The Biosecurity Strategy for New Zealand

Foreword

John Hellstorm
John Hellström, Biosecurity Council chair

New Zealand is more dependent on biosecurity than any other developed country. Our economy and trade are largely based on the exotic species brought here by settlers in the 19th century; and our freedom from major pests and diseases is critical to producing efficiently and trading freely.

Almost 60% of our exports and 20% of our Gross Domestic Product (GDP) depend on efficient and healthy primary production. Importing countries are becoming increasingly concerned about any risks to their own production systems; consumers care more about pests and diseases carried on produce. This strategy illustrates just how much we all have at risk.

But biosecurity is equally important to two other special aspects of Aotearoa – our unique indigenous flora and fauna and our relative freedom from pests that affect human health and welfare.

Charles Darwin visited New Zealand in 1835, 24 years before he published the ‘Origin of the Species’, on the Beagle, a British navy brig. In Waimate, Northland he observed imported species over-running native plants and animals. "It is said that the common Norway rat, in the short space of two years, annihilated in this northern end of the island, the New Zealand species", Darwin wrote. "In many places I noticed several sorts of weeds, which, like the rats, I was forced to own as countrymen." "A leek has overrun whole districts, and will prove very troublesome, but it was imported as a favour by a French vessel. The common dock is also widely disseminated, and will, I fear, for ever remain a proof of the rascality of an Englishman, who sold the seeds for those of the tobacco plant."

Over the past 100 years there has been a profound change in the way Pakeha New Zealanders regard native species. From the time of James Cook’s voyages, Europeans have been trying to modify New Zealand’s biota. By the time of Darwin’s visit, in 1835, the transformation of New Zealand’s biodiversity was already unstoppable. In the next 60 years, the primeval environment of Aotearoa was changed forever. Only then, and almost too late, did people like Richard Henry start trying to protect what remained. Now, most New Zealanders recognise that what we have left of the native biodiversity is unique and precious, and endangered.

The activities we now call biosecurity started in 1849, initially to protect the newly introduced farmed species from pests and diseases that would cause economic loss. By the 1960s, we had world-leading systems to protect our farms, exotic forests and orchards, and our ability to trade. Still, little thought had been given to protecting our native flora and fauna on the land and in lakes, rivers and wetlands from pests; none had been given to protecting our marine eco-systems.

DEFINITION: Biosecurity is the exclusion, eradication or effective management of risks posed by pests and diseases to the economy, environment and human health.

It is against this background of development in systems, expertise and changing social values that biosecurity has come under scrutiny and challenge in the last decade.

New Zealand’s Biosecurity Act, passed in 1993, was a world first; a law specifically to support systematic protection of all our valued biological systems - introduced and indigenous - from the harmful effects of exotic pests and diseases. Unfortunately, scant resources were applied too slowly, making it impossible to achieve the changes in systems and attitudes needed to match this new concept.

It has become clear - not least from the numerous recent reviews - our biosecurity system is struggling to cope. This is not because our biosecurity people don’t care, or aren’t committed. Instead, they have been unable to develop the capabilities required because of the dual challenges - huge increases in pressure on the border, and heightened public expectation about the protection of our natural heritage, both marine and terrestrial.

Despite this, New Zealand has been well served by a system that has kept our livestock amongst the healthiest in the world, and our fields and forests highly productive and tradable. But our national biological assets are now under greater threat than before as the volume, sources and speed of movement increases the chances of exotic pests arriving with imported goods and passengers. Our biosecurity systems have to evolve quickly and perform even better than in the past. They need to become more extensive as the border becomes more diffuse, more adaptable to respond quickly to unpredictable threats and more robust to repel invading species.

This poses a challenge to all New Zealanders, not just those with formal biosecurity roles. We need support, participation and compliance from all New Zealanders to protect our ideal - a country where healthy systems of primary production thrive alongside a secure and stable indigenous biodiversity and where people remain untroubled by harmful pests that are venomous or spread disease.

The Biosecurity Council has recommended changes it believes are needed urgently to provide the foundations for achieving that vision. Beyond that, there is little detail on implementation in this strategy; much of this is contained in the accompanying Cabinet papers. Instead, there is an explicit set of expectations throughout this strategy. Many of these expectations need to be achieved soon, over the next three to five years; others are longer term.

The Council expects this document will still be a useful benchmark 10 years from now, providing evidence that biosecurity is evolving and delivering the outcomes expected. We must all remember that biosecurity is not the dream; it is a set of tools to achieve the dream.

It’s not going to be easy. But it will be far harder, perhaps impossible, if we don’t work towards common goals in a spirit of cooperation and mutual support. Our current system suffers from an inability to reach balanced decisions for the greatest good. That’s why there are so many gaps in the system that are known but not filled. Reaching agreement on priorities often seems like negotiating at Babel.

This strategy proposes a unifying decision-making and prioritisation process that is set out in far more detail in the Cabinet papers. But this strategy can’t be comprehensive in the sense that decisions will become easy. The complexities of varying value sets and perspectives mean it will only work if officials and stakeholders are committed to its success. The decision-making process must learn from accumulated decisions and evolve as our understanding of impacts and interactions grows. It is clear from stakeholder comments that the public will be intolerant of any failure to address this problem now that the opportunity is here.

Today our biosecurity system routinely keeps out many more bugs, and deals quickly with much more of what gets in, that it ever did in the past. The worry is that it isn’t getting better fast enough. The three-year process that has generated this strategy has raised expectations that our biosecurity systems will improve and in some areas improve quickly.

This strategy proposes a direction for New Zealand’s biosecurity, to meet the mounting pressures and society’s growing expectations. This is a very challenging goal, but one to which we should all aspire, for ourselves and for future generations.

It’s been talked about for ages; now it’s time for action.

John Hellström

Boundaries of the Strategy

Biosecurity is inevitably riddled with grey zones – where does it start or end?

In its broadest sense biosecurity covers all activities aimed at managing the introduction of new species to New Zealand and managing their impacts once here. This includes intentional (including illegal) and unintentional introductions and the containment of new and unwanted organisms in laboratories, quarantine facilities and zoos. It also covers the management of weeds and animal pests by central and local government agencies, industry and individual landowners.

The focus of this strategy is on pre-border, border and post-border activities designed to keep out new pests. These are central to the Crown's biosecurity responsibility. Beyond this, the strategy addresses the Crown's role in maintaining and monitoring the framework for pest management under which agencies, industry and individuals take collective actions against pests.

The strategy does not focus on the framework for managing the intentional introduction of new organisms, including Genetically Modified Organisms (GMOs), because this has been the subject of a separate review process - firstly by the Royal Commission on Genetic Modification, then by the Government in developing its response (which includes the New Organisms and Other Matters Amendment Bill). Nor does this strategy focus on the role and capability of ERMA, which has been the subject of a separate review. The Council is unaware of any scientific basis to treat GMOs as a different class of biosecurity risk, requiring some special approach. The need for appropriate surveillance and response capability to deal with possible GMOs incursions does need to be addressed.

Bioterrorism is not discussed in this strategy. Conceptually, bioterrorism is simply another vector for transmission of unwanted pests and species. The intent, however, is quite different and the scale of damage potential catastrophic. New Zealand needs to remain conscious of the potential risk and use this strategy as firm foundation for any further work. For instance, Foot-and-Mouth disease could be introduced into New Zealand as an act of terrorism, with potentially disastrous results for farmers, business interests, tourism and the nation. Work has been undertaken to understand and mitigate this risk.

Vision & Goals

Our vision – New Zealand ’s biosecurity in 2010

"New Zealanders,our unique natural resources,our plants and animals are all kept safe and secure from damaging pests and diseases "

In 2010 …New Zealand has a high performing,integrated system for managing biosecurity risks to the economy,environment and human health. New Zealanders understand and have confidence in the biosecurity system;committed and playing their vital role,from pre-border through to pest management.

Biosecurity is making a significant contribution to achieving a range of goals for the economy, environment and human health,including:

  • Protecting marine and terrestrial primary industries and facilitating exports and tourism;
  • Protecting New Zealand ’s indigenous biodiversity –our native species,natural habitats, ecosystems and landscapes;
  • Enabling sustainable use of natural resources and protection of the natural environment;
  • Maintaining the relationship between Maori and their culture and traditions with ancestral lands,waters,sites,waahi tapu and taonga;
  • Protecting the health of New Zealanders from zoonotic and pest-borne diseases and from venomous species;and
  • Reducing the damage caused by pests and diseases introduced in the past.

New Zealand ’s biosecurity system is providing evolving protection as risks are identified and change. Decisions are made on a case-by-case basis within a consistent,transparent decision-making framework. Cooperating agencies are clearly accountable and reporting on performance. A comprehensive review of the Biosecurity Strategy has just been completed,with refined goals and adjustments to programmes agreed.

New Zealanders have confidence in the management of biosecurity risks and are satisfied there is strong leadership and commitment at all levels. The biosecurity system is well organised, information is shared and efforts are well coordinated and focused.

Decisions are founded on good information,based on quality science,taking into account the full range of values at stake and with transparent tradoffs. Therere is efficient use of the biosecurity budget and biosecurity risk management (from pre-border to pest management)provides an appropriate and sustainable level of protection for New Zealand.

The impacts of biosecurity are most important in:

  1. New Zealand’s economy;
  2. New Zealand’s biodiversity; and
  3. New Zealanders’ health.

The challenge lies in the implementation.

New Zealand’s biosecurity system leads the world, but it’s under increasing pressure. Ever since humans began travelling, assorted livestock, crops, pets, terrestrial and aquatic pests3 and weeds have tagged along. While our primary production industries are based on valuable introduced species, many other exotic species have become major problems for agriculture and have devastated native species and ecosystems.

Globalisation has seen increasing volumes of goods and people moving at greater speeds around the world. New Zealand’s freedom from the world’s worst pests and diseases is crucial to our success and welfare – as a nation, we rely on trade and travel, so robust biosecurity is fundamental to New Zealanders’ future prosperity and well-being. Performance across the system needs to lift to meet the challenges of the 21st century and deliver the level of biosecurity appropriate to protect New Zealand’s people, environment and economy.

Punga tree damaged by possums
Keith Broome, Crown Copyright: Department of Conservation Te Papa Atawhai (2003)
Punga tree damaged by possums. Possums were introduced from Australia in 1837, for the fur industry. Possums literally eat trees to death, in particular pohutakawa, rata, totara and kowhai. They also spread bovine tuberculosis to cows, cattle and deer.

Biosecurity contributes to achieving wider goals, including those set out in the New Zealand Biodiversity Strategy, the Government’s Growth and Innovation Strategy and the Government’s principles for sustainable development. Biosecurity is a crosscutting issue, contributing to a wide range of outcomes for the economy, biodiversity, human health, and national identity.

But biosecurity is more than protecting against potentially catastrophic pests and diseases. Our goal is to have the best possible biosecurity system – identifying, assessing and responding appropriately to all pests posing a significant threat to agriculture, forestry, horticulture, fisheries, native biodiversity, and human health. Appropriate responses will include eradication, containment, and on-going control.

Our vision can be broken down into a number of goals for the different activities in biosecurity. These are:

  • Prevention and exclusion: Preventing the entry and establishment of pests and unwanted organisms capable of causing unacceptable4 harm to the economy, environment and people’s health;
  • Surveillance and response: Early detection, identification and assessment of pests and unwanted organisms capable of causing unacceptable harm and, where appropriate, deployment of a rapid and effective incursion response that maximises the likelihood of eradication; and
  • Pest management: Effective management (including eradication, containment and control) of established pests and unwanted organisms capable of causing harm to the economy, environment and people’s health.

To achieve these goals, the biosecurity system needs to have the following elements:

  • Strong global and regional relationships to identify and manage emerging risks;
  • Identification of all risk pathways and high risk organisms, and implementation of pre-border and border measures to prevent pests and diseases entering New Zealand;
  • Comprehensive, competent surveillance programmes and diagnostic services to detect and identify the arrival and spread of pests and diseases;
  • Sufficient capability to conduct timely assessment of the threats from new or expanding species;
  • Rapid response capability to eradicate new pests and diseases before they establish and spread;
  • Seamless integration between the appropriate agencies of central, regional and local government, each with clear roles and accountabilities;
  • Effective strategies in place for eradicating, containing and controlling pests and diseases already established;
  • Effective education and awareness programmes to encourage compliance with biosecurity rules and regulations;
  • Strong enforcement of our biosecurity laws which are reviewed and rationalised as required;
  • A strong input of scientific advice to all levels of policy, planning and decision-making;
  • The support of all stakeholders across the spectrum of biosecurity interests; and
  • A strong culture of continuous improvement.

If Biosecurity is working

Biosecurity is an important issue for a large range of stakeholders, so it is expected this strategy will mean:

  1. Primary producers will know the best efforts are being taken to reduce risks to production, with a well-planned and resourced incursion response capability in place.
  2. The public will understand biosecurity’s importance, comply with its rules, report the unusual and have confidence that dangerous incursions are minimised and managed appropriately.
  3. Environmental groups will know risks to flora and fauna are being minimised, established environmental pests are being managed appropriately, and the biodiversity of our native ecosystems are being protected.
  4. Maori will be involved in biosecurity.
  5. Scientists will know decisions are based on the best scientific knowledge available, gaps in science capability are being closed, and there are incentives for them to work collaboratively across agencies.
  6. Regional councils will recognise central government’s leadership role - facilitating national coordination (where appropriate) and involving regional councils transparently in relevant decisions and actions.
  7. The public health sector will know the risk of zoonotic and pest-borne diseases and venomous species being introduced is being managed effectively.
  8. Industry sectors – such as importers, exporters and the travel industry – are playing a major role in reducing biosecurity risks.
  9. Government will be confident that New Zealand’s biosecurity system is robust.

Expectations - Biosecurity operations

The overall expectation is:

1. That the biosecurity system is fully integrated, operating efficiently and transparently in an environment of continuous improvement (measure, review and refine).

The remains of a Kakapo, after being attacked by a cat
Don Merton,Crown Copyright:Department of Conservation Te Papa Atawhai (2003)
The remains of a Kakapo, after being attacked by a cat on Stewart Island. Cats, and dogs, are natural hunters, so even domestic pets can be very destructive to our native birds. In addition, there are thousands of feral cats – unwanted kittens, strays and, of course, their offspring – in New Zealand. DoC rescued the remainder of Stewart Island’s Kakapo population after this killing. North Island saddleback, pied tit, tui and red-crowned parakeet were eliminated on Cuvier Island, off the Coromandel coast, mostly through predation by cats. Cats were introduced to Mangere Island, in the Chathams, to control rabbits but in addition had also eliminated at least two species of seabirds and most forest birds by 1950. In 1987 a dog was on the loose in the Waitangi State Forest in the Bay of Islands for six weeks. By the time it was caught, as many as 500 of the 900 kiwi living there had been slaughtered. This was not an isolated incident - between 1990 and June 1995, dogs caused 135 (70%) of 194 kiwi deaths reported in Northland. Deaths caused by pets included dogs being taken for day time walks and dogs not tied up at night, at home or camping. In the same period five kiwi were also killed by a feral cat and more by ferrets, stoats and weasels.

What will change

This Strategy will have made a difference if the following have occurred:

  • Clearer accountabilities: Agencies are delivering on their clearly defined roles, strongly aligned to expectations and accountabilities;
  • Strong integration across stakeholders: Efforts of central and regional government are well coordinated and integrated with the efforts of industry groups and Non-Government Organisations;
  • Effective capability: Agencies are developing the necessary capabilities to deliver on their responsibilities;
  • Clear risk profile and priorities: There is a much clearer view of New Zealand's current and emerging risk profile and decision tools are being used to help identify priorities; and
  • Key performance indicators are in place across the biosecurity system, linking the Government's overarching goals for the economy, environment and health.