Draft report on the Intergovernmental Agreement on Biosecurity Review
Priorities for Australias biosecurity system
Priorities for Australias biosecurity system
June 2017
An independent review of the capacity of the national biosecurity system and its underpinning Intergovernmental Agreement
Wendy Craik, David Palmer and Richard Sheldrake
Commonwealth of Australia 2017
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Cataloguing data
Craik, W, Palmer, D & Sheldrake, R 2017, Priorities for Australias biosecurity system, An independent review of the capacity of the national biosecurity system and its underpinning Intergovernmental Agreement, Canberra.
ISBN: 978-1-76003-130-5 (print)
ISBN: 978-1-76003-131-2 (online)
Internet
Priorities for Australias biosecurity system is available at agriculture.gov.au/igabreview.
Contact
Department of Agriculture and Water Resources
Postal address GPO Box 858 Canberra ACT 2601
Telephone 1800 900 090
Web agriculture.gov.au
The views expressed in this report do not represent the views of the Australian Government. The Australian Governmentincluding the Department of Agriculture and Water Resources, their employees and advisersand the review panel members disclaim all liability, including liability for negligence and for any loss, damage, injury, expense or cost incurred by any person as a result of accessing, using or relying upon any of the information in this report to the maximum extent permitted by law.
Letter of transmittal
Agriculture Ministers Forum
Dear Ministers
In accordance with the reviews terms of reference, we are pleased to present to members of the Agriculture Ministers Forum Priorities for Australias biosecurity system, the final report of the independent review of the capacity of Australias biosecurity system and the underpinning Intergovernmental Agreement on Biosecurity (IGAB). While this report fulfils the commitment within the IGAB for a review of the agreement within five years, the report also explicitly addresses a range of issues pertinent to the broader national system, as provided for by the terms of reference.
Australias biosecurity system is an essential national assetits strength and effectiveness are paramount. This report provides findings, recommendations and advice on the priorities we believe will ensure an effective national system into the future. We strongly believe that adoption of the reports recommendations will assist all governmentsin partnership with other major system participantsto be better prepared for the significant, current and impending biosecurity challenges, including those brought about by the changing global biosecurity environment.
The IGAB has provided a significant foundation for further developing the national biosecurity system and the intergovernmental cooperation and relationships that underpin it. Nevertheless, this review has recommended changes for a refreshed intergovernmental agreement, including those which reflect the strengthened relationships and build on the substantial achievements since its first signing.
Separately, we have identified changes that would better reflect and acknowledge the critical roles of the many non-government stakeholders across the national system. There is ample opportunity for industries, community groups and others to realise a level of cooperation and relationship maturity comparable to that achieved by governments in recent years.
We commend governments willingness to review Australias biosecurity system and expose it to independent scrutiny. Regular periodic review is necessary to safeguard the national system, maintain confidence in its effectiveness and ensure its continuous improvement.
We record our appreciation for the efforts of many individuals, organisations and governments, and the considerable time and resources given to assist the review, including the provision of input, advice, research and written submissions, which have given the final report greater relevance and grounding.
Yours sincerely
Wendy Craik AM (Chair), David Palmer and Richard Sheldrake AM
Acknowledgements
The panel thanks the many stakeholders who contributed to the review, especially those who gave their time to make written submissions, participate in meetings during national consultation and other targeted discussions, or assist with research and advice. This includes representatives from the Australian, state and territory governments, the New Zealand Government, peak industry and community groups, researchers, businesses and other individuals. These contributions have proven valuable in providing us with a diverse range of views and insights into the issues we were requested to consider.
The panel acknowledges the professional support of the review secretariat from the Australian Government Department of Agriculture and Water Resources. The secretariat supported the panel in drafting, reviewing submissions, conducting additional research, liaising with stakeholders, arranging travel and meeting logistics, and more. Primary members of the secretariat were Barbara Jones, TimothyRobertson, JasonBakonji, GlennMcMellon, Teal Petri and Gloria Pantano; other departmental officers undertook specific tasks for the review. In particular, the panel would like to express its considerable gratitude to Barbara Jones, whose perceptive and thoughtful leadership of the secretariat added significantly to the quality and depth of analysis and conclusions.
The panel also appreciates the contributions made by Mr Russell Phillips and two independent reviewers who assisted the panel with their views and feedback on our draft and final reports.
The panel unanimously supports all of its recommendations and takes full responsibility for the views expressed.
ContentsLetter of transmittaliiiAcknowledgementsivSummaryviiRecommendationsxiAcronyms and abbreviationsxvii1Australias biosecurity system11.1Benefits of national biosecurity21.2An evolving system21.3Future risks and pathways61.4The 2012 IGAB102Knowing and owning our roles and responsibilities112.1Shared responsibility?112.2Greater ownership and participation142.3Improving communication and engagement172.4A National Biosecurity Statement193Market access is key253.1Biosecurity and trade253.2International exports263.3Domestic trade313.4Regulatory efficiency323.5Aligning the agendas344Stronger environmental biosecurity364.1The problem for governments374.2Views on environmental biosecurity404.3Governing for environmental outcomes434.4Institutionalising environmental biosecurity455Building the national system: pest by pest; disease by disease495.1Determining national priorities505.2Benefits and opportunities586Research and innovation606.1The key role of biosecurity R&I606.2Current state626.3Future-focused biosecurity R&I717Strengthening governance767.1A strong mandate767.2An empowered National Biosecurity Committee777.3Bringing others into the fold877.4Updated governance arrangements898Funding the national system918.1The shared funding challenge918.2Consideration of the three NBC projects listed in the terms of reference978.3Other guiding principles and frameworks1018.4How much is enough?1038.5Sustainable funding1088.6Summary1219Measuring system performance1239.1Valuing national biosecurity1239.2Performance measurement and reporting1249.3Informed biosecurity: data availability and management1299.4Smarter biosecurity: data analytics and intelligence13210A future system; a future IGAB13510.1A future system13510.2A future IGAB138Appendix A Terms of reference and links to the report155Appendix B Review panel biographies157Appendix C Public consultation158Appendix D Risk Return Resource Allocation model162Appendix E Biosecurity performance frameworks: national government examples163Appendix F Comparing industry and environmental preparedness165Glossary166References167
Summary
Australias biosecurity system is a trade and economic asset. It underpins $59billion in agricultural production, $45billion of agricultural exports and our $38billion inbound tourism industry. Equally, national biosecurity efforts protect human health and social amenity and help to maintain our unique, biodiverse, natural environments: the Australian Bureau of Statistics valued Australias environmental assets at over $6 trillion at 30 June 2016 (ABS 2017).
Our national biosecurity system does not exist as a single physical or legal entity. It is built on shared responsibilitythe cooperation, investment and actions by all governments, industry bodies, exporters and importers, farmers, miners, tourists, researchers and the broader community. For governments, the sharing of responsibility occurs through a cooperative partnership under the Intergovernmental Agreement on Biosecurity (IGAB
