General 

Guidelines 

for the 

Establishment &

Evaluation of 

Invasive Species

Early Detection 

& 

Rapid Response 

Systems 

Version 1. June 2003 
EDRR Guidelines Version 1 1

NATIONAL INVASIVE SPECIES COUNCIL

Hon. Gale Norton 

Co-Chair 

Secretary of the Interior 

Hon. Ann M. Veneman 

Co-Chair 

Secretary of Agriculture 

Hon. Donald L. Evans 

Co-Chair 

Secretary of Commerce 

Hon. Colin L. Powell 

Secretary of State 

Hon. Norman Y. Mineta 

Secretary of Transportation 

Hon. Donald H. Rumsfeld 

Secretary of Defence 

Hon. Paul H. O’Neil 

Secretary of the Treasury 

Hon. Tommy G. Thompson 

Secretary of Health and 

Human Services 

Hon. Tom Ridge 

Secretary of Homeland 

Security 

Hon. Christine T. Whitman 

Administrator 

Environmental Protection 

Agency 

Hon. Donald L. Pressley 

Administrator 

U.S. Agency for International 

Development 

National Invasive Species Council 

Department of the Interior 

Office of the Secretary (OS/SIO/NISC) 

1849 C Street, N.W. 

Washington, DC 20240 

www.Invasivespecies.gov 

Suggested Citation: National Invasive Species Council. 2003. 

General Guidelines for the Establishment and Evaluation of Invasive 

Species Early Detection and Rapid Response Systems. Version 1. 16 pp. 
EDRR Guidelines Version 1 2

Table of Contents 

 Page Number 

Introduction 4 

A. Early Detection 5

B. Rapid Assessment 7

C. Rapid Response 7 

Appendix 1: Examples of Elements of ED&RR Systems 9 

Appendix 2: Identifying ED&RR Scenarios 

 14 

Appendix 3: Additional Considerations 15 

Appendix 4: Contributors to the Guidelines for ED&RR Systems, Version 1 16 

Rapid 

Response 

Rapid 

Assessment

Early 

Detection 
EDRR Guidelines Version 1 3

 General Guidelines for the Establishment and Evaluation of 

Invasive Species Early Detection & Rapid Response Systems

INTRODUCTION 

Preventing the introduction of invasive species is the first line of defense against invasions. 

However, even the best prevention efforts will not stop all invasive species introductions. 

Early detection and rapid response (ED&RR) efforts increase the likelihood that invasions 

will be addressed successfully while populations are still localized and population levels are 

not beyond that which can be contained and eradicated. Once populations are widely 

established, all that might be possible is the partial mitigation of negative impacts. In 

addition, the costs associated with ED&RR efforts are typically far less than those of longterm invasive species management programs. 

The charge of the National Invasive Species Council (Council) is to assist in the coordination 

of invasive species efforts. Because certain invasive species can spread rapidly, there is a 

critical need to coordinate ED&RR efforts. The 57 action items in the Council’s National 

Invasive Species Management Plan (Plan) provide a “blue-print” for coordinated action on 

invasive species (National Invasive Species Council. 2001. Meeting the Invasive Species 

Challenge: National Invasive Species Management Plan. 74pp. available at: 

www.Invasivespecies.gov). In the Plan, ED&RR is identified as a high priority. For example, 

Plan action items #23 and #24 deals with the development of guidelines and systems for the 

coordinated detection and response to incipient invasions. The Plan also calls for working 

with state, local, tribal, and private entities to draft proposals that will, among other things, 

provide permanent funding for ED&RR efforts. 

The Council approved these guidelines in June 2003 to provide information to those who 

wish to establish or evaluate ED&RR systems for invasive species. They are based on the 

work of the federal and non-federal members of the ED&RR Subcommittee (see appendix 4) 

of the Invasive Species Advisory Committee (ISAC) of the Council. The guidelines contain 

information from a from a wide range of subject matter experts, people with direct experience 

in ED&RR efforts, and stakeholders that included members of the ISAC and representatives 

of Council member agencies. Information was drawn from documents that analyze existing or 

proposed systems including but not limited to: work by the Federal Interagency Committee 

for the Management of Noxious and Exotic Weeds (FICMNEW), a report by Jim Worrall of 

the U.S. Forest Service, the work of the Western Regional Panel of the Aquatic Nuisance 

Species Task Force, the definition of “rapid response” developed by the Council, and 

information on ED&RR systems from New Zealand and Australia. It is anticipated that these 

guidelines (Version 1) will be revised as science, technology, and experience with systems 

and species advance. 

The hallmarks of successful ED&RR efforts include: 1) potential threats are being identified 

in time to allow risk-mitigation measures to be taken; 2) new invasive species are being 

detected in time to allow efficient and environmentally sound decisions to be made; 3) 

responses to invasions are effective and environmentally sound and prevent the spread and 
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permanent establishment of invasive species; 4) adequate and timely information is being 

provided to decision-makers, the public, and to trading partners concerned about the status of 

invasive species within an area; and 5) lessons learned from past efforts are being used to 

guide current and future efforts. 

Detecting and responding to invasions requires a complex series of interlacing, coordinated, 

and sustained actions that can be grouped into three main categories: 1) Early Detection, 2) 

Rapid Assessment, and 3) Rapid Response. Actions may include: reviewing relevant legal 

authorities; coordinated planning; identification of high priority species and at-risk sites; 

routinely monitoring certain areas; prevention and containment efforts; surveillance, 

detection, and reporting activities including data collection and management; the collection, 

identification, and storage of voucher specimens; determining if newly-detected invasive 

populations are still localized; determining the relative and potential risk associated with an 

introduction; priority setting; sharing resources across jurisdictional boundaries; monitoring, 

treating and removing populations; restoring habitats; coordinated public communication 

efforts; training volunteers and professionals in detection, identification, and removal 

techniques; sharing information; and developing case studies. In addition, research, adequate 

staffing and funds, and effective public communication are essential to support ED&RR 

activities. The following identifies components of early detection, rapid assessment, and rapid 

response systems that experts consider either essential (i.e., must be present) or important to a 

system's success. Additional information is provided in the appendices. 

A. EARLY DETECTION:

I. Active Detection Networks. Active detection networks are comprised of 

organizations that have specific responsibility to detect invasive species. Active 

detection networks often have limited resources. Therefore, it is important for active 

detection networks to be focused on high-priority targets, such as high-risk locations, 

high-value resources, important pathways, and populations and species of specific 

concern. 

II. Passive Detection Networks. Passive detection networks are comprised of 

organizations or individuals who may fortuitously detect invasions as they conduct 

other activities. These “passive” networks are an important means of augmenting 

active detection networks. 

III. Research. Research is needed to understand, monitor, and model parameters that 

may contribute to invasions, such as climatic conditions, ecosystem disturbance 

patterns, and land use changes. Baseline research is needed to determine if a species is 

“new” to an area and to detect changes in pathways. Scientifically sound information 

is essential to targeting detection programs. 

IV. Training. It is important for professionals and volunteers engaged in early 

detection, collection, and reporting of suspect species to have sufficient training so 

that their efforts can support subsequent action, to reduce the frequency of inaccurate 

reports, and to reduce the excessive reporting of common species. The need to train 
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those engaged in detection and response networks and develop educational materials, 

trainers, and related resources is on-going. 

V. Stakeholder approval. Support for ED&RR efforts by a wide-range of 

stakeholders is essential. The understanding and participation of stakeholders can be 

facilitated by working with professional societies and scientific organizations, 

agricultural organizations, conservation and outdoor recreation organizations, 

community groups, and others. 

VI. Voucher specimens. It is essential for voucher specimens to be obtained and 

subsequent actions be based upon authoritative taxonomic identifications that meet 

international standards. 

VII. Authoritative verification of reported invasive populations is especially 

important when the initial report is obtained from people with minimal technical 

training. Verification can be used to authoritatively determine the presence or absence 

of a species in an area, whether it is an initial introduction into the U.S. or the 

movement of previously reported species into a new area, and other essential 

information. 

VIII. Data accessibility. It is important that reports and data concerning invasions be 

broadly accessible, easy to use, and exchanged among interested parties routinely. 

Also, see Rapid Assessment Attribute number III. 

IX. Integration of various detection technologies. It is important that data obtained 

from the various technologies (e.g., on–the-ground observation and in-situ and remote 

sensors) be integrated across a range of temporal and geographic scales so that they 

provide coherent input into the decision making process. 

X. Syndromic surveillance. Detecting the damage associated with invasive species 

may be the first indication of a new invasion. This is often the case with invasive 

pathogens and parasites. It is essential that “syndromic surveillance” be conducted to 

look for anomalies that may indicate an invasion before any causative species and/or 

agents are identified. 

XI. Communication. Knowledge and skill obtained from past ED&RR efforts can 

guide and expedite subsequent efforts. As new ED&RR systems are developed, it is 

important to include current efforts and systems. There should be mechanisms for 

communicating with other networks to help identify gaps that may exist, research 

needs, and to cooperatively work together to correct deficiencies in programs. 

XII. Biological shifts. Invasive species that occur over a wide geographic range are 

not typically subject to ED&RR actions. However, biotypes that are resistant to 

control measures may develop within a widely distributed species and changes in 

climatic conditions may increase the geographic range of a species. It is important for 

ED&RR systems to be developed so that such biological shifts are detected. 

B. RAPID ASSESSMENT:
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I. It is important to prepare preliminary risk assessments for high priority species 

in advance of their detection to facilitate rapid responses to invasions. Risk 

assessments should include stakeholder input, and consider appropriate legal 

authorities so that challenges do not unduly delay an effective response. 

II. It is important to conduct rapid risk assessments of newly detected species so 

that decision-making (e.g., the decision to contain, treat, and monitor a population, 

monitor only, or ignore a population) can be done while populations are still localized. 

It is important for risk assessment to draw upon information from existing surveys and 

data sources whenever possible. 

III. Consistent data definitions and inter-operable formats are essential so that 

summary statistics and analyses are readily available to support risk assessments. In 

some cases, it may be necessary to seek information from sources outside the U.S. 

C. RAPID RESPONSE:

I. Support for planning is important because the development of ED&RR plans can 

be time-consuming and require a significant commitment of resources. 

II. Standing teams with compositions that can be adjusted to meet the specific needs 

and circumstances of an invasion in a timely manner are essential. It is essential that 

Federal and State agency responsibilities and the roles and responsibilities of the 

officials involved be delineated clearly and understood by all. 

III. Previous training in eradication/control methods is essential since there often is 

not sufficient time to train a response team following the detection of an invasion. 

This training may include mock exercises and emergency response training in addition 

to programs that provide a core competency. 

IV. Rapid response manuals should be developed to support training programs. It is 

not possible for even the best-trained teams to retain all the specific knowledge 

needed. It is essential that they have adequate manuals and other materials. Materials 

should be oriented towards particular functional areas involved in the response (i.e., 

population containment, species removal, compensation, relevant laws and policies, 

public outreach planning, safety, regulatory responses, and etc.), be up-to-date, and 

have specific control information. 

V. Rapid response teams should set appropriate schedules for action. Depending 

on the likelihood of establishment, the rate of spread, and other factors, different 

species and invasion scenarios will require differing schedules of response. It is 

important that plans contain schedules that are appropriate for the specific conditions 

of the invasion. 

VI. It is important for certain rapidly advancing or particularly serious infestations that 

an incident command system be maintained. 
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VII. Dynamic rapid response plans are essential so that they can be scaled-up if 

needed to address cross-jurisdictional and/or rapidly advancing invasions. Some 

invasions may be first found along borders and/or expand rapidly and by that cross 

jurisdictions rapidly. Often the responsibility for rapid response will fall upon or 

involve Local, State, and/or Tribal governments in the affected area. At each scale of 

operation, it is essential that there is an adequate mobilization of resources and that 

individual and agency roles and responsibilities are clearly defined and that public 

communication efforts are coordinated. 

VIII. Stakeholder input in the development of rapid response plans is essential. 

Responses actions will often be led by Local, State, or Tribal governments and may 

involve the private sector personnel, working with the support of Federal officials 

when requested. Effective working relationships can be fostered among groups and 

individuals by collaborating with them in the development of response plans. 

IX. Adequate flexible and available funding is essential to mount an effective, 

timely and sustained response to new invasions. Invasions are often unpredictable. 

They can span jurisdictional boundaries, expand rapidly, and may require several 

years to complete. Funds may be needed for several fiscal years and may need to be 

shared across jurisdictional boundaries to avoid disrupted or incomplete response 

efforts. 

X. Response efforts may impact and/or involve areas outside the current distribution 

of a species. Cooperation with “non-affected areas” is important to the success of 

response efforts, to lessen the chance of subsequent infestations. 

XI. It is essential that those engaged in ED&RR efforts understand and follow all 

relevant laws, regulations, policies, and guidelines that may affect EDRR efforts. To 

prevent these legal considerations from obstructing rapid response, appropriate de 

minimis exceptions and categorical exclusions should be considered, identified or 

developed beforehand when planning and implementing rapid response systems. 

XII. It is important that ED&RR systems work on the concepts of "closest available 

forces" and "total mobility" and be sufficiently standard so that personnel from a 

variety of agencies and diverse geographic locations can rapidly meld into a common 

management structure. This is important because experience and training obtained by 

individuals involved in ED&RR efforts can benefit others during subsequent events 

and often the availability of trained personnel may be limited. 

XIII. Public Outreach. It is important to facilitate public understanding of response 

efforts. A coordinated public outreach effort should be a component of rapid response 

efforts. Authoritative balanced information should be provided early in the rapid 

response timeline. Response efforts may have impacts beyond the targeted species. 

Public understanding of the anticipated economic and ecological impacts of response 

actions as well as the expected benefits associated with response efforts is important to 

success. 
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Appendix 1. Examples of Elements of ED&RR Systems.

1. State agricultural agencies often engage in priority setting efforts to direct their active 

detection networks. Examples of active detection networks already in place include the: a. 

National, Regional, and State Cooperative Agricultural Pest Survey (CAPS) committees that 

receive funding and technical support from the Animal and Plant Health Inspection Service 

(APHIS) Office of Plant Protection and Quarantine (PPQ). The CAPS program surveys for 

targeted plant pests and weeds across the U.S. and involves State regulatory officials, the 

National Plant Board, and universities. b. The National Executive Team under the Forest 

Service Forest Health Protection program (FHP) provides national policy direction 

concerning the detection of forest pests. The FHP includes State forest health specialists, 

National Plant Board members, National Association of State Foresters representatives, 

APHIS officials, and research and management experts from the Forest Service. Pilot studies 

under the FHP suggested that active surveillance surveys for targeted pests using specialized 

methods may be necessary to detect some types of invasive species. c. The APHIS Animal 

Disease Detection Network engages in priority setting for very high risk invasive species, 

such as certain animal pathogens that may require specific active detection programs such as 

those conducted by APHIS’s Veterinary Services. In addition, National Invasive Species 

Management Plan (Plan) action item #17 refers to the identification of high priority pathways, 

and Plan action item #21c concerns the systematic monitoring of locations where 

introductions are likely to occur (National Invasive Species Council. 2001. Meeting the 

Invasive Species Challenge: National Invasive Species Management Plan. 74pp. available at: 

www.Invasivespecies.gov). 

2. Passive or fortuitous detection networks range from relatively formal networks, such as 

the Federally accredited veterinarians that are required by law to report certain diseases that 

they might encounter in their practices, to informal volunteer reporting efforts, such as those 

conducted by certain native plant societies. A large number of groups and individuals could 

be and are involved in the passive detection of invasive species and outreach efforts to these 

groups can contribute to network development. Examples include: weed scientists, field 

botanists, The Nature Conservancy managers, native plant and wildflower society members, 

local, tribal, state, and federal land managers and field workers, National Wildlife Refuge 

System volunteers, National Resource Conservation Service RCS specialists, Cooperative 

Extension Service agents, county weed supervisors, land grant university plant pest/diagnostic 

clinics, herbarium curators, master gardeners, zoo and aquarium officials, exotic plant pest 

councils, civic organizations, professional crop consultants, outdoor recreation associations, 

conservation groups, public land friends groups, physicians, and private individuals. Often the 

primary “point of entry” for a member of the public that may or may not be connected with a 

passive detection network that has information about an invasive species will be their county 

Cooperative Extension Service agent or Seagrant Extension agent. The Invasive Plant Atlas of 

New England project, which is being led by researchers at the University of Connecticut with 

funding primarily from the Cooperative State Research, Education and Extension Service 

(CSREES), was initiated with input from FICMNEW with the goal of developing an early 

detection, rapid assessment, and rapid response capability in the seven northeastern states 

(ME, NH, VT, MA, CT, RI, and NY). In the first four years of the project, principal 

investigators are planning to train a team of 450 volunteers of early detectors for new invasive 

plants. 
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3. The National Interagency Fire Center uses several data sources and models to target active 

surveillance for fires. A similar approach could be used to target invasive species active 

detection programs. For example, the work of the National Institute for Invasive Species 

Science that is facilitated by USGS could, with input from FICMNEW and other groups, help 

detection networks know where to look for high priority invasive species. The system uses 

models to help guide survey and monitoring efforts for the appearance of high priority 

invasive species, particularly on high value conservation sites. The U.S. Geological Survey 

(USGS) Eros Data Center in Sioux Falls, SD, has created a system which recognizes 969 land 

cover types and has mapped the entire U.S. with 30 m2

 pixels. This system could also be used 

to help identify habitats where a species might pose a significant risk. The New Zealand 

Department of Conservation Weed Surveillance System includes a model to determine 

appropriate surveillance intervals at a particular site. Factors included in the model are the 

species arrival rate at the site, the habitat type (forest, shrubland, short vegetation, wetland, 

and open habitat), the species growth form, and its inherent biological capacity for 

reproduction and spread. 

4. Numerous training programs and materials are available for individuals interested in 

invasive species. They are provided by state and federal governments, universities, exotic 

plant pest councils, private companies, and others. For example, the U.S. Fish and Wildlife 

Service (FWS) and the USGS are working to develop ED&RR training for Fish and Wildlife 

Refuge friends groups. Ultimately, the training will be used to train volunteers throughout the 

country, to detect, collect, and report suspected new invasive plants. Training materials 

developed for the FWS-USGS project will also be used to train 450 early detection volunteers 

under the Invasive Plant Atlas of New England project which is being led by researchers at 

the University of Connecticut. 

5. An example of professional awareness raising effort is the Center for Disease Control 

(CDC) publication of the “Emerging Infectious Disease Journal” and “CDC Recommends.” 

Professional society newsletters such as the Weed Science Society of America Newsletter 

could alert members to new and emerging invasive species and provide a forum for providing 

information on invasive species issues. The Cooperative Extension Service and State 

departments of agriculture can also be highly effective at offering training to the general 

public on invasive species and assisting in professional and stakeholder communication. 

6. Several documents indicate the importance of action being based upon authoritative 

identifications and records, including vouchering. The Integrated Taxonomic Information 

System (ITIS) provides a checklist and coding system for taxonomic names that facilitates 

identification. This need for vouchering is mentioned in the FICMNEW draft Early Warning 

and Rapid Response Proposal. Also, this is a central mission area for the USGS-National 

Nonindigenous Aquatic Species Information Center, the Smithsonian Institution and 

Agricultural Research Services taxonomic resources, and the National Identification Services 

within APHIS/PPQ Plant Health Programs. Plan action item #21a calls for compilation of lists 

of taxonomic expertise, which is being addressed substantially in the U.S. through the 

Taxonomic Resources Expertise Database. 

7. An example of a verification effort is that which is conducted by Foreign Animal Disease 

Diagnosticians. They may be dispatched through the State Veterinarian’s Office or APHIS 

Area Veterinarian in Charge (AVIC) to investigate a report of the occurrence of certain 

diseases. Verification of suspected new state and national plant records is an important 
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element of the FICMNEW draft Early Warning and Rapid Response Proposal. APHIS/PPQ 

also has a system in place for exotic plant pests which are then reported into National Agricultural Pest Information System (NAPIS). Land Grant Universities can currently assist in 

species verification and work closely with state governments. Verification data must be linked 

to national databases to determine if the specimen is new to the country or just new to that 

state. 

8. Data, including negative data concerning the absence of invasive species, can be used to 

substantiate animal/crop health claims, document ecosystem health, illuminate emerging 

issues, quantify successes, identify problem areas, and direct rapid response efforts. An 

example of routine reporting is the CDC’s National Electronic Telecommunication System 

for Surveillance NETSS. Data from the NETSS are published weekly and are used by state or 

local epidemiologists to detect outbreaks. In addition, the CAPS of APHIS, the National 

Agricultural Pest Information System (NAPIS), the federal and state Cooperative Invasive 

Plant Pest Survey (CIPPS) program, the USGS’s National Nonindigenous Aquatic Species 

Database, and the Exotic Forest Pest Information System for North America which works 

with Canada and Mexico under the FAO are examples of ED&RR data collection and 

dissemination systems. The USGS recently established the Invasive Species Information 

Node of the National Biological Information Infrastructure to facilitate coordination, 

synthesis, and reporting capabilities among the many agencies and institutions that manage 

data on invasive species. 

9. An example of syndromic surveillance is the CDC Epidemic Intelligence Service that was 

deployed to investigate occurrences that could be linked to anthrax exposure. In addition, 

detection of harmful algal blooms may involve investigating reports of fish kills or seafoodrelated toxicity before the actual causative agent is identified. The symptoms of Sudden Oak 

Death Syndrome were recognized before the causative pathogen was identified. 

10. Action item #49 under the Plan concerns the posting of case studies concerning the 

efforts to respond rapidly to invasive species, and the Plan indicates the importance of testing 

ED&RR methods (see action item #23b). For example, information about early detection, 

reporting, and assessment with relevance to many categories of invasive species has been 

developed through the Federal/State Witchweed Eradication Program (1958-current) in the 

eastern South Carolina and North Carolina. Early detection, rapid assessment, and rapid 

response to new infestations of this serious root parasite of grass crops have been important 

factors in reducing the total infestation of this parasitic plant from 432,000 acres in 39 

counties of eastern North Carolina and South Carolina, to less than 5,000 acres, over the past 

44 years. 

11. Systems used to detect harmful algal blooms, oil spills, and forest fires use several types 

of sensors, observation techniques, and analysis tools. The USGS Eros Data Center in Sioux 

Falls, SD, has created a system which recognizes 969 land cover types and has mapped the 

entire United States with 30 m2

 pixels. This system could possibly be used to map 

infestations of certain invasive plants. 

12. An example of a “biological shift” is evidence of adaptive crossbreeding or hybridization 

in desert salt cedar. Many U.S. salt cedars appear somewhat different from the two main 

species initially imported, Tamarix chinensis and Tamarix ramosissima. The U.S. plants also 

seem to repel many pests that effect one or the other salt cedar species in their native ranges 

in Asia. Evidence from DNA “fingerprinting” indicates that the most invasive U.S. specimens 

are hybrids (John F. Gaskin and Barbara A. Schaal, Hybrid Tamarix widespread in U.S. 
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invasion and undetected in native Asian range. Proceedings of the National Academy of 

Sciences. 2002. 99: 11256-11259). 

13. Examples of invasive species fact sheets include those prepared by APHIS/PPQ and the 

NY Sea Grant National Aquatic Nuisance Species Clearinghouse. The APHIS/PPQ August 

2002 Factsheet concerning Giant Hogweed provides a specific example. The USGS has also 

developed fact sheets on a number of invasive plants, animals, and wildlife diseases. Exotic 

pest plant councils, native plant societies, and other organizations develop “fact sheets” and 

other information. 

14. An example of proactive risk assessment was the work of the Aquatic Nuisance Species 

Task Force (ANSTF), FWS, USGS, and APHIS in preparing a risk assessment for snakehead 

fish that was available before their detection in Maryland. Proactive risk assessment may 

include the development of general risk assessment processes, such as was done by the Risk 

Assessment and Management Committee of ANSTF, which can be quickly adapted to new 

species and pathways. It is noted in the FICMNEW draft Early Warning and Rapid Response 

proposal that certain species do not warrant the same response times as others and a 

standardized system for identifying species that should receive actions first can help prioritize 

programs. The New Zealand Department of Conservation uses net present value control costs 

(per unit area) and estimated rates of increase in biomass cover over time for assessing the 

impact of an incipient infestation. 

15. The Safeguarding review of APHIS/PPQ and the FICMNEW Early Warning and Rapid 

Response Plan for Invasive Plants indicate the need for scheduling decisive rapid action at 

critical stages of an invasion. This is supported by the Council’s definition of “rapid 

response” which identifies the critical stage of an invasion as while the infestation is “still 

localized.” 

16. Examples of work to make data systems more interoperable include the 

recommendations of the Safeguarding Review of APHIS concerning: VS, CAPS,-NAPIS, and 

CIPPS. In addition, Exotic Forest Pest Information System for North America which works 

with Canada and Mexico under the FAO; the CDC National Electronic Disease Surveillance 

System (NEDSS) that integrates the approximately 100 species-specific databases; ANSTF’s, 

USGS’s National Nonindigenous Aquatic Species Database in Florida; and the Information 

Center for the Environment Center for Spatial Technologies and Remote Sensing at UC 

Davis’s work to develop an invasive species cataloger and translation are examples of efforts 

to create and enhance interoperable systems. Also, the USGS, in cooperation with U. CADavis and other partners, are also leading an effort through North American Biodiversity 

Information Network (NABIN), and the Inter-American Biodiversity Information Network 

(IABIN), to develop standards to facilitate development of a network of interoperable 

databases on invasive species in the Western Hemisphere. 

17. An example of a fluid team structure is the APHIS/PPQ New Pest Advisory Group 

(NPAG) that gathers information on new invasive species and recommends responses. The 

composition of a NPAG team is altered so that it is appropriate for the pest invasion being 

considered. In addition, the National Parks Service has several regional response teams that 

have a fluid make-up that can respond quickly to an invasion. The draft FICMNEW Early 

Warning and Rapid Response System also calls for creation of standing regional teams of 

weed management specialists to provide on the ground technical support for addressing new 

invasive plants, upon request. 
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18. An example of a training program that includes mock exercises is the APHIS/VS 

Regional Emergency Animal Disease Eradication Organization (READEO). Training is also a 

key element of the Incidence Command System approach. The CSREES is supporting early 

detection training in the Northeastern U.S. Similar training exercises are called for under the 

draft FICMNEW Early Warning and Rapid Response Plan for Invasive Plants. 

19. Examples of “functional area organization” are the approaches taken by the APHIS/VS 

READEO and the “all risk” focus of the National Interagency Fire Center. Also, see the 

APHIS/PPQ Emergency Programs Manual that was updated in 2002. Plan action item #23d 

indicates the importance of preparing guides to assist rapid response teams. 

20. An example of appropriate scheduling is the APHIS goal to respond within 48 hours of 

receiving information concerning a new plant pest occurrence. 

21. An example of a regulatory “situation room” or incident command system is the 

Emergency Operations Center maintained by APHIS at their headquarters in Riverdale, MD. 

22. An example of a “scaleable” regional response system is the National Interagency Fire 

Center response to a wildfire. This system can expand from a local to national effort as 

needed. 

23. An example of a collaborative planning process is described by the Western Regional 

Panel on Aquatic Nuisance Species, 2003 Model Rapid Response Plan for Aquatic Nuisance 

Species, Denver, CO 82pp. This plan by the Western Regional Panel indicates that the South 

Carolina system provides one model of a coherent system to manage aquatic nuisance plants. 

The South Carolina Legislature established three interlocking entities: The Aquatic Plant 

Management Council; The Aquatic Plant Management Program; and the Aquatic Plant 

Management Trust Fund. The draft FICMNEW Early Warning and Rapid Response Plan 

calls for creation of state interagency weed teams and local weed management areas to plan 

and execute such rapid response actions. The National Contingency Plan for Response to 

Unusual Marine Mammal Mortality Events provides an example of regional contingency 

planning. Approaches in this plan could be adapted to invasive species work (see: 

www.nmfs.noaa.gov/prot_res/eadingrm/ MMHealth/contingency.pdf). 

24. An example of funding is the APHIS/PPQ 2003 budget proposal for a $120 million 

Emerging Pest and Pathogen Line item Fund, and funding of the PPQ line item "Pest 

Detection" of $27 million. Also, Plan action item #24 concerns the need for permanent 

funding for rapid response efforts. The U.S. Fish and Wildlife Service allocated $2 million in 

its FY2003 budget proposal for ED&RR Training of Friends Groups at FWS refuges, 

nationwide. 

25. Examples of “non-affected area” coordination are supportive road and trail closures in 

areas near wildfires that are coordinated by the National Interagency Fire Center. Similar 

approaches can be and are used to support of invasive species quarantine efforts. An example 

of engaging “at risk stakeholders” is the work of the Southeastern North Carolina Giant 

Salvinia Task Force. The main infestation of giant salvinia in North Carolina is a 25-acre 

wetland adjacent to the Northeast Cape Fear River in Pender County. The task force has 

enlisted support from two ‘at risk’ land owners (the Nature Conservancy and the N.C. 

Wildlife Resources Commission) that manage area downstream from the primary infestation 

which helped prevent further spread of this very serious aquatic weed from the current 25 acre 

infestation. 
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26. An example of the consideration of legal requirements in the ED&RR planning process 

is the development of NEPA guidance called for in the Plan. 

27. An example of a “common management structure” is the responses to wildfires 

coordinated by the National Interagency Fire Center. 
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Appendix 2. Identifying ED&RR Scenarios:

It is recommended that ED&RR plans consider the potential scenarios that teams might 

encounter, because what should be done and by whom may depend upon the “context of the 

invasion.” For example, while an authoritative identification of a species is always needed 

(see above), the individuals and institutions involved with an aquatic species may differ from 

those for a terrestrial species. Therefore, habitat type (i.e., aquatic v. terrestrial) is an example 

of a “context category” that could be considered in anticipating scenarios ED&RR teams 

might encounter. One way to identify potential scenarios is to make a matrix of the “context 

categories” that invasions might occur in and list all possible combinations of context 

categories (see example below). 

Examples of Context Categories: 

1. Habitat type - aquatic or terrestrial. 

2. Accessability - accessible (i.e, ED&RR teams can use existing transportation systems to 

gain close ready access to invasive populations) or relatively remote populations. 

3. Economic Interest - direct (i.e., is the area used directly to produce a commercial crop and 

by that possibly requiring compensation for lost production) or indirect, such as ecosystem 

function. 

Arranged in all possible combinations, these three context categories yield the following list 

of eight scenarios. However, this is provided as an example only. 

Habitat Accessibility Economic Interest Scenario Example 

1.Aquatic, Remote, Direct open-water commercial fishing 

grounds 

2.Aquatic, Accessible, Direct aquaculture ponds, irrigation 

canals, potable water, 

3.Terrestrial, Remote, Direct open grazing land, timber sale 

areas 

4.Terrestrial, Accessible, Direct farms, animal confinement areas, 

orchards, homes 

5.Aquatic, Remote, Indirect back country lakes & streams, 

some recreational fishing areas, 

upper river reaches, marshes & 

swamps 

6.Aquatic, Accessible, Indirect urban/suburban ponds & streams, 

lake & near-shore marine areas 

7.Terrestrial, Remote, Indirect some wildland recreational areas 

8. Terrestrial, Accessible, Indirect backyards, urban/suburban parks, 

roadsides, undeveloped corporate 

lands, reclaimed mines. 
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Appendix 3. Additional Considerations: 

There are several factors that would affect ED&RR actions and need to be considered by 

those planning and conducting ED&RR efforts. 

Examples include: 

Invasive species that directly effect human health; 

Invasive species that have quarantine/trade significance; 

Invasive species that are in areas that contain threatened and endangered species; 

Invasive species which are difficult to detect or differentiate from other species; 

Invasive species that are vertebrates; 

Invasive species that are on private lands; 

Invasive species that cross Local, State, Tribal, or National borders; 

Invasive species that are very near human populations; 

Invasive species that have commercial, recreational, religious, or cultural value; 

Invasive species that have no known or legally available control technologies; 

Species that are poorly known and their invasive potential is unclear. 
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Appendix 4. Contributors to the General Guidelines for the Establishment 

and Evaluation of Invasive Species Early Detection & Rapid Response 

Systems, Version 1: 

Lars W.J. Anderson Agricultural Research Service 

Ann Bartuska The Nature Conservancy 

Melissa Baumann Texas A&M University 

Rebecca Bech U.S. Department of Agriculture 

Thomas A. Bewick Cooperative State Research Education and Extension Service 

A. Gordon Brown Department of the Interior 

Barbara Cooksley Private Rancher 

Christopher P. Dionigi National Invasive Species Council 

Linda Drees National Parks Service 

Glen I. Garris Animal Plant Health Inspection Service 

William Gregg U.S. Geological Survey 

Deborah C. Hayes U.S. Department of Agriculture 

Duane Heaton U. S. Environmental Protection Agency 

Rob Hedberg National and Regional Weed Science Societies 

Michael Hoff U.S. Fish and Wildlife Service 

Doug Holy Natural Resources Conservation Service 

Sandra N. Howard U.S. Department of Health and Human Services 

Mike Ielmini U.S. Forest Service 

Henry Lee II U.S. Environmental Protection Agency 

Ron Lukens Gulf States Marine Fisheries Commission 

Richard N. Mack Washington State University 

Donald MacLean U.S. Fish and Wildlife Service 

Coanne O'Hern Animal Plant Health Inspection Service 

Richard Orr Animal Plant Health Inspection Service 

Bettina Proctor U.S. Fish and Wildlife Service 

Gina Ramos Bureau of Land Management 

Sarah Reichard University of Washington 

Daniel Simberloff University of Tennessee 

Jeffrey Stone Oregon State University 

David F. Thomas U.S. Forest Service 

Marc Tuchman U. S. Environmental Protection Agency 

Donna Turgeon National Ocean and Atmospheric Administration 

Randy G. Westbrooks U.S. Geological Survey 

Lori Williams National Invasive Species Council 

Jim Worrall U.S. Forest Service 
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