EN    EN EN 
EN    EN  COMMISSION OF THE E UROPEAN COMMUNITIES 
Brussels, 3.12.2008 
SEC(2008) 2886 
  
COMMISSION STAFF WORKING DOCUMENT 
Annex to the 
 
COMMUNICATION FROM THE COMMISSI ON TO THE COUNCIL, THE 
EUROPEAN PARLIAMENT, THE EU ROPEAN ECONOMIC AND SOCIAL 
COMMITTEE AND THE COMMI TTEE OF THE REGIONS 
 
TOWARDS AN EU STRATEGY ON INVASIVE SPECIES 
  
IMPACT ASSESSMENT - EXECUTIVE SUMMARY 
  
{COM(2008) 789 final} 
{SEC(2008) 2887} 
EN 2   EN IMPACT ASSESSMENT - EXECUTIVE SUMMARY  
I. The nature of the problem and identificat ion of the objective of the initiative 
"Alien species" are species which are introdu ced outside their natural past or present 
distribution area and succeed in surviving and subsequently reproducing. "Invasive Alien 
Species" are alien species whose introduction an d/or spread threaten biological diversity1. The 
Millennium Ecosystem Assessment reveal ed that IAS impact on all ecosystems2. The problem 
of biological invasions is growi ng rapidly as a result of increas ed trade activities. Invasive 
species (IS)3 negatively affect biodiv ersity e.g. by competing with other organisms and 
changing habitat structure, being toxic, bein g a reservoir for parasites or a vector for 
pathogens, hybridising with rela ted species or varieties, pr edating on native organisms, 
altering the local food web, e.g. invasive plan ts alter nutrient ava ilability, disrupting 
pollination services, causing extinction of native species, being an ecosystem engineer by altering energy and nutrient flows, as well as physical factors in habitats and ecosystems. IS 
can cause congestion in waterway s, damage to forestry, crops and buildings and damage in 
urban areas. The costs of preventing, controlling and/or eradicating IS and the environmental and economic damage are significant. The costs of control, although lower than the costs of 
continued damage by the invader, are often high . These costs could be avoided or minimised 
by decisions to prevent and stop intr oductions at an earlier stage. 
 
050010001500200025003000
1500 1600 1700 1800 1900 2000Date of introductionNo. of speciesAlien to Europe
Alien in EuropeAliens of Eu ropean origin
 
SOURCE: DAISIE project (see Annex B) 
                                                 
1 CBD Guiding Principles (C BD Decision COP VI/23). 
2 See Annex: Figure 1 - main drivers' impact on biodiversity/ecosystems from the Millennium Ecosystem 
Assessment (MA, 2005). 
3 The term ‘Invasive Species’ used throughout this  document encompasses the terms ‘Invasive Alien 
Species’ as used by the Convention on Biological Dive rsity and ‘Invasive non-native species’. Invasive 
Species are broadly defined as speci es whose introduction and/or spread  threaten biological diversity or 
have other unforeseen consequences. 
EN 3   EN The increased mobility of Europeans and peopl e and goods in general has many benefits, but 
it also increases opportunities for intentional introduction of highly inva sive species and for 
unintentional introduction of ‘hitchhiker’ or contaminant organisms through trade or other 
pathways. IS do not recognise national boundaries . The impact and related costs of IS will 
further increase due to the exp ected exponential increase of IS in the future (see graph above). 
This is a shared problem of all Member States , Europe and the world. Thus it is critical to 
address this global threat al so at the European level. 
Good practice in rela tion to policies and legislation relating to IS is found in some areas, but it 
remains scattered. The fragmented measures in place are unlikely to make a substantial contribution to lowering the risks posed by IS to Europe's nature and ecosystems. There are at present no mechanisms to support harmonisation or  basic consistency of approaches between 
neighbouring countries. The multitude of existing EU legislation partly  covering different 
aspects of IS makes coordinated implementation difficult. 
The Community has committed itself to subs tantially reducing the impact of IS on 
biodiversity. To contribute to this process this impact assessment report aims to outline the policy options and measures for immediate impl ementation while developing "an EU Strategy 
on IS". The current policies in place and the le gal context are set out in Chapter 1 of the 
Impact Assessment Report, which also provides a review of the use of consultation and expertise in the preparation of  the Communication. Chapter 2 reviews the issue of invasive 
species in Europe and describes the various pa thways of introduction. It gives examples of 
their environmental and economic impact and an  overview of current knowledge about the 
related costs, and also explai ns the need for action at EU level. Chapter 3 presents the 
objectives of an EU Strategy on IS. 
II. Exploration of different approac hes for achieving the objectives 
Chapter 4 presents four policy options identi fied for addressing the objectives and some 
horizontal issues that are relevant to all options. These options are not exclusive and 
competitive packages . They are options of increasing intensity and effectiveness. Increased 
intensity needs increased resources, and ther efore depends on the willingness to invest. The 
measures identified in option B are not stan d-alone measures. They should be seen as 
cumulative measures , which are part of the approach seeking to boost current efforts to 
tackle IS problems and maximise the existing instruments and legislation. It is feasible to 
implement certain of these measures immediately , while other elements would take several 
years. The suggested measures include acti ons for the prevention of intentional and 
unintentional introduction, early warning and information, eradication, containment and 
control of established IS species . The options identified are:  
• Option A,  Business as usual : continuation with the ongoing implementation of existing 
instruments. 
• Option B, Maximise use of existing approaches : best use of exis ting legislation, 
development and implementation of voluntary c odes of conduct, development of an early 
warning and information system, maintenance of the European inve ntory on IS, increasing 
awareness, exchange of best practice, implem entation of eradication and control measures 
at national level. 
• Option B+, Adapt existing legislation : this option implies amending existing legislation to 
widen the scope to formally take IS issues into account. 
EN 4   EN • Option C, Comprehensive, dedicated EU legal instrument : this option includes the basic 
tools described in option B, but in addi tion includes the rapi d introduction of new 
legislation, which will make it possible to tackle IS in a comprehensive manner. 
A set of horizontal measures that are common  and relevant to all options is also under 
consideration; these include communication, education and awareness-raising, development 
of the knowledge base and financing. 
Chapter 5 summarises the options and provi des an overall comparison and evaluation. 
Chapter 6 provides conclusions, while Chapte r 7 identifies aspects of monitoring and 
indicators that will help in assessing progres s towards the preparation of a comprehensive 
EU Strategy on Invasive Species.