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ENVIRONMENT AND NATURAL RESOURCES COMMITTEE

INQUIRY INTO VETERINARY PATHOLOGY SERVICES

DISCUSSION PAPER

March 2002

INQUIRY INTO VETERINARY PATHOLOGY SERVICES DISCUSSION PAPER

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SUBMISSIONS ARE INVITED

The Committee welcomes written submissions in response to the issues raised in the Discussion Paper or on any matter related to the

Terms of Reference of the Inquiry.

To assist interested parties in making submissions a number of questions have been posed throughout the Discussion Paper.

Details of how to make a submission are included in the insert. Note that the Committee requires all submissions to be signed, hard-copy originals.

Please take up the opportunity to make a written submission.

Send all submissions to: Veterinary Pathology Services Inquiry

Environment and Natural Resources Committee Level 8, 35 Spring Street Melbourne, Victoria 3000

THE CLOSING DATE FOR SUBMISSIONS IS 22 MAY 2002

The Committee acknowledges its appreciation to those who have contributed to the development of this Discussion Paper. The report was drafted by Ms Natalie Baran, with assistance from Mr Brad Miles. Administrative support was provided by Ms Marion Pilley. Cover design was by Geronimo Creative Services Pty. Ltd., with assistance from Dr Robin Condron. The cover photographs were provided by the Victorian Institute of Animal Science. Printing was by Mercury Printeam.

Environment and Natural Resources Committee (2002) Inquiry into Veterinary Pathology Services – Discussion Paper ENRC, Parliament of Victoria.

ISBN: 0 7311 5518 1

Environment and Natural Resources Committee Level 8, 35 Spring Street Melbourne, Victoria 3000 Telephone: (03) 9651 3533 Facsimile: (03) 9651 3637 E-mail: [email protected] Website: http://www.parliament.vic.gov.au/enrc

© State of Victoria


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ENVIRONMENT AND NATURAL RESOURCES COMMITTEE

MEMBERS

Mr George Seitz, MLA, Chairman

Hon. Graeme Stoney, MLC, Deputy Chairman

Mr Hugh Delahunty, MLA

Ms Joanne Duncan, MLA

Mrs Christine Fyffe, MLA

Ms Jenny Lindell, MLA

Hon. Bob Smith, MLC

FUNCTION

Extract of the Parliamentary Committees Act 1968:

Section 4EA: The functions of the Environment and Natural Resources Committee are to inquire into, consider and report to Parliament on –

a) any proposal matter or thing concerned with the environment;

b) any proposal matter or thing concerned with natural resources;

c) any proposal matter or thing concerned with planning the use, development or protection of land –

if the Committee is required or permitted so to do by or under this Act.


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INQUIRY TERMS OF REFERENCE

Parliamentary Committees Act 1968

REFERRAL OF MATTER TO THE ENVIRONMENT AND NATURAL RESOURCES COMMITTEE

“The Lieutenant Governor as the Governor’s deputy with the advice of the Executive Council, under section 4F of the Parliamentary Committees Act 1968, refers to the Environment and Natural Resources Committee of Parliament for inquiry, consideration and report to the Parliament, the following matter relating to the adequacy and effectiveness of existing veterinary pathology services to:

a) assess the current and future requirements of the Victorian livestock industries, government and veterinarians for veterinary pathology services;

b) assess the adequacy and effectiveness of current veterinary pathology services (within the Department of Natural Resources and Environment and externally) to support the Department’s animal health programs and to meet the needs of the Victorian livestock industries;

c) make recommendations on the effective arrangements for provision of veterinary pathology services to meet the future needs of the Victorian livestock industries; and

d) to report by 31 October 2001”.*

Referred to the Environment and Natural Resources Committee by Order in Council of Tuesday, 20 March 2001, as gazetted on Thursday, 22 March 2001.

The Committee resolved to commence the Inquiry on 18 February 2002.

* A revised reporting date for the Inquiry is being negotiated.


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TABLE OF CONTENTS

Environment and Natural Resources Committee.................................................iii

Inquiry Terms of Reference ................................................................................. iv

Summary .............................................................................................................. vi

1. Introduction ................................................................................................... 1

2. The Role of Veterinary Pathology Services.................................................. 3

3. Development of Veterinary Pathology Services in Victoria......................... 8

4. Animal Health Needs of Livestock Industries ............................................ 11

5. Animal Health Needs of Other Sectors....................................................... 17

6. Commonwealth Roles and Responsibilities................................................ 21

7. Victoria’s Animal Health Program ............................................................. 26

8. Provision of Veterinary Pathology Services ............................................... 30

9. Future Directions......................................................................................... 37

References ........................................................................................................... 39

Endnotes .............................................................................................................. 42


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SUMMARY

1. The Inquiry is subject to defined Terms of Reference. 2. The veterinary pathology service sector has undergone major restructure over the past 10

years. 3. The Inquiry will focus on the provision of pathology services to the livestock sector. 4. Diagnosis of disease often relies on laboratory-based analysis. 5. Laboratory-based pathology services are an integral part of animal health programs. 6. Veterinary pathology laboratories have a key role in emergency responses to disease

outbreaks. 7. Development of new disease diagnostic techniques is primarily undertaken by public

sector veterinary pathology laboratories. 8. The demand for analytical services is increasing. 9. Prior to 1994, government veterinary pathology laboratories provided the bulk of services

required by the State’s livestock industries. 10. Veterinary pathology laboratories are now a mix of public and private sector operations,

with facilities of both sectors largely centralised. 11. Victorian livestock industries are significant contributors to the Victorian economy. 12. Victorian livestock industries rely on high standards of animal health – outbreak of

disease can have devastating economic effect. 13. Producers require assurance that the State has the capacity to deal with a major outbreak

of disease. 14. Emerging sectors, such as aquaculture, will require the providers of veterinary diagnostic

services to acquire new areas of expertise. 15. Livestock pathology services may increasingly need to prove the absence of disease, as

well as continue their more traditional role of supporting disease control programs. 16. The horse racing industry is a major user of specialist pathology services. 17. Amateur collectors and enthusiasts not only require access to disease diagnostic services,

but may in fact hold specialised knowledge. 18. Public zoos and sanctuaries require and provide specialised disease diagnostic services. 19. Knowledge of native wildlife diseases is poor; the availability of relevant diagnostic tests

even poorer. 20. The Commonwealth’s Australian Quarantine and Inspection Service works with State

agencies to deliver national quarantine services. 21. The accuracy of laboratory diagnostic test results relies on a system of national standards

and accreditation. 22. The Livestock Disease Control Act 1994 and the Livestock Disease Control Regulations

1995 provide the legal basis for the State’s animal health programs. 23. Victorian animal health programs involve co-operation between livestock producers, the

private veterinary sector and State and Commonwealth government agencies. 24. Animal health programs must be underpinned by good science. 25. Identification of the presence of disease and of the disease agent is a fundamental

requirement of animal disease emergency response. 26. The Victorian Institute of Animal Science provides core veterinary pathology expertise for

the State of Victoria. 27. The private company, Gribbles Veterinary Pathology, is one of the State’s major suppliers

of veterinary pathology services.


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1. INTRODUCTION

THE REQUIRED TASK AND PROCESS

The Inquiry is subject to defined Terms of Reference.

1.1 The Inquiry is being undertaken by the Environment and Natural Resources Committee of the Parliament of Victoria in response to Terms of Reference referred by the Governor-in-Council under the Parliamentary Committees Act 1968. The Terms of Reference are included on page iv.

1.2 The following process has been adopted for the Inquiry: a) advertise the Terms of Reference; b) prepare and publish a discussion paper; c) call for written submissions; d) undertake inspections; e) conduct hearing/s; f) assess evidence; g) prepare Inquiry report; and h) table Inquiry report in the Parliament and publish.

1.3 The Minister who has portfolio responsibility for the matter addressed by the Inquiry replies to the Committee’s recommendations. The Minister has six months from the date of the report being tabled in which to reply. The Minister can accept, reject or modify the Committee’s recommendations.

BACKGROUND TO THE TASK

The veterinary pathology service sector has undergone major restructure over the past 10 years.

1.4 Under the Australian Constitution, the Commonwealth Government is responsible for quarantine and international health matters while the State governments are responsible for disease control and eradication within their own boundaries.1 In Victoria, this responsibility lies with the Chief Veterinary Officer Unit and the Animal Health Operations Branch of the Department of Natural Resources and Environment.2

1.5 Veterinary laboratories conduct pathology services that are critical for the identification of endemic and exotic disease at a State level. They also contribute to animal health programs at a national level.3

1.6 Prior to 1994, the former Department of Agriculture (now Department of Natural Resources and Environment) provided veterinary pathology services to


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the livestock industries from four regional veterinary laboratories – in Bairnsdale, Benalla, Bendigo and Hamilton – as well as the Victorian Institute of Animal Science (VIAS) at Attwood.4

1.7 In 1994, the Department of Agriculture contracted a private company to operate the four regional veterinary laboratories and to be the preferred supplier of veterinary pathology services to the Government. In 1996, the Department initiated another tender process, with the successful tenderer operating from their own pathology laboratories. Consequently, the previous supplier ceased operations and dismissed all staff at the regional veterinary laboratories. 5

1.8 In Victoria there are currently both public and private veterinary laboratories servicing the animal pathology needs of government and industry.

1.9 This Inquiry was referred to the Environment and Natural Resources Committee in accordance with a pre-election policy commitment of the Bracks Government to inquire and report on the adequacy and effectiveness of existing pathology services.6

SCOPE OF INVESTIGATION

The Inquiry will focus on the provision of pathology services to the livestock sector.

1.10 The Inquiry will review current and previous arrangements for veterinary pathology services but the emphasis of the recommendations will be on identifying arrangements that can effectively meet the future animal health needs of Victoria’s livestock industries.

1.11 Livestock is defined in this Inquiry to encompass all animals farmed, including bees, fish and birds, to provide food or other animal products.7

1.12 The Inquiry will focus on laboratory-based veterinary pathology services required for animal health in Victoria. Particular attention will be given to the requirements of livestock industries and the animal health programs of government. However, the needs of non-agricultural animal sectors will be considered. These sectors include horse and greyhound racing, pets and companion animals, amateur collectors and enthusiasts, laboratory animals, zoos and aquaria, domestic pets and wildlife.

THE DISCUSSION PAPER

1.13 The purpose of this Discussion Paper is to assist those wishing to make submissions to the Inquiry. It provides background information on the development of veterinary pathology services in Victoria to the present arrangement and it highlights some of the key issues affecting animal health in Victoria. The Discussion Paper puts forward a range of discussion points on which the Committee is particularly interested in obtaining feedback.


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Submissions can, however, address any issue related to the Terms of Reference, whether specifically raised in the Discussion Paper or not.

2. THE ROLE OF VETERINARY PATHOLOGY SERVICES

WHAT IS VETERINARY PATHOLOGY?

Diagnosis of disease often relies on laboratory-based analysis.

2.1 Pathology is essentially the search for and the study of lesions, the abnormal structural and functional changes that occur in the body.8 Such departure from normal function can result in the condition of disease. Infectious agents such as viruses and bacteria produce the most dramatic and contagious diseases. Other important disease factors include heredity, nutrition, parasitism, accident and injury and environmental stress.9

2.2 Pathology involves the study of cells, tissues, organs and bodily fluids and is the link between basic sciences and clinical studies. Pathology requires the knowledge and techniques of anatomy and physiology and this divides the discipline into anatomic pathology (the study of structural abnormalities) and clinical pathology (the study of functional abnormalities).

2.3 Veterinary pathology requires knowledge of the normal development of an individual animal as well as normal biological variation, particularly the expected differences due to age and species.10

2.4 In any particular disease investigation, samples may be subject to a range of specialist tests to enable a veterinary pathologist to provide advice on the likely cause of the disease.11 Some of the specialist disciplines in veterinary pathology include:

a) gross pathology (seen with the naked eye); b) histological pathology (microscopic); c) microbiology – to determine bacterial and fungal causes of disease; d) virology – to identify viruses causing disease; e) serology – blood testing to detect the presence of disease; and f) parasitology – identifying parasitic causes of disease.

VETERINARY PATHOLOGY SERVICES

2.5 In general, referrals to a veterinary pathology laboratory for particular tests come from private veterinary practitioners and government veterinary officers acting on behalf of a client. Clients may include individual farmers, animal industry bodies, government, pet owners, zoos, animal breeders and


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performance-animal owners. Animal and biomedical research organisations are also a significant user of veterinary pathology services.

2.6 Veterinarians refer pathology samples to laboratories for the following reasons:

a) they are employed to collect pathology samples for random or targeted animal disease monitoring programs;

b) they have been called upon to inspect a sick or dead animal, have made a diagnosis based on clinical signs and now need their suspicions confirmed by pathology testing; and/or

c) the general health or fitness of an animal requires investigatory pathology testing.

2.7 Veterinarians undertake gross pathology services to relate observed symptoms to the key signs of animal disease. Laboratory-based pathology services provide veterinarians with the diagnostic support needed to confirm the presence or absence of suspected animal diseases. Therefore a large proportion of diseases, whether suspect or real, require pathology testing for confirmation or exclusion.

2.8 The services provided by veterinary pathology laboratories can be summarised as follows:

a) general health diagnostics; b) emergency animal disease diagnostics; c) research and training; d) monitoring and reporting of disease; and e) analytical services.12

GENERAL HEALTH DIAGNOSTICS

Laboratory-based pathology services are an integral part of animal health programs.

2.9 Veterinary pathology laboratories conduct a wide range of diagnostic and investigative tests, including:

a) post-mortem investigations for causes of animal death; b) the diagnosis of infectious animal diseases; c) tests for metabolic function; d) toxicology testing; e) analysis of nutritional deficiencies; f) tests for parasitism; g) genetic testing for animal breeders; h) health certification of disease-free status for the import and export of live

animals or animal reproductive products; and


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i) general health and fitness (in, for example, performance animals such as race horses).

EMERGENCY ANIMAL DISEASE DIAGNOSTICS

Veterinary pathology laboratories have a key role in emergency responses to disease outbreaks.

2.10 In the event of an animal disease emergency, government and private veterinary laboratories play an important role in providing diagnostic testing and notification as expeditiously as possible. An emergency animal disease includes all diseases exotic to Australia as well as certain emerging (new) and endemic diseases.

2.11 In the event of an animal health emergency in Victoria, the Department of Natural Resources and Environment’s Victorian Institute of Animal Science (VIAS) at Attwood and the CSIRO’s Australian Animal Health Laboratory (AAHL) in Geelong are the principal veterinary pathology laboratories that contain the diagnostic capability to quickly diagnose exotic and emerging animal diseases.

2.12 The Agriculture and Resource Management Council of Australia and New Zealand has developed a co-ordinated national response for the control and eradication of emergency animal diseases – known as the Australian Veterinary Emergency Plan (AUSVETPLAN).13

2.13 The scientific, logistic and managerial resources necessary for both the preparation of a contingency plan and the operation of a laboratory in the event of an animal disease emergency is set out in the AUSVETPLAN Management Manual on Laboratory Preparedness.14 This manual provides information about the responsibilities of laboratories with respect to the:

a) notification of the suspected exotic disease or unusual disease incident to the Chief Veterinary Officer;

b) availability of laboratory expertise for the initial diagnosis; c) activation of the laboratory contingency plan; d) secure laboratory facilities; e) staff resources; and f) co-ordination of laboratory activities with the activities of the State and

Commonwealth governments.15

2.14 The manual also provides information regarding lines of communication, staff training, establishing an exotic disease laboratory, microbiological security, cleaning and decontamination, handling of specimens and transport of specimens.16


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2.15 Other AUSVETPLAN information resources that are relevant to the operations and preparedness of veterinary laboratories in an animal disease emergency include diagnostic and training resources.17 There are currently 25 Disease Strategy manuals for emergency diseases of terrestrial animals covered by AUSVETPLAN. These cover the nature of the disease (including clinical signs, lesions and methods of diagnosis), principles of control and eradication, policy and rationale and other procedural matters. An exotic disease field guide for veterinarians has been developed for terrestrial animals.18

2.16 The national coordinating Fish Health Management Committee has developed several components of the Aquatic Animal Disease Veterinary Emergency Plan (AQUAVETPLAN).19 This builds on the various AUSVETPLAN guidelines but contains additional strategies that are specific to aquatic animal health. Currently there is one Disease Strategy manual for aquatic animals covered by AQUAVETPLAN. A field guide for identifying Australian aquatic animal diseases has been developed.20

RESEARCH AND TRAINING

Development of new disease diagnostic techniques is primarily undertaken by public sector veterinary pathology laboratories.

2.17 Development of new disease diagnostic techniques and the improvement of existing techniques is predominantly the domain of the national (and international) network of government and university veterinary laboratories.

2.18 The Infectious Diseases and Food Safety research program at the Australian Animal Health Laboratory aims to enhance Australia’s disease control capacity by improving the understanding of viral, bacterial and plant poisoning disease processes and mechanisms of disease control in livestock. Research in the program focuses on viral and bacterial diseases and the development of technologies to improve diagnostic tests and vaccine performance.21 Current research programs include:

a) The avian virology project – the investigation of specific bird disease viruses and the development of vaccines and improved diagnostic tests.

b) The Johne’s disease project – aims to develop more sensitive diagnostic tests for Johne’s disease that can be used to detect infected animals at an earlier stage of the infectious process. The work is also identifying bacterial proteins that could be used for a safer, more effective vaccine.

c) The protein biochemistry group – is developing and implementing new technologies for the identification, purification and characterisation of viral and bacterial proteins for the development and improvement of diagnostics, and vaccine development. There is an emphasis on new and emerging diseases and their diagnosis.

d) The epitope application project – is developing diagnostic systems with applications to Hendra virus and Japanese encephalitis virus.


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e) The plant toxins group – is involved in the development of accurate and sensitive methods for the detection of plant toxins. 22

2.19 At the Victorian Institute of Animal Science the Department of Veterinary Investigations conducts research on evaluating and improving diagnostic tests that are focused on endemic animal disease. Recent research programs have included the development of new diagnostic technologies for Johne’s disease and Ross River virus.

2.20 Government veterinary laboratories also act as national reference laboratories for various animal diseases. The Australian Animal Health Laboratory is the national reference laboratory for the diagnosis and control of exotic animal diseases, such as foot-and-mouth disease and rabies.23 National reference laboratories have been formalised at State/Territory laboratories for Johne’s disease (Victorian Institute of Animal Science), anthrax (Elizabeth Macarthur Agricultural Institute, New South Wales) and tuberculosis (Animal Health Laboratories, Western Australia).24 In addition, some laboratories provide an informal national service for specific pathogens because of their particular expertise. For example, the Animal Research Institute, Queensland, is recognised for its expertise in respiratory pathogens of intensively managed livestock, while the Elizabeth Macarthur Agricultural Institute has particular expertise in pestiviruses.25

2.21 Nationally accepted standardised procedures for conducting diagnostic tests that are aligned with minimum international standards are approved by the Subcommittee on Animal Health Laboratory Standards,26 and published by CSIRO.27

2.22 Another important function of government laboratories is the education and training of visiting scientists from overseas and undergraduate veterinary students in the conduct of these tests.28

MONITORING AND REPORTING OF DISEASE

2.23 Under the Livestock Disease Control Act 1994, the owner or person in charge of a veterinary laboratory must immediately report an exotic disease, whether suspect or confirmed, to a livestock inspector of the Department of Natural Resources and Environment. Other ‘notifiable diseases’29 must also be reported to an animal health inspector of the Department within a prescribed timeframe. According to the Act, failure to notify is a criminal offence.

2.24 The databases of veterinary pathology laboratories contain vital statistical information that can be used to report on the status of animal health at a regional, State and national scale. The ability to report on animal health status in a timely and accurate manner supports trade in animal commodities and helps Australia to meet its international reporting obligations.30


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2.25 Statistical information from veterinary pathology laboratories is fed into the National Animal Health Information System, a dynamic database maintained by Animal Health Australia.31 This database contains various animal health information and statistics and is published via the Web.

ANALYTICAL SERVICES

The demand for analytical services is increasing.

2.26 The analytical services provided by some veterinary laboratories and other analytical laboratories include tests to recognise unwanted chemical residues in animals and animal products. These have become particularly important since 1987, because the livestock industries have had to respond rapidly to incidents involving dieldrin, DDT, antibacterials and chlorfluazuron.32 These chemical agents have created community concern with respect to food safety or adverse environmental impacts and have also threatened access to valuable international markets.

DISCUSSION POINTS

Q2.1 Do private laboratories foster research activities in veterinary pathology? If not, should they?

Q2.2 Are there adequate reporting protocols in place for laboratories to supply statistical information to Victoria’s Chief Veterinary Officer?

3. DEVELOPMENT OF VETERINARY PATHOLOGY SERVICES IN VICTORIA

3.1 Currently in Victoria both public and private laboratories provide veterinary pathology and other diagnostic services to the State’s livestock industries. The past decade has seen a major shift in the provision of routine veterinary laboratory services for the livestock industry, from several regionalised State-owned laboratories to privately owned companies, with most pathology services now undertaken at a private laboratory in Melbourne.

ARRANGEMENTS PRIOR TO 1994

Prior to 1994, government veterinary pathology laboratories provided the bulk of services required by the State’s livestock industries.

3.2 Prior to July 1994, veterinary pathology services in Victoria were largely provided to the livestock industry by the former Department of Agriculture. The laboratory network included the Victorian Institute of Animal Science (VIAS) in


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Attwood and four regional veterinary laboratories in Bairnsdale, Benalla, Bendigo and Hamilton. The regional veterinary laboratories were established in the mid-1970s to provide diagnostic support for the bovine brucellosis and tuberculosis eradication campaigns and diagnostic services to Victoria’s livestock industries.33

3.3 Initially, the regional veterinary laboratories conducted diagnostic testing and analysis as a free service, but by the early 1990s many of its services were increasingly provided on a fee-for-service basis. Pathology testing for animals suspected of carrying a ‘notifiable disease’, however, remained free.34

3.4 As the major provider of veterinary pathology services, the government laboratories were able to build up a general picture of the health of the State’s livestock industries and had the data to monitor trends of disease distribution and prevalence.

3.5 The Victorian Institute of Animal Science facilities complimented the CSIRO’s Australian Animal Health Laboratory (AAHL) located in Geelong (established in 1985) and the laboratory facilities of the University of Melbourne’s School of Veterinary Science at Werribee and Parkville.

DEVELOPMENTS BETWEEN 1994 AND 1996 3.6 A change of government in 1992 led to new arrangements being put into place for the provision of veterinary pathology services. In July 1994, following a tender process, the former Department of Agriculture awarded a private company, Centaur International Pty Ltd, a contract to operate the four former regional veterinary laboratories and to be the preferred supplier of veterinary pathology services to the Government.

3.7 The Department continued to operate specialist veterinary pathology services at the Victorian Institute of Animal Science.

3.8 In 1996, the Government initiated another tender process and Victorian Veterinary Pathology Services (now Gribbles Veterinary Pathology) became the preferred supplier of veterinary diagnostic services from November 1996. This contract did not include the operation of the former regional veterinary laboratories, since the company proposed to run their diagnostic services from their own pathology laboratories.

3.9 No longer holding the contract as the preferred State supplier, Centaur International ceased operations and dismissed the staff at the regional veterinary laboratories in October 1996.

3.10 Records of ‘notifiable disease’ were still required to be lodged with the Department, although government access to data of diagnoses of other diseases


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became subject to client confidentiality relationships with the new private providers.

MORE RECENT DEVELOPMENTS

Veterinary pathology laboratories are now a mix of public and private sector operations, with facilities of both sectors largely centralised.

3.11 The contract to supply routine veterinary pathology services to the Department of Natural Resources and Environment is currently held by Gribbles Veterinary Pathology. The Victorian Institute of Animal Science continues to provide specialist veterinary pathology services.

3.12 The four regional veterinary laboratories have been retained as post-mortem facilities but have lost their former capacity as a fully functional veterinary laboratory. The Department owns three sites and one site, Hamilton, is now owned by RMIT University, but with a long-term lease for the post-mortem area arranged. In the event of an emergency disease, the former regional veterinary laboratories may be used as facilities for preparing and despatching samples for transport to other laboratories. The former regional veterinary laboratories may also be used to do some basic testing.35

3.13 Technological advancement in laboratory instrumentation has changed dramatically over the past few decades, driven by innovations in biomedical science. There is now a high degree of automation for many test procedures, reducing the level of repetitive and labour-intensive work, the level of human error and the time taken to get results. Larger, more centralised, commercial laboratories have taken advantage of such technology.

3.14 Advances in technology have, however, also allowed for basic pathology testing to be undertaken by veterinarians in-house, using automated systems.36 In particular, some of the larger regional veterinary practices perform such in-house pathology testing.

3.15 Smaller, stand-alone veterinary pathology services have also been established, including those operated by staff of the former government veterinary laboratories.

DISCUSSION POINTS

Q3.1 Has the centralisation of veterinary pathology services affected the accessibility and/or timeliness of services to regional Victoria?

Q3.2 Has the outsourcing of veterinary pathology services eroded the surveillance capacity of government (and indeed industry) for establishing trends of disease distribution and prevalence?


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Q3.3 Are fewer post-mortems being undertaken than in the past? If so, does this have an implication for animal health? Q3.4 Currently the regional veterinary laboratories provide stand-by facilities for animal health emergencies and are occasionally used for veterinary post-mortem examinations. Could they be better utilised or should alternative arrangements be put in place?

4. ANIMAL HEALTH NEEDS OF LIVESTOCK INDUSTRIES

IMPORTANCE OF LIVESTOCK INDUSTRIES

Victorian livestock industries are significant contributors to the Victorian economy.

4.1 Victorian livestock industries are significant contributors to the Victorian economy through domestic and export markets. As shown in Table 4.1, the gross value of livestock slaughterings and other disposals (cattle, sheep, pigs and poultry) was $2,032 million during the 2000-01 financial year, while the gross value of livestock products (wool, milk and eggs) was $2,581 million. By way of comparison, the Gross State Product for 2000-01 was $164,365 million.37

Table 4.1: Gross value of livestock slaughterings and livestock products in Victoria, 2000–2001

COMMODITY VALUE ($ million)

Livestock slaughterings and other disposals Cattle and calves 1079.8 Sheep and lambs 474.0 Pigs 191.2 Poultry 281.2

Livestock products

Wool 495.5 Milk 1987.7 Eggs 89.0

Source: Australian Bureau of Statistics (2001b). Note: Statistics are preliminary estimates, some are based on sampling.

4.2 In Victoria, meat and live-animal exports increased by 27 per cent from the previous year to reach $1.1 billion in 2000-01, marking the first time meat exports topped $1 billion.38 The beef industry produces the most important meat product in terms of volume and value and exports of beef increased by 33 per cent, to $580.8 million. Prime lamb has developed into a major industry and in


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2000–01 it was worth $372.8 million in export value, an increase of 48 per cent from the previous financial year.39 Substantial increases in live-animal exports have also been recorded for 2000–01, up 65 per cent from the previous year, to reach $82.4 million.

4.3 Over the past decade, poultry exports have been steadily increasing and in 2000–01 these were worth $12.4 million (up 20 per cent from the previous year). There was a decrease in exports recorded for pork, animal casings and other animal products (which include tripe, guts, fats, tallow, etc.) in 2000–01.40

4.4 The Victorian dairy industry is a very important export market and accounts for 15 per cent of total world trade in dairy products. Exports in 2000 increased by 26 per cent, to $2.3 billion.41

4.5 Victoria is the largest exporter of wool products nationally. In 2000–01, exports increased by 36 per cent from the previous year, to $352 million.

4.6 Other forms of primary production that use veterinary services include fisheries and aquaculture and bee keeping. Aquaculture is one of Australia’s fastest-growing primary industries – in Victoria alone the fish-farming industry was worth nearly $19 million in 1999–2000.42 Other specialised rural industries showed export growth in 2000–01: goat meat ($11.4 million, up 52 per cent), live horses ($37.0 million, up 28 per cent) and honey and beeswax ($10.0 million, up 10 per cent).43

ANIMAL HEALTH

Victorian livestock industries rely on high standards of animal health – outbreak of disease can have devastating economic effect.

4.7 The long-term profitability and competitiveness of livestock industries depends on maintaining high standards of animal health to ensure the provision of high-quality food and fibre products, greater employment and increased income.

4.8 Animal health is essentially a matter of ensuring the absence of disease. The maintenance of animal health is achieved by applying good farming practices that relate to animal husbandry, nutrition, welfare, on-farm biosecurity, and disease surveillance and control.

4.9 Veterinary pathology services make an important contribution to the maintenance of animal health through their role in disease surveillance and control programs.

4.10 Currently the health of Australia’s flocks and herds is at a high standard and the eradication of three important cattle diseases over the last three decades


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has enhanced Australia’s animal disease status.44 Our disease status is regularly reported to the World Organisation for Animal Health.45

4.11 High health status underpins Victoria’s and Australia’s ability to compete for high-quality export markets.

IMPACT OF DISEASE

4.12 The outbreak of a disease can have a devastating economic effect on farm income and Victoria’s domestic and export markets. For example, it has been estimated that if foot-and-mouth disease established in Australia, export earnings of $8.9 billion would be lost in the first year.46

4.13 The identification of disease has disrupted the export trade of live sheep to the Middle East. Disruptions have occurred several times in the past decade when the importing country identified scabby mouth in the sheep.

4.14 Disease outbreaks and unsafe levels of chemical residue can destroy consumer confidence in food safety and this can severely impact on domestic and export food markets. For example, the recent finding of a single cow with bovine spongiform encephalopathy (BSE) in Japan led to a drop of up to 70 per cent for beef sales at major supermarkets in Japan. The cost to Japanese farmers, retailers and restaurants was estimated at $3.11 billion.47 Despite being internationally recognised as having the lowest BSE risk level, the Australian beef industry suffered a 25 per cent reduction in export to Japan during this time.48

4.15 Quality assurance issues, either real or perceived, are important for trade access.

4.16 A disease outbreak also carries a huge social impact that extends to farming families and their communities. The personal effects include trauma and stress, diminished self-esteem, stigmatisation, sense of failure, isolation and community dysfunction.49

RESPONDING TO DISEASE

Producers require assurance that the State has the capacity to deal with a major outbreak of disease.

4.17 In the case of a disease outbreak, livestock industries need: a) to be able to recognise the key signs and early symptoms of disease; b) to obtain immediate access to a veterinarian for advice and the timely

collection and despatch of pathology samples to a veterinary laboratory for diagnosis;

c) to apply immediate quarantine and on-farm biosecurity measures while awaiting confirmation of the pathology test results;


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d) timely diagnostics that are accurate and are communicated immediately; e) accurate trace-forward and trace-back analysis to implement wider

quarantine measures f) the ability to distinguish between areas that are disease free; and g) appropriate disease eradication and control measures to be implemented.

4.18 Early recognition of an animal disease may prevent widespread transmission and save livestock industries and the Victorian and Commonwealth governments great expense. Veterinary practitioners are generally the first to recognise the key signs of an exotic or notifiable disease, take pathology test samples and notify the Government. Consequently, it is important that livestock producers and other animal handlers (such as stock agents and abattoir workers) make early contact with a veterinary practitioner.50

4.19 The control of infectious stock diseases often relies on laboratory-based diagnostic testing. For example, the control programs for bovine brucellosis and bovine tuberculosis relied on a suite of diagnostic blood tests as part of a ‘test and cull’ strategy. The control programs concluded with the eradication of the disease from Australia in 1990 and 1997, respectively. According to a former research veterinarian, the thoroughness of laboratory-based testing undertaken through the eradication campaigns was vital to their success.51

4.20 Control of ovine Johne’s disease also relies heavily on laboratory-based diagnostic testing, as well as laboratory-based research into improved diagnostic tests and potential vaccines, cross-infection research, mapping of genomes of the various strains of the bacterium that causes the disease, and so forth.52

4.21 The livestock producer needs to be confident that the State has the resources to deal with a major outbreak of disease – in terms of facilities, expertise and personnel. Producers also require authoritative advocates to respond to market concerns about allegations of diseases that are not based on reality.

4.22 Livestock markets also require certification of the disease-free status of stock, a service that some veterinary pathology laboratories are able to provide.

THE NEEDS OF NON-TRADITIONAL LIVESTOCK SECTORS

Emerging sectors, such as aquaculture, will require the providers of veterinary diagnostic services to acquire new areas of expertise.

4.23 In recent years there has been a growing interest by farmers, investors and others in the so-called ‘new rural industries’. These industries include an array of livestock enterprises based on non-traditional animals. Animals now farmed include alpacas; cashmere, angora and dairy –goats; deer; emus;


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ostriches; and water buffalo.53 Aquaculture production is of increasing importance.

4.24 The emu is well suited to domestication and farming under Victorian conditions, with a strong base of breeding stock held in closed-cycle breeding enterprises. A diverse array of products (including meat, oil and leather) is produced from emus, although the supply of all emu products currently exceeds demand and the industry faces competition from imported emu products. In general, the industry is dominated by small ‘farm to market’ enterprises, with little specialisation.54 There is only “limited information available on the birds’ … potential disease problems”,55 but they are known to be susceptible to a bacterial disease, erysipelas, associated with periods of stress in young, growing birds.56

4.25 Aquaculture involves the farming of aquatic animals (and plants) in open waters as well as in farm ponds and purpose-built tanks. In Victoria, species grown include mussels, abalone, trout, freshwater native fin fish, eels and yabbies. There are currently 35 trout licence holders who produce about 1,500 tonnes annually. Some 10 tonnes of yabbies are produced each year, with 1,000 tonnes of mussels produced, and production of aquaculture abalone is worth $8–10 million annually.57 In 1999–2000, aquaculture production from all industry sectors exceeded 2,600 tonnes, which was estimated to be worth about $17 million.58

4.26 “Maintaining healthy stock is essential to success in aquaculture”.59 Most fish disease is caused by parasitic animals, plants, fungi, viruses or bacteria. Aquaculture faces special difficulties in comparison with land-based industries because of the comparatively low unit value of fish. Individual fish farmers can readily undertake management activity to prevent infection, but once an infection becomes established, “there is little an aquaculturalist can do without outside help”.60 If stock starts dying in great numbers on a regular basis, a handbook on fish farming advises that:

Farmers in this plight should contact their state fisheries agency or the nearest government veterinary laboratory and ask for a vet skilled in aquaculture.61

4.27 The Victorian Government is promoting aquaculture – the 1998 ‘Victorian Aquaculture Strategy’ sought to double the value of production within three years.62 Quality assurance is vital to the industry, with product standards maintained through the ‘Victorian Shellfish Quality Assurance Program’. Promotional material produced by the Department of Natural Resources and Environment in 2001 lists ‘disease free stock’ as one of Victoria’s competitive advantages for the development of the industry in Victoria.


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4.28 Unlike the producers of common breeds, producers of such non-traditional livestock do not have the benefit of centuries of selective breeding for product quality and productivity, pest and disease resistance and so forth. Success may rely on the transferability of knowledge and technology from other sectors and/or localities.63

OTHER (NON-PATHOLOGY) LABORATORY NEEDS OF LIVESTOCK INDUSTRIES

4.29 Food safety is particularly important to consumers and livestock industries need to be able to respond to such market requirements. Consequently, the detection of chemical residues and environmental contaminants is important for the quality assurance of animal products. In general, however, analysis of chemical residues is a function of specialised analytical laboratories and not the role of pathology laboratories.

4.30 Animal breeding programs are essential to the long-term productivity of livestock industries. Laboratories are able to support the industry’s selective breeding programs with some specialised genetic tests. For example, gene-sequencing technology is allowing laboratories to assist animal breeders to identify lethal genetic defects in stud stock.64

EMERGING ISSUES

Livestock pathology services may increasingly need to prove the absence of disease, as well as continue their more traditional role of supporting disease control programs.

4.31 Victoria’s excellent animal health status is not a static attribute. Although the State has been free of many devastating exotic diseases, such as foot-and-mouth and mad cow disease, the increase of animal imports through trade liberalisation, the new threat of bioterrorism, or the illegal import of live animals and animal products and feeds may eventually result in an incursion. The ability of veterinary pathology laboratories to identify and respond to such emergencies will remain a fundamental need.

4.32 In addition, the increasing trend to accredit disease-free status will continue to rely on laboratory support.

4.33 Current trends of intensive animal husbandry are increasing, not only in poultry sectors, but in large-animal livestock sectors and growth sectors such as aquaculture. The proximity of animals in intensive production environments can lead to a greater risk of a disease outbreak, with consequent increase in the importance of access to high-quality disease diagnostic services.


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4.34 The range of stock now being farmed in Victoria also means that diagnostic expertise of an increasing number of non-traditional animals is required.

DISCUSSION POINTS

Q4.1 There has been growing concern that, nationally, rural vet numbers are in decline and many rural vets are expected to retire within the next five to 10 years. Are shortages of veterinarians in rural Victoria likely to impact on the delivery of animal health programs? If so, how could this trend be reversed?

Q4.2 Given the high cost of controlling disease outbreaks, is government and industry expenditure on disease diagnostic research adequate? What, if any, areas of research need additional resources?

Q4.3 Where rumours of disease are being encountered by consumers, who should be the provider of timely factual information?

Q4.4 Are the current services and level of expertise of Victoria’s public and private veterinary pathology laboratories able to respond to the needs of non-traditional livestock sectors such as aquaculture?

Q4.5 What are the emerging animal health issues within livestock industries that may have an impact on the future requirements for veterinary pathology services?

Q4.6 Are there effective standards for imported feeds and sufficient testing? Who should undertake such testing?

5. ANIMAL HEALTH NEEDS OF OTHER SECTORS

5.1 While the need to service the traditional agricultural livestock sectors appears to have been the primary reason for the initial development of veterinary pathology services in Victoria, the current and future requirements for such services extend much wider.

RACING INDUSTRY

The horse racing industry is a major user of specialist pathology services.

5.2 The Victorian racing industry requires veterinary diagnostic services to maintain the health and fitness of horses and greyhounds, to obtain health


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certification for animals entering and leaving the State (or country) and to test for illegal performance-related drugs.

5.3 In Victoria, the entire horse racing and breeding industry is worth approximately $1,200 million per year.65 The State’s racing industry is respected world wide, its reputation enhanced by an internationally acclaimed thoroughbred and standardbred horse racing industry and events such as the Melbourne Cup, one of the world’s most prestigious races.66 The livestock industry has recently become a major exporter, with a high demand for Australian-bred horses. These horses are now keenly sought by Asian and Middle Eastern equestrian competitors.67 Health certification for movement of animals overseas is therefore an important service, involving the diagnostic support of pathology laboratories.

OTHER EQUINE SECTORS

5.4 Equestrian sports are an important sporting activity in Victoria. The State has many equestrian facilities, the most significant of which is Werribee Park National Equestrian Centre – the training and competition base for Australia’s elite horses and riders.68 Veterinary pathology services are important for maintaining the general health and fitness of these performance animals. The movement of performance horses from both interstate and overseas for competition events demands health certification with diagnostic support from veterinary pathology laboratories.

5.5 Victoria has many recreational horse riders and small businesses providing horse trail experiences. These horse owners have various needs for veterinary checks and pathology tests.

PETS AND COMPANION ANIMALS

5.6 The domestic market for companion animals (pets) and aquaria fish is very large, with companion animals playing an important role in many people’s lives. Research has shown that:

Australia has the highest rate of pet ownership in the world with about 66 percent of households having some kind of companion animals and 88 percent of Australians having had a pet at some time.69

5.7 More than a million Australian households have birds as pets and it has been estimated that over $150 million a year is spent on them.70 While most companion animals are exotic species (dogs and cats), a number of Australian native species are also kept – such as budgerigars, zebra finches, tree frogs and long-necked tortoises.

5.8 The domestic market is supported by commercial breeders and traders. With few exceptions, the harvesting of native animals from the wild is not


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permitted in Victoria; consequently all pets and companions are from captive-bred stock or imported. The domestic market supports a small number of commercial breeders of captive-bred native birds and reptiles. The export of live native animals from Australia is very much restricted; however, as Australian breeders have access to unique genetic resources of native birds and have high avian health standards, the potential for an export market is considered large.71

5.9 The pet trade and companion animal sectors make extensive use of veterinarian and veterinary pathology services. The importation of exotic birds, the translocation of birds throughout Australia, the often large number of birds being kept in close proximity, all result in special animal health, disease diagnostic and veterinary needs and thus specialised needs for veterinary pathology services.

AMATEUR COLLECTORS AND ENTHUSIASTS

Amateur collectors and enthusiasts not only require access to disease diagnostic services, but may in fact hold specialised knowledge.

5.10 Some 13,000 owners and breeders of pure-bred dogs are members of the Victorian Canine Association.72 The association also has some 280 affiliated clubs representing single breeds. Education and training is one of the main services provided by the association, with seminars and lectures on veterinary and breeding issues conducted on a regular basis.73

5.11 Many people interested in the breeding and exhibition of cats also belong to a club, with the Feline Control Council of Victoria being the largest peak body, with 16 affiliated clubs. With 900 members, it is the largest of a number of feline registration councils in Victoria.

5.12 The Victorian Aviculture Council, the representative peak body for aviculture (the rearing and keeping of native birds), represents several thousand bird breeders. It is affiliated with 23 other aviculture organisations, at least one of which has a membership of over 2,000 in its own right. Most aviarists are members of an aviary club and most trade birds – to acquire new species and specimens and to sell surplus birds.

5.13 There are approximately 500 Victorian members of the Victorian Herpetological Society and a larger number of unaffiliated, licensed reptile hobbyists in Victoria. Such reptile enthusiasts may trade their animals within Victoria and elsewhere in Australia.74

5.14 Such amateur collectors and enthusiasts not only require access to disease diagnostic services, but may in fact hold specialised knowledge of the identification and management of animal diseases.


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LABORATORY ANIMALS

5.15 Many educational and research institutions breed and maintain populations of animals, such as laboratory mice, to support their teaching and research programs. The maintenance of the health of such populations may require access to veterinary pathology services.

ZOOS, WILDLIFE PARKS AND SANCTUARIES, AND AQUARIA

Public zoos and sanctuaries require and provide specialised disease diagnostic services.

5.16 At the end of June 1997, there were 53 zoos and 12 aquaria in Australia, which between them held some 64,467 animal specimens. They are also big business, with almost eight million paid admissions and gross income of some $142 million.75 In Victoria all such operations must be licensed under the Wildlife Act 1975 and, as at June 1999, 47 private operators were licensed. The operators include State Government agencies (the Zoological Parks and Gardens Board of Victoria and Parks Victoria), municipal councils, not-for-profit non-government organisations, private companies and private individuals.

5.17 The public and larger private operations undertake or subsidise research into animal biology and management and may offer veterinarian services. As the Committee noted in its report of its Inquiry into the Utilisation of Victorian Native Flora and Fauna:

Zoos and wildlife parks … rely on access to adequate expertise to ensure animal health.76

5.18 To maintain the health of their native and exotic animals, Victoria’s many zoos and sanctuaries require specialised veterinary pathology services.

5.19 While in the past the expertise of the public institutions may have been freely available to other sectors, the distinction between the public institutions and private parks is becoming more blurred, with both needing to meet commercial imperatives.

WILDLIFE

Knowledge of native wildlife diseases is poor, the availability of relevant diagnostic tests even poorer.

5.20 The natural ecosystems of Victoria support 111 species of mammal, 447 bird species, 133 species of reptile, 33 amphibian species, 46 different freshwater fish and an unknown number of species of invertebrates.77 The managers of Victoria’s public land, in particular, have a custodial duty of care for such wildlife. Some diseases of high-profile mammals, such as koalas, have attracted research in recent years. However, it seems that the level of knowledge


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of native-animal diseases is generally poor, with the availability of diagnostic tests even poorer.

5.21 Native wildlife not only have intrinsic and biodiversity value, but are an integral part of Australia’s fast-growing tourist industry – recent studies have shown that 80 to 85 per cent of Japanese visitors and 70 per cent of European and American visitors to Australia identify nature-based factors, including wildlife, as key elements in their travel decisions.78

5.22 Users of such specialised knowledge would include an array of sectors, including the rehabilitation of injured and orphaned fauna. This is a costly and specialised sector with, in any one year, around 9,000 animals from 427 different species admitted to one of the wildlife shelters operated by some 241 authorised operators.79

5.23 Potential cross-species infection between domestic animals and wildlife is another area of increasing concern and an area that calls on veterinary pathology services.80

DISCUSSION POINTS

Q5.1 Is there adequate access to veterinary pathologists and laboratory services for the specialist health needs of animals other than livestock?

Q5.2 If there was a major outbreak of a foreign disease in native wildlife, are Victoria’s skills and facilities able to respond adequately?

6. COMMONWEALTH ROLES AND RESPONSIBILITIES

6.1 The Commonwealth Government is responsible for quarantine and international animal health matters, including disease reporting, export certification and trade negotiation. In addition, it provides advice and co-ordination of national government policy and, in some circumstances, financial assistance for national animal disease control programs. Australian State and Territory governments are responsible for disease control and eradication within their own boundaries.81

6.2 The animal health role of the Commonwealth Government is delivered through three business groups within the Department of Agriculture, Fisheries and Forestry:

a) Product Integrity, Animal and Plant Health; b) Market Access and Biosecurity; and c) Australian Quarantine and Inspection Service.


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PRODUCT INTEGRITY, ANIMAL AND PLANT HEALTH

6.3 The Product Integrity, Animal and Plant Health business group co-ordinates a national approach to issues related to animal health and welfare, plant health and protection, and residues and food safety. The executive manager of the group is the Australian Chief Veterinary Officer.

6.4 The Australian Chief Veterinary Officer is Australia’s principal representative on animal health matters nationally and internationally, and is the permanent representative to the World Organisation for Animal Health.82 Within this group, the Office of the Chief Veterinary Officer provides an international reference point on animal health and manages Australia’s commitments to the World Organisation for Animal Health and other international agencies involved with animal health. The Chief Veterinary Officer also has a special role in the Australian Veterinary Emergency Plan (AUSVETPLAN), the nationally agreed arrangement for responding to an outbreak of an exotic animal disease in Australia. 83

6.5 An Aquatic Animal Health section leads and co-ordinates national management of aquatic animal health and disease management for fin fish, crustacea and molluscs. The section is involved in issues such as:

a) development and co-ordination of AQUAPLAN, Australia’s National Strategic Plan for Aquatic animal health 1998–2003;

b) production and distribution of AQUAVETPLAN preparedness and response manuals;

c) co-ordination and response to emergency aquatic animal disease outbreaks; and

d) co-ordination and management of Australia’s commitments to international agencies and agreements for aquatic animal health issues.84

MARKET ACCESS AND BIOSECURITY

6.6 The Market Access and Biosecurity business group aims to enhance the competitiveness of Australia’s agriculture and food industries by:

a) maintaining and improving market opportunities through policy and technical advice, and participating in negotiations for market access and trade agreements in international forums; and

b) permitting safe trade while protecting Australia’s plant, animal and human health and the environment through scientifically based biosecurity policy. Biosecurity Australia, established in October 2000, is responsible for developing and reviewing Australia’s quarantine program and for conducting technical export market access negotiations. The Australian Quarantine and Inspection Service delivers these programs. 85


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AUSTRALIAN QUARANTINE AND INSPECTION SERVICE

The Commonwealth’s Australian Quarantine and Inspection Service works with State agencies to deliver national quarantine services.

6.7 Australian agriculture benefits enormously from its relative freedom from the more devastating epidemic diseases that plague livestock industries in other parts of the world.86 The introduction of any of these diseases could cause serious production losses to livestock industries, jeopardise exports of livestock and livestock products and/or have serious public health implications.87 Australia’s quarantine requirements are its first line of defence against the introduction of exotic diseases.88 The Australian Quarantine and Inspection Service is responsible for export health certification, including responsibility for:

a) a national service for the veterinary public health inspection of meat; b) quarantine of imported live animals and animal products; and c) health certification of live-animal exports and animal reproductive

material. 89

6.8 Although the Commonwealth Government has ultimate responsibility for quarantine under the Australian Constitution, the States and Territories act as agents of the Commonwealth in the delivery of quarantine and export certification services. For example, the Victorian Institute of Animal Science (VIAS) in Attwood operates an Australian Quarantine and Inspection Service-approved laboratory to certify disease-free status for animals moving interstate or being exported overseas. 90

6.9 Under the provisions of the Australian Accreditation Program for Veterinarians, Australian Quarantine and Inspection Service-accredited veterinarians also provide export certification services. The Commonwealth Government is the largest single employer of veterinarians in Australia because of the large number employed in the meat inspection service. This may provide a reserve for the State and Territory governments if there is an outbreak of a major exotic animal disease. 91

NATIONAL LABORATORY NETWORK

6.10 There is a network of government and private laboratories across Australia that provides the pathology and analytical services required by governments, private veterinarians, the livestock industries and producers, and owners of companion animals. As many of the tests require specialist equipment and/or expertise, and are often expensive on a per-test basis, it is now common practice for laboratories to refer samples to other laboratories for testing. The network also fosters the sharing of information and developments in diagnostic techniques.92


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6.11 CSIRO undertakes animal health research and operates the Australian Animal Health Laboratory (AAHL) at Geelong in Victoria. The laboratory is a national facility for exotic disease diagnosis and research and provides training for animal health services field and laboratory staff. It also develops and tests vaccines, maintains the National Animal Serum Bank (used for retrospective studies on diseases) and acts as a regional and national reference laboratory. Scientists at the laboratory also have expertise on endemic diseases, plant toxins and food pathogens. 93

6.12 The national laboratory network is a critical part of Australia’s animal health infrastructure. Under its Animal Health Services Program, Animal Health Australia is establishing performance standards for laboratories and reviewing the capability and capacity of the national laboratory network to ensure that it meets the needs of governments and the livestock industries. 94

STANDARDS AND ACCREDITATION

The accuracy of laboratory diagnostic test results relies on a system of national standards and accreditation.

6.13 The accuracy of test results from veterinary pathology laboratories must be of the highest standard and reporting must be prompt so that results can be used in effective disease or residue control. Confidence in the accuracy and repeatability of test results is also critical to health authorities in countries that import live animals and animal products from Australia. 95

6.14 Quality assurance can be achieved in three ways. Firstly, tests are approved nationally under the Australian and New Zealand Standard Diagnostic Techniques. Standardised procedures for laboratory tests are maintained by CSIRO and are designed in accordance with international standards. Procedures for new tests are added as necessary and existing standards revised as appropriate. Secondly, laboratories can establish procedures under formal quality assurance programs such as those set down by the International Standards Organisation (ISO) and the National Association of Testing Authorities, Australia (NATA). The third way is that laboratories may participate in proficiency-testing programs (such as the Australian National Quality Assurance Program) to ensure that results are consistent and repeatable across laboratories. 96

6.15 Australia’s government-endorsed provider of accreditation for laboratories and similar testing facilities is the National Association of Testing Authorities. This association accredits laboratories against criteria based on the internationally recognised standard ISO/IEC 17025:1999.

6.16 The Australian National Quality Assurance Program facilitates inter-laboratory proficiency testing in government and private veterinary laboratories in Australia and New Zealand. It is operated by the Victorian Institute of Animal


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Sciences and focuses on assays used in quarantine, export certification and national disease-control programs. The program facilitates quality assurance in 22 government and private laboratories in Australia and New Zealand.97 Evaluation involves different laboratories undertaking the same procedure on test samples and comparing the results. Thus the process assesses the capacity of laboratories to perform procedures accurately – it is not a measure of actual performance on a day-to-day basis.98

ANIMAL HEALTH AUSTRALIA

6.17 Animal Health Australia is Australia’s peak animal health body. It is a non-profit public company and its members are representatives from the Commonwealth, State and Territory governments, livestock industries and other national animal health stakeholders. The company’s function is to facilitate a co-ordinated government–industry approach to animal health services and standards. To perform this role, Animal Health Australia is funded by Commonwealth and State/Territory governments and the peak councils of Australia’s 12 major livestock sectors.99

6.18 The programs managed by Animal Health Australia include: a) Animal Health Services – aims to improve the national capability,

standards and performance of Australia’s animal health system; b) Animal Disease Surveillance – aims to provide a nationally integrated,

innovative surveillance system to underpin trade; and c) Emergency Animal Disease Preparedness – aims to enhance

management approaches for dealing with animal disease emergencies100.

6.19 Animal Health Australia also manages the following national programs and projects:

a) Accreditation Program for Australian Veterinarians; b) National Arbovirus Monitoring Program; c) National Johne’s Disease Control Program; d) National Ovine Johne’s Disease Control and Evaluation Program; e) National Bovine Johne’s Disease Evaluation Project; f) Survey of Bovine Johne’s Disease in South-Eastern Beef Cattle; g) Transmissible Spongiform Encephalopathy Surveillance Program; and h) Tuberculosis Freedom Assurance Program. 101

6.20 Animal Health Australia is co-ordinating a new project called the National Laboratory System project.102 This project is intended to facilitate the development and national co-ordination of an efficient, effective and co-ordinated national laboratory system. One initiative is support for the maintenance and ongoing development of the Australian Standard Diagnostic Procedures. These are technical descriptions of the techniques used within


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Australian veterinary laboratories that underpin the quality and international standing of veterinary laboratory diagnostics. The project will also investigate better utilisation of the National Pathology Register currently managed by New South Wales Agriculture. The latter study is expected to assist decisions about managing other national registers to maximise their availability and usage.

6.21 Through the National Laboratory System project, Animal Health Australia, in consultation with Meat and Livestock Australia and Research and Development Corporations, will also investigate whether it can assist with the national determination of priorities for animal health research and development activities and expenditure. 103

DISCUSSION POINTS

Q6.1 The movement of animals into Victoria from overseas is a quarantine issue under Commonwealth responsibility; however, any lapses of quarantine will have a major impact on State animal health responsibilities. Should the Commonwealth have an increased role in providing or paying for Victoria’s veterinary pathology service requirements?

Q6.2 Quality assurance for laboratory tests is currently achieved in three ways – use of standardised procedures, use of formal quality-assurance programs and participation in proficiency-testing programs. Are such national programs meeting the needs of Victorian laboratories and the industries they serve?

Q6.3 The industry members of Animal Health Australia are representative of Australia’s principal animal industries. How are the animal health needs of small and specialised livestock industries represented?

7. VICTORIA’S ANIMAL HEALTH PROGRAM

7.1 Under the Australian Constitution, the Commonwealth Government is responsible for quarantine and international health matters (including disease reporting, export certification and trade negotiation), while the State governments are responsible for disease control and eradication within their own boundaries.104 In Victoria, this responsibility lies with the Department of Natural Resources and Environment and more specifically with the Chief Veterinary Officer Unit and the Animal Health Operations Branch.105

7.2 The Department of Natural Resources and Environment works through its animal health programs to assist the State’s livestock industries to provide high-quality animal products to domestic and overseas markets.


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LEGISLATIVE AND ORGANISATIONAL FRAMEWORK

The Livestock Disease Control Act 1994 and the Livestock Disease Control Regulations 1995 provide the legal basis for the State’s animal health programs.

7.3 The Livestock Disease Control Act 1994 provides the main legislative framework in Victoria for the monitoring and control of livestock diseases and for providing compensation for losses caused by certain livestock diseases. The Act is supported by the Livestock Disease Control Regulations 1995, which provide for the eradication, prevention and control of diseases in livestock and generally prescribes forms, penalties and other matters authorised by the Act.

7.4 The Department of Natural Resources and Environment is responsible for disease control and eradication within Victoria. The Office of the Chief Veterinary Officer develops policies to ensure that the priorities of the Government and the livestock industries are met. The Animal Health Operations Branch coordinates the delivery of animal health programs across the State.

VICTORIAN ANIMAL HEALTH PROGRAMS

Victorian animal health programs involve co-operation between livestock producers, the private veterinary sector and State and Commonwealth government agencies.

7.5 The Department of Natural Resources and Environment is an important provider of information, support and education to livestock producers on animal health matters such as animal husbandry, nutrition, welfare, on-farm biosecurity and disease diagnosis and control.

7.6 The surveillance and control of disease is an important part of the animal health program and requires an integrated approach between the Department and livestock producers and processors, private veterinary practitioners and veterinary pathology laboratories. Through its animal health programs, the Department is able to report on the status of livestock diseases, assess their risk to animal and human health and develop responsive policies and programs. The programs aim to:

a) monitor disease occurrence; b) mitigate the economical and social effects of disease and chemical

residue occurrence; c) minimise the opportunity for animal diseases to affect humans (in co-

operation with human health agencies); d) facilitate the marketing of Victorian livestock products; and e) promote the welfare of farmed animals.106

7.7 Increasingly, animal health programs take a national approach to ensure consistency in their delivery across jurisdictions and to realise the economic and


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marketing benefits of dealing with disease and residue problems on a national basis. Early examples include the programs to eradicate pleuropneumonia, tuberculosis and brucellosis from Australia’s cattle industries. Current programs include:

a) National Organochlorine Residue Minimisation Program; b) National Antibacterial Residue Minimisation Program; c) National Ovine Johne’s Disease Control and Evaluation Program; d) Transmissable Spongiform Encephalopathy Surveillance Program; e) National Bovine Johne’s Disease in South-Eastern Beef Cattle; f) National Sentinel Hive Program; g) Pig Health Monitoring Scheme; h) Victorian Enzootic Bovine Leucosis Control and Eradication Program; i) National Wildlife Disease Surveillance; j) National Arbovirus Monitoring Program; and k) national arrangements for the response to emergency animal diseases.

7.8 In all cases, there are nationally agreed rules for program delivery that include laboratory diagnostic criteria for each disease or chemical residue. These same principles apply for State/Territory-based animal health programs.107

DELIVERY OF ANIMAL HEALTH PROGRAMS

Animal health programs must be underpinned by good science.

7.9 Animal health programs, and in particular disease prevention, diagnosis and control requires sound knowledge of of animal diseases.

7.10 Services are delivered through regionally based animal health staff, the Victorian Institute of Animal Science (VIAS) in Attwood, private veterinary laboratories and private veterinary practitioners.108

7.11 The numbers of animal health staff employed for all animal health work in the State over the last decade are shown in Table 7.1.109

Table 7.1: Animal health staff employed by the Department of Natural Resources and Environment

Head office Field staff Date

Veterinarians Animal health officers Veterinarians Animal health

officers June 1992 5 2 17 36.5 September 1995 6 2 21 34 September 2000 5.5 2 21 34

Source: Environment and Natural Resources Committee (2000), p. 92.


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7.12 Private veterinarians with appropriate accreditation are involved in delivering some of the Department’s animal health programs through a contract arrangement. The services include delivering vaccinations, inspecting livestock and taking test samples for dispatch to pathology laboratories. The Department can communicate with all veterinary practitioners through the Veterinary Practitioners Board of Victoria.

7.13 Under the Livestock Disease Control Act 1994, any laboratory undertaking diagnostic testing for diseases of livestock must be registered with the Department of Natural Resources and Environment. A condition of this registration is that laboratories must participate in approved quality assurance programs.110

FUNDING OF THE DELIVERY OF PATHOLOGY SERVICES

7.14 Veterinary pathology services are a critical component of some of the Department’s animal disease programs.

7.15 As a general rule, if an animal owner requires individual testing for a particular disease or condition, this falls into the fee-for-service arrangement. However, there are some animal pathology services that are funded in part or entirely by government because the service is considered to be in the public good. For example, the investigation of an emergency animal disease is one circumstance in which the Department pays for the entire cost of laboratory testing because there is obvious community benefit in controlling such a disease.111

7.16 There are also a number of programs that are either joint national–State funded or purely State–industry funded. For example, there are joint national–State arrangements for funding a program of mad cow and scrapie surveillance in sheep, as part of an ongoing commitment to prove that Australia is free of those diseases. The test and control programs for Johne’s disease and enzootic bovine leukosis in cattle are jointly funded by the cattle industry and government.112

EMERGENCY ANIMAL DISEASE RESPONSE

Identification of the presence of disease and of the disease agent is a fundamental requirement of animal disease emergency response.

7.17 Notifiable diseases include all exotic diseases (for example, foot-and-mouth disease) and other diseases as listed in the Livestock Disease Control Regulations 1995 (for example, anthrax and Johne’s disease). Exotic diseases must be immediately reported to the Government and notifiable diseases must be reported within a prescribed timeframe. Failure to notify is an offence under the Livestock Disease Control Act 1994. The legislation gives wide powers to the Minister, the Secretary and to inspectors appointed under the Act.


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7.18 Most responses to such diseases are undertaken in accordance with nationally agreed arrangements. These arrangements for responding in a consistent manner to an animal disease emergency are set out in AUSVETPLAN for land animals and in AQUAVETPLAN for fisheries and aquaculture industries.

7.19 The unambiguous identification of diseased animals and the disease agent is a fundamental component of an emergency animal disease response, and consequently the ability of the State’s veterinary pathology diagnostic services inevitably comes into play. The capacity of the government sector to respond depends on the availability of adequate facilities as well as technical knowledge.

7.20 If the severity of an exotic disease outbreak were to stretch Victoria’s laboratory resources, assistance from other State government laboratories could be called upon, as well as pathologists and veterinary scientists from the International Veterinary Reserve.113

7.21 It is sometimes possible for temporary laboratories to be accommodated at or close to the disease outbreak locality, in order to maximise diagnostic response times.114

DISCUSSION POINTS

Q7.1 Are the animal health extension programs of the Department of Natural Resources and Environment adequately addressing livestock producers’ information needs with respect to animal disease diagnosis? If not, what areas of information are not adequately addressed?

Q7.2 Are livestock producers and veterinarians aware of what laboratory services are available at no cost?

Q7.3 What is the best method of ensuring that clinical practices reflect new developments in diagnostic testing?

Q7.4 Does Victoria have the facilities to cope with the diagnostic requirements of a major outbreak of a highly infectious exotic disease?

8. PROVISION OF VETERINARY PATHOLOGY SERVICES

8.1 There is a national network of government animal health laboratories in Australia. The peak facility for exotic disease diagnosis, training and research is the CSIRO’s Australian Animal Health Laboratory, located in Geelong.115


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Established in 1985, it is considered to be one of the most sophisticated animal health laboratories in the world.

8.2 As well as the Australian Animal Health Laboratory (AAHL) at Geelong, the national veterinary laboratory framework includes twelve government animal health laboratories,116 including the Victorian Institute of Animal Science (VIAS) at Attwood and Werribee, which is the Victorian Government’s principal laboratory for major exotic and endemic disease control.117

8.3 In Victoria, both public and private laboratories currently provide veterinary pathology and other diagnostic services to the livestock industries.

AUSTRALIAN ANIMAL HEALTH LABORATORY

8.4 The CSIRO’s Australian Animal Health Laboratory at Geelong plays a vital role in maintaining Australia’s capability to quickly diagnose exotic (foreign) and emerging animal diseases. This is achieved through ongoing research programs to develop the most sensitive, accurate and timely diagnostic tests, which are critical to the success of any eradication campaign in the event of a disease outbreak. The laboratory also undertakes research to develop new diagnostic tests, vaccines and therapeutics for endemic animal diseases of national importance. Major diseases of livestock, aquaculture animals and wildlife are studied. Staff have a high level of expertise in disease diagnosis and the development of diagnostic tests, vaccines and therapeutics; and veterinary skills, including epidemiology, virology, immunology, molecular biology, histology, electron microscopy, serology, pathology, protein biochemistry and proteomics, plant toxins, bacteriology and organic chemistry, particularly in relation to natural toxins, high-level biocontainment and handling of zoonotic diseases.118

VICTORIAN INSTITUTE OF ANIMAL SCIENCE

The Victorian Institute of Animal Science provides core veterinary pathology expertise for the State of Victoria.

8.5 The Veterinary Investigations unit at the Victorian Institute of Animal Science, Attwood, provides core veterinary pathology expertise for the State of Victoria. It retains expertise in epidemiology, pathology, virology, bacteriology, parasitology and immunology. Its principal function is to report on the occurrence of endemic diseases to the National Animal Health Information System, maintain facilities for diagnosis of exotic diseases, evaluate tests for endemic diseases and provide diagnostic support to the Chief Veterinary Officer and Manager of Animal Health Operations. 119

8.6 The specialist services provided by the Victorian Institute of Animal Science include:


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a) national reference laboratory for Johne’s disease; b) co-ordinating the Australian National Quality Assurance Program – a

proficiency-testing program for veterinary laboratories in Australia and New Zealand;120

c) maintaining serological capability for a wide range of diseases, which involves maintaining reagents and reference cultures – this is important for disease investigations in Victoria and testing livestock for export;

d) specialist testing to allow for the identification of bacteria and viruses; e) development of improved diagnostic technology, for example for

Johne’s disease and anthrax; f) diagnostic support for national programs such as the Tuberculosis

Freedom Assurance Program and National Arbovirus Monitoring Program;

g) testing for drug resistance in parasites; and h) providing health certification services for international trade in animals

and genetic material.121

8.7 The Victorian Institute of Animal Science operates an Australian Quarantine Inspection Service-approved laboratory offering a fee-for-service veterinary diagnostic service to veterinarians, other laboratories, artificial breeding centres and livestock exporters. The largest work volume in 1999–2000 was in diagnostic serology to certify disease-free status of animals for movement interstate or export overseas.122

8.8 The institute is certified in accordance with ISO 9002 and accredited by the National Association of Testing Authorities. As part of the certification and accreditation processes, the institute’s quality systems are subject to regular internal and external audit.

VICTORIAN STATE CHEMISTRY LABORATORY

8.9 Victoria’s State Chemistry Laboratory in Werribee plays a supportive role in servicing the animal health activities of the Department of Natural Resources and Environment, industry and the public. The laboratory provides specialist analytical, research, investigation and consultancy services in chemistry and related areas. The laboratory has 46 scientists and engineers, 30 technical staff and 13 support staff. Services include testing for pesticides and organic residue, as well as analysis of animal nutrition123.

GRIBBLES VETERINARY PATHOLOGY

The private company, Gribbles Veterinary Pathology, is one of the State’s major suppliers of veterinary pathology services.


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8.10 Gribbles Veterinary Pathology has a contract with Department of Natural Resources and Environment as the preferred supplier of veterinary pathology and chemical residue diagnostic services. It is part of the Gribbles Group, an organisation that delivers a range of diagnostic and analytical information services, with the bulk of its business related to human pathology services.

8.11 The main laboratory of Gribbles Veterinary Pathology (and Gribbles Pathology, which is the human pathology business unit) is in Clayton. It also has smaller laboratories at Bendigo, Mornington, Seymour and Warrnambool (the Wayville and Mt Gambier laboratories in South Australia also service some areas of western Victoria). There are about 250 staff employed at the main laboratory in Clayton, of which 35 equivalent full-time staff are dedicated to veterinary diagnostics as well as six veterinarians. The Clayton laboratory offers a full range of veterinary pathology services, while services in haematology and biochemistry are available from the smaller laboratories.

8.12 The laboratories are organised into specialist departments of tissue pathology, chemical pathology including toxicology, immunology, haematology and microbiology, with each section under the direction of a pathologist and/or senior scientist. The Clayton laboratory has a post-mortem facility available for animals up to 60 kg in size. It also has a PCR development laboratory,124 which is developing new tests using molecular microbiology.

8.13 Customers include government and private veterinarians from Victoria, New South Wales, ACT and Tasmania. The Victorian Department of Natural Resources and Environment contract for the delivery of pathology services for its animal health programs is a significant contributor to the veterinary pathology workload of Gribbles.125

8.14 The veterinary pathology workload is a much smaller component than the human pathology workload, contributing only 4 per cent to the overall pathology workload of Gribbles laboratories. However, the alliance provides advantages to the veterinary pathology business that could not be achieved independently. These advantages include a medical courier network servicing veterinarians throughout Victoria, a 24-hour pathology service, modern laboratories, sophisticated computer networks and greater investment capability. The combination of human and veterinary pathology leads to efficiencies in some departments, such as histopathology, biochemistry and virology.

8.15 Gribbles operate laboratories that are accredited through the National Association of Testing Authorities. Veterinary diagnostic tests follow national standards developed by CSIRO. The company participates in laboratory proficiency testing through the Australian National Quality Assurance Program and has obtained certification to ISO 9002 standards for quality management.


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8.16 Gribbles Veterinary Pathology provides high-volume testing required for disease and residue-control programs including, Johne’s disease, enzootic bovine leucosis, surveillance for transmissible spongiform encephalopathies (for example, BSE mad cow disease) and general diagnostic testing.

OTHER PRIVATE LABORATORIES

8.17 Although the list may not be exhaustive, some of the other private veterinary laboratories operating in Victoria and servicing various animal sectors and/or the livestock industries include:

a) Animal Pathology Service (Hallam); b) Idexx Laboratories (Mount Waverley) – provides general veterinary

laboratory services and is accredited by the National Association of Testing Authorities for tests in microbiology, bacteriology, parasitology, serology, clinical immunology, haematology, blood transfusions, biochemistry, toxicology, anatomical pathology, cytology, histopathology, necropsy and analysis of excreta;

c) Gippsland Veterinary Pathology (Traralgon) – participates in the Australian National Quality Assurance Program;

d) Melbourne Racing Laboratory (Glen Huntly); e) Peninsula Equine (Tyabb); f) Racing Analytical Services (Flemington); g) Regional Laboratory Services (Benalla) – provides specialised veterinary

laboratory services in haematology, biochemistry and toxicology. The laboratory is accredited by the National Association of Testing Authorities;

h) Skilbeck Scientific (Bairnsdale)– provides diagnostic testing for Johne's disease and ovine brucellosis. Participates in the Australian National Quality Assurance Program;

i) Spectrum Scientific Services (Benalla).

8.18 There are several registered private veterinary laboratories in Victoria that are approved to undertake testing for certain diseases, such as Johne’s disease.

VETERINARY PRACTICES

8.19 Some of the larger private veterinary practices have an in-house capability to undertake a limited range of pathology services.

UNIVERSITIES

8.20 In addition to government animal health laboratories there are veterinary diagnostic laboratories associated with each of Australia’s four veterinary


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schools.126 The veterinary school at the University of Melbourne has laboratory facilities at Werribee and Parkville. These are used for education and research. The veterinary school also undertakes consulting work.

USER PERCEPTIONS – OJD CASE STUDY

8.21 In 2000, the Environment and Natural Resources Committee undertook an inquiry into the control of ovine Johne’s disease (OJD) in Victoria.127 As part of this inquiry the Committee received evidence on the quality control and accountability of diagnostic testing procedures used in the Government’s control program for the disease which commenced in 1996.

8.22 Considerable concern was expressed to the Committee during the inquiry about the diagnostic procedures used to identify OJD-infected flocks, with strong evidence received suggesting that the quality control and accountability of testing procedures for these aspects of diagnosis had at times been less than adequate – with concerns expressed to the Committee about inaccurate and inconsistent sampling and testing procedures and unreliable methods for identifying the sample being tested.128

Quality Control in Testing

8.23 An example of such apparent quality control issues was included in the Committee’s report:

In 1999 a case reported to the Committee raised serious concerns about quality control in laboratory diagnosis. The same microscope slide of a sample of sheep’s intestine was examined at both the Victorian State Laboratory and the NSW Agriculture laboratory in NSW.129 The Victorian laboratory concluded that a bacterium in the tissue indicated that the sheep had OJD. The NSW laboratory considered that the bacterium indicated presence of contamination and concluded that there was no evidence of OJD infection.130

Quality Control for Identification of Samples

8.24 Identification of animals slaughtered for diagnostic testing, from farm to final result, is an essential part of accurate diagnosis. However, this ‘chain of evidence’ appears to have failed, at least on one occasion. As stated in the Committee’s report:

Two farmers from Euroa provided written evidence to the Committee of how eight of their rams had been taken to an abattoir to be slaughtered prior to autopsy of their intestines. At the abattoir nine sets of intestines were grouped together as coming from the Richardson farm. When the mistake was discovered one was discarded, but it was not definite that the last one retained was in fact from their farm. One only of the sets of intestines was diagnosed as infected. There was an inevitable doubt that


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the ram concerned came from their flock, but the flock was still diagnosed as infected and has, as a result, been slaughtered. 131

8.25 The Committee also received some anecdotal evidence from NSW of the substitution of healthy animals for autopsy examination instead of the actual animals that had tested positive for OJD and noted that without a rigorous method of sheep identification, such substitution could occur elsewhere.132

8.26 The Committee found that: Quality control for diagnosis of OJD appears to have been a matter for legitimate concern. Grounds for these concerns may have been addressed in new protocols, but farmers still need to be given evidence of this. They need [to] have confidence that the new quality-control procedures are consistently and regularly applied.133

Delivery of Results

8.27 The results of the diagnostic tests had a dramatic impact on the owner of the sheep. If the test was ‘positive’, it could result in the farmer, in accordance with the requirements of the control program then in place, being required to destroy all the sheep on the property.

8.28 Carelessness in providing results was criticised – with some farmers describing hearing of results first through neighbours rather than from Departmental staff. Other farmers complained of delays in being given results and of inconsistent advice on the outcome of tests. Another said that he was never given written confirmation of a positive test. One farmer was told that an autopsy had showed a positive blood test result on one of her sheep to be a false positive – and was then given conflicting advice on the implication of this by the vet lab and the Departmental veterinarians.134

8.29 The Committee found that: Farmers have not always been given the results of testing in a sensitive manner. Breaking such news will always be difficult and requires considerable skill. Staff delivering the Program did not have formal training in the required skills.135

DISCUSSION POINTS

Q8.1 Can accessibility to services be improved?

Q8.2 Are the costs of pathology testing allowing for an equitable distribution of health services to all animal sectors, or are there sectors that are disadvantaged in some way?


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Q8.3 Is there a system that addresses the accountability of veterinary pathology laboratories in providing accurate test results, especially in instances where a false positive result may lead to devastating management options for livestock owners? Q8.4 Veterinary pathology is a highly skilled and specialised scientific profession that is continuously evolving with respect to advances in research and technology. Are there any significant issues affecting the profession?

Q8.5 A national government–industry workshop held in 2000 reviewed current foot-and-mouth disease risk factors. One of the key issues found was a likely shortage of trained government personnel and resources to undertake clinical and serological investigations.136 Was this true for Victoria, and if so, what areas needed improvement and what steps have been taken to remedy the situation?

Q8.6 Government pays for veterinary pathology services with obvious community benefit (such as testing on suspicion of exotic disease). Veterinary pathology services that have obvious private benefit are paid for by individual producers or industry. How are services that provide community benefit determined by government? Is this consistent on a national basis and internationally?

Q8.7 How do veterinary pathologists and other laboratory scientists keep up to date with current advances in animal health science and technology? Does government have a role to play?

Q8.8 Have current laboratory procedures overcome the past problems in quality control and identification of samples, as reported during the Committee’s OJD Inquiry?

Q8.9 What role, if any, should veterinary pathology laboratories have in advising third parties (other than statutory reporting requirements) of the results of tests? Are confidentiality protocols in place? If not, should they be?

9. FUTURE DIRECTIONS

9.1 Victoria’s veterinary pathology services have evolved over time in response to the requirements of livestock industry requirements and government policy. The needs of the State’s livestock industries are changing. As noted elsewhere in this discussion paper, new industries are developing and market demands are changing – food quality is now equally important to animal health.


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9.2 Biotechnology is a rapidly developing field and it is predicted that the ‘biotechnology revolution’ will have as much if not greater impact than the information technology revolution. New areas such as molecular biology, DNA analysis, genomics and transgenics will lead to dramatic changes to animal productivity in the future and this is expected to have flow-on effects for animal health and veterinary pathology services. Potential benefits to veterinary pathology may rest in new developments of disease diagnostic techniques using biotechnology.

9.3 While the private sector is now an important provider of veterinary pathology services in Victoria, the research capability and expert technical knowledge still appears to remain largely in the public sector and increasingly to rely on non-Victorian resources. The recruitment of qualified staff seems to be proving more difficult for the private and, in particular, the public sector.

9.4 Is the current Victorian model of service provision responsive to such new challenges and opportunities?

9.5 Are there other models of service delivery? Can Victoria learn from the experience of other jurisdictions?

DISCUSSION POINTS

Q9.1 Are there better models for the delivery of veterinary pathology services than the current Victorian model? Are better models operating in other Australian States or overseas?

Q9.2 Most emergency disease responses require nationally coordinated responses. Are the coordination mechanisms adequate? If not, how could they be improved?

Q9.3 With respect to pathology laboratories, what are the lessons to be learnt from recent overseas experiences of animal health emergencies such as foot-and-mouth disease and mad cow disease?

Q9.4 Is there a need for industry and government to encourage graduate recruitment in the veterinary pathology field? If so, how might this be best pursued?

Q9.5 Are Victoria’s veterinary pathology laboratories building capability in biotechnology and applying this to the development and use of new disease diagnostic techniques? Should they, or should this be the role of others?


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REFERENCES

Animal Health Australia (2001), Animal Health in Australia 2000, Canberra, Australia.

Animal Health Australia (2002), National Laboratory System, Animal Health Australia, Internet site: http://www.aahc.com.au/services/ahsp/lab.htm, 15 March 2002.

Australian Bureau of Statistics (1998), Zoos, Parks and Gardens Industry, Australian Bureau of Statistics, Canberra, ACT.

Australian Bureau of Statistics (2001a), Australian National Accounts: State Accounts, Australian Bureau of Statistics, Canberra, Australia.

Australian Bureau of Statistics (2001b), Value of Principal Agricultural Commodities Produced, Preliminary, Australian Bureau of Statistics, Canberra, Australia.

Braniff, D. G. (2002), Marketing Manager, Gribbles Veterinary Pathology, 1 March 2002.

Cattle Council of Australia (2001), ‘Industry will recover from Japan’s BSE turmoil’, Media Alert MR37/01, 19 November 2001.

Cheville, N. F. (1988), Introduction to Veterinary Pathology, Iowa State University, Ames.

Clark, A. and I. (2000), Written Submissions, OJD 040. Copies of the reports were submitted to the Melbourne hearing of the Senate Rural and Regional Affairs and Transport Joint Investigatory Committee on 21 July 2000.

Commonwealth of Australia (1996), AUSVETPLAN Management Manual: Laboratory Preparedness, Agriculture and Resource Management Council of Australia and New Zealand.

Commonwealth of Australia (1999), AQUAPLAN: Australia’s National Strategic Plan for Aquatic Animal Health 1998–2003, Canberra.

Commonwealth Scientific and Industrial Research Organisation (2001), ‘Lab training boosts foot and mouth preparedness’, Media Release Ref 2001/266- Nov 21, 2001.

Commonwealth Scientific and Industrial Research Organisation (2002a), Infectious Diseases and Food Safety, CSIRO Livestock Industries, Internet site: http://www.csiro.gov.au/index.asp?type=researchProgram&id=Livestock%20Industries_Infectious%20Diseases&xml=relatedResearchAreas,researchProjects&stylesheet=divisionResearchProgram, 15 March 2002.

Commonwealth Scientific and Industrial Research Organisation (2002b), National Animal Health Advice and Disease Control, Commonwealth Scientific and Industrial Research Organisation, Internet site: http://www.csiro.gov.au/index.asp?type=issue&id=Meat%20Dairy%20and%20Aquaculture_National%20Animal%20Disease%20Advice%20and%20Control, 15 March 2002.

Commonwealth Scientific and Industrial Research Organisation (2002c), Australian Animal Health Laboratory, Commonwealth Scientific and Industrial Research Organisation, Internet site: http://www.csiro.gov.au/index.asp?type=faq&id=Australian%20Animal%20Health%20Laboratory&stylesheet=divisionFaq, 15 March 2002


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Department of Agriculture, Fisheries and Forestry- Australia (2002), Overview of Aquatic Animal Health, Commonwealth Department of Agriculture, Fisheries and Forestry- Australia, Internet site: http://www.dpie.gov.au/content/output.cfm?ObjectID=F94E4AD8-6FFF-4863-B0BFF09A15B2B8DC, 14 March 2002.

Department of Natural Resources and Environment (1997), Victoria’s Biodiversity, Our Living Wealth, Department of Natural Resources and Environment, Melbourne.

Department of Natural Resources and Environment (1998), Victorian Aquaculture Strategy, Department of Natural Resources and Environment, East Melbourne.

Department of Natural Resources and Environment (2000), Agriculture Victoria – Attwood, Werribee, Frankston: Victorian Institute of Animal Science Biennial Report 1998–2000, Department of Natural Resources and Environment, Melbourne.

Department of Natural Resources and Environment (2001), The Victorian Dairy Industry, Department of Natural Resources and Environment, Melbourne.

Department of Natural Resources and Environment (2002a), Animal Health, Department of Natural Resources and Environment, Internet site, http://www.nre.vic.gov.au, 1 March 2002.

Department of Natural Resources and Environment (2002b), Inquiry into Veterinary Pathology Services: Background Paper, Department of Natural Resources and Environment, Melbourne.

Department of Natural Resources and Environment (2002c), State Chemistry Laboratory, Department of Natural Resources and Environment, Internet site, http://www.land.vic.gov.au/web/root/domino/cm_da/NRECSR.nsf/377b2d42988e506b4a25671c008191ce/90e4a9c1cf4844594a2567a70015e3e6?OpenDocument. 15 March 2002.

Elizabeth Macarthur Agricultural Institute (2002), Cattle, NSW Department of Agriculture, Internet site: http://www.agric.nsw.gov.au/reader/2448, 15 March 2002.

Environment and Natural Resources Committee (2000a), Control of Ovine Johne's Disease in Victoria – Inquiry Report, Parliament of Victoria, Melbourne.

Environment and Natural Resources Committee (2000b), Utilisation of Victorian Native Flora and Fauna – Inquiry Report, Parliament of Victoria, Melbourne.

Environment and Natural Resources Committee (2000c), Inquiry into Fisheries Management – Discussion Paper, ENRC, Parliament of Victoria.

Fallu, R. and Mosig, J. (1994), Australian Fish Farmer – A Practical Guide to Aquaculture, Agmedia, East Melbourne.

Galvin, J. (2002), ‘Minutes of Evidence’, 4 March 2002.

Geering, W. A., Forman, A. J. and Nunn, M. J. (1995), Exotic Diseases of Animals: A Field Guide for Australian Veterinarians, Australian Government Publishing Service, Canberra.

Haynes, N. B. (1994), Keeping Livestock Healthy: a Veterinary Guide to Horses, Cattle, Pigs, Goats and Sheep, 3rd edition, Storey Communications, Inc.

Herfort, A. and Rawlin, G. (2001), Australian Aquatic Animal Disease – Identification Field Guide, National Office of Animal and Plant Health [and] National Office of Food Safety, Canberra.


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Hyde, K. (ed.) (1998), The New Rural Industries – A Handbook for Farmers and Investors, Rural Industries Research and Development Corporation, Canberra.

IER Strategic Planning (2002) Size and Scope of Victoria's Racing Industry, Racing Victoria, Internet site: http://www.racingvictoria.net.au/vtriScope/index.htm, 14 March 2002.

Kefford, B. (2000), Executive Director, Agriculture, Department of Natural Resources and Environment, correspondence, VT/001/0001, received 22 September 2000 as reported in Environment and Natural Resources Committee (2000a) Control of Ovine Johne's Disease in Victoria – Inquiry Report, Parliament of Victoria, Melbourne, p. 92.

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Richardson, J. and J. (2000), Written Submissions, OJD 102, as reported in Environment and Natural Resources Committee (2000a) Control of Ovine Johne's Disease in Victoria – Inquiry Report, Parliament of Victoria, Melbourne.

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Victorian Canine Association Inc. (2002), Welcome to the Victorian Canine Association, Internet site, http://www.vca.org.au. 17 March 2002.

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ENDNOTES

1 Animal Health Australia (2001). 2 Department of Natural Resources and Environment (2002a). 3 An exotic animal disease is defined as a disease affecting animals that does not normally occur in Australia (also called a foreign animal disease). Endemic animal diseases do occur in Australia. 4 Department of Natural Resources and Environment (2002b). 5 Department of Natural Resources and Environment (2002b). 6 Victorian Labor Party (1999). 7 This definition reflects that used in the Livestock Disease Control Act 1994 s. 3: “livestock means any non-human animal, and any fish or bird whether wild or domesticated, egg intended for hatching or bee.” 8 Cheville (1988). 9 Haynes (1994). 10 Cheville (1988). 11 Department of Natural Resources and Environment (2002b). 12 Department of Natural Resources and Environment (2002b). 13 Commonwealth of Australia (1996). 14 Commonwealth of Australia (1996). 15 Commonwealth of Australia (1996). 16 Commonwealth of Australia (1996). 17 Commonwealth of Australia (1996). 18 Geering, Forman and Nunn (1995). 19 Commonwealth of Australia (1999). 20 Herfort and Rawlin (2001). 21 Commonwealth Scientific and Industrial Research Organisation (2002a). 22 Commonwealth Scientific and Industrial Research Organisation (2002a). 23 Commonwealth Scientific and Industrial Research Organisation (2002b). 24 Animal Health Australia (2001). 25 Animal Health Australia (2001). 26 The Subcommittee on Animal Health Laboratory Standards is a specialist subcommittee of the Standing Committee on Agriculture and Resource Management. These are both national committees with representatives from all State/Territories reporting to the Agriculture and Resource Management of Australia and New Zealand. 27 Animal Health Australia (2001). 28 Department of Natural Resources and Environment (2000). 29 As listed in the Livestock Disease Control Regulations 1995 (for example, anthrax and Johne’s disease). 30 Animal Health Australia (2001). 31 Animal Health Australia (2001). 32 Department of Natural Resources and Environment (2002b). 33 Department of Natural Resources and Environment (2002b). 34 Notifiable diseases include all exotic diseases (e.g. foot-and-mouth disease) and other diseases (e.g. anthrax and Johne’s disease) as listed in the Livestock Disease Control Regulations 1995. 35 Galvin (2002). 36 Galvin (2002). 37 Australian Bureau of Statistics (2001a). 38 Victoria accounts for 17 per cent of Australia’s meat exports; in comparison, the nation’s largest exporter of meat, Queensland, exported $2.8 billion in 2000–01. 39 Tradedata (Victoria University) courtesy of Agribusiness, Department of Natural Resources and Environment. 40 Tradedata (Victoria University) courtesy of Agribusiness, Department of Natural Resources and Environment. 41 Department of Natural Resources and Environment (2001). 42 Australian Bureau of Statistics (2001b). 43 Tradedata (Victoria University) courtesy of Agribusiness, Department of Natural Resources and Environment. 44 Pleuropneumonia, tuberculosis and brucellosis. 45 Animal Health Australia (2001); the World Organisation for Animal Health is also known as OIE or Office International des Epizootes. 46 Commonwealth Scientific and Industrial Research Organisation (2001). 47 Weekly World (2002). 48 Cattle Council of Australia (2001). 49 Environment and Natural Resources Committee (2000a).


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50 Responses to an animal disease occurrence include other appropriate biosecurity measures, such as quarantining the sick animal and ensuring appropriate personal sanitation measures are made after handling a diseased animal. 51 Environment and Natural Resources Committee (2000a), p 40. 52 Environment and Natural Resources Committee (2000a), pp. 140–147. 53 Hyde (1998). 54 Environment and Natural Resources Committee (2000b), pp. 107–112. 55 Hyde (1998), p. 42. 56 Hyde (1998), p. 44. 57 Environment and Natural Resources Committee (2000c) p. 11. 58 Marine and Freshwater Resources Institute (2001), p. 4. 59 Fallu and Mosig (1994), p. 105. 60 Fallu and Mosig (1994), p. 118. 61 Fallu and Mosig (1994), p. 118. 62 Department of Natural Resources and Environment (1998), p. 4. 63 Hyde. (1998), pp. 5–6. 64 Elizabeth Macarthur Agricultural Institute (2002). 65 IER Strategic Planning (2002). 66 Sport and Recreation Victoria (2002). 67 Sport and Recreation Victoria (2002). 68 Sport and Recreation Victoria (2002). 69 Senate Rural Affairs and Regional Affairs and Transport Reference Committee (1998), p. 333. 70 Wilson, G. R. (1988), in Hyde (1998), p. 60. 71 Environment and Natural Resources Committee (2000b), p. 187. 72 Formerly known as the Kennel Control Council of Victoria 73 Victorian Canine Association Inc. (2002). 74 Environment and Natural Resources Committee (2000b), pp. 192–195. 75 Australian Bureau of Statistics (1998). 76 Environment and Natural Resources Committee (2000b), p. 160. 77 Department of Natural Resources and Environment (1997), p. 3. 78 Environment and Natural Resources Committee (2000b), pp. 138–139. 79 Environment and Natural Resources Committee (2000b), p. 197. 80 For example, concerns about potential cross-species infection were raised in evidence collected by the Committee during its Inquiry into the Control of Ovine Johne’s Disease in Victoria. 81 Animal Health Australia (2001). 82 Also known as OIE; or Office International des Epizooties. 83 Animal Health Australia (2001). 84 Department of Agriculture, Fisheries and Forestry Australia (2002) 85 Animal Health Australia (2001). 86 Geering, Forman and Nunn (1995). 87 Geering, Forman and Nunn (1995). 88 Geering, Forman and Nunn (1995). 89 Animal Health Australia (2001). 90 Animal Health Australia (2001). 91 Animal Health Australia (2001). 92 Department of Natural Resources and Environment (2002b). 93 Animal Health Australia (2001). 94 Department of Natural Resources and Environment (2002b). 95 Department of Natural Resources and Environment (2002b). 96 Department of Natural Resources and Environment (2002b). 97 Animal Health Australia (2001). 98 Environment and Natural Resources Committee (2000a), p 163. 99 In 2000, the following livestock industry organisations and veterinary groups were members of Animal Health Australia: Australian Chicken Meat Federation Inc., Australian Dairy Farmers’ Federation Limited, Australian Egg Industry Association Inc., Australian Horse Industry Council, Australian Lot Feeders Association Inc., Australian Racing Board, Cattle Council of Australia Inc., Pork Council of Australia Limited, Sheepmeat Council of Australia Inc., Wool Council of Australia Inc., Goat Industry Council of Australia, Australian Honey Bee Industry Council, Australian Veterinary Association Limited and The Australian Veterinary Deans. 100 Animal Health Australia (2001). 101 Animal Health Australia (2001). 102 Animal Health Australia (2002). 103 Animal Health Australia (2001).


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104 Animal Health Australia (2001). 105 Department of Natural Resources and Environment (2002a). 106 Department of Natural Resources and Environment (2002a). 107 Department of Natural Resources and Environment (2002b). 108 Department of Natural Resources and Environment (2002a). 109 Kefford (2000). 110 Such as the Australian National Quality Assurance Program. 111 Galvin (2002). 112 Galvin (2002). 113 Galvin (2002). 114 Galvin (2002). 115 Animal Health Australia (2001). 116 Animal Health Australia (2001). 117 Department of Natural Resources and Environment (2000). 118 CSIRO (2002c) 119 Department of Natural Resources and Environment (2000). 120 This program has recently been extended to involve laboratories in the USA. 121 Department of Natural Resources and Environment (2000). 122 Department of Natural Resources and Environment (2000). 123Department of Natural Resources and Environment (2002c) 124 PCR is the acronym for “polymerase chain reaction” – a technique for amplifying DNA fragments. 125 Braniff (2002). 126 Australia’s veterinary schools are located at University of Melbourne, Murdoch University, University of Sydney and University of Queensland. 127 Environment and Natural Resources Committee (2000a). 128 Environment and Natural Resources Committee (2000a), pp. 108–109. 129 Clark (2000). 130 Environment and Natural Resources Committee (2000a), p. 108. 131 Richardson (2000). 132 Environment and Natural Resources Committee (2000a), p. 109. 133 Environment and Natural Resources Committee (2000a), p. 109. 134 Environment and Natural Resources Committee (2000a), p. 105. 135 Finding 6.3; Environment and Natural Resources Committee (2000a), p. 106. 136 Animal Health Australia (2001).