Communicating with the Public on Aquatic Nuisance Species (ANS) An ANS Communications Strategy For the State of South Carolina March 2006 South Carolina Department of Natural Resources International Association of Fish and Wildlife Agencies This project was funded by Multistate Conservation Grant #DC M-31-C, awarded by the International Association of Fish and Wildlife Agencies (IAFWA) in cooperation with the U.S. Fish and Wildlife Service, as established by the Wildlife and Sport Fish Restoration Programs Improvement Act of 2000 (Pub. L. 106-408). South Carolina ANS Communications Plan – March 2006 Table of Contents Introduction Planning team Process steps Goal Project outcomes Part 1. Situation Assessment I. Scope of ANS in the state II. Jurisdiction of agencies involved in ANS issues in the state III. Priority ANS issues IV. Original pathway and location of ANS in the state V. Current and potential damages of each of these high priority species VI. Potential actions needed to reduce the negative impacts of ANS VII. General stakeholders in ANS issues VIII. Potential messages for target audiences and existing promotional tools IX. Top four target audiences that can have the greatest impact X. Obstacles for reducing the impact of ANS XI. Opportunities for reducing the impact of ANS XII. Potential partners for delivering messages Part 2. Marketing Plan I. Mission of the marketing plan II. Goals, issues, audiences III. Underlying principles IV. Freshwater: recreational boaters, anglers and duck hunters A. Program positioning B. Program characteristics C. Objectives D. Prioritized messages by audience E. Barriers F. Obstacles to implementation G. Opportunities for implementation H. Delivery mechanisms I. Strategies for delivering messages J. Tactics for each strategy V. Marine issue: seafood business A. Program positioning B. Program characteristics C. Objectives D. Prioritized messages by audience E. Barriers F. Obstacles to implementation G. Opportunities for implementation South Carolina ANS Communications Plan – March 2006 H. Delivery mechanisms I. Strategies for delivering messages J. Tactics for each strategy Part 3. Evaluation I. Potential Sources of baseline data Part 4. Action Plan I. Objectives for the freshwater and saltwater audiences II. Target audiences III. Strategies IV. Implementation table Part 5. Results I. Objectives for the freshwater and saltwater audiences II. Proposed contents of the report III. Instate meeting process feedback IV. Potential action for South Carolina pilot project Part 6. Conclusions and Recommendations I. Achievements to date II. Activities in the works III. Recommendations to other Southeastern states Appendices Appendix I. General resources Appendix II. Glossary of terms Appendix III. List of abbreviations Appendix IV. IAFWA ANS pilot state project process outline South Carolina ANS Communications Plan – March 2006 Introduction Information provided in the Situation Assessment was formulated from interviews with team members to describe the status of ANS issues and resources in the state. The Marketing Plan was developed through additional staff interviews, discussions at a meeting in Columbia, South Carolina, on February 23, 2004, and input from Planning Team assignments. The process used to develop and implement this document is described in the IAFWA ANS Pilot State Project: Process Outline. Planning Team South Carolina Planning Team South Carolina Department of Natural Resources (SCDNR) leaders assembled a team of individuals to guide the project. The in-state team includes: • Steven de Kozlowski, Chief, Environmental Conservation Section, SCDNR, Columbia • Rick DeVoe, Executive Director, South Carolina Sea Grant Consortium, Charleston • Ed EuDaly, Biologist, and Jennifer M. Koches, Public Affairs, Education and Outreach, U.S. Fish and Wildlife Service, Charleston • Sandy Friedman, and Gilbert Rowe, USDA-APHIS, Columbia and Conway, SC (respectively) • Ken Glenn, State Plant Regulatory Official, Department of Plant Industry, Clemson University, Clemson • Robin Socha, Biologist, U.S. Army Corps of Engineers, Charleston District, Charleston • Jamie Sykes, District Fisheries Biologist, U.S. Army Corps of Engineers, Savannah District, Savannah • Dale Theiling, Assistant Director of Office of Fisheries Management, SCDNR Marine Resources Division, Charleston • Chris Thomason, Regional Fisheries Biologist, SCDNR Wildlife and Freshwater Fisheries Division, Barnwell • David Tompkins, South Carolina Department of Agriculture, Columbia • Sara Tuttle, Clean Vessel Act Education Coordinator, SCDNR, Conservation Education and Communications Division, Charleston • Jack Whetstone, Extension Aquaculture Specialist, Sea Grant and Clemson University, Charleston IAFWA Project Team An outside team hired by IAFWA was contracted to work with South Carolina: • Gwen White, Project Manager, D.J. Case and Associates, Indianapolis, IN • Phil Seng, Vice President, D. J. Case & Associates, Mishawaka, IN • Sharon Rushton, President, SR Enterprises, Kimberling City, MO • Rob Southwick, President, Southwick Associates, Fernandina Beach, FL • Jim Wentz, President, Silvertip Productions, Canal Winchester, OH South Carolina ANS Communications Plan – March 2006 U.S. Fish and Wildlife Service Providing oversight from the federal branch is: • Joe Starinchak, Outreach Coordinator, U.S. Fish and Wildlife Service, Arlington, VA Process Steps An overview for the process to develop this communications plan is contained in the SC ANS Final Report and IAFWA ANS Pilot State Project: Process Outline. It is helpful to review these documents prior to reading the South Carolina ANS Communication Strategy. Goal The goal of the South Carolina ANS Communications Strategy is to increase the level of awareness and action to address aquatic invasive species problems. This would be done by communicating the significance of problems, current and potential dangers, and potential solutions to mitigate negative impacts on South Carolina’s natural resources, human health and safety, and economic environment. Project Outcomes Action items pursued as part of this communication plan are: 1. Identify target audiences for freshwater (recreational users) and marine (seafood businesses). 2. Establish baseline data on awareness of ANS issues among participants at the Palmetto Sportsman’s Classic (large sport show). 3. Conduct a direct mail information campaign to drive people to the SCDNR website on ANS issues. Conduct a follow-up survey to see if it worked. 4. Create an ANS information page in the 2004-2005 SCDNR Rules and Regulations Publication. 5. Incorporate the Stop Aquatic Hitchhikers logo and links on SCDNR Aquatic Invasive Species website and in educational materials. 6. Develop a South Carolina ANS page for the Stop Aquatic Hitchhikers site that identifies actions to reduce the likelihood of transferring aquatic invasive species from one water body to another and protecting estuarine waters from shellfish disease contamination. 7. Develop a pledge card for use at trade shows and possible distribution to boat registrants that encourages them to conduct boat cleaning behaviors to minimize the spread of ANS from one water body to another. 8. Join the newly formed Gulf and South Atlantic Regional Panel on Aquatic Invasive Species. 9. Work toward development of a statewide ANS Task Force and a South Carolina ANS management plan. South Carolina ANS Communications Plan – March 2006 Part 1. Situation Assessment: ANS Issues in South Carolina I. Scope of ANS in the state The natural features of South Carolina, while diverse and striking, provide a potential “welcome mat” for the permanent residence of freshwater and marine aquatic nuisance species. Resources description: Five main estuaries drain major watersheds originating from as far away as western North Carolina. South Carolina boasts 750,000 acres of estuaries, which comprise almost 10 percent of the southeast U.S. coast’s estuarine system. When these freshwater inland rivers meet the coastal plain, they mix with ocean water to form brackish water estuaries and tidal mouths. These environmental variations invite a wide assortment of both fresh water and marine aquatic nuisance species to make their homes here. In addition to estuarine waters, South Carolina has 750,000 surface acres of freshwater, some 1,617 lakes greater than 10 acres, 50,000 farm ponds, and 11,000 miles of rivers and creeks. More than 450 industries, public water suppliers, power generator facilities, aquaculture operations, and golf courses withdraw 5 billion gallons of water per day from the state’s surface waters. South Carolina’s water resources also support an abundance of flora and fauna. Nearly one- quarter of the state is classified as wetlands, which provide critical habitat for a number of threatened and endangered species of fish, shellfish, birds and mammals. The great diversity of wildlife inhabiting the state’s coastal region includes notable populations of striped bass, sturgeon, bald eagles, ospreys, alligators, and wood storks. The Port of Charleston is ranked as the second largest container port of the East and Gulf coasts, the largest on the Gulf and Southeast coasts, fourth in the nation, and thirteenth in the world. Resources threats: Sportfishing: Surface waters support an active sportfishery in South Carolina. More than one million anglers participate with a total economic impact of over $398 million annually. Many of the lakes in South Carolina are home to a host of fishing tournaments, which attract anglers from throughout the country. Anglers trailer their boats into the state. In 1997, $14.4 billion was expended for recreation and tourism statewide. Visiting anglers from states that have already established ANS populations represent a likely source of invasion into South Carolina. In 1993, concerns about introduction of zebra mussels led to the formation of the South Carolina Zebra Mussel Task Force, which worked to develop a statewide management and outreach strategy for zebra mussel prevention. South Carolina has been more fortunate than other states, so far, in not having a problem with zebra mussels. Ballast water: There have been numerous opportunities for aquatic aliens to enter estuaries through ship ballast water at the Port of Charleston. Every day, large quantities of ballast water South Carolina ANS Communications Plan – March 2006 from all over the world are discharged into U.S. waters. Carried in this water are plants, animals, bacteria, and pathogens. These organisms range in size from microscopic to large plants and free-swimming fish. These organisms have the potential to become ANS. ANS may displace native species, degrade native habitats, spread disease, and disrupt human social and economic activities that depend on water resources. Any ship carrying ballast water is a potential invasion source. Ballast water issues generally fall under the authority of the U.S. Coast Guard. Aquatic weeds/landscaping: The problem of alien weeds continues to grow in South Carolina as landowners plant exotic plants for aquatic landscaping, affecting fish habitat, flow of irrigation water and boating access. Hydrilla, water hyacinths, and other aquatic nuisance species pose huge economic and ecological threats. The state recently fought off an outbreak of giant salvinia (Salvinia molesta), an aquatic weed native to Brazil that has spread rapidly in Louisiana and Texas. Shrimp growing, non-native shellfish introductions and shell recycling: These are key concerns for the Marine Resources Division. Before the ANS project started, the division already worked closely with shrimp growers, who are required to obtain a permit and maintain disease-free stocks. The division worked with this group, which did not involve the public at large. Another concern is non-native shellfish (oysters and clams), the shells of which could be introduced from other states for seed for mariculture. There is great concern over the possibility of pathogens or other ANS hitch-hiking into South Carolina on shellfish from other states. The Marine Resources Division has a program in place to notify the public about the hazards of placing oysters harvested out of state into South Carolina waters. The division has developed a program of recycling shells and encouraging people not to put shells in water. Aquaculture industry: South Carolina has a diverse aquaculture industry, but it is not a large industry compared with other southeast states. The industry generates $10 to 15 million annually. There is a small amount of rainbow trout farming in upper regions. (Rainbow trout are not native but not considered invasive.) The first breeding of hybrid striped bass was conducted in South Carolina. As a cross between two species, it is also nonnative but not invasive. Native clams (Mercenaria mercenaria) are cultivated in coastal areas, as are saltwater shrimp, which are mostly nonnatives (e.g., Pacific white shrimp). The industry sells triploid grass carp. One business in South Carolina produces them from diploids. Other species raised include: crayfish Procambarus clarkii (not native) and Procambarus acutus (native); the freshwater prawn Macrobrachium rosambergii (not native) and channel catfish (argument as to whether it is native). A few production facilities raise baitfish, some saltwater, but on a small scale. Large baitfish producers in South Carolina have problems maintaining stable markets. The industry also raises golden shiners; these are not considered invasive except in small ponds where they can interfere with pond management. South Carolina ANS Communications Plan – March 2006 Conclusion: The state is seeing more problems with aquatic nuisance species because there are greater interactions among regions and nations, with people and goods moving throughout the world. II. Jurisdiction of agencies involved in ANS Issues in the state A. Entities 1. South Carolina Department of Natural Resources (SCDNR) • Land, Water and Conservation Division, Environmental Conservation Section – The division administers the Aquatic Plant Management Program, responsible for statewide management of invasive aquatic plants in public waters. It develops annual statewide aquatic plant management plans, coordinates control activities, implements prevention/public education efforts and identifies research needs. • Wildlife and Freshwater Fisheries Division, Freshwater Fisheries Section – The division administers programs such as the Sterile Grass Carp Permit program that restrict the importation and aquaculture of freshwater fish species. • Marine Resources Division – The division administers programs that regulate the importation and aquaculture of certain marine organisms. The program is responsible for commercial fisheries in saltwaters of South Carolina, including permitting, scientific collection permits, nonindigenous importation, legislation and policy. Outreach is provided regarding regulatory responsibilities, data collection and survey. The fisheries management program does fishery-dependent data gathering. No formal surveys of satisfaction in the commercial fishing industry have been conducted, but they are considering this possibility. • Law Enforcement Division – Conservation officers enforce game and fish laws and are authorized to enforce all state laws including those by other state agencies. • Conservation, Education and Communications Division – The division administers boater and hunter education programs, teacher workshops and agency communications. 2. Aquatic Plant Management Council This 10-member board was established by law to provide interagency coordination and serve as the principal advisory body to the SCDNR on aquatic plant management and research. The council establishes management policies, approves all management plans and advises SCDNR on research priorities. 3. South Carolina Department of Agriculture The department administers the State Noxious Weed Act, including enforcement of the State Noxious Weed List that features several invasive aquatic plant species. It has a limited role in resource management, with more activities focused on agricultural marketing, promotion and regulation. The department has authority to stop movement of materials through commercial channels, including sale of plants by pet stores and water garden distributors. It can place quarantines through the Commissioner of Agriculture. The department can use regulatory power to help resource managers control ANS. South Carolina ANS Communications Plan – March 2006 4. Department of Plant Industry, Clemson University The Clemson department has plant pest regulatory duties throughout the state. Plant Industry inspects nursery stock held by nurseries and plant dealers. It administers the State Crop Pest Act, including inspection of plant nurseries and enforcement of the State Crop Pest List. (State Crop Pest List covers all state and federal listed species of concern including several invasive aquatic plant species.) Plant Industry provides inspection and certification services to nurseries and agricultural producers to meet the pest freedom requirements for sales, movement, distribution and export of plant products. It has authority over designated pest plants, including aquatic species. A memorandum of understanding with SCDNR encourages greater focus on aquatic plant species. The State Plant Regulatory Office follows up on reports of pest plants. Plant Industry tries to educate people on perils of plant pests. It works to prevent exotic or invasive pest introductions. The department conducted an extensive survey regarding Salvinia molesta and helped eradicated an infestation a few years ago (dpi.clemson.edu) The South Carolina state plant regulatory official is based at Clemson and cooperates with the U.S. Department of Agriculture’s Animal and Plant Health Inspection Service (APHIS) Plant Protection and Quarantine (PPQ) and SCDNR. 5. Cooperative Agricultural Pest Survey (CAPS) State Survey Committee USDA APHIS PPQ manages the CAPS program. The CAPS State Survey Committee serves as an advisory group for CAPS activities to detect or delimit exotic pests. Committee members provide input on upcoming exotic pest surveys, discuss survey results and share relevant information on pest occurrences. Pest distribution data from surveys and other sources provided by State Survey Committee members is submitted to a national database. CAPS surveys and other monitoring activities strive to protect agriculture and natural resources and to prevent economic losses. Several years ago, the committee involved a diverse cross section of agencies, private citizens and companies to create awareness about CAPS activities regarding invasive pests. 6. South Carolina Sea Grant Consortium (SCSGC) and Extension Program (SCSGEP) The consortium is a university/laboratory-based state agency charged with supporting research, education, training and technical assistance programs to enhance economic opportunities and conserve marine and coastal resources. The agency's primary federal sponsor, the National Oceanic and Atmospheric Administration (NOAA) National Sea Grant College Program, supports ANS research, education and outreach activities around the country with emphasis on marine and Great Lakes environments. South Carolina ANS Communications Plan – March 2006 The staff includes six extension specialists who focus on aquaculture, fisheries, coastal hazards, ocean observations, coastal communities and coastal economics/business. It has four communications staff in graphic design, technical writing, web design/management and public information. The extension program’s aquaculture program helps develop an economically viable and natural resource-friendly aquaculture industry. South Carolina's aquaculture industry has grown dramatically in the last 10 years, and this agency has played a leading role in support of that growth. It also is heavily involved in zebra mussel research and outreach awareness. 7. USGS Biological Resources Division (BRD) and South Carolina Cooperative Fish and Wildlife Research Unit, Clemson University The USGS Biological Resources Division (formerly the National Biological Service) conducts research on many aspects of South Carolina's ecosystems. Much of this research is conducted through the South Carolina Cooperative Fish and Wildlife Research Unit, on the Clemson University campus. The research unit cooperates with state agencies and the U.S. Fish and Wildlife Service. USGS develops techniques for restoring forested wetlands along the Coosawhatchie River; conducting contaminant studies to assess the quality of water and sediment in the lower Savannah River and Charleston Harbor; and evaluates the effects of water- level changes on migratory bird habitat in national wildlife refuges and state wildlife management areas. 8. U.S. Department of Agriculture, Animal and Plant Health Inspection Service (USDA APHIS) USDA APHIS administers and enforces the Federal Noxious Weed Act prohibiting the importation of certain plant and animal species to the U.S., including aquatic noxious species. There are three regional APHIS field offices and a section that deals with inspecting stores and nurseries to confiscate and destroy noxious weeds. APHIS joins the Department of Plant Industry, based at Clemson University, in this effort. APHIS’ main aquatic nuisance species control project has been for Salvinia molesta. Department of Plant Industry and SCDNR do most control work with some APHIS funding. Most information on illegal imports comes from the Smuggling, Interdiction and Trade Compliance section of the USDA APHIS Plant Protection and Quarantine (PPQ) program. The USDA reviews manifests and articles coming into the country and does inspections. 9. U.S. Coast Guard (USCG), Ballast Water Management (BWM) Program USCG is responsible for enforcing ballast water regulations. In recent years there has been increased international focus on ballast water management due to the ecological, economic, and potential health threats caused by the spread of ANS from ballast