Biosecurity strategy 2013 2021 - NSW Department of ...
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Biosecurity
a shared
responsibility
Government, industry and the people
of NSW working together to protect the
New south wales
economy, environment and community
from the negative impacts of animal
and plant pests, diseases and weeds
for the benefit of all people in NSW.
Biosecurity
Strategy
2013 – 2021
NsW Biosecurity
strategy 2013–2021
Contents
01 biosecurity: a shared responsibility
02 introduction
03 Broad objectives for biosecurity in NSW
03 Aims and objectives of the strategy
04 Scope of strategy
04 Why is it important to manage
biosecurity risks?
10 Who are the key players in biosecurity
and what are their roles?
16 Managing increasing risk
16 New challenges for biosecurity
18 The future of biosecurity management
in the State of NSW
21 Goal 1
21 Background
21 Achieving this goal
25 Goals 2 & 3
25 Background
25 Achieving these goals
37 Goal 4
37 Background
38 Achieving this goal
41 Summary table: Goals, outcomes
and strategies for implementation of
the NSW Biosecurity Strategy
44 Appendix A: Biosecurity Threat Decision Tree
Biosecurity: a shared responsibility 1
vision
Biosecurit y:
A shared responsibility
Government, industry and the
people of NSW working together to
protect the economy, environment
and community from the negative
impacts of animal and plant
pests, diseases and weeds for
the benefit of all people in NSW.
2 NSW Biosecurity Strategy 2013–2021 Biosecurity: a shared responsibility 3
Introduction Broad objectives for biosecurity
in NSW
Biosecurity is about risk management. The
The objectives of the strategy are to:
•• communicate a clear vision and build
support for a strong and integrated
broad objectives for biosecurity in NSW are biosecurity system for NSW
to manage pest, disease and weed risks by:
‘Biosecurity’ means protecting the •• help achieve the government’s priorities
as set out in NSW 2021, particularly by
•• preventing their entry into NSW
economy, environment and community contributing to the goals for a strong
•• quickly finding, containing and
from the negative impacts of pests, eradicating any new entries
economy and strengthening local
environments and communities
diseases and weeds. Biosecurity is •• effectively minimising the impacts
•• maintain or improve where necessary
of those pests, diseases and weeds
vital for the health, wellbeing and that cannot be eradicated.
NSW’s capacity to respond to, manage
and control biosecurity threats according
prosperity of everyone in NSW. to our state and national obligations
Aims and objectives of the •• provide the foundation for all
The NSW Biosecurity Strategy sets the stakeholders to work together, and help
strategy
overall direction for the management The NSW Biosecurity Strategy outlines
to make best use of the knowledge
and expertise across all groups
of animal and plant pests, diseases how government, industry and the
•• identify a clear set of goals, outcomes
community need to work together to
and weeds in NSW terrestrial and identify, minimise, respond to and manage and strategies for implementation
aquatic environments. It is based biosecurity risks. It aims to highlight that are meaningful to the NSW
community as a whole
the importance of biosecurity for NSW
on the principle that biosecurity and identifies the objectives that we •• provide guidance for
is a shared responsibility. will pursue over the next eight years prioritisation, decision‑making
through implementation of the strategy. and actions at state level
•• provide a framework for more
detailed planning, monitoring and
reporting of biosecurity programs
•• provide a clear direction for
biosecurity research.
4 NSW Biosecurity Strategy 2013–2021 Biosecurity: a shared responsibility 5
Scope of strategy Why is it important to manage To access new, and safeguard existing Failure to protect our aquatic environments
Biosecurity risks are broad‑reaching biosecurity risks? domestic and international markets, from the introduction of new pests
and can impact on all aspects of the it is important that we have world and diseases will reduce the value of
Effective biosecurity is important
economy, environment and community. class quality assurance processes aquatic tourism, fishing and aquaculture
because it contributes to our wellbeing
and schemes in place. The financial industries, and will affect the functioning
and prosperity. We need to manage
The focus of the NSW Biosecurity Strategy consequences of temporary or prolonged of aquatic ecosystems which then impact
biosecurity risks effectively to protect the
is on biosecurity risks that affect: market closures due to pest or disease on commercial and recreational fishing,
economy, environment and community.
outbreaks can be very significant. For and the environment. The direct value
•• animal and plant industries, including
example, it is estimated that a 12 month of aquatic tourism and recreational
agriculture, aquaculture, recreational Economy
outbreak of foot and mouth disease activities in Australia is estimated to
and commercial fishing and forestry International markets often prefer would reduce Australia’s gross domestic be $12 billion, which equates to 19% of
•• biodiversity and the natural (terrestrial Australian products because they are free product by between $10.3 billion and the total value of the tourism sector for
and aquatic) and built environment of many of the pests, diseases and weeds $16.7 billion over 10 years (equivalent Australia ($64 billion in 2009–10).
•• human health: found in other parts of the world. Similarly, to a one to two percent reduction in
our ability to trade animal and plant Food security
•• directly through the transfer of gross domestic product for one year).
products with other Australian jurisdictions The people of NSW, along with others
diseases between animals and
is also underpinned by our biosecurity A 12 month long incursion of the wheat around the world, share a heightened
humans (such diseases are known as
status. Some pests, diseases and weeds disease Karnal bunt would result in a awareness of the constraints
zoonoses), or through weed species
that exist in Australia today are found only loss of $350 million, a national outbreak facing world food production.
that may cause problems such as
in specific parts of the country. Those parts of citrus canker would result in a loss
asthma and allergic reactions, or Modelling indicates that global food
that presently do not have them want in the order of $400 million, and an
•• indirectly through the ingestion that freedom to remain. NSW agricultural outbreak of highly pathogenic avian production will need to have doubled
of chemically‑contaminated and forestry industries are heavily export influenza infecting people as well as between now and 2050 to meet expected
food products arising from focused, and our strong biosecurity status birds could cost over $10 billion. demand. It is clearly important that we
pest and disease treatment or is crucial for developing and maintaining do everything we can to protect our
pathogen‑contaminated food both overseas and domestic markets. A biosecurity event does not just have food production capacity from pests,
•• lifestyle, recreation and social amenity This provides significant economic a negative impact on industry. There diseases and weeds that negatively affect
advantages, as well as environmental and will always be flow on effects to related productivity; this includes protecting our
•• infrastructure and service
social benefits. NSW’s primary industries industries such as processing, transport stored and dried food products and our
industries, including energy,
sector has a gross value exceeding and tourism. For example, during the agricultural and fisheries resources.
shipping and water supplies.
$12 billion each year and accounts for foot and mouth disease outbreak
Areas such as animal welfare, about 20% of Australian agricultural in the United Kingdom in 2001, the
genetically modified organisms and production, all of which is protected by tourism industry in the Lakes District
crops, and chemical contamination of maintaining our biosecurity status. lost a whole season of income and total
the environment are also important to losses to the country were estimated
biosecurity, however are not explicitly dealt to be in the order of £8 billion.
with in this strategy. For example, heavy
metal contamination of land as a result
of past industrial practices is managed
through environmental protection
legislation and animal welfare is managed
through animal welfare legislation.
6 NSW Biosecurity Strategy 2013–2021 Biosecurity: a shared responsibility 7
Environment
CASE STUDY: CASE STUDY:
Effective management of biosecurity Managing myrtle rust Working on management programs to outsmart
risks helps to protect our biodiversity
in coastal NSW the red fox
and our distinctive ecosystems
and natural environment.
Myrtle rust is a serious fungal disease that attacks The European red fox (Vulpes vulpes) is a What we know is that no single control technique
Pest animals and weeds are among the
new foliage of plants in the Myrtaceae family. This significant pest throughout Australia and is will completely remove foxes from an area.
biggest threats to biodiversity and the
includes many typical Australian native plants one of the country’s greatest threats to native However, research shows that targeting fox biology
natural environment in NSW. Around 19%
such as eucalypts, paperbarks and tea trees. animals. As a consequence, fox predation is listed ‘weak spots’, using different control methods
of native terrestrial mammal species in
as a key threat in NSW under the Threatened and coordinating efforts with others across the
NSW have become extinct since European First detected in NSW in 2010, myrtle rust Species Conservation Act 1995. Foxes also have landscape can help to control fox populations.
settlement. Pest animals (especially continues to spread across the east coast a significant impact on agricultural industries.
cats, foxes, rabbits and wild dogs) are of NSW and is impossible to eradicate and Sustained and cooperative management programs
considered to be the primary causes of difficult to contain. The disease produces large Foxes are highly mobile and elusive predators allow land managers to use their resources
most of these extinctions. Pest animals are numbers of spores, which are easily spread and scavengers, which makes them successful more effectively, significantly improve livestock
also contributing to the decline of many by wind, human activity and animals. in a diverse range of habitats. They are also production and profits as well as contribute
other native animals (in particular, bird and very efficient breeders and are widespread to the protection of vulnerable wildlife.
reptile species), including approximately Ongoing research and monitoring of myrtle rust and numerous across the landscape.
40% of NSW’s threatened species. infections shows that the disease is severely Ongoing partnerships with research providers
affecting plant health and seedling growth of To mitigate fox impacts in natural areas, the Office such as the Invasive Animals Cooperative
Over 1650 species of exotic plants have susceptible Myrtaceae species along coastal NSW. of Environment and Heritage has prepared a Research Centre, will provide the information
become established in the wild in NSW. However, the level of infection varies and the Threat Abatement Plan to manage fox predation to allow control techniques and community
At least 300 of these weeds are highly severity of symptoms is closely linked with weather impacts. Under this Plan, approximately 60 sites engagement practices to be refined to make
invasive and pose a substantial threat patterns and the susceptibility of the species. Other across NSW, covering a range of land tenures fox management more efficient across NSW.
to biodiversity. A large number of these areas of NSW are currently free from the disease. are subject to ongoing fox management. This
are escaped garden plants. Many weeds is leading to an increase in native animal
are widespread and beyond the scope of The active ongoing everyday management of populations in many of these areas.
eradication or containment programs. myrtle rust in NSW is now the responsibility of
land managers. There are a number of practical The DPI Vertebrate Pest Research Unit has been
The number and distribution of introduced control treatments and management options that researching and developing cost-effective,
species, including aquatic pests, becoming can be used to limit the spread of the disease. long‑term, fox management programs for land
established in the natural environment Further work to enhance the management of managers. This is because, while one-off programs
is increasing. Pest populations usually this disease and to develop a seed bank that may kill a few foxes in the short term, they
have a high reproductive capability, can will safeguard the long‑term survival of highly generally fail to account for the resilience of this
colonise new areas rapidly, and recover susceptible species is occurring. Ongoing pest and have little impact on the fox population.
quickly after targeted control programs vigilance will be required to detect other
have concluded. The absence of natural strains of this disease if it reaches Australia.
predators or environmental control
measures often adds to this impact. To reduce the spread of myrtle rust in NSW
it is important that biosecurity awareness
and good hygiene practices are embedded
in everyday management activities in
commercial and recreational operations.
IRO
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Mori
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e: Lo
Imag
8 NSW Biosecurity Strategy 2013–2021 Biosecurity: a shared responsibility 9
Community
CASE STUDY:
Biosecurity risks, if not adequately Protecting the State’s equine industries from
managed, can directly affect both human
Hendra virus
health and people’s ability to enjoy their
surroundings. Managing biosecurity
risks directly benefits the community. Hendra virus is carried by flying foxes and can be Ten horses on eight properties in north eastern
passed on to horses, and occasionally passed on to NSW died due to the infection in 2011. It is critical
Human health
humans in close contact with the infected horses. that horse owners continue to take steps to
Diseases such as Avian influenza (bird The virus can be deadly to both horses and humans. minimise exposure to the virus. This includes
flu), swine flu, mad cow disease, Nipah keeping horses out of paddocks where trees are
virus, SARS (Severe Acute Respiratory Flying foxes are widespread throughout Australia fruiting and flowering and most attractive to bats.
Syndrome), rabies, Hendra virus, anthrax, and highly mobile, which means Hendra virus
Menangle virus, and Lyssavirus can can potentially occur anywhere flying foxes The DPI funds the testing of horses with symptoms
and do move from animals to people, are found. To date infected bats have been consistent with Hendra virus to rule out the disease.
causing severe disease in many cases. found from Queensland to South Australia. There has been widespread publicity about the
Biosecurity management aims to Hendra virus and how to reduce the risks.
reduce the risk of this occurring. The disease is almost invariably fatal in horses
and four of the seven people known to have Currently, when Hendra virus is confirmed as
Organisms found in livestock and been infected with Hendra virus died, despite the cause of illness or death in horses, the
wildlife, such as the bacteria Salmonella, intensive hospital treatment. Humans who DPI, NSW Health and other local authorities
pathogenic Escherichia coli, Campylobacter survive the initial infection with Hendra virus manage the situation to minimise the risk to
and Listeria, can also cause disease and may relapse, as in the case of a person who people and other animals, and to track the
death in people if they are not controlled died 13 months after his initial recovery. likely cause and extent of the infection.
and are allowed to contaminate food.
In horses, Hendra virus generally causes nervous Research to better understand the disease
Weed species such as rhus, privet and and/or respiratory problems, but early signs and to develop methods of control,
parthenium can also have a detrimental can be vague and can be mistaken for other such as vaccination, is continuing.
effect on people, causing severe illnesses diseases. In humans, the virus can cause a flu
such as asthma and allergic reactions. like illness that progresses to pneumonia, and/
or encephalitis (inflammation of the brain).
Poor practices in the handling of many
of the chemicals and antibiotics used
to treat pests and diseases can also
adversely affect human health, either
directly or through contamination of
food. Inappropriate or long‑term use
can lead to chemical or antibiotic
resistance in pests, diseases and weeds
so identifying alternative methods of
pest, disease and weed control is also a
vital part of managing biosecurity risks.
10 NSW Biosecurity Strategy 2013–2021 Biosecurity: a shared responsibility 11
Public amenity •• Weeds and pest animals are
Australians value their outdoor way estimated to cost the NSW economy
of life. Some pests, diseases and over $1.3 billion a year in losses to
weeds can have a major impact on agricultural production and the cost
lifestyle and threaten these values. of control measures. This does not
include impacts on biodiversity,
For example, the red imported fire landscape, tourism and water.
ant, originally from South America has •• The long‑term survival of many native
been introduced into Australia and can plants, including paperbarks, tea
be found in an area around Brisbane, trees and many rainforest shrubs,
Queensland. These ants have a vicious is threatened by the outbreak and
and painful bite that can kill animals establishment of myrtle rust.
and severely limit people’s enjoyment
of outdoor activities. Before a control
program was undertaken in the Who are the key players in
affected suburbs of Brisbane, everyday biosecurity and what are their
activities such as walking and backyard
roles?
barbecues had become impossible.
Government, industry, industry
associations and professional bodies,
research providers, universities, museums,
What are the consequences of
non‑government organisations (NGOs),
breaches in biosecurity? individuals and the community as a
The potential impacts of not effectively whole all have a role to play in the
managing biosecurity risks are best management of biosecurity risks.
demonstrated by some facts:
•• Diseases such as avian influenza, Government
mad cow disease, ebola and SARS Governments at the national, state and
can spread from animals to humans. local levels all have important roles to play
Between 1940 and 2004, 60% of new in biosecurity risk management. Pests,
human diseases came from animals. diseases and weeds do not recognise
•• A 12 month outbreak of foot local government areas or state borders
and mouth disease in Australia so biosecurity activities must be carried
could cost the economy between out within a national framework. All
$10.3 and $16.7 billion. levels of government must collaborate
closely to deliver positive outcomes.
•• Indonesia stopped Australia’s
$100 million a year live cattle NSW is a signatory to a number of
export trade following an anthrax national agreements including the
incident in NSW in the 1990s. Intergovernmental Agreement on
•• Hendra virus, which is present Biosecurity (IGAB), Emergency Animal
in flying fox colonies in eastern Disease Response Agreement (EADRA),
Australia, has been responsible for Emergency Plant Pest Response Deed
a number of deaths in both people (EPPRD) and National Environmental
and horses in Queensland. Biosecurity Response Agreement (NEBRA).
12 NSW Biosecurity Strategy 2013–2021 Biosecurity: a shared responsibility 13
These agreements outline the roles and The NSW Government will help industries
responsibilities of government and industry and the community manage biosecurity
in responding to emergency animal and risks by:
plant pest and disease incidents and detail
•• building awareness about biosecurity
how those responses will be funded.
•• leading and coordinating prevention,
The NSW Government plays an preparedness, response and recovery
important role in the management programs for outbreaks of significant
of biosecurity risks by leading the emergency pests, diseases and weeds
development and implementation of •• forming partnerships and identifying
policies and strategies that encourage and delivering funding opportunities to
a comprehensive and responsive deliver key initiatives
biosecurity system and by ensuring that
•• engaging with Aboriginal Traditional
there is a strong legislative and regulatory
Owners who have access to invaluable
framework underpinning the system.
and unique knowledge of the
NSW operates within a national biosecurity environment and ecosystems
framework outlined in the IGAB and the •• developing non‑regulatory quality
three supporting deeds and agreements. assurance programs such as
The NSW Biosecurity Strategy is designed Interstate Certification Agreements
to develop and implement management that support market access
arrangements for specific biosecurity risks •• protecting and managing
in line with national goals set out in the environments through effective
IGAB. Underneath the NSW Biosecurity pest and weed management
Strategy will be policies, strategies and
•• coordinating diagnostic, surveillance,
operational plans that relate to specific
tracing and monitoring systems
biosecurity issues such as invasive
species and regional pest management. •• conducting biosecurity
research in priority areas
The Department of Primary Industries •• collaborating with universities,
(DPI) takes the lead on biosecurity museums and research providers
activities within the NSW Government. on research initiatives and pest
The establishment of Local Land Services and disease identification.
in 2014 will provide an important link in
the delivery and implementation of this
strategy, particularly at a regional level.
Local government will continue to play
a significant biosecurity role particularly
in the management of pests and
weeds and has an important role to
play in engaging local communities,
managing public lands and assisting
with emergency management.
14 NSW Biosecurity Strategy 2013–2021 Biosecurity: a shared responsibility 15
Industry In some cases, industries also contribute Community
CASE STUDY:
to increased biosecurity risks through
Primary industries benefit from Biosecurity awareness and active Tackling the spread
effective biosecurity management the following high risk pathways: participation of the community is
of POMS
through increased productivity, higher •• inappropriate disposal of an essential component of effective
quality products and greater market farm or municipal waste biosecurity risk management regardless
access for their product or service by of where they live. Members of the Pacific Oyster Mortality Syndrome (POMS) is a
•• allowing diseased animals to
demonstrating freedom from disease. community can be very effective viral infection that only affects Pacific oysters.
move from property to property
‘eyes and ears’ with respect to the The virus was first detected in Australia by DPI
By projecting a healthy and sustainable •• releasing contaminated ballast or detection of biosecurity incursions. researchers at the Elizabeth Macarthur Agricultural
image of NSW’s terrestrial and aquatic bilge water into local waterways
Institute in 2010 when oyster farmers reported the
environments, the tourism and recreation •• transporting biofouling organisms In addition, the ongoing management
unexplained mortality of wild and farmed Pacific
industries can likewise reap the benefits to new ports on ships’ hulls of established pests, diseases and
oysters in the Georges River and Port Jackson.
of sound biosecurity management and weeds greatly benefits from NGOs that
•• allowing pests and weeds
attract increased numbers of tourists have significant expertise in community POMS was again detected in 2013, this time in the
to be moved on agricultural
and consumers choosing to enjoy engagement and greatly assist in hands- Hawkesbury River.
machinery and equipment.
their holidays and recreation here. on biosecurity activities such as leading
Industries must take a strong leadership volunteer groups that conduct weed With each outbreak, the DPI has worked closely
Industry associations and professional role in biosecurity risk management by: removal, bush regeneration projects with industry to take immediate action to limit the
bodies and their members play an and rehabilitation of aquatic habitats. spread of this disease, protecting the livelihood of
important role in achieving these •• identifying, reporting and managing
oyster farmers. This may include a total ban on the
outcomes. They also lead industry biosecurity risks that may threaten Members of the community have movement of oysters from known infected estuaries
participation in the development and their or other businesses a general responsibility to: to any other estuary in NSW. Movement controls
implementation of industry standards, •• complying with regulations, especially may also be adopted to prevent the movement of
•• be aware of, and manage, biosecurity
guidelines and codes of practice, in relation to record‑keeping and contaminated oyster farming equipment from these
risks where they occur on their land
and represent their members in reporting biosecurity incidents estuaries to other oyster growing estuaries in NSW.
(for example, by controlling weeds),
negotiations with the Commonwealth •• being vigilant by keeping a in their animals or plants, or in One of the key priorities in limiting the spread of
and State governments regarding watchful eye out for unfamiliar waterways, coastal waters and other POMS is to educate commercial and recreational
biosecurity response agreements pests, diseases and weeds shared spaces such as public land fishers and boat owners on the risks of moving
and cost‑sharing arrangements. •• participating in responses to •• quickly report significant or unusual biofouling organisms, bilge water and ballast water
biosecurity incursions pests, diseases and weeds between waterways. A range of educational material
•• educating their members about •• participate in community programs has been developed to explain how everyone can
their roles and obligations that build resilience in the natural work to minimise and manage the spread of POMS.
•• working with governments and other environment and help reduce the risks
stakeholders to develop and implement Oyster farmers and the general public are
from pests, diseases and weeds.
policies and strategies that will protect encouraged to report mortality outbreaks in
Australia and NSW’s biosecurity status Pacific oyster populations or unusual fish kills
and agreements relating to biosecurity along our coastlines so that action can be taken.
responses and their funding
The DPI is undertaking research into POMS and
•• funding or co‑funding educational working closely with industry and other research
programs to develop or providers to improve our understanding of how
improve biosecurity skills the virus is spread and how it can be managed.
•• funding or co‑funding research
programs in priority biosecurity areas.16 NSW Biosecurity Strategy 2013–2021 Biosecurity: a shared responsibility 17
managing Globalisation of trade
Globalisation is integrating the world’s
diseases have been from wildlife. The
increasing pressure of human populations
encroaching on areas previously
increasing risk
economy and increasing the volume
and range of food products traded populated by wild animals suggests
internationally. NSW is on the doorstep that this trend is likely to continue.
of some of the world’s largest and fastest
growing food markets, such as China, Climate variability
India, Korea and Indonesia and other Although the precise impact of
markets of the Asia Pacific. Rapid growth increases in climate variability on
New challenges for biosecurity in trade, tourism and in passenger and biosecurity risks to NSW is not clearly
cargo movements is increasing the risk of understood, it is recognised as a
pest, disease and weed incursions, despite major threat to environmental systems
Australia’s geographic isolation has biosecurity measures pre‑border and and to industries. Over the coming
helped protect us from external threats. at the Australian border. The number of decades, NSW is expected to experience
international vessels arriving at Australian more extreme weather events and
However we are becoming increasingly increases in average temperatures.
ports is expected to continue to rise
vulnerable to the entry of pests, diseases with increases in trade volumes. Studies
have shown that 70% of introduced The predicted change in weather patterns
and weeds. Some key factors influencing and local conditions is likely to favour
aquatic pest species in Australia arrived
increasing biosecurity risks are described. here in the ballast water, or on the hulls the establishment, spread or shift of
of vessels. The need for appropriate some biosecurity risks but limit the
management of aquatic invasions is distribution and impact of others. For
now being widely acknowledged and example, the geographic distribution
acted upon by the shipping industry of some insects is likely to alter as a
and governments internationally. result of increased climate variability.
Insects can help pollinate plants but can
Population growth also damage crops. Changes in insect
distribution will affect the horticultural and
The world’s rapidly growing human
cropping industries. Some insect‑borne
population, combined with changing
livestock viruses (arboviruses), such as
demographics, migration patterns,
blue tongue, three‑day sickness and
increased urbanisation and land
Japanese encephalitis, are all likely to
clearing, is placing more pressure
spread further south and cause disease in
on natural ecosystems and driving
areas where they are not currently found.
competition for resources in Australia
and elsewhere. The growing popularity The extent to which weed species will
of small ‘hobby’ farms is extending spread, and the possible impacts on
the interface between urban and rural scarce resources such as productive
areas (‘peri‑urban’ areas) increasing agricultural land and water, remain
the risk of animal and plant pests and unclear. In addition, damaging tropical
diseases affecting food production, the and subtropical pest species (e.g.
environment (particularly wildlife) and cane toads, cattle ticks and tilapia
human health. This is highlighted by the fish) may increasingly move south as
fact that 60% of emerging infectious the climate there becomes warmer.
diseases in humans have originated in
animals, and the vast majority of these18 NSW Biosecurity Strategy 2013–2021 Biosecurity: a shared responsibility 19
Imports of animal and plant materials The future of biosecurity When developing biosecurity policy, the user to the most efficient cost recovery
Every year new animal and plant materials management in the State of NSW DPI uses a ‘Biosecurity Threat Decision mechanism. The Biosecurity Threat
are imported into Australia. Without Tree.’ This model, which is based on Decision Tree can be found at Appendix A.
Australia’s biosecurity regulations
these new materials, our industries would economic principles, ensures that
are among the most rigorous in the No measure or strategy can completely
cease to prosper and develop and would biosecurity investment decisions are made
world. NSW has a strong track record remove the risk of a pest, disease or
slowly lose competitiveness on world as objectively as possible. It determines
in safeguarding our livestock, crop, weed entering, becoming established or
markets. Our plant industries rely on new whether a role for government exists in
fisheries and forestry sectors and spreading in NSW. Nor is the eradication of
genetic material to develop varieties with relation to a specific problem by using
natural environment from pests, all biosecurity risks a technically feasible
improved productivity and resistance to ‘market’ failure tests. It then prompts the
diseases and weeds. Important service or realistic objective. Consistent with
pests and diseases. However, this new user to identify one or several government
industries and overall community the Australian Government’s concept
material brings with it its own challenges. activities or programs that have the
wellbeing have also been protected. of appropriate level of protection, NSW
Many plant species legally introduced potential to address the problem in
However, given the diverse nature of the aims to minimise biosecurity risks while
into Australia have subsequently proved question. Where appropriate it guides the
challenges, we must find smarter ways simultaneously maximising trade.
to be invasive in NSW environments and to manage biosecurity risks to ensure
are now considered weeds. It is significant optimum use of scarce resources.
that 70% of weeds in Australia are garden
escapees. Early detection of new weed To achieve more efficient biosecurity Prioritising biosecurity investments
species is an ongoing challenge. Left management, together we will: Generalised invasion curve showing actions appropriate to each stage
undetected, ‘sleeper’ weeds can be costly •• continue to develop measures
to eradicate and can have significant to prevent the incursion of new Asset based protection
impacts on industry and the environment.
area occupied
Invasive species widespread and
pests, diseases and weeds abundant throughout its potential range
In addition, some animal and plant •• develop and implement innovative
materials and aquarium species enter and effective biosecurity systems, for Containment
Australia illegally and therefore go example, for pest, disease and weed Rapid incresase in
distribution and abundance,
unchecked, posing significant biosecurity surveillance and product tracing many populations
risks that are initially unmanaged. For Eradication
•• train and develop people so that
Small number
example, the illegal introduction of we have the full range of skills of localised
populations
contaminated meat products remains and capabilities we need Prevention
the most likely pathway for the •• form closer partnerships among Species absent
introduction of foot and mouth disease government, industry, educational and
into Australia. The consequences of a research institutes and the community
single outbreak of this disease would be time
devastating for our national economy. •• create a clearer understanding in the Entry of invasive species
community of the value of biosecurity
economic returns (indicative only)
and how it can be maintained
Competing priorities for resources 1:100 1:25 1:5–10 1:1–5
•• develop and implement a Prevention Eradication Containment Asset Based Protection
There are always competing priorities
contemporary and responsive
for resources and funding in both the
legislative and regulatory framework. *Invasion Curve sourced from Biosecurity Victoria, Department of Primary Industries, Victoria
private and the public sector. Significant
financial pressures on government Most importantly, processes are required
This figure illustrates the return on investment for different phases of invasive
and industry and on many businesses that support good decision‑making
species management. It highlights that a high return on investment is
to maintain profitability make it underpinned by robust analysis of
achieved through preventing entry of exotic and new threats, followed by early
crucial that active and constructive risks. Risk analysis involves identifying
intervention and eradication if they do appear as opposed to investing in the
partnerships between government and high‑risk biosecurity threats, prioritising
management of widely established or endemic invasive species. This principle
industry and clear decision‑making activities, developing and delivering
can generally be applied across the board to all pests, diseases and weeds.
processes are established. targeted biosecurity programs, and
providing for an equitable spread of
costs for delivering those programs.20 NSW Biosecurity Strategy 2013–2021 Biosecurity: a shared responsibility 21
The NSW Biosecurity Strategy The NSW Biosecurity Strategy sets out
communicates a vision for an the government’s long‑term objectives
integrated biosecurity system for how we will work together to manage
and outlines goals, outcomes and biosecurity in NSW. The strategy will be
strategies for implementation.
The goals of this strategy are that:
underpinned by policies, strategies and
implementation and operational plans
that will provide a detailed road map
GOAL 1
1. Biosecurity is a shared responsibility. of how the outcomes of this Strategy
2. Biosecurity contributes to
will be achieved. Specific actions, Biosecurity is a shared responsibility.
targets and time frames for delivery
sustainable economic growth.
will be outlined in more detail in these
3. Biosecurity protects the underpinning documents and will be
environment and the community. reported against annually or as required. Background Tourists, including Australians returning
4. Biosecurity is underpinned by from overseas or interstate, need to
The NSW Biosecurity Strategy provides ‘Biosecurity is a shared responsibility’ is
a responsive and consistent ensure they do not return with biosecurity
the framework for achieving good the most important goal of this strategy.
legislative framework. risk materials which may endanger
biosecurity outcomes in a smarter way. Engagement of all stakeholders – industry,
These goals, together with relevant other jurisdictions, and crucially, the NSW’s or Australia’s biosecurity status.
Government resources, policies and
outcomes and strategies for procedures will need to be realigned wider community – is imperative for The tools to identify and report biosecurity
implementation are discussed in within existing budgets to achieve good biosecurity outcomes in NSW. risks must be widely promoted and
the following sections and included these objectives. The government readily accessible. It is important that
in the Summary table. will continue to work with industry to people know what they are looking for
identify opportunities for additional Achieving this goal and why, what to do if they find it, who
investment by industry in, for example, Outcomes to notify, and what might happen after
research, development and education. they report it. Investing in education and
Together we will strive for:
community engagement will achieve:
1. improved community engagement
•• greater commitment to pest,
in biosecurity management
disease and weed reporting
2. stronger partnerships across
•• greater support for routine
the biosecurity spectrum.
prevention work
•• greater understanding and
1. Improved community engagement compliance during an emergency
in biosecurity management response and recovery
Biosecurity is vital to the health, wellbeing •• greater support for ongoing
and prosperity of everyone who lives in biosecurity management efforts.
NSW. The value of biosecurity needs to Engaging the community in biosecurity
be explained well so that everyone can awareness is a major education task for
understand its importance, namely what it government and other relevant institutions
means for them and for future generations. such as universities and museums.
Industries and NGOs are also actively
For example, community members
involved in keeping pests, diseases
such as private landholders, fishermen,
and weeds out of NSW, as well as in
bushwalkers or tourists are often best
managing those that are already here.
placed to detect a new pest, disease or
They also have an important role to play in
weed. Early identification and reporting
communicating their biosecurity successes
of new incursions is vital and greatly
and challenges to the community.
increases the chances of eradication.22 NSW Biosecurity Strategy 2013–2021 Biosecurity: a shared responsibility 23
CASE STUDY:
The wider community is becoming A wide range of new tools and approaches
RabbitScan: helping CASE STUDY:
increasingly aware of environmental is now available including social media
issues. Continuing urbanisation has networks, to understand, involve and landholders to manage Working to stop Didymo
meant that the community has become engage target audiences and communities. rabbit populations from entering Australia
more aware of the value of the natural Ways to use these platforms to engage
environment and people expect a quick the community more proactively in
and effective response to environmental biosecurity issues will be explored. Since their deliberate release into Australia Didymosphenia geminata (known as
risks. In addition, many community by European settlers in the 1800s, Didymo or ‘rock snot’) is a freshwater alga
members actively participate in volunteer rabbits have degraded millions of square (single celled plant) that is causing serious
programs to help protect the environment. Strategies for implementation kilometres of the environment and been environmental problems around the world.
a chronic and costly economic burden on
To improve community engagement in Didymo has invaded rivers, lakes and native
However, many people do not understand Australia’s agricultural production.
biosecurity management, together we will: waterways in Europe, Asia, North America and
the link between promoting healthy
ecosystems and minimising pest, disease 1.1 increase the capacity and capability of Efforts to control them, although spectacular New Zealand and is smothering stream beds,
and weed risks. Healthy habitats are the community in biosecurity activities at times through biological control killing aquatic plants and insects and reducing
more resilient to these threats. Raising by leading and facilitating targeted agents, have had limited or temporary fish habitat and food. Didymo masses can also
community awareness of biosecurity education and information programs success with rabbit populations still well clog pumps used to extract water for irrigation
issues in natural environments will established throughout the continent. and industrial use, as well as being detrimental
1.2 provide advice to industries and the
help promote the role the community to the recreational use of waterways.
general community about how they One of the most important aspects of rabbit
can play in protecting NSW from can meet their biosecurity obligations
pests, diseases and weeds. management is having an accurate picture of rabbit Didymo was first found in the southern
1.3 develop programs to actively distribution and abundance across Australia. hemisphere in 2004, in the Lower Waiau River in
Effective community engagement manage priority established New Zealand. In only a few years it has spread to
processes are informed by a good pests, diseases and weeds So, in early 2011, the DPI launched RabbitScan, 150 rivers in the South Island of New Zealand.
understanding of community perceptions a new website for landholders, communities and
1.4 develop and promote easy‑to‑use
and expectations which in turn improves pest controllers to record sightings of rabbits, Human activity is thought to be the main
technologies for the reporting of
the impact and effectiveness of the map the damage they cause, and report where cause of the spread of Didymo. Only one
pests, diseases and weeds
engagement but also helps create rabbit control is being undertaken. The site cell (invisible to the naked eye) transferred
1.5 improve understanding of social includes a mapping tool to help visitors create on footwear, fishing and boating equipment
longer‑term and self‑sustaining programs. factors influencing implementation a rabbit management map of their local area. can spread this alga. Didymo cells can be
of biosecurity practices. transported easily on any damp materials.
Equally important for community
engagement will be incorporating RabbitScan is now an Australia‑wide program that
the results from science and allows anyone to spot, collect and report visual It is essential that Australia prevents this serious
research in focused education and or other evidence of rabbits and their impacts. environmental pest reaching our shores. Computer
information campaigns about priority modelling suggests that our environment is
Landholders will find the tool particularly useful as suitable for didymo to become established
biosecurity issues. Better, clearer they can create a map of their property containing
ways to communicate scientific in parts of Tasmania, Victoria and NSW.
their own rabbit data, which can help them to
knowledge to the wider community plan and evaluate rabbit control strategies. Everyone visiting the South Island of New Zealand
in a simple and easy‑to‑understand should be aware of this pest and take steps to
format will be investigated. It is hoped the website will improve the ensure that they do not bring it back to Australia.
on‑ground management of rabbits through
monitoring and collaborative action. In 2009 the Australian Government introduced new
questions on arrival cards for international travellers
The project is an initiative of the Invasive Animals to identify high‑risk equipment (including used
Cooperative Research Centre in partnership with fishing rods and footwear) that may have come in
the DPI and the Australian Bureau of Agricultural contact with infested waterways. This allows the
and Resource Economics and Sciences – a equipment to be treated.
O
research bureau of the Australian Government.
, CSIR
Po o n
e: Liz
Imag24 NSW Biosecurity Strategy 2013–2021 Biosecurity: a shared responsibility 25
2. Stronger partnerships across the Other examples of collaborative
biosecurity spectrum partnerships supporting biosecurity
include participation in the National
Biosecurity activities in NSW are
GOAL 2
Biosecurity Committee and specialist
conducted within a national framework,
sectoral and technical committees.
because pests, diseases and weeds
These bring together representatives
have no respect for borders.
from the Commonwealth, other
A key reform at the national level has jurisdictions, universities, museums
and industry to develop policies
Biosecurity contributes to sustainable economic growth.
been the development of the IGAB. The
IGAB calls for a stronger science and and protocols at a national level.
risk-based approach to biosecurity. As
NSW’s involvement in these strategies
well, the IGAB facilitates an improved
and committees is important for building
& GOAL 3
working relationship between
partnerships with other key players in
governments, industry and the community
biosecurity and is essential in managing
through pre-agreed governance and
biosecurity risks through an endorsed
cost-sharing arrangements under
and complementary approach.
complementary agreements, and it
provides for the states and territories to Biosecurity protects the environment and community.
be consulted on a range of key issues.
Strategies for implementation
Strong partnerships that are reinforced by To build stronger partnerships across the
formal agreements are vital for effective biosecurity spectrum, together we will: Background 5. reduced impacts from established
biosecurity management. However, pests, diseases and weeds
2.1 continue to participate in forums to Management of biosecurity risks
there are still some industry sectors
develop, agree and adopt formal contributes to sustainable economic 6. strengthened biosecurity science and
in NSW that are not signatories to the
consistent national biosecurity growth, protecting the environment research capacity and capability
existing emergency response agreements
arrangements in all jurisdictions and improving community wellbeing. 7. increased numbers of well‑trained
and this needs to be addressed.
2.2 develop and coordinate risk Goals 2 and 3 are interdependent, and resourced people.
National strategies such as the National mitigation strategies for established and although similar directions and
Plant Biosecurity Strategy and Australian pests, diseases and weeds approaches may be taken to achieve
Pest Animal Strategy result from them, each may require different 3. Improved identification, diagnostic,
2.3 develop and implement
collaboration and agreement between specific strategies for implementation.
arrangements for biosecurity surveillance, reporting and tracing
the Commonwealth, other jurisdictions systems for pests, diseases and
prevention, preparedness, response
and industry. These strategies establish a
and recovery, including funding weeds
vision and develop outcomes and actions Achieving these goals
arrangements that reflect the shared Timely detection, notification and
relating to management of biosecurity
responsibility for biosecurity Outcomes identification of a suspected animal or
risks in their respective sectors.
2.4 ensure biosecurity is a key Together we will strive for: plant pest, disease or weed is critical
feature of Local Land Services. to ensure that it does not have time
3. improved identification, diagnostic,
to establish and spread. Landowners,
surveillance, reporting and tracing
occupiers and the community all
systems for pests, diseases and weeds
have important roles to play in the
4. improved response to early detection of biosecurity risks.
biosecurity emergencies26 NSW Biosecurity Strategy 2013–2021 Biosecurity: a shared responsibility 27
Notification. The NSW Government Surveillance. Well coordinated Traceability. Product traceability is Strategies for implemention
has established telephone hotlines surveillance helps with early detection an increasingly important element of To improve identification, diagnostic,
and web‑based systems for reporting of biosecurity threats and monitors the export certification demanded by surveillance, reporting and tracing
suspected pests, diseases and performance of management programs NSW’s valuable food export markets. systems, together we will:
weeds. We will continue to promote thereby allowing appropriate management The ability to trace a product posing a
these existing systems and develop actions to be implemented in a timely biosecurity risk back to its source is an 3.1 improve early detection and reporting
and implement innovative ways to manner. It also helps to track the spread essential part of a robust biosecurity systems, drawing on the latest
simplify and further encourage early of pests, diseases or weeds. Effective system. Being able to demonstrate technologies and diagnostics
identification and notification. surveillance systems also provide the traceability from origin to consumer helps 3.2 undertake surveillance activities that
necessary evidence of absence of pests to safeguard Australia’s reputation as are underpinned by robust science
Diagnosis. Accurate and timely diagnosis and diseases for ongoing market access. a safe and reliable source of food and and prioritised according to risk
of pests, diseases and weeds is crucial, as agricultural and horticultural products. 3.3 improve current tracing systems
management actions will vary depending NSW’s animal disease surveillance
so that they meet national
on the type of risk. Credible surveillance programs, which are conducted by The ability to trace livestock and plants
performance standards
and tracing systems rely on accurate the government with the support of from their source, and determine
diagnosis. Prompt identification of a industry, have helped to eradicate whether other animals or plants 3.4 expand the National Livestock
potential biosecurity risk could save major endemic diseases such as could have been infected is also an Identification Systems to allow tracing
millions of dollars in production or markets brucellosis and tuberculosis in cattle. essential part of managing disease of additional livestock species
that could be lost if an industry had to shut Active plant disease surveillance outbreaks and control programs. 3.5 continue to develop more efficient ways
down while a diagnosis was being made. programs are being developed. of demonstrating proof of freedom
NSW has implemented the National from pests, diseases and weeds
The Elizabeth Macarthur Agricultural The current systems must be Livestock Identification System
3.6 increase focus on coordinated
Institute at Camden, NSW, is part of a fundamentally reviewed so that (NLIS) across the major livestock
surveillance activities and
national network of diagnostic facilities surveillance activities are better prioritised industries which allow for the tracing
strategic information management
and is recognised for its world‑class and coordinated and underpinned by of livestock movements. This system
and accessibility
research, including into the development robust science and risk management must be expanded to include other
and delivery of improved diagnostics. frameworks. Surveillance activities that livestock species. Systems with 3.7 develop and implement
Scientists at the Institute and at the DPIs are effectively prioritised and coordinated similar aims need to be developed effective surveillance systems
other world class scientific facilities will provide consistent and compatible for the plant‑based industries. in natural environments
collaborate with a range of providers to data that can then be accessed not 3.8 consider including plant industries
form the national network of scientific only within NSW but also nationally. and peri‑urban properties in property
capacity underpinning biosecurity. Given registration and traceability systems.
the large numbers of pests, diseases
and weeds in Australia, it is crucial that
we continue to develop our diagnostic
capabilities in a collaborative manner.28 NSW Biosecurity Strategy 2013–2021 Biosecurity: a shared responsibility 29
CASE STUDY: CASE STUDY: CASE STUDY:
NLIS working to protect Australia’s agricultural NLIS helping to control Tracing tick infested
industry weed outbreaks cattle possible with NLIS
The National Livestock Identification System data from the NLIS was equivalent to seven staff The DPI has led the development of an innovative The NLIS database records livestock movements
(NLIS) is Australia’s scheme to identify and trace tracing approximately 438,000 cattle, sheep and technique for tracing weed incursions using data across the country and was invaluable in tracing
livestock across the country. It is a key industry goats to 2300 properties throughout NSW. collected and stored on the NLIS database. cattle movements to and from a property near
initiative in partnership with government, Quirindi when a case of tick fever occurred in 2012.
which enhances Australia’s ability to respond Tracing also revealed other traced premises Using NLIS data, tropical soda apple, an invasive
to a major food safety or disease incident. (properties, saleyards and abattoirs) located weed carried by cattle, was discovered at The NLIS database showed various cattle
in Victoria, Queensland, South Australia, the Holbrook in southern NSW, 1200 km from where movements to the Quirindi property,
In 2012, the DPI ran a livestock tracing ACT and Tasmania. However, further tracing of it was originally found. Subsequent surveys have including 37 cattle from a Moree property
exercise that simulated an outbreak of livestock from these premises was not carried discovered three more outbreaks across the State. via the Moree saleyards. These cattle
foot and mouth disease (FMD). out. In an actual FMD outbreak livestock originated from a property near Paterson in
traced to other jurisdictions are referred to Using reports from the NLIS database DPI staff Queensland, a cattle tick infested zone.
Called Exercise Tuckerbox, the desktop the affected state or territory for follow up. traced the movements of individual cattle
simulation used a real life scenario and sheep from infested properties to other properties Information from the NLIS database allowed DPI
movement data from the NLIS database. Exercise Tuckerbox demonstrated how critical in NSW, Queensland and Victoria, which Agricultural Compliance staff to quickly identify the
NLIS data is in tracing livestock in the event enabled the weed to be quickly eradicated. tick infestation and follow up on whether the cattle
The simulation demonstrated the speed and of an emergency disease outbreak. had been dipped or not. Cattle originating from a
effectiveness of the livestock traceability system The use of the NLIS database gives weed managers Queensland tick infested zone are required to be
to respond to a major disease emergency, with all a significant advantage in controlling weeds treated for cattle tick before they move into NSW.
animals traced within less than 12 hours. Using that are transported by livestock. Early detection
allows land managers to eradicate weeds before The database was also useful in tracing cattle
they become endemic and widespread. sold from the affected Quirindi property to
Victoria and other local properties. DPI Victoria
was then notified of the risk of tick fever in
the cattle from the infected NSW property.
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