Biosecurity Amendment Bill 2017

Hansard ID: HANSARD-1323879322-96623

Hansard session: Fifty-Sixth Parliament, First Session (56-1)

Biosecurity Amendment Bill 2017

Second Reading

Debate resumed from an earlier hour.

Mr CHRISTOPHER GULAPTIS (Clarence) (12:31:00

): It is wonderful to see those gentlemen in the gallery; they do this country proud. I speak in this second reading debate on the Biosecurity Amendment Bill 2017. It is a very important bill, especially for northern New South Wales, because northern New South Wales is under threat of invasion from the heart of Queensland. The threat of invasion comes not from One Nation members; no, it is from cane toads. Cane toads have a severe impact on our ecosystem—our fauna and flora. They are ugly little critters that belong in a Harry Potter movie. Anyone who is in the Clarence Valley tomorrow or on Friday will be able to participate in a cane toad muster. A lot of volunteers get together and comb the region, collecting cane toads and euthanising them humanely in an effort to eradicate the pest that has come down from Queensland. It is a prime example of the importance of biosecurity and why it is important to be careful about the species that we introduce into this country.

The Northern Rivers is known for its clean, green image. That helps in our efforts to export Northern Rivers products around the world, including milk to China. The Northern Co-operative Meat Company, which operates out of Casino, exports meat across the world, mostly to Asia. The Clarence River Fishermen's Co‑operative exports a lot of seafood. Yamba prawns, in particular, are world renowned. If we are to maintain that clean, green image we need to ensure that biosecurity is front and centre in any agricultural pursuit. Primary industries in New South Wales add more than $13.9 billion to our economy each year. Wheat contributes $2 billion, beef cattle $2.3 billion, horticulture $1.2 billion, wool $890 million, and the dairy industry contributes $612 million. Primary industries directly employ almost 90,000 people in New South Wales. Approximately one-quarter of people in regional New South Wales are employed in extended primary industries.

Biosecurity is vital to protect our valuable export markets. The market in China alone is worth $1.4 billion, of which New South Wales has a 28 per cent market share. New South Wales's primary industries sector has a gross value exceeding $13.9 billion each year and accounts for about 20 per cent of Australian agricultural production, all of which is protected by maintaining our biosecurity status. This is an island continent, and we need to protect what comes into this continent to ensure that we deal with any potential diseases to maintain that clean, green image that is the envy of the world.

The financial consequences of temporary or prolonged market closures due to pest or disease outbreaks can be significant. For example, it is estimated that a 12-month outbreak of foot and mouth disease would reduce Australia's gross domestic product by between $10.3 billion and $16.7 billion over 10 years, which is equivalent to a 1 per cent to 2 per cent reduction in gross domestic product for one year. A 12-month-long incursion of the wheat disease Karnal bunt would result in a loss of $350 million, a national outbreak of citrus canker would result in a loss in the order of $400 million, and an outbreak of highly pathogenic avian influenza infecting people as well as birds could cost over $10 billion.

The people of New South Wales, along with others around the world, share a heightened awareness of the constraints facing world food production. Modelling indicates that global food production will need to double between now and 2050 to meet expected demand. It is clearly important that we do everything we can to protect our food production capacity from pests, diseases and weeds that negatively affect productivity. This includes protecting our stored and dried food products and our agricultural and fisheries resources. A biosecurity event does not have a negative impact just on industry; there will always be flow-on effects to related industries such as processing, transport and tourism. For example, during the foot and mouth disease outbreak in the United Kingdom in 2001, the tourism industry in the Lakes District lost a whole season of income and total losses to the country were estimated to be in the order of £8 billion.

Failure to protect our aquatic environments from the introduction of new pests and diseases will reduce the value of aquatic tourism, fishing and aquaculture industries, and will affect the functioning of aquatic ecosystems which then impact on commercial and recreational fishing, and the environment. We saw an example of that recently with the effect that white spot disease has had on prawns after it came into this county. It is very difficult to eradicate and is very costly for aquaculture and fishing industries.

The direct value of aquatic tourism and recreational activities in Australia is estimated to be $12 billion, which equates to 19 per cent of the total value of the tourism sector for Australia—$64 billion in 2009-10. Effective management of biosecurity risks helps to protect our biodiversity and our distinctive ecosystems and natural environment. Pest animals and weeds are among the biggest threats to biodiversity and the natural environment in New South Wales. Around 19 per cent of native terrestrial mammal species in New South Wales have become extinct since European settlement. Pest animals, especially cats, foxes, rabbits and wild dogs, are considered to be the primary causes of most of these extinctions. Pest animals are also contributing to the decline of many other native animals—in particular, bird and reptile species—including approximately 40 per cent of New South Wales's threatened species.

Over 1,650 species of exotic plants have become established in the wild in New South Wales. At least 300 of these weeds are highly invasive and pose a substantial threat to biodiversity. A large number of these are escaped garden plants. Many weeds are widespread and beyond the scope of eradication or containment programs. The number and distribution of introduced species, including aquatic pests, becoming established in the natural environment is increasing. Pest populations usually have a high reproductive capability, can colonise new areas rapidly and recover quickly after targeted control programs have concluded. The absence of natural predators or environmental control measures often adds to this impact.

Extension of time

Government, industry, industry associations and professional bodies, research providers, universities, museums, non-government organisations, individuals and the community as a whole all have a role to play in the management of biosecurity risks. Governments at the national, State and local levels all have important roles to play in biosecurity risk management. Pests, diseases and weeds do not recognise local government areas or State borders so biosecurity activities must be carried out within a national framework. All levels of government must collaborate closely to deliver positive outcomes. New South Wales is a signatory to a number of national agreements including the Intergovernmental Agreement on Biosecurity, the Emergency Animal Disease Response Agreement, the Emergency Plant Pest Response Deed and the National Environmental Biosecurity Response Agreement. The biosecurity staff training project was initiated by the biosecurity legislation reform project team in order to deliver training in the new biosecurity legislation to biosecurity staff, other government agencies, industry and community. []

The New South Wales Biosecurity Act 2015 was assented to in September 2015 and is expected to come into effect in early 2017 with supporting subordinate legislation, policies, procedures and guidelines. It will partially or wholly replace 14 existing pieces of legislation. The Act's provisions constitute a significant departure from current biosecurity management and regulatory practices. Everyone in New South Wales who is impacted by biosecurity, including businesses, producers, industry and community groups and individuals, will be affected by the changes. In particular, officers who are currently authorised to perform compliance and enforcement functions established under biosecurity legislation need to be thoroughly trained in the provisions of the Act, subordinate legislation and associated policies and procedures. This includes over 500 authorised officers from organisations including NSW Department of Primary Industries [DPI], Local Land Services, local councils and New South Wales police.

It is important that officers authorised under the new Act are able to implement it confidently and effectively from its commencement. In addition, because a key principle of the Act is the education of the public about biosecurity, authorised officers and other staff must be able to assist and advise the public of their obligations and responsibilities. The Act is based on the principle of shared responsibility between government, industry and community, and provides opportunities for self-regulation by industry groups, primary producers and businesses. It is expected that making training in relevant parts of the Act available to these groups will help them make the most of these opportunities. Recent in-depth attitudinal research conducted by New South Wales DPI across primary industries and the broader community will assist in ensuring the delivery of this training reaches its target audience in the most appropriate ways, ensuring the principles and duties under new legislation are widely understood.

An average production loss cost of $151.5 million is estimated for New South Wales across seven pest species. Production losses associated with rabbits have the largest average cost impacts for both New South Wales and Australia. Wild dogs, foxes, introduced birds and pigs cause moderate impacts. In the case of goats there is a considerable commercial harvesting industry, particularly in western New South Wales. Consequently, production loss costs are likely to be offset by the net value of the feral goat harvesting industry. Carp impose cost through the displacement of native fish species in recreational fisheries. This cost is estimated to be around $9 million per year in New South Wales.

Beef and wool production are the most severely impacted industries in New South Wales, with annual production losses around $30 million to $35 million per year in each of these industries. In total, all industries are calculated to suffer losses of $110 million across the State. A total of $768 million was spent on pest management across 150,000 Australian broadacre farms in 2006-07. Total broadacre farm pest animal costs are estimated to be $17 million in New South Wales and $46 million nationally. It is estimated that $5 million was spent on introduced bird control in viticulture industries of New South Wales in 2013-14 and $20 million nationally.

There are also enormous costs associated with weed control. It is estimated the annual economic cost of weeds to New South Wales is $1.8 billion, not including the significant impacts to environmental and social amenity which have not been monetarily quantified. New South Wales agricultural businesses incur the majority of these costs, more than $1.3 billion per annum, due to lost productivity, and labour, machinery and chemical costs. Weeds also threaten around 40 per cent of vulnerable and endangered species in New South Wales and 89 per cent of the State's endangered ecological communities. As I have outlined, biosecurity is important for New South Wales and I therefore commend the bill to the House.

Mr MARK COURE (Oatley) (12:46:16):

The Biosecurity Amendment Bill 2017 is a significant piece of legislation. Its importance to the State, and Australia as a whole, cannot be underestimated because primary industries are a huge contributor to the economy of this State and the nation. It is therefore very important that the measures in this bill are implemented and that this bill is passed by both Houses of this Parliament. If the amendments in this bill are not implemented, there will be a detrimental impact on the biosecurity of New South Wales. Primary industries in New South Wales add approximately $14 billion to our economy each year, with wheat production contributing more than $2 billion, beef cattle contributing a similar amount, horticulture contributing $1.2 billion, wool contributing just under $1 billion and dairy contributing over $600 million. Future growth projections show that the contribution of primary industries will only grow as New South Wales is seen as the food bowl for not just Australia and the Pacific but also Asia.

I have had a fair bit to do with many Australian-owned and operated and Chinese-owned and Australian‑operated primary industry operations throughout New South Wales. These businesses are growing at a rate of knots in response to increased demand from countries such as China. Predictions are for a growth in the number of middle-class people in China to over 800 million by 2030. The emergence of a growing middle class results in demand for better quality food, better health care and better education. Australia, and particularly New South Wales, can play a huge part in meeting that growing demand. The current annual contribution of primary industries to our economy is projected to grow over time. That is good news for primary industries in our State, and that is why it is important that the Biosecurity Amendment Bill 2017 is passed by this Parliament.

Approximately one-quarter of people in regional New South Wales are employed in extended primary industries, and biosecurity is vital to the protection of our valuable export markets. Exports to China alone are worth $1.4 billion, and I am sure that will only grow over time. The New South Wales share of that $1.4 billion is 28 per cent. The New South Wales primary industry sector generates annual gross production worth over $13.9 billion, representing about 20 per cent of Australian agricultural production, all of which is protected by maintaining our biosecurity status.

As we have seen in other parts of the world, the financial consequences of temporary or prolonged market closures due to pest or disease outbreaks can be significant. The impact is felt not only within the primary industry sector but by the whole economy. For example, it is estimated that a 12‑month outbreak of foot‑and‑mouth disease would reduce Australia's gross domestic product by between $10 billion and $16 billion over 10 years. We have of course seen such outbreaks overseas. Many years ago in Great Britain—almost a decade ago, I think—an outbreak of foot-and-mouth disease crippled the United Kingdom and crippled other European economies. So we have to get it right, and the measures in the Biosecurity Amendment Bill 2017 are aimed at doing just that: getting it right.

As another example, it is estimated that the result of a 12-month-long incursion of the wheat disease Karnal bunt would be a loss of $350 million. A national outbreak of citrus canker would result in a loss in the order of $400 million. There are any number of other possible pest or disease outbreaks that could have a crippling effect on our primary industries and the overall economy of New South Wales and Australia. That is why the Biosecurity Act 2015 was introduced. It provides a flexible and modern approach to the prevention, eradication and management of biosecurity risks here in New South Wales. The Biosecurity Act is not to be confused with the Biodiversity Conservation Act, which passed Parliament in November last year.

Extension of time

This amendment bill provides a suite of management tools that can be utilised to deal with biosecurity risk here in New South Wales. The key proposals in the bill include creating a head of power to allow the charging of fees for biosecurity certificates; allowing all legal entities, in addition to individuals, to be accredited as biosecurity certifiers and appointed as biosecurity auditors; ensuring that the issue of biosecurity certificates and the conduct of biosecurity audits is carried out by appropriately qualified individuals approved by the responsible accreditation authorities; permitting mandatory grounds for the suspension or cancellation of the accreditation of a biosecurity certifier, or of the appointment of a biosecurity auditor, to be prescribed in regulations; and providing for evidentiary certificates in respect of the National Livestock Identification System. These changes will ensure that current market assurance programs can continue and that strong governance and compliance arrangements are in place. This is extremely important. I acknowledge the great work of Niall Blair—even though he has been the Minister for Primary Industries for only a short time. []

What would be the impact if these changes to the Biosecurity Act were not made? I am sure this is of interest to all members currently in the Chamber—including the member for Wyong, who is nodding—and to others, including in particular our National Party colleagues. But it is also of concern to people in my electorate, who see this as an important issue even if we do not have a large farming sector. The Biosecurity Act 2015 would not be able to operate as efficiently and effectively as intended and a significant cost and red-tape burden would be imposed on the industry were the measures in this amendment bill not to pass. The governance and compliance arrangements that support market access would not be as strong as they should be and some of our markets could be compromised. We certainly do not want that. That is a view shared on both sides of the Chamber, and I believe the Opposition is supporting this bill.

Primary producers comprise the majority of the businesses that utilise Interstate Certification Assurance arrangements. Without the passage of the measures in this bill, there would be increased red tape for those certification businesses which would cost, it is estimated, over $300,000 per year. In addition, the cost of government biosecurity management services would not be recovered. Passage of this bill will allow fees to be charged to recover the cost of issuing biosecurity certificates as per current practice. That would be the cost of not passing this bill. Those of us on this side of the House see the importance of beefing up—pardon the pun—our biosecurity across the State. This bill contains important amendments to legislation that was only passed in 2015. Since that time we have seen the implementation of a whole range of strengthened biosecurity practices.

On behalf of the Government, therefore, I certainly support this legislation. As we have heard previous speakers say, improving biosecurity is important for our environment; for beef, wheat, cattle, wool, dairy and primary industry generally; and for the wider economy, including through direct employment. There are 90,000 people directly employed in primary industry in New South Wales. That number could probably be doubled—or even doubled again—to get an estimate of the number of people who are indirectly employed by primary industry. The economic cost of weeds to New South Wales is estimated to be $1.8 billion, a figure I found quite extraordinary. That does not even include the significant impacts on the environment and on social amenity, the costs of which have not been quantified. This is an important bill and I support it.

Mr GEOFF PROVEST (Tweed) (12:58:40):

I make a contribution to the debate on the Biosecurity Amendment Bill 2017. Biosecurity means protecting the economy, the community and, importantly, the environment from the negative impact of pests, diseases and weeds. The Biosecurity Amendment Bill includes several measures that ensure individuals and other legal entities will have clear and accountable roles, responsibilities and functions. With these amendments, the Act will be ready to deliver effective management of biosecurity risks to protect our biosecurity, our biodiversity, our distinctive ecosystems and the natural environment.

Pests, animals and weeds are among the biggest threat to biodiversity and the natural environment in New South Wales. Pests such as foxes, cats, rabbits and wild dogs are considered to be the primary cause of extinction for many of our native mammal species since European settlement. Pest animals also contribute to the decline of many other native animals, particularly birds and reptile species, and approximately 40 per cent of New South Wales threatened species. More than 1,650 exotic plants have become established in the wild and at least 300 of these weeds are highly invasive and a threat to our biodiversity.

This legislation is obviously important for the whole of New South Wales, but has special meaning for my electorate of Tweed. The Tweed is at the forefront in the battle against the cattle tick. There are fairly stringent controls on moving animals across borders, but unfortunately a number of years ago there was a cattle tick outbreak in my electorate. One of the few remaining local dairy farmers lost his entire breeding herd, which was worth about $280,000. A neighbour had let his property run down and then rented it to people who purchased a couple of cows from Queensland. The cows were not checked and brought in cattle ticks. It was devastating, and the young farmer never recovered. He and his wife had started manufacturing boutique cheese with their dairy herd. He is now off the land. I accompanied Department of Primary Industries [DPI] vets who examined the herd. I have run my hands around a cow's udder looking for cattle ticks. They are minute, but I assure members that they carry an incredible amount of poison.

In the past three or four months, the Queensland equivalent of the DPI discovered fire ants at Nerang. Nerang is about 20 kilometres north of the New South Wales border. Fire ants are prevalent in the suburbs of Brisbane and can be found further north but in the past three or four years they have been slowly and surely working their way south. The Queensland department took the action necessary to eradicate the fire ant nest, but the ants remain a great concern. That is why this legislation is so important. My constituents often visit the markets at Nerang. They might buy a lovely pot plant and inadvertently carry fire ants into New South Wales. A number of years ago the DPI discovered fire ants around the port of Botany. The department recently won an award for that discovery. I commend the department and thank its officers for keeping us safe.

Myrtle rust is another pest. On the Far North Coast there is a fairly substantial tea tree oil industry, and several plantations are located in my electorate. The oil is not just used in Australia; it recently achieved medical accreditation in Europe. I believe myrtle rust came to the Central Coast from South America. It was spread through a nursery and since then has affected the entire industry. It can have devastating effects. There have been several outbreaks in the Tweed but to date these have been contained through extreme vigilance. That why this Act is so important. I think the Tweed is the State's last barrier against the cane toad—although I know they have been found as far south as Sydney. Cane toads are in plague proportions in the Tweed—I refer not to Queensland State of Origin supporters but to the amphibians. Unfortunately, the Tweed also has a large population of camphor laurel trees. For those members who may not know about camphor laurels, once they get into your paddock—

Mr Mark Taylor:

You're shot.

Mr GEOFF PROVEST:

You are shot, because they keep coming up time and time again. They turn prime agricultural land into wasteland. We have been working on a proposition regarding camphor laurels, and I hope to see the relevant legislation amended. I can clear camphor laurel on my property, I can woodchip it and I can use it on my property. However, a cogeneration plant at Condong in my electorate has been seeking to burn camphor laurel chips to generate electricity, but unfortunately the Forestry Act as currently drafted does not permit this. I can chop down camphor laurel trees on my property but if I move the logs past my front gate they are deemed to be a forestry product and I must make an application to transport them. There is some red tape, but we have had discussions with the relevant Ministers and I am hopeful of a positive outcome. It would greatly enhance camphor laurel removal and eradication. The Tweed is blessed with five World Heritage listed national parks, including the Green Cauldron where camphor laurel and a number of other invasive plants have been discovered. National Parks and Wildlife Service officers do a good job, but it is pretty wild and woolly country and so the battle continues.

Believe it or not, the Tweed has a plague of wild dogs. This time last year some people were attacked on one of our beaches. Unlike other beaches in New South Wales, most Tweed beaches border either national parks or large bushland areas. I know that the department has been working to eradicate wild dogs, and I applaud James McTavish, the NSW Cross Border Commissioner, for his efforts to resolve the problem. The dogs come out of Queensland national parks and down the escarpments at the back of Cobaki and Piggabeen. I know that some significant attempts have been made on both sides of the border to contain them. Once these pests get a foothold, the effect on our agriculture and stock can be absolutely devastating.

Extension of time

As I said, about 300 weed species are highly invasive. A large number of weeds are escaped garden plants and many are now widespread. I compliment the Tweed Shire Council for its strong weed identification and eradication program but, more importantly, for being environmentally conscious. The council holds open days when it gives away native plants, such as lilly pillies, to local residents. Some 40 per cent of my constituents have lived in the Tweed for less than five years. They come to the area from Sydney, Melbourne or elsewhere and their knowledge of local invasive species—what is a weed and what is a nice plant—is often very limited. []

I appreciate the extension of time, Mr Temporary Speaker. I also appreciate the support of my colleagues. I am known as being 100 per cent for the Tweed, and I always get 100 per cent support from my colleagues. It makes me feel so good. Pest populations usually have high reproductive capabilities and can colonise new areas rapidly, recovering quickly after targeted control programs have concluded. The absence of natural predators and environmental control measures have often added to this impact. A perfect example of this is the disastrous impact of the cane toads, as I mentioned. They were brought into New South Wales in the 1930s. Cane toads have spread across the Northern Territory and Western Australia, and can now be found as far south as Port Macquarie and even Sydney and beyond. They compete with our native amphibians and produce a toxin that is deadly to reptiles.

Interestingly, the New South Wales Government is funding a revolutionary research program that aims to stop cane toads wiping out native predators such as the spotted-tailed quoll. By feeding native predators cane toad sausages laced with a nauseant, species such as lace monitors, land mullets, quolls and other reptiles learn to avoid the deadly toads. The veterinarians at the Currumbin Wildlife Sanctuary in Queensland have done great work with our native raptors in undertaking training and identification programs involving animals that are released into the wild. It is interesting to note that raptors have extraordinarily good memories. I recently watched one of the veterinarians feeding the cane toad laced sausages to birds. He said that he had repaired a sea eagle's wing five years ago and it still attacks him every time he goes near it. This is a valuable bill. I commend the Minister and his department, and praise them for their ongoing efforts to protect biodiversity in New South Wales.

Mr PAUL TOOLE (BathurstMinister for Lands and Forestry, and Minister for Racing) (13:10:53):

— In reply: The New South Wales Government supports a collaborative national approach to biosecurity risks because they are not restricted by jurisdictions or borders. The Commonwealth Government is responsible for keeping pests, diseases and contaminants out of Australia, but we all have a responsibility to work together to deal with them once they are here. The Commonwealth Government has enacted a new biosecurity Act that forms the basis of a more flexible and outcomes-based national biosecurity framework. New South Wales supports this legislation and will continue to work with the Commonwealth Government on its implementation. New South Wales, along with the Commonwealth and the other States and Territories, is a signatory to the Intergovernmental Agreement on Biosecurity and the three national emergency agreements dealing with the animals and plants and the environment that underpin them.

I thank all members for their contributions to this debate: members for Upper Hunter, for Terrigal, for Wollondilly, for Cootamundra, for Myall Lakes, for Tamworth, for Barwon, for Drummoyne, for Clarence, for Oatley, for Tweed, and for Cessnock. I also welcome the Opposition's support for this important bill. The Biosecurity Amendment Bill 2017 amends the Biosecurity Act 2015. The amendments were identified during the ongoing consultation process undertaken with key stakeholders. I thank the Biosecurity Advisory Committee for the work it has undertaken in this space, for the community information sessions it has held, for its meetings with various stakeholders, and also for alerting the Government to the need to make some minor amendments.

The purpose of the bill is to address a number of key, but minor, enabling provisions that were overlooked in the drafting of the original legislation. These amendments will ensure that business can be carried out efficiently while complying with national and State-based market assurance. Management arrangements to support risky activities can also be amended in line with new technologies and innovations. This is a sensible bill that has been introduced following close consultation with those who would be impacted if the amendments were not enacted. Biosecurity supports our economies, both State and regional, provides protection for our environment, and plays a key role in supporting our communities. Biosecurity is not an issue only for governments; it is a shared responsibility.

The Biosecurity Act and this bill provide the tools and powers to support a strong system. The Act will be supported by education and advisory material that will provide clear guidance about what people must do to prevent, eliminate and minimise biosecurity risks. I thank the Minister, the Hon. Niall Blair, for the incredible work he has done in this space, and his staff for the work they are doing to make a difference for the people of New South Wales. I commend the bill to the House.

TEMPORARY SPEAKER (Mr Bruce Notley-Smith):

The question is that this bill be now read a second time.

Motion agreed to.

Third Reading

Mr PAUL TOOLE:

I move:

That this bill be now read a third time.

Motion agreed to.