Invasive Forest Pests
Recent Infestations and Continued Vulnerabilities at Ports of Entry Place U.S. Forests at Risk Gao ID: GAO-06-871T June 21, 2006Invasive forest pests have seriously harmed our environment and imposed significant costs on our economy. The U.S. Department of Agriculture (USDA) is the lead agency for responding to forest pests and coordinates with the Department of Homeland Security (DHS) to prevent pests from entering the country. GAO issued two reports in 2006 on these programs. This testimony describes (1) the status of USDA's efforts to eradicate the Asian longhorned beetle, emerald ash borer, and Phytophthora ramorum; (2) the factors affecting the success of those eradication efforts; and (3) areas of continued vulnerability in regard to preventing the arrival and spread of forest pests.
On the basis of the available evidence, it appears that the Asian longhorned beetle will be eradicated in the three states that have infestations, although funding reductions have extended the likely completion date. In contrast, the emerald ash borer and P. ramorum--the pathogen that causes Sudden Oak Death--are likely to continue to infest and damage forest ecosystems in the Midwest and on the West Coast, despite efforts to control them. The success of the federal responses to these infestations has been affected by several factors. First, the unique biological characteristics of each species greatly influences the ability to effectively control them. Second, quarantines have helped contain the spread of the pests, but implementing and enforcing quarantines has been difficult. Third, the only available method for eradicating these pests is to destroy infested trees and plants--a costly and sometimes impractical approach. Fourth, despite budgeting over $420 million to control these three pests, USDA program managers told GAO that funding has not been sufficient to fully implement their programs. We also found that USDA had not adequately prepared up-to-date management plans to provide decision makers and the public with current information on the extent of the infestation, eradication goals, and long-term funding needs. We identified areas of vulnerability that we believe increase the risk of future forest pest infestations. Specifically, we found that despite efforts to expand USDA's forest health monitoring programs, they do not adequately provide for comprehensive monitoring in urban forests or other locations considered at high risk from pest invasions. Monitoring in such areas is important because they are common destination points for internationally traded cargo, which is a frequent pathway for pests. Improvements could help prevent situations such as those experienced with the Asian longhorned beetle, the emerald ash borer, and P. ramorum, in which years of delay in detection allowed them to become established before control programs began. In our report on port inspections, we found that DHS has not used a risk-based staffing model to assign newly hired agricultural specialists to ports of entry. As a result, DHS does not have assurance that staff are assigned to areas of greatest vulnerability. In addition, despite an interagency agreement intended to facilitate coordination between DHS and USDA, agricultural specialists are not consistently receiving notifications of changes to policies and urgent inspection alerts in a timely manner. We also reported that DHS has allowed the canine inspection program--dogs trained to locate items that might harbor pests--to deteriorate. Dozens of canine units are vacant, and the proficiency scores of the remaining canine units have declined.
GAO-06-871T, Invasive Forest Pests: Recent Infestations and Continued Vulnerabilities at Ports of Entry Place U.S. Forests at Risk
This is the accessible text file for GAO report number GAO-06-871T
entitled 'Invasive Forest Pests: Recent Infestations and Continued
Vulnerabilities at Ports of Entry Place U.S. Forests at Risk' which was
released on June 22, 2006.
This text file was formatted by the U.S. Government Accountability
Office (GAO) to be accessible to users with visual impairments, as part
of a longer term project to improve GAO products' accessibility. Every
attempt has been made to maintain the structural and data integrity of
the original printed product. Accessibility features, such as text
descriptions of tables, consecutively numbered footnotes placed at the
end of the file, and the text of agency comment letters, are provided
but may not exactly duplicate the presentation or format of the printed
version. The portable document format (PDF) file is an exact electronic
replica of the printed version. We welcome your feedback. Please E-mail
your comments regarding the contents or accessibility features of this
document to Webmaster@gao.gov.
This is a work of the U.S. government and is not subject to copyright
protection in the United States. It may be reproduced and distributed
in its entirety without further permission from GAO. Because this work
may contain copyrighted images or other material, permission from the
copyright holder may be necessary if you wish to reproduce this
material separately.
Testimony:
Before the Subcommittee on Forests and Forest Health, Committee on
Resources, House of Representatives:
United States Government Accountability Office:
GAO:
For Release on Delivery Expected at 4:00 p.m. EDT:
Wednesday, June 21, 2006:
Invasive Forest Pests:
Recent Infestations and Continued Vulnerabilities at Ports of Entry
Place U.S. Forests at Risk:
Statement of Daniel Bertoni, Acting Director: Natural Resources and
Environment:
GAO-06-871T:
GAO Highlights:
Highlights of GAO-06-871T, a testimony before the Subcommittee on
Forests and Forest Health, Committee on Resources, House of
Representatives.
Why GAO Did This Study:
Invasive forest pests have seriously harmed our environment and imposed
significant costs on our economy. The U.S. Department of Agriculture
(USDA) is the lead agency for responding to forest pests and
coordinates with the Department of Homeland Security (DHS) to prevent
pests from entering the country. GAO issued two reports in 2006 on
these programs. This testimony describes (1) the status of USDA‘s
efforts to eradicate the Asian longhorned beetle, emerald ash borer,
and Phytophthora ramorum; (2) the factors affecting the success of
those eradication efforts; and (3) areas of continued vulnerability in
regard to preventing the arrival and spread of forest pests.
What GAO Found:
On the basis of the available evidence, it appears that the Asian
longhorned beetle will be eradicated in the three states that have
infestations, although funding reductions have extended the likely
completion date. In contrast, the emerald ash borer and P. ramorum”the
pathogen that causes Sudden Oak Death”are likely to continue to infest
and damage forest ecosystems in the Midwest and on the West Coast,
despite efforts to control them.
The success of the federal responses to these infestations has been
affected by several factors. First, the unique biological
characteristics of each species greatly influences the ability to
effectively control them. Second, quarantines have helped contain the
spread of the pests, but implementing and enforcing quarantines has
been difficult. Third, the only available method for eradicating these
pests is to destroy infested trees and plants”a costly and sometimes
impractical approach. Fourth, despite budgeting over $420 million to
control these three pests, USDA program managers told GAO that funding
has not been sufficient to fully implement their programs. We also
found that USDA had not adequately prepared up-to-date management plans
to provide decision makers and the public with current information on
the extent of the infestation, eradication goals, and long-term funding
needs.
We identified areas of vulnerability that we believe increase the risk
of future forest pest infestations. Specifically, we found that despite
efforts to expand USDA‘s forest health monitoring programs, they do not
adequately provide for comprehensive monitoring in urban forests or
other locations considered at high risk from pest invasions. Monitoring
in such areas is important because they are common destination points
for internationally traded cargo, which is a frequent pathway for
pests. Improvements could help prevent situations such as those
experienced with the Asian longhorned beetle, the emerald ash borer,
and P. ramorum, in which years of delay in detection allowed them to
become established before control programs began. In our report on port
inspections, we found that DHS has not used a risk-based staffing model
to assign newly hired agricultural specialists to ports of entry. As a
result, DHS does not have assurance that staff are assigned to areas of
greatest vulnerability. In addition, despite an interagency agreement
intended to facilitate coordination between DHS and USDA, agricultural
specialists are not consistently receiving notifications of changes to
policies and urgent inspection alerts in a timely manner. We also
reported that DHS has allowed the canine inspection program”dogs
trained to locate items that might harbor pests”to deteriorate. Dozens
of canine units are vacant, and the proficiency scores of the remaining
canine units have declined.
What GAO Recommends:
GAO recommended in its report on forest pests that USDA (1) expand
efforts to monitor forest health conditions in urban areas,
particularly those deemed high risk for potential infestations; and (2)
regularly update and publish management plans for pests that include
status information and funding needs. GAO recommended in its report on
port inspections that DHS and USDA (1) establish a process to identify
and assess foreign pest risks and implement a staffing model to meet
those risks, (2) improve the communication of pest alerts and other
policies between agencies, and (3) improve the effectiveness of the
canine inspection program.
[Hyperlink, http://www.gao.gov/cgi-bin/getrpt?GAO-06-871T].
To view the full product, including the scope and methodology, click on
the link above.
For more information, contact Daniel Bertoni at (202) 512-3841 or
bertonid@gao.gov.
[End of Section]
Mr. Chairman and Members of the Subcommittee:
I am pleased to be here today to discuss federal efforts to prevent the
introduction of agricultural pests into the United States and to
control and eradicate pests once they have entered. As you know, our
public and private forests provide enormous value to the nation in the
form of raw materials for building supplies and fuel, natural resources
for wildlife habitat, air and water purification, and opportunities for
recreation. The U.S. Department of Agriculture (USDA) is responsible
for protecting the health of the nation's forests from harmful pests.
The Animal and Plant Health Inspection Service (APHIS) and the Forest
Service are USDA's lead agencies in this regard, and they often work
with other federal, state, and local agencies to manage and eradicate
invasive species infestations. In addition, USDA and the Department of
Homeland Security (DHS) coordinate port inspection programs intended to
prevent the entry of new agricultural pests, including those that
threaten forest resources.
Forest pests can have substantial impacts on our environment and
economy, costing society billions of dollars in lost revenue and
restoration expenses. When forest pests kill trees, they reduce the
value of timberlands and residential property, harm businesses,
increase the risk of wildfire, degrade ecosystems, and place upon
homeowners and local governments the costly burden of removing dead
trees before they become a safety hazard. Hundreds of nonnative
invasive insect and pathogen species have already infested our nation's
forests, resulting in huge losses of native tree species. Furthermore,
because of the large number of visitors and enormous volume of foreign
cargo that arrive in the United States every day, there is the
potential that other pests may pass through our borders and cause
further damage.
My testimony today is based on two recent GAO reports. The first is a
report we provided to the full committee in April on three serious
forest pests--the Asian longhorned beetle; the emerald ash borer; and
Phytophthora ramorum, the pathogen that causes Sudden Oak Death--and
other matters relating to forest monitoring.[Footnote 1] The second is
a May 2006 report provided to congressional requesters that reviewed
the transfer of agricultural inspection activities at ports of entry
from USDA to DHS and how this transfer has affected the inspection
program.[Footnote 2] Drawing from those reports, my testimony will
discuss: (1) the status of USDA's efforts to eradicate the Asian
longhorned beetle, emerald ash borer, and P. ramorum; (2) the factors
affecting the success of those eradication efforts; and (3) areas of
continued vulnerability in regard to preventing the arrival and spread
of forest pests.
Summary:
In summary, efforts to eradicate the Asian longhorned beetle appear
likely to succeed, while efforts against the emerald ash borer and P.
ramorum do not. The Asian longhorned beetle infests localized areas in
Illinois, New Jersey, and New York, and program managers are optimistic
that the pest can be eradicated from the United States. In contrast,
the emerald ash borer and P. ramorum infest much more extensive areas-
-40,000 and 19,000 square miles in the Midwest and on the West Coast,
respectively. Program managers do not believe these pests can be
eradicated from the natural environment because of the size of the
areas that are already infested and thus have set containment goals for
the pest management programs. The impact of these two infestations
could reach tens of billions of dollars in damages.
The success of federal efforts to eradicate these pests has been
affected by several factors. First, the unique biological
characteristics of each species greatly influence the ability to
effectively control them. For example, the Asian longhorned beetle is a
large, conspicuous bug that does not fly far from the core infestation,
while the other two species are more insidious and can spread more
rapidly and over greater distances. Second, quarantines have helped
contain the spread of the pests, but implementation and enforcement
have been difficult. Each of these pests can be transported
inadvertently by virtually anyone through activities as seemingly
benign as moving firewood to a vacation home; educating the public
about the quarantines and enforcing them are daunting tasks. Third, the
only available method for eradicating these pests is to destroy
infested trees and plants--an obviously costly and sometimes
impractical approach when needed over large areas. Lastly--a problem
faced by many government programs--according to program managers,
funding has not been sufficient to fully implement the pest management
programs.
Although USDA has spent over $420 million to control these pests, a
decline in recent funding levels will likely result in a longer time
frame for eradicating the Asian longhorned beetle, and current funding
may be inadequate to even contain the emerald ash borer and P. ramorum.
With respect to program funding, we also found that USDA had not
adequately prepared management plans that account for the extent of the
current infestations, long-term funding needs, and the implications of
known or anticipated funding levels on the schedule for control
activities. We believe that better management plans would provide
decision makers at the state and national levels with important
information about the short-and long-term costs associated with pest
management programs. Accordingly, we recommended that the Secretary of
Agriculture routinely prepare and update pest management plans with
such information.
In our reports on forest pests and the coordination of agricultural
inspections, we identified areas of vulnerability that we believe
increase the risk of future forest pest infestations. With regard to
the three forest pests we reviewed, we found that delays in detecting
the presence of the pests in the United States allowed them to become
established in the environment before control programs began. For
example, while the Asian longhorned beetle was detected at several
ports, no additional monitoring was done to determine whether the pest
had entered the natural environment; had such monitoring been done, the
pest might have been more easily and quickly eradicated, and the cost
to do so may have been considerably less. USDA has taken steps in
recent years to expand some of its forest monitoring programs. However,
the programs still do not adequately cover urban areas and other
locations at high risk of receiving infested cargo. To help detect
forest pests, we recommended that the Secretary of Agriculture expand
current efforts to monitor forest health conditions, particularly in
urban areas that are at high risk of receiving invasive insects and
diseases. While timely detection of potentially harmful pests in the
environment is important, preventing their entry into the United States
is the first line of defense. However, in our report on USDA and DHS
coordination of port inspections, we identified several problems that
raise questions about the ability of the agencies to effectively
protect the United States against forest pests and other harmful
organisms. First, we found that less than one-quarter of agricultural
specialists conducting inspections routinely receive urgent alerts
about potential agricultural threats in a timely manner. Second, we
found that the agencies did not have staff assigned to ports and other
inspection locations on the basis of an assessment of the potential
vulnerability of those locations to the arrival of new, potentially
harmful pests. Finally, DHS has allowed the number and proficiency of
agricultural canine units--which are used to target passengers and
cargo for agricultural inspections--to decline. We made several
recommendations to USDA and DHS to address these and other deficiencies
to strengthen the programs intended to prevent the entry of harmful
agricultural pests into the country.
Background:
The impact of invasive species in the United States is widespread, and
their consequences for the economy and the environment are
profound.[Footnote 3] Invasive species are nonnative plants, animals,
and microorganisms intentionally or unintentionally brought into a new
environment. Once in that new location, these species may be able to
crowd out native species, multiply at a rapid rate, and spread to other
locations. These invaders can also affect people's livelihoods and pose
a significant risk to industries such as agriculture, ranching, and
fishing. The cost to control invasive species and the cost of the
damages they inflict are estimated at billions of dollars annually.
With respect to our nation's forests, the history of harmful invasive
species is long. For example, starting in the early 1800s, American
chestnut trees were devastated by a succession of two nonnative
pathogens--ink disease and chestnut blight. Chestnut trees were a major
component of the nation's deciduous forests, were valuable to wildlife,
and had wide use as a source of lumber. Today, chestnut trees still
survive in much of their former range, but only as sprouts from the old
root systems. The gypsy moth is another serious invasive forest species
that continues to harm our nation's forests more than 130 years after
its accidental release by an amateur entomologist studying silkworms.
Each of the three forest pests we reviewed in our April report likely
entered our country in the last 20 years. The Asian longhorned beetle
likely entered in the mid-1980s, currently infests areas in Illinois,
New Jersey, and New York, and affects hardwood trees such as maple and
elm. The emerald ash borer likely entered the United States in the
early 1990s and infests about 40,000 square miles in Indiana, Michigan,
Ohio, and some parts of Canada. A small infestation was confirmed just
last week in Illinois. The borer affects all 16 species of North
American ash trees. It is thought that the pathogen that causes Sudden
Oak Death, P. ramorum, entered the country as early as the mid-1990s,
although how it arrived is unknown. Of the three pests we reviewed, P.
ramorum affects the widest range of species, including various species
of oak and ornamental plants such as rhododendrons and camellias. The
pathogen has affected more than 19,000 square miles in California and
one county in southwestern Oregon. Together, according to USDA, these
forest pests have the potential to cause the loss of trees valued at
trillions of dollars.
APHIS is the lead federal agency responsible for responding to insects
and diseases that have entered the country and that might harm U.S.
agriculture. APHIS conducts detection surveys, issues quarantines,
directs eradication efforts such as removing infested trees or applying
pesticides, develops control technologies, and performs public
outreach. The Forest Service--which has federal responsibility for
protecting the nation's forests--conducts surveys and research and
undertakes reforestation of areas affected by pests. DHS plays a
critical role in protecting agricultural interests--including the
nation's forests--by coordinating activities with USDA designed to keep
pests out of the country. DHS inspects ships, airplanes, vehicles,
cargo, and passengers and their baggage for prohibited agricultural
materials that may serve as carriers for pests and disease. USDA
conducted agricultural inspections in the past, but the Homeland
Security Act of 2002 transferred this function, among others, to
DHS.[Footnote 4] Funding for pest management activities comes through
annual appropriations and the Commodity Credit Corporation (CCC), which
is a government-owned entity that finances farm commodity,
conservation, and trade programs and provides funding for agricultural-
related emergencies.[Footnote 5] The Secretary may transfer funds from
the CCC (or other available USDA appropriations) for the arrest,
control, eradication, and prevention of the spread of a plant pest and
related expenses.
State agencies also play an important role in managing invasive
species. For example, state agencies impose quarantines to prevent the
movement of infested materials within their state and take actions to
eradicate pests. Working with APHIS, state agencies also monitor for
specific plant pests, including some that have already arrived in the
country and others that have not but are believed to pose a threat. In
addition, APHIS and the Forest Service enter into cooperative
agreements with states to jointly carry out eradication programs and
provide funding assistance for these programs.
Eradicating the Asian Longhorned Beetle Appears Likely, While Success
on the Emerald Ash Borer and P. ramorum Is Less Promising:
Evidence suggests that the Asian longhorned beetle will be eradicated,
while the emerald ash borer and P. ramorum are likely to continue to
infest and damage forest ecosystems indefinitely, despite efforts to
control them.
* Asian longhorned beetle: Efforts to eradicate the Asian longhorned
beetle appear likely to succeed in New Jersey, New York, and Illinois.
Over 8,000 trees infested with the beetle have been removed, and over
600,000 trees have been chemically treated to protect against beetle
infestations. As a result of these and other actions, federal and state
agencies have been able to reduce the size of the infested areas.
APHIS's current goals for Illinois and New Jersey are to confirm
eradication and end the management programs in 2008 and 2012,
respectively. The current goal for declaring eradication in New York is
2021.
* Emerald ash borer: In contrast, we reported in April that it is
unlikely that the emerald ash borer can be eradicated in the United
States. Its small size, inconspicuous habits, and flight capabilities
have aided the spread of the borer. In addition, human activities, such
as moving infested firewood, have amplified the natural spread of the
insect. Current management goals call for eradicating the borer in
Indiana and Ohio and containing it in Michigan, which has the most
extensive infestations. The pest has killed an estimated 15 million
trees. USDA estimated that the cost of removing and replacing dead ash
trees in urban and suburban areas could reach $7 billion over a 25-year
period.
* P. ramorum: Similar to the borer, it is unlikely that P. ramorum can
be eradicated in the United States. Managing the pathogen is difficult
given the size of the infestation and the many ways it can be spread--
through movement of plant material, soil on car tires, and possibly
even fog. APHIS and state agencies have attempted to eradicate the
pathogen from forests in only a few situations where the infestations
were relatively small, such as in Curry County, Oregon. While seemingly
impossible to eradicate from the natural environment, APHIS and state
agencies are hoping to eradicate the pathogen from nurseries to reduce
the risk that infected ornamental plants will spread the pathogen to
other locations in the country. P. ramorum has killed tens of thousands
of trees and led to the destruction of over 1 million nursery plants.
These trees and plants were worth millions of dollars in ornamental,
timber, wildlife, and environmental value.
Many Factors Affect the Success of Eradication Efforts:
The success of efforts to eradicate the Asian longhorned beetle, the
emerald ash borer, and P. ramorum has been affected by factors relating
to species biology, quarantines, detection and control technologies,
and funding.
Species Biology:
Specific biological characteristics of each of the three pests greatly
influence the potential success of eradication efforts. The Asian
longhorned beetle is a large, conspicuous bug that does not fly far
from the core infestation. As a result, it is fairly noticeable and
does not spread quickly, making it easier to detect and control.
Conversely, the emerald ash borer and P. ramorum are more insidious and
can spread over greater distances and more rapidly, making control
efforts more difficult.
Quarantines:
Officials involved with all three pests believe that the use of
quarantines has helped to reduce the spread of the pests but we
observed that implementing quarantines can be difficult. Quarantines
help limit the spread of an invasive species by regulating the movement
of potentially infested materials--such as firewood, nursery plants,
and wood debris. However, the effectiveness of quarantines is limited
by the prevailing knowledge about how the pest spreads and about the
extent of its infestation. Since the Asian longhorned beetle
infestations were relatively small, identifying the geographic
boundaries for quarantines was fairly easy. In contrast, the boundaries
for the quarantines for the borer were revised several times in
response to information that indicated the infestations were much
larger than originally thought. As a result of the incorrect quarantine
boundaries, there was a greater risk that people would move infested
material to unaffected locations. Similarly, the quarantines for P.
ramorum had to be revised after learning that a nursery outside the
quarantined area had become infested and had shipped plants to at least
22 states.
The success of quarantines can also depend heavily on effectively
educating the public about the ways in which pests can be spread. For
each of the three forest pest species we reviewed, certain normally
harmless actions--such as moving firewood or tracking soil in hiking
boots--can result in transporting the pests to new locations. Because
nearly any individual can engage in such actions, including residents
traveling to campgrounds or vacation homes and small firewood dealers,
it is hard to define and reach target audiences with information about
quarantines and enforcement efforts. Educating the public about
activities that could spread the pests and then enforcing compliance
with quarantines are thus daunting tasks. While stakeholders believe
that outreach efforts by the three pest management programs have helped
educate the public about the dangers of individual actions, all it
takes is one piece of infested firewood or contaminated soil to start a
potential infestation.
Detection and Control Technologies:
Successful control and eradication of the three forest pests we
reviewed have been constrained by a lack of cost-effective tools for
detecting and eliminating the pests. Detection methods for the three
pests consist largely of visual observations, and in the case of P.
ramorum, costly laboratory diagnostics. Such methods are not always
effective and, given the size of the infestations, are resource
intensive and time consuming. Research is ongoing into various
technologies to develop better detection capabilities, such as chemical
lures for the beetle and borer.
Eradication methods are similarly limited.[Footnote 6] Currently, the
only option is to destroy the infested tree or plant material as well
as nearby trees and plants suspected of being infested, usually by
cutting, chipping, or burning. This approach has been used to eradicate
infestations of the Asian longhorned beetle. Although we refer to the
beetle's infestations as "relatively small," over 8,000 infested trees
have been removed. Such efforts, however, are not practical given the
size of the infestations of emerald ash borer and P. ramorum. As a
result, managers have used selective removal of trees infested with the
emerald ash borer and P. ramorum to eradicate small outlying
infestations. Trees are also being removed along the perimeter of large
emerald ash borer infestations in hopes of containing them. The most
extensive eradication efforts for P. ramorum are occurring in nurseries
for plants that are infested or suspected of being infested; these are
routinely destroyed according to quarantine regulations. Although
removal of trees with emerald ash borer and P. ramorum has been
selective, hundreds of thousands of infested or potentially infested
trees have been destroyed. Unfortunately, there are no chemical or
biological treatments available to effectively kill the pests on a
broad scale, although research is ongoing to develop methods of killing
these pests without requiring the removal and destruction of infested
trees and plants. Preventive chemical treatments have been used
extensively for the Asian longhorned beetle--over 600,000 trees have
been treated--but only to a limited extent for the other two pests and
primarily by home owners to protect valuable landscape trees.
Funding Levels:
The federal government has provided over $420 million for programs to
control the three infestations we reviewed, primarily through the CCC
fund and appropriations to APHIS's emerging plant pest program. States
have also provided funding for management actions, although it has
generally been less than the federal investment. However, program
officials involved with managing the three pests told us either that
funding has not been what was needed or that they are concerned about
the prospects for maintaining existing efforts in light of funding
constraints. Some management officials also noted that the
unpredictable timing of funding, particularly the transfers from the
CCC fund, hamper their ability to plan and implement control
activities.
Over the years, USDA has allocated about $249 million to control the
Asian longhorned beetle, $112 million for the emerald ash borer, and
$61 million for P. ramorum.[Footnote 7] For the beetle and borer,
program managers told us that funding shortfalls will limit the control
and eradication actions that can be taken. We reported in April that
funding reductions for the beetle during fiscal years 2002 and 2003
resulted in moving the target date for completing the eradication
program from 2009 to 2014, but current funding levels placed that date
in question. In June 2006, APHIS issued a revised strategic plan that
projected a completion date in New York of 2021. For the emerald ash
borer, state officials in Michigan and Ohio have announced that
programs for removing trees in infested areas have been significantly
reduced because of a lack of federal funding. Nearly all stakeholders
we interviewed regarding P. ramorum raised concerns that funding has
not been adequate to contain the pathogen.
Related to funding concerns, we found that timely updates to pest
management plans for the three species have not always been available
to provide decision makers and the public with current information
about how recent developments--including funding reductions--will
affect the prospects for success of the containment and eradication of
these pests. We recommended that the Secretary of Agriculture prepare,
publish, and regularly update management plans for pests for which the
department has initiated a management program. The plans and their
updates should incorporate and describe changes in the extent of the
infestations, progress to date in control and eradication efforts, and
long-term funding needs.
Other Areas of Continued Vulnerability in Regard to Preventing the
Arrival and Spread of Pests:
In our work on the three forest pests and, more broadly, the
coordination between USDA and DHS on invasive species prevention
activities, we found vulnerabilities that we believe should be
addressed to reduce the risk that new forest pests will arrive and
spread. These vulnerabilities involve USDA's overall forest health
monitoring program and USDA's and DHS's management of port inspections.
Monitoring of Urban and Other High-Risk Locations:
Many forest pests, including at least two of the three we reviewed,
were first introduced in urbanized environments. Urban areas are at
high risk because they are common destinations for cargo and travelers
that might be transporting pests. With the three pests we examined, as
well as others, we have seen that delays in detection and
identification allowed them to become established and spread before
control efforts could begin. USDA has recognized the need to conduct
more monitoring and has increased the level of resources devoted to
monitoring for new forest pests. However, those efforts have been
limited in scope, as illustrated by the following:
* The Forest Service's bark beetle survey was started in 2001. The
program has placed traps on a temporary basis at more than 300 high-
risk sites around the country, including in urban forests. While this
program has demonstrated that it can detect new pest species, we found
that it does not comprehensively cover high-risk sites and that it
focuses on a limited set of insect species. The Forest Service told us
that the agency was considering expanding the program.
* The Forest Service initiated a pilot project in several states to
improve urban forest health monitoring in 1999. The project has two
components. The first seeks to extend the agency's normal forest
sampling program, which traditionally has not sufficiently sampled
urban forests. The second component seeks to implement a roadside tree
assessment using plots established within public rights-of-way in urban
areas. To date, the agency has implemented pilot projects in Colorado,
Indiana, Maryland, Massachusetts, New Jersey, Tennessee, and Wisconsin.
Since only seven states were covered by this pilot, systematic
monitoring of urban areas is still not adequate. According to the
director of the agency's Urban and Community Forestry Program, there is
a strong case to be made for expanding monitoring to cover urban areas
that are now classified as nonforest but that have trees and are at
risk from such pests as the emerald ash borer.
As a result of the limited nature of these and other USDA monitoring
efforts, there are still many high-risk locations that are not
adequately covered. To reduce these risks, we recommended that the
Secretary of Agriculture expand current efforts to monitor forest
health conditions, particularly in urban and suburban areas that are at
high risk of receiving invasive insects and diseases. In response to
this recommendation, USDA noted that other governmental and
nongovernmental organizations have a role to play in combating invasive
species, including monitoring. We agree that other entities have that
role, but also believe that USDA has an important leadership role to
play in developing and supporting the forest health monitoring
capabilities of nonfederal entities.
Port Inspections:
The infestations of the three species we reviewed, as well as others,
began when the pests passed through U.S. ports of entry, hitchhiking in
vehicles, cargo, or travelers' personal belongings. That pests have
become established indicates that the first line of defense at the
border has been breached over the years. In May 2006, we reported that
DHS and USDA face management and coordination problems that increase
the vulnerability of the United States to foreign pests and disease.
For example, we found that DHS has not developed or used a risk-based
staffing model to ensure that adequate numbers of agricultural
inspectors are staffed to ports and other areas of greatest
vulnerability. In addition, despite an interagency agreement intended
to facilitate coordination and communication between DHS and USDA,
agricultural specialists are not consistently receiving notifications
of changes to inspection policies and urgent inspection alerts. For
example, we estimated that 20 percent of agricultural specialists do
not regularly receive notices that policy manuals have been updated,
and only 21 percent of agriculture specialists always receive urgent
inspection alerts in a timely manner. These breakdowns in communication
could hamper inspectors' ability to search for and detect new pest
threats. We also found that DHS has allowed its canine detection
program (dogs trained to sniff out items that may harbor pests) to
deteriorate. The number and proficiency of canine teams has decreased
substantially over the last several years. This limits the essential
contributions these dogs can make to prevent the entry of prohibited
agricultural items.
We made several recommendations to address these deficiencies that we
believe would help reduce the likelihood that new pests will enter the
country. For example, we recommended that the agencies establish a
process to identify and assess the major risks posed by foreign pests
and disease, and develop and implement a national staffing model to
ensure that staffing levels at each port are sufficient to meet those
risks. We also recommended that USDA and DHS ensure that urgent
inspection alerts and other information essential to safeguarding U.S.
agriculture are more effectively shared between the departments and
transmitted to DHS agriculture specialists in the ports. In addition,
we recommended that the agencies improve the effectiveness of the
canine program by reviewing policies and procedures regarding training
and staffing of canines and ensure that these policies and procedures
are followed in the port. USDA and DHS generally agreed with the
report's recommendations and noted that various initiatives are either
planned or underway to address them.
Mr. Chairman, this concludes my prepared statement. I would be happy to
answer any questions that you or other Members of the Committee may
have.
GAO Contact and Staff Acknowledgments:
For further information about this testimony, please contact me at
(202) 512-3841 or bertonid@gao.gov. Trish McClure, Ross Campbell, and
Terry Horner made key contributions to this statement.
FOOTNOTES
[1] GAO, Invasive Forest Pests: Lessons Learned from Three Recent
Infestations May Aid in Managing Future Efforts, GAO-06-353
(Washington, D.C.: April 21, 2006).
[2] GAO, Homeland Security: Management and Coordination Problems
Increase the Vulnerability of U.S. Agriculture to Foreign Pests and
Disease, GAO-06-644 (Washington, D.C.: May 19, 2006).
[3] GAO, Invasive Species: Cooperation and Coordination Are Important
for Effective Management of Invasive Weeds, GAO-05-185 (Washington,
D.C.: Feb. 25, 2005); and Invasive Species: Clearer Focus and Greater
Commitment Needed to Effectively Manage the Problem, GAO-03-1
(Washington, D.C.: Oct. 22, 2002).
[4] Pub. L. No. 107-296, 116 Stat. 2135 (2002).
[5] The corporation has the authority to borrow up to $30 billion. The
borrowed funds are repaid through periodic congressional
appropriations.
[6] By eradication, we mean the actual killing of pests that are
infesting trees and plants. We recognize that there are other important
components of a management program, including surveys, quarantines,
preventive treatments, and public outreach, that may help reduce the
spread of pests.
[7] Funding for the Asian longhorned beetle program began in fiscal
year 1997, for the P. ramorum program in fiscal year 2000, and for the
emerald ash borer program in fiscal year 2002.
GAO's Mission:
The Government Accountability Office, the audit, evaluation and
investigative arm of Congress, exists to support Congress in meeting
its constitutional responsibilities and to help improve the performance
and accountability of the federal government for the American people.
GAO examines the use of public funds; evaluates federal programs and
policies; and provides analyses, recommendations, and other assistance
to help Congress make informed oversight, policy, and funding
decisions. GAO's commitment to good government is reflected in its core
values of accountability, integrity, and reliability.
Obtaining Copies of GAO Reports and Testimony:
The fastest and easiest way to obtain copies of GAO documents at no
cost is through GAO's Web site (www.gao.gov). Each weekday, GAO posts
newly released reports, testimony, and correspondence on its Web site.
To have GAO e-mail you a list of newly posted products every afternoon,
go to www.gao.gov and select "Subscribe to Updates."
Order by Mail or Phone:
The first copy of each printed report is free. Additional copies are $2
each. A check or money order should be made out to the Superintendent
of Documents. GAO also accepts VISA and Mastercard. Orders for 100 or
more copies mailed to a single address are discounted 25 percent.
Orders should be sent to:
U.S. Government Accountability Office 441 G Street NW, Room LM
Washington, D.C. 20548:
To order by Phone: Voice: (202) 512-6000 TDD: (202) 512-2537 Fax: (202)
512-6061:
To Report Fraud, Waste, and Abuse in Federal Programs:
Contact:
Web site: www.gao.gov/fraudnet/fraudnet.htm E-mail: fraudnet@gao.gov
Automated answering system: (800) 424-5454 or (202) 512-7470:
Congressional Relations:
Gloria Jarmon, Managing Director, JarmonG@gao.gov (202) 512-4400 U.S.
Government Accountability Office, 441 G Street NW, Room 7125
Washington, D.C. 20548:
Public Affairs:
Paul Anderson, Managing Director, AndersonP1@gao.gov (202) 512-4800
U.S. Government Accountability Office, 441 G Street NW, Room 7149
Washington, D.C. 20548:
