The National Plant Biosecurity. Status Report

Transcription

1 The National Plant Biosecurity Status Report 2014

2 Plant Health Australia 2015 This work is copyright. Apart from any use as permitted under the Copyright Act 1968, no part may be reproduced by any process without prior permission from Plant Health Australia. Requests and enquiries concerning reproduction and rights should be addressed to: Communications Manager Plant Health Australia 1/1 Phipps Close DEAKIN ACT 2600 ISSN An electronic version of this report is available for download from the Plant Health Australia website. Print copies can be ordered by contacting Plant Health Australia. Disclaimer: This publication is published by Plant Health Australia for information purposes only. Information in the document is drawn from a variety of sources outside Plant Health Australia. Although reasonable care was taken in its preparation, Plant Health Australia does not warrant the accuracy, reliability, completeness or currency of the information, or its usefulness in achieving any purpose. Given that there are continuous changes in trade patterns, pest distributions, control measures and agricultural practices, this report can only provide a snapshot in time. Therefore, all information contained in this report has been collected for the 12 month period from 1 January 2014 to 31 December 2014, and should be validated and confirmed with the relevant organisations/authorities before being used. A list of contact details (including websites) is provided in the Appendices. To the fullest extent permitted by law, Plant Health Australia will not be liable for any loss, damage, cost or expense incurred in or arising by reason of any person relying on the information in this publication. Readers should make and rely on their own assessment and enquiries to verify the accuracy of the information provided. In referencing this document, the preferred citation is: National Plant Biosecurity Status Report (2014). Plant Health Australia, Canberra, ACT.

3 Contents OVERVIEW 7 CHAPTER 1 THE PLANT BIOSECURITY SYSTEM IN AUSTRALIA Plant biosecurity policy and legislation 12 Intergovernmental Agreement on Biosecurity 13 National Plant Biosecurity Strategy 14 Biosecurity legislation National committees 16 National Biosecurity Committee 16 Plant Health Committee Australian Government plant health services 18 Department of Agriculture 18 Department of Foreign Affairs and Trade 20 Department of Environment 20 Department of Immigration and Border Protection 20 Other government organisations State and territory plant biosecurity services 21 Australian Capital Territory 22 New South Wales 22 Northern Territory 22 Queensland 23 South Australia 23 Tasmania 23 Victoria 24 Western Australia Private sector plant biosecurity services 26 Private consultants and commercial agronomists 26 Professional associations 26 Australian aerial agriculture operators Plant Health Australia Australia s plant production industries 30 Industry representative bodies and growers 30 Crop production summary 30 CHAPTER 2 THREATS TO AUSTRALIA S PLANT PRODUCTION Australia s High Priority Pests Australia s regionalised pests Responses to Emergency Plant Pests Managing weed threats in Australia 105 Image courtesy of Canned Fruit Industry Council of Australia

4 CHAPTER 3 MAINTAINING AUSTRALIA S PLANT BIOSECURITY STATUS Biosecurity and international trade 110 International agreements 111 Imports 114 Exports Pre-border activities 120 Risk assessments 120 Verifications, inspections and audits 120 International plant health 121 Building capacity in the Asia-Pacific region 121 Intelligence Activities at the border 122 Screening and inspection 122 Post-entry plant quarantine 122 Northern Australia Quarantine Strategy Post-border activities 125 Domestic quarantine 126 Pre-emptive biosecurity planning 127 National management of fruit flies 127 Pest management 128 Pre-emptive breeding 130 Surveillance 130 Diagnostics 140 Forest health 151 On-farm biosecurity 152 Plant biosecurity communication 153 CHAPTER 4 RESPONDING TO PLANT PEST INCURSIONS The Emergency Plant Pest Response Deed 156 National Management Group 157 Consultative Committee on Emergency Plant Pests 157 Categorisation group PLANTPLAN 159 Contingency planning 159 Training 164 CHAPTER 5 RESEARCH, DEVELOPMENT AND EXTENSION National Plant Biosecurity RD&E Strategy Australian Government RD&E 170 Australian Government agencies and statutory authorities 170 Cooperative Research Centres 170 Research and Development Corporations State and territory government RD&E University and private research institution RD&E Plant biosecurity RD&E in APPENDICES 197 INDEX 207 Image courtesy of Elaine Tou

5 Tables and figures TABLES Table 1. Plant biosecurity related legislation 14 Table 2. Plant Health Australia s members 28 Tables Industry specific High Priority Pest lists Table 35. High Priority Pests designated during biosecurity planning 90 Table 36. Australia s regionalised pests 99 Table 37. Emergency responses to plant pests under EPPRD arrangements 103 Table 38. Pest detections notified under EPPRD arrangements that did not result in a formal Cost-Shared emergency response 104 Table 39. Department of Agriculture finalised and draft import policy advice 114 Table 40. Market access achievements for plant products since Table 41. Australian post-entry plant quarantine facilities 122 Table 42. Current industry biosecurity plans covering Australia s plant industries 127 Table 43. Australia s plant biosecurity surveillance programs 131 Table 44. Samples examined for pests of bees, by state and territory, Table 45. Samples examined for pests of bees and pest bees, by agent, Table 46. Australia s diagnostic services, their capabilities and accreditations 141 Table 47. National Diagnostic Protocols 148 Table 48. Biosecurity manuals for producers of various industries 152 Table 49. Description of the EPP categories and the associated Affected Party Cost Sharing splits 157 Table 50. Contingency plans 160 Table 51. Plant biosecurity research projects 178 Case Studies Chapter 1 Unmanned helicopters used to combat weeds 21 New tool makes biosecurity second nature 25 WA mobile app to identify and report grain pests 51 Chapter 2 Banana freckle sparks huge eradication response 97 Chapter 3 Blowing in the wind long distance natural dispersal of pests 120 Reducing plant quarantine times 124 International workshop on spray drift assessment 129 Harnessing the power of honey bees for crop pollination 137 Award winner withstands disease threat to bananas 153 Chapter 4. Ginger industry signs the EPPRD, bringing the total number of industry Parties to Emergency response changes in Chapter 5. Diagnosing a serious plant pest 171 FIGURES Figure 1. Value of plant and animal production industries in Australia 9 Figure 2. National biosecurity committees and working groups with plant focus 17 Figure 3. Department of Agriculture regional boundaries for biosecurity operations 19 Figure 4. Comparative value of Australia s plant production industries 30 Figures Industry production data 84 Figure 73. Key components of Australia s plant biosecurity continuum 110 Figure 74. NAQS surveillance area 123 Figure 75. Quarantine zones in the Torres Strait 123 Figure 76. Surveillance programs by target host 137 Figure 77. Surveillance programs by target pest type 137 Figure 78. National Diagnostic Protocol endorsement process 146 Figures RD&E project summaries Image courtesy of PBCRC

6 Image courtesy of PBCRC

7 Foreword This 7th edition of the National Plant Biosecurity Status Report provides a synopsis of the plant biosecurity system in Australia in Chapter 1 presents the architecture of the system, introducing all the major players and showing how industry and government stakeholders work together to protect our plant industries and unique natural environment. Pests of significance are detailed in Chapter 2, including exotic pests that have been identified as posing the largest risk to Australia, the pests that are currently being contained to regions of the country and those that prompted some response activity under the terms of the Emergency Plant Pest Response Deed. Chapter 3 charts the myriad activities that are carried out all over Australia, as well as at the border and pre-border, to combat plant pests. Activities range from complying with international phytosanitary agreements, carrying out import risk analyses on proposed imports, the efforts of the Northern Australia Quarantine Strategy to keep pests of the tropics from entering to pest surveillance activities and on-farm biosecurity. No one knows where Australia s next plant biosecurity challenge will come from, but it is reassuring to know that whatever it is, there is an extensive system set to minimise any impacts. In a constantly changing environment this is exactly what is required to protect the economy, livelihoods, communities and the environment. PHA thanks all of the contributors to this volume. It wouldn t be possible to compile without your cooperation. Dr Tony Gregson AM, FTSE Australia s emergency plant pest response system is described in Chapter 4, along with a list of contingency plans that set out how particular pests would be dealt with in the event of an incursion. The report concludes with Chapter 5, which provides updated data on all the plant biosecurity research projects that were underway during the year. Altogether the report reveals an impressive system that results from the efforts of multiple stakeholders. It covers biosecurity legislation and national governance committees, communication networks, national fruit fly management and Australia s diagnostic expertise. Throughout the volume, case studies reveal the human side of plant biosecurity and give examples of changes on the ground.

8 6 Image courtesy of PBCRC

9 Overview

10 The importance of plant biosecurity OVERVIEW Australia s plant production industries are in the enviable position of being free from many of the serious pests that impact industries oversees. This is due in most part to Australia s geographic isolation and a history of focused, effective quarantine measures. To maintain this favourable situation, Australia places a high priority on plant biosecurity, and has developed an internationally recognised system to protect our environment and our crops. The strength of the Australian approach is cooperation between industry and government partners. The definition of a pest 1 used in this report (except in Chapter 4) covers all insects, mites, snails, nematodes, pathogens (diseases) and weeds that are injurious to plants, plant products or bees. Exotic pests are those not currently present in Australia. Established or endemic pests are those currently present within Australia. Plant pests are a significant problem worldwide. It is estimated that every year between 20 and 40 per cent of crops are lost to plant pests and weeds globally 1. Fortunately, Australia is free from many of the pests that contribute to losses overseas, due to our geographic isolation and a world class border protection system. This freedom from many of the worst plant pests provides many benefits to producers, plant industries and our economy, including high yields, lower production costs and access to premium markets for our produce. International trade, people movements and natural means of entry such as wind and water currents means that Australia s pest status advantage cannot be taken for granted. Australian producers grow a wide variety of crops including sugarcane and ginger in the tropical north, walnuts and potatoes in the southern temperate zones and broadacre production of pulses, cotton, forestry, pasture and grains throughout the country. Each of these crops need protection from a specific set of pests which pose a threat to production. Together the plant production industries make a significant contribution to the Australian economy, with a gross value of $31.8 billion in , up six per cent from in a general trend of increasing value for decades (see Figure 1). Plant production is worth significantly more than livestock production for Australia, and the gap has widened quickly in recent years. In addition to the fiscal contribution it makes, plant production also supports Australian families and rural communities and supports global food security. 8 1 Savary, S, Ficke, A, Aubertot, J-N and Hollier, C (2012). Crop losses due to diseases and their implications for global food production losses and food security. Food Security, 4(4): ABARES (2014) Agricultural Commodity Statistics 2013

11 Figure 1. Value of plant and animal production industries in Australia, * 35 VALUE (GVP $ BILLION) OVERVIEW Total crops Total livestock YEAR * Includes forestry from Source: ABS 7503 data series, ABARES Agricultural Commodities Vol 5, no. 1 March quarter 2015 Our unique ecosystems also need protection from invasive exotic plant pests, some of which could change the face of the landscape and threaten a number of native species. Australia has a high level of species richness with a large number of endemic plants and animals that occur nowhere else on Earth. Parklands and other public amenities could also be greatly reduced by the introduction of exotic plant pests. With a total coastline stretching almost 60,000 km, no single organisation could effectively guard against all plant pest threats to Australia s borders. Instead, the plant biosecurity system works through collaboration between the Australian Government, state and territory governments, plant industries and their growers, researchers, Plant Health Australia (PHA) and the wider community. Only by working together, and by coordinating activities along a continuum from pre-border, border and within Australia, can plant biosecurity be effective. Chapter 1 provides an overview of the different roles and responsibilities of the organisations and individuals within Australia s plant biosecurity system and how the partnerships have evolved to keep pace with the new challenges and demands of Australia in an increasingly globalised marketplace. Image courtesy of RIRDC 9

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13 Chapter 1 The plant biosecurity system in Australia

14 1.1 Plant biosecurity policy and legislation CHAPTER 1: ORGANISATION OF PLANT BIOSECURITY SYSTEMS IN AUSTRALIA Australia s plant biosecurity system involves efforts along the whole biosecurity continuum pre-border, at the border and post-border not simply restrictions at international entry points. Risk mitigation activities pre-border prevent pests reaching Australia, border restrictions aim to intercept pests and post-border initiatives focus on preparedness and emergency responses within Australia. These activities across the continuum are carried out by a range of stakeholders including a cooperative government-industry partnership. The framework for managing the cooperative partnership that underpin Australia s effective plant biosecurity system consists of a suite of strategies, policies and legislation. These not only provide the current structure, but provide a vision of how the plant biosecurity system should operate into the future. Australia s biosecurity system has been subject to review several times. Recommendations from the reviews have seen the Australian Government Department of Agriculture recognise that a future focused approach is vital to maintain a strong and resilient biosecurity system that will protect Australia from new biosecurity challenges, whatever they may be. Key themes underpinning continuous improvement to Australia s biosecurity system include: Targeting what matters most, including risk-based decision making and managing biosecurity risk across the continuum (pre-border, at the border and post-border). Good regulation, including effective legislation and reduced regulatory burden. Better processes, including service delivery modernisation and streamlined systems. Sharing the responsibility, including maintaining productive relationships with all levels of government, primary industries and the wider Australian public. Maintaining a capable workforce. The benefits of the modern biosecurity system are realised by industry, government and the community, with positive flow-through effects to the economy more generally. Benefits include streamlined business processes, productivity improvements and reduced regulatory burden in a seamless and lower cost business environment. The system is characterised by risk-based decision making, the use of intelligence, a single point of regulatory contact and robust partnerships. 12

15 INTERGOVERNMENTAL AGREEMENT ON BIOSECURITY Within government, Australia s partnership approach to biosecurity is underpinned by the Intergovernmental Agreement on Biosecurity (IGAB) 3, signed in January The IGAB strengthens the working partnership between the Australian Government and state and territory governments by defining the roles and responsibilities of governments, and outlining priority areas for collaboration and improving the national biosecurity system. Under the IGAB, key aspects of Australia s biosecurity system are becoming better coordinated. Areas addressed include mechanisms to allow emergency response information to be shared between governments, an improved model for managing nationally significant established pests, measures to improve the transparency and rigour of national decision making and investment and a national research, development and extension strategy. A public information and stakeholder engagement framework with standardised tools for all jurisdictions has also been developed 4. As responsibility for biosecurity management is shared, the agreement also provides opportunities for industries, natural resource managers and the community to work together to achieve some of the reforms outlined in the IGAB. PHA has been an active contributor to this process, and has aligned the National Plant Biosecurity Strategy (see next section) with the goals and objectives of the agreement. The National Environmental Biosecurity Response Agreement (NEBRA) 5 is the first deliverable of IGAB and sets out emergency response arrangements, including costsharing, for biosecurity incidents that primarily impact the environment and social amenity. In 2014 NEBRA was used for red imported fire ant (Solenopsis invicta) incidents in Yarwun (Queensland) and Port Botany (NSW) including agreed cost-shared Response Plans. It has since been amended to include additional schedule attachments, including a national framework for the conduct of biosecurity related benefit-cost analyses. CHAPTER 1: ORGANISATION OF PLANT BIOSECURITY SYSTEMS IN AUSTRALIA 3 IGAB is available at 4 Department of Agriculture, Fisheries and Forestry (2012) Reform of Australia s biosecurity system: An update since the publication of One Biosecurity: a working partnership, Canberra. 5 NEBRA is available at 13

16 CHAPTER 1: ORGANISATION OF PLANT BIOSECURITY SYSTEMS IN AUSTRALIA NATIONAL PLANT BIOSECURITY STRATEGY The National Plant Biosecurity Strategy (NPBS) 6 outlines a set of aims and activities to strengthen Australia s plant biosecurity system by PHA developed the strategy by drawing together the views of stakeholders across Australia. The NPBS was finalised in December 2010 with endorsement from PHA members and the process of implementing the recommendations began in With the benefits of many of the recommendations cutting across both industry and governments, responsibility for guiding the implementation process has been divided among organisations and committees, based on their expertise. The government aspects of implementation are overseen by the Plant Health Committee (PHC), with specific input from the Subcommittee on Plant Health Diagnostics (SPHD) and the Subcommittee on National Plant Health Surveillance (SNPHS) on implementing the diagnostic and surveillance aspects, respectively. Plant industries are contributing to NPBS implementation through biosecurity preparedness activities such as developing contingency plans and prioritising threats through the industry biosecurity planning process. The NPBS continues to provide the focus and strategic direction for national plant biosecurity activities and, through its implementation, is strengthening the plant biosecurity system. BIOSECURITY LEGISLATION Australia s biosecurity system operates under Commonwealth, state and territory legislation administered and managed by the respective government agricultural and environmental agencies. Legislation current at 31 December 2014 is listed in Table 1. Legislation covers a range of activities involving the international movement of people and goods into Australia, movement of goods within the country and exporting agricultural commodities. There are also laws covering related aspects such as the collection of primary industry levies to cover the costs of biosecurity activities, reporting of suspicious pests and biosecurity incident responses. The Biosecurity Bill 2014 and supporting legislation was introduced by the government into Parliament on 27 November 2014, and is expected to be legislated in 2015, updating current federal laws. Table 1. Plant biosecurity related legislation Jurisdiction Administering authority Legislation Commonwealth Department of Agriculture Quarantine Act 1908 Quarantine Regulations 2000 Quarantine Proclamation 1998 Export Control Act 1982 Export Control (orders) Regulations 1982 Commonwealth Department of Environment, Water, Heritage and the Arts Environment Protection and Biodiversity Conservation Act 1999 Environment Protection and Biodiversity Conservation Regulations 2000 Commonwealth Office of Gene Technology Gene Technology Act 2000 Regulator ACT Environment ACT Plant Disease Act 2002 Pest Plants and Animals Act 2005 NSW Department of Primary Industries Plant Diseases Act 1924 Plant Diseases Regulation 2008 Noxious Weeds Act 1993 Noxious Weeds Regulation 2008 NT Department of Primary Industry and Fisheries Plant Health Act 2008 Plant Health Regulations 2011 Qld Department of Agriculture and Fisheries Plant Protection Act 1989 Plant Protection Regulation 2002 SA Primary Industries and Regions Plant Health Act 2009 Plant Health Regulations 2010 Tas Department of Primary Industries, Parks, Water and Environment Plant Quarantine Act 1997 Weed Management Act 1999 Vic Department of Economic Development, Jobs, Transport and Resources Plant Biosecurity Act 2010 Plant Biosecurity Regulations 2012 WA Department of Agriculture and Food Plant Diseases Act 1914 Plant Diseases Regulations 1989 Biosecurity and Agricultural Management Act NPBS is available at

17 CHAPTER 1: ORGANISATION OF PLANT BIOSECURITY SYSTEMS IN AUSTRALIA 15

18 1.2 National committees CHAPTER 1: ORGANISATION OF PLANT BIOSECURITY SYSTEMS IN AUSTRALIA The Australian Government has primary responsibility for pre-border and border biosecurity activities, including international phytosanitary obligations, export certification, trade negotiation and quarantine; while the states and territories are responsible for biosecurity matters affecting their rural industries, environment and community, including surveillance, incursion and response (described further in Chapter 3). This division of powers, coupled with a desire on the part of the Australian and state and territory governments to work collaboratively in developing national approaches to primary industries issues and plant biosecurity, was the catalyst for establishing the national committee framework (Figure 2). National committees provide a mechanism for considering and deciding key plant biosecurity policy and procedures across jurisdictions. PHA provides additional links to other organisations, particularly industry bodies. The Agriculture Senior Officials Committee (AGSOC) is responsible for primary industries policy issues. AGSOC comprises the heads of primary industry government departments from the Australian Government, Australian states and territories and the New Zealand government. AGSOC is in turn supported by the National Biosecurity Committee (NBC). NATIONAL BIOSECURITY COMMITTEE The National Biosecurity Committee is responsible for managing a national, strategic approach to biosecurity issues relating to plant and animal pests and diseases, marine pests and aquatics, and the impact of these on agriculture production, the environment, community well-being and social amenity. A core objective of the committee is to promote cooperation, coordination, consistency, and synergies across and between Australian Governments. The NBC s authority is derived from the IGAB which was developed under the Council of Australian Governments and signed by first ministers. The NBC has reporting responsibilities to ministers responsible for biosecurity through relevant Chief Executive Officers. PLANT HEALTH COMMITTEE PHC is the peak government plant biosecurity policy forum. Its role is to maintain or improve plant health in Australia in support of the economy, environment and community. PHC provides strategic policy, technical and regulatory advice, and national leadership on plant biosecurity matters and has responsibility for overseeing the implementation of the government aspects of the NPBS. Through its subcommittees, currently SPHD, SNPHS and Subcommittee on Domestic Quarantine and Market Access (SDQMA), PHC also facilitates a consistent national approach to legislative outcomes and standards within the plant biosecurity sector. PHC s membership comprises representatives from the Australian Government and state and territory governments. PHA and subcommittee chairs have observer status. In 2014 PHC initiated the development of a national pest prioritisation framework and provided advice on the implications for the plant sector of national reform activities arising from the IGAB. PHC has advanced the harmonisation of domestic export requirements, a trade framework to streamline regulations for producers, and adopted nationally consistent requirements for determining and recognising pest area freedom claims that meet international standards. The Secretary of the Department of Agriculture chairs the NBC as a member of the AGSOC. The Australian Government is also represented by the Department of Agriculture's Deputy Secretary, Biosecurity, and a Deputy Secretary from the Department of the Environment (or his/her delegate). Remaining members are senior representatives from primary industry or environment departments for each state or territory. Jurisdictions may have up to two representatives. The Subcommittee on Plant Health Diagnostics met in Sydney in October

19 Figure 2. National biosecurity committees and working groups with plant focus KEY Environment, primary industries and plant biosecurity focus Emergency response NBC Working Groups NMG (EPPRD) Non-EPPRD management groups AHC CCEPP (EPPRD) Non-EPPRD consultative committees AWC Federal and state/territory Ministers SAP (EPPRD) NBC MPSC SDQMA PHC BINCN IABIT BWG BEPWG SNPHS IPAC SPHD CHAPTER 1: ORGANISATION OF PLANT BIOSECURITY SYSTEMS IN AUSTRALIA Abbreviations AHC Animal Health Committee AWC Australian Weeds Committee BEPWG Biosecurity Emergency Preparedness Working Group BINCN Biosecurity Incident National Communication Network BWG Benchmarks Working Group CCEPP EPPRD Consultative Committee on Emergency Plant Pests Emergency Plant Pest Response Deed Abbreviations IABTT Intergovernmental Agreement on Biosecurity Implementation Taskforce IGAB WGs Intergovernmental Agreement on Biosecurity Implementation Working Groups IPAC Invasive Plants and Animals Committee MPSC NBC NMG NSECG Marine Pest Sectoral Committee National Biosecurity Committee National Management Group National Stakeholder Engagement Consultative Group Abbreviations PHC Plant Health Committee SAP Scientific Advisory Panel SDQMA Subcommittee on Domestic Quarantine and Market Access SNPHS Subcommittee on National Plant Health Surveillance SPHD Subcommittee on Plant Health Diagnostics VPC Vertebrate Pest Committee 17

20 1.3 Australian Government plant health services CHAPTER 1: ORGANISATION OF PLANT BIOSECURITY SYSTEMS IN AUSTRALIA The plant biosecurity responsibilities of the Australian Government are delivered principally through the Agriculture portfolio, in collaboration with other relevant agencies. DEPARTMENT OF AGRICULTURE Australia s approach to managing the risk of incursions of exotic pests is multi-layered, involving complementary measures applied along the biosecurity continuum: pre-border, at the border and post-border. The Department of Agriculture s core priorities in managing biosecurity are to: Effectively identify risks and target resources to the areas of greatest return from a risk management perspective. Partner with other governments, industry, clients and stakeholders to manage Australia s biosecurity. Deliver biosecurity services to support access to overseas markets and protect the economy and the environment from the impacts of unwanted pests. Support Australia s reputation as a competitive exporter of agricultural goods and products. Pre-border activities seek to prevent biosecurity risks reaching Australia by understanding global risks, working with international trading partners and the private sector, and engaging with travellers about Australia s biosecurity requirements. Specific activities include cooperation in multilateral forums, import risk analyses, collaborative plant health surveys in partnership with Australia s nearest neighbours, and capacity development audit activities, all aimed at managing plant health risks prior to reaching Australia. The Department of Agriculture also pursues international market access for Australia s industries and access to the Australian market for our trading partners through bilateral, regional and multilateral engagement. Priority is given to: Working to remove impediments to international trade. Progressing and resolving market access issues for portfolio industries. Facilitating targeted technical assistance and agricultural cooperation in support of portfolio interests. Assisting the development of international standards for portfolio products and industries. The Department of Agriculture s work is supported and enhanced by a network of agricultural counsellors located in China, Europe, India, Indonesia, Japan, Korea, the Middle East, Thailand and the United States. At each stage of the continuum, success is dependent on partnerships between governments, industry and the community. Border activities seek to intercept biosecurity risks at airports, seaports, mail centres and along Australia s coastline. Border activities include import permit requirements, inspection of passengers, goods, vessels and mail, audit activities, monitoring and surveillance activities for exotic animal and plant pests, and post-entry quarantine. Rather than being based on state and territory boundaries, five consolidated regions have been established to provide the most effective biosecurity services possible for clients and stakeholders (Figure 3). Post-border, the Department of Agriculture works cooperatively with other Australian Government agencies, state and territory governments and industry partners to detect and respond to plant pest emergencies that may adversely impact on Australia s agriculture, fisheries and forestry industries and the environment. Examples of post-border activities include national policy development, enhancing surveillance and diagnostic capability, and the facilitation of emergency preparedness and response plans. Formal national arrangements exist for managing responses to Emergency Plant Pests (see Chapters 2 and 4). 18

21 Figure 3. Department of Agriculture regional boundaries for biosecurity operations (effective 1 July 2009) CHAPTER 1: ORGANISATION OF PLANT BIOSECURITY SYSTEMS IN AUSTRALIA Northern Includes Torres Strait and south to Cardwell, Northern Territory, west to Broome and the Indian Ocean territories South West From south of Broome, includes South Australia (including Broken Hill excluding Riverland) South East Includes Tasmania, Riverland and extends north to Riverina and east coast NSW to Eden Central East Includes NSW with the exception of Eden and areas south, Riverina and far north coast North East Extends from Cardwell to far north coast NSW, south to Grafton 19

22 DEPARTMENT OF FOREIGN AFFAIRS AND TRADE The purpose of the Department of Foreign Affairs and Trade (DFAT) is to help make Australia stronger, safer and more prosperous by promoting and protecting our interests internationally and contributing to global stability and economic growth. CHAPTER 1: ORGANISATION OF PLANT BIOSECURITY SYSTEMS IN AUSTRALIA The department provides foreign, trade and development policy advice to the government and works with other government agencies to coordinate Australia s global, regional and bilateral interests. DEPARTMENT OF ENVIRONMENT The Department of the Environment is responsible for contributing to the development of national policies on pests and invasive plants that cause harm to the environment. The Department of the Environment is also responsible under the Environment Protection and Biodiversity Conservation Act 1999 for assessing the environmental impact associated with proposals to import live species (except plants, the approvals of which are done in accordance with the Quarantine Act 1908) and ensuring that Australia complies with its obligations under the Convention on International Trade in Endangered Species of Wild Fauna and Flora (CITES). It also provides advice to the Department of Agriculture on environmental issues in relation to risk assessments. DEPARTMENT OF IMMIGRATION AND BORDER PROTECTION The Department of Immigration and Border Protection manages the security and integrity of Australia s borders. It works closely with other government and international agencies, in particular the Australian Federal Police, the Department of Agriculture and the Department of Defence, to regulate and control the movement of goods and people across the Australian border. In 2011, the then Department of Agriculture and Australian Customs and Border Protection Service entered into a Memorandum of Understanding to underpin the strategic working relationship between the two agencies. It seeks to ensure that both agencies continue to look for opportunities to improve effectiveness and efficiency in managing common border protection and biosecurity functions. OTHER GOVERNMENT ORGANISATIONS The Australian Bureau of Agriculture and Resource Economics and Sciences (ABARES), within the Department of Agriculture, supports the plant biosecurity system through collaboration with other government agencies, to ensure that decision makers receive current scientific and economic advice. Other Australian Government agencies that contribute to maintaining Australia s plant biosecurity system include the Department of Health, Commonwealth Scientific and Industrial Research Organisation (CSIRO), the Office of the Gene Technology Regulator (OGTR), the Australian Pesticides and Veterinary Medicines Authority (APVMA) and DFAT. The Australian Trade Commission, Austrade, is the Australian Government s trade, investment and education promotion agency. Austrade s role is to advance Australia's international trade, investment and education interests by providing information, advice and services. The Australian Centre for International Agricultural Research (ACIAR) is a statutory authority that operates as part of the Australian Government's development cooperation programs. ACIAR encourages Australia's agricultural scientists to use their skills for the benefit of developing countries and Australia. 20 Image courtesy of PHA

23 1.4 State and territory plant biosecurity services State and territory governments are responsible for the delivery of plant biosecurity operations and the supporting legislation within their respective borders, under the Australian Constitution. Each state and territory utilises a different approach in fulfilling this role, primarily due to the varied climatic conditions and legislative frameworks across the country. Nonetheless, the national management of the plant biosecurity system ensures that a number of core services are provided: Management of state and territory imports and exports: State quarantine services for the clearance of passengers, cargo, mail, plants and plant products moving interstate. Export and market access support, including plant health certification services, the accreditation and auditing of export compliance arrangements, and surveys and inspections to support area freedom. Science based risk analysis to identify pest threats and inform plant biosecurity policy and operations. Emergency response services, involving activities to prepare for, and respond to, a plant pest incursion. Delivery of responsibilities under the Emergency Plant Pest Response Deed (EPPRD) (Chapter 4). Core services to support biosecurity: Surveillance and monitoring for early detection of pests, maintaining area freedom and delimiting the extent of pests, in partnership with industry surveillance. Diagnostic services to identify plant pests (both endemic and exotic) found on a broad range of crops. The development and maintenance of information systems to support routine and emergency plant biosecurity management. Communication programs to raise awareness of biosecurity. Unmanned helicopters used to combat weeds Aerial pesticide application has been a feature of Australian agriculture for 60 years with a fleet of planes and helicopters assisting farmers by spraying, seeding and fertilising crops and pastures, particularly in broadacre production. In recent years producers and land managers have access to a new technology unmanned aerial vehicles (UAVs) that are proving very useful for biosecurity activities in particular situations. UAVs are an ideal solution for surveillance and spraying in hard to reach places or where precision application is required. The RMAX helicopter has been used in biosecurity work by the ACT Department of Territory and Municipal Services to tackle weeds in the Brindabella Range, to the west of Canberra. At just over 3 metres long and powered by a two-stroke engine, the RMAX is manoeuvrable and cost-effective to operate. It carries two eight litre tanks for herbicide spraying. An ACT RMAX franchisee was contracted by the government to spray blackberry with herbicide in hard to reach situations such as on steep hillsides, along gullies and creeks and where brambles might be obscured by rocky outcrops or power lines. Work facilitated by PHA on behalf of Yamaha Sky Division Australia, evaluated the effectiveness of pesticide spraying from an RMAX remote controlled helicopter, paving the way for weed spraying by this UAV in Australia. CHAPTER 1: ORGANISATION OF PLANT BIOSECURITY SYSTEMS IN AUSTRALIA Research, development and extension (RD&E) to support the continued improvement of pest management and protection capabilities. Development and administration of plant biosecurity legislation and policies. The remote controlled RMAX helicopter has been used to tackle blackberry brambles in the Brindabella Range to the west of Canberra. Image courtesy of PHA 21

24 AUSTRALIAN CAPITAL TERRITORY NORTHERN TERRITORY CHAPTER 1: ORGANISATION OF PLANT BIOSECURITY SYSTEMS IN AUSTRALIA Lead agency: Territory and Municipal Services (TAMS) Directorate The Australian Capital Territory (ACT) Government manages plant biosecurity through the TAMS Directorate, together with the Environment and Planning Directorate (EPD). TAMS is responsible for the operational implementation of biosecurity initiatives and EPD is responsible for policy development. Although the ACT does not have many plant production industries, the government is represented on national committees during plant pest emergency responses and participates in the development of associated national frameworks and strategies when it has the expertise to contribute. Plant biosecurity activities in the ACT are underpinned by the Plant Diseases Act 2002, the Pest Plants and Animals Act 2005, the Magistrates Court (Plant Diseases Infringement Notices) Regulation 2005 and the Nature Conservation Act NEW SOUTH WALES Lead agency: Department of Primary Industries (NSW DPI) NSW DPI is the principal agency responsible for plant biosecurity in New South Wales, ensuring policies, management and procedures are in place to minimise the impact of existing, invasive and emergency pests. NSW DPI maintains rapid response mechanisms for pest incursions in order to protect trade and market access, agricultural resources, regional economies and the environment. The NSW Biosecurity Strategy defines how NSW DPI, in partnership with other government agencies, industry and the public, manages biosecurity risks to NSW. Within NSW DPI, the Plant Biosecurity and Product Integrity Branch develops plant pest policy directions and has oversight of operational responses to Emergency Plant Pests (Section 4.1, page 146) in NSW. The group provides advice to, and participates actively in, national decision making forums for plant pests of national significance. Within NSW, investigations, diagnosis, surveillance and operational activities are implemented by the Plant Health Diagnostic Service at Elizabeth Macarthur Agricultural Institute, the Australian Scientific Collections Unit at Orange Agricultural Institute, the state wide network of compliance officers and the emergency management First Response Team. Close collaboration is established with entomology and plant pathology researchers and with the state-wide Local Land Services network. Lead agency: NT Department of Primary Industry and Fisheries (NT DPIF) Plant biosecurity in the NT is managed by the Plant Biosecurity Branch, within NT DPIF s Biosecurity and Animal Welfare Division. The Plant Biosecurity Branch is responsible for the development and implementation of plant biosecurity policies, programs and procedures aimed at maintaining NT s freedom from plant pests that could adversely impact on trade, market access, public health and the environment. The objectives of the Plant Biosecurity Branch include: Maintaining and improving the plant health status of the plant and plant product industries of NT. Ensuring that plant and plant products that enter NT comply with the Plant Health Act 2008 and Plant Health Regulations Minimise the risk of exotic pests entering NT through compliance and surveillance. Ensuring preparedness for effective emergency response mechanisms in the event of an Emergency Plant Pest (EPP) incursion. Facilitating interstate trade of plant and plant products through certification, inspection and the Interstate Certification Assurance program. Conducting active and passive pest surveillance to support market access nationally and within NT. Conducting active surveillance for the early detection for a range of EPPs. Preparing for effective emergency response mechanisms in the event of an EPP incursion. Developing, implementing and reviewing NT s plant health policy and legislation. The Plant Biosecurity Program is underpinned by the Plant Health Act 2008 and the Plant Health Regulations The Act and Regulations aim to minimise the risk of plant pests entering and establishing in the NT through movement and importation controls on plants and plant products. They also provide the powers to ensure appropriate action can be taken for the control of pests if an incursion were to occur. Current legislation underpinning the NSW Government s plant biosecurity activities are the Plant Diseases Act 1924 No. 38, the Plant Diseases Regulation 2008, the Noxious Weeds Act 1993 No.11 and the Noxious Weeds Regulation 2008, all of which are administered by NSW DPI. There is a state wide review of biosecurity legislation in NSW in progress. 22

25 QUEENSLAND TASMANIA Lead agency: Queensland Department of Agriculture and Fisheries (QDAF) Within QDAF, Biosecurity Queensland is responsible for: developing policies, standards, delivery systems and services to reduce the risk of introduction of exotic plant pests; minimising the impacts of new plant pest incursions on Queensland s plant industries, environment and communities; and preserving and expanding market access for Queensland s plant based industries. The Plant Biosecurity and Product Integrity program, within Biosecurity Queensland, has responsibility for plant biosecurity, diagnostics and the implementation of programs for the detection, control and prevention of certain plant pests. Agri-Science Queensland, a division of QDAF, undertakes research, development and extension on a wide range of plant pests in the cropping, horticultural and forestry industries. The group provides additional diagnostic capability, undertakes surveillance and develops integrated management packages to limit the impacts of pests within farming systems. Currently, plant biosecurity management in Queensland is underpinned by the Plant Protection Act 1989 and Plant Protection Regulation 2002, which are focused on preventing, controlling and removing pest infestations of plants and related purposes. This legislation is also complemented by a number of other acts, including the Agricultural Standards Act 1994 and the Agricultural and Veterinary Chemicals (Queensland) Act SOUTH AUSTRALIA Lead agency: Department of Primary Industries and Regions SA (PIRSA) Biosecurity SA, a division within PIRSA, is responsible for the development and implementation of plant biosecurity policies, programs and procedures aimed at maintaining SA s freedom from pests that could adversely impact trade, market access, public health, food safety, the rural economy and the environment. Lead agency: Department of Primary Industries, Parks, Water and Environment (DPIPWE) The DPIPWE Biosecurity Tasmania Division manages biosecurity policy and programs for plant pests. Branches within this division are responsible for the development and implementation of policies on barrier control, surveillance and monitoring, risk analysis, EPP response and incursion management and plant biosecurity communications. Central to biosecurity emergency preparedness in Tasmania is the Biosecurity Emergency Preparedness Program. This program features an all-hazard approach and all Biosecurity Emergency Response Team (BERT) members receive the same training regardless of whether they are from animal, plant, fisheries or other natural resources areas. At present BERT consists of over 100 registered volunteers. The Tasmanian Government s Biosecurity Policy and the Tasmanian Biosecurity Strategy provide the state framework for all government biosecurity actions and decision making processes, including EPP responses. Plant biosecurity in Tasmania is underpinned by the Plant Quarantine Act When needed, this is complemented by the Emergency Service Act This legislation has been shown to provide an appropriate range of specific and general legislative functions and powers to deal with prevention, monitoring, control and eradication of plant pests. In addition, the various Tasmanian Government agency responsibilities are detailed in the Tasmanian Emergency Management Plan, which includes details of biosecurity emergency response arrangements. CHAPTER 1: ORGANISATION OF PLANT BIOSECURITY SYSTEMS IN AUSTRALIA Given SA s freedom from fruit flies of economic significance, PIRSA has a strong focus on operations aimed at preventing their entry and establishment. These activities include a dedicated state wide fruit fly trapping grid, static quarantine stations and random roadblocks, targeted awareness and education campaigns, and specific measures to effectively respond to and eradicate any fruit flies detected. Plant biosecurity programs in SA are underpinned by the Plant Health Act 2009 and Plant Health Regulations In addition, the Plant Quarantine Standard SA has been established under the Act to identify the relevant conditions of entry for fruit, vegetables, plants, plant products, machinery or equipment of biosecurity concern. 23

26 VICTORIA WESTERN AUSTRALIA CHAPTER 1: ORGANISATION OF PLANT BIOSECURITY SYSTEMS IN AUSTRALIA Lead agency: Victorian Department of Economic Development, Jobs, Transport and Resources (DEDJTR Vic) The Biosecurity branch of DEDJTR Vic delivers biosecurity and product integrity programs across the agriculture, forest and amenity plant sectors. Activities are guided by the state s Biosecurity Strategy. The aim is to minimise the impact of EPP incidents on the environment and production systems and maintain access to local and overseas markets. The Chief Plant Health Officer Unit of the biosecurity branch is responsible for the development, review and monitoring of policies, protocols and procedures in accordance with national and international obligations. The Agriculture Service Biosecurity Operations branch delivers operational functions from a number of regional centres according to technical standards and protocols which are underpinned by the Plant Biosecurity Act Opportunities are provided under the legislation for producers and marketers to adopt quality assurance arrangements which are subject to regular audit and improvement. Scientific and diagnostic support is provided by the Biosciences Research Division. It provides expert technical advice to assist incursion response, market access programs and other biosecurity initiatives (e.g. industry biosecurity plans) as well as technical expert representation on national committees and working groups. This Division and its associated Crop Health Services diagnostic business supports biosecurity by providing diagnoses in the areas of entomology, mycology, nematology, virology and bacteriology. Specialist diagnostic services and expertise has also been provided to interstate jurisdictions to support national incursion responses. Victoria has led and managed response programs for Queensland fruit fly, chestnut blight, giant pine scale and blueberry rust. Targeted surveillance was undertaken to maintain area freedom status for red imported fire ant, Asian gypsy moth, Asian longicorn beetle and Japanese sawyer beetle. Surveillance was also conducted for green snail to support ongoing market access and regulatory reform. DEDJTR Vic has worked with other state and national jurisdictions to investigate trace forward leads to Victoria for cucumber green mottle mosaic virus and little cherry virus 2 as well as undertaking targeted field surveillance for these two diseases. DEDJTR Vic officers were deployed to the Darwin banana freckle response to assist with operational delivery. Officers also investigated a significant number of suspected emergency plant pests reported by industry and the community. Lead agency: Department of Agriculture and Food WA (DAFWA) Maintaining market access and productive capacity for the agriculture and food sector are the key drivers for DAFWA investment in biosecurity services. This contributes to market competitiveness, profitability and sustainability in WA. Biosecurity services are delivered through a network of dedicated and skilled staff throughout the state. Plant biosecurity in WA is governed mainly by the Biosecurity and Agriculture Management Act This Act establishes a modern biosecurity regulatory system to prevent serious animal and plant pests from entering the state and becoming established, and to minimise the spread and impact of any pests that are already present. 24