An Independent Review of New Zealand's Biosecurity Surveillance Systems-Glossary of Terms
Glossary Of Terms And Acronyms
One of the most fundamental aspects required for a consistent approach to biosecurity surveillance across sectors is having a common language. In that respect, we make the following observations about the use of some of the terminologies in current usage, as well as apparent gaps and inconsistencies:
- "Active/passive" terminology is confusing to many and does not reflect the fact that most passive Surveillance arises from stimulating some level of public or sector group interest;
- The term "vector" has different meanings to various participants which should be resolved. The Oxford English Dictionary (OED) defines a vector of disease as "a living organism through which a disease is passed." A mechanical agent of transmission is defined as a fomite. Neither definition clearly fits with aircraft and ships carrying biological stowaways. It would be helpful to have some consistent understanding of the meaning of this word within biosecurity circles;
- The term "pathway" is also variously understood and needs a consistent definition;
- A significant finding of this review is that there is a diversity of understanding of the meaning of the word "Surveillance" in a biosecurity context. Therefore different agencies and stakeholders have different views about the role of Surveillance and how it should be managed.
Biodiversity
We think we have followed the definition used in the New Zealand Biodiversity Strategy but inter alia aren't certain that Strategy truly embraces imported biodiversity. In our case we have considered all living things that are here to constitute our biodiversity regardless of when, or how, they got here. We have regarded indigenous (or baseline) biodiversity as anything here before Cook commenced his biological colonisation programme, in 1769.
Biosecurity
We have worked with the Biosecurity Council definition for this review. `Protection from the risks posed by pests and diseases to the economy, environment and people's health through exclusion, eradication, containment and management.'
Border
We have taken the border to include all the exclusion activities taken to prevent unauthorised living organisms entering New Zealand. We have regarded chance detections of free-living new organisms at or around ports or container depots as being incursions whereas we have regarded detections as part of the examination of passengers' baggage or examination of freight as non-incursions and thus outside the scope of this review.
Hazard
We have used the ANZ Standards' definition. `a source of potential harm or a situation with potential to cause loss.'
Incursion
We have used the Biosecurity Council definition. `an incursion is the arrival of an organism within New Zealand after it has crossed the border.'
Monitoring
We have used this term throughout to include any activity that measures the status of a pest within a population. Monitoring more usually is aimed at assessing changes in the prevalence or behaviour of a pest but includes checking for continuing absence, for example DOC monitors for absence of pests on islands.
Pathway
We have followed our own definition in this regarding a pathway as a unique means by which a living organism may enter New Zealand. There are many pathways. We have deliberately avoided grouping subsets of pathways into a larger set, for example backpackers' luggage is in our view a pathway distinct from passengers' luggage because it has a different risk profile both from the point of view of what is carried and the and the risk sites that are exposed.
Pest
We have not gone with the BSA definition `an organism specified as a pest in a pest management strategy'. This definition is in fact a constraint on good surveillance as discussed in the report. We have used our own definition, a modification of that in the OED. For the purposes of this review a pest has been considered as a prion, virus, microbe, fungus, plant or animal capable of causing adverse effects to New Zealand's natural and introduced biodiversity.
Risk
We have used the ANZ Standards' definition. `the chance of something happening that will have an impact on objectives.'
Risk Management Framework
In this most contentious area we have followed the approach of the Biosecurity Strategy Development Team and adopted the definition of the MAF Food Authority, which defines an RMF as stepwise process that identifies risks, assesses risk management options, implements the chosen options and monitors and reviews them.
Risk Site
We have coined this term to describe the places along risk pathways where there is a convergence of possible hazards and a suitable environment for incursions of organisms to establish. The probability of incursion at that site is correspondingly higher than the norm.
Stakeholder
We have taken this term to include any citizen or group with an interest in the area or activity being targeted.
Surveillance
This review defines surveillance as an activity that occurs inside the border that is not part of an NPMS. This activity can be seen to stand alone from surveillance that occurs as part of other biosecurity activities and is called Surveillance with a capital "S" throughout this report. It is a key component of the biosecurity management process and needs a specific and appropriate policy framework in which to operate. Subcategories include:
Passive Surveillance
The detection of exotic species through haphazard, unplanned and unsolicited observations by the general public, farmers, orchardists, gardeners, veterinarians, plant pathologists and others. For example, in the case of Painted Apple Moth, a person working in the office of an industrial site noticed strange caterpillars, wondered what they were and sent them to an entomologist for identification.
Enhanced Passive Surveillance
This term has been used in situations where there is a requirement to improve the sensitivity of passive surveillance processes through the removal of barriers to the more detailed examination of situations in which particular pests might be present. An example of this is the reimbursement of laboratory fees and the payment of a sum to veterinarians submitting material from cattle with clinical signs that could possibly be associated with BSE. Another would be the use of publicity campaigns to encourage target groups to find and notify exotic species.
Active Surveillance
Active surveillance is a planned process targeted to find and identify a particular new pest. Commonly, active surveillance programs use methods of observation and technologies that are specifically sensitive to the detection of the target pest. For example, an active surveillance program for fruit flies might use pheromones in traps to attract the target species.
Sentinel Surveillance
An active surveillance programme that uses targeted groups of the population to monitor for a specific pest or disease. For example, bluetongue virus surveillance in New Zealand involves the regular testing of blood samples of cattle from sentinel herds. The results can be reported as "detected" or "not detected" but there is no quantitative measure of prevalence or incidence.
Surveys
Surveys are planned activities involving the examination of structured samples of a population using defined test methods. Surveys are directed at providing quantitative information on the occurrence of a particular pest or pests in that population. On its own, a single survey will not detect a change in pest status. Surveys are a weak tool to discover new pests or diseases that are not yet widespread.
Acronyms
AHRL Animal Health Reference Laboratory
BA Biosecurity Authority
BSA Biosecurity Act 1993 and Amendments
BSE Bovine Spongiform Encephalopathy
CEM Contagious Equine Metritis
CIE Centre for International Economics. Canberra.
CTO Chief Technical Officer
DOC Department of Conservation
FMD Foot and Mouth Disease
FOA Forest Owners Association
FW Fresh Water
GIS Geographic Information System
HSNO Hazardous Substances and New Organisms Act
IMO International Maritime Organisation
KPI Key Performance Indicator
LAPTYS Livestock and Animal Product Traceability System
LIS Laboratory Information System
MAF Ministry of Agriculture and Forestry
MAFBA MAF Biosecurity Authority
MfE Ministry for the Environment
MFish Ministry of Fisheries
MoH Ministry of Health
MOU Memorandum of Understanding
NCDI National Centre for Disease Investigation
NIWA National Institute of Water and Atmospheric Research Ltd
NLDB National Livestock Database
NPMS National Pest Management Strategy
NPPA The National Plant Pest Accord
NPPRL National Plant Pest Reference Laboratory
NZVJ New Zealand Veterinary Journal
OED Oxford English Dictionary
OIE Office International des Epizooites
PMS Pest Management Strategy
PPIN Plant Protection Information Network
PTSVd Potato Tuber Spindle Viroid
R&D Research and Development
RC Regional Council
RIFA Red Imported Fire Ant
RMA Resource Management Act
RMF Risk Management Framework
RPMS Regional Pest Management Strategy
TOR Terms of Reference
WTO World trade Organisation
Page last updated: 16 October 2008