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Aquatic Invasive Species

Policy Work

Aquatic invasive species (AIS) are a serious threat to the health of our lakes, recreational opportunities like boating and fishing enjoyed by many citizens and visitors, and tourism related businesses and services. They also threaten the investment that the state and many citizens have made to improve lake water quality and habitat.

Wisconsin Lakes supports increased funding for AIS research, grant, education, and prevention programs, as well as policy initiatives that will help Wisconsin prevent and manage AIS. Our recent work on AIS issues is detailed in the sections below.


Illegal to transport legislation

Invasive species classification rule (NR 40)

Ballast water regulation

Illegal to transport provision embedded within budget repair bill

Aquatic invasive species grant rule revisions (NR 198)

Increased funding for aquatic invasive species grants

Fishing Tournament rules (NR 20)


Illegal to transport legislation


Although it is illegal under current law to launch a boat with aquatic plants attached, it is not illegal for boats to leave lakes without removing plants and associated materials. AIS are frequently spread between lakes by boats. This gap in the law has resulted in an inability for law enforcement officials to enforce the law until the boat with attached aquatic materials has been launched.
 

Wisconsin Lakes supports closing this gap in current law and is working to pass a bill in this legislative session that improves upon the policy adopted later by the legislature in the special session budget repair bill.

A bill introduced in the current 2009-2010 legislative session (SB 123, AB 162) offers some technical changes to improve upon the “illegal to transport” language that was passed in the supplemental budget bill in May of 2008 (see below section). This bill would prohibit the transport of aquatic plants or animals on a vehicle of any kind on a public highway and several other important and necessary changes. Wisconsin Lakes is advocating on behalf of our membership for this bill.

 

Read Wiaconsin Lakes' testimony to the Senate and Assembly committee on 2009-2010 AB 162 / SB 123
 

In the 2007-2008 legislative session, Wisconsin Lakes supported a bill (SB 454, AB 821) that would have made it illegal to operate motor vehicles and recreational trailers on highways if they have aquatic plants attached. Wisconsin Lakes supported this bill, which passed the State Senate, but died in Assembly committee.


Read WAL's testimony to Senate committee on 2007-2008 Senate Bill 454 (PDF 22 KB)


Invasive species classification rule (NR 40)


The DNR is promulgating a new administrative rule to classify and regulate invasive species (NR 40). These rules apply to aquatic and land dwelling species of invasive plants, animals, and pathogens.

The rule—which has been under development for the last four years—classify invasive species into two categories: prohibited and restricted. The rule also requires several preventative measures to limit spread of invasive species, and includes permit and enforcement provisions.
 

The Natural Resources Board unanimously approved the Invasive Species Classification rule (NR 40) on April 22, 2009. The rule will now move forward to the legislature for approval. All of Wisconsin Lakes' concerns from the initial draft were satisfactorily addressed in the final proposal.


Download Wisconsin Lakes' 2009 testimony to the NRB (PDF 13 KB)
 

Wisconsin Lakes submitted public comments August 27, 2008 on these rules identifying several gaps.

 

Download Wisconsin Lakes' 2008 comments to DNR on NR 40 (PDF 54 KB)
 

Ballast Water Regulation
 

In March of 2009, 25 fishing, environmental and conservation groups—including the Wisconsin Association of Lakes—signed on to official comments supporting strong ballast water regulations by the Wisconsin DNR. The Wisconsin Department of Natural Resources (WDNR) is proposing a general permit for commercial vessels, which includes effluent discharge standards for ballast water.
 

In March 2008, the DNR determined it has legal authority to regulate ballast water discharges under current law that implements the Federal Clean Water Act. The Federal Clean Water Act requires that anyone discharging “biological materials” (which can include aquatic invasive species and diseases) into Wisconsin waters have a discharge permit.
 

The determination was made in response to a December 5, 2007 petition by 13 state, national and local conservation groups (including the Wisconsin Lakes). The petition argued that Wisconsin already has authority to regulate ballast water under the Clean Water Act, which requires that anyone discharging “biological materials” (such as aquatic invasive species and diseases) into Wisconsin waters have a discharge permit. After reviewing this petition, the DNR agreed that Wisconsin’s current state law and permitting system could be used to regulate and require treatment of ballast water.
 

In 2006, a Federal Court ruled that ballast water met the definition of “biological pollution”, and the Environmental Protection Agency (EPA) must begin regulating ballast water discharges from freighters under the Clean Water Act by Sept. 30, 2008.

Federal legislation was introduced in the 2007 and 2008, but did not make it through Congress.
 

Read the Ballast Water Petition to DNR (PDF 16 KB)
 

Read background on legal authority for state to permit ballast water(PDF 12 KB)

 

Illegal to transport policy included in the special session "budget repair bill"
 

In 2008, a special session was called for legislators to address a budgetary shortfall in the current 2007-2009 state budget. The resulting "budget repair bill" that was passed also contain provisions regarding transportation of AIS.

The budget repair bill specifies that “no person may transport a boat, boat trailer, or boating equipment on a public roadway if that equipment has an invasive species (plant or animal), as specified by administrative rule, in, or attached to it,” with some limited exceptions. The bill also establishes a penalty for violations of up to $1000, and is enforceable by DNR Conservation Wardens and other law enforcement officials.
 

The budget repair bill also specified that “no person may possess, release, control, store, sell, or transport, any fish, or viable fish eggs that are of an invasive species, if the person knows, or should know, that the fish is, or the eggs of the fish are, of an invasive species.”
 

While this bill prohibits the transport of invasive species on boat trailers—not aquatic plants, and other materials that may contain invasive species—it is a positive step to help prevent AIS introduction. WAL anticipates an additional bill will be necessary in the 2009-2011 legislative session to make technical clarifications.


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Aquatic invasive species grant rule revisions (NR 198)
 

The DNR is revising its Aquatic Invasive Species (AIS) Grant program rule (NR 198) in response to increased funding for the program and other changes included in the 2007-2009 budget. (see below).

The proposed revisions, would increase the cost share rate to up to 75% the cost of the project (currently the cost share is limited to 50%), expand the eligible recipients of AIS grants, allow applicants proposing chemical treatments to control invasive species to receive higher priority if their projects achieved another environmental protection goal—like restoring habitat or helping control pollution. Another proposed change would allow communities that are successfully following state rules and managing existing populations of aquatic invasive species to recoup the aquatic plant management permit fees they now pay.
 

Wisconsin Lakes submitted public comments on these rules on August 26th, 2008. We anticipate that the Natural Resources Board will approve forwarding of these rules to the Legislature for final approval in the 2009 legislative session.

 

Download WAL's 2008 comments to DNR on NR 198 (PDF 57 KB)
 

Increased funding for aquatic invasive species grants in the 2007-2009 state biennial budget
 

The legislature increased funding for Aquatic Species grants by 250% in the 2007-2009 biennial budget. The total funding available in the previous budget was $3 million ($1.5 million annually). The total amount available in the 2007-2009 budget is $7.6 million.
 

Eligible projects funded by these grants include AIS education, watercraft inspection activities at the boat landings, pioneer AIS population control, established AIS populations control and restoration of native aquatic plants.
 

In addition to the significant increases in overall funding, the budget increased the percentage of cost share that is reimbursable for AIS grant projects by 25%. Consistent with other lake grants, up to 75% of the costs of eligible projects are now reimbursable.
 

Read Wisconsin Lakes' letter to Senators regarding AIS in the state budget (PDF 36 KB)
 

Fishing tournament rules (NR 20)
 

In 2003, the Wisconsin legislature directed the Department of Natural Resources (DNR) to promulgate rules to establish a program to authorize and regulate fishing tournaments (Wisconsin 2003 Act 249). The 2003 law was passed in response to growing citizen complaints about tournaments, including perceived problems with crowding at boat ramps, concern over fish dying after being caught during tournaments, and other factors.
 

Fishing tournaments bring many visitors to our lakes. Wisconsin Lakes feels tournament rules should include:

-Ensure all boaters take steps to prevent the spread of aquatic invasive species from lake to lake.

-Require notification of local governments prior to a tournament, as many Towns and Lake Districts may have passed boating ordinances specific to their lakes.

-Limit the number of boats in a tournament so that an individual lake's capacity to handle those boats is not exceeded.

 

The DNR developed the rule proposals with the input of an advisory group which included fishing clubs, fishing tournament organizers, the Wisconsin Conservation Congress, the Wisconsin Lakes, and other groups.
 

After four years of work, Wisconsin Lakes felt the Department developed a reasonable rule that balanced diverse interests and resource needs.

Under the rule approved by the NRB in February 2008 and approved by the legislature in May 2008, all tournament participants are required to follow state laws and rules aimed at preventing the spread of invasive species such as Eurasian water-milfoil and zebra mussels and of a new fish disease, viral hemorrhagic septicemia. In addition, DNR has the authority to establish additional permit conditions to prevent the spread of invasives.
 

 Read Wisconsin Lakes' 2008 testimony to the Assembly Natural Resources Committee (PDF 27 KB)

 Read Wisconsin Lakes' 2008 comments to DNR on NR 20.40 (PDF 27 KB)

 Read Wisconsin Lakes' 2006 comments to DNR on NR 20.40 (PDF 17 KB)


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Aquatic Invasive Species

Aquatic invasive species (AIS)—which include plants, animals, and viruses—are a serious challenge for our lakes. Lake associations, lake districts, and individual waterfront property owners are rightfully concerned about the potential impact that invasive species can have on lake ecosystems and recreation. Many groups are investing private (and state) dollars into treating waters for invasives like Eurasian water milfoil, curly leaf pondweed, and carp. Many lake groups are participating in public education campaigns (like Clean Boats, Clean Waters) to encourage boaters to take simple to prevent the spread of AIS. Others are organizing volunteers to conduct AIS monitoring.

Introduction non-native species are not a new phenomenon. Some non-native species—like Eurasian water milfoil and carp—become invasive in new environments. But the introduction of AIS into a lake does not necessarily mean the destruction of the lake. Wisconsin has many invasive species at different stages of colonization. And more invasive species are on the horizon. Our scientific understanding of strategies for prevention, containment, and management is still evolving. A strategic combination over time of volunteer effort, continuing scientific research, legislation, funding, administrative rules, county ordinances, prevention programs, and educational efforts are all necessary to make progress on AIS.

More people, more places, more vectors for invaders

Not all non-native species become invasive

Disturbance and possible invasions

Prevention, containment, management

Using lake classification for AIS work

Introduction of non-native species has a long history 


More People, More Places, More Vectors For Invaders

More people, more places 1

As human populations have become more mobile, and movement has become more global, so have the species we move around with us. Unwanted hitchhikers can be speedily transported on planes, boats, and cars across town or across the ocean. Transfer of water between water bodies can introduce pieces of invasive plants, organisms, and pathogens into unaffected waters. Boaters can take simple steps to prevent transportation of AIS from lake to lake by:

  • Inspecting and remove aquatic plants, animals, and mud from boat, trailer, and equipment before leaving the landing.
  • Draining all water from boat, motor, live wells, bilge, bait buckets and other containers before leaving the landing.
  • Icing your catch; don’t leave landing with any live fish, bait, or fish eggs.
  • Disposing of unused bait in trash, not in the water or on land.
  • Rinsing boat and equipment with hot or high pressure water OR Dry boat for at least five days.

More people, more places 2

When ocean going ships—called “salties”—flush their ballast water tanks, they can deposit exotic stowaways directly into the Great Lakes. Some of these hitchhikers—zebra mussels, sea lampreys, viral hemorrhagic septicemia, and the New Zealand mud snail—have thrived in their new habitats, becoming invasive species that are causing big ecological and economic damage. Most recent invasive species have entered the Great Lakes via saltie ballast water. The Great Lakes are currently home to 185 invasive species, with a new invasive being discovered every six months. Some of these Great Lakes Invaders have moved to inland lakes.

More people, more places 3

Transfer of soil from one place to another can transport seeds, plant parts, or microbes that can begin to grow elsewhere. Movement of food goods, firewood, seed mixes, and escaped cultivores are also common sources of transportation for invasive species.



Not all non-native species become invasive


Not all non-native 1

Humans play a big role in introducing new species (some of which will become invasive) into new habitats. But unlike more traditional notions of pollution, species can transport and reproduce themselves. Animals and plants move around and find places to live, independently of humans. It not like regulating industrial or municipal sources, where there’s a regulatory shut off valve on a waste pipe that can stop a given pollutant from entering the water. With invasives, ultimately–unless we discover and shut off that valve at exactly the right time–we have limited control over species that are doing a fine job with the business of survival.


But, of the large number of species that are introduced into new habitats, few are successful as invaders. Traits that can make an invasive “invasive” include:

Ability to reproduce quickly and/or in great quantity

  • Efficiency in getting themselves (or spores, eggs, seeds) distributed
  • Growth patterns that enable invaders to out-compete or circumvent native species’ life cycles

Ability to persist in environments because of broad physiological tolerance or quick adaptation

Not all lakes are equally susceptible to invasion by a given species. And the same invasive may not have the same effect on all lakes. Each lake possesses its own unique characteristics—water chemistry, undisturbed shorelines, low nutrient loading—that may lower the risk of potential invasions. Lake Nancy (pictured below left) has had Eurasian water milfoil for years, with minimal impact on the lake ecosystem and recreation. In contrast, Eurasian water milfoil has become a problem for the lake on the bottom right.

Not all non-native 2Ongoing research is exploring what lake characteristics may make some lakes more habitable to certain species of invasives. This type of research may lead to smart prevention strategies that allow lake managers to assess which invasives may or may not be problematic for a given lake. The best approaches to prevent, contain, manage, or prevent certain species may be yet to be discovered.

 

Disturbance and Possible InvasionsDisturbance and possible invasions 1
Many non-native species that become invasive benefit from disturbed habitats. Disturbance simply means an alteration of a habitat's normal state. Some disturbances are natural—flooding, drought, fires, and other changes which may be part of a natural cycle or an extreme event. Some disturbances may be man-made—clearing of shoreland plants, more nutrients entering the lake, scouring or changing of the lake bottom, and increased turbidity (murky water conditions).Disturbance and possible invasions 2

Whenever a disturbance occurs, open habitat is created and something will come in to fill the void. More extreme disturbances like flooding or a increase in nutrients over time may change what species can live in the lake and tolerate the new conditions.

Disturbance can create conditions that give an advantage to invasives and suppress natives. When there is a disturbance there is open habitat and a “race” to see what gets there first and grows the most quickly and successfully—this is winner of the invasion.

Invasive populations tend to arise from habitats that are prone to ecological disturbance. Often these invasives thrive in habitats that are in a constant state of disturbance or are able to adapt and tolerate a broad range of environmental conditions (like high pollutants) that natives cannot withstand. While the same native shoreland plants may recover and reclaim their old space, many invasive species possess "weedy" traits that enable them to quickly take advantage of new territory and out compete natives. Our modern day practices of mowing our lawns is a example of keeping an ecosystem in a constant state of disturbance—to the benefit of invasive species no less (grass, dandelions, and clover are all native to Europe)!

Troublesome invasives like Eurasian water milfoil and curly leaf pondweed benefit from nutrient rich waters, and many of our lakes have become watershed collection ponds for fertilizers and sediments. Carp—a hearty invasive deliberately introduced in the 1880's—is tolerant of murky water conditions which frequently accompany algae dominant eutrophic lakes. Carp continue to stir up bottom sediments, which perpetuates disturbance and sends more phosphorus into the water, which in turn feeds more algae blooms. Disturbance benefits these invasives at the expense of natives. 

The results of disturbance are unpredictable. The resulting lake community can be dominated by:

 

  • Species not present prior to the disturbance (an invasion, note this does not necessarily mean a non-native species),
  • Species that were dominant before the disturbance,
  • Or it might become dominated by species that were present before the disturbance but not dominant

If disturbance brings invasives, equilibrium can be achieved in a variety of ways:

  • The invasive can "take over" and establish a new invasive monoculture,
  • The system can re-balance as part of a native/invasive system,
  • The invasive can exist as marginalized part of the native system

Keeping your shoreline intact is a good way to minimize disturbance and minimize opportunities for invasive species to gain a foothold.
 

Prevention, Containment, ManagementPrevention
Prevention

Prevention is the most cost effective and “easiest” way to deal with AIS. Constant vigilance by citizen volunteers, training on identification of invasive species, and education campaigns can be effective over time. The dedication of citizen volunteers conducting boater education programs like Clean Boats, Clean Waters has led to many citizens taking simple preventative steps when boating and fishing. AIS monitoring and aquatic plant management surveys—often commissioned by lake groups and funded by DNR lake grants—has greatly increased local knowledge about the presence/absence of AIS in lakes. This is critical information to have in the event that an invasive species is discovered in the lake, as it can help quickly assess the extent of the problem and guide lake managers on treatment options.

But no matter how good, prevention is like a sieve. You may keep a lot of stuff out, but eventually something gets through.

Containment

Some invasive species are in the pioneering stage. That is there are a few individuals that have been dropped into a new habitat and are surviving. There may not be enough individuals to have a reproducing population that can be sustained over time. This can mean that the invasive individuals simply die out (the population is self-limiting). It also means small numbers of an invasive over a large area can be hard to discover.

The more established an invasive species gets—the more successfully reproducing populations sustain themselves and then spread to additional territory—the harder it becomes to eradicate an invasive from the landscape. Eventually the line between hard to eradicate and impossible to eradicate gets crossed, and then the option becomes management of the species.

Management

Management can mean a lot of things. It can mean you are managing to prevent further spread to additional water bodies, preserve native habitat, contain an invasive population to a restricted area, or perhaps manage so certain uses (recreational) of the lake are preserved. There may eventually be a decision not to manage. Either the problem caused by the invasive is not severe, or a cost/benefit analysis leads lake decision makers to abandon management. Many groups are investing private (and state) dollars into treating waters for invasives like Eurasian water milfoil, curly leaf pondweed, and carp.
 

Using lake classification for AIS work

Lake classification is a flexible lake management tool that counties may use to organize lakes into similar groups and tailor management approaches to meet the needs of lakes within each class. Traditionally, lake classification has been used primarily to set up different shoreland development standards for different classes of lakes, but it can also be used set up recreational use classes, and potentially AIS management. The lake classification process allows counties to gather data about their lakes’ physical features—such as lake type, size, watershed area, aquatic plant surveys, sensitivity to pollution and other development.

With regard to AIS, basic data gathering like aquatic plant surveys can be valuable to assess the presence/absence of AIS species, ecological susceptibility of certain lakes to invasion by given AIS species, and vectors for the movement of AIS within and into the county. This could result in classifying county lakes in terms of priority lakes to focus AIS prevention resources and targeting resources aimed at managing established populations of invasives.
 

Introduction of non-native species has a long history

North America has been receiving successive waves of non-native species (some of which became invasive) since 1492, when the "old World" of Europe first made contact with the "New World." Colonists brought many familiar species with them (including many domesticated crops and animals). Some non-native species were deliberately brought (horses, cows, cats, honeybees, oats, clover, peach trees, Kentucky bluegrass, etc.), some inadvertently (rats, nettles, dandelions, smallpox, typhoid, etc.). Many species that we may think of as natives, may in fact be old non-natives/invasives that have become an established part of the ecosystem!

 

Would you recognize the following as non-native species?
 Non native species 1 Non native species 2 Non native species 3

Non native species chart

Old World species were primed to succeed in new habitats. For thousands of years, European agricultural practices helped evolve weeds, sturdy crops, domesticated animals, and the pests and pathogens that co-exist with them. Tilling, animal hooves scratching the earth, growing of food in one place (often in a monoculture), and concentrating people and domestic animals into population centers, provided a constant state of disturbed habitat, and helped evolve organisms that were used to co-existing with each other. When colonists made changes in land use and landscape—such as clearing of forests for crop land—this favored some invasive species over natives.

New World species were less equipped to compete with new invaders and less able to exhibit invasive behaviors themselves when introduced into Old World environments. Unlike many of the Old World plants and animals that established themselves in the New World, not as many New World species were able to compete when they were introduced in Europe. For example turkeys survived, but as a novelty, not as an indistinguishable addition to the European ecosystem, compared to the English song sparrow which now thrives in the U.S. The American Gray squirrel and muskrat stand out as exceptions to this rule. Some items, like sugar from sugar cane, became an important export from the New World, even if they could not survive in the old. Many of North America’s most aggressive weeds could not even get started in Europe.
 

New World species that went to the Old World

Old world 1 Old world 2 Old world 3
Old world chart

More Information:

Link to Aquatic Invasive Species AIS Policy Work Page
University of Wisconsin Sea Grant Institute
Wisconsin DNR Invasives Page
PDF: Disturbances and Invasions
PDF: Watch Your Water Gardens!


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