forestry) Juha Pöyry (Finnish Environment Institute) Antti Rautiainen (Stara, City of Helsinki) Kari Saikkonen (MTT Agrifood Research Finland) Lauri Urho (Finnish Game and Fisheries Research Institute) Ilmari Valovirta (Finnish Museum of Natural History / University of Helsinki) Experts in sub-groups contributing to the preparation of the Strategy: Baltic Sea sub-group Penina Blankett (Ministry of the Environment) Jaakko Heikkilä (MTT Agrifood Research Finland) Markus Helavuori (Finnish Transport Safety Agency), sub-group leader Tarja Katajisto (Finnish Environment Institute) Ari Laine (Metsähallitus) Maiju Lehtiniemi (Finnish Environment Institute), sub-group leader Erkki Leppäkoski (Åbo Akademi University) 122 Elina Leskinen (University of Helsinki) Reetta Ljungberg (HELCOM) Anita Mäkinen (Finnish Transport Safety Agency) Jari-Pekka Pääkkönen (Environment Centre, City of Helsinki) Lotta Ruokanen (Environment Centre, City of Helsinki) Lauri Urho (Finnish Game and Fisheries Research Institute) Pia Vennerström (Finnish Food Safety Authority Evira) Pentti Välipakka (Southeast Finland Centre for Economic Development, Transport and the Environment) Inland waterways sub-group Hannele Ahponen (Finnish Association for Nature Conservation) Anna Eriksson-Kallio (Finnish Food Safety Authority Evira) Seppo Hellsten (Finnish Environment Institute), sub-group leader Harry Helmisaari (Finnish Environment Institute) Tea Huotari (University of Helsinki) Heikki Hämäläinen (University of Jyväskylä) Japo Jussila (Crayfish Information Centre) Kari Kilpinen (Federation of Finnish Fisheries Associations) Hannu Lehtonen (University of Helsinki) Hannu Luotonen (North Karelia Environment Centre) Timo Muotka (University of Oulu) Markku Pursiainen (Finnish Game and Fisheries Research Institute), sub-group leader Jouni Tammi (Ministry of Agriculture and Forestry) Pia Vennerström (Finnish Food Safety Authority Evira) Paula Henttonen (University of Eastern Finland), expert evaluation, epibionts Jouni Tulonen (Finnish Game and Fisheries Research Institute), expert evaluation, eel swim bladder nematode Satu Viljamaa-Dirks (Finnish Food Safety Authority Evira), expert evaluation, crayfish plague Alien land vertebrate species sub-group Jouko Högmander (Metsähallitus) Kaarina Kauhala (Finnish Game and Fisheries Research Institute) Maija Lahti (Finnish Fur Breeders’ Association) FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Teemu Lehtiniemi (BirdLife Finland) Petri Nummi (University of Helsinki), sub-group leader Antti Oksanen (Finnish Food Safety Authority Evira) Matti Osara (Ministry of the Environment) Vesa Ruusila (Finnish Game and Fisheries Research Institute), sub-group leader Marko Svensberg (Hunters’ Central Organisation) Tapani Veistola (Finnish Association for Nature Conservation) Helinä Ylisirniö (Finnish Federation for Animal Welfare Associations) Alien plant species sub-group Aulis Ansalehto (ProAgria) Timo Hokkanen (North Karelia Centre for Economic Development, Transport and the Environment) Tiina Kanerva (Metsähallitus) Paula Lilja (Finnish Food Safety Authority Evira) Raija Merivirta (Finnish Transport Agency) Jouko Rikkinen (University of Helsinki) Terhi Ryttäri (Finnish Environment Institute), sub-group leader Leif Schulman (Finnish Museum of Natural History) Jari Särkkä (Central Organisation for Finnish Horticulture) Satu Tegel (City of Helsinki) Olli Turunen / Markus Seppälä (Finnish Association for Nature Conservation) Jyri Uimonen (Central Organisation for Finnish Horticulture) Henry Väre (Finnish Museum of Natural History) Sini Wallenius (Ministry of Agriculture and Forestry) Alien species in agriculture and forestry sub-group Asko Hannukkala (MTT Agrifood Research Finland) Salla Hannunen (Finnish Food Safety Authority Evira) Jaakko Heikkilä (MTT Agrifood Research Finland) Kari Heliövaara (University of Helsinki) Erja Huusela-Veistola (MTT Agrifood Research Finland) Terho Hyvönen (MTT Agrifood Research Finland), sub-group leader Marja Jalli (MTT Agrifood Research Finland) 123 Hannu Kukkonen (Finnish Food Safety Authority Evira) Pauliina Laitinen (MTT Agrifood Research Finland) Anne Lemmetty (MTT Agrifood Research Finland) Arja Lilja (Finnish Forest Research Institute) Paula Lilja (Finnish Food Safety Authority Evira) Leena Lindström (University of Jyväskylä) Irmeli Markkula (MTT Agrifood Research Finland) Päivi Parikka (MTT Agrifood Research Finland) Antti Pouttu (Finnish Forest Research Institute) Anne Nissinen (MTT Agrifood Research Finland) Pirjo Mäkelä (University of Helsinki) Tuula Mäki-Valkama (Ministry of Agriculture and Forestry) Hanna Ranta (Finnish Food Safety Authority Evira), sub-group leader Kari Saikkonen (MTT Agrifood Research Finland) Kari Tiilikkala (MTT Agrifood Research Finland) Tuomo Tuovinen (MTT Agrifood Research Finland) Mika Virtanen (Central Union of Agricultural Producers and Forest Owners (MTK)) Irene Vänninen (MTT Agrifood Research Finland) Mirkka Soukainen (Finnish Food Safety Authority Evira), expert contribution Salla-Riikka Vesterlund (University of Turku), expert contribution Small group preparing the risk assessment draft Jaakko Heikkilä (MTT Agrifood Research Finland) Harry Helmisaari (Finnish Environment Institute) Salla Hannunen (Finnish Food Safety Authority Evira) Tapani Lyytikäinen (Finnish Food Safety Authority Evira) Tuula Mäki-Valkama (Ministry of Agriculture and Forestry) Hanna Ranta (Finnish Food Safety Authority Evira) Indoor pests small group Kari Heliövaara (University of Helsinki) Pirjo Isotupa (Finnish Association for Nature Conservation) Hanna Ranta (Finnish Food Safety Authority Evira) PART IV Action APPENDIX plan

APPENDIX VI Background materials used in the preparation of the Strategy Research projects on invasive alien species commissioned by Finland’s Ministry of Agriculture and Forestry for the preparation of Finland’s National Strategy on Invasive Alien Species: 1) Anticipating the significance of climate change in the spreading of species to Finland: Synthesis of research findings and macroclimate comparison (Risto Heikkinen, Juha Pöyry, Stefan Fronzek, Niko Leikola). 2) Changes in fish species and populations and non-native species as the climate changes (Lauri Urho, Zeynep Pekcan-Hekim). 3) Alien species in plant production risk management (Kari Saikkonen, Terho Hyvönen). 4) Development of alien species monitoring, an early warning system and risk assessment in our marine areas (VISEVARIS) (Lauri Urho, Maiju Lehtiniemi, Erkki Leppäkoski). 5) National invasive alien species portal: Design and preparation for rollout (Harry Helmisaari, Niko Leikola, Terhi Ryttäri). Other background material used in the preparation of the Strategy: Aspelund, P. and Ryttäri, T. 2010. Kurtturuusu uhkaa hiekkarantojen ja dyynien eliöyhteisöjä – tapaus Hangon Furuvik. Lutukka 26: 3–9. Blumenthal, D., Mitchell, C. E., Pyšek, P. and Jarosik, V. 2009. Synergy between pathogen release and resource availability in plant invasion. Proceedings of the National Academy of Sciences of the United States of America 106: 7899–7904. 124 Erkamo, E. and Pursiainen, M. 2006. Rapusaaliiden kehitys tilastojen valossa. In: Pursiainen, M. & Ruoko- nen, T. (eds.) 2006. Raputalouskatsaus 2006. Riista- ja kalatalouden tutkimuslaitos. Kala- ja riistaraport- teja 395. 63 pp. Gren, I.-M., Isacs, L. and Carlsson, M. 2007. Calculation of costs of alien invasive species in Sweden – tech- nical report. Sveriges lantbruksuniversitet, Uppsala, 83 pp. Heikkinen, R., Pöyry, J., Fronzek, S. and Leikola N. 2010. Ilmastonmuutoksen merkityksen ennakointi vierasla- jien leviämisessä Suomeen – Tutkimustiedon synteesi ja suurilmastollinen vertailu. Maa- ja metsätalous- ministeriön tutkimushanke. Hulme, P. E. 2009. Trade, transport and trouble: managing invasive species pathways in an era of globaliza- tion. Journal of Applied Ecology 46: 10–18. Järvi, T. H. 1910. Über den Krebs (Astacus fluviatilis Rond.) und die Krebsepidemien in Finland. Acta Soc. Pro Fauna et Flora Fennica. 33 (3): 1–41. Kettunen, M., Genovesi, P., Gollasch, S., Pagad, S., Starfinger, U., ten Brink, P. and Shine, C. 2009. Technical support to EU strategy on invasive species (IAS) – Assessment of the impacts of IAS in Europe and the EU (Final draft report for the European Commission). Institute for European Environmental Policy (IEEP), Brussels, Belgium, 40 pp. + annexes. MacKay, J. and Kotanen, P. M. 2008. Local escape of an invasive plant, common ragweed (Ambrosia artemi- siifolia L.), from above-ground and below-ground enemies in its native area. Journal of Ecology 96: 1152–1161. Pimentel, D., McNair, S., Janecka, J., Wightman, J., Simmonds, C., O’Connell, C., Wong, E., Russel, L., Zern, J., Aquino, T. and Tsomondo, T. 2001. Economic and environmental threats of alien plant, animal, and microbe invasions. Agriculture, Ecosystems and Environment 84: 1–20. FINLAND’S NATIONAL STRATEGY ON INVASIVE ALIEN SPECIES Pejchar, L. and Mooney, H. A. 2009. Invasive species, ecosystem services and human well-being. Trends in Ecology & Evolution 24: 497–504. Pyšek, P. and Hulme, P. E. 2005. Spatio-temporal dynamics of plant invasions: Linking pattern to process. Ecoscience 12: 302–315. Pyšek, P. and Richardson, D. M. 2007. Traits Associated with Invasiveness in Alien Plants: Where Do we Stand? In: Nentwig, W. (eds.). Biological Invasions. Springer. Ecological Studies, Vol. 193, pp. 97–125. http://dx.doi.org/10.1007/978-3-540-36920-2_7. Savolainen, R. and Moilanen, P. Rapujen tuotanto Suomessa vuonna 2008. In: Pursiainen, M. & Rajala, J. (eds.), Raputalouskatsaus 2009. Riista- ja kalatalous – selvityksiä 8/2010, pp. 8-13. Shine, C., Kettunen, M., Genovesi, P., Gollasch, S., Pagad, S. and Starfinger, U. 2008. Technical support to EU strategy on invasive species (IAS) – Policy options to control the negative impacts of IAS on biodiversity in Europe and the EU (Final module report for the European Commission). Institute for European Envi- ronmental Policy (IEEP), Brussels, Belgium, 104 pp. + annexes. Shine, C., Kettunen, M., Genovesi, P., Essl, F., Gollasch, S., Rabitsch, W., Scalera, R., Starfinger, U. and ten Brink, P. 2010. Assessment to support continued development of the EU Strategy to combat inva- sive alien species. Final Report for the European Commission. Institute for European Environmental Policy (IEEP), Brussels, Belgium, 297 pp. Vitousek P., D’Antonio, C., Loope, L. and Westbrooks, R. 1997. Biological invasions as global environmental change. American Scientist 84: 468–478. Westman, K. and Järvenpää, T. 1991. Äyriäisten vienti ja tuonti kautta aikojen. Kalastusmuseoyhdistyksen julkaisuja – Fiskerimuseiföreningens publikationer. 5: 35-44. Helsinki. 125 Westman, K. and Nylund, V. 1985. Rapu ja ravustus. Weilin+Göös, Espoo, 173 pp. PART IV Action APPENDIX plan Documentation page Publisher Ministry of Agriculture and Forestry Date April 2012 Author(s) Based on the proposal prepared by the working group on a National Strategy on Invasive Alien Species, edited by Johanna Niemivuo-Lahti Title of publication Finland’s National Strategy on Invasive Alien Species Abstract The objective of the National Strategy on Invasive Alien Species (IAS) is to re- duce the damages and risks caused by invasive species to the Finnish nature, sustainable utilisation of natural resources and livelihoods. The aim is to take action at the earliest stage possible with a view to combat invasive alien species because this is the most effective and far less costly approach to prevent dam- ages caused by IAS. According to estimates by experts, in the beginning of 2011 there were a total of 157 IAS permanently established in Finland which cause clearly identifiable, direct or indirect damage. A significant share of these species (108 species) are agricultural and forestry species. Of the remaining species 5 occur in the terri- torial waters of Finland in the Baltic Sea, 5 in inland waters, 6 are land verte- brates, 24 are plant species and 9 are indoor pests. In addition, about 123 spe- cies not native to Finland to be monitored or which may be locally harmful were identified. Invasive alien species defined as particularly harmful include, besides the dangerous pests called quarantine species (37 species), Japanese rose (Rosa rugosa), crayfish plague (Aphanomyces astaci), giant hogweed (Heracleum mantegazzianum, H. persicum, H. sosnowskii), Spanish slug (Arion lusitanicus) and [American] mink (Mustela vison). Action is required to reduce the harmful impacts of invasive alien species. The Action Plan of Finland’s National Strategy on Invasive Alien Species puts forward 16 different types of measures. These include comprehensive legislation on IAS, 126 establishing an expert body to monitor and promote the actions in IAS, introduc- ing publicity and training measures concerning IAS, setting up a national IAS portal, and creating a system for early warning and monitoring of IAS. The objec- tives of the Action Plan also include setting up a national risk assessment sys- tem for IAS, increasing research on IAS, especially related to risk assessments, preparations to prevent the entry of IAS to Finland and to launch rapid measures against IAS already present in the country, as well as encouraging voluntary ac- tion by citizens to prevent IAS. As set out in the Action Plan, funding mecha- nisms for preventing IAS are developed while ensuring that IAS do not spread across borders through Finland and that Finland also participates in interna- tional action to combat IAS. In addition, a set of targeted measures are taken to prevent damage caused by IAS in the Baltic Sea and inland waters and by alien land vertebrates and land plants. One objective contained in the strategy is to completely eradicate giant hogweeds in Finland within the next 10 to 20 years. The Government Resolution on Finland’s National Strategy on Invasive Alien Spe- cies was adopted on 15 March 2012. Keywords alien species, invasive alien species (IAS), potentially or locally harmful alien species, invasive alien species in the Baltic Sea, invasive alien species in inland waters, invasive alien land vertebrates, invasive alien land plants, invasive alien agricultural and forestry species, invasive alien indoor pests ISBN 978-952-453-726-1 (Electronic version) No. of pages 126 Language Finnish and English For sale at/ Ministry of Agriculture and Forestry, Finland distributor